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U.S. Department of Justice

National Institute of Corrections

Resource Guide forJail Administrators

U.S. Department of JusticeNational Institute of Corrections

320 First Street, NWWashington, DC 20534

Morris L. ThigpenDirector

Larry SolomonDeputy Director

Virginia A. HutchinsonChief, Jails Division

Alan L. RichardsonProject Manager

National Institute of CorrectionsWorld Wide Web Site

http://www.nicic.org

Resource Guide forJail Administrators

Mark D. MartinThomas A. Rosazza

December 2004

NIC Accession Number020030

This document was funded by cooperative agreement number 02J18GIV1 from the National Institute of Corrections, U.S Department of Justice. Points of view or opinions stated in this document are those of the authors and do not necessarily represent the official opinion or policies of the U.S. Department of Justice.

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Foreword

Local jails are highly complex organizations.On the most basic level, the jail must provide itsinmate population a full array of services, in-cluding meals, medical and mental health care,clothing and linens, laundry, visitation, mail andtelephone, recreation, religious programs, andaccess to courts and attorneys. Complicating thistask is the diversity of needs within the inmatepopulation, the daily processing of inmatesthrough the intake and release functions, and thenecessity of maintaining the safety and securityof staff, inmates, and the community, which car-ries a high degree of liability. The jail adminis-trator must lead, manage, and supervise all oper-ations of the jail and its employees and try tokeep the agency free of litigation.

Few training programs or work experiencesprepare individuals for the breadth of responsi-bilities they assume when becoming a jailadministrator. Newly appointed administratorsnot fortunate enough to have mentors or astrong and capable administrative staff haveoften found themselves learning their role andresponsibilities by trial and error. Yet the jailadministrator’s performance directly affectsthe security of the jail and the safety of staff,inmates, and the community the jail serves.

Although publications on various topics in jailadministration are available, there has been nocomprehensive desk reference that could anchorjail administrators’ thinking in sound correction-al practice and guide their efforts in administer-ing a safe, humane, constitutional jail. This guidewas developed to fill that gap. It provides gener-al information essential to the jail administrator’sunderstanding of the role of the jail within thelocal criminal justice system and the jail’s rela-tionship to the broader community. It offerspractical information on jail operations and in-cludes a series of assessment checklists for usein evaluating jail conditions and the complete-ness of services and operations. The guide alsoincludes specific information to aid new admin-istrators in the first few critical months on thejob.

Each agency has a different operational philoso-phy, and no single source of information canhope to address every issue a jail administratormay face. We hope this guide will serve as abasic reference for sound correctional practicein operating a local jail, both for administratorsnew to the position and veteran administratorswho want to improve their effectiveness.

Morris L. ThigpenDirector


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Acknowledgments

The Resource Guide for Jail Administratorswas developed to enhance the leadership skills,knowledge, and capabilities of jail administratorson issues of basic jail administration. Jail admin-istrators should find this document useful as aresource, reference, personal development guide,and problem-solving tool. The guide is based ona review of the current literature in the field,input from knowledgeable jail professionals,and the authors’ experiences as consultants andpractitioners.

We thank the individuals who have contributedto the development of this document. NationalInstitute of Corrections (NIC) staff, in particular,played several key roles. Virginia Hutchinson,Chief of the Jails Division, and Kristin Keller,Vicci Persons, and Alan Richardson, Correc-tional Program Specialists with the division,spent many hours reviewing and editing prelimi-nary drafts of the guide. Alan Richardson servedas the project manager for NIC and was the keyliaison between NIC and the authors. His leader-ship, insight, and support were instrumental inkeeping the project on track.

Virginia Hutchinson, Kristin Keller, and ThomasReid, Ph.D., a Correctional Program Specialistwithin NIC’s Academy Division, authored chap-ter 9, “Inmate Behavior Management.” Dr. Reidalso authored chapter 7, “Staff Training.”

We appreciate the contributions of the advisorypanel members (page vi), who shared theirknowledge and took time out of their busyschedules to review and comment on drafts of the document. Thanks also go to BarbaraRixstine, who edited the initial draft, and to the following staff at Aspen Systems Corpor-ation, who took the document from draft to finished publication: Janet McNaughton forpatience and guidance in editing the final ver-sion of the guide and coordinating its produc-tion, Beverly Sullivan and Orit Chicherio forcareful quality control and additional editorialsupport, and Rita Harding for the publication’scrisp and elegant design.

Mark D. MartinThomas A. Rosazza

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Advisory Panel

Larry FischerAdministratorBroome County Correctional FacilityBinghamton, New York

Mark FitzgibbonsDirectorBeaufort County Detention CenterBeaufort, South Carolina

Cheryl GallantFormer AdministratorPenobscot County Jail Bangor, Maine

James HartChiefHamilton County Corrections DepartmentChattanooga, Tennessee

Leslie JohnsonAdministratorEddy County JailCarlsbad, New Mexico

Richard KaledasAdministratorMecosta County JailBig Rapids, Michigan

Helen LukacsAdministratorSolon Detention CenterSolon, Ohio

George MathiasAdministratorAdams County Detention FacilityBrighton, Colorado

William McClureDetention SpecialistBureau of Indian AffairsOffice of Law Enforcement ServicesAlbuquerque, New Mexico

Martin OrdinansDirectorOffice of Detention FacilitiesWisconsin Department of CorrectionsMilwaukee, Wisconsin

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Contents

Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v

Chapter 1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Chapter 2. Role, Purpose, and Characteristics of the Jail . . . . . . . . . . . . . . . . . . . . . . . 7

Chapter 3. Jail Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

Chapter 4. Jail Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Chapter 5. Jail Staffing and Scheduling . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67

Chapter 6. Staff Recruiting, Selection, and Retention . . . . . . . . . . . . . . . . . . . . . . . . . 81

Chapter 7. Staff Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95

Chapter 8. Jail Security, Safety, and Emergency Preparedness . . . . . . . . . . . . . . . . . 107

Chapter 9. Inmate Behavior Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135

Chapter 10. Inmate Discipline and Grievance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155

Chapter 11. Special Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163

Chapter 12. Inmate Services and Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 171

Chapter 13. Jail Intake and Release . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 189

Chapter 14. Getting Started on the Job . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 205

Appendix A: Recommended Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 211

Appendix B: Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 223

Appendix C: Assessment Checklists . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .229

Exhibits

Exhibit 1. Planning Process Example . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

Exhibit 2. Example of Written Visiting Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

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Exhibit 3. Sample Post Order Format . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

Exhibit 4. Monitoring Performance Through Inspections and Audits . . . . . . . . . . . . . 37

Exhibit 5. Linear Housing Design . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

Exhibit 6. Podular Remote Housing Design . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

Exhibit 7. Direct Supervision Housing Design . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

Exhibit 8. Sample Form: Calculating Net Annual Work Hours . . . . . . . . . . . . . . . . . . 72

Exhibit 9. Sample Form: Facility Activity Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Exhibit 10. Sample Staff Coverage Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75

Exhibit 11. Risk Matrix . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129

Exhibit 12. Redirecting Staff Focus From Physical Containment to Behavior Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 151

Chapter 1

Introduction

1

Roles of the Jail Administrator . . . . . . . . . 3

About This Manual . . . . . . . . . . . . . . . . . . . . 4

Chapter Organization . . . . . . . . . . . . . . . . . . 4

Assessment Checklists . . . . . . . . . . . . . . . . . 5

Using These Materials . . . . . . . . . . . . . . . . . 5

In This Chapter

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Introduction

Many recent changes have increased the com-plexity of operating the local jail. Today, theadministrators of the more than 3,000 jails in theUnited States face enormous challenges in deal-ing with issues such as crowding, inadequatefacilities, understaffing, and litigation. The solu-tions to these issues are no less complex. Despitethe challenges, administrators are expected tooperate their facilities in a legal, safe, and effi-cient manner.

The administrators of our nation’s local jails havewidely varying backgrounds, experience, andexpertise. Often they come to the position withsome administrative or management backgroundbut with minimal knowledge or skills specific tooverseeing jail operations. Once appointed, manyjail administrators have access to little or notraining specific to their jobs. Training budgetsare often limited, and the few training programsthat are specifically designed for jail administra-tors reach only a small minority.

Although a variety of publications on topicsrelated to jail administration are available, noconcise and practical guide to jail administrationexists to address these needs. This document isintended to fill that void.

Roles of the Jail Administrator

To effectively manage the jail in today’s com-plex environment, jail administrators must becapable of handling the multiple roles of leader,manager, and supervisor. Moreover, theseresponsibilities extend beyond the walls of the

jail into the local community. In the leadershiprole, the jail administrator’s responsibilitiesinclude:

■ Defining the jail’s mission and setting goalsto achieve that mission.

■ Establishing policy to guide the actions ofstaff and the organization in day-to-dayoperations.

■ Motivating staff and aligning staff’s personalgoals with those of the jail.

■ Serving as a liaison to the local criminal jus-tice system and the community.

In the managerial role, the jail administrator’sresponsibilities include:

■ Implementing policy by giving staff thor-ough written directives, providing trainingon those directives, and supervising staff asthey carry them out.

■ Monitoring activities and assessing resultsby collecting and analyzing performancedata on a regular basis.

■ Disseminating information internally to staffand inmates and externally to criminal jus-tice system officials, the funding authority,and the community.

■ Managing and allocating budgets, staff, andother resources.

■ Solving problems and taking preventiveaction on issues before they escalate intomajor problems.

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■ Managing the organization’s response to cri-sis situations and emergencies when they dooccur.

In the supervisory role, the jail administrator’sresponsibilities include:

■ Overseeing day-to-day operations by stayingcurrent on what is happening in the jail andbeing visible and available.

■ Monitoring compliance with policy, stan-dards, and legal requirements through theestablishment of a systematic internalinspection and review process.

■ Mentoring and coaching staff to elicitdesired behaviors and develop talent.

■ Correcting and disciplining staff to redirectunderperformers and address misconduct.

■ Monitoring staff performance throughregular performance reviews and qualityassessments.

This manual is intended to help jail administra-tors better understand these roles and provideinformation to guide personal development inareas where the administrator’s skills are limited.

About This Manual

No single source of information is comprehen-sive enough to cover all aspects of jail adminis-tration and operations. Furthermore, jails differ insize, organizational configuration, and philoso-phy, and the laws and regulations that governlocal jails vary from state to state. This guide isintended to serve as a basic desk reference forgeneral information about sound correctionalpractice that should apply to jails regardless ofthese differences. It is also intended as an admin-istrative guide that offers jail administrators:

■ A personal development guide to enhanceleadership skills and effectiveness.

■ A resource that provides basic informationon critical aspects of jail operation andmanagement.

■ A reference that directs the jail administratorto other resources for more indepth informa-tion on particular topics.

■ A tool, complete with assessment instru-ments and strategies, to aid the jail adminis-trator in assessing his or her current facilitiesand operations.

■ A problem-solving guide to aid in address-ing issues, managing liability, and improvingoperations.

This guide was developed for use by all jailadministrators, but especially for those who arenew to their positions or who have been in theposition for some time without benefit of train-ing. It offers practical information on variousaspects of jail operations and includes assess-ment tools for use in evaluating those operationsand making improvements. The guide also in-cludes information to help new jail administra-tors get off to a positive start in the first fewmonths after their appointment to the position.

Chapter Organization

Each chapter of the Resource Guide for JailAdministrators is organized as follows:

■ Overview. This section briefly explains thecontent and direction of the chapter.

■ Legal Requirements and Standards.Drawing on statutes, case decisions, statestandards and codes, and the written stan-dards of professional organizations, this sec-tion lists the general legal principles relevantto the topics covered in the chapter.

■ Topic Sections. The topic sections addressthe subject matter of the chapter and, inmany cases, describe methods for imple-menting recommended practices. The topic

Chapter 1: Introduction

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sections also include Tip for Administra-tors sidebars that offer guidance for im-proving the efficiency of jail operations orenhancing the administrator’s ability to man-age the jail effectively.

■ Recommended Resources. This section listseasily accessible resources and publicationswhere the jail administrator may learn moreabout the topic presented. A section contain-ing abstracts of many of the recommendedresources and publications is provided asappendix A.

Assessment Checklists

To aid newly appointed administrators in learn-ing about their jails and the overall status of thejail’s operation, a series of assessment checklistsis included as appendix C. These checklists,which veteran jail administrators and others mayfind useful in periodically assessing the perform-ance and effectiveness of jail operations, addressthe following areas:

■ Statutes, Standards, and Case Law.

■ Planning, Budgeting, and Human ResourceManagement.

■ Community Partnerships and MediaRelations.

■ Policies and Procedures, Post Orders, andDocumentation.

■ Monitoring and Assessment.

■ Jail Facilities.

■ Staffing, Recruitment, Hiring, Retention, andScheduling.

■ Training.

■ Security.

■ Safety.

■ Emergency Preparedness.

■ Inmate Services and Programs.

■ Inmate Behavior Management.

■ Inmate Discipline and Grievance.

■ Special Management.

■ Intake and Release.

Using These Materials

You, as jail administrators, are encouraged to usethis guide as an ongoing reference and resource.Although you may find that your role in some ofthe areas covered in the guide (e.g., dealing withthe media or budget development) is limited, it isstill to your advantage to become more knowl-edgeable in these areas because you may becalled on to assume a greater role in one or moreof them in the future. Administrators with someknowledge of areas for which they are notdirectly responsible are also better able to sup-port their chief executive officers or others whodo have such responsibility.

The materials presented in this guide are notintended to establish policy, procedure, or a stan-dard of care for particular jails. Each jurisdic-tion has its own laws, standards, and guidelinesregarding the topics covered herein. You, as a jailadministrator, must abide by the requirementsapplicable to your own jurisdiction and shouldconsult with your legal advisor before makingchanges in policies and procedures.

Chapter 2

Role, Purpose, and Characteristics of the Jail

2

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Legal Requirements and Standards . . . . . . 9

How Local Jails Are Administered . . . . . . . 9

The Purpose of the Jail . . . . . . . . . . . . . . . . . 9

The Role of the Jail in the Local CriminalJustice System . . . . . . . . . . . . . . . . . . . . . . . 10

The Jail Population . . . . . . . . . . . . . . . . . . . 11

Diversity . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Population Size . . . . . . . . . . . . . . . . . . . . . 11

Litigation and Its Impact on Jails . . . . . . 12

Emergence of Jail Litigation . . . . . . . . . . . 12

Emphasis on the Rights of Inmates . . . . . 12

Key Supreme Court Rulings . . . . . . . . . . . 12

Clearly Established Law . . . . . . . . . . . . . . . 13

Implications for Jail Administrators . . . . . 13

Administrative Liability . . . . . . . . . . . . . . . 13

Jail Standards . . . . . . . . . . . . . . . . . . . . . . . 14

Essential Elements of Effective Jails . . . 14

Adequate Staffing Levels . . . . . . . . . . . . . 15

Well-Trained and Supervised Staff . . . . . . 15

Current Written Operational Directives . . 15

Systematic and Documented InmateClassification Process . . . . . . . . . . . . . . . . 15

Effective Supervision of Inmates . . . . . . . 16

Adequate Inmate Services and Programs 16

Fair Treatment of Inmates . . . . . . . . . . . . 16

Adequate Bedspace Capacity . . . . . . . . . . 16

Compliance With Standards, Regulations, and Codes . . . . . . . . . . . . . . . . . . . . . . . . . 17

Safe, Clean, and Well-Maintained PhysicalEnvironment . . . . . . . . . . . . . . . . . . . . . . . 17

Recommended Resources . . . . . . . . . . . . 17

In This Chapter

9

Role, Purpose, and Characteristics of the Jail

Overview

This chapter provides a general overview of therole and purpose of the jail, how jails are admin-istered, and characteristics of the jail population.It also addresses the impact of litigation andstandards on jail operations. The chapter con-cludes with a description of the essential ele-ments of effective jails, most of which areconsidered in greater detail in later chaptersof this guide.

Legal Requirements and Standards

1. The jail and the authority to incarcerate areestablished by statute in most states.

2. The operation of the jail is governed bystatutes, administrative regulations, case law,and local ordinances.

3. Professional standards establish guidelinesfor jail conditions and operations that areintended to reflect case law requirementsand good correctional practice.

How Local Jails Are Administered

In the United States there are approximately3,500 local jails, about 80 Indian country jails,and numerous municipal lockups. Most of thelocal jails are operated by local government;however, there are six state-run jail systems. Themajority of county jails are the responsibilityof sheriff’s departments, and the sheriff mayappoint the facility’s jail administrator. In somejurisdictions, jails are administered by a directorof corrections appointed by a local governingboard. Municipal jails are typically run by local

police departments. Indian country jails areeither operated directly by the Bureau of IndianAffairs or by tribal governments under contractwith the Bureau or through self-governance pro-visions in the law.

The authority to establish and operate a jail is setby statute in many states. The jail and its opera-tion are governed by various regulations andcodes, including jail standards,fire codes, health codes, andbuilding codes. The existenceof these codes and the adminis-tering agency’s enforcementauthority differ from state tostate. Various federal laws andcodes such as those establishedunder the Occupational Healthand Safety Act, AmericansWith Disabilities Act, and Equal EmploymentOpportunity Act (to name a few) also apply tojails as they would to any work setting.

The Purpose of the Jail

The jail is an essential element of the communi-ty’s justice system. It has two primary purposes:

■ To hold accused law violators to ensure theirappearance at trial.

■ To hold offenders convicted of lesseroffenses—usually misdemeanors, but insome jurisdictions low-level felonies—asa court-ordered sanction.

Tip forAdministrators

Identify any statutes,rules, and regulationsthat apply to the jail andthe extent to which thejail is in compliance withthese requirements.

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The booking and intake functions of the jailserve a vital public safety purpose, namely, pro-viding a place where individuals taken into cus-tody can be safely processed and assessed todetermine the risks they present. Those who arenot released shortly after intake or initial courthearing generally are individuals charged withserious offenses whose bail bonds are higherbecause they represent a public safety risk or arelikely to flee the jurisdiction before their casescan be adjudicated.

As a sanctioning option for convicted offenders,the jail provides a means to hold offendersaccountable for their illegal acts. A central goalof incarceration as punishment in the U.S. crimi-nal justice system is to discourage offendersfrom committing future criminal acts and to senda message to would-be offenders about the pos-sible consequences for illegal behavior. Reha-bilitation and reintegration are sometimesconsidered secondary goals of incarceration.Within the resources available, many local jailsmake an effort to provide inmates with opportu-nities for self-help and change as a means todivert them from future criminal behavior.

The Role of the Jail in the Local CriminalJustice System

The jail is also a primary resource for the localcriminal justice system. It is used to address theneed for detention at various points in the crimi-nal justice process. Jails typically serve multiplelaw enforcement agencies in the communityincluding the local police, sheriff, state police,conservation officers, and federal authorities.Jails also serve prosecutors, the courts, and pro-bation and parole agencies. The jail serves theseentities by holding the following types of indi-viduals taken into custody for the followingreasons:

■ New arrestees pending arraignment, trial,conviction, and sentencing.

■ Offenders sentenced to jail time.

■ Persons accused of probation, parole, orbail-bond violations pending revocationproceedings.

■ Offenders sentenced as a sanction for proba-tion or parole violations.

■ Convicted offenders awaiting transfer tostate or federal institutions.

■ Illegal immigrants pending transfer to feder-al authorities.

■ Offenders in the armed services held pend-ing transfer to military authorities.

■ Offenders held for violation of court-orderedconditions such as failure to pay fines, con-tempt, failure to appear in court, violationsof restraining orders, or failure to attendcounseling.

■ Juveniles charged as adults or awaitingtransfer to juvenile authorities.

■ Detainees held under contract for otherlocal, state, or federal jurisdictions.

■ Witnesses for court.

■ Offenders held for state or federal authoritiesbecause their facilities are overcrowded.

As the list above shows, the jail responds tomany needs in the criminal justice system andserves an integral role within that system. Theseneeds are dynamic and influenced by the poli-cies, practices, and philosophies of the varioususers of the jail. The jail administrator mustunderstand the full range of these needs and becognizant of the policies and practices that sig-nificantly affect the composition of the jail popu-lation and the demand for bedspace. Togetherwith other criminal justice system officials, youshould periodically assess how well the jail ismeeting the needs of the local criminal justicesystem. Such assessments are useful in identify-ing the need for additional resources and forchanges in system policies and practices affect-ing the use of the jail.

Chapter 2: Role, Purpose, and Characteristics of the Jail

11

The Jail Population

Diversity

The jail is characterized by the diversity of thepopulation it serves. Unlike prisons, where allinmates are generally of the same gender, legalstatus, and custody level, jails are expected tomanage a broad cross section of people who aretaken into custody for varying reasons. At anygiven time, the jail may be required to appropri-ately manage males and females, juveniles andadults, the dangerous and vulnerable, the minoroffender and the serious offender, the physicallyfragile and mentally ill, and the chemicallyaddicted. The population of jails varies by suchfactors as:

■ Charge.

■ Legal status.

■ Length of stay.

■ Gender.

■ Age.

■ Race and ethnicity.

■ Medical condition.

■ Mental health condition.

■ Intellectual capacity.

■ Educational and literacy levels.

■ Level of dangerousness posed to otherinmates and staff.

■ Level of escape risk.

■ Ability to get along with other inmates.

The jail population’s mix of characteristics hasas much or more influence as its size on thefacilities, staffing, and services required in thejail.

Population Size

Two factors determine the size of the jail popula-tion: number of admissions and length of stay.These factors, in turn, are determined largely by

decisions made by the various criminal justiceagencies that the jail serves and by the efficiencywith which the system disposes of cases. Theyare also affected by local, state, and federal lawsthat establish the role and function of the jail andthe circumstances under which individuals maybe incarcerated. Incidence of crime and publicattitudes about crime also influence the use ofthe jail.

The jail has little control over the number ortypes of individuals it is required to hold.Individuals are admitted to jail typically as theresult of an arrest or sentencing. Not all arrestsresult in admission to jail. Law enforcement offi-cers have considerable discretion in respondingto nonfelony arrest situations. In many of thesetypes of cases, officers may decide to cite andrelease offenders or divert the offender to analternative program. For other arrest situations,such as for serious offenses and outstanding war-rants, officers may be required to book arresteesinto the jail. Once booked into jail, arrestees areheld until they post bail or otherwise meetrelease conditions established by the court.

A sizable portion of admissions are the result ofoffenders being sentenced to jail. Sentences orig-inate from municipal, county, or state courts.Admissions may also originate from the courtsas offenders are held pending judicial action onalleged violation of court-ordered conditions orsanctioned for such violations.

Although the average length of stay in mostjail systems is 10–20 days, more than half ofaccused offenders are released from jail withina day or two of admission. These represent a“revolving door” component of the jail popula-tion who must be managed separately fromoffenders held for longer periods. Those whoremain in jail are typically accused offenderswho cannot make bail or are convicted offend-ers serving a sentence. Many of these accusedoffenders are charged with serious offenses that

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take a long time to go through the court process.Although this will vary from state to state,offenders sentenced to county jail are generallyconvicted of offenses punishable by sentences ofless than 1 year.

Programs and policies established to manage thesize of the jail population are typically designedto reduce either the number of admissions (e.g.,diversion programs, prearrest release policies,alternatives to incarceration programs) or thelength of stay (e.g., good time, early release pro-grams, court delay reduction programs).

Litigation and Its Impact on Jails

Emergence of Jail Litigation

Before the 1960s, the public and the courtslargely ignored conditions and practices in jails.The courts had adopted a “hands off” policytoward inmate complaints and lawsuits that chal-lenged institutional conditions and practices,based on the belief that corrections administra-tors knew best how to control inmates and,therefore, deference was due them concerningjail operations and management.

During the 1960s and 1970s, the United Statesexperienced a significant change in approach tocivil rights issues and became engulfed in astruggle for increasing the human rights of manygroups. In such a climate, rights for prisonersbecame an issue. Federal courts began to consid-er prisoner lawsuits challenging conditions ofconfinement as legitimate legal claims.

The legal basis for the intervention of the federalcourt in jail matters is Title 42, Section 1983, ofthe Federal Civil Rights Act of 1871. The lawprovides that “Any person acting under the colorof law who deprives anyone of a right secured

by the Constitution or laws of the United Statesshall be liable to the injured party.” Jail adminis-trators can be sued under Section 1983 becausethey are operating under the “color of law.”1

Emphasis on the Rights of Inmates

The courts recognized that confined persons donot lose their constitutional rights, althoughthese rights may be restricted for purposes ofsafety, order, security, control, and rehabilitation.To address inmate rights, the courts began tohear the petitions of inmates who claimed to besubjected to physical abuse, inhumane condi-tions, corporal punishment, or other constitution-al deprivations.

In the 1970s and 1980s, several significant courtdecisions addressed the rights of inmates. Thesedecisions were based primarily on the 1st, 6th,8th, and 14th amendments to the U.S. Constitu-tion. Cases touched on almost every area of jailoperations, including staffing; access to courts,counsel, mail, telephone use, reading materials,and libraries; religion; personal, professional,and media visits; medical care; recreation andexercise; food services; classification and segre-gation; discipline and due process; living condi-tions; and use of force.

Key Supreme Court Rulings

In rendering decisions on inmate claims, theU.S. Supreme Court sent strong messages to stateand local government officials who operate thenation’s jails and prisons. The Court’s positionwas clearly articulated in the following two land-mark cases dealing with inmate litigation:

“Prison walls do not form a barrier separatingprison (or jail) inmates from the protections ofthe Constitution,” Turner v. Safley, 107 S. Ct.2254, 2259 (1987).

1 W.C. Collins, Jail Design and Operation and the Constitution:An Overview (Washington, DC: U.S. Department of Justice,National Institute of Corrections, 1998).

they need to perform properlyand constitutionally on the job.Elements of administrative lia-bility include the following:

■ Failure to direct. This is afailure in the obligation oraffirmative duty to provideemployees written direc-tives in the form of poli-cies and procedures orother such directives that clearly limit andoutline the duties and responsibilities of staffat each level of administration.

■ Failure to train. This is a failure in the obli-gation or affirmative duty to provide appro-priate training in policy and procedure aswell as critical knowledge, skills, and abili-ties needed to carry out written policy andprocedures. The responsibility to trainextends to new and inservice staff as wellas to persons promoted to new areas ofresponsibility.

■ Failure to supervise. This is a failure in theobligation or affirmative duty to provideongoing supervision and direction to staff.In addition to training and directing staff(through written policy and procedures) atall levels, you must guide, coach, correct,and monitor them on a continuing basis tomeet the duty to supervise. Jail administra-tors too often direct and train employees butthen leave them unsupervised.

■ Negligent hiring, placement, and reten-tion. This is a failure in the obligation oraffirmative duty to “weed out” those who areunfit for jail duties through recruitment,screening, and hiring. Included is therequirement that staff be assigned dutiesconsistent with their skills and abilities.There is also a continuing responsibility toensure that staff are fit for correctionalduties.


13

“There is no iron curtain drawn between theConstitution and the prisons of this country.”Wolff v. McDonnell, 418 U.S. 539 (1974).

Clearly Established Law

Between 1980 and 1996, the number of petitions(lawsuits) filed in U.S. district courts by federaland state inmates increased from 23,230 to 68,235.As a result of this unprecedented judicial inter-vention, longstanding problems in jail operationsand conditions of inmate confinement were broad-ly revealed and confronted. A body of clearly est-ablished law with associated liability now addressesnearly every aspect of jail operation and condi-tions and limits and defines the proper operationof a jail.

Implications for Jail Administrators

The most valuable outcome of the court deci-sions of the past three decades was the develop-ment of operational standards for jails thatadministrators can use as a basis for policy andpractice. Knowledge of relevant case law isessential to your efforts to operate your jail ina legally acceptable manner.

Court involvement in jail matters presents bothbenefits and challenges. The benefits includeclearly articulated case law addressing all areasof jail administration, including security andcontrol, medical services, discipline, treatmentof special management inmates, inmates’ rights,and so forth. The challenges include managingwithin the context of these laws defining in-mates’ rights in an environment of crowded jailsand government cutbacks in funding.

Administrative Liability

In addition to liability for matters related toinmates’ constitutional rights, jail administratorscan be liable for issues related to managing thejail. Administrative liability is based on theadministrator’s duty to provide staff the tools


Become familiar withyour greatest areas ofliability. Concentrate onlife, health, safety, andconstitutional issues as astart. These areas arethose most likely to endup in litigation.

14

Jail Standards

Although no federally mandated standards havebeen established for jails, many states and pro-fessional organizations have developed compre-hensive standards. The development of jailstandards at the state and national level waslargely a response to the escalating number ofcourt cases alleging unconstitutional jail condi-tions and practices. By providing jail adminis-trators with clear guidelines concerning jailoperations and the treatment of inmates, thesestandards decrease the need for court interven-tion in jails.

Standards typically outline the requirements forboth the construction and operation of local jails.Compliance with the standards demonstrates acommitment to professionalism on the part oflocal officials and can significantly reduce theliability exposure of local government to jail liti-gation by identifying and correcting deficiencies.

The American Correctional Association (ACA)Standards for Adult Local Detention Facilities

are perhaps the most widelyrecognized professional stan-dards. Many states and profes-sional organizations havemodeled their standards afterthe ACA Standards. Approxi-mately 34 states have estab-lished jail standards andinspection programs, and theBureau of Indian Affairs hasestablished standards for jailsin Indian country.

Most state jail standards pro-grams provide for inspections,compliance monitoring, and

sanctions for noncompliance. To facilitate com-pliance, some state programs offer technical

assistance or funding assistance. Some profes-sional organizations, such as the ACA, maintainan accreditation program as a means to recog-nize jails that implement and comply with theirstandards.

Jail standards are an essential resource for jailadministrators. They promote consistency andreduce the jail’s exposure to liability by servingas a—

■ Tool for directing staff and measuring theirperformance.

■ Basis for formulating defensible policies andprocedures.

■ Basis for staff training curriculums.

■ Means of discouraging lawsuits or minimiz-ing their success.

■ Justification for resources.

■ Way to measure accomplishments.

■ Guide for the fair and humane treatment ofinmates.

Essential Elements of Effective Jails

The problems that have historically plaguedjails—including violence, vandalism, suicides,contraband, unsanitary conditions, and claims ofexcessive use of force—are well documented.These issues have been the basis for much ofthe litigation described earlier in this chapter.Jails, both old and new, that have effectivelyeliminated or minimized these problems, sharethe following characteristics:2

■ Adequate staffing levels.

■ Well-trained and supervised staff.

■ Current written operational directives.

■ A systematic and documented inmate classi-fication process.

2 G.M. Bowker, Jail Resource Issues: What Every Funding Author-ity Needs To Know (Washington, DC: U.S. Department of Justice,National Institute of Corrections, 2002), pp. 13–24.


Identify key areas ofstandards and begin adialog with the inspec-tors who enforce them.Inspectors are impressedwith and will work withadministrators who areproactive and express awillingness to meetstandards. Inspectorsare also eager to pro-vide technical assistanceto help meet standards.


15

■ Effective supervision of inmates.

■ Adequate inmate services and programs.

■ Fair treatment of inmates.

■ Adequate bedspace capacity.

■ Compliance with standards, regulations, andcodes.

■ A safe, clean, and well-maintained physicalenvironment.

Adequate Staffing Levels

Adequate staffing is probably the single mostimportant factor contributing to the success orfailure of the jail. Adequacy in staffing is a func-tion of both the number of staff required to oper-ate the jail and the effective placement of thosestaff in duty positions. The staffing levels re-quired for individual jails vary according to theconfiguration of factors that affect what is need-ed in the jail. Analyze your staffing needs anddevelop a staffing plan for the jail. Review andupdate the plan annually to remain current. (Seechapter 5, “Jail Staffing and Scheduling.”)

Well-Trained and Supervised Staff

Training contributes to effective jail operationby providing staff with the knowledge andskills needed to follow established policies andprocedures, operate jail security equipmentproperly, maintain safety and security, andassure appropriate services are provided. Seethat all staff receive basic pre-service trainingand continuing on-the-job training tailored totheir specific job duties. Follow up to ensure thatjail staff are following policies and proceduresand that jail supervisory staff are reinforcing theskills new staff learned in training throughactive, ongoing supervision. The combination oftraining and supervision helps jail staff increasecompetency levels over time. (See chapter 7,“Staff Training.”)

Current Written Operational Directives

Written policies, procedures, and post ordersdescribe the jail’s operational requirementsand provide guidance as to how they are to becarried out. Jails should have a written policiesand procedures manual that is tailored to thefacility and addresses all aspects of the jail’soperation. Make sure each duty post in the jailhas a detailed set of post orders describing thespecific tasks and responsibilities of the post.Review and update written directives at leastonce a year and when major operational changestake place. (See chapter 3, “Jail Administration.”)

Systematic and Documented InmateClassification Process

Inmate classification is the jail’s system ofassessing the risks and needs of each inmate forpurposes of determining housing assignment,supervision requirements, services needed, andprogram participation. (See chapter 9, “InmateBehavior Management.”) The failure to classifyinmates properly threatens the safety and securi-ty of inmates, staff, and visitors. Your jail shouldhave a formal, documented classification systemthat includes:

■ Defined, objective classification criteria.

■ Comprehensive policies and procedures thataddress all aspects of the classificationprocess.

■ A consistent process for gathering necessaryinformation.

■ Forms or instruments used for screening andassessment.

■ A means of sharing essential classificationinformation with program, custody, and sup-port staff.

■ Training for staff involved in classification.

16

Effective Supervision of Inmates

Inmate supervision is the primary function of thejail. It involves far more than simply observinginmates; it includes constant staff presence, staffinteraction with inmates, and active behaviormanagement. (See chapter 9, “Inmate BehaviorManagement.”) Jails with effective inmate super-vision strategies typically have:

■ A formal inmate housing plan.

■ A formal orientation process and inmatehandbook.

■ Staff appropriately positioned within thejail so they can actively supervise inmatebehavior.

■ Planned activities to keep inmates produc-tively engaged throughout the day.

■ A system of incentives and sanctions toguide inmate behavior.

■ Training for staff in effective communicationand supervision skills.

Adequate Inmate Services and Programs

Inmates have a fundamental right to basic serv-ices essential to their health and well-being. (Seechapter 12, “Inmate Services and Programs.”)These services include food, medical and mentalhealth care, laundry services (provision of cleanclothing and bedding), personal hygiene serv-ices, housekeeping services (provision of a clean,healthy living environment), and the opportunityto exercise. Inmates also have the right to com-municate with family, friends, and others outsidethe jail, subject to some limitations. To accom-modate this right, jails provide visitation, mail,and telephone services. Inmate programs, whilenot a right, are also important to inmates, theoverall management of the jail, and the commu-nity. Types of programs commonly found in jailsinclude work, education, self-help, and religiousprograms. In sum, jails should:

■ Provide essential services that meet inmates’basic needs.

■ Make programs available to keep inmatesproductively occupied and provide opportu-nities for self-improvement.

■ Make effective use of community resourcesfor programs where feasible.

■ Provide suitable space, equipment, and sup-plies for services and programs.

Fair Treatment of Inmates

Jails tend to have fewer problems when theboundaries of behavior are clear and inmateshave a sense that they are treated fairly andconsistently. Fundamental fairness is assuredthrough inmate disciplinary and grievance proc-esses. The disciplinary process should includeongoing correction of undesirable behavior,coaching to improve marginal behavior, positivereinforcement of good behavior, and consistentenforcement of the rules. The grievance processshould give inmates an avenue to air and resolvegrievances when they believe they have not beentreated fairly. Unresolved grievances often resultin disruptive behavior as inmates resort to lessdesirable ways to get staff attention. Your jailshould have a formal written inmate disciplinaryplan, a formal written inmate grievance process,and a means to provide inmates informationabout the disciplinary and grievance processes.(See chapter 10, “Inmate Discipline andGrievance.”)

Adequate Bedspace Capacity

Jails with adequate bedspace capacity are thosewith sufficient bedspace to house the numberand type of persons incarcerated by the localcriminal justice system. Jails should be able toaccomplish this without regularly exceedingdesign capacity and without the need for thelocal criminal justice system to make compro-mises in its incarceration policies. Crowded con-ditions often have the following adverse effectson jail operations:

■ Compromises in classification.


17

■ Reduced levels of security (too few staff fortoo many inmates).

■ Increases in violence, tension, and availabili-ty of contraband.

■ Overloaded programs and services.

■ Deterioration in levels of sanitation andmaintenance.

Make key decisionmakers aware of crowdingproblems in your jail. Jail officials should reachagreement with key decisionmakers on thecapacity of the jail and work with them to keepthe jail population within agreed-upon limits.Jail officials should be prepared to implementinternal and external management strategieswhen bedspace demand exceeds available capac-ity. (See chapter 4, “Jail Facilities.”)

Compliance With Standards, Regulations,and Codes

Standards and codes provide jails with clearlydefined guidelines based on case law and goodpractice. Compliance with these requirementspromotes consistent management, provides forthe safety and well-being of jail occupants(inmates, staff, visitors, etc.), and reduces thejail’s exposure to liability. Jail officials should:

■ Be aware of all statutes, standards, rules, andcodes that affect the jail.

■ Operate the jail in accordance with applica-ble standards.

■ Promptly correct deficiencies identified byinspection authorities.

■ Establish an internal system to monitor com-pliance with standards on an ongoing basis.

Safe, Clean, and Well-Maintained PhysicalEnvironment

A safe, clean, and well-maintained jail is essen-tial to the health and well-being of inmates, staff,and visitors. Poor conditions increase tension;contribute to accidents, the spread of disease,and vandalism; negatively affect morale and pro-ductivity; and may lead to litigation. (See chap-ter 4, “Jail Facilities.”) Jail officials should:

■ Keep the jail clean and in good repair.

■ Establish written safety, sanitation, and pre-ventive maintenance plans.

■ Establish an internal system of inspections toregularly assess the level of sanitation andcondition of the jail.

■ Promptly correct any deficiencies identifiedby external inspection authorities.

Recommended Resources

Beyond the Myths: The Jail in Your Community(video). National Institute of Corrections, 2003.

Jail Crowding: Understanding Jail PopulationDynamics. M.A. Cunniff, National Institute ofCorrections, 2002.

Jail Design and Operation and the Constitution:An Overview. W.C. Collins, National Institute ofCorrections, 1998.

Jail Resource Issues: What Every FundingAuthority Needs To Know. G.M. Bowker,National Institute of Corrections, 2002.

Preventing Jail Crowding: A Practical Guide.R.C. Cushman, National Institute of Corrections,2002.

Chapter 3

Jail Administration

3

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Legal Requirements and Standards . . . . 21

Mission and Goals . . . . . . . . . . . . . . . . . . . . 21

Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Budget Development and Management . . . . . . . . . . . . . . . . . . . . . . . . 24

The Budget Process . . . . . . . . . . . . . . . . . . 24

Developing the Budget . . . . . . . . . . . . . . . 25

Budget Management . . . . . . . . . . . . . . . . . 26

Finding and Using Resources Beyondthe Budget Allocation . . . . . . . . . . . . . . . . 27

Purchasing and Contracting . . . . . . . . . . . 28

Human Resources Management . . . . . . . 28

Employees’ Rights . . . . . . . . . . . . . . . . . . . 29

Establishing Good PersonnelManagement Practice . . . . . . . . . . . . . . . . 29

Policies and Procedures . . . . . . . . . . . . . . 30

Developing and Implementing thePolicies and Procedures Manual . . . . . . . . 31

Monitoring Compliance . . . . . . . . . . . . . . . 32

Maintaining the Manual . . . . . . . . . . . . . . . 32

Post Orders . . . . . . . . . . . . . . . . . . . . . . . . . 33

Documentation . . . . . . . . . . . . . . . . . . . . . . 33

Monitoring and Assessment . . . . . . . . . . 34

Internal Inspections and Audits . . . . . . . . . 34

External Inspections . . . . . . . . . . . . . . . . . . 35

Working With Other Components of theCriminal Justice System . . . . . . . . . . . . . . 36

Educating the Community and FundingAuthority . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Strategies for Educating theFunding Authority . . . . . . . . . . . . . . . . . . . 41

Strategies for Educating the Community . . . . . . . . . . . . . . . . . . . . . . . . 41

Establishing Community Partnerships . . 42

Working With the Media . . . . . . . . . . . . . . 43

What Makes a Story Newsworthy? . . . . . . 44

Developing a Media Plan . . . . . . . . . . . . . . 44

Communicating With the Media in CrisisSituations . . . . . . . . . . . . . . . . . . . . . . . . . . 45


Mission and Planning . . . . . . . . . . . . . . . . . 46

Budgeting and Budget Management . . . . 46

Human Resources Management . . . . . . . . 46

Policies and Procedures . . . . . . . . . . . . . . 46

Criminal Justice System Coordinationand Community Partnerships . . . . . . . . . . 46

Media Relations . . . . . . . . . . . . . . . . . . . . . 46

In This Chapter

21

Jail Administration

Overview

Jail administration encompasses all activitiesthat guide the organization toward meeting itsmission and goals. Planning, organizing, direct-ing, and evaluating are fundamental elements ofjail administration. These elements require skillsin managing people and resources as well as athorough knowledge of jails and jail issues. Jailadministrators must also be leaders. Motivation,guidance, and empowerment are key aspects ofleadership. In the leadership role, the jail admin-istrator charts the course for the organization andcoordinates the staff effort and other resources tobest accomplish the agency’s mission.

Jail administrators must be knowledgeable aboutadministrative tools such as budgets, policies andprocedures, documentation, and audits and beable to use these tools effectively. You must beable to influence not only the internal organiza-tion of the jail but also the external environment.Many stakeholders make decisions that affect thejail and the resources available to it. This chapterprovides information about these various issuesthat will help you improve the administrativeand leadership skills required to manage yourfacility.


1. Statutes, administrative regulations, andlocal ordinances typically set out require-ments for budget appropriation, expenditure,and accounting of funds. Jail administratorscan be held accountable for mismanagementof public funds.

2. Purchasing and governing processes are alsotypically governed by statutes, regulations,and local ordinances.

3. Jails are subject to numerous laws and regu-lations governing employees’ rights. A sub-stantial amount of case law exists onemployment issues that apply to the jail.

4. Administrators are responsible for establish-ing written policies and procedures govern-ing the operation of the jail and for trainingstaff in implementing these policies andprocedures. Some courts have found theabsence of written policies and proceduresto be gross negligence. The standards of theAmerican Correctional Association (ACA)and most states require jails to have a poli-cies and procedures manual that is reviewedregularly and kept current.

Mission and Goals

Mission and goals are essential elements of aneffective organization. They give the organiza-tion purpose and help keep it on track. They alsoprovide both a means to measure current per-formance and a basis for future plans.

The mission statement is a short, concise state-ment describing the purpose of the jail—i.e.,why it exists. The mission statement normallyincludes the following elements:

■ The legal authority and responsibility of thefacility within the local justice system.

3

22

■ The purpose and identity of the organization.

■ The values and philosophy of the facilityand the community.

■ A description of how the facility will servethose affected by its work.

The mission statement should be broad enoughto define the jail sufficiently for persons outsidethe organization, yet focused enough to guidethe organization’s goals, policies, and proce-dures. The jail mission statement might readas follows:

The mission of the Any County Jail is tosafely, securely, and humanely detain per-sons arrested and held during adjudication,convicted offenders sentenced to servetime in the jail, and other persons law-fully committed to the facility. The AnyCounty Jail provides work and other self-improvement opportunities to assist of-fenders in becoming law-abiding citizenswhile providing a safe, healthy work envi-ronment for staff.

This mission statement gives readers a clearunderstanding of the purpose of the facility andits responsibilities toward staff, inmates, and thecommunity. It further suggests some operatingprinciples in the treatment of both inmates andstaff that should be reflected in agency goals andpolicies and procedures.

Goals are statements that describe future out-comes or the ideal state if the organization wereable to completely fulfill its mission. They alsoserve as priorities that focus the organization’swork on activities essential for success. The fol-lowing goals are derived from the mission state-ment presented as an example above:

■ To protect society by preventing escapesthrough the establishment of secure facilitiesand effective inmate supervision.

■ To provide clean, safe, and environmentallyhealthy living and working conditions forinmates and staff.

■ To provide inmates opportunities for positivechange through academic, work, and coun-seling programs.

■ To provide an environment that protectsinmates from victimization through properclassification and supervision.

■ To operate in a manner that provides allrequired due process and legal safeguards.

The goals describe desired outcomes (e.g., “pro-tect society,” “protect inmates from victimiza-tion,” “opportunities for positive change”) thatare consistent with the mission. They also pro-vide programmatic direction but focus more onthe end than the means. The planning process,which is discussed in the next section, is used toidentify specific strategies and activities neces-sary to achieve the goals.

Once the jail’s mission and goals are established,they should be periodically reviewed. A newadministrator who inherits a mission and goalsfrom a previous administration may wish tomodify, update, or affirm the statement.

The jail’s mission and goals are defined andshaped by a number of factors:

■ Statutes that mandate the jail’s existence andits general purposes.

■ Community and criminal justice system val-ues and expectations.

■ The sheriff’s and funding authority’s valuesand expectations (or those of whomever isultimately responsible for the jail).

■ Court decisions.

■ Availability of resources.

Your role is to incorporate these mandates andexpectations, along with your own philosophical

Chapter 3: Jail Administration

23

orientation, into succinct mission and goalsstatements for the jail.

Planning

After you have established the mission and goalsfor the facility, you are responsible for seeingthat they are planned and implemented. Planningprovides the organization with direction andfocus; it determines how the organization willfunction and what it will accomplish. Planningaligns the facility’s goals, activities, andresources to achieve its mission.

The planning process has five basic steps:

1. Establish the mission. Establishing the mis-sion of the jail is the first step in the processif no mission statement exists. If the facilityhas a mission statement, this is a good timeto review it for possible changes.

2. Establish the goals your organizationmust reach if it is to accomplish your mis-sion. If you have not established goals toimplement the jail’s mission, developingthem is the next step in the process. Like themission statement, goals are generally statedand, once established, do not change signifi-cantly from year to year unless changes inconditions or circumstances indicate thatthey should be reconsidered. In the course ofplanning, however, you may develop strate-gic goals that are more specific, althoughstill related to the general goals, to takeadvantage of opportunities or address identi-fied needs.

3. Identify specific strategies that must beimplemented to reach each goal. These arethe methods or approaches to be used toachieve the goals. The strategies selectedmust reflect the operational realities of theorganization—that is, they must be afford-able, practical, and efficient.

4. Develop action plans to implement eachstrategy. These are the specific activitiesthat must be undertaken to implement eachstrategy. Action plans specify objectives thatreflect the results that must be achieved tomeet the goals in the plan and define a setof actions or tasks that must be completedto reach each objective. Action plans alsoinclude a listing of resources required foreach task, assignment of responsibilities forcarrying out the various tasks, and timelinesfor completion.

5. Implement, monitor, and update the plan.The implementation of the action planshould be regularly monitored to determinethe extent to which the goals are being metand whether the activities are being carriedout as planned.

Exhibit 1 shows an example of the planningprocess for the establishment of a literacy pro-gram for a jail. You can apply this process toother aspects of the jail’s operation to connectdaily activities to the jail’s overall mission.

The information developed during the planningprocess should be organized and written into adocument. Written plans are beneficial in thatthey:

■ Provide an effective means to justify budgetswith funding authorities.

■ Focus efforts on tasks that are necessary toattain stated objectives.

■ Inform and motivate staff and otherstakeholders.

■ Help avoid mistakes, oversights, and otherproblems resulting from lack of a commonunderstanding of the plan.

■ Provide a clear measure for success.

■ Provide a timetable and agenda for action.

■ Promote effective evaluation.

24

The planning process provides a systematicway for making decisions regarding the effectiveallocation and use of available resources. In-formation developed in the planning processbecomes a primary resource in the developmentand justification of the jail’s budget.

Budget Development and Management

The jail administrator may play a significant rolein securing and managing the resources neces-sary to implement action plans developed for thejail by knowing the budget process for the juris-diction and understanding specific responsibili-ties involved in developing and managing the jailbudget. The jail administrator’s level of authorityand responsibility for major fiscal managementduties such as preparing budget requests, makingspending decisions, and making budget adjust-ments will vary from one jurisdiction to anotherdepending on the organizational structure of theagency in which the jail is located and the pref-erences of the sheriff or chief executive officerof the agency.

The Budget Process

The jail obtains and uses the financial resourcesit needs to operate through its jurisdiction’sbudget process. The period for which a budget isauthorized typically spans a fiscal year that cor-responds to the calendar year or another 12-month period. The budget process, however,takes place over a longer period of time thatstarts well before the actual fiscal year begins.Although the specifics of the budget processmay vary from one jurisdiction to another, itgenerally includes four distinct phases: prepara-tion, approval, execution, and evaluation.

■ Preparation. A new budget cycle beginswhen the funding authority provides specificdirection on budget preparation. In this

*Each step listed should also include the resources required,responsible party(ies), and timeline for completion.

Exhibit 1. Planning Process Example

Mission

The mission of the Any County Jail is to safely,securely, and humanely detain persons arrested andheld during adjudication, convicted offenders sen-tenced to serve time in the Detention Center, andother persons lawfully committed to the facility. TheAny County Jail provides work and other self-improvement opportunities to assist offenders inbecoming law-abiding citizens while providing asafe, healthy work environment for staff.

Goal

To provide inmates opportunities for positivechange through academic, work, and counselingprograms.

Strategy

Establish a literacy program using communityresources.

Objective

Improve the reading and writing skills of inmates par-ticipating in the program by an average of threegrade levels.

Action plan*

1. Establish criteria for literacy program.

2. Identify and select service provider.

3. Establish agreement with service provider.

4. Recruit, select, and train teacher/volunteers.

5. Designate space and procure needed equipment.

6. Procure program materials.

7. Schedule program classes.

8. Identify inmates eligible to participate.

9. Enroll inmates and start classes.

10. Monitor progress.

Performance measures

• Number of classes held.

• Number of inmates participating.

• Average grade level increase in reading and writing skills.


25

phase, you develop and submit a budgetrequest according to the directions providedby the jail’s governing authority. If the jail ispart of a larger agency, such as a sheriff’sdepartment, the budget request is reviewedinternally and combined with the agency’stotal budget before submittal to the fundingauthority.

■ Approval. Before the jail’s budget requestgoes to the funding authority, the fundingauthority’s fiscal office reviews it. The jail’sbudget is then combined with other agencybudgets and submitted to the governingauthority as part of the overall recommendedbudget for the jurisdiction. After the fundingauthority reviews the recommended budgetand makes adjustments, it presents a pro-posed budget for public input. After publichearing on the proposed budget, the fundingauthority formally adopts the final budget.

■ Execution. After the final budget has beenadopted by the funding authority, funds aremade available for the fiscal period. Theadopted budget may look significantly dif-ferent from your original budget request. Itis your responsibility to adjust operations tolive within the appropriated amounts.

■ Evaluation. After the fiscal year is com-plete, budgets are subject to evaluation ontwo levels. A fiscal audit may be conductedto assure proper accounting of all funds andto verify that funds were expended for thepurposes intended. A performance audit mayalso be conducted to determine the extent towhich goals and objectives were achievedand to assess the efficiency of the operation.

Developing the Budget

The level of involvement you may have in budg-et development varies from one jurisdiction tothe next. Some jail administrators may have theirbudget developed by a parent agency and have

little opportunity for input.Others may be totally responsi-ble for their agency’s budgetdevelopment process. Ideally,the jail administrator and thejail’s management team play akey role in budget develop-ment. Those who actually man-age and deliver the services aremost knowledgeable about howto allocate resources. Jail budg-et development includes the following steps:

■ Assessing needs. The budget developmentprocess is the time to address needs and defi-ciencies in the jail’s operations and facilities.It also is the time to review progress in meet-ing objectives established in the previousbudget cycle and to update those priorities.

■ Reviewing current and past expenditures.Budgets are generally based on previousyears’ spending patterns. Accordingly, thecurrent and past years’ expenditures shouldbe reviewed for trends or to discover oppor-tunities for future cost savings.

■ Projecting future expenditures. Cost cate-gories for which expenditures are estimatedinclude personnel services, operating ex-penses (such as utilities), and capital outlay(such as new vehicles). Projections are alsorequired for new or expanded services andrevenue generated by the jail. Many jurisdic-tions provide worksheets as tools for esti-mating and justifying projected expenditures.Often the governing authority directs agen-cies to limit requests for increases of manybudget items to a predetermined percentagethat allows for adjustments due to inflationor salary increases. Yet jails may experienceincreases in expenditures that exceed thegoverning authority’s targets—for example,as a result of increased demand, increased


Learn about your juris-diction’s budgetprocess. If the jailresides within a sheriff’sdepartment or otheragency, clarify your rolein budget developmentand management.

26

cost of particular goods or services, or unex-pected costs arising from particular events ornew, unfunded mandates. These cases likelywill require additional justification. Jailadministrators should be prepared to makeadjustments if the level of increase requestedis not approved.

■ Preparing the budget document. Thebudget document includes a completedbudget request form, budget summary, andbudget narrative:

■■ The budget request form provides abreakdown of the request by major costcategories and specific line items withineach category. Typically, budget requestsare presented along with actual expendi-ture totals from the previous year andestimated expenditure totals for the cur-rent year. This allows decisionmakers tocompare the current request with pastspending levels.

■■ The budget summary provides anoverview of the budget request withoutthe line-item detail. It summarizes therequest by major object of expenditureand includes a thumbnail explanation ofthe overall budget request.

■■ Budget narratives are included in vary-ing levels of detail on the budget requestform, in the budget summary, and inthe executive summary. The narrativesdescribe the mission of the jail, its over-arching goals, and the objectives to beaccomplished during the fiscal period.The narratives also explain significantincreases and provide the basis for theestimates.

■ Submitting the budget package. The budg-et submittal typically includes a transmittal(cover) letter, executive summary, operating

detail section with supporting narratives, anda budget summary. The budget summary is aparticularly important component, as it con-cisely tells the story of the jail and the budg-et request.

■ Presenting the budget. If the jail resides ina larger agency, the jail administrator’s firstpriority is to gain the chief executive’s sup-port for the budget. You may subsequentlybe called on to present the budget before afiscal officer or finance committee for thejurisdiction and, ultimately, before the fund-ing authority. Visual aids, charts, and photosare particularly helpful in getting your pointsacross in budget presentations. Encourage allof these decisionmakers to visit the jail toobserve its needs and accomplishments firsthand. These visits will enhance their under-standing of the rationale behind particularbudget requests.

Budget Management

Regardless of your level of involvement indeveloping the budget, you are ultimatelyaccountable for spending the funds appropriatelyand staying within budgeted amounts. Budgetmanagement is an ongoing responsibility of thejail administrator. Duties in this area includemonitoring expenditures, keeping expendituresunder control, dealing with unexpected costs,monitoring results, and making adjustments asnecessary.

Managing the jail’s budget begins with develop-ing spending forecasts at the beginning of thefiscal year. By making monthly or quarterly esti-mates of spending in major cost categories,you can set benchmarks to monitor spendingthroughout the year. At regular intervals, requestexpenditure reports to compare actual spendingwith the forecasts. Using these tools will helpyou make midcourse corrections in spending tokeep the jail’s expenses within authorized limits.


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In managing and controlling expenditures, thejail administrator should focus on the followingareas:

■ Personnel. Personnel expenditures includecosts such as wages, benefits, and overtime.These costs typically represent 70–80 per-cent of the jail’s total budget; accordingly,controlling them is crucial to overall budgetmanagement. Personnel costs are affected byfactors such as overtime usage, absenteeism,productivity levels, and staff turnover. Im-proper allocation and deployment of staffacross shifts can also lead to increased per-sonnel costs. Administrative action may benecessary to address issues arising in one ormore of these areas when the budget isadversely affected.

■ Operating expenses. The goods and servic-es required to operate a jail include utilities,food, medical care, clothing, office supplies,maintenance and laundry services, programsfor inmates, data processing, and contractualservices. To develop spending forecasts forthese expenses for the fiscal period, analyzepast costs in these areas and adjust thembased on previous spending patterns. Whenexpenditures in any of these areas are higherthan forecasted during the monthly review ofexpenditures, you may need to adjust spend-ing levels accordingly.

■ Capital outlay. Capital expenditures gener-ally include equipment and materials thatlast more than a year and cost more than acertain amount established by the jurisdic-tion. Computers, furniture, vehicles, laundryequipment, security systems, and kitchenequipment are examples of capital goods.Review purchase requests for capital goodscarefully to verify their need, urgency, andpriority. You can mitigate capital coststhrough preventive maintenance and byestablishing replacement schedules based

on the life expectancy of capital goods. Inestablishing replacement schedules, it ishelpful to remember that jail equipmenttends to age 3.5 years operationally for everychronological year due to constant andsometimes harsh use.

At times it may be necessary to transfer surplusfunds from one budget category to cover short-falls in another category. The extent of the jailadministrator’s authority to transfer funds is typ-ically set out in the jurisdiction’s budget transferpolicy. Administrators generally have the author-ity to transfer funds between line items withinthe same budget category without outsideapproval. However, transfers above a certainamount between budget categories may requirereview and approval by the funding authority’sfiscal office. The jurisdiction’s budget transferpolicy should describe the format and processfor the transfer of funds between budget cate-gories. You are responsible for knowing this pol-icy and following it in making adjustments.

The funding authority, through formal budgetamendment, must approve any increases in theauthorized budget for the jail. The jail adminis-trator may seek increases to pay for unexpectedexpenses, to use additional jail revenue receivedabove projections, or to expend grant fundsreceived after the adoption of the budget.

Finding and Using Resources Beyond theBudget Allocation

Resources necessary for effective operation ofthe jail may come in a variety of forms and frommany sources. Nonfiscal resources such as vol-unteers, donations, and technical support are justas valuable as funding and can make a signifi-cant contribution toward meeting the jail’s goalsand objectives.

The establishment of partnerships with otherpublic sector agencies and community organiza-tions is another means to access resources

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needed by the jail. Other public and privateorganizations provide or support services such ashealth care, mental health treatment, substanceabuse treatment, job training, and education forcommunity members that are also needed byoffenders. As partners, these entities may be ableto contribute time, money, expertise, or otherresources to the jail.

You may also find opportunities to generate rev-enue to help fund programs or services wheretax-supported appropriations are not sufficient.Grants, subsidies, reimbursements, contracts,inmate fees and copays, and sales of goods pro-duced through jail industry are just some of theways jails across the country have found to gen-erate revenue.

Figuring out how to attract and make effectiveuse of these alternative resources is a keyleadership role of the jail administrator. A well-conceived budget request links resource needs tothe jail’s mission, goals, and objectives. Workplans developed pursuant to the budget processidentify the resources needed for each major jailactivity. Knowing what resources are needed forwhat purpose helps the jail administrator thinkmore broadly and creatively in identifying poten-tial sources of support for the jail.

Purchasing and Contracting

The purchase of services and goods is secondonly to payroll in the volume of budget trans-actions made by most jails. Purchases made bygovernment entities are subject to state laws andregulations as well as to local ordinances andpolicies. The jail administrator has a responsibil-ity to manage the purchasing process to ensurethat the amounts and types of purchases fallwithin budget parameters and to see that thejail’s purchasing process adheres to applicablelaws and regulations.

You should be knowledgeable about yourjurisdiction’s requirements and procedures for

purchasing goods and services. The jail shouldhave internal policies and procedures that outlinethe process for submission and approval of pur-chase requisitions. You or your designee shouldregularly monitor expenditures for purchases ofgoods and services to see that they are chargedto the appropriate accounts and are within budg-et limits. Records management structures shouldbe in place to maintain the integrity and avail-ability of purchasing documents, including req-uisitions, purchase orders, receiving reports, andinvoices.

When formal bidding is required for a purchase,a solicitation in the form of a Request forProposals (RFP) is advertised and sent to inter-ested vendors. The RFP process can involveseveral steps, including bidders’ meetings, atimeline for preparation and submission of pro-posals, a formal bid opening, presentations bybidders, a proposal review and selection process,contract negotiation, and contract execution.Execution of contracts pursuant to formal bidsgenerally requires approval of the fundingauthority. The jail administrator and the fiscaloffice should work together throughout all phas-es of this process to ensure that all laws and reg-ulations governing the formal bid process arefollowed and that a qualified, competent vendoris retained.

More jails are using contracted services in areassuch as food service, medical services, and pro-gramming. Where contracts are in place, the jailshould have a process for performance monitor-ing to ensure it is receiving the scope and qualityof services specified in the contract.

Human Resources Management

Effectively managing human resources is one ofthe jail administrator’s most challenging yet crit-ical responsibilities. Many jail administrators saythey spend more of their time dealing with per-sonnel issues than with inmate issues.


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Every area of human resources management isgoverned by law and regulation. In addition,collective bargaining agreements often spell outadditional employment conditions and rights.The jail administrator must be aware of theserequirements in managing the jail’s workforce.

Employees’ Rights

Employees’ basic rights include:

■ Fair and equitable treatment.

■ A safe environment in which to work.

■ Freedom from discrimination.

■ Freedom from harassment.

■ Equitable compensation—receipt of thesame pay for performing the same work.

■ Freedom from retaliation for filing com-plaints against the facility.

■ Freedom from an invasion of privacy.

Several state and federal laws protect the inter-ests of workers. Some of the more significant ofthese laws are listed below:

■ Fair Labor Standards Act. Sets minimumwage, overtime pay, equal pay, recordkeep-ing, and child labor standards for workers.

■ Equal Pay Act. Prohibits disparity in wagesbased on gender.

■ Age Discrimination in Employment Act(ADEA). Includes protections for employeesover the age of 40.

■ Americans with Disabilities Act. Prohibitsdiscrimination against qualified individualswith disabilities.

■ Family and Medical Leave Act. Providesemployees up to 12 weeks of unpaid leavefor the birth or adoption of a child, to carefor a family member with a serious healthcondition, or for the employee’s seriousmedical condition.

■ Civil rights acts. Laws and regulations thatprohibit discrimination based on race, sex,religion, and national origin and cover suchissues as equal employment opportunity,affirmative action, and sexual harassment.

■ Occupational Safety and Health Act. Lawsand regulations that address basic safetyissues, including protection from hazardoussubstances and environment, and now, on astate level, even smoking and violence.

■ Workers’ compensation laws. Provide ben-efits for workers injured on the job, includ-ing cash benefits, medical care, andrehabilitation services.

■ Privacy laws. Address issues such as back-ground information, access to personnelfiles, drug testing, and even some dresscodes.

Establishing Good PersonnelManagement Practice

Positive steps the jail administrator can take toestablish control over human resources manage-ment while complying with personnel-relatedrequirements are outlined below.

■ Develop written personnel policies andprocedures. Written policies and proceduresprovide information about the facility’s per-sonnel practices, benefits, hours of work, paypolicies, and work rules. They establish clearexpectations of job performance for both em-ployees and supervisors. Written policies alsohelp document compliance with the employ-ment laws and regulations. In the absence ofwritten policies and procedures, the actionsof supervisors and managers become the defacto policies of the organization.

■ Develop written job descriptions. Job de-scriptions specify the major job duties andresponsibilities of a position and establishthe minimum qualifications or core compe-tencies required. Written job descriptions

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provide a basis for performance appraisalsand determination of appropriate compensa-tion levels.

■ Properly classify employees. Ensure thatemployees are appropriately classified asexempt or nonexempt. A nonexempt employ-ee under the federal Fair Labor StandardsAct is eligible for and must receive overtimepay for all hours worked over 40 hours in awork week. The jail is subject to fines andpayment of back pay if nonexempt employ-ees are found to have been inappropriatelyclassified as exempt.

■ Evaluate employee performance. Per-formance should be evaluated and docu-mented, both positively and negatively, onan ongoing basis. Performance appraisalsshould be designed to help employees im-prove and mature in their jobs. Appraisalsshould also help identify changes in behav-ior, attitude, or actions of employees needingsome attention.

■ Be consistent in application of policies andprocedures. Inconsistencies and preferentialtreatment can lead to claims of discrimina-tion. All employees should be treated fairlyand equitably according to the facility’s writ-ten personnel policies and procedures.

■ Follow the rules carefully in discipliningstaff. Jail administrators should be well-versed in the laws, regulations, and contrac-tual agreements that affect the disciplinaryprocess. Failure to adhere to these provisionscan lead to the overturning of disciplinarydecisions. Jails should follow a disciplinaryprocess that includes a range of sanctions(i.e., counseling, probation, suspension, ter-mination) usually applied progressively anddirected toward correcting specific behaviors.

■ Maintain adequate documentation.Establish a personnel file for each employeeof the jail. The file should include the

employee’s application for employment, per-formance appraisals and consultations, atten-dance records, agreements signed by theemployee, disciplinary actions, and positiveitems documenting accomplishments orother noteworthy behaviors.

Policies and Procedures

Jails should have a written policies and proce-dures manual that has been developed specifical-ly for the facility and is consistent with itsmission and goals. The manual should addressall aspects of the jail’s operations and shouldconform to current case law, professional prac-tices, statutes, state standards, and the opera-tional capabilities of the organization. Staffshould receive training in the jail’s policies andprocedures, and the manuals should be readilyavailable to staff for use as a reference. Reviewand update the policies and procedures manualat least annually and whenever major operationalchanges are made.

Written policies and procedures offer a numberof benefits for the jail and its operation. Notably,they:

■ Provide clear direction to staff on operations.

■ Communicate the organization’s mission,values, and philosophy to staff.

■ Promote consistency, efficiency, and profes-sionalism by standardizing how staff carryout their duties.

■ Provide a formal mechanism for transferringauthority and responsibility to staff.

■ Provide the basis for on-the-job staff training.

■ Provide protection for the jurisdictionagainst liability when individual acts can beshown to be outside what is prescribed in thepolicies and procedures.

■ Facilitate compliance with standards andother legal requirements.


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A policy is a simple statement of the administra-tion’s position on an issue concerning the jail’soperation. It defines what action is to be takenand why. A well-written policy contains both theaction and the rationale. The following statementis an example of a policy about inmate visitation:

To encourage inmates to maintain contactwith family, friends, and professional per-sons, the Any County Jail will scheduleregular visitation periods and make specialprovisions for other visitation whennecessary.

Procedures are step-by-step descriptions ofthe activities necessary to fulfill the policy.Procedures describe how, when, and where theorganization will implement the policy and whowill implement it. An example of procedurestatements written in this format is shown inexhibit 2.

Developing and Implementing thePolicies and Procedures Manual

The basic steps in developing or revising a poli-cies and procedures manual are as follows:

■ Solicit staff involvement. To the extent pos-sible, involve staff in the process. Ideally,you should establish a team with representa-tives from all of the jail’s operational areas.Staff who are motivated, available, knowl-edgeable, and capable writers make the bestteam members. Where a team approach isnot feasible due to limited staff resources,the responsibility for developing or updatingthe policies and procedures may fall on thejail administrator. If that is the case, you canstill bring staff into the process by invitingthem to suggest changes to current practicesand requesting them to review drafts andfield test new or revised procedures.

■ Develop an outline. Use your facility’s mis-sion statement and supporting goals as astarting point for identifying policy topics.

The facility’s current manual, manuals fromother facilities, model manuals, state andprofessional standards, and court orders areall good sources for policy topics. A reviewof current operations and past problem areasmay also yield important policy topics.Organize topic areas hierarchically into atable of contents.

■ Develop drafts of policies and procedures.Research background information, developdrafts of policies and procedures, validateand field test the drafts, and circulate draftsfor comment. Develop tracking tools toensure timely completion of each section.Remember, each facility is unique. Do notfall into the trap of accepting or adoptingpolicies and procedures from other facilitiesthat do not fit your operation.

Exhibit 2. Example of Written Visiting Procedures

General Procedures

1. When screening visitors, the receptionist will:

a. Verify the identity of the visitor with a photo identification card.

b. Have the visitor sign the Visitor’s Register (Form E–6), noting the visitor’s name, relationship to the inmate, the inmate’s name, and the date and time.

c. Review the Visitor’s Register for the week to determine if the inmate is entitled to a visit and if the visitor is listed on the inmate’s visiting list.

2. After the visitors have signed the Visitor’s Register, the receptionist will notify the correctional officer which inmates have visitors.

3. The receptionist will unlock the public access doors to the visiting area and escort or direct the visitors to the area.

4. The correctional officer will escort the inmates to the area.

5. The correctional officer will remain in the area to supervise the visits.

6. At the conclusion of the visit, the correctional officer will escort the inmates back to their respec-tive housing areas. The correctional officer will also instruct the visitors to leave the visiting area and check out with the receptionist.

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■ Review and approve the drafts. Whencompleted, review the drafts of all policiesand procedures for validity, comprehensive-ness, and compliance with applicable laws,

codes, and standards. Theagency’s legal counsel shouldalso review the drafts, whichmay then be forwarded to thesheriff or chief executive offi-cer (CEO) for review and pre-liminary approval. Feedbackfrom reviewers must be incor-porated and new drafts submit-ted for approval until allreviewers’ concerns have beensatisfactorily addressed.

■ Organize the manual. When all sectionshave been reviewed and approved, organizethe draft policies and procedures into a man-ual, following your outline. This task in-cludes formatting the manual pages andorganizing the sections within the manual.

■ Submit the policies and procedures manu-al for final approval. The jail administratorand sheriff or CEO should review the com-plete manual again before approving it fordistribution.

■ Distribute the manual and train staff.Once approved, the manual should be dis-tributed so all staff have access to it. Staffshould then receive training on all new poli-cies and procedures.

Monitoring Compliance

There is an old adage that says “You get whatyou expect!” It is also true that “You get whatyou inspect!” Accordingly, the jail administratorshould develop a system to monitor staff compli-ance with policies and procedures. Monitoringshould incorporate multiple strategies such as:

■ Periodic checks of documentation.

■ Periodic interviews with staff, inmates, andother “users” of the facility.

■ Observation of practice on all shifts.

■ Regular and unannounced internal inspec-tions (see “Internal Inspections and Audits”on pages 34–35).

■ External inspections (jail standards inspec-tors, health and safety inspectors, etc.).

If monitoring reveals that policies and proce-dures are not being followed, corrective meas-ures may be necessary. Before taking correctiveaction, it is important to understand the reasonfor the noncompliance. Depending on the rea-son, one or more of the following correctivemeasures may be necessary:

■ Retraining if policies and procedures are notfully understood.

■ Enhanced supervision if staff need additionaldirection.

■ Disciplinary action if the matter is a staffperformance issue.

■ Additional resources and/or modification offacilities.

■ Modification of the policies and proceduresto reflect a more achievable course of action.

Maintaining the Manual

The policies and procedures manual is a livingdocument that can be amended as needs, laws,and conditions change. Most standards requirethe policies and procedures manual to bereviewed at least annually, which can be accom-plished most easily through the use of a stag-gered review schedule. Schedule a section of themanual or set of policies for review each month.Distribute copies of the policies to designatedstaff for review and get their input. Collect thereviewed policies, marked up with suggestedchanges, and make revisions where appropriate.These revised drafts of policies can then bereviewed, approved, and implemented asdescribed above. By the end of the year, thecomplete manual will have been reviewed and


Keep jail policies andprocedures current.Review your policiesand procedures manualat least annually andwhenever a change inconditions indicates theneed for a change in thepolicies and procedures.


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updated. An electronic version of the mastermanual should be maintained to facilitatechanges.

Post Orders

The jail administrator should also see that de-tailed post orders laying out the precise responsi-bilities and tasks for each post and position inthe jail staffing plan are prepared and imple-mented. The guidelines presented above fordeveloping operational policies and proceduresserve equally well for this task. The policies andprocedures manual provides staff direction forwhat is to be done, why it is to be done, and howit is to be done; post orders detail what specifictasks are to be done, when they are to be done,and who will do them. Post orders may vary byshift and typically include:

■ The post name.

■ Hours of duty.

■ Issue and review dates.

■ A list of equipment required for the post.

■ General instructions.

■ A list of scheduled duties in chronologicalorder.

■ A list of unscheduled duties and the frequen-cy with which they should be done. A sam-ple post order format is shown in exhibit 3.

Documentation

Thorough and consistent documentation of jailoperations is critical to effective jail administra-tion. Documentation provides a means to identi-fy needs, track progress, and evaluate the overallperformance of jail operations and activities. Itprovides a means to verify that policies and pro-cedures are being followed, that standards arebeing met, and that the jail is fulfilling its mis-sion. Documentation is also one way of commu-nicating key information to and among staff.Documentation includes records dealing with

management, operations, programs, and individ-ual inmates. There are essentially three types ofdocumentation: primary, secondary, and tertiary:

■ Primary documentation includes recordsof a higher order, such as policies and proce-dures manuals, inmate handbooks, personnelmanuals, and interagency agreements orcontracts. Primary documentation generallyinforms and directs the work of jail opera-tions for staff, inmates, and others.

■ Secondary documentation includes recordsrequired by policy, such as logs, classifica-tion documents, internal inspection reports,medical screening forms, and disciplinaryreports. It is kept for a variety of reasons,including to prove that policy is being fol-lowed, to pass on information to the nextshift, to gather information for later deci-sionmaking, and to maintain inventorycontrol.

■ Tertiary documentation generally refers toall other types of supporting documentation.It includes such things as general correspon-dence, work orders, photographs, purchaseorders, invoices, and minutes of meetings.Such documentation can demonstrate goodfaith on the part of the jail if it is challengedon conditions that are in the process of beingcorrected.

Effective use of jail documentation as an admin-istrative tool requires a formal records manage-ment system. Such a system ensures that data arecollected in a consistent format and maintainedin a manner that permits both case level andaggregate information to be retrieved whenneeded. Policies and procedures addressingrecords management should include provisionsfor establishment, content, format, accountabili-ty, disposition, access, retention, and disposal ofrecords. The jail should designate a staff personas the records manager; this person maintains amaster log of all forms and records used in thefacility.

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Many jails have incorporated their records anddocumentation into electronic management in-formation systems, which have several advan-tages over the old paper systems. Physical spacerequired for record storage is reduced, whilecapacity to retrieve and share information amongstaff is greatly enhanced. Newer electronic sys-tems have data extraction and report generationfeatures that allow jail staff to conduct studiesand customize reports that help assess needs andanalyze trends.

On the downside, electronic systems may becostly both to customize for individual jails and

to maintain. Staff who are not computer literatemay experience a significant learning curve inusing these systems, although that is changingwith the influx of younger staff who have grownup with the technology. Lastly, contingenciesmust be in place to continue operations duringperiods of time when the computer system isdown.

Monitoring and Assessment

Internal Inspections and Audits

The jail’s operations and programs should bemonitored regularly through a process of internal

Exhibit 3. Sample Post Order Format

Post:

The name of the post goes here.

Hours of Duty: Days:

The hours of work and/or shift hours are listed here. The days the post is staffed are listed here.

Example: 2250 – 0700 Example: Sunday through Saturday0650 – 15001450 – 2300

Equipment:

The equipment that the officer is supposed to have in his or her possession for this specific post is listed here.

Examples: Badge, nameplate, identification card, post keys, flashlight

A. General Instructions:

Anything that does not fit under scheduled duties or nonscheduled duties can be included as a general instruction.

Examples: 1. Officers assigned to the duty station must be in complete uniform.

2. Officers assigned to this post are to log their name and the date, time, and duty station whenarriving and log off when leaving the post.

B. Scheduled Duties (all times approximate):

In this section, each scheduled duty is listed chronologically with the time that duty is supposed to be done.

Examples: 0650 Roll call0655 Obtain post keys0700 Shift change on post

C. Nonscheduled Duties:

Any duties that do not have a specific time or are continuous are listed here.

Examples: 1. Maintain logbook with an account of all significant events.2. Admit officers walking rounds and observe them while in the units.3. Receive all inmates and provide orientation to the unit.


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inspections and reviews. An internal monitoringsystem provides timely observation and assess-ment of critical jail functions and helps the jailadministrator stay informed about programs,activities, and problems in the jail. It can revealhow well the facility is complying with policiesand procedures, standards, and other legalrequirements. It also provides a means to deter-mine if the jail is meeting its goals and helps toidentify areas needing change. A process fordeveloping an internal monitoring system is dis-cussed below:

■ Identify the functions or activities to bemonitored. Identify the key operationalfunctions and activities that you want tomonitor and assess on a regular basis. Thiswill establish the main topic areas and foun-dation for internal audits and reviews. Jailstandards are a good place to begin. Manystandards require periodic review of life,health, and safety functions.

■ Select the most effective method of review.Methods typically include review and sign-off of activity or census reports; periodicreview/examination of logs and records;inspection of facilities, equipment, and/orfurnishings; and visual observation of activi-ties. Obtain or develop a series of reviewchecklists to facilitate your reviews by what-ever method works best. Tailor the checkliststo be facility-specific and specific to themethod of review. Use these to record prob-lems discovered, confirm policy compliance,and rate performance.

■ Determine the frequency of reviews. Thefrequency of review depends on the typeof function or activity being reviewed. Al-though your needs may dictate a differentschedule, as a general rule the internal auditsystem should include scheduled assess-ments of various functions on a daily, week-ly, monthly, quarterly, semiannual, or annualbasis. In many cases, jail standards dictatethe frequency of reviews.

■ Assign responsibility for conducting thereview. The reviewer may be a staff personwho has administrative oversight of thefunction or may have special qualificationsneeded to conduct the review (e.g., the des-ignated safety and sanitation officer is typi-cally assigned to conduct periodic safety andsanitation inspections).

■ Establish a schedule for the reviews.Schedule reviews on a master calendar andon the calendars of staff assigned to conductthem so that the reviews get incorporatedinto the day-to-day work.

■ Establish a process to correct identifieddeficiencies. Some deficiencies may be cor-rected immediately by the staff responsiblefor the function or activity. Other deficien-cies may require additional resources or res-olution at a higher level. A corrective actionplan that details the corrective measures,resources needed, responsible persons, andtimeframes may be required.

The jail administrator should assign a staffperson to coordinate the internal monitoringprocess. The coordinator should assure that thereviews are completed as scheduled and thatappropriate corrective action istaken when necessary. He orshe should also track anyissues, concerns, trends, orproblems that surface as aresult of the reviews and notifythe jail administrator of anyitems requiring immediateattention. The informationshould also feed into the facili-ty’s strategic planning andbudget processes.

External Inspections

The jail may also be inspected by a number ofexternal entities that have regulatory responsibilityover various aspects of jail operations. This


Establish a process ofinternal reviews andexternal inspections tomonitor jail operationsand programs regularly.Use the informationgathered in the reviewsto correct deficienciesand make improvements.

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may include a jail inspection agency, healthdepartment, fire inspection agency, building codeinspection bureaus, and agencies responsible formonitoring workplace safety. Most of these in-spections are conducted on an annual cycle, al-though sometimes more frequently. Externalinspections may also be conducted as a result of areported incident or complaint. In most cases, theinspector generates a report that indicates the jail’scompliance status and any required correctivemeasures. The jail administrator should strive todevelop good working relationships with represen-tatives from external inspection agencies. In addi-tion to the objective perspective provided by anexternal inspection, the agency may be a source oftechnical assistance and support when improve-ments are needed.

Exhibit 4 lists the jail functions that should bemonitored, along with recommendations formonitoring methods, frequency of monitoring,and who should perform the monitoring. Jailadministrators can also gain significant insightinto how well the jail is functioning and whatproblems exist by reviewing documentation frompast internal and external inspections. Your re-view may also show pending issues that requireimmediate attention.

Working With Other Components of theCriminal Justice System

The jail does not exist in isolation. It functionswithin the context of a broader criminal justicesystem that includes law enforcement, prosecu-tors, judges, defense counsel, probation, andother correctional agencies. The use of the jail isdriven by a number of factors within the crimi-nal justice system:

■ Policies, practices, and resources of entitiesother than the jail within the local criminaljustice system.

■ Arrest rates for various types of crimes.

■ Level of efficiency of the justice system inmoving defendants through the adjudicatoryprocess.

■ Extent to which alternatives to incarcerationare available and used.

The decisions of the various justice system offi-cials in the course of their day-to-day processingof persons through the system determine how thejail is used. Accordingly, it is important for jus-tice system officials to agree on the purpose androle of the jail in the system.

The lack of alternatives to incarceration alsoaffects jail use. Judges often face the dilemma ofnot having adequate pretrial supervision or sen-tencing options. Jails, by default, become theprimary option for dealing with the majority ofrepeat minor offenders.

Inefficiencies in the functioning of the justicesystem also contribute to the use of jail bed-space. Delays in the processing of cases of per-sons in custody lead to longer stays in detention.Delays may be caused by insufficient resourcesof treatment providers. Backlogs and waitinglists for services do little to instill judges’ confi-dence in the use of alternatives. On the otherhand, jail officials generally cannot refuse toaccept custody, regardless of the availability ofbedspace in the facility. Other system-relatedproblems that add to jail bedspace use are, forexample, backlogs of court dockets, excessiveuse of continuances, and untimely completion ofpresentence reports.

For the reasons described above, it is importantfor the jail administrator to work closely withlocal criminal justice system officials to under-stand the factors driving the use of the jail.Changes in how cases are processed by justicesystem agencies or in the availability of alterna-tive programs can alter the number of jail admis-sions and/or the length of stay of persons incustody and thereby significantly affect the size


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Exhibit 4. Monitoring Performance Through Inspections and Audits

Functions and Activities Monitoring Method Frequency Responsible Staff

General Administration

Mission and goals Review Annually Administrator

Organizational structure/chain Review Annually Administratorof command

Facility policies and procedures Review Annually Administrator

Fiscal Management

Accounting procedures Review Annually Administrator

Cash management Inspect physical handling Daily Administratorand review documentation

Fiscal activities Review and sign off Ongoing Administrator

Accounting procedures and Independent financial audit Annually Independentfiscal activities financial auditor

Inventory control Conduct physical inventory Annually Administrative staff

Personnel

Staffing requirements Conduct staffing Annually Administratorneeds assessment

Drug-free workplace policy Review and update policy Annually Administrator

Employee performance reviews Review personnel files Annually Administrator

Training

Training plan Review/approve annual plan Annually Administrator

Training needs Conduct assessment Annually Training coordinator

Training adequacy/effectiveness Review and evaluate Annually Training coordinatortraining impact

Required training Review training records Annually Administrator

Security

General security Observe security practices Daily Shift supervisorsduring daily patrol

Observe facilities for hazards Weekly Facility administrator or and observe operations for designeeunsafe practices during weekly visit to housing and activity areas

Formally inspect all security Weekly Chief security officer devices/features

Post orders Review and update Annually Administrator

Jail log Review and sign off Daily Shift supervisors

Security equipment (firearms, Inventory and inspect all items Monthly Chief security officerchemical agents, etc.)

Key/tool control Observe use of system for Monthly Chief security officer checking items out and in; inspect storage areas; review records

Continued on next page.

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Exhibit 4. Monitoring Performance Through Inspections and Audits (continued)


Security (continued)

Shakedowns and searches Review documentation of shake- Monthly Chief security officersystem; inspect storage downs, facility searches, etc. areas; review records

Safety

Fire and life safety Inspect facilities for hazards Weekly Trained, designated staffand observe operations for unsafe practices

Conduct comprehensive Monthly Qualified fire and safetyinspection with checklist officer

Fire inspection and equipment Inspect and test Quarterly Qualified fire and safety officer

Fire inspection Independent inspection Annually Local or state fire officials

Power generators Conduct equipment test Biweekly Qualified staff

Emergency systems (alarms, Conduct equipment tests Quarterly Qualified staffstandby lighting, communications systems, etc.)

Written evacuation plan Review and certify Annually Qualified independent inspector

Emergency plans Review and update Annually Administrator; safety officer

Sanitation and Hygiene

General sanitation and cleanliness Observe all facility areas Daily Line and supervisory staff

Sanitation inspections Formally inspect all facility areas Weekly Qualified staff

Conduct comprehensive Monthly Sanitation specialistinspection

Independent inspection Annually Local or state sanitation and health officials

Water supply Test and certify Annually Qualified independent source

Pest control Inspect Monthly Qualified staff or outside source

Food service operations Inspect sanitation levels Weekly Administrative or food service supervisory staff

Inmate Supervision and Management

Well-being checks and counts Observe; review logs Weekly Administrator or designee

Classification Review several case records for Monthly Administrator ordocumentation of classification designee

Special management Observe general conditions; Monthly Administrator or review logs designee

Major incidents; use of force Review reports Ongoing Administrator or designee



39



Rules, Discipline, and Grievance

Inmate rules of conduct Review and update Annually Administrator or designee

Disciplinary process Review several case records for Quarterly Administrator ordocumentation of disciplinary designeeaction taken

Grievances Review grievance records and Quarterly Administrator or dispositions designee

Food Service

Dietary allowances Review and evaluate menus Quarterly Food service supervisory staff

Review menus Annually Qualified dietitian

Meal preparation and service; Observe food service operations Monthly Administrator orquality of meals and meal service designee

Health Care

Health-care effectiveness Review statistics; hold meetings Quarterly Administratorwith health care authority

Health-care delivery system Review and assess Annually Health-care authority

Access to services Review several case records Monthly Administrator or for documentation of medical designeeservices provided

Medical equipment, supplies, Inventory and inspect Weekly Jail nurse and pharmaceuticals

First aid kits Inspect and resupply Quarterly Jail nurse

Admission and Release

Admission and release process Observe; review admission and Monthly Administrator or release documentation in several designeecase records

Property Inspect property room; observe Monthly Administrator or handling of property during designeeadmission/release

Programs and Services

General access to programs Review programs and services Annually Administrator orand services and assess adequacy to meet designee

inmates’ needs

Laundry Review and assess services Quarterly Supervisory staff

Library services Review library program Quarterly Program coordinator

Religious services Review inmate requests for Quarterly Program coordinator religious services; assess adequacy of current resources

Counseling and education services Review inmate requests; assess Quarterly Program coordinator availability and adequacy of services


40

and makeup of the jail popula-tion. Many communities haveestablished coordinating com-mittees to discuss and addresscriminal justice issues. Themembers of these committeesare generally key justice sys-tem officials and other stake-holders who have an interest inthe effective functioning of thesystem. Ideally, coordinatingcommittees work to:

■ Improve analysis of criminal justice systemproblems.

■ Improve coordination and cooperationamong criminal justice agencies.

■ Provide a means to establish system-levelgoals, objectives, and priorities.

■ Promote more effective allocation and use ofresources.

■ Improve criminal justice programs andservices.

■ Improve the quality and capacity of criminaljustice system personnel.

The jail administrator should be an active partic-ipant in the local criminal justice coordinatingcommittee where such exists. Whether or notthere is a formal group, you should establishregular communication with key criminal justicesystem officials to share information about thejail population and the impact of justice systempolicies and practices on the jail. Channels ofcommunication include the following:

■ Written activity reports. Provide regularwritten activity reports to prosecutors,judges, and other key officials indicatingcurrent population levels and specific infor-mation about who is in the jail and theirstatus.

■ Annual reports. Send criminal justice offi-cials copies of the jail’s annual reports show-ing overall activity for the year.

■ Meetings. In addition to written materials,monthly or quarterly meetings with justiceofficials provide an opportunity for all par-ties to discuss needs and address issues.

■ Onsite visits. Invite officials to visit thejail periodically so that they may gain a



Programs and Services (continued)

Mail services Observe handling and Monthly Supervisory staff distribution of mail

Visiting Observe the visiting process Quarterly Supervisory staff

Telephone services Review inmate access Annually Supervisory staff

Work release and inmate Review work release and Annually Program coordinatorwork programs inmate work programs

Commissary Review commissary services Annually Administrator or designee

Maintenance

Preventive maintenance Review maintenance logs; Quarterly Maintenance supervisor compare with preventive maintenance schedule


Become activelyinvolved in the localcriminal justice coordi-nating committee ifsuch exists in the com-munity. Advocate forthe development of acoordinating committeeif none exists.


41

better understanding of its capabilities andlimitations.

Educating the Community andFunding Authority

The support of the community and fundingauthority is essential if the jail is to get theresources it needs to function effectively.Historically, the jail for most people has been“out of sight and out of mind.” Their perceptionsof the jail are often shaped by the media andwhat they have heard from others anecdotally.Compared with other functions of government,the jail is not a high priority for funding in manyjurisdictions. Given these circumstances, it isessential that the jail administrator (directly orthrough the sheriff) educate the community andthe funding authority about the jail, its role with-in the criminal justice system, and its needs.

Strategies for Educating the FundingAuthority

Use the following strategies to educate the fund-ing authority about the jail:

■ Visits. Statutes in many states require thefunding authority to visit the jail periodical-ly. Encourage the funding authority to visitthe jail regularly to observe operations,assess conditions, and identify needs.

■ Meetings. Meet with representatives of thefunding authority on a regular basis to reviewaccomplishments, discuss needs, and addressissues. The funding authority should not belearning about problems or needs for thefirst time at annual budget hearings.

■ Reports. On a regular basis, submit writtenreports to the funding authority that provideinformation on jail activity, progress inmeeting performance goals, and trends.

■ Resource materials and training. Give thefunding authority copies of resource materi-als that provide information about jails andmake them aware of training opportunities

where they may learn more about jail issuesand trends.

■ Well-prepared budgets. Document the jail’sneeds thoroughly in your budget request.Link requests for funds directly to the goalsand objectives established to carry out thejail’s mission. A well-prepared budget canbe an excellent communication tool.

Strategies for Educating the Community

Although the community does not require thesame level of detail about the jail as the fund-ing authority, community members do need tounderstand how the jail serves them and the con-sequences of having a jail that does not meet thecommunity’s needs. Use the following strategiesto educate the community about the jail:

■ Written materials. Prepare brochures andfact sheets that provide information aboutthe jail, including its mission and goals, rolewithin the criminal justice system, inmatepopulation characteristics, accomplishments,and contact information. Distribute these tothe media, the funding authority, and to thecommunity during speaking engagementsand in other public forums.

■ Videos. Prepare a video about the jail toshare at public meetings, presentations, oron public access television channels.

■ Media. Establish good relations with thelocal media. More information about work-ing with the media is provided later in thischapter (pages 43–45).

■ Jail tours. Make the jail available to themedia and community groups for tours. Usethese tours as an opportunity to highlightyour accomplishments and describe theneeds and challenges the jail is facing.

■ Presentations. Provide information aboutthe jail in presentations to civic organiza-tions, churches, and other communitygroups. They are often looking for speakers

42

and may be looking for issues and projectsto support. Many of the civic and naturalleaders of the community belong to thesegroups. Cultivate good relations with theseleaders, as they are the ones who can influ-ence funding authorities and other communi-ty members.

■ Volunteers. A strong volunteer program inthe jail also forges many connections withthe community. Volunteers see first hand thechallenges and needs of the jail and becomestrong advocates for the jail with their friends,family, and other community members.

Public information officers and marketing spe-cialists in the private sector are two goodresources for jail administrators to use in devel-oping a community education plan. These pro-fessionals can help shape the jail’s message andcarry it through in a variety of formats.

Establishing Community Partnerships

In addition to being a critical component of thelocal criminal justice system, the jail is part ofthe community’s broader system of humanservices. All of the jail’s inmates have had ex-perience with other social institutions in thecommunity— examples range from family,school, and church to foster care and mentalhealth and substance abuse treatment—beforecoming to jail. Family conflict, education failure,

chemical dependencies, andmental illness are all factorsthat contribute to behavior thatcan lead to involvement withthe criminal justice system.The public safety element ofthe jail’s mission suggests thatthe jail has a role in addressingthese issues as part of the com-munity’s overall effort toreduce future criminal behav-ior. This means providing

some services to offenders while in jail andlinking the offenders to services made availableon release as part of a coordinated interventionsystem. To accomplish this daunting task, the jailadministrator must gain the support and coopera-tion of the human services providers in the com-munity and other stakeholders who have an interestin better outcomes for offenders. Establishing com-munity partnerships can improve access to andcoordination of services for offenders.

Community partnerships are organized in a vari-ety of ways, but all seek to improve services byincreasing the input and involvement of partici-pants around a common goal. As indicated in theprevious section, many communities have estab-lished coordinating committees to improve thecriminal justice system. Similarly, groups havecome together in some jurisdictions to bringabout improvements in the facilities, operations,and services of the local jail. The kind of part-nership that will most benefit the jail depends onwhat is needed to improve its services. Indeed,the jail may be part of multiple partnerships thatare supportive of its goals. Some examples of thedifferent types of partnerships are describedbelow:

■ Task forces. Task forces accomplish a spe-cific set of tasks around a pressing issue,generally at the request of an overseeingbody. Once the tasks are accomplished, thetask force is disbanded. Groups establishedto address jail overcrowding or building anew facility are examples of task forces.

■ Advisory boards. Advisory boards providesuggestions and assistance to an organiza-tion. They are generally permanent bodieswith changing memberships. Many jailadministrators have found the advocacy andinfluence of advisory boards with fundingauthorities helpful in getting neededresources for the jail.


Make effective use ofcommunity resources.Reach out to the com-munity to establishpartnerships to provideservices and improvethe functioning of thelocal criminal justicesystem.


43

■ Networks. Networks are typically loose-knitgroups that form to provide a vehicle toshare information regularly. The jail may bepart of a network with local human servicesproviders that meets to discuss specific casesand/or overall service capacity needs for thecommunity.

■ Coalitions. Coalitions are groups that formto mobilize people around a common pro-gram and generate power. Coalitions take astand on issues and promote them. MothersAgainst Drunk Driving and tax protestgroups are examples of coalitions. Coalitionscan be a benefit or barrier to effective jailoperations. A goal of the jail administratoris to find ways to align the interests of thesegroups with the interests of the jail.

■ Interagency agreements. These are partner-ships that form as two or more organizationscontract to support each other in their specif-ic missions. Agreements between the jail anda county health department or the communi-ty mental health center to provide services toinmates in the jail are examples of this typeof partnership. Interagency agreements oftenlead to better coordination of services andprovide opportunities to access funds frommultiple funding sources that currently sup-port traditionally separate services andprograms.

■ Contracts. Contracts are business agree-ments between organizations or between anorganization and an individual to providegoods or services. Contracts have specificobjectives, are time limited, and assign spe-cific responsibilities to the contracting par-ties. Agreements with vendors to providefood services or health services are examplesof contracts in jails.

The jail administrator is responsible for engag-ing stakeholders in the community on jailissues and working toward the establishment

of partnerships that will helpthe jail achieve its mission andgoals.

Working With the Media

One of the jail administrator’smore challenging administra-tive responsibilities is workingwith the media. Your objectivein working with the media is to establish goodrelations that will result in positive reportingabout the jail. When bad things do happen, goodrelations with the media will increase the likeli-hood that jail officials will be treated fairly andthe story will be reported accurately.

The media’s primary responsibility is to providethe public with information it values. In fulfill-ing this responsibility, the media:

■ Communicate and interpret informationabout major events of the day.

■ Provide a means for public officials to con-vey an agenda or explain actions.

■ Serve as the eyes and ears of the public,scrutinizing the behavior of public officialsfor evidence of corruption, incompetence, orcarelessness.

As a public entity involved in activities of inter-est to the public, the jail may have contact withthe media on a regular basis in each of thesecontexts. The media will be interested in report-ing on events involving the jail—both good andbad—and will monitor the performance of jailofficials. On the other hand, the media also pro-vide a vehicle for the jail administrator toexplain the role of the jail to the community,highlight its accomplishments, and convey itsneeds. Regardless of the reason for contact,establishing a media strategy and developinggood working relationships with the media rep-resentatives who cover the jail are essential.


Develop an effectivecommunications plan toeducate the communityabout the jail and toestablish positive rela-tions with the media.

44

What Makes a Story Newsworthy?

The media are interested in stories that are inter-esting, relevant, timely, and controversial. Storiesthat meet one or more of the following criteriaare likely to be considered newsworthy:

■ Timeliness. Nothing beats breaking news.Breaking news is immediate news aboutsomething that just happened and that mat-ters to a defined audience.

■ Proximity. Most media are first and fore-most interested in stories with a local angle.

■ Consequence. Stories that affect the com-munity are news. The more people affected,the bigger the story.

■ Conflict. Whether it involves people ororganizations, conflict makes news.

■ Progress. People like to hear when thingsare getting better.

■ Human interest. People are interested inpeople. Those who read, listen to, and watchthe news like to learn about others.

■ Novelty. People enjoy seeing, reading, orhearing about the unusual or quirky.

■ Tradition. Annual events or major anniver-saries may be newsworthy.

■ Spectacle. Story about a major celebrationor a big event may be news.

■ Prominence. Some people are newsworthysimply because of their fame or their posi-tion of power.

Be alert to positive events or situations in the jailthat may be considered newsworthy. Storiesabout successful jail programs, awards receivedby staff, or progress being made on jail projectsare several such examples.

Developing a Media Plan

A formal media plan will help you get the mostout of any contact with the media. Following areguidelines for developing a media plan:

■ Develop written policies and procedures fordealing with the media.

■ Designate a qualified staff person to coordi-nate communications activities for theagency.

■ Ensure that all staff understand the reasonsfor designating a specific communicationscontact with the media (whether an individ-ual or a team) and that they know the con-tact(s) and how to reach them.

■ Obtain training on dealing with the mediafor yourself and designated staff.

■ Develop a comprehensive media resourceinventory that lists all newspapers, radio sta-tions, television channels, and contact per-sons appropriate to the jail’s target audience.

■ Develop a message that best conveys thefacility’s mission and any other key informa-tion the public should know about the jail.

■ Develop media materials that include back-ground information on the jail, for example,fact sheets that cover key data and trends,current issues, and recent accomplishmentsand include names and contact informationfor key individuals, pictures and charts, andresponses to frequently asked questions.Keep copies available for distribution.

■ Establish contacts and relationships with keypeople in the media.

■ Find out about the deadlines, constraints,and needs of the various media outlets andbe responsive to them.


45

Be proactive in your contact with the media.Initiate positive contact with the media to getyour message out when things are going well.Media outlets experience many slow news dayswhen they are looking for filler stories. Usethese opportunities to build goodwill that youcan draw on when a crisis occurs and also to getyour message out to the public.

Communicating With the Media inCrisis Situations

When an incident or crisis occurs at the jail, themedia will likely be there to cover it. Severalbasic steps for dealing with the media in thesecircumstances are outlined below:

■ Have an indepth crisis communications planthat includes dealing with the media, thecommunity, and your employees.

■ Create a team to work with the media in thecrisis communications plan. Designate aspokesperson and backups.

■ Make sure all jail staff know who is desig-nated to deal with the media and respect thatperson’s position with the media.

■ Make sure the crisis team has been pro-fessionally trained in doing “hard news”interviews.

■ Make sure the media know who your desig-nated spokesperson is and that your spokes-person is accessible.

■ Respond to reporters’ questions promptly.They expect a return call or an onsite inter-view within 10 minutes of the request.Saying nothing is worse than saying, “Idon’t know.”

■ Prepare a statement dealing with the crisissituation. Distribute the statement to themedia when requests come in.

■ Do not lie or bend the truth—it will comeback to haunt you. Do not say “No com-ment.” However, it is OK to say, “I’m notsure how to answer that.”

■ Never go off the record. In a crisis, there isalready much confusion. Do not add to it.Tell a reporter only what you want to see onthe front page of the local paper.

■ Don’t be drawn into speculation, causes, oroutcomes. Your immediate responsibility isto handle the crisis.

■ Show that your organization is addressingthe situation.

■ Beware of admitting liability.

■ Where possible, keep elected officials andstaff informed of actions and developments.

■ Have media kits prepared and in the crisisroom ready for distribution. The media kitshould be a folder that contains informationabout the jail and the situation, importantphone numbers, and a list of positive thingsyour organization has done in the recentpast.

■ Practice implementing the crisis plan bygoing through a mock crisis at least annually.

■ After the crisis, review the handling of thesituation to see how well the communica-tions plan served your needs.

Public information officers of public and privatesector agencies may be good sources of infor-mation and assistance in developing a plan tocommunicate with the media. Journalism depart-ments in local colleges may also be helpful indeveloping the plan, providing training, andassisting in the development of media resourcematerials.

46


Mission and Planning

“Basics of Developing Mission, Vision andValues Statements.” C. McNamara, Free Man-agement Library, www.managementhelp.org/plan_dec/str_plan/stmnts.htm#anchor519441.Accessed in August 2004.

Beyond the Myths: The Jail in Your Community(video). National Institute of Corrections, 2003.

Correctional Administration: Integrating Theoryand Practice. R.P. Seiter, Prentice Hall, 2002.(See chapter 3, “Creating a Vision, MissionStatement, and Strategic Plan.”)

Criminal Justice Organizations: Administrationand Management, 2d ed. S. Stojkovic, D.Kalinich, and J. Klofas, West/WadsworthPublishing Company, 1998.

Jail Resource Issues: What Every FundingAuthority Needs To Know. G.M. Bowker,National Institute of Corrections, 2002.

“Strategic Planning.” C. McNamara, FreeManagement Library, www.managementhelp.org/plan_dec/str_plan/str_plan.htm. Accessed inAugust 2004.

Budgeting and Budget Management

Accounting Issues and Practices: A Guide forSmaller Governments. G.S. Allison, GovernmentFinance Officers Association, 1996.

The Best of Governmental Budgeting: A Guideto Preparing Budget Documents. D. Strachota,Government Finance Officers Association, 1994.

Budget Guide for Jail Administrators. Part 1:Developing the Budget. M.D. Martin, NationalInstitute of Corrections, 2002.

Budget Guide for Jail Administrators. Part 2:Managing the Budget. M.D. Martin, NationalInstitute of Corrections, 2002.

Budget Guide for Jail Administrators. Part 3:Beyond Budget Allocation—Sources of Fundingand Services. M.D. Martin, National Institute ofCorrections, 2002.

The Operating Budget: A Guide for SmallerGovernments. J.C. Powdar, Government FinanceOfficers Association, 1996.


Correctional Administration: Integrating Theoryand Practice. R.P. Seiter, Prentice Hall, 2002.(See chapter 11, “Human Resources Manage-ment for Corrections.”)

“Human Resources Management.” C. McNamara,Free Management Library, www.managementhelp.org/hr_mgmnt/hr_mgmnt.htm. Accessed inAugust 2004.


Developing and Revising Detention FacilityPolicies and Procedures, rev. ed. M. Martin,National Institute of Corrections, 2002.

Criminal Justice System Coordination andCommunity Partnerships

Building Partnerships: A Systems Approach toPartnerships in Corrections. V. Jacobson,National Institute of Corrections, 1995.

Guidelines for Developing a Criminal JusticeCoordinating Committee. R.C. Cushman,National Institute of Corrections, 2002.

A Second Look at Alleviating Jail Crowding: ASystems Perspective. Pretrial Services ResourceCenter, 2000.

Media Relations

The Associated Press (AP) Stylebook andBriefing on Media Law. N. Goldstein (editor),Associated Press, 2004.


47

Communicating in a Crisis: Risk Communica-tion Guidelines for Public Officials. U.S.Department of Health and Human Services,Center for Mental Health Services, SubstanceAbuse and Mental Health Services Administra-tion, 2002.

Dealing With the Media (Web site). GlobalDevelopment Research Center, www.gdrc.org/ngo/media/. Accessed July 2004.

Oxford Essential Guide to Writing. OxfordUniversity Press, 2003.

Pocket Guide to Public Speaking. W.S. Pfeiffer,Pearson Education, 2001.

Pocket Guide to Technical Writing, 3d ed. W.S.Pfeiffer, Pearson Education, 2003.

Chapter 4

Jail Facilities

4

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51


Characteristics of Facilities That SupportEffective Jail Operations . . . . . . . . . . . . . . 51

Capacity and Jail Crowding . . . . . . . . . . . . 52

Jail Facility Components and DesignFeatures . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Security Perimeter . . . . . . . . . . . . . . . . . . . 54

Control Center . . . . . . . . . . . . . . . . . . . . . . 54

Intake Area . . . . . . . . . . . . . . . . . . . . . . . . . 54

Visiting Areas . . . . . . . . . . . . . . . . . . . . . . . 55

Inmate Housing . . . . . . . . . . . . . . . . . . . . . 55

Support Services Areas . . . . . . . . . . . . . . . 58

Program and Recreation Areas . . . . . . . . . 59

Administrative Areas . . . . . . . . . . . . . . . . . 59

Staff Areas . . . . . . . . . . . . . . . . . . . . . . . . . 59

Security Equipment and Technology . . . 59

Environmental Conditions in Facilities . 61

Light Levels . . . . . . . . . . . . . . . . . . . . . . . . . 61

Noise Levels . . . . . . . . . . . . . . . . . . . . . . . . 61

Temperature . . . . . . . . . . . . . . . . . . . . . . . . 61

Air Quality . . . . . . . . . . . . . . . . . . . . . . . . . . 61

Plumbing . . . . . . . . . . . . . . . . . . . . . . . . . . 62

Facility Sanitation . . . . . . . . . . . . . . . . . . . . 62

Facility Maintenance . . . . . . . . . . . . . . . . . 64


In This Chapter

51

Jail Facilities

Overview

This chapter addresses a range of issues relatingto the jail’s physical plant and outlines the char-acteristics of facilities that contribute to effectivejail operations. It includes a basic descriptionof the physical components and design featurescommon to most jails and discusses methods fordefining jail capacity and managing crowdedfacilities. The chapter also reviews the environ-mental conditions in jails that affect the qualityof life for staff and inmates and outlines stepsfor establishing effective jail sanitation and pre-ventive maintenance programs.


1. Inmates have a right to safe, humane livingconditions. The basis of most “conditions ofconfinement” litigation against jails is inade-quacy in the facility’s space, environmentalconditions, safety, or sanitation.

2. Federal and state laws and regulations gov-ern the safety and environmental quality ofpublic buildings and worksites.

3. State physical plant standards address issuessuch as facility size and location, securityfeatures, occupancy and space requirements,equipment and furnishings, environmentalconditions, and the availability of varioustypes of spaces for programs, services, ad-ministration, and other functions. American

Correctional Association (ACA) standardsalso include physical plant standards. Wherestate standards and ACA standards conflicton issues relating to the physical plant, thejail administrator’s first obligation is to meetthe state standards that are mandatory for hisor her jurisdiction; however, jurisdictionsmay exceed state standards to meet a higherACA standard if they decide to do so.

4. ACA and state standards address facilitymaintenance and sanitation.

Characteristics of Facilities That SupportEffective Jail Operations

An adequate facility is an essential componentof effective jail operations. To assess the adequa-cy of current facilities and plan improvements,an understanding of the features and characteris-tics that support safe, secure, and efficient opera-tions is helpful. Those characteristics include thefollowing:1

■ Adequate capacity with flexible housingarrangements that allow for proper classifi-cation of inmates and handling of peaks inpopulation levels.

■ Availability of the appropriate types ofhousing (single-occupancy cells, multiple-occupancy cells, dormitories) for the typesof inmates held.

1 D.A. Kimme, Jail Design Guide: A Resource for Small andMedium-Sized Jails (Washington, DC: U.S. Department of Justice,National Institute of Corrections, 1998).

4

52

■ Clear visibility into housing areas from fixedposts that facilitate constant rather thanintermittent surveillance or supervision ofinmates. Officers should have a clear line ofsight into housing unit day areas and cellfronts with minimal obstructions that couldcreate blind spots.

■ Adequate living and working environment(lighting, temperature, air quality, sound lev-els, cleanliness, plumbing, etc.).

■ Adequate space for intake, programs, sup-port services, administration, and storage.

■ Efficient layout of rooms and spaces thatsupports staff and accommodates flow ofactivities and services.

■ Clean and well-maintained space withappropriate fixtures, finishes, furnishings,and equipment in good repair and workingorder.

■ Space that complies with life safety codes,health codes, workplace safety standards,and jail standards.

Capacity and Jail Crowding

Inadequate capacity is a primary concern formany jail administrators. To communicate moreeffectively with funding authorities and otherkey decisionmakers about this issue, you shouldbe able to describe the capacity of your facilityfrom several different perspectives. A few defini-tions of capacity are given below:

■ Design capacity: The original number ofbeds the facility was designed to hold. Inolder facilities, space designated at designcapacity may fall well short of contemporarystandards.

■ Rated capacity: The number of beds deemedappropriate for the facility based on a recog-nized set of standards or regulations.

■ Operational capacity: The optimum num-ber of inmates a facility can efficiently andeffectively manage and classify. Operationalcapacity is usually expressed as a percentageof design or rated capacity (e.g., 80 percentof rated capacity). This percentage will varyfrom one facility to another, based on factorssuch as the types of inmates held, housingunit design, and proximity of staff.

■ Functional capacity: The number of in-mates a facility can accommodate and stillmaintain basic services. Beyond this capaci-ty, basic services and security begin to breakdown. As with operational capacity, func-tional capacity is usually expressed as a per-centage of design or rated capacity and thispercentage may vary from one facility toanother, based on the factors listed above.Length of stay, ability to time-phase,2 use ofvarious spaces, and availability of activitiesto keep inmates productively occupied arefactors that affect how well a facility toler-ates crowding.

■ Emergency capacity: The number of in-mates the facility can accommodate untilmore adequate arrangements can be made.Usually some services are suspended in thiscircumstance.

The most commonly used definition of crowd-ing is that the jail population consistently exceedsdesign or rated capacity. In reality, symptoms ofcrowding may be apparent if the jail regularlyexceeds its operational capacity. Compromisingthe jail’s classification capabilities is likely tolead to increases in violence, tension, and the

2 “Time-phase” refers to the scheduled use of facility space,such as a classroom or exercise area, by inmates in special man-agement classifications (i.e., disciplinary detention, administrativesegregation, and protective custody) who must be separated fromthe general inmate population.

Chapter 4: Jail Facilities

53

availability of contraband. Basic services (secu-rity, maintenance, sanitation, programs, recre-ation, etc.) begin to break down when they arestretched to their limits over extended periodsof time.

Jail crowding also becomes a serious and imme-diate concern when the population exceeds thefunctional capacity of the jail and basic servicesare no longer consistently provided. These con-ditions leave the jail open to significant liabilityexposure and jeopardize the safety and well-being of both inmates and staff.

Ultimately, jail crowding is a community issuethat requires an external response. The jailadministrator must make key decisionmakersaware of the issue and work closely with themto develop and implement strategies to managethe jail population. The administrator is alsoresponsible for seeing that basic services aremaintained despite crowded conditions. Manymanagement options are available to help youdeal with problems that arise from crowding.A few examples follow:

■ Increase access to telephones to help inmatesget released faster.

■ Adjust schedules and expand hours of visita-tion and recreation to handle more inmates.

■ Increase the frequency of officer rounds andinteraction with inmates to reduce the poten-tial for violence.

■ Organize more work details and increaseprogramming to keep inmates occupied.

■ Increase the use of incentives to promotegood behavior.

■ Monitor the case status of inmates to see thatno inmate falls through the cracks.

■ Develop options for flexible use of housingby reallocating space to handle additionalinmates of specific classification types.

■ Time-phase the use ofcommon areas to increaseinmate access.

■ Utilize house arrest/electronic monitoring forcommunity-custodyinmates.

■ Utilize day-reporting pro-grams, where inmates gohome at night and report tothe jail during daytimehours.

Work with local officials firstto establish capacities for thejail based on the definitionsgiven above and then to keepthe jail population within theselimits. Develop both internaland external population management strategiesto deal with bedspace demands that exceedavailable capacity. Knowing the characteristicsof your inmate population is key to the successof your population management strategiesbecause it enables you to identify target popula-tions for whom alternatives may be appropriate.

Jail Facility Components and DesignFeatures

The design and layout of jails across the countryvary widely due to factors such as age, size, mis-sion, and function. However, the following com-ponents and design features are present in someform in most facilities:

■ Security perimeter.

■ Control center.

■ Intake area.

■ Visiting areas.

■ Inmate housing.

■ Support services areas.

■ Program and recreation areas.


Enlist the support oflaw enforcement,judges, prosecutors, andother key criminal jus-tice officials in establish-ing a process to achievebetter control over theuse of the jail. Knowwho is in jail andwhether they are beingheld for purposes con-sistent with the missionof the facility. If your jailis crowded, take what-ever administrativesteps you can to mini-mize the impact of thecrowding on day-to-dayoperations.

■ Administrative areas.

■ Staff areas.

A brief description of the function and basic fea-tures of each of these components is providedbelow.

Security Perimeter

The security perimeter is the outer portion of thefacility (including walls, ceiling, and floors) thatforms a sealed barrier between the secure area ofthe jail and the outside world. Its purpose is to

prevent escape, unauthorizedentry or exit, and passage ofcontraband. The securityperimeter often includes sever-al entry/exit points that mustbe controlled to manage themovement of staff, inmates,visitors, and service providersin and out of the secure areaof the jail. A separate securityentrance should be availablefor all deliveries to the facilityand for refuse removal. Many

jails also have internal security zones that pro-vide for separation of functional areas and controlaccess to the different areas of the jail. Internalzones may include areas such as general popula-tion housing, special management housing, pro-gram and support spaces, visiting, and centralcontrol. Establishing and maintaining a reliablesecurity perimeter are major factors in prevent-ing security breakdowns in the jail.

Control Center

Most jails have an area that serves as the hub formonitoring and coordinating communications,life safety, and security systems. Closed-circuittelevision monitors, intercoms, telephone lines,fire and smoke alarms, door alarms, and doorcontrols may be located in the control center.The control center is typically a secure, fixed

54

post that is staffed 24 hours a day. Access to thecontrol center is limited to specific staff and pro-hibited to inmates and the public.

Monitoring and control functions are the primaryresponsibilities of the control center staff. Insmaller facilities, the control center may be com-bined with law enforcement dispatch and mayalso be responsible for lobby reception, supervi-sion of visiting, recordkeeping, and answeringoutside telephone lines. Overburdening thecentral control position is easy to do, so theworkload of this position should be evaluatedperiodically to ensure that security and safetyare not being compromised.

Intake Area

The intake area, commonly referred to as “book-ing,” is where inmates are processed into andreleased from the facility. Intake processing fornewly admitted inmates typically includes activi-ties such as searching, removing, and inventory-ing property; fingerprinting; photographing;medical screening; collecting personal historydata; and recording charge information. Tele-phone calls and visits with attorneys may alsooccur during this time. Inmates may be tem-porarily held in this area until release is securedor they are transferred to a housing unit. Forinmates who are not able to secure release,additional intake processing activities typicallyinclude showering, dressing in jail clothing,receiving orientation to the jail’s rules, andundergoing an indepth assessment of risk andneed. The intake area may also be used forrelease processing. In many jails, inmates beingreleased from the facility are often brought backthrough the intake area to execute release paper-work, exchange jail clothing for their own, andhave personal property returned.

Intake areas should be located within the jail’ssecurity perimeter, near interview rooms, med-ical examination areas, and property storage


Conduct a comprehen-sive facility assessmentto determine the extentto which the facilitysupports safe, secure,and efficient operations.Use this assessment as abaseline in developing aplan to address areasneeding improvement.


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areas if these elements are not included withinthe intake component, but apart from inmatehousing areas. Entrance to the intake area shouldbe through a secure sallyport apart from the pub-lic entrance to the jail. The intake area shouldinclude the types of spaces and equipment nec-essary to complete the intake and release proc-essing activities described above. Note that insome states, standards may require certain typesof spaces and capabilities in the intake area.Check to verify that your jail is in compliancewith your state’s standards.

Visiting Areas

Most jails designate space or otherwise makeprovisions for inmate visits. Inmate visiting isgenerally divided into two types: personal visitswith family and friends and professional visitswith attorneys, counselors, and other official vis-itors. For the most part, personal visits occur innoncontact visiting spaces where barriers sepa-rate the visitor and the inmate. Visitors andinmates view each other through glazed panelsand speak to each other via telephone or soundport. Either inmates are brought to a central vis-iting area or visitors go to visiting areas locatedadjacent to housing units. In some jurisdictions,video visiting technology is used in place ofdirect face-to-face visits. Video visiting stationswith monitors can be located in the jail’s publiclobby or even at remote locations, allowing theinmate to be kept in or near the housing area.

Contact visits occur in spaces that are free ofobstacles or barriers that would prohibit physicalcontact. Contact visitation is primarily providedfor professional consultations, although somejails do make provisions for personal contactvisitation. Visiting space for professional visitsshould be fully enclosed and private. Personalcontact visits may take place in larger rooms,with several visiting groups sharing the space

at the same time, but sufficient space and thearrangement should allow each inmate a degreeof privacy.

Designate sufficient visiting space for the ex-pected number of visitors at any given time. Thejail administration can regulate this number tosome degree through scheduling. Visiting alsorequires space in a public lobby area for visitorcheck-in and waiting. Visitors should have ac-cess to seating, toilets, and drinking fountainsin the lobby area while waiting for visits.

Maintaining security and preventing passage ofcontraband are prime considerations during visi-tation. Metal detectors, lockers for personal be-longings, designated areas for searching visitorsand inmates, and signs outlining visiting rulesand procedures for visitors all contribute to secu-rity in visitation. Staff should be positioned tovisually monitor the visiting area and respond ifthere are problems.

Visiting is an effective tool in managing inmatebehavior. It helps inmates maintain contact withtheir community and communicate effectivelywith legal counsel. Standards and case law alsorecognize the need for adequate visitation. Thejail administrator should see that adequate visita-tion space is available and that it is secure and ofreasonable quality to serve its designated purposes.

Inmate Housing

Inmate housing is perhaps the most critical ele-ment of the facility. The design and constructionfeatures of the jail’s housing areas largely definethe custody level of the facility and the mode ofinmate supervision. Housing areas in jails areusually broken down into units that consist ofcells or dormitories with associated dayroomsand shower/toilet areas. Staff control posts, jani-tor closets, and miscellaneous storage areas areother types of spaces typically located in or inclose proximity to the housing units.

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Configuration of Housing Units The layout or configuration of the housing unitshas a significant impact on the jail’s strategy forsupervising inmates and staff’s ability to manageinmate behavior. Three approaches to the config-uration of jail housing units have evolved: lineardesign, podular remote design, and direct super-vision design.

Linear design (exhibit 5) is the traditionalarrangement of housing units present in manyolder jails. This design is generally rectangu-lar with single- or multiple-occupancy cellsarranged at right angles to an officer corridor.A variation situates housing units with cells anddayroom along the corridor. In the linear designconfiguration, the jail officer must patrol the cor-ridor and look through the bars or windows tosee into cells or housing units, observing inmatesonly intermittently as he or she passes each areaon rounds.

Podular remote design (exhibit 6) is anotherarrangement of housing units found in morerecently constructed jails. In this configuration,cells ring a common area or dayroom in a podu-lar design. The jail officer is stationed in asecure control room adjacent to one or morehousing units. From the window of a secure

control room, the officer directly observes activi-ties in the dayrooms of each of the housing unitsand communicates with inmates via intercom.The control room officer does not leave his orher post in this arrangement. Sometimes otherofficers move in and out of the housing units inresponse to problems or in conducting dailyactivities.

Direct supervision design (exhibit 7) is the thirdvariant in arrangement of housing units. In thisarrangement, a jail officer is stationed directlywithin the housing unit. The officer may have acontrol panel in the unit that controls cell doors,but not the door out of the unit. The officer is ina position to constantly monitor behaviors andinteract with inmates and can detect troublebefore it escalates.

Cell Occupancy Cells in inmate housing units are categorized assingle occupancy, multiple occupancy, or dormi-tory. Single-occupancy cells accommodate oneinmate. Multiple-occupancy cells usually holdtwo to four inmates, although the definitionvaries from state to state. Both types of cellstypically include beds for the maximum numberof occupants, a toilet and sink, and possibly astool and desk. An adjacent dayroom with

Exhibit 5. Linear Housing Design

Cells

Day

roo

m

Day

roo

m

Staf

f C

orr

ido

r

Exhibit 6. Podular Remote Housing Design

Cells

Unit 3

Unit 4Unit 2

Unit 1 Unit 5

Staff


57

showers and dining tables typically serves acluster of single- or multiple-occupancy cells.

Single-occupancy cells are considered essentialspecial management housing because of theinmates’ special behavioral, medical, or custodyneeds. Single occupancy has many advantagesfor general population housing as well. It en-hances the staff’s ability to prevent assaults dur-ing lockdown, helps hold inmates accountablefor the condition of their personal living space,and reduces tension by providing inmates somepersonal space and privacy from other inmates.

Dormitories are multiple-occupancy livingspaces that tend to be more self-contained.Sleeping areas, toilets, showers, and dayroomareas are typically integrated into a single spacein dormitories.

Housing Categories Inmate housing is generally divided into threebasic categories: intake, general population, andspecial management.

■ Intake housing accommodates newlyreceived inmates as they are going throughintake processing and initial classificationscreening. Intake housing may consist of

temporary holding cells only or may includeone or more fully functional units with cellsand dayrooms where inmates may be heldfor several days, until release or transfer togeneral population.

■ General population housing accommodatesinmates who do not require special supervi-sion for reasons of behavior, condition, orclassification type. The inmates in theseunits may be either awaiting trial or servingsentences, and their security risk classifica-tions range from low to high. Accordingly,general population housing might include arange of cells or housing units with physicalsecurity features that correspond to the cus-tody level of the inmates assigned to them.

■ Special management housing accommo-dates inmates who must be segregated fromthe general population, namely, those requir-ing high-level security, protective custody,disciplinary detention, medical isolation, orspecial observation because they are suici-dal, mentally ill, or intoxicated. Work releaseand inmate worker housing may fall into thiscategory as well.

The types of housing space required for specialmanagement vary with the management issuespresented by the inmates assigned to such units.Cells used for protective custody, disciplinarydetention, medical isolation, or special observa-tion are generally single occupancy and providehigh levels of physical security because theymust potentially accommodate the full range ofrisk classifications. Ideally, these types of cellsshould be situated in a section of the jail whereconstant observation can take place. Medicalcells should be situated to facilitate delivery ofmedical services by health care staff.

Work release and inmate worker housing do notrequire as high a level of physical security asother types of special management housing.Multiple-occupancy or dormitory housing isoften used for these categories of inmates.

Exhibit 7. Direct Supervision Housing Design

Cells

Dayroom

Staff

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However, housing for the two groups shouldbe separate to prevent introduction of contrabandinto the facility. Work release should be locatedin an area that facilitates the daily exit/entry ofinmates to and from their jobs.

Support Services Areas

The jail’s support services areas include thoseused to provide basic services to the inmate pop-ulation such as medical care, food services, andlaundry service and those that support the overallfunctioning of the jail, such as janitorial service,maintenance, and storage.

■ Medical services component: Houses thetypes of spaces and equipment needed toadequately carry out the health-care servicesprovided in the jail.3 At a minimum, properlyequipped medical examination space isneeded to conduct screening and routineassessments, examine inmates with healthcomplaints, provide first aid, and performminor treatment procedures. Space shouldalso be available for the appropriate storageand management of medical records, med-ications, and biohazards. The medical carespace should be located in an area that facili-tates efficient access by inmate patients andstaff (from both housing and intake) andaccommodates both privacy and securityneeds. Larger facilities may provide a med-ical suite that also includes space for radi-ographic examination (x-rays), dentalexamination and treatment, a laboratory,offices for medical staff, an inmate waitingarea, and separate housing for ill or injuredinmates receiving medical care.

■ Food services component: Includes spaceand equipment to provide three meals perday for the inmate population in accordance

with dietary and hygienic standards. Theamount of space and type of equipment required depends on how the services areprovided. Jails that maintain a full-servicekitchen where all meals are prepared inhouse require appropriate space and equip-ment for receiving food and food storage(dry and cold), supply storage, preparation,serving, cleanup and dishwashing, waste dis-posal, and food services management. Jailsthat have some or all meals prepared offsiteby a vendor or other institution should pro-vide a secure means to receive the suppliesinto the facility and space and equipment forwarmup, serving, cleanup, and equipmentstorage.

■ Laundry area: Includes space and equip-ment for collecting, sorting, washing, anddrying of bedding, linen, towels, and inmateclothing on a regularly scheduled basis, andfor the associated tasks of mending, storage,and distribution of laundered items. Jails thathave laundry done offsite by a vendor orother institution do not need space and equip-ment for washing and drying but should pro-vide resources for the other aspects ofhandling laundry.

■ Janitor’s closets: Provide space for storageand staging of cleaning supplies and equip-ment, including a “mop” sink or washtuband storage areas for mops, brooms, buckets,floor buffers, cleaning supplies, and dustcloths. These areas should be secured fromunauthorized access by inmates.

■ Maintenance areas: Include secure work-space and storage for tools used to maintainthe facility. The amount and types of spaceneeded depend on what functions are provid-ed in-house as opposed to those provided byoutside vendors. Maintenance work includes

3 The jail may transport inmates to health-care facilities for manyservices, but will provide some level of medical care within thefacility.


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both routine and preventive upkeep of equip-ment, systems, and the building and theirrepair, and encompasses functions such asplumbing, electrical work, locksmithing,heating/ventilation/air-conditioning (HVAC),window repair, and painting.

■ Storage areas: Always seemingly in shortsupply, storage is needed for records, foodservices, laundry, maintenance, supplies, andinmate property. The jail should also havea general storage area for bulk goods andmaterials not frequently used.

Program and Recreation Areas

Inmates use the jail’s program and recreationareas to engage in activities such as physicalexercise, counseling, education, industry, wor-ship, and leisure-time recreation. Dedicated pro-gram areas include space for indoor and outdoorexercise, a legal and a general library, class-rooms, a commissary, and rooms for individualand group counseling and religious services/instruction.

Some jails provide multipurpose space to ac-commodate compatible program functions on ascheduled basis. In newer jails, decentralizedprogram space may be located adjacent to hous-ing units. With varying degrees of success, olderjails lacking program space often must convertother existing space, such as a cell block oroffices, to create program areas. Note that be-cause outside service providers, volunteers, andother persons from the community typically useprogram areas in conjunction with the inmates,proper surveillance and supervision of theseareas are important. Access for public users aswell as inmates must also be considered.

Administrative Areas

Administrative areas include space for admin-istration, fiscal and personnel management,communication/interaction with the public, secu-rity management, program management, physi-cal plant management, and records management.

These types of spaces generally include thepublic lobby, public toilets, the reception area,offices for administrative staff, conference andmeeting areas, clerical areas, records/files, secu-rity equipment storage, and related supportareas. Administrative areas should be outsidethe main security perimeter of the jail but adja-cent to it. Public access to administrative areasbeyond the lobby/reception area should becontrolled.

Staff Areas

Areas intended for the private use of jail staffmay include spaces such as break rooms, train-ing rooms, locker/shower rooms, physical condi-tioning areas, and staff toilets. Staff areas, ifavailable, are generally located outside the mainsecurity perimeter but in close proximity to anaccess point into the secure area of the jail.

Security Equipment and Technology

The types of facility-related security equipmentand technology used in jails and correctional set-tings are as follows:

■ Emergency generator: Provides a backupin the event of a power outage. Emergencygenerators are typically configured to main-tain power supplies to essential lights, com-munications equipment, detection and alarmsystems, door controls, and other criticalsecurity and life-sustaining functions.

■ Walk-through metal detectors: Supple-ment efforts to control contraband by detect-ing metal objects not permitted in the jail.Walk-through metal detectors are typicallylocated at key entry/exit points of the securi-ty perimeter of the jail.

■ Detection systems: Detect activity—i.e.,motion, sound, or vibration—in restrictedareas such as security perimeter walls orfences, attics, or crawl spaces. A centralcontrol center monitors most detectionsystems.

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■ Closed-circuit television (CCTV): Anothertype of detection system used to monitoractivity in restricted areas, but also used tomonitor movement between areas of thefacility and to aid in the identification ofpeople trying to gain access to secured areas.CCTV is not an appropriate replacement forstaff in monitoring inmates in housing areasbut is sometimes used to enhance surveil-lance of common areas.

■ Communications systems:

■■ Public address systems, with speakersstrategically located throughout the facil-ity, are used to make announcementswithin the facility, page individuals, oralert occupants to emergencies.

■■ Two-way radio systems provide a meansfor staff to communicate with each otheror with central control. Portable radiosprovide staff the flexibility to send orreceive communications from any areain or about the facility.

■■ Intercom systems are hard-wired sys-tems that allow communication betweencentral control and various locations inthe facility. Audio monitoring and detec-tion features can also be integrated intothe intercom system.

■■ Telephone systems provide both externaland internal communication capabilities.In addition to outside lines, jail systemstypically include an internal networkthat interfaces with the jail’s othercommunications systems and securitysystem. Most jails now also provideseparate inmate telephone systems withmonitoring and call management capa-bilities. As jails become increasinglycomputerized, electronic mail systemsprovide still another means of internaland external communication.

■ Locking systems: Keep inmates within des-ignated areas, keep people from enteringareas where they are not authorized to be,and control movement between spaces inthe jail. Locking systems are a fundamentalcomponent of security and several types areused in jails: manual, mechanical, electro-mechanical, and electropneumatic. Manuallocking systems, common in many olderfacilities, require staff to operate the lockson each door individually. The other typesof systems generally operate groups of doorsfrom a single location by officers operatingmechanical levers or wheels or activatingelectric switches at a control panel. In manynewer facilities, a control center manageselectromechanical or electropneumatic lock-ing systems. Centrally controlled lockingsystems are effective in regulating movementwithin the facility and effecting promptrelease in the event of an emergency requir-ing evacuation.

■ Fire detection and suppression systems:Provide for the early detection of fires andthe capability to put out fires in their earlystages. These systems may also includeequipment or technology to facilitate promptevacuation of occupants who are at riskwhen a fire erupts. Codes in many jurisdic-tions require jails to have hard-wired smokeand heat detection systems connected to acentral enunciator panel at a fixed post (e.g.,central control). Newer facilities in manyjurisdictions are required to have lockingsystems that allow gang release of cell andhousing unit doors from a remote location(e.g., central control) and automatic sprinklersystems that activate when a fire is detected.Many newer facilities are also designed withinternal smoke compartments or zones in-tended to isolate fire and smoke to the areaof their origin.


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Environmental Conditions in Facilities

The quality of the jail environment affects notonly the health and well-being of those whooccupy and work in the facility but their behav-ior as well. Poor conditions often lead to lowmorale of inmates and staff, increased inmatehealth care costs, more disciplinary problems,higher levels of staff absenteeism and turnover,and an overall negative atmosphere. Attention tolight and noise levels, temperature, air quality,and plumbing can improve the overall quality ofthe jail environment as both a residential settingand a worksite.

Light Levels

Lighting in the jail should be sufficient for thetypes of tasks and activities that occur in thelighted areas. The intensity of the light, numberof fixtures, location and spacing of fixtures, inte-rior finishes and colors, and outside lighting allaffect the adequacy of light for particular tasks.Adjustments in one or more of these areas canimprove light levels in the jail. Light levels atnight are often a problem in jails—lights need tobe low enough to allow for restful sleep, but suf-ficient to allow observation of inmates by staff.Low-level night lighting that allows primarylighting to be shut off should be available ininmate housing areas.

Noise Levels

Noise levels in jails have historically been aproblem. Sound from many sources (e.g., locks,doors, intercoms, TVs, or showers) produce highsound levels that reverberate off the hard sur-faces typically found in jails. Crowding oftenincreases noise levels as the additional people inthe confined areas produce even more sound inthe course of daily activities. Sound levels innewer jails are reduced through use of moresound-absorbent materials and furnishings, qui-eter equipment, and sound-control design fea-tures. Management of noise levels in the jailshould be a consideration for jail administratorsin making facility improvements, in purchases of

replacement equipment, and in establishing dailyroutine.

Temperature

The temperature of indoor living and work areasof the jail should be appropriate to summer andwinter “comfort zones.” A number of factorsinfluence comfort zones, including temperature,air movement, humidity, clothing, and activitylevels. The comfort zone is the temperaturerange in a space that the majority of the occu-pants find to be acceptable. The jail’s physicalplant should have the capability to mechanicallyraise and lower temperature and humidity tomaintain the facility within acceptable comfortlevels. Operationally, the jail can improve com-fort levels by providing clothing appropriate tothe season, providing additional blankets, adjust-ing activity levels, or increasing airflow withportable fans. When using portable appliances,however, proper precautions should be taken toaddress potential security and fire safety issuesrelating to exposed cords and the use of exten-sion cords.

Air Quality

Given the close confinement of people in a jail,air quality is a major consideration. Indoor airpollution has significant health effects for bothinmates and staff. The most important factorinfluencing indoor air quality in jails is the pres-ence of pollutant sources. Commonly found pol-lutants include environmental tobacco smoke (injails that still allow smoking); asbestos frominsulation and fire-retardant building supplies;off-gases and fumes from building materials,carpet, and other furnishings; odors from toilets;fumes from cleaning materials, paints, adhesives,and office machines; biological contaminantsfrom building occupants, dirty ventilation sys-tems, and water-damaged walls, ceilings, andcarpets; and pesticides from pest managementpractices. Poorly designed, operated, or main-tained ventilation systems also contribute to poorindoor air quality.

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Use the following strategies to manage andimprove air quality in jails:

■ Eliminate the sources of pollution orreduce their emissions. For example,eliminate smoking, implement appropriatehousekeeping and maintenance procedures,and consider air quality implications inselecting cleaning supplies, pesticides, andbuilding supplies and equipment.

■ Reduce concentrations of pollutants. Forexample, keep HVAC systems maintainedand calibrated, use fans to increase air move-ment, use exhaust fans to remove pollutedair and excess moisture, and bring in moreoutside air by opening windows (whereappropriate).

■ Clean or filter recirculated air to removeparticulates. For example, install air puri-fiers and maintain filters in HVAC systems.(Note: Not effective in removing gaseouspollutants.)

Plumbing

In housing areas, toilets, hand-washing facilities,and showers should be available to inmates toaccommodate personal needs and maintain stan-dards in personal hygiene. Many standardsestablish a ratio of fixtures to inmates to assurereasonable access for the population served. Thefixtures should be kept in operable conditionthrough regular inspections and maintenance.Hot and cold running water should be providedin lavatories and showers, although hot watershould be temperature-controlled to preventscalding.

Facility Sanitation

One key to effective jail management is keepingthe facility clean. Besides being unhealthy, dirty,unsanitary conditions communicate to inmatesand staff a lack of concern about the quality ofthe jail environment and suggest a tolerance for

sloppy work. Put in place a comprehensive sani-tation plan that sets out responsibilities for bothstaff and inmates in keeping the facility clean.

Begin by establishing sanitation as a top prior-ity. As administrator, set high expectations forsanitation for both inmates and staff and commu-nicate those expectations often. Housing areasshould be kept free of trash, odors, and graffitiand units should be swept, mopped, and wipeddown daily as part of a thorough housekeepingroutine. Require supervisory staff to make dailysanitation inspections and walk-throughs a prior-ity. Communicate these expectations in writingthrough policy and procedures, inmate hand-books, job descriptions, daily schedules, andmemoranda and reinforce them by calling staffattention to sanitation problems and followingup to see that the problems are corrected.

Consider designating a staff member as sanita-tion supervisor and vest that person with theoverall responsibility for developing, implement-ing, and maintaining the sanitation program forthe jail. Provide the sanitation supervisor withtraining in sanitation codes and requirements,cleaning methods, inspection processes, and cor-rective action methods and see that he or she hasthe resources and authority to get the job done.

Written policies and procedures addressing jailsanitation should include:

■ Cleaning schedules for each area of thefacility.

■ A listing of specific tasks to be completed.

■ A listing of supplies and equipment to beused for each task.

■ How the supplies are controlled andaccounted for.

■ Access to material safety data sheets(MSDS) for staff using chemicals.

■ Training requirements for both staff andinmates.


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■ Inspection schedules and a quality assuranceprogram.

■ Documentation and recordkeeping.

Obtain copies of current health and sanitationstandards and checklists for use as referencematerial in writing the policies and proceduresand as the baseline for internal inspections.

Cleaning equipment and supplies should also begiven consideration. The goal in selection ofcleaning materials is to simplify housekeepingtasks and limit the potential for abuse. Providebrooms, mops, buckets, brushes, and pads of astandard size. Select the least toxic cleaningproducts and keep the number of different prod-ucts to a minimum.

Next, establish training for both staff and in-mates. Training for staff should include instruc-tion in areas such as sanitation policies andprocedures, proper cleaning methods, controland maintenance of cleaning equipment and sup-plies, supervision of inmate sanitation activities,detection of sanitation problems, security con-cerns relating to misuse of cleaning materials,and documentation of sanitation efforts. Inmatesshould receive information about the jail’s sani-tation standards and expectations and the dailyhousekeeping routine as part of orientation atintake. Jail staff should instruct inmates in prop-er cleaning methods and use of cleaning equip-ment and supplies.

The implementation of the sanitation programmight begin with a thorough cleaning of the jailto get sanitation up to the expected standard.City or county health authorities may provide acourtesy inspection to evaluate current condi-tions and identify areas needing attention.

Supervision of housekeeping activities by jailstaff is necessary to maintain sanitary conditions.Officers and staff set the expectation of cleanli-ness for inmates, instruct inmates in proper use

of cleaning equipment and sup-plies, see that housekeepingschedules are followed, moni-tor cleaning in progress to seethat proper methods are used,and see that inadequacies arecorrected. Some jails establishincentive programs that en-courage competition amonginmates to improve the sanita-tion levels of their respectivehousing areas.

Establish a system of routineinspections to ensure that thehighest levels of sanitation aremaintained. An inspection re-gime involving several levels of the organizationwill assure maximum accountability:

■ Supervisors should conduct informal inspec-tions of inmate housing and other areas ofthe jail on a daily basis.

■ Supervisors should conduct more formalinspections at least weekly using a writtenchecklist tailored to specific areas of the jail.Results of these weekly inspections shouldbe forwarded to the jail administration.

■ The designated sanitation supervisor shouldconduct a comprehensive inspection at leastmonthly and submit a detailed report outlin-ing any deficiencies to the jail administrator.Corrective action plans should be developedand implemented to correct any identifieddeficiencies.

■ External health authorities should conductinspections at least annually to assess com-pliance with applicable sanitation codes andstandards.

All aspects of the jail’s sanitation programshould be thoroughly documented. Records ofpolicies and procedures, inspection findings,work orders, corrective action, training sessions,


Make a clean jail a highpriority. Get an outsideassessment of the cur-rent level of sanitationand correct any identi-fied deficiencies. Next,develop a comprehen-sive sanitation plan forthe facility and providethe resources necessaryto implement it. Moni-tor the level of sanita-tion on an ongoingbasis through a systemof inspections.

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memorandums, and other documentation shouldbe kept. Good documentation:

■ Helps the administration track the jail’s safe-ty and health activities for better control ofoperations and planning improvements.

■ Provides evidence of the jail administrator’sdirectives to staff and of actual practice.

■ Provides evidence of adherence to standardsto demonstrate “good faith” if challenged inan audit or lawsuit.

Facility Maintenance

Due to constant and hard use, jail facilities andequipment age 3.5 years operationally for everychronological year they are in service. A goodpreventive maintenance program for the jail istherefore essential. Preventive maintenance will:

■ Maximize the useful life of all building sys-tems in the jail.

■ Help the jail function as intended and oper-ate at peak efficiency.

■ Prevent breakdowns of critical buildingsystems.

■ Sustain a safe and healthful environment forstaff and inmates.

■ Avoid costly repairs resulting from neglect ordeferral of maintenance.

You must plan and implement a program ofinspection, testing, servicing, and repair and/or replacement of building systems and com-ponents to achieve these goals. The basic stepsin developing a preventive maintenance programare as follows:

■ Make an inventory of all building systemsand components that must be maintained.The major building systems are the HVAC,plumbing, fire protection/suppression, power

generation, electrical, lighting, security andlocking, and communications systems andthe structure and roof. Components are theelements that make up a system—for exam-ple, furnaces and boilers are components ofthe jail’s heating system.

■ Assess the present condition of each sys-tem or component. This assessment willhelp determine any immediate maintenanceneeds, determine future levels of preventivemaintenance required, and help estimate theremaining useful service life of the systemor component.

■ Establish the level of maintenancerequired for each system or component.The level of maintenance is based on themaintenance activities required to ensurethat a particular system or component meetsor exceeds its life expectancy. Manufacturer’sliterature, past experience, and industry aver-ages are helpful in determining the usefullife of various systems and components andwhat preventive maintenance work is mosthelpful.

■ Develop a work plan that outlines the pre-ventive maintenance tasks for each systemor component. The plan should specify howoften each task is to be performed. Pre-ventive maintenance tasks may range fromvisual inspections to indepth testing; fromminor adjustment, cleaning, or lubricationto major overhauls; from reconditioning toreplacement.4

To implement the preventive maintenance pro-gram, you must link the work plan to the jail’sannual budget. Some jurisdictions allocate fund-ing for preventive maintenance using a formulabased on a percentage of the facility’s operatingbudget or building replacement value. Forexample, a jurisdiction may allocate funding

4 T. Mearig, Alaska School Facilities Preventive MaintenanceHandbook (Juneau, AK: Alaska Department of Education andEarly Development, 1999), p. 6.


65

based on 5 percent of the jail’s operating budget.This should be in addition to any reserve fund ajurisdiction may set aside for unanticipated oremergency maintenance expenditures.

Jurisdictions handle preventive maintenancework in a variety of ways. A common approachis to employ custodial and general maintenancestaff for routine maintenance and minor repairsand to contract vendors when more specializedwork is needed. Involve maintenance personnelin decisionmaking regarding facility improve-ments or purchase of building components andin communicating with policymakers about thejail’s needs and conditions.

The operation of the preventive maintenanceprogram should include the following elements:

■ Checklists of preventive maintenance tasks,including frequency of performance, devel-oped from the work plan.

■ A schedule and roster of assignments andresponsibility for the performance of specifictasks.

■ Written policies and procedures to managethe program.

■ A work order system to notify maintenancestaff of maintenance problems.

■ Reporting and tracking systems to keepaccurate records of maintenance efforts andcosts.

■ Appropriate equipment, tools, and work-spaces for maintenance activities.

■ Ongoing training for maintenance workersand building managers.

Line staff and supervisors also participate in thepreventive maintenance effort through daily,weekly, and monthly inspections of the facility.Assessing the proper functioning and workingorder of facility systems and components is oneaspect of such inspections. Beyond scheduled

inspections, jail proceduresshould also provide for theimmediate reporting of mainte-nance problems that requireurgent attention (e.g., malfunc-tioning, deterioration, or break-age of facilities, furnishings, orequipment). A system shouldalso be developed for checkingon repairs to make sure theyhave been completed in full.


ACA Planning and Design Guide for SecureAdult and Juvenile Facilities. AmericanCorrectional Association, 2000.

Alaska School Facilities Preventive MaintenanceHandbook. T. Mearig, Alaska Department ofEducation and Early Development, 1999.

Building Air Quality: A Guide for BuildingOwners and Facility Managers. U.S. Environ-mental Protection Agency and the NationalInstitute for Occupational Safety and Health,1991.

Correctional Technology: A User’s Guide.C. Kichen, J. Murphy, and R. Levinson, NationalInstitute of Corrections, 1993.

Guidelines for the Development of a SecurityProgram, 2d ed. J.D. Henderson, W.H. Rauch,and R.L. Phillips, American CorrectionalAssociation, 1997.

The Inside Story: A Guide to Indoor Air Quality.U.S. Environmental Protection Agency and theU.S. Consumer Product Safety Commission,Office of Radiation and Indoor Air, 1995.

Jail Design Guide: A Resource for Small andMedium-Sized Jails. D.A. Kimme, NationalInstitute of Corrections, 1998.


Develop an effectivepreventive maintenanceprogram for the jail.Gain support from thefunding authority bycommunicating thebenefits of an effectivepreventive maintenanceprogram.

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Jail Design Review Handbook. M. Goldman,National Institute of Corrections, 2003.

Jail Planning and Expansion: Local Officialsand Their Roles. J.R. Robertson, NationalInstitute of Corrections, 2003.

Performance-Based Standards for Adult LocalDetention Facilities, 4th ed. American Correc-tional Association, 2004.

Chapter 5

Jail Staffing and Scheduling

5

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

Legal Requirements and Standards . . . . . 69

Adequate Staffing in Detention Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

Staffing Analysis . . . . . . . . . . . . . . . . . . . . . 70

Strategies for Maximizing Staff Resources . . . . . . . . . . . . . . . . . . . . . . . . . . 74

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . 76

Scheduling and Roster Management . . . 76

Facility Activity Schedule . . . . . . . . . . . . . . . 76

Developing the Staff Work Schedule . . . . . 77

Scheduling Staff . . . . . . . . . . . . . . . . . . . . . 78

Managing Schedule Conflicts andAbsenteeism . . . . . . . . . . . . . . . . . . . . . . . . 78

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . 79

Recommended Resources . . . . . . . . . . . . . 79

In This Chapter

69

Jail Staffing and Scheduling

Overview

Two of the primary concerns of jail administra-tors are staffing the jail appropriately and de-ploying staff to provide adequate coverageacross all shifts. This chapter addresses bothstaffing analysis through the preparation of astaffing plan and staff scheduling and rostermanagement, including the pros and cons ofvarious shift lengths and patterns.


1. The Constitution requires adequate staffingfor the protection of inmates.

2. Staffing in jails must comply with applicablestate standards and codes.

Adequate Staffing in Detention Facilities

Adequate staffing in detention and correctionalfacilities has been defined as having the rightnumber (and type) of staff in the right place, atthe right time, doing the right thing.1 Jail admin-istrators need not only enough staff to operatethe facility properly, but also the right type ofstaff (custody staff, support staff, program staff,etc.) with the skills and training to do theirassigned jobs. Administrators must also be con-cerned with effectively assigning staff to dutyposts and scheduling them to provide adequatecoverage across all shifts. If deficiencies exist inany of these areas, a facility will not have ade-quate staffing.

Personnel costs typically represent 70 to 80 per-cent of a detention facility’s annual budget—by far the largest expense category. Adequatestaffing is essential to effectively managed, safe,and secure jails. Jails with staffing deficits putboth inmates and staff at higher risk of harm,compromise community safety, and are morevulnerable to litigation. Facilities in this situationalso have more difficulty providing programsand services to their inmates.

Determining staffing requirements in jails is acomplex process affected by a number of factors.Several of the more significant of these factorsare as follows:

■ Population characteristics. The numberand type of inmates in a jail are significantfactors. The security risks presented by in-mates, their behavior while in custody, andany special needs (e.g., medical or mentalhealth needs) all affect the level of supervi-sion and staff involvement required. In-mates’ age, gender, and length of stay haveimplications for staffing as well.

■ Jail mission. Generally, the jail’s operationalphilosophy is reflected in its mission state-ment, which expresses not only the facility’slegal authority and responsibilities butalso the community’s values and beliefs.The emphasis placed on communityvalues, along with the jurisdiction’s legal

1 B. Krauth. Staff/Inmate Ratios: Why It’s So Hard To Get tothe Bottom Line (Washington, DC: U.S. Department of Justice,National Institute of Corrections, 1988), p. 3.

5

70

responsibilities, affects the level and types ofprograms and services offered in the facility.

■ Functions and activities. Sufficient staffmust be available to carry out essential secu-rity functions in the jail, provide basic serv-ices to the resident population, and overseethe various programs and activities that arepart of the daily routine.

■ Physical layout of the jail. The physicallayout of the jail affects where staff will bestationed, the number of staff required tosupervise each area, and the number of staffneeded to effect the movement of inmates toservices. (See chapter 4, “Jail Facilities.”)

■ Method of inmate supervision. Effectivesupervision requires regular interaction withinmates by staff stationed in close proximityto housing areas.

■ Standards and court decisions. Standardsand court decisions influence staffing re-quirements by establishing minimum levelsof service or specifying particular opera-tional practices and activities. Many stateand professional standards address staffingdirectly.

Understanding these factors early in the processof planning new jails leads to better, more effi-cient design decisions. In existing jails, carefulanalysis may open the door to other solutions,resulting in better use of staff resources.

Staffing Analysis

Staffing analysis is used to project staffing needsin new jails or to assess the adequacy of staffinglevels in existing facilities. A staffing analysisconsiders all of the elements essential to an ade-quately staffed jail. A comprehensive staffinganalysis should produce a staffing plan that willprevent or resolve any staff deficiencies in thejail.

The National Institute of Corrections (NIC) hasdeveloped a workbook that describes a 10-stepprocess for conducting a comprehensive staffinganalysis and includes a number of tools to com-plete the analysis.2 The following sections de-scribe certain elements of the process laid outin the workbook and are intended to provide anoverview and understanding of the importanceof a staffing analysis.

Facility Profile The initial steps in conducting a staffing analysisare to develop a profile of the facility and gatherthe background information necessary to con-duct the analysis. The profile should includeinformation that provides an understanding ofcurrent issues as well as trends in average popu-lation, length of stay, and admissions.

The profile is developed from an analysis of thefollowing types of information:

■ Facility’s rated capacity.

■ Average daily population.

■ Admissions and releases.

■ Average length of stay.

■ Resident characteristics (age, race, gender,charge, status).

■ Types of offenses.

■ Number and types of critical incidents.

■ Problems with facility operations.

■ Other issues of concern relating to staffing.

Additional background information, such as thatlisted below, should also be collected for use inthe analysis:

■ Facility mission statement.

■ Floor plan.

■ Organizational chart.

2 D.R. Liebert and R. Miller, Staffing Analysis Workbook forJails, 2d ed. (Washington, DC, U.S. Department of Justice,National Institute of Corrections, 2001).

Chapter 5: Jail Staffing and Scheduling

71

■ Current staffing plan, schedule, and shiftrosters.

■ Personnel agreements and union contracts.

■ Mandatory and professional standards.

■ Inspection reports.

■ Applicable court decisions.

■ Service contracts.

The profile and background information are use-ful in making management decisions on issuessuch as coverage needs, service levels, andsupervision methods. They also provide justifica-tion when making staffing requests to fundingauthorities.

Net Annual Work Hours A full-time jail post operates 168 hours per week(24 hours/day x 7 days). Because staff generallywork only 40 hours per week and often are notavailable to work their assigned shift because ofvacation or sick leave or training, staffing levelsmust be sufficient to provide coverage duringthese absences.

Net annual work hours (NAWH) represent theaverage number of hours employees in a particu-lar job classification (e.g., correctional officer,supervisor) are actually available to work (exhib-it 8). A staffing analysis uses NAWH to deter-mine how many people are needed to fill eachpost.

Facility Activity Schedule After developing the profile and calculatingNAWH, examine the functions and activities ofthe jail’s operation to get some sense of the over-all workload. One approach that may help invisualizing and communicating the workload isthe construction of a master facility activityschedule (exhibit 9).

The facility activity schedule charts out a typical1-week operation of the facility. It is a compre-hensive list of the functions and activities that

take place in the facility, arranged in chronologi-cal order for each day. It also includes items thatare not scheduled but require staff involvement.

Some of the activities to be included in the facil-ity activity schedule are:

■ Meal times.

■ Visiting.

■ Formal counts.

■ Exercise and recreation.

■ Sick call.

■ Administering medications.

■ School/general equivalency diploma (GED)classes.

■ Library access.

■ Commissary.

■ Mail delivery.

■ Religious services.

■ Counseling/group programming.

■ Court arraignments.

■ Shift change/briefing.

■ Staff meetings.

A facility activity schedule makes apparent howmany and what kinds of staff are needed to workat various times of the day and week. It alsoshows peaks in the workload that might be lev-eled out by rescheduling activities.

Staff Coverage PlanThe next step in a staffing analysis is to deter-mine actual staff coverage needs. The staff cov-erage plan helps the administrator determine theminimum number and type of staff needed tomaintain appropriate levels of safety and securityand to provide coverage for the various activitiesthat occur in the facility. The profile information,NAWH calculations, and master facility schedule

Progra

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1. Total hours contracted per employee per year (if a regular workweek is 40 hours, then 40 x 52.14 weeks = 2,086) 2,086 2,086 2,086 2,086 2,086

2. Average number of vacation hours per employee per year 80 80 80 80 80

3. Average number of compensatory hours off per employee per year 24 0 0 12 0

4. Average number of sick leave hours off per employee per year 32 28 16 24 16

5. Average number of training hours off per employee per year 40 40 64 24 24

6. Average number of personal hours off per employee per year 8 8 0 8 0

7. Average number of military hours off per employee per year 0 0 0 0 0

8. Average number of break hours off per employee year (optional: it may be a contractual item) 0 0 0 0 0

9. Holiday 96 96 96 96 96

10. Other: [Specify.] 0 0 0 0 0

11. Other: [Specify.] 0 0 0 0 0

12. Other: [Specify.] 0 0 0 0 0

13. Total hours off per employee per year[Total lines 2 though 12.] 280 252 256 244 216

14. Net annual work hours[Subtract line 13 from line 1.] 1,806 1,834 1,830 1,842 1,870

72

Exhibit 8: Sample Form: Calculating Net Annual Work Hours

Source: D.R. Liebert and R. Miller, Staffing Analysis Workbook for Jails, 2d ed. (Washington, DC: U.S. Department of Justice, NationalInstitute of Corrections, 2001), p. 10.


73

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74

developed in the previous steps are used to cal-culate staff coverage needs, as follows:

■ Identify the posts in the facility.

■ Identify the shifts for which coverage isrequired for each post.

■ Determine the hours of coverage requiredfor each post on each shift.

■ Determine the number of days each weekthat the post must be staffed.

■ Calculate the total hours of coveragerequired per week for each post.

■ Calculate the total hours of coveragerequired per year for each post.

■ Determine if relief is required. (Manyadministrative, program, and support posi-tions are not covered if the persons fillingthe positions are absent.).

The resulting staff coverage plan (exhibit 10)indicates the total number of full-time equiva-lents (FTEs) required for each post or position.Group and summarize FTEs either according tojob classification (e.g., custody staff, programstaff, support staff, administrative staff) or chrono-logical classification (e.g., how many staff pershift). Estimate staffing costs by multiplying theaverage annual compensation (salary and bene-fits) by the total number of FTEs listed for eachpost or position. Add the amounts for each posttogether to arrive at a cost estimate for the over-all staffing plan.

Staffing Analysis Report The staffing analysis is typically summarized ina report that describes the proposed staffing planand provides the necessary rationale and justifi-cation. This report is an excellent resource tosupport funding requests for staffing. It is alsoa useful management document to guide admin-istrative decisions regarding policy changes orallocation of resources.

Strategies for Maximizing Staff Resources

A number of strategies are available to the jailadministrator for making the most of availablestaff resources, notably:

■ Improving hiring and retention practices toreduce turnover.

■ Implementing a work schedule that corre-sponds closely to coverage needs.

■ Managing use of overtime.

■ Reducing absenteeism.

■ Altering facility design (e.g., improvingsightlines, relocating fixed posts).

■ Reassigning activities to spaces where theymay be supervised more efficiently (e.g.,conducting some program activities in day-rooms rather than separate program areas).

■ Shifting some responsibilities of full-timestaff to volunteers or interns.

■ Contracting for some services (e.g., food,medical, or commissary services).

■ Scheduling training to correspond to cover-age needs.

■ Cross-training staff to increase flexibility inassignments.

■ Consolidating activities under the supervi-sion of a single staff person.

■ Streamlining practices, policies, andprocedures.

■ Reducing demand through changes in policy(e.g., implementing medical copayments).

■ Using inmate labor.

■ Using civilian staff to reduce costs.

■ Using technology (e.g., video visiting,closed-circuit television, perimeter electron-ics, computers).

Implementing strategies such as those listedabove can relieve staffing pressures and increase


75

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76

the productivity of existing staff. Be alert toopportunities to enhance staffing through cre-ative management practices.

Summary

Adequate staffing is essential to safe, secure, andeffective facility operations. Adequate staffingmeans more than having the right number ofstaff to run a detention or correctional facility. It

also means appropriate place-ment of properly trained staffin duty positions where theycan provide effective supervi-sion and oversee day-to-dayoperations of the facility. Astaffing analysis is a processfor determining staffing needsin detention settings. It takesinto account multiple factors

such as population characteristics, operationalphilosophy, layout of the physical plant, andlegal requirements that influence staffing needs.

Two products of the process are a staffing planand a report that provides recommended staffinglevels and estimated costs. A comprehensivestaffing analysis is appropriate to create an initialstaffing plan for a new facility or to assess thestaffing needs of an existing facility. The facilitystaffing plan should be updated at least annuallyand when major changes in policy or other fac-tors affect staffing needs.

Scheduling and Roster Management

Facility Activity Schedule

Effective and realistic schedules are a vital partof any facility, whether it is a jail, hospital, orschool. Many functions and activities must beaccomplished within a set period of time andcannot be unduly delayed without seriousconsequences. Schedules serve to organize theroutine of the jail to see that the basic needs ofinmates are met, order and security are main-tained, and the jail operates in a smooth and

efficient manner. When schedules break down orare not clearly established, higher levels of con-fusion, dissatisfaction, and complaints typicallyensue among both staff and inmates.

Many variables affect the jail’s schedule,notably:

■ Legal requirements. These include laws,standards, and court orders or consentdecrees. For example, a state’s standardsmay require inmate visitation 2 days perweek, physical exercise daily, and commis-sary access once per week.

■ Facility mission and goals. A jail thatplaces greater emphasis on rehabilitationmay schedule more educational activities forinmates than a custody-oriented facility.

■ Facility policies and procedures. Policiesand procedures direct what activities occurin the jail, and when and how they takeplace.

■ Facility layout. The scheduling of programsand activities in jails where program space iscentralized will differ from that in facilitieswhere program space is decentralized. Thedistance between housing and programareas, which affects the logistics of movinginmates between the two locations, alsoaffects scheduling.

■ Population size and characteristics. Riskand needs, gender, age, and numbers may alldrive what services are needed and how theyare delivered.

■ Budget. Funding may affect the level ofservices that can be provided.

■ Availability of appropriate staff. Someactivities require credentialed staff (medical,educational, counseling, etc.) who may beavailable to the facility only at certain times.

A good facility activity schedule is essentialto efficient scheduling of staff. The jail must


Review the NIC publica-tion Staffing AnalysisWorkbook for Jails, 2ded., and conduct astaffing analysis for thecurrent jail operation.


77

provide not only the basic staff coverage neces-sary for staff and inmate safety, but also propercoverage of the various scheduled functions andactivities. The facility activity schedule is alsoan essential tool in determining how staff shouldbe deployed to best meet coverage needs.

Developing the Staff Work Schedule

Staff scheduling requires decisions about wheneach type of staff member is needed in the jailand when each employee will work. The facilityschedule and staffing plan are essential resourcesneeded to make good decisions in staff scheduling.

An effective staffing plan determines the numberand type of staff available to provide the mini-mum coverage needed for staff and inmatesafety, based on the fixed posts that have beenidentified. It also ensures proper coverage ofplanned programs, services, and activities. Thefacility activity schedule provides information asto when the programs, services, and activitiesoccur during the day and over the course of atypical week.

A major decision in staff scheduling is determin-ing the primary shift pattern, that is, the regularset of shifts that repeats itself over a period ofweeks, usually with teams of staff. The shift pat-tern affords consistency in scheduling staff whileassuring adequate coverage at all times.

Although many shift configurations can provide24-hour coverage, the following are the mostcommon:

■ Three 8-hour shifts. Staff working this typeof shift generally work 5 days, followed by 2days off.

■ Three 10-hour shifts that overlap. Staffworking this type of shift generally work 4days, followed by 3 days off. The work daysand days off always fall on the same day ofthe week.

■ Two 12-hour shifts. Staffworking this type of shiftgenerally work 2 days andtake 2 days off, then work3 days and take 2 days off,then work 2 days again andtake 3 days off. The cyclethen begins again. Thisvariation provides workerswith every other weekendoff. In another commonvariation of the 12-hourshift, staff work 4 days onand 3 days off one week,followed by 3 days on and4 days off the next week.

The primary shift pattern is used to schedulestaff for posts requiring continuous coverage.Other posts or positions in the facility mayrequire some variation on the primary shiftpattern.

Consider the following factors in determiningappropriate work schedules:

■ Hours of operation and timeframes. Al-though many functions in the jail operate24 hours a day, others do not (e.g., visiting,public reception, escort). Examine eachfunction to determine what work schedulewould be effective.

■ Days operated each week. Some jail func-tions operate fewer than 7 days a week (e.g.,school, work programs). Scheduling staff forthese functions might require alternativeapproaches.

■ Organizational goals and objectives. Thegoals established to implement the jail’smission should be reflected in the level andavailability of services. For example, a highpriority on maintaining family involvementmay affect the need for extra staff to accom-modate greater visiting opportunities.


Develop a facility activi-ty schedule if your jaildoes not have a formalone. If there is a sched-ule, review it for changesin programs or physicalplant reconfigurationsmade since it was origi-nally developed. If youhave transferred to anew jail, recognize thatmany activities maynot occur on the sameschedule as in your oldjail.

78

■ Levels of activity. Some components of thejail may require more intense staffing (e.g.,booking areas during peak activity periodsor during docket call). Creative schedulingcould provide for more staff in those areasthrough overlapping shifts.

■ Staff training. Alternative schedules mayfacilitate access to inservice training throughoverlapping shifts.

■ Fatigue and productivity. Take fatigue intoaccount when determining length of shiftsand length of workweek in the shift pattern.

■ Schedule rotation. If shifts are not fixed,research suggests that workers adjust to forward-rotating schedules (morning-evening-night) more easily than to backward-rotatingschedules. Also, workers tend to adapt betterto slowly rotating shifts (no more often thanevery 2–3 months) than to shifts that rotatemore often.

■ Use of part-time staff. Part-time staff canbe used effectively to cover needs that donot rise to the full shift level or to fill in iffull-time staff are not available. Avoid usingpart-time staff on regular shift assignments.

Scheduling Staff

An effective staffing plan and facility activityschedule identify the number and type of staffavailable and the workload. With these two toolsyou can build and maintain a staff work sched-ule, either manually or using scheduling soft-ware. In either case, you must identify thenumber of staff required for each shift and thenfill in each employee’s work schedule for all ofthe days included in the work cycle (week,month, 2 months, etc.). Stagger the days offto assure adequate coverage of each shift.

After entering all staff schedules in the roster,check the numbers for each shift against thestaffing plan and activity schedule and adjust asnecessary. The goal is to match staff availabilitywith the workload at any given time.

Managing Schedule Conflicts andAbsenteeism

A staff work schedule or roster is a compilationof all the shifts that each person is scheduled towork based on the shift pattern for his or herclassification. However, it eventually ends upbeing very different for each person due toevents such as holidays, vacation leave, and sickleave. Encourage staff to plan time off as farahead as possible to help maintain coverage atall times, especially during holidays. The staffschedule is a working document that requiresdaily changes to manage schedule conflicts andabsences. To minimize conflicts and absenteeism:

■ Use a shift pattern that allows employeessufficient scheduled time off. This allowsstaff to deal with personal needs such asdoctor’s appointments and family activitiesand reduces problems associated with manyuncontrollable sources of absences.

■ Encourage staff to schedule vacation timewhen the workload is low. Limit the num-ber of staff who can take vacation at anytime and monitor vacation use throughoutthe year.

■ Staff the jail above the minimum require-ments. Staffing above minimum require-ments provides flexibility for training, specialassignments, and additional security. Whenabsences do occur, however, essential func-tions can still be covered.

■ Use overtime to cover vacancies as theyoccur. Although this is a very good use ofovertime, it works best in an environmentthat does not experience large fluctuations inworkload from week to week. In organiza-tions with large fluctuations in workload,overtime is a scarce resource that can be eas-ily abused, resulting in fatigued employees,lower productivity, and increased costs.

■ Cross-train personnel in different workareas. Cross-training allows personnel from


79

one department to be used in other depart-ments if there is a crisis. This is goodbusiness practice as long as the cost forcross-training is not excessive. However, itoften does not provide relief during peakvacation seasons when resources are scarce.

■ Use temporary personnel. For positionsrequiring little training to perform, tempo-rary personnel can be the least expensivesource of absence coverage. Temporary per-sonnel are a good solution when full-timeemployees cover all full-time positions.Some of the full-time employees must havethe ability to step up to the next job if need-ed. When an absence occurs, a trained per-son in the next lower position covers it,creating a daisy chain of step-ups until theactual vacancy is at the position requiringthe lowest skill level. A temporary employeecan then cover the vacancy.

■ Reschedule work to be performed whenresources are available. You may havesome flexibility as to when intermittentactivities such as maintaining master logsare performed.

■ Smooth out the variability of controllableabsences. Employees do have some controlover certain types of absences. When em-ployees and management work cooperativelyto schedule such absences, covering themwith fewer resources becomes easier.

Summary

Several types of schedules areimportant to the effective func-tioning of the jail. Facilityactivity schedules organize theroutine of the facility to assurethat inmates’ basic needs aremet, order and security aremaintained, and the facilityoperates smoothly and effi-ciently. A good facility activityschedule is also essential toefficient scheduling of staff.The facility must provide basicstaff coverage necessary forstaff and resident safety, but also proper cover-age of the various scheduled functions and activ-ities. The staff work schedule is an essential toolin determining how staff should be deployed tobest meet coverage needs.


Staffing Analysis Workbook for Jails, 2d ed. D.R.Liebert and R. Miller, National Institute ofCorrections, 2001.

Staff/Inmate Ratios: Why It’s So Hard To Get tothe Bottom Line. B. Krauth, National Institute ofCorrections, 1988.

The Manager’s Guide to Alternative WorkSchedules, 2d ed. W.L. Booth, Institute of PoliceTechnology and Management, University ofNorth Florida, n.d.


Review current shiftconfigurations in lightof current operations,overtime budgets,turnover rates, andabsenteeism to deter-mine if changes areneeded. Review thepaid leave policy (holi-day, vacation, and over-time) to ensure it isequitable and adminis-tered equitably.

Chapter 6

Staff Recruiting, Selection, and Retention

6

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83


Job Descriptions . . . . . . . . . . . . . . . . . . . . . 83

Diversity . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84

Recruitment . . . . . . . . . . . . . . . . . . . . . . . . 84

Recruiting Committee . . . . . . . . . . . . . . . . 84

Recruiting Materials . . . . . . . . . . . . . . . . . . 84

Recruiting Team . . . . . . . . . . . . . . . . . . . . . 85

Recruiting Strategies . . . . . . . . . . . . . . . . . 85

Screening and Selection . . . . . . . . . . . . . . 88

Minimum Qualifications . . . . . . . . . . . . . . . 88

Elements of the Screening Process . . . . . 88

Using Assessment Centers in theHiring Process . . . . . . . . . . . . . . . . . . . . . . 90

Retention . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

Why Employees Leave . . . . . . . . . . . . . . . . 90

Strategies for Retaining Quality Employees . . . . . . . . . . . . . . . . . . . . . . . . . 92

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . 93

Recommended Resources . . . . . . . . . . . . . 94

In This Chapter

83

Staff Recruiting, Selection, and Retention

Overview

A competent, viable workforce is the foundationof an effective jail. Finding and keeping goodemployees, however, can be a major challenge.Administrators often cite the following factorswhen asked what makes recruitment and reten-tion difficult for jails:

■ Low salaries.

■ Negative image of the jail.

■ Competition from law enforcement, securityagencies, and prisons, which siphon offexisting and prospective staff.

■ Growth in the number and size of jails,which has created greater competition forworkers.

To overcome these challenges, jail administratorsmay need to look beyond traditional recruitmentand retention methods for creative ways toattract and retain qualified employees.

The processes of recruitment, screening, selec-tion, and retention are interconnected, with theeffectiveness of one area dependent on the oth-ers. A breakdown in any of these elements willadversely affect the effectiveness and productivi-ty of the overall workforce. This chapter outlinesstrategies to assist jails in being successful in allphases of staff recruiting, hiring, and retention.


1. The jail must meet state minimum standardsfor screening, hiring, and training of staff.

2. Screening and hiring of staff must be inaccordance with state and federal equalemployment opportunity laws.

Job Descriptions

For each position, a current, appropriate jobdescription is essential to the success of theagency’s recruitment, selection, training, andperformance evaluation processes. It has beensaid, “To find what you want, you have to knowwhat you are looking for.” Clearly defining thejob requirements, duties, and terms of employ-ment helps both the administrator and the jobcandidate make informed decisions and willlikely result in a more committed employee.

Federal law requires that selection proceduresbe related to the position being filled. The jobdescription is a means to fulfill that legal re-quirement. Accordingly, the jurisdiction’s legalcounsel and human resources representativesshould review all job descriptions to confirmthat all of the content is, indeed, job related.

Job descriptions should clearly define the dutiesof the position and the knowledge, skills, andabilities needed to perform those duties. Toattract candidates who can effectively manageinmate behavior in the jail setting, emphasize thefollowing qualifications: communication, con-flict de-escalation and resolution, and problem-solving skills. A well-written job descriptionhelps recruiters target their efforts to individualswith these qualities.

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Diversity

Federal law prohibits discrimination in employ-ment on the basis of gender, race, or ethnicbackground. Beyond the legal requirements, aworkforce that reflects the diversity of the com-munity in which the jail is located has manyadvantages. Accordingly, exercise care to ensurethat all phases of the recruiting, screening, andhiring process are free from elements that mightadversely affect any group. Indeed, extra effortin recruitment may be necessary to reach out toparticular groups to achieve the desired levels ofdiversity in the jail workforce.

Recruitment

The goal of the recruitment process is to locateand attract a diverse pool of qualified candidates.To increase the potential for success, developa specific plan of action. A comprehensive re-cruitment plan includes a recruiting committee,recruiting materials, a recruiting team, and re-cruiting strategies. These components are dis-cussed in the following sections.

Recruiting Committee

A recruiting committee can assist the jail admin-istrator in the development of the recruitmentplan. The membership of the committee shouldbe broad based and might include:

■ The jail administrator or a designee.

■ Human resources representatives for theagency and the jurisdiction.

■ A person knowledgeable about the agency’stesting and selection process.

■ Career counselors from local high schoolsand colleges.

■ Representatives of businesses and minorityorganizations.

■ A marketing/public relations expert.

■ Representatives from the local governmentemployment office.

■ A representative from the funding authority.

A recruitment plan sets recruiting goals (e.g.,greater diversity, parity in gender, an increasednumber of bilingual staff, a higher percentage ofstaff with college degrees), outlines recruitingstrategies, and creates a system for monitoringthe effectiveness of recruiting efforts. In devel-oping recruiting strategies, the committee shouldconsider ways to involve agency staff and thecommunity in the process. The best methods ofadvertising, within available budget resources,should also be considered. After developing theplan, the committee should meet periodically toreview progress in implementing it and to evalu-ate its effectiveness.

Recruiting Materials

Materials such as brochures and posters areessential to any recruiting effort. Videos andWeb sites are also used in recruiting. Thesematerials are used in the following ways:

■ Brochures and posters: These are tradition-al media for sharing information about theorganization and describing the job of thejail officer and other positions in the jail. Abrochure should emphasize the importantrole that jail officers play in contributing tocommunity safety. It should also list mini-mum qualifications and describe the selec-tion process in sufficient detail to informreaders about what would be required ofthem if they decide to apply.

■ Videos: A video is an effective way to giveprospective job candidates a realistic pre-view of the job. Videos can offer a look atwhat the jail environment is like and howit operates and can include jail officersdiscussing their jobs and the benefits and

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challenges of working in the jail. One advan-tage of the candid look inside the jail offeredby a video is that it can help discourage un-motivated or unqualified applicants at anearly stage in the process.

■ Web sites: Many agencies maintain InternetWeb sites. A Web site can incorporate arecruiting page that highlights informationabout employment opportunities, postsvacant positions, and includes an onlineapplication. Arrangements can also be madewith administrators of other high-volumeWeb sites to post job openings or provide alink to the jail’s Web site.

To convey a consistent, effective message in alltypes of recruiting materials, consider solicitingassistance from marketing or public relationsspecialists in the jurisdiction. These experts canhelp shape the message, prepare written copy,create tag lines, and produce graphics. Local col-lege marketing or journalism programs may begood sources of such assistance.

Recruiting Team

You need a team to implement the recruitingplan. Assign recruiting activities to existing staff.Select recruiters who reflect the desired diversityof the organization and show their enthusiasm,job knowledge, professionalism, and skill inadvocacy, public speaking, and public relations.They should be knowledgeable about personnelmatters, the agency’s personnel needs, the selec-tion process, training requirements, compensa-tion and benefit plans, and career opportunities.Provide training for recruiters in these areas asneeded.

Recruiting Strategies

Many effective options and techniques are avail-able for recruiting qualified candidates. In TheEmployee Recruitment and Retention Handbook,

Diane Arthur describes four factors that shouldbe considered in the selection of recruitingstrategies:1

■ Cost: The amount of money available forrecruitment.

■ Immediacy: How quickly job openingsmust be filled.

■ Audience: How wide an audience must bereached to get a sufficient pool of qualifiedapplicants.

■ Level of employee: The level of the positionbeing filled (professional versus nonexempt).

If jobs must be filled quickly, proactive strate-gies must be used to go out and find prospectiveemployees. Where jobs are more difficult to fill,strategies that reach out to the widest audiencepossible may be preferred. However, considerthe level of the position(s) to be filled in choos-ing recruiting strategies. Strategies that are effec-tive in attracting candidates for nonexempt jobsmay not work for professional positions.

Many recruiting options are available to jails:low- or no-cost strategies, paid advertising, out-reach through special events, internal recruiting,and others. These strategies are summarized inthe following sections. Not all of the strategiesdescribed need to be incorporated into the jail’srecruiting plan for it to be effective. The recruit-ing committee should select strategies accordingto the types of positions being filled, the avail-able labor pool, and a variety of other factorsunique to each jurisdiction. The most effectiverecruitment plans use multiple strategies toattract the largest pool of qualified candidatespossible from which to select new employees.

Low- or No-Cost Recruiting Strategies If the recruiting budget is limited, the jurisdic-tion may focus on low- or no-cost options. Some

1 D. Arthur, The Employee Recruitment and Retention Handbook(New York: AMACOM, 2001), pp. 94–95.

of the ways to maximize media attention to thejail’s recruiting efforts at little or no cost follow:

■ Press conferences: To kick off a recruitingeffort or call attention to staffing needs,either the jail administrator or his or herchief executive officer may call a pressconference.

■ Feature stories: Encourage reporters forboth the print and broadcast media to do fea-ture stories about particular exemplary jailofficers and correctional careers in general.

■ Talk/news shows: The jail administratoror designated staff can use appearances onradio or television talk shows to promote therecruiting campaign and provide informationabout career opportunities.

■ Public service announcements: Jail offi-cials can work with local media to developand run public service announcements thatencourage listeners or viewers to considerworking in the jail as a career option.

■ Public appearances/speakers bureaus: Thejail administrator, recruiters, and designatedstaff should take advantage of opportuni-ties to speak at events and meetings wherepotential job candidates may be present.

■ Cable access channels: Cable franchiseagreements typically include provisions foragencies to utilize public access channels.Jail officials could develop a program to airon the local cable access channel that pro-vides information about the jail as a worksetting and describes career opportunities.

Paid Advertising Paid advertising is often a popular and effectivemeans of recruiting. Content, timing, and place-ment are key ingredients to generating a largeresponse through paid advertising. Some of themore traditional approaches include:

■ Classified newspaper ads: Considerationshould be given to location of the ad, use of

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white space, graphics, and other placementstrategies to call readers’ attention to the ad.

■ Paid radio and television ads: Ads shouldbe placed with stations providing the widestaudiences of listeners and viewers represent-ing the candidate pool in which the jail isrecruiting.

■ Newspaper inserts: Placement of advertis-ing inserts in newspapers or other publica-tions may be an effective option.

■ Brochures and posters: Place brochuresand posters throughout the community, inbusinesses, schools, sports clubs, communityservice organizations such as the YMCA,and organizations frequented by people whomight be interested in the jail as a careeroption and that reflect the diversity the jailis trying to achieve.

The following types of paid advertising offermore creative, nontraditional recruiting options:

■ Inserts in utility bills: Utility companies areoften willing to send out advertising insertswith utility bills.

■ Premovie advertising at local theaters:Slides advertising job openings and careeropportunities can be placed in theaters formoviegoers’ viewing before the start of thefeatured film.

■ Billboard advertising: Billboard advertisingis typically a paid option; however, localbusinesses may be willing to donate spaceif asked.

Special Events Special events are excellent recruitment opportu-nities. These may be either events held specifi-cally for the purpose of recruiting or generalevents where a broad audience may be reached:

■ Job fairs: The jail should participate incommunity job fairs where many employersin the community come together to promoteemployment opportunities.


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■ Open houses: A very effective strategy isholding an open house at the jail to give interested persons the opportunity to tourthe facility, view recruiting videos, and getanswers to their questions about employmentfrom on-duty staff as well as from recruiters.

■ Career days at local colleges: Jail staff andrecruiters should be represented at careerdays held at local high schools and colleges.

■ County fairs and festivals: County fairsand other local festivals offer great opportu-nities to share information firsthand with awide audience. Consider renting booth spacewhere recruiters can speak with prospectivecandidates, pass out brochures, and presentvideos.

Internal Recruiting Methods Not all recruiting options require outreach to thecommunity. The following methods are internalto the organization:

■ Job postings: As used here, the term “jobposting” refers to the process of advertisingpositions internally to staff before announc-ing them to the general public. Job postingscan promote the stability of the agency bygiving employees opportunities for profes-sional growth within the organization.

■ Human resources files: Human resourcesfiles can be an excellent source of qualifiedcandidates for job openings. Scan these filesfor qualified candidates who previouslyapplied for other positions or who appliedwhen no specific job opening was available.

■ Employee referrals: Current employeesoften refer candidates to job openings byword of mouth. Some organizations for-malize the employee referral process byadvocating such referrals and rewardingemployees who refer persons who subse-quently are hired.

■ Unsolicited applications: Good candidatesfor positions can sometimes be discoveredfrom individuals who walk, write, or call into submit unsolicited applications. Theseare persons looking for work who are notresponding to an advertisement for a specificjob opening. The jail should have a meansto monitor such applicants to see that theyare given due consideration for future jobopenings.

Other Recruiting Methods Other recruiting methods and sources to beconsidered include the following strategies:

■ Government workforce developmentagencies: These agencies can be a goodreferral source, particularly for entry levelpositions. There is no cost for their services.

■ Private employment agencies: Privateemployment agencies often have access toa large pool of applicants, but their servicescan be costly.

■ The military: The military has been a tradi-tional source of applicants for law enforce-ment and detention. Individuals with militarybackgrounds often possess a number of in-tangible qualities desired in detention workand have had direct experience.

■ Pre-employment training/oncall staff:Agencies select and train individuals, whothen enter a standby pool until a suitableposition becomes available. Jails that want todevelop a supplemental workforce often usethis recruitment strategy because individualsin the standby pool work as oncall staff inthe jail to gain experience while awaiting apermanent position.

■ Intern and workstudy programs: Educa-tional programs can be used to encouragestudents to consider corrections as a careeroption. Intern and workstudy programs givestudents the opportunity to experience vari-ous aspects of the job firsthand.

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Screening and Selection

Job applicants are screened to assess their suit-ability for working in the jail and, specifically,for the position being filled. The screening proc-ess should use job-relevant and legally defensi-ble screening, interviewing, and assessmentmethods and tools and should focus on the in-herent competencies required for the job, notthose that successful applicants will developlater through training. Screening out unqualifiedand unsuitable candidates early in the processallows more time and attention for the most qual-ified candidates. Assessment tools should bebased on actual job requirements and administeredin a consistent manner by trained individuals.

Minimum Qualifications

Many states have established minimum qualifi-cations for jail officers, including a minimumage requirement, a minimum level of educationalattainment, U.S. citizenship, and a backgroundfree of felony convictions. State law or standardsmay also establish a standardized hiring processthat includes a background check, a physicalexamination, and a psychological evaluation. Beaware of the minimum qualifications establishedby your state and/or jurisdiction and periodicallyreview jail officer job descriptions to see thatthey are consistent with these requirements.

Even in states that do not regulate screeningand hiring, jail administrators would be wise toestablish minimum qualifications for the agency,as these tend to screen out persons with undesir-able backgrounds and to identify those who aretrainable and more likely to add to the profes-sionalism of the jail. When establishing mini-mum qualifications, work with legal counsel andhuman resources personnel to make sure thatthese requirements do not discriminate on thebasis of gender, race, or ethnic group.

Elements of the Screening Process

Screening processes vary from one jurisdictionto another, but generally include some combina-tion of the following elements, each of which isdiscussed below:

■ Written testing.

■ Oral interviews.

■ Background investigations.

■ Physical testing.

■ Ranking and selection.

■ Psychological evaluations.

■ Medical examinations.

Written Testing The types of written tests used in the screeningprocess include tests to measure general intelli-gence, aptitude, personality, and job knowledgeor proficiency. If written tests are used, theyshould be standardized and directly correlatedwith job performance. Uniformity and consisten-cy in the administration of written tests must behigh priorities. Neither the content, format, noradministration of written tests should discrimi-nate on the basis of gender, race, or ethnicbackground.

Oral Interviews A structured oral interview is generally part ofthe preliminary screening process used to deter-mine whether an applicant will be placed on ahiring list. An interview panel typically conductsthe interview using a set of questions that areasked of every candidate. The questions shouldbe job related and address the skills and abilitiesjail officers need—for example, the ability towork with all kinds of people, manage inmatebehavior, mediate disputes, and solve problems.Each question should be assigned a point valueto enable panel members to score responses andrate the applicants. The panel members should


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be trained in interviewing and thoroughly under-stand the requirements of the position beingfilled. They should also have a good grasp ofthe philosophy of the agency and of the traitsdesired in jail officers.

Background Investigations A background investigation is an essentialcomponent of the screening process. The jailadministrator should develop procedures for con-ducting background investigations to ensure theyare performed consistently and thoroughly. Theprocedures should address various aspects of theprocess, including reference checks, data collec-tion methods (e.g., visits, correspondence, tele-phone, Internet), and the report format. Thoseconducting the investigation should know theresponsibilities of the positions being filledand the skills and abilities required in thesepositions. They should be aware of automaticdisqualifiers (such as the failure to meet anyminimum hiring requirements) so that they cancheck on those areas first.

Some agencies use polygraph examinations aspart of their background investigation. Polygraphtests are useful for determining undetectedcrimes, other serious misconduct in the appli-cant’s past, or false statements made during theapplication process.2 The general areas of in-quiry and the specific questions asked during apolygraph examination should be directly relatedto the requirements of the position being filled.

Physical Testing Physical testing is used to determine if an appli-cant is capable of performing the essential dutiesof a jail officer. Some jurisdictions administergeneral fitness tests to verify that individualshave the minimum physical capabilities required

to practice and become proficient in the job-related duties taught during initial training. Otherjurisdictions administer more specific physicaltests that simulate the types of tasks a jail officermay perform.

Evaluate physical tests themselves and the ratingcriteria carefully to make sure they are job re-lated and accurately reflect the physical traitsessential to the job. Applicants’ performance onthese tests should be rated as “acceptable” or“not acceptable” rather than ranked.

Ranking and Selection Many agencies rank qualified candidates forpositions being filled. The rankings are based onthe results of the various phases of the screeningprocess, with any additional points awarded foreducation, experience, or veteran preference.The policy in many jurisdictions is to select thetop three to five candidates from the eligibilitylist for personal interviews, the results of whichdetermine who is offered the position.

Psychological Evaluations Some jurisdictions require psychological evalua-tions as part of the screening process, usuallyafter a conditional offer of employment is made.The purpose of the psychological evaluation is toassess the candidate’s emotional stability, abilityto work under pressure, level of predispositiontoward violence, and susceptibility to depressionor other mental illness that may adversely affectjob performance. Assessment instruments usedin psychological evaluations should be validatedand job-related and should be administered andinterpreted only by certified individuals. Candi-dates should be rated as “acceptable” or “notacceptable” for hire rather than ranked.

2 National Center for Women & Policing, Recruiting & Re-taining Women: A Self-Assessment Guide for Law Enforcement(Washington, DC: U.S. Department of Justice, Office of JusticePrograms, Bureau of Justice Assistance, 2000).

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Medical Examinations The screening process also may include a med-ical examination, which, like the psychologicalexamination, is typically conducted after aconditional offer of employment is made. Theexamination generally assesses the individual’soverall health and looks for the presence of anymedical conditions that could affect his or herability to perform the essential duties of theposition safely and effectively. The physicianperforming the examination should be familiarwith the description of the position being filledand the types of physical activities it routinelyentails as well as any automatic disqualifiers(e.g., current drug use) that the examination mayreveal. The examination should result in a find-ing of “acceptable” or “not acceptable” for hire.Any “not acceptable” finding should be accom-panied by a report that describes the reasons forthe finding.

Using Assessment Centers in the HiringProcess

Some jurisdictions use assessment centers as abasic step in the hiring process. These centersuse trained assessors to observe and make con-clusions about the behavior of participants. Inthe assessment center process, a series of test sit-uations derived from a detailed job analysis areconstructed to provide assessors a means ofobserving how individuals would perform inspecific situations. Properly done, assessmentcenter tests have been shown to be effective indistinguishing high performers from low per-formers for certain jobs. Agencies often useassessment centers when filling supervisory andmanagement level positions, but some jurisdic-tions use them for entry level positions as well.

Retention

Retention of quality employees is critical toeffective jail operations. When the workforce iscompetent and committed, not only is the workperformed properly, but strategies are imple-mented, objectives are achieved, and the public’sinterests are served. Employee turnover, on theother hand, is tremendously costly to the organi-zation in terms of lost productivity, employeereplacement expenses, lost expertise, loweremployee morale, and diminished quality ofservices.

Why employees leave and why they choose tostay are not simply the opposite sides of thesame issue. Turnover is more often associatedwith job dissatisfaction, whereas retention ismore closely associated with the strength of theemployee’s commitment to the organization. Jobdissatisfaction typically occurs when the “fit”between the employee and his or her workgroup,immediate supervisor, or the overall organiza-tional culture is not good. Indeed, researchsuggests that most voluntary resignations inorganizations occur because of a problem withthe manager-employee relationship.3 Some of theprimary reasons employees commit to organiza-tions include having the opportunity to learn anddevelop, fair compensation for their work,opportunities for career growth, feeling like thework they do makes a difference, and being rec-ognized for their contributions. Effective reten-tion, therefore, needs to address both aspects ofthis issue—to eliminate those factors that lead tojob dissatisfaction and incorporate strategies thatincrease commitment.

Why Employees Leave

Employee turnover occurs for a number of dif-ferent reasons, many of which relate to the

3 R.P. Tett and J.P. Meyer, “Job Satisfaction, OrganizationalCommitment, Turnover Intention, and Turnover: Path AnalysisBased on Meta-Analytic Findings,” Personnel Psychology 46 (2):259–293, 1993.


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job dissatisfaction issue described above. Thereasons most frequently cited include thefollowing:4

■ Incompatible corporate culture: Em-ployees are more likely to leave when theyfind that their interests, goals, and values areincompatible with those of the organization.

■ Unsatisfactory relationships at work: Jobdissatisfaction is higher in organizationswhere conflict exists between co-workers orbetween employees and their supervisors.

■ Feelings of not being appreciated or val-ued: Employees want to know that theirwork matters. Where there is little feedbackor acknowledgment of good work, employ-ees begin to question whether the organiza-tion values their work.

■ Not feeling part of the company: Em-ployees need to understand how their workfits in with the organization’s overall missionand goals. The failure to communicate thiseffectively during orientation for new em-ployees can significantly affect their subse-quent level of commitment.

■ Not knowing how they are doing: Em-ployees need to know if their work is meet-ing expectations. Inattention to regularlyscheduled performance reviews sends amessage that performance is not important.A lack of ongoing coaching and regularfeedback to employees to acknowledgeaccomplishments and highlight areas forimprovement also adds to frustration in thisarea.

■ Inadequate supervision: Employees needa sense of guidance and direction. Whensupervisors are not available or responsive,employees will seek out employment whereadequate supervision is available.

■ Inadequate training: The opportunity tolearn is one of the most significant reasonswhy employees commit to an organization.Employees need adequate training to dotheir jobs properly, but they also are interest-ed in training as a means to enhance theirmarketability and career potential.

■ Lack of opportunity for growth: Fewemployees are content staying in a job theyview as being a dead end. Employees areless committed to jobs where no opportunityfor either lateral or upward progressionexists.

■ Inequitable compensation and benefits:Unequal pay, both within the organizationand as compared with similar jobs in thecommunity, can lead to employee dissatis-faction. Employees expect to be compensat-ed equitably for comparable work.

■ Too much work and not enough staff: Thisissue is particularly relevant for jails, whereinadequate staffing levels and overcrowdingare often major concerns. In these environ-ments, employees burn out sooner and leavefor better work situations.

■ Substandard equipment, tools, or facili-ties: Productivity is directly related to thequality of the work environment. Employeesmay not be willing to put up with poor workconditions, unsafe surroundings, or outdatedfacilities.

If the jail is having difficulty retaining qualitystaff, assess the situation to see if any of thereasons listed above are factors in employees’decisions to leave. Once you have a good under-standing of the problem and why it exists, youcan design strategies to improve retention.

4 D. Arthur, The Employee Recruitment and Retention Handbook,pp. 222–224.

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Strategies for Retaining Quality Employees

The following strategies have been found to beeffective in addressing the retention issuesdescribed above:

■ Begin with recruitment. The recruiting planshould focus on finding people who are agood fit for the organization with regard tostyle, values, and work preferences. Attitudeis just as important as aptitude, if not moreso. Also, it is often more important to hirepeople with the right qualities than thosewith specific experience. Proper trainingand supervision can compensate for lackof experience.

■ Establish a positive work environment.The mission statement generally specifiesthe values of the organization as they relateto employees, inmates, and the community.Clearly defined policies and proceduresshould specify the way employees will betreated and interact with the organization.Attention to the interests of employees maybe reflected in compensation and benefitsplans, work scheduling arrangements, oppor-tunities for job growth and promotion, andoverall management style.

■ Develop effective processes for orienta-tion, performance management, andcoaching. Instill strong commitment to theorganization early on by giving new employ-ees effective training and orientation thatinclude clear explanations of opportunitiesfor job progression and development withinthe jail. Build and maintain this commitmentthrough effective supervision and support.Supervisors should be aware of and managehow people are treated on the job. Theyshould be prepared to provide the detail andfrequency of communication each employeerequires, provide challenging growth anddevelopment opportunities, and regularlyrecognize the employee’s contributions.(Note that supervisors themselves may need

training and support to acquire and groomthese skills.)

■ Provide innovative compensation andbenefits packages. The jail’s compensationschedule should be equitable and as compet-itive as possible. Other benefits, such asflexibility in the use of earned leave time,cafeteria plans that allow employees to tailorbenefits according to their needs, flexiblework arrangements, child care, transporta-tion subsidies, and tuition reimbursement,also serve to increase commitment to theorganization.

■ Establish a recognition and rewards pro-gram. Formal programs that recognizeemployees personally and publicly for spe-cial achievements make them feel valuedand appreciated for their work. Recognitioncan range from a simple handwritten notefrom the jail administrator to a public recog-nition ceremony. Recognition can also comeas a tangible reward such as a bonus, giftcertificate, or merchandise. Administratorsmay want to explore many of the low- or no-cost ways other organizations recognize theiremployees and select ways that will workbest in the jail setting.

■ Provide training and educational opportu-nities. Programs that improve work skillsand future career development are particular-ly effective in retaining employees. Basictraining is essential to ensure that employeesare adequately trained in their respectivejobs and in the agency’s policies and proce-dures. Effectively trained staff feel moreconfident and competent in their work andare less likely to leave. Beyond the basics,employees are most interested in trainingthat positions them for career growth. Pop-ular training incentives include technicaltraining, interpersonal skills training, mana-gerial training, and tuition reimbursement.Cross-training of employees for various jobs


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in the facility is a strategic way to get em-ployees more invested in the organizationwhile developing a more flexible workforce.

■ Establish a mentoring program. Mentor-ing can increase productivity while helpingto retain talented employees. Informal men-toring relationships typically develop whenveteran employees take an interest in helpingnew employees integrate into the organiza-tional culture, build skills, and move up inthe ranks. A formal mentoring program isone that is established and sanctioned by theagency. Mentors serve as role models andcoaches for newly hired employees, provid-ing guidance and support. Mentors can alsoinform the administration about any prob-lems that new employees may be experienc-ing and help get them resolved.

■ Provide opportunities for career growth.The jail administrator can facilitate careergrowth by structuring the organization in away that creates a logical career path. Thismay include establishing levels within spe-cific job classifications (e.g., Jail Officer I,Jail Officer II), giving employees the skillsand training needed to qualify for promo-tions to higher job classifications, and creat-ing special lateral assignments (e.g., safetyand sanitation officer, classification officer,training coordinator) that allow employeesto learn new skills and focus on areas ofinterest.

■ Provide an adequate, safe work environ-ment. The physical environment should behazard free, with adequate heating, lighting,ventilation, plumbing, and the necessary fur-nishings and equipment. An adequate workenvironment also means having sufficientstaffing levels and reasonable workloads.

■ Conduct exit interviews. Exit interviewscan provide significant information aboutwhy employees terminate their positionswith the agency. Employees leaving the

agency may offer frankobservations about workingconditions and recommen-dations for improvement.The jail administrator canassess this information toidentify trends or glaringissues that, if addressed,may lead to higher retention.

A successful retention planusually incorporates somecombination of these strategies. The specificstrategies selected and the emphasis placed inany particular area depend on the severity of theturnover problem and the administrator’s analy-sis of the reasons underlying the problem. Usethe following indicators to measure the successof the jail’s retention plan:

■ Reduced turnover rates.

■ Reduced absenteeism.

■ Improved employee morale.

■ Reduced numbers of disciplinary actions.

■ Increased productivity.

Note that retention at all costs is not good policy,especially for marginal employees or those whoare not happy in the job or who fail to followpolicies and procedures. At a minimum, theseemployees may negatively affect morale andproductivity. Of greater concern is the potentialfor liability arising out of negligent retention.The jail administrator must be prepared to takeappropriate action, within the jail’s staff discipli-nary policy, to address staff behavior that is con-trary to the interests of the organization.

Summary

There is no one formula for success in recruit-ing, screening, hiring, and retaining staff. Theapproaches used in jails across the nation varyaccording to local policy and practices. Manycreative, inexpensive methods are available to


Develop a formal planfor the recruitment,screening, selection, andretention of staff. Con-sult state authorities toensure that the jail’sstaff selection and hir-ing policies conform tostate requirements.

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the jail administrator who is committed to dowhat is necessary in this important area ofhuman resources management.


The Employee Recruitment and RetentionHandbook. D. Arthur, AMACOM Books,American Management Association, 2001.

Finding and Keeping Great Employees. J. Harrisand J. Brannick, AMACOM Books, AmericanManagement Association, 1999.

Recruiting & Retaining Women: A Self-Assessment Guide for Law Enforcement. Bureauof Justice Assistance, 2000.

Recruiting, Interviewing, Selecting & OrientingNew Employees, 3d ed. D. Arthur, AMACOMBooks, American Management Association,1998.

Recruitment, Hiring, and Retention: CurrentPractices in U.S. Jails. C. Clem, B. Krauth, andP. Wenger, National Institute of Corrections,2000.

Chapter 7

Staff Training

7

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97


Legally Defensible Training . . . . . . . . . . . . 98

Training Coordinator . . . . . . . . . . . . . . . . . 99

Annual Training Plan . . . . . . . . . . . . . . . . . 99

New Employees . . . . . . . . . . . . . . . . . . . . 100

Existing Employees . . . . . . . . . . . . . . . . . 100

Mandatory Topics . . . . . . . . . . . . . . . . . . . 100

Five Steps in Training Development . . . 100

Establish the Need for Training . . . . . . . . 101

Set Training Objectives . . . . . . . . . . . . . . . 101

Determine the Best Method forAchieving the Objectives . . . . . . . . . . . . . 101

Conduct the Training Intervention . . . . . 101

Evaluate the Impact of the Training . . . . 101

Trainees and Learning . . . . . . . . . . . . . . . 102

Training Delivery Strategies . . . . . . . . . . 103

On-the-Job Training for New Staff . . . . . 103

“Tune-Ups” for Veteran Staff . . . . . . . . . . 104

Roll Call Training . . . . . . . . . . . . . . . . . . . . 104

Experiential Drill Training . . . . . . . . . . . . . 104

Shift Scenario Training . . . . . . . . . . . . . . . 104

Independent Study . . . . . . . . . . . . . . . . . 104

Incorporation of Training Into Staff Meetings . . . . . . . . . . . . . . . . . . . . . 104

Videotapes . . . . . . . . . . . . . . . . . . . . . . . . 104

Correspondence Courses . . . . . . . . . . . . 105

Internet Electronic Learning . . . . . . . . . . 105

Ride-Along Training . . . . . . . . . . . . . . . . . 105

Training Documentation . . . . . . . . . . . . . 105

Recommended Resources . . . . . . . . . . . 105

Publications . . . . . . . . . . . . . . . . . . . . . . . 105

National Institute of Corrections . . . . . . 106

Professional Organizations . . . . . . . . . . . 106

State and Local Resources . . . . . . . . . . . . 106

In This Chapter

97

Staff Training

Overview

Staff training is one of the most powerfulproblem-solving interventions available to thejail administrator—when the problems resultfrom a deficiency in staff knowledge and skills.You can use training to target a wide array ofproblems in areas such as safety and security,inmate behavior management, workplace stress,staff morale, compliance with policies and pro-cedures, and consistency in operations. By effec-tively addressing operational problems, you alsoreduce the risk of successful litigation againstthe jail.

In many jails, training often fails to producethese benefits. Four reasons account for this fail-ure. First, the training function in jails is oftenisolated from the overall management strategyand staff performance. When this is the case,training tends not to be problem based and isoften determined solely by staff preferences andthe obligation to teach mandatory topics. To con-nect training to management goals and staff per-formance, base it on the following elements:

■ Problems identified in an assessment ofagency goals.

■ Operations in relation to those goals.

■ The knowledge and skills that staff requireto meet operational goals.

Second, many jails focus primarily on providingand reporting a certain number of training hoursto satisfy requirements set externally or internal-ly. When the accumulation of hours is the pri-mary focus, training becomes an obligatory

exercise with little impact on staff performanceand, therefore, little effect on the achievementof the jail’s mission and goals. In this case, pre-cious resources are wasted.

Third, many jails devote minimal resources totraining. Training does require resources, butlack of training or poorly planned training cancost the jail (and its community) far more if thejail is sued because staff did not have the knowl-edge or skills to prevent or handle a suicide, fire,assault, escape, or riot. Turnover of staff becauseof inadequate training also costs the community,although that impact is far less public. Variouslow- to no-cost sources of training are, in fact,available to the jail, as discussed later in thischapter.

Finally, training is often misused. Some jails seetraining as the response to all staff performanceproblems. Training is not a panacea. If the prob-lem is due to lack of administrative leadership,inadequate direction to staff, faulty or nonexist-ent policy, inadequate supervision, or inappropri-ate hiring, training cannot remedy the problems.If staff think they should not do it, do not wantto do it, forget to do it, or simply cannot do it,training will not help. Using training inappropri-ately only wastes resources and frustrates staff—and may cause staff to view training aspunishment.

Used appropriately, training is highly effectivein addressing deficiencies in performance andoperations and directly contributes to the achieve-ment of the jail’s mission and goals. This chapter,

7

98

in providing an overview of staff training, con-siders the components of legally defensibletraining, the role of the training coordinator, thedevelopment of the annual training plan, steps intraining development, how trainees learn, strate-gies for delivering training, documentation oftraining, and training resources.


1. The jail administrator has an affirmative dutyto see that staff have the knowledge andskills necessary to perform core job tasksthat ensure the security of the facility andthe safety and well-being of inmates andstaff.

2. Professional standards and statutes regardingstaff training vary. Many standards includerequirements for both training topics and thenumber of hours of training staff should re-ceive. These standards address training fornew and existing employees and for employ-ees with varying degrees of contact withinmates.

Legally Defensible Training

Training can be defined as a formal transfer ofjob-related knowledge or skills from one whopossesses the knowledge/skills to one who needsit. Training occurs in a teaching setting and isapplied on the job, resulting in something ofvalue for the agency. To be legally defensible,however, training must meet the following sixcriteria:

1. Both the intent and the content of thetraining must be defined in writing. Per-formance objectives state the intent of thetraining—that is, they define the goals thetraining is designed to achieve. Lessonplans, which document the content of thetraining, describe how the performanceobjectives will be met.

2. The training must be job related, asdetermined by job or problem analysis.Training of new employees must be basedon a job analysis that identifies the coretasks of the job. Core tasks are defensibletopics in a new employee curriculum.Training of existing employees is based onan analysis of operational problems, mostlikely resulting from lack of staff knowledgeor skills. These operational problems can be-come defensible topics for inservice training.

3. The trainer must have the appropriatecredentials to teach the subject. An em-ployee who has demonstrated proficiency atjail tasks such as handcuffing, cell searching,and distribution of commissary and who caneffectively teach others can be a defensibletrainer for such tasks. However, trainingon suicide prevention is more appropriatelytaught by a mental health professional withexpertise on suicide and competence intraining. The jail should maintain documen-tation of trainer credentials in the training file.

4. The training must be of sufficient dura-tion (quantity of training). The number ofhours allocated for the training must be rea-sonably related to the complexity of thetopic or how long it takes to master it.

5. The training should result in the learningand application of something relevant tothe trainee’s job (quality of training). Thequality of training can only be evaluated byassessing its outcomes: what the traineelearned by the end of the training, how thetrainee’s job performance changed, and thebenefit to the jail resulting from the changein performance.

6. Only staff who need the training, as deter-mined by job or problem analysis, shouldattend. Providing training on topics that arenot relevant to a staff person’s job or that

Chapter 7: Staff Training

99

address areas in which staff are already pro-ficient does not reduce the agency’s liabilityexposure. To be defensible, the target audi-ence should be those staff who perform, ormay perform, the job tasks related to thetopic and who have a deficit in knowledgeor skills that adversely affects theirperformance.

When all six of these elements are planned,implemented, and documented, the training isdefensible.

Training Coordinator

A training coordinator should be designated todevelop and implement an overall annual train-ing plan, maintain training records, and provideprogress reports to the jail administrator on theimplementation of the training plan. A writtenjob description should clearly articulate thetraining coordinator’s responsibilities. If trainingcoordination is a duty added to another position,a written job element should be added to thatposition’s description. The position of trainingcoordinator, whether full or part time, must beofficially designated in writing.

The training coordinator does not necessarilyconduct training; instead, he or she plans, organ-izes, and facilitates training and should work asan integral part of the jail’s administrative team.An effective training coordinator has the follow-ing characteristics:

■ Excellent planning and organizing skills.

■ Broad understanding of jail operations andissues.

■ Resourcefulness and creativity (needed toseek out sources of training and to developoptions in training delivery).

■ Ability to work with staff at all levels andwith persons in other organizations.

■ Task-oriented focus and attention to detail.

■ Self-motivation and abilityto working independently.

■ Excellent oral and writtencommunication skills.

Annual Training Plan

The annual training plan is aproblem-solving tool for bothnew and veteran staff. For newstaff, and for experienced staff moving to a newposition, the problem can be viewed simply asgiving them the knowledge and skills requiredfor the job. For veteran staff, problems will varyamong staff over time, as evidenced by opera-tional shortcomings due to deficiencies inknowledge and skills.

Jails often erroneously develop training plansbased on a survey that asks staff what they wantor think they need for training. This approach isakin to a doctor asking the patient what medi-cine he or she wants instead of identifying andanalyzing symptoms, determining the cause, andprescribing the appropriate remedy. It is impor-tant not to ask the patient—i.e., the staff—forthe solution but to start by identifying and ana-lyzing agency problems to see where trainingcan play a role.

The annual training plan should have the follow-ing elements:

■ A list of specific goals for the year.

■ A summary of the previous year’s problemanalyses that led to the goals.

■ A list of topics for the current year that willaddress the problems identified and achievethe goals.

■ For each topic, a description of how the sixelements of defensible training will be met,delivery strategies (stressing alternatives toclassroom-based delivery when appropriate),and the required resources for each topic.

■ The proposed master schedule.


Designate a trainingcoordinator for the jail.Make sure he or she isformally trained as atraining coordinator,not just as a trainer.

■ The total budget based on the aggregatedcost of each topic to be delivered plus gener-al costs associated with training. Whetherovertime/trainee replacement costs are in-cluded is an agency-specific decision.

■ A plan for the overall evaluation of theeffectiveness of the training plan.

The annual plan should cover all job classes, in-cluding volunteers, contract workers, and theadministration.

New Employees

The development of training for new employeesrequires an analysis of the core tasks for theirjob class. Core tasks are those that are done fre-quently and/or are judged to be critical to safetyand security, the well-being of inmates and staff,

and the jail’s mission andgoals. Based on the core taskanalysis, the jail should devel-op a basic curriculum for theknowledge and skills requiredto successfully perform thecore tasks of the job. Theplan for new employees mustaddress both the cognitiverequirements (data, facts, in-formation) and psychomotorrequirements (behavior and

physical action) for the job. Unless a particularjob changes dramatically, the new employee cur-riculum should remain relatively stable.

Existing Employees

Annual training for existing employees is basedon operational problem analyses. The annualtraining for existing employees should differfrom year to year and may focus on specificthemes such as a reduction in inmate suicides,improved jail sanitation, or improved inmatebehavior management. The plan also specifieswhich staff will receive which types of training,

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based on whose knowledge and skills need to beenhanced to meet operational goals. The planshould consist of individualized training pre-scriptions for employees, developed jointlyby the supervisors, training coordinator, andadministration.

Mandatory Topics

Many jails have accumulated a large number ofmandatory training topics derived from jail stan-dards, internal policies, requirements of externalagencies, and administrative preferences. Thejail administrator and the training coordinatorshould review all mandatory topics to determinewhether they are required by standards, regula-tion, or law or are critical to life, health, andsafety—in other words, whether they are trulymandatory. For example, subjects such as firstaid, cardiopulmonary resuscitation (CPR), andthe use of emergency equipment are directlyrelated to life, health, and safety and are logicalmandatory training topics. If, however, you determine that certain topics are not truly manda-tory and do not address the jail’s specific oper-ational needs, teaching these topics may servelittle purpose and deplete limited resources.

Five Steps in Training Development

There are five steps in designing training toaddress problems in staff performance:

1. Establish the need for training through iden-tification and analysis of the operationalproblem.

2. Set training objectives to address theproblem.

3. Determine the best method for achieving theobjectives.

4. Conduct the training intervention.

5. Evaluate the impact of the training.

These steps are discussed in the followingsections.


Develop a comprehen-sive staff training planthat is updated annual-ly. Be sure that thetraining plan covers alljob classes and is basedon training needs relat-ed to operational prob-lems and issues.


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Establish the Need for Training

If the analysis of the operational problem showsthat the cause is a lack of staff knowledge andskills, the jail administration team, including thetraining coordinator, can develop a training pro-gram to address the problem. For new employ-ees, as noted earlier, the generic “problem” issimply the lack of all the knowledge and skillsneeded to perform in a new job. For existingemployees, the performance problem is usuallya deterioration in knowledge and skills.

Set Training Objectives

Objectives define what the training is designedto accomplish. Thoughtfully developed objec-tives begin to define the nature of the solution.In developing objectives, consider the impactthey will have at three levels:

■ Immediate impact: The specific knowl-edge and skills staff will acquire during thetraining.

■ Intermediate impact: The change in jobperformance expected to result from thetraining.

■ Ultimate impact: The benefit to jail opera-tions from improved staff performance expected as a result of the training. The ultimate-impact objective will relate directlyto the operational problem identified.

For example, if the operational problem isan increase in inmate suicide attempts in theprevious year:

■ The immediate-impact objectives for thetraining session might focus on increasingknowledge and skills concerning inmate sui-cide screening instruments, detection ofsigns that an inmate is considering suicide,and suicide prevention/interventiontechniques.

■ The intermediate-impact objective mightspecify staff demonstration of increased

effectiveness in the use of screening instru-ments, observation of inmates for signs ofsuicide intention, and ongoing implementa-tion of suicide prevention techniques, asevaluated by supervisors.

■ The ultimate-impact objective might be todecrease the percentage of suicide attemptswithin a specific period after the trainingtakes place.

Determine the Best Method for Achievingthe Objectives

The best method for achieving the trainingobjectives is the one that best addresses the issueor solves the problem. For example, if the train-ing need involves physical skills such as hand-cuffing, use of fire extinguishers, or emergencyevacuation, the best training method might be anon-the-job module or experiential learning suchas onsite drills. If the training need requires theacquisition of knowledge about an issue—forexample, inmates’ rights—then the best trainingmethod might be classroom-based instruction oruse of a videotape. For additional information oneffective intervention design, see the sections be-low on “Trainees and Learning” (page 102) and“Training Delivery Strategies (pages 103–105).”

Conduct the Training Intervention

Staff should understand why they are participat-ing in the training and how it is intended to en-hance their work performance and jail operations.As part of the training, explain the three levels ofimpact described above and what will be expect-ed of staff who have received the training.

Evaluate the Impact of the Training

To ascertain whether the training has achievedits objectives, evaluate its immediate, intermedi-ate, and ultimate impacts.

Evaluation of Immediate-Impact Training Before the trainees leave the learning environ-ment, evaluate them individually to see if they

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have acquired the knowledge or skills communi-cated in the training. Traditionally, jails haveused tests based on multiple-choice, fill-in-the-blank, and true/false questions for this level ofevaluation. However, this type of test focuses onretention of facts rather than comprehension. Tobetter ensure that training results in improvedjob performance, this evaluation should focusnot only on facts, but also on comprehension ofhow those facts are applied in various job situa-tions (i.e., judgment and decisionmaking). Thiscan be done with testing methods that requiretrainees to develop responses to certain scenarios(e.g., “Given this situation, what would you doand why?”) and take part in role-playing andsimulations. Although scoring these types oftests can be more challenging, they are moreeffective in measuring comprehension. If thetrainer explains in advance exactly what is beinglooked for in terms of thinking, decisionmaking,and projected action, fair and defensible evalua-tion of participants is achievable. As with oralboard examinations, scoring becomes easy ifstandards are clearly defined.

Evaluation of Intermediate-Impact TrainingMeasure intermediate impact by assessingchanges in staff behavior on the job after thetraining takes place. Assessment at this level isnot that difficult if supervisors know the trainingobjectives and then conduct effective formal andinformal performance appraisals using the objec-tives as part of the appraisal criteria.

Evaluation of Ultimate-Impact TrainingThe measurement of ultimate impact answersthe “so what?” question about training: Did thetraining affect the targeted operational problemand, specifically, how? Measurement of the ulti-mate impact is the most important aspect oftraining evaluation.

Trainees and Learning

In any training activity, it is important to remem-ber that people learn best differently. Some learnbest only when they first understand why thetopic is important to them, their agency, or theirjob. Others see value in the information itself.This group enjoys and easily learns information,concepts, and theories—they focus primarily onwhat is being taught. Still others learn best bydoing—they focus on how to do what they aretaught, and in essence teach themselves byhands-on activity. Finally, some people learnbest if they are able to bring their individual cre-ativity to the topic. This last group often likes tobuild on what is being taught and apply it toother situations. They are best able to compre-hend a topic by applying a variety of “Whatif…?” scenarios to it. Although most staff willhave a way in which they learn best, all staffneed training that answers the “why,” “what,”“how,” and “what if” of any given topic. Notonly will they learn effectively through thatprocess, but it will better prepare them to per-form on the job.

Many staff working in jails tend to learn bydoing. Jails prefer to hire these individuals be-cause they think quickly, make decisions, andtake action. They are doers and, as such, theylearn by hands-on training activity. If all trainingfor them is delivered primarily through lecture,for example, the training is not likely to be aseffective as it could be for most staff. Meet withthe training coordinator to discuss developingtraining activities that will better meet the learn-ing needs of staff and emphasize hands-on learn-ing. More information on this topic is availablethrough the National Institute of CorrectionsAcademy Division.


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Training Delivery Strategies

Classroom-based training is not the only optionfor training delivery and is not all-effective forcertain types of training. For example, staff can-not be trained to evacuate a housing unit inunder 3 minutes using classroom-based training.Many nonclassroom options are not only moreeffective but also less costly. Note that neitherthe definition of training nor the elements re-quired for training to be considered defensiblemandate a classroom setting. The next sectionspresent several ideas for training outside theclassroom setting. To be defensible, all types oftraining, including those listed here, must meetthe six criteria for defensible training presentedat the beginning of this chapter—they must beformally planned, implemented, and documented.

On-the-Job Training for New Staff

On-the-job training translates the knowledgenew staff receive in a pre-service academy (ifany) into productive work behavior. Academyor classroom-based training simply cannot teachthe specific skills required at a job post.

Too often, on-the-job training is merely anobservation, partnering, mentoring, or shadow-ing program. Knowledge and skills retentionfrom such programs tends to be low. On-the-jobtraining should be a formal teaching processthat happens to occur in an informal setting. Fortraining to be effective and defensible, eachpsychomotor core job task should have a corre-sponding on-the-job training module with a spe-cific performance objective and a list of steps forsuccessful completion. The process for deliver-ing training modules should be consistent, andproficiency testing should be conducted for eachcore task.

The on-the-job training program should not bedeveloped with a “sink or swim” ethic, but withthe understanding that employees learn behav-ioral skills at different rates. The goal is to train

new staff to perform on the job and to build theirskills, not to wash the employee out.

On-the-job training requires the recruiting,screening, and selection of on-the-job trainingofficers, often referred to as “field training offi-cers” (FTOs), from among the jail’s pool ofhigh-performing staff. The quality and commit-ment of FTOs are key to the success of on-the-job training.

In most cases, the FTO responsibility is addedto the duties of an already busy employee, andthe FTO should be rewarded.Monetary compensation oftenis not feasible, nor is it oftena strong or long-term motivat-ing factor. More practical andoften more effective rewardsand incentives include specialuniform patches denoting FTO,office space designated forFTOs, allowing FTOs firstchoice in selecting shifts and schedules, reservedparking spaces, and special events to recognizeFTOs. Consideration of service as an FTO inpromotional decisions also is an effectivereward.

The on-the-job training program is a formaltraining program that occurs on all differentshifts and in different areas of the jail. It mustbe managed by an on-the-job training programmanager (an added duty, usually for the trainingcoordinator or one of the FTOs). The jail admin-istrator should regularly spot check the on-the-job training activity and conduct random auditsof the related documentation to ensure the pro-gram is being implemented as intended.

The jail administrator and the training coordina-tor should define the goals of the on-the-jobtraining program and then annually evaluatewhether the program is meeting those goals. Ifit is not, the reasons should be identified and theprogram modified accordingly.


Establish an effectivefield training officer(FTO) program for thejail. Explore other low-cost options for meet-ing training needs.

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“Tune-Ups” for Veteran Staff

Each year, veteran staff should requalify onmandatory skills and selective tasks identifiedthrough individual performance appraisals.Veteran staff begin by taking a proficiency teston a particular task. Those who do not pass thetest to standard are placed in an on-the-job train-ing phase with an FTO for that particular task.

Roll Call Training

Shift overlap or roll call periods offer a primetraining opportunity. For example, an 8-hour les-son plan can be broken into 15-minute segmentsand delivered over a series of roll calls.

Experiential Drill Training

A fire drill can be just a fire drill, or it can bea valid training activity. If all six elements of defensible training are planned, implemented,and documented, experiential drill training canbe some of the most effective and relevant train-ing conducted for jail staff. Drills can be con-ducted for issues such as evacuation, suicideintervention, mass arrest, failed lock and securityequipment, medical emergency, escape, inmatedisturbances, hostage situations, and natural dis-asters. Administrators often find drill topics inrecurring issues that resist resolution or in sce-narios that could have serious consequences ifthe response to an emergency is inadequate.Training of this nature not only improves per-formance but also tests the adequacy of emer-gency response plans and resources.

Shift Scenario Training

The training coordinator can give all or somestaff on a shift a written scenario that might bederived from litigation newsletters, previousincidents, or areas of jail operations that havebeen problematic. During the shift, the staffreview policy, identify relevant standards, anddiscuss options on how to prevent or handle the

given scenario. By the end of the shift, the staffare required to write a response to the scenariowith recommendations based on policy, stan-dards, and their periodic discussions during theshift. The product can be evaluated and retained,and the staff have received training on an impor-tant operational issue.

Independent Study

Independent study programs can be part of aprescriptive training plan for staff. If certain staffneed particular knowledge and the administra-tion needs some recommendations about anissue, independent study is a mutually beneficialstrategy. For example, a fire-safety officer mayneed information about conducting more effec-tive fire inspections in the jail. At the same time,the administration may want to enhance the levelof fire-safety readiness in the jail. In this case,the fire-safety officer can be assigned to researchways to improve the jail’s fire inspections. Theassignment should be made in writing, and theofficer should be required to submit a writtenreport to the jail administrator and trainingcoordinator.

Incorporation of Training IntoStaff Meetings

Staff meetings are a training opportunity. A por-tion of the meeting may be reserved for relevantknowledge and skills enhancement throughtraining provided by an outside vendor, a localmental health official, or staff with specificexpertise, to name just a few possibilities.

Videotapes

Viewing a videotape with jail-relevant contentcan be a training event if planned with specificobjectives and accompanied by discussion andtesting. Use of videotapes can build knowledgeand demonstrate skills, but is unlikely to teachspecific behavioral skills. To accomplish that,followup training is necessary.


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Correspondence Courses

Correspondence courses are available fromprofessional corrections and corrections-relatedorganizations. They can be effective in providinginformation on generally accepted correctionalpractices, but the concepts taught should be re-inforced through in-house followup training.

Internet Electronic Learning

The interactive nature of electronic learning, ore-learning, is likely to hold a trainee’s attentionmore than a book or manual. E-learning can bean excellent training method for imparting infor-mation (i.e., for meeting cognitive objectives),but it is not necessarily amenable to teachingpsychomotor skills. Because e-learning can beefficient and cost effective, some jail administra-tors see it as a solution to all of their trainingconcerns; however, e-learning is not a panacea.It is best viewed as but one tool for trainingstaff, to be used in combination with other train-ing methods. Training that is integral to the jail’smanagement strategy and that focuses on prob-lem solving requires various approaches. No sin-gle delivery strategy will suffice to make trainingboth effective and defensible.

Ride-Along Training

“Ride-along” training can be a valid activity forcertain skills-based positions such as sanitationofficer, fire safety officer, or internal inspectionsofficer. For example, the jail inspections officermight accompany the local or state health or fireinspector on inspections of 24-hour institutionssimilar to jails, such as hospitals and nursinghomes. The training should have specific objec-tives, and the expert inspector should submit awritten report summarizing the topics coveredand the nature of the training and evaluating thetrainee’s performance.

Training Documentation

Thorough documentation of staff training isessential because:

■ It enables the administrator to track theprogress of training and assess its quality.

■ It helps ensure staff training will be doneformally, even if in an informal setting.

■ It helps substantiate that the jail is meetingtraining requirements, whether they areimposed internally or externally.

■ It demonstrates, in the event that mistakesoccur, personnel actions are taken, or litiga-tion is filed, that the administrator has methis/her affirmative duty to train staff.

If all six elements of defensible training areplanned, implemented, and well documented foreach training activity, the jail has the necessaryrecord of training. Records should be retainedfor each training event as well as for each indi-vidual trainee. Records should be kept currentand be audited regularly for completeness. Therecords for all currently employed jail staffshould be readily accessible.

How long should a jail keep training records?The short answer is “almost forever.” The gener-al practice of retaining records for a certainnumber of years may be acceptable in otherareas of jail administration, but retention needsfor training records are different. For example,in litigation involving a 30-year employee foran incident that occurred in the current year,training records might be needed to prove thatthe employee received a certain type of trainingwhen he or she was first hired.


Publications

Cost Effective In-Service Training Alternativesfor Small Jails. T. Reid, National Institute ofCorrections, 1997.

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The National Institute of Corrections (NIC)offers a capacity-building training initiativethrough its Academy Division in Longmont,Colorado. This initiative includes programs fortraining coordinators, for developing on-the-jobtraining programs, and for designing and deliver-ing effective lesson plans. The NIC AcademyDivision also has a training capacity initiativethat focuses on small correctional agencies.Visit the NIC Web site at nicic.org for furtherinformation.

Professional Organizations

American Jail Association. The American JailAssociation (www.corrections.com) offers video-tapes and two bulletin series—Jail OperationsBulletins and Jail Managers Bulletins—on abroad range of topics. The programs discussedall include performance objectives and are afford-able. The organization also provides trainingseminars on selected topics in regional locationsaround the country.

National Sheriffs’ Association. The NationalSheriffs’ Association (www.sheriffs.org) offerscorrespondence training programs for jail offi-cers and for first- and second-line supervisors.

American Correctional Association. TheAmerican Correctional Association (www.aca.org)offers many correspondence courses (includingone of the few food services correspondencecourses available), videotapes, and some lessonplans. Although all these resources are inexpen-sive, they will only build cognitive ability andknowledge and will not necessarily lead directlyto behavioral change unless your training coor-dinator reinforces the lessons with immediatefollowup activity to give direct application expe-rience and set behavior expectations for youragency.

State and Local Resources

State agencies and, more importantly, your localcommunity constitute a wealth of training re-sources (usually cost free) in terms of specificexpertise. Fire marshal’s offices (state and local),health and sanitation inspectors, mental healthprofessionals, health professionals, chemicalabuse counselors, and county or state’s attorneyoffices all offer expertise in their subject areaand will usually be willing to share it with yourstaff on a periodic basis. Other nearby trainingentities, such as state academies and law en-forcement training consortiums, may be willingto share but only on a cost basis. Vendors, eithercurrent or potential, are another good resourcefor low-cost training.

Chapter 8

Jail Security, Safety, and Emergency Preparedness

8

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 109

Legal Requirements and Standards . . . 109

Jail Security . . . . . . . . . . . . . . . . . . . . . . . . 109

Perimeter Security . . . . . . . . . . . . . . . . . . 109

Monitoring and Communication . . . . . . . 111

Inmate Well-Being Checks and Counts . . 112

Searches and Contraband Control . . . . . 113

Control of Equipment and Supplies . . . . 115

Use of Force and Restraints . . . . . . . . . . 119

Inmate Movement and Transportation . . 121

Security Inspections . . . . . . . . . . . . . . . . . 122

Summary . . . . . . . . . . . . . . . . . . . . . . . . . 123

Jail Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . 123

Management Commitment andEmployee Involvement . . . . . . . . . . . . . . 124

Assigned Responsibility and Authority . . 124

Worksite Analysis . . . . . . . . . . . . . . . . . . . 125

Hazard Prevention and Control . . . . . . . . 125

Written Policies and Procedures . . . . . . . 126

Safety and Health Training . . . . . . . . . . . . 126

Internal and External Inspection Processes . . . . . . . . . . . . . . . . . . . . . . . . . 126

Recordkeeping and Evaluation . . . . . . . . 127

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . 128

Emergency Preparedness . . . . . . . . . . . . 128

Risk Assessment and Control . . . . . . . . . .128

Organization and Coordination of Emergency Response . . . . . . . . . . . . . 130

Emergency Plans . . . . . . . . . . . . . . . . . . . 130

Equipment and Resources . . . . . . . . . . . 131

Training and Drills . . . . . . . . . . . . . . . . . . . 132

Recovery . . . . . . . . . . . . . . . . . . . . . . . . . . 132

Reporting . . . . . . . . . . . . . . . . . . . . . . . . . 133

Review . . . . . . . . . . . . . . . . . . . . . . . . . . . . 133

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . 133


In This Chapter

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Jail Security, Safety, and Emergency Preparedness

Overview

Security and safety are fundamental elements ofeffective jail operations. The primary goals ofsecurity are to prevent escapes and to maintainorder within the facility. Security in jails is estab-lished through a combination of appropriatestaffing, adequate facilities, and well-definedoperational procedures.

The primary goal of safety in the jail is to pro-tect inmates, staff, and the public from harm.This goal is achieved through the identificationand management of risks that present a threat tothe safety and well-being of jail occupants andthe community. The risks include those uniqueto the jail environment, such as inmate assaultsor violence, in addition to those inherent withinany residential or work setting, such as acci-dents, disease, or natural disaster.

Despite the attention given to safety and security,emergency situations of any type can occur atany time. Jail administrators and staff must beprepared to respond to a broad range of man-made and natural emergencies. This chapter dis-cusses the basics of jail security, safety, andemergency preparedness and presents strategiesfor assessing and improving security and safetyin jails.


1. The “duty to protect” is well established incase law. Jail officials have a responsibilityto protect inmates from harm caused bythemselves, other inmates, staff, or unsafeconditions or practices.

2. The jail is a worksite and, as such, comesunder the jurisdiction of the OccupationalSafety and Health Administration (OSHA)and other federal and state regulationsaddressing workplace safety.

3. Fire codes, health and safety codes, statejail standards, and professional standardsaddress many of the security, safety, andemergency preparedness issues covered inthis chapter. Many of these requirements areestablished in administrative code, makingcompliance mandatory.

Jail Security

A jail’s security requirements are determined byits mission and the custody category of the in-mates housed in the facility. Jails can be catego-rized by their security capabilities, which in turnare defined by factors such as internal designand layout, perimeter security features, facilitycapacity, construction method and materials,type of security equipment, staffing pattern, andoperations. Effective security depends on a goodmatch between the jail’s security capabilities andthe custody level of the inmate population. Thebasic factors that constitute jail security are de-scribed in the following sections.

Perimeter Security

Effective perimeter security prevents inmatesfrom escaping the secure area of the jail and pro-hibits unauthorized access by the general public.Maintaining a secure perimeter around the jail

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and controlling facility access are key elementsof perimeter security.

Security Perimeter The security perimeter is the overall barrierbetween the secure area of the jail and the out-side world. The security perimeter of the jailshould be clearly identified, and all staff shouldbe fully aware of its boundaries. To prevent es-capes and unauthorized access, the integrity ofthe security perimeter must be maintained at alltimes. All components of the main security pe-rimeter, including walls, floors, ceilings, doors,windows, bars, and locks, should be constructedof materials that cannot be easily breeched, evenunder sustained attack with tools. These compo-nents should be maintained in good repair andworking condition as part of the jail’s preventivemaintenance program. (See chapter 4, “JailFacilities.”)

Other issues relating to the security perimeterinclude the following:

■ Maintenance of monitoring equipment.Equipment used to monitor the securityperimeter, such as video cameras, electronicalarm systems, audio surveillance equip-ment, metal detection systems, and similardevices, should be maintained in good work-ing condition. Malfunctioning equipmentshould be repaired or replaced promptly.

■ Staff ability to use security equipment.Staff should be thoroughly trained in theoperation and use of all security equipmentthat maintains the security perimeter.

■ Access points. The number of access pointsinto the main security perimeter should belimited to the number necessary to controltraffic flow in and out of the facility and tomeet code requirements. Controls for doorsat access points should be operated from asecure location such as the control center.

■ Maintenance of fencing materials. Materialsused in perimeter fencing, such as fencingfabric, posts, nuts, bolts, and barbed or razorwire, should be maintained in good repairand checked regularly to determine whetherthey have been altered or damaged in anyway. There should be no washouts or gapsat the bottom of perimeter fencing.

■ Perimeter lighting. Perimeter lightingshould be in place to discourage unautho-rized approaches to the security perimeterand to aid in monitoring areas on the outsideof the perimeter.

■ Unobscured sight lines. Landscaping, trees,and vegetation should not obscure sight linesto the outside of the security perimeter.

■ Signs. Signs should be posted along thesecurity perimeter identifying a restrictedaccess area.

Facility Access The jail should have a policy that governs accessto the facility. Access points into the facilityshould be designated according to their functionand the types of individuals (e.g., staff, personal/professional visitors, maintenance personnel,contract staff, delivery people, volunteers) author-ized to enter or exit through respective areas.The following are typical access categories:

■ Main public access.

■ Staff access.

■ Arrestee/officer access.

■ Service delivery access.

■ Emergency exits.

Orders for staff posts controlling entrancesshould include details about the processing ofvarious types of individuals through the desig-nated entrances. Other issues relating to facilityaccess include the following:

■ Visitor identification. A system to positive-ly identify all people entering and exiting the

and fences, security perimeter access, securitygarages, security corridors, parking areas, load-ing docks, and other spaces that are used inter-mittently. Recording devices may be integratedwith the CCTV system to record activities suchas intake or planned use of force. CCTV shouldbe used only as a supplement for staff—never asa replacement.

Communication Communication among jail staff is vital to secu-rity and is typically accomplished by oneor more of the following methods:

■ An internal telephone or intercom systemthat connects each jail post and a controlcenter post.

■ Intercoms or call boxes strategically locatedthroughout the facility.

■ Portable radios carried by individual staff.

■ Personal alarm devices.

Like monitoring systems, most communicationequipment in jails is centralized in a control cen-ter. The control center post officer is usuallyresponsible for monitoring and responding tointernal communications.

Other Concerns Special security concerns regarding monitoringand communications include the following:

■ Maintenance of monitoring equipment.Equipment used for monitoring and com-munication purposes should be inspectedregularly and maintained in good repair. Mal-functioning equipment must be promptly re-paired or replaced.

■ Staff ability to use monitoring equipment.Staff should be trained in the proper use andoperation of all monitoring and communica-tion systems used in the jail.

■ Use of supplemental surveillance andcommunication systems. In areas where

Chapter 8: Jail Security, Safety, and Emergency Preparedness

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facility should be established by policy. Allvisits to the facility, both personal and pro-fessional, should be documented.

■ Searching visitors. A system for searchingvisitors should be established by policy.Items brought into the secure area of the jailshould also be subject to search. Only itemsauthorized by policy should be allowed intothe facility; exceptions must be approved bythe jail administrator. Certain items, such astools, should be inventoried when the ownerenters and leaves the facility.

■ Signs. Signs listing prohibited items shouldbe posted at facility entrances.

■ Metal detectors. Metal detectors should beavailable at entrances.

■ Weapons lockers. Weapons lockers shouldbe available at facility entrances for weaponstorage.

Monitoring and Communication

Monitoring Beyond the primary supervision of inmatesthrough direct staff-inmate interaction, the jailmust have the means to monitor its overall secu-rity. Most monitoring functions are centralizedin a control center. Monitoring should encom-pass the following:

■ Audio and video electronic surveillancesystems.

■ Life safety and security systems.

■ Various electrical and mechanical buildingsystems.

■ Areas adjacent to the control center that areunder direct surveillance.

■ General movement within the facility, partic-ularly through access points in the securityperimeter.

Closed-circuit television (CCTV) is most effec-tive for monitoring areas such as perimeter walls

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staff are not stationed in close proximity toinmate housing, jails should use an audiosurveillance and communication system. Sur-veillance and communication technology isnot an appropriate alternative to maintaininga staff presence in inmate housing areas, butit is a supplemental means for staff to detectproblems and for inmates to seek assistancein emergencies.

Inmate Well-Being Checks and Counts

Jail staff must be able to account for and ensurethe well-being of inmates at all times. Well-beingchecks and inmate counts are key operationalstrategies for enhancing inmate accountability.These strategies are discussed in the followingsections.

Inmate Well-Being Checks Good practice dictates that all inmates in generalpopulation housing be viewed by staff in personat least every 30 minutes on an irregular sched-ule. People who are violent, mentally ill, intoxi-cated, or have other special problems warrantingcloser supervision require more frequent checksor, in some cases, constant supervision. The jailshould have an established method for document-ing the time and results of well-being checks.

Counts The jail should have a system for physicallycounting inmates to verify that all of them arepresent or otherwise accounted for. Counts shouldbe taken routinely and when a situation indicatesthat inmates may be missing. The jail’s proce-dures should provide for the following types ofcounts:

■ Formal counts. These counts are scheduledat specified times each day. At least one for-mal count should be conducted each shift, orat least three times a day. During a formalcount, all inmate movement and activityshould cease. Inmates should be directed

to stand in a specified area (except duringsleeping hours) and remain quiet. Officersconducting counts should be certain they“see body flesh” to confirm the presence ofall inmates. Counts should be recorded ona count sheet, which should also show thenumber and location of inmates absent fromeach housing unit during the count (see Out-counts below). The count sheets are thenreconciled with a master record that docu-ments all inmate names and housing assign-ments, the location of all inmates at the timethe formal count is recorded, and all head-count changes from the previous count. Ifa discrepancy is found between the countsheets and the master count record, the countprocedure should be repeated to determinethe reason.

■ Outcounts. Inmates who are away fromtheir respective housing units at the time ofa formal count should be included in the out-count. This count may include inmates whoare authorized to be out of the facility (e.g.,court, work) and those authorized to be inother areas of the facility (e.g., kitchen, laun-dry, a program).

■ Emergency counts. Emergency counts areconducted on an unscheduled basis whenstaff have reason to believe an inmate or in-mates may be missing. Emergency countsare generally authorized after a disturbance,escape, fire, or other unusual incident. Foran emergency count, staff may require in-mates to be recalled to their respective hous-ing units and locked down until the count iscomplete and verified.

■ Roster counts. This type of count is takento determine which inmates are not in theirassigned areas. The jail may authorize a ros-ter count when an inmate is believed to bemissing or when discrepancies in a formalcount cannot be reconciled through arecount.


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During the day, all inmate movements (e.g.,admissions, releases, authorized leaves, changesin housing assignments) should be reported sothat changes can be noted on the master countrecord.

Searches and Contraband Control

Searches are operational strategies for control-ling contraband and detecting conditions thatadversely affect security and the well-being ofstaff and inmates. The jail’s policies and proce-dures should detail criteria and methods forsearches of the following:

■ Inmates and their personal property.

■ Other people who enter the jail.

■ The facility.

■ Vehicles.

Contraband is generally defined as any itemthat is illegal or expressly prohibited within thejail. Contraband may include weapons, imple-ments of escape, intoxicants, money or otheritems of value that are prohibited, and other itemsnot issued or received by inmates through ap-proved channels. Contraband may also includeexcessive amounts of authorized items or author-ized items converted for an unauthorized use.Jail policies and procedures should list and de-scribe items considered to be contraband andaddress the manner in which discovered contra-band items are to be handled.

Inmate Searches Arrestees are searched on admission to the jail toensure that all personal property is removed andproperly secured and to enable a jail officer toassess their physical condition and remove anycontraband. Jail officers conduct frequent androutine searches of inmates subsequent to admis-sion primarily to control contraband obtainedwhile in custody.

Several types of searches can be conducted, withvarying levels of intrusiveness: pat or “frisk,”strip or body, and body cavity searches.

Pat or “frisk” searches. In a pat search, jailstaff touch and feel the inmate’s fully clothedbody to detect contraband. Pat searches may in-clude the use of a metal detector. Pat searchesare the least intrusive type of search and maybe conducted on a routine and random basis tomaintain security and control.

Strip or body searches. In a strip search, theinmate is required to remove all clothing. Jailstaff then visually inspect the inmate’s nudebody, including the outer areas of orifices andcavities. Jail staff also thoroughly search the in-mate’s clothing after the inmate has removed it.Strip searches should be conducted in a suitablyprivate area by jail staff of the same sex as theinmate.

Strip searches require reasonable suspicion thatan inmate possesses weapons, drugs, or othercontraband. Requiring all newly admitted in-mates to be strip searched on the assumptionthat they may be in possession of contraband isillegal. With regard to arrestees being admittedto the jail, reasonable suspicion of possessionof contraband must be determined on a case-by-case basis. Therefore, many arrestees accusedof nonviolent misdemeanors are excluded fromstrip searches. Reasonable suspicion is generallydeemed to be present under the followingcircumstances:

■ Current charges or previous convictions in-volving escape, drugs, weapons, or violence.

■ History of possession of contraband or pro-hibited property while in custody.

■ History of escape attempts.

■ Contact with the public or exposure to pub-lic areas after arrest.

■ Refusal or resistance to being pat searched.

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■ Discovery of weapons or drugs during a patsearch.

■ Alert by metal- or drug-detection devices.

■ Receipt of other reliable information that thearrestee may be in possession of drugs orweapons.

Jail officials have more discretion in strip search-ing an inmate already in custody. Circumstancesin which inmates in custody may be subject tostrip searches include the following:

■ After the inmate has been in contact with thepublic or on reentry into the security perim-eter after exposure to public areas.

■ After having access to tools, medical instru-ments, or kitchen utensils within the jail.

■ On discovery of contraband in the inmate’scell or living area.

■ On refusal of a less intrusive search.

■ After inmate involvement in a serious inci-dent in the jail.

■ On placement in segregation for disciplinaryreasons or for the inmate’s protection.

■ On receipt of reliable information that theinmate may possess contraband.

Strip search issues are a prime area of litigationas the courts continue to define and refine theconditions and circumstances under which theymay occur. Accordingly, you should stay currentwith case law.

Body cavity searches. Cavity searches involvethe manual or instrumental inspection of theoral, anal, and vaginal cavities. Cavity searchesmay only be conducted by medical professionalsand only to detect the presence of contraband.Cavity searches should be conducted privatelyand under sanitary conditions. Authorization forbody cavity searches must come from the jailadministrator or a designee and should only begiven when you have probable cause to believethe individual is concealing contraband after less

intrusive types of searches have failed to satisfythe safety and security needs of the facility.

The jurisdiction’s legal counsel should reviewthe jail’s body cavity search procedures. As partof this review, legal counsel should be asked toresearch any circumstances under which a searchwarrant would be required to conduct a bodycavity search.

Searches of Other People People other than inmates who may be author-ized to enter the jail include personal visitors(i.e., family and friends of inmates), official visi-tors (i.e., law enforcement personnel, lawyers,probation officers, inspectors), vendors, mainte-nance workers, volunteers, and contract serviceproviders. Policies concerning the search of non-inmates entering the jail should specify who canbe searched, under what circumstances, and bywhich method. The category of the individual,level of staff supervision provided, and areas ofthe jail to which the person is allowed access arefactors that affect these policy decisions.

In general, noninmates should be screened by ametal detector and required to leave unnecessarypersonal items outside the secure area of the jail.All tools and repair equipment brought in bymaintenance workers should be inventoried andsearched before being brought into the facilityand again when they are taken out to ensure thatthey are accounted for. When searches of non-inmates are authorized, pat searches may be re-quired to gain entry. If a more intrusive searchis deemed necessary, simply denying the personaccess to the facility may be more appropriate,but you must document the reasons.

Facility Searches The jail’s physical plant may be searched to dis-cover contraband, prevent accumulation of ex-cess items and clutter, and inspect facilities,equipment, and furnishings for possible tamper-ing, damage, or deterioration. Inmate housingareas and other common areas of the facility


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should be searched at least weekly according toa random pattern and schedule. Visiting rooms,holding cells, detoxification cells, observationcells, and other areas with frequent turnover ofoccupants should be searched before and aftereach use. Areas near the security perimeter, exer-cise yards, and visitor traffic areas should besearched regularly to discover items left forinmates.

Supplies and equipment for effective searchesshould be kept in stock. Typical search equip-ment includes flashlights, mirrors with extensionhandles, probes, protective clothing and gloves,forms for documenting search results, and plasticbags for securing contraband.

Vehicle Searches Agency vehicles used to transport inmatesshould be searched for contraband and messagesbefore and after each time an inmate is a passen-ger. Locks, grills, and other security devicesshould be checked carefully for evidence ofdamage or tampering.

Other Concerns Other concerns regarding searches and contra-band control include the following:

■ Items considered to be contraband and theconsequences for possessing contrabandshould be detailed in the inmate handbook.

■ Rules relating to contraband control andsearch procedures for visitors should beposted at visitor entrances of the securityperimeter.

■ Staff should know which items are consid-ered to be contraband.

■ Staff should be trained in the proper conductof personal, facility, and vehicle searches.

■ Jail policies and procedures should providefor the search of inmate mail as a contrabandcontrol measure. (See chapter 12, “InmateServices and Programs.”)

Control of Equipment and Supplies

Jail staff must maintain complete accountabilityfor and control of keys, weapons, tools, equip-ment, and supplies used in the jail. Failure todo so could result in inmates gaining access tomaterials that can facilitate escape or cause harmto themselves or others.

Key Control The jail must have an effective system for con-trolling the storage, issuance, and use of all keys.Jails typically use several categories of keys,which may have different accountability require-ments. Keys should be classified for one of thefollowing uses:

■ Regular-use keys, such as post or housingkeys, that are used frequently in daily oper-ations. Regular-use keys required for partic-ular posts are usually grouped on ringscommonly called key sets.

■ Restricted-use keys that allow access tocertain parts of the facility, such as commis-sary areas, property storage areas, offices,or the pharmacy. Restricted keys are issuedonly to staff working in those areas.

■ Emergency-use keys that provide rapidaccess to all areas of the facility in the eventof an emergency.

■ Permanent-issue keys assigned to staff,which they retain in their possession (e.g.,keys for staff locker areas and break rooms).

■ Nonissued/surplus keys, or spare keys thatare not in use but are available as backup.

■ Pattern keys from which all other keys fora particular lock or series of locks are cut.

All facility keys should be stamped with an iden-tification (ID) number. Maintain an accuratewritten inventory listing all facility keys cross-referenced with their corresponding locks andlocations.

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Keys should be issued from a central, securelocation in the jail (e.g., central control). Thedaily issuance and return of keys should be doc-umented in a log where the date, time, key orkey set number, and name of staff accepting/returning the keys are recorded. A list of all per-manently issued keys and the staff to whom theyare assigned should also be maintained. Regular-use keys should be stored in a secure key lockerwith hooks that easily display the presence orabsence of any key. Keys not issued in normaldaily operations should be stored separatelyfrom regular-use keys. Key sets issued to staffworking in inmate-occupied areas should notinclude keys to perimeter doors.

Emergency key sets should be stored in a securelocation accessible to staff who are responsiblefor their use in emergencies. Staff should befamiliar with the jail’s locking system and betrained in the use of emergency keys. Emer-gency keys should be notched for nonvisualidentification.

Repair or replace malfunctioning keys or lockspromptly. The jail’s security inspection processshould include regular inspection of locks to en-sure that they are working properly.

Jail staff should report missing keys to theirsupervisors immediately. A verbal report shouldbe followed by a written incident report describ-ing the missing key and the circumstances of theincident. If appropriate, initiate search proce-dures to locate the missing key.

Tool Control Tools are necessary for the repair, maintenance,and improvement of the jail. Tool control poli-cies may also encompass janitorial equipmentand kitchen utensils. Strict accountability fortools used in the jail must be maintained so thatthey do not fall into the hands of inmates, wherethey can become weapons or implements of

escape. An effective tool control program in-cludes the following elements:

■ A secure storage area for tools.

■ Methods for identification and inventory oftools.

■ Methods for issuance and return of tools tostorage.

■ Adequate supervision in the use of tools.

■ Measures for dealing with lost or misplacedtools.

Tools should be classified as “hazardous” or“nonhazardous.” When not in use, hazardoustools should be kept in a secure tool storage areaaway from inmate housing. Nonhazardous toolsused daily for housekeeping or simple mainte-nance may be kept in designated locked storageareas close to the areas in which they are used.

Tools should be marked with an ID numberwhere possible and stored in a manner that en-ables staff to easily determine whether items aremissing. Shadow boards, where silhouettes ofthe tools are depicted on a surface, are the pre-ferred method of storing many tools. Wheretools are shadowed, only one tool should beassigned to each shadow and the correspondingtool ID number should be listed on the shadow.

All jail-owned tools should be cataloged in awritten inventory, copies of which should bekept both in the tool storage area and with thefacility’s other inventory records. Inspect toolstorage areas regularly—preferably daily—toensure proper accounting of all tools. Conducta full tool control audit at least every 6 months.

The issuance and return of all facility-ownedtools in the tool storage area should be governedby procedure. The jail should maintain a toolcheckout log that includes the date and time ofissue, name of the receiving employee, name andID number of the tool, date and time of return,


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and name of the returning employee. The jailadministrator should identify staff who areauthorized to check out and use hazardous toolsin the jail.

Tools brought into the secure area of the jail bymaintenance personnel should be inventoriedbefore they are allowed within the security pe-rimeter and again when they are brought out ofthe secure area. Generally, security staff shouldescort nonjail maintenance personnel while theyare in the facility and instruct them in regard totheir responsibility for tool control. When main-tenance personnel leave, jail staff should inspectthe work area carefully to determine that notools or other materials have been left behindthat could be converted to contraband.

As with keys, jail staff should report missingtools to their supervisors immediately, write anincident report describing the missing tools andthe circumstances of the incident, and initiateappropriate search procedures to locate the miss-ing tools.

Control of Supplies and Hazardous Materials Jails should have control procedures in place toprevent waste or improper use of the wide rangeof supplies required for daily operations and in-mate care. The elements of an effective controlplan are similar to those of the tool control plandescribed above: secure storage, identificationand inventory of approved items, appropriatemethods for issuance, supervised use, trainingfor users, and contingency measures for dealingwith problems—particularly those involving haz-ardous materials.

Jails may have a central storeroom located awayfrom inmate housing areas for storing bulk sup-plies or items that are not regularly needed. Ac-cess to a central storeroom is generally limitedto staff who are responsible for the area. Limitedaccess reduces problems in controlling the pro-curement, issuance, and use of supply items

stored in the central storeroom. The issuanceof supplies from the central storeroom to variousareas or programs in the jail should be governedby procedure, and the storeroom should maintainaccurate records of its supply inventories.

Because of the specialized nature of food andmedical supplies, separate storage areas underthe direct control of food service or medical per-sonnel are typically designated for these items.The control methods described in this sectionapply to these areas as well.

Supply items used regularly (e.g., paper towels,forms) should be available in storage areas closeto where they are used. These storage areasshould be under the direct control of jail staff incharge of the particular area and equipped withshelves for the storage of supplies delivered incontainers. Supplies should be clearly labeled,and directions for use should be posted on thecontainers. The jail administrator should deter-mine the amount and type of supplies assignedto each storage area. The officer in charge of thearea should submit requisitions for replenish-ment of supplies on a scheduled basis.

Supplies available from storage areas shouldbe issued by the officer in charge of the area orwork team. Only the amount of supplies requiredor authorized should be issued. When necessary,inmates should be instructed in the proper use ofthe supplies. Staff should monitor inmates usingjail supplies.

Some supplies used in jails, such as cleansers,may be classified as flammable, toxic, or caustic.The number and type of hazardous materialsused in the facility should be kept to a minimum,and nonhazardous alternatives should be select-ed, if possible. The use and disposal of haz-ardous materials should be governed by strictcontrols. All hazardous materials must be storedin secure locations inaccessible to inmates andinventoried closely. A permanent log document-ing the receipt, issuance, and return of any

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hazardous material should be maintained inevery storage area in which hazardous materialsare kept.

Other issues regarding the control of hazardousmaterials include the following:

■ Appropriate labeling of containers. Con-tainers holding hazardous materials must belabeled or marked with the identity of thehazardous material contained within andmust display hazard warnings appropriatefor user protection.

■ Availability of material safety data sheets.Material safety data sheets (MSDS) avail-able from manufacturers or producers ofhazardous materials must be maintained foreach product used in the facility. OSHA reg-ulations specify that MSDS must be readilyavailable to employees on all shifts in thework area where the materials are used.Storage areas, issue points, use areas, andthe health-care area are typical locationswhere MSDS may be maintained.

■ Staff training. Staff should be trained in thehandling and use of hazardous materials.

■ Inmate training and supervision. Beforebeing allowed to use hazardous materials,inmates should be trained in how to usethem properly and the necessary safety pre-cautions. When using these materials, in-mates should be supervised by a trainedemployee.

■ Provision of safety equipment. The jailmust provide those using hazardous materi-als with the protective or safety equipmentrequired in the manufacturer’s directions.

■ Availability of first-aid supplies. Equipmentand supplies necessary for emergency first-aid treatment resulting from exposure to haz-ardous materials must be readily available.

■ Regular inspections. Regular inspectionsof all storage and issue areas should be

conducted to ensure the proper handling ofhazardous materials.

■ Immediate reporting of all incidents. In-cidents involving hazardous materials shouldbe reported immediately to supervisory staff.

Weapons Control Designated weapons and security equipmentmust be available to respond to major incidentsand emergency situations in the jail. The storage,maintenance, and use of these items must becarefully controlled to prevent unauthorizedaccess and inappropriate use by staff or otherindividuals.

All weapons and security equipment assigned tothe jail should be stored in an arsenal, vault, orother secure area under lock. The arsenal shouldbe under the direct control of a single designatedjail employee, with access to the area limited toauthorized personnel. The arsenal should containonly the weapons, chemical agents, and equip-ment that the jail administrator has specificallyapproved. Current copies of a master written in-ventory of all weapons and security equipmentmaintained in the arsenal should be kept both inthe storage area and with administrative records.An accounting procedure for the issuance andreturn of all weapons should include a log thatspecifies the name of the person receiving theequipment, the name of the issuer, the time anddate of issue and return, the type of weaponissued with the ID number, and signatures forverification.

Weapons and security equipment should beinspected and inventoried at least monthly toaccount for all items and to determine their con-dition and expiration dates. Malfunctioningequipment should be repaired or removed fromthe inventory. Expired chemical agents andammunition should be removed from the arsenaland disposed of according to jail policy and, ifappropriate, local health department policy.


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Except in emergency situations, no firearmsshould be permitted within the security perim-eter. Chemical agents and other types of weaponsand security equipment authorized by policy tobe kept within the security perimeter should bestored in secure areas inaccessible to inmates.Give careful consideration to policy decisionspermitting chemical agents or other nonlethalweapons within the security perimeter otherthan for emergency situations. The need forimmediate access to and potential use of theseitems should be clearly understood. Regardlessof where they are kept, the decision to useweapons in an emergency situation and thetypes of weapons to use should be made bythe jail administrator or a designee.

Weapons lockers should be available at entrancesto the security perimeter for the temporary stor-age of weapons belonging to law enforcementofficers who must enter the facility. A notice thatweapons are prohibited within the security perim-eter should be posted at perimeter entrances.

Jail staff designated to use weapons or securityequipment must be trained and certified in theiruse. Jail policy should stipulate that any use ofweapons, chemical agents, or other securityequipment in emergencies must be thoroughlydocumented in a written report.

Use of Force and Restraints

To maintain security and order in the jail, staffmust sometimes use force, security equipment,and restraints to control an inmate or group ofinmates. You must balance the use of force andrestraints as security measures against the jail’sobligation to safeguard the rights of inmates tobe free from harm caused by excessive or inap-propriate physical interventions.

Use of Force The following are general circumstances inwhich the use of force by jail staff may beauthorized:

■ Defending oneself from assault by an inmate.

■ Defending an inmate, visitor, or other jailofficer from an assault by an inmate.

■ Preventing an inmate from causing seriousproperty damage.

■ Preventing an inmate from escaping.

■ Preventing or stopping violent behavior.

■ Preventing an inmate from inflicting self-harm.

■ Controlling an inmate who refuses to obeyjail rules governing conduct.

As a general rule, force may be used only whenabsolutely necessary, that is, as a last resortwhen all other reasonable efforts have failed toresolve a problem. Officers should be trained touse only the minimum force necessary to controla given situation. Force should never be used asa method of punishment or retribution. In re-viewing cases alleging improper or unjustifiableuse of force, courts consider the followingelements:

■ The officer’s perception of the circumstancesand the risk presented by the inmate.

■ The actions of the inmate.

■ The officer’s selected force response, giventhe facts and circumstances confronting himor her at the time.

Jail policies and training should define what lev-els of force are authorized, the conditions underwhich each level of force may be used, and whomay authorize it. Many jails adopt force continu-um models that attempt to match the officer’s

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perception of a situation and the inmate’s actionswith an appropriate force response. These mod-els typically include four or five levels that in-corporate varying levels of force or control withvarying degrees of resistance.

When force is used to control an inmate, boththe inmate and the staff members should receivefollowup medical attention. All use-of-force inci-dents should be thoroughly documented and in-vestigated. Doing so will help you determinewhether the use of force was justified and whetherthe level of force was appropriate for the particu-lar incident. Regularly reviewing reports of inci-dents involving the use of force can also help youidentify the need for possible changes in policyor procedure, additional training, additionalsupervision of staff, staff disciplinary action, orchanges in the physical plant or programming toprevent similar situations in the future.

The agency’s legal counsel should review use-of-force policies and procedures before they areimplemented. Jail staff should receive basic andrefresher training in use-of-force techniques andprocedures. Jail staff authorized to use weaponsor chemical agents in use-of-force situationsmust be trained and certified in the use of thatequipment.

Use of Restraints Inmates may be placed in restraints in conjunc-tion with an incident involving the use of force.Restraint equipment may also be used as a pre-cautionary measure to prevent escape of inmatesunder escort and to prevent harm to inmates,other people, or property. Restraints shouldnever be used as a method of punishment or ina way that inflicts pain or restricts an inmate’sblood circulation or breathing.

When prolonged use of restraints is necessaryto control dangerous or threatening conduct, theleast restrictive method should be used, the levelof restriction being determined by past or current

conduct. Decisions to use restraints to preventinmates from harming themselves should bemade in conjunction with medical personnel.Medical personnel should also be available toassess the condition of inmates placed in four-point restraints in bed or by means of a restraintboard or chair. Inmates in restraints should bemonitored by staff constantly and checked forimpairment of circulation or other problems.

The continued use of restraints should be ap-proved by supervisory staff, who should checkperiodically to determine whether the inmate canbe released from restraints or restrained less re-strictively. When extended use of restraints isnecessary, jail policy should require the jail ad-ministrator or designee to review the situation.

The use of restraints, other than for routine es-cort, should be thoroughly documented. Docu-mentation should include all noteworthy actionsor events during the restraint period, such asstaff checks, medical reviews, inmate behaviorand responses, and changes in position, as wellas basic information such as time and date, typeof restraint used, and the reason for the use ofrestraints.

Following are some important considerations inthe use of force and restraints in jail settings:

■ Control of devices. All restraint devices andelectronic disablers should be controlled. Ifjail officers have ready access to variousdevices, they may be prone to use them un-necessarily. Jail officers also should be pro-hibited from altering a manufactured productto create a makeshift device that may bedangerous.

■ Manufacturer’s training literature. Mostdevices come with the manufacturer’s train-ing literature or warnings. Training must beconsistent with this literature. If the manu-facturer does not provide training literaturefor a device, training in the use of the device


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should be consistent with best practices forsafety.

■ Prevention of asphyxia. Jail officers shouldnot hog-tie inmates by cuffing them behindthe back, shackling their ankles, and thenconnecting them with a tie. Doing so canlead to positional asphyxia. Jail officersmonitoring the vital signs and circulation ofan inmate in a restraint chair should neverplace an object such as a towel over the headof the inmate to prevent him or her fromspitting; doing so could lead to asphyxia.Commercially available “spit shields,” orhelmets with face shields, are available foruse in these circumstances.

■ Suggested devices. Devices that are recom-mended for jail restraints include the restraintchair, cuffs, and shackles. Suggested dis-ablers include oleoresin capsicum (pepper)spray and electronic devices. When disablersare used, be sure that medical care is accessedand that decontamination procedures areaccomplished.

■ Accessibility of devices. Store use-of-forcedevices in areas where use of force is mostlikely to occur, such as intake and specialmanagement areas, or any other area in thejail where their need may arise.

Inmate Movement and Transportation

Inmate movement refers to the movement ofinmates internally from one area of the jail toanother to access services, participate in pro-grams, receive visitors, and so forth. Inmatetransportation refers to the external transportof inmates, generally by agency vehicle, outsidethe security perimeter of the jail for court appear-ances, community appointments, or transfer toanother facility. The jail should establish proce-dures to respond to the increased security riskspresented by inmates during these types ofmovement.

All internal movement should be monitored tomaintain accountability of inmates while theyare outside their assigned housing units. Policymay permit certain categories of inmates, indi-vidually or as a group, to move unescortedbetween specific areas of the jail. The accounta-bility of inmates in unescorted movement maybe maintained by a pass system in which in-mates are issued passes giving the details ofthe authorized move. If not part of the routineschedule, movement on a pass may be precededby a phone call to the inmate’s destination.

Policy may require inmates in higher risk cate-gories to be escorted—under certain circum-stances, in restraints. Alternative methods ofservice delivery may also be used for these in-mates to minimize the need for them to moveoutside their housing unit. Observation of inmatemovement, whether escorted or not, may be sup-plemented through video surveillance of move-ment corridors.

Staff should have a means to positively identifyinmates before they move in and out of theirassigned housing units. All movement in andout of housing units should be documented bythe staff responsible for the units. Criteria forsearching inmates before removal from or returnto their assigned housing units should be estab-lished by policy.

The jail should have an adequate supply of re-straint equipment and properly equipped vehi-cles for the transport of inmates. All inmatesbeing transported outside the security perimetershould be placed in restraints according to policyand their classification level and should be posi-tively identified and thoroughly searched beforeleaving the facility and on their return. Transportstaff should plan a travel route along with analternative in case of emergency and be awareof particular security risks and behavior prob-lems presented by the inmate being transported.

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Transport staff should use all equipment speci-fied by policy and adhere to transport proceduresestablished for movement of inmates accordingto their classification. Transport staff should betrained in transport procedures and in the use ofequipment necessary for transports. Transportvehicles should be thoroughly checked for con-traband both before and after transport.

Security Inspections

Inspections are an integral part of the jail’s se-curity program. They constitute a systematic

method for assessing the condi-tion of security features of thephysical plant, the proper func-tioning of security devices, andadherence to appropriate secu-rity practices. Inspections arealso a means to detect breachesor weaknesses in jail security.

The process should provide forregular inspection of all areasof the facility, including inmatehousing, program areas, sup-

port services areas, intake and release areas,administrative areas, the public lobby, parkingareas, exterior grounds, the security perimeter,and mechanical services and shop areas. Theseareas should be grouped into manageable inspec-tion zones. Staff who work in and are familiarwith the areas included in the respective zonesshould be responsible for inspecting them.

Inspections should focus on the security features,devices, and operations within each zone. Thefollowing are items to be inspected in each area:

■ Locks.

■ Security fittings such as screws, bolts,hinges, and brackets.

■ Doors, gates, screens, grills, access panels,etc.

■ Walls, windows and window frames, bars,mullions, ceilings, and floors.

■ Drains, ductwork, tunnels, etc.

■ Perimeter walls, fences, detection and sur-veillance systems, security lighting, etc.

■ Fire and safety hazards, hidden contraband,excess or unauthorized property, clutter, etc.

Inspection intervals should be established forvarious features. Some features may require in-spections during every shift, whereas others maybe inspected on a daily, weekly, or monthlybasis. The interval for each of the features needsto be determined and indicated on appropriateinspection forms. For example, separate check-lists may be developed for daily, weekly, andmonthly inspections.

Use various inspection techniques to conductthorough security inspections, including the fol-lowing methods:

■ Visually examining, tapping, and probing todetect evidence of wear, deterioration, ortampering.

■ Testing and operating various security de-vices to make sure they are in proper work-ing order.

■ Interviewing staff to learn of any unreportedproblems.

■ Reviewing documentation such as mainte-nance reports and work orders.

Inspection procedures should specify the appro-priate method for each type of security feature.The jail should provide the equipment (e.g., mir-rors, probes, mallets, protective clothing) neces-sary to execute the various inspection methods.

The inspection process should be supported byinspection forms that list each feature to be in-spected. The forms should include space to doc-ument the name of the area inspected, time anddate of the inspection, inspection results, andname of the person conducting the inspection.Forms should also be available to document


Complete a comprehen-sive security audit ofthe jail. Identify defi-ciencies in facilities, sys-tems, equipment, orpractices that mayadversely affect securityin the jail. Develop anaction plan to resolvedeficiencies.


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followup action taken to resolve deficienciesdiscovered during security inspections.

Inspection procedures should detail the dis-position of the inspection reports. The reportsshould be forwarded to the supervisory staffresponsible for reviewing and acting on theinspection findings. Immediately report criticalbreaches in security discovered in the inspec-tions so that further investigation and action canbe taken without delay. A process should alsobe in place for prompt resolution of noncriticalsecurity problems.

Staff involved with security inspections shouldbe trained in the jail’s inspection policies andproper inspection techniques. Training shouldprovide the knowledge and skills needed to con-duct effective security inspections.

Summary

A physical plant with security features that cor-respond to the level of custody of the inmatepopulation, availability of properly trained staff,and written policies that reflect sound securitypractices are essential components of effectivejail security. Deficiencies in one or more of theseareas can lead to escapes or other disruption offacility order and security.

Jail Safety

Like any work environment, the jail has hazardsthat can endanger staff, inmates, or others whoare in the facility. These hazards may be inherentwithin the jail setting or created by the activitiesor behavior of those occupying the facility. Thefollowing are the most common categories ofhazards present in the jail:

■ Chemical exposure from inappropriate useor handling of toxic or caustic substancesoften contained in common cleaning materi-als, insecticides, pharmaceuticals, tobaccosmoke, caustic acids, antifreeze, or chemi-cals used in the operation of equipment.

■ Fire and explosions from fires intentionallyset by inmates, spontaneous ignition of flam-mable materials, accidental ignition resultingfrom worksite activities, or ignition fromheat generated by defective electrical wiringor malfunctioning equipment.

■ Biological hazards, including blood-borneand airborne pathogens transmitted from in-fected people to others or from vermin orinsects. Unsanitary facility conditions canalso breed disease.

■ General safety hazards such as holes orcracks, slippery floors, sharp objects, unsta-ble surfaces, and clutter.

■ Noise associated with normal living andwork activity, often amplified by surfacesconstructed of hard materials that do notallow sound to dissipate.

■ Violence, which includes violent acts of in-mates and others directed toward staff orother occupants of the facility.

The combination of these conditions can resultin an environment with various hazards thatmust be eliminated or managed.

The primary responsibility for ensuring thesafety of the jail environment lies with the jailadministrator. The administrator must plan, im-plement, and monitor an effective program toreduce the potential for fire, injury, and otherevents that can cause harm. A safety programmust provide comprehensive protection againstall potential hazards and specific protectionagainst known hazards. Furthermore, the pro-gram must be updated as new information andconditions warrant.

Effective jail safety programs include the follow-ing elements:

■ Management commitment.

■ Employee involvement.

■ Assigned responsibility and authority.

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■ Worksite analysis.

■ Hazard prevention and control.

■ Written policies and procedures.

■ Safety and health training.

■ Internal inspections by trained staff andindependent inspections by external auditors.

■ Recordkeeping and evaluation.

These elements are described in more detail inthe following sections.

Management Commitment andEmployee Involvement

The jail administrator provides the motivatingforce and resources necessary for organizing andmanaging safety activities within the jail. Theadministrator must regard the safety of inmates,staff, and visitors to the facility as a fundamentalvalue of the organization. Demonstrate this com-mitment in the following ways:

■ Establish workplace safety as an organiza-tional priority.

■ Exhibit equal commitment to the safety andhealth of staff and inmates.

■ Assign responsibility for various aspects ofthe safety program to ensure that all staffunderstand their obligations.

■ Allocate the resources needed to meet safetyobjectives.

■ Maintain a system of accountability to seethat all aspects of the safety program arefollowed.

■ Support and implement recommendationsfrom designated safety and health officers.

Employee involvement is the means throughwhich workers develop and/or express their owncommitment to safety through compliance with

established policies. Employee involvementincludes the following:

■ Understanding and complying with safetyrequirements and procedures.

■ Successfully completing required safetytraining.

■ Reporting safety problems promptly andoffering suggestions for safety programimprovement.

■ Assisting in resolving identified safetyproblems.

■ Avoiding unsafe work practices.

The jail administrator should establish safetyobjectives delineating the goals of an effectivesafety program. Examples of objectives for thesafety program include reductions in the follow-ing items:

■ The number of injuries and accidents involv-ing staff or inmates.

■ The number of workdays missed due toinjuries or accidents.

■ The amount of workers’ compensationclaims paid.

■ The cost of medical services provided toinmates as a result of accidents or injury.

These objectives should be shared with the entirestaff to gain their input and support.

Assigned Responsibility and Authority

Responsibility and authority to oversee the safe-ty program should be assigned to a designatedsafety officer with the appropriate training andskills. The administrator should ensure that thesafety officer has adequate resources for theassignment and the opportunity to develop ex-pertise in safety program management.


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The safety officer should have copies of all safe-ty regulations and standards that apply to thejail, including the following:

■ Professional and state jail standards.

■ OSHA standards.

■ Fire codes.

■ The National Fire Protection Association(NFPA) Life Safety Code.

■ Building codes.

These standards are necessary as reference mate-rial and as benchmarks for internal inspections.Standards also help determine which changesneed to be made when hazards are discovered.

The safety officer should be trained in the appli-cation of these regulations and standards to thejail setting and, as needed, in the use of appro-priate instruments for measuring and document-ing compliance. Training is often available frominspection authorities, private organizations suchas NFPA (www.nfpa.org), and safety programswithin private industry in the community.

Worksite Analysis

A worksite analysis involves step-by-step ex-amination of the workplace to find existing orpotential safety hazards. This analysis typicallyincludes the following steps:

■ Reviewing procedures and operations thatmay contribute to hazards and reviewingspecific areas of the facility where hazardsmay develop.

■ Reviewing medical, safety, incident, work-ers’ compensation, and insurance records toidentify problem areas and trends.

■ Surveying staff to learn about what theyview as potential hazards, how well theythink current safety measures are working,and their ideas for improving safety in thejail.

■ Inspecting the facility to visually identifyhazards and risk factors.

The information gathered in a worksite analysishelps assess the strengths and weaknesses of theexisting safety program. If the analysis identifiesa major problem, immediate corrective actioncan be taken or a plan developed for controllingthe problem. Corrective measures should bedocumented.

Hazard Prevention and Control

Systems and procedures to prevent and controlhazards identified in the initial analysis shouldbe established. Hazard control may include thefollowing measures:

■ Eliminating the hazard or condition.

■ Diminishing the hazard by limiting or con-trolling exposure.

■ Training staff (and inmates) to be awareof hazards and follow procedures to avoidthem.

■ Providing protection against the hazard.

Implementing these measures may involve thefollowing actions:

■ Modifying the physical plant.

■ Ensuring that each employee thoroughlyunderstands his or her job and work process.

■ Enforcing rules for safe work procedureswhen necessary.

■ Maintaining equipment to prevent break-downs that can create hazards.

■ Conducting regularly scheduled drillsand simulations to prepare for possibleemergencies.

■ Providing protective equipment and trainingfor staff in the proper use of the equipment.

Keeping the jail clean contributes significantly tohazard prevention and control. Poor housekeep-ing not only contributes to accidents and an

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unhealthy environment but also communicatesto inmates and staff a lack of concern about thequality of the jail environment and a tolerancefor sloppy work. Jail staff should get rid of rub-bish, make sure proper containers are provided,see that flammable items and toxic or causticmaterials are properly stored, and make surethat exits are not blocked and passageways aremarked and adequately lighted.

Jail staff should also be aware of potentially haz-ardous situations that inmates create throughcarelessness or misbehavior. Studies show thatinmates deliberately set most jail fires. The jail’sinmate behavior management plan should sup-port the safety program by screening and identi-fying inmates who present potential risks forarson or escape and those who may be emotion-ally disturbed. Inmates who present particularrisks should be assigned to appropriate housingand monitored carefully.

Written Policies and Procedures

Written policies and procedures addressing allaspects of the safety program should be estab-lished to communicate the jail administrator’spriorities regarding safety management and de-scribe the methods for following through onthose priorities. Proper recordkeeping shouldbe a key feature of the policies and procedures.

Safety and Health Training

Employees, supervisors, and managers should begiven initial and ongoing training in all aspectsof the safety program. Although policies andprocedures are the core of an effective healthand safety program, training is essential to en-sure that they are implemented. Safety andhealth training should cover topics such as thefollowing:

■ Safety-related policies and procedures.

■ Risk factors that cause or contribute to anunsafe work environment.

■ Recognition of safety hazards or unsafework practices or situations.

■ Ways to avoid hazards or minimize exposure.

■ A response plan for hazardous situations,including availability of assistance, responseto alarm systems, and communicationprocedures.

■ The location and operation of safety devicesand alarm systems.

■ Use of protective clothing and equipment.

■ Reporting and documenting hazardoussituations.

■ How to obtain medical care, counseling,workers’ compensation, and other assistanceafter an accident or injury.

Qualified jail staff may conduct training on safetypolicies and procedures. For training on specificcontent areas such as the control of blood-borneand airborne pathogens or skills such as the useof fire extinguishers, consider soliciting assis-tance from the local fire department, state firemarshal’s office, OSHA state consultation pro-gram, state and local health departments, cor-rections training agencies, and professionalorganizations.

Inmate training and education are also critical,given that inmates are the other primary users ofthe facility. Inmate orientation should include in-formation about the dangers of smoke, fire, andother hazards within detention facilities. The in-formation should include behavior expected ofinmates to prevent or minimize hazard exposureand actions they can take to protect themselves ifan incident occurs.

Internal and External Inspection Processes

A system of routine internal and external inspec-tions should be established to identify wherehazards exist and whether they are under control.


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Internal inspections should cover the following:

■ Sanitation.

■ Fire safety.

■ Security.

■ The building itself and the heating/ventilation/air-conditioning, electrical,plumbing, and other building systems.

Fire, safety, and sanitation inspections are oftencombined into one activity and checklist. Gen-erally, these combined safety and sanitation in-spections should ensure the following:

■ All areas of the jail are clean and orderly.

■ Lighting, ventilation, and heating equipmentare functioning properly.

■ No fire, health, or safety hazards exist.

■ All detection and suppression systems,equipment, tools, and security devices arefunctioning properly.

■ All inmates are receiving appropriate super-vision and training in the use of hazardousmaterials, equipment, and tools.

■ All plumbing equipment, including showers,sinks, toilets, and laundry facilities, is func-tioning properly.

■ All identified deficiencies are promptly re-ported and corrected.

Checklists that include items and locations uni-que to the facility should be developed for use ininternal inspections. Procedures should exist forrecording and reporting findings and followup tocorrect deficiencies. Many standards require aweekly inspection by a designated staff person,a monthly inspection by a qualified fire and safe-ty officer, and an annual inspection by independ-ent, qualified auditors. Designated staff shouldconduct daily spot inspections in their respectivework areas and note their findings in a log.Also, employees should have a means to report

hazards not discovered duringroutine inspections. Some jailsestablish a safety committee towork with the safety officer toaddress identified issues.

Several external regulatoryagencies may inspect the jailfor various safety-relatedissues. External auditors mayinclude jail inspection agen-cies, the fire marshal, the health department, andstate OSHA agencies. The findings of these in-spections are a good source of information onareas needing attention. You should establishgood working relationships with these entities totake advantage of the expertise and complianceassistance they may offer.

Recordkeeping and Evaluation

Recordkeeping and evaluation are necessary todetermine the overall effectiveness of the safetyprogram and to identify areas for improvement.All aspects of the safety program should be doc-umented. Proper documentation includes poli-cies and procedures, inspection findings, workorders, corrective action, incidents, training ses-sions, memorandums, and information aboutpotential hazards. Good documentation does thefollowing:

■ Provides evidence of adherence to standardsto demonstrate good faith if the jail is chal-lenged in an audit or lawsuit.

■ Facilitates periodic evaluation of the jail’ssafety activities for better control of opera-tions and to plan improvements.

Evaluation is also a key element of the safetyprogram. Safety program evaluations should in-clude the following components:

■ Establishing a uniform reporting system forsafety-related incidents and regular review ofreports.


Establish an internaland external inspectionprogram to routinelymonitor security andsafety in the jail. Con-duct drills regularly totest emergency re-sponse capabilities.

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■ Analyzing trends and rates in illnesses, in-juries, missed work, and medical costs totrack changes from previous review periods.

■ Measuring improvement based on loweringthe frequency or severity of safety-relatedincidents.

■ Reviewing compliance with OSHA and othersafety-related standards and regulations.

■ Assessing the impact of operational or work-site changes to determine their effectiveness.

■ Keeping abreast of new strategies to improvesafety in the jail.

Summary

The nature of the detention setting and its func-tion presents many unique challenges in main-taining the safety of those in the facility.

Development of an effectivesafety program for the jaildemands a multifacetedapproach that incorporatesphysical plant and equipment,personnel, policies and proce-dures, inmate managementand supervision, and educa-tion and training.

Emergency Preparedness

Despite all efforts to maintaina safe and secure operation,emergencies can arise in thejail. An emergency is definedas any significant disruption of

normal facility routine or order caused by riot,escape, fire, natural disaster, employee action, orother serious incident. Emergency situations canresult in serious harm to people and property.Accordingly, you must make emergency pre-paredness a priority.

Emergency preparedness in jails serves threepurposes:

1. Prevention or minimization of emergencysituations.

2. Containment of emergency situations be-fore they escalate into major incidents ordisasters.

3. Mitigation of the consequences or amount ofharm resulting from an emergency.

A comprehensive emergency response plan isthe foundation of emergency preparedness. Aneffective jail emergency response plan shouldinclude the following components, which arediscussed below:

■ Risk assessment and control.

■ Organization and coordination of emergencyresponse.

■ Emergency plans.

■ Equipment and resources.

■ Training and drills.

■ Recovery.

■ Reporting.

■ Review.

Risk Assessment and Control

The jail should conduct a risk assessment toidentify the types of emergencies that couldoccur in the facility and the likelihood and cir-cumstances under which each type of emergencymight occur. The following strategies can beused for risk assessments:

■ Brainstorming emergency scenarios.

■ Surveying staff.

■ Reviewing operations and procedures.

■ Reviewing past incidents and emergenciesthat occurred in the jail.


Conduct a comprehen-sive safety audit of thejail. Identify safetyhazards and developstrategies to eliminate,minimize, or control thehazards. Develop a safe-ty program, and desig-nate a safety officer tooversee the program.Provide the leadershipand resources necessaryfor the program to beeffective.


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■ Conducting walk-throughs of the facility tovisually identify potential problems.

■ Bringing in external experts to conductevaluations or audits of the facility.

■ Reviewing the experiences of otherjurisdictions.

After a risk is identified, you should determinethe likelihood that it will occur and under whatcircumstances. The following scale can be usedto rank the likelihood of an emergency:

■ Rare: The emergency may only occur inexceptional circumstances.

■ Unlikely: The emergency could occur atsome time.

■ Moderate: The emergency will probablyoccur at some time.

■ Likely: The emergency will probably occurin most circumstances.

■ Almost certain: The emergency is expectedto occur in most circumstances.

Although likelihood of occurrence is an impor-tant dimension of risk, it is not the only one.Assessing the extent of the exposure—that is,determining the severity of the consequences if

the emergency should occur—is also important.The following scale can be used to rank thepotential consequences of an undesirable event:

■ Insignificant.

■ Minor.

■ Moderate.

■ Major.

■ Catastrophic.

An exposure ranked as “insignificant” would beone in which no harm is done, losses are low,and disruption to normal jail operations is mini-mal. An exposure ranked as “catastrophic,” onthe other hand, would be one resulting in deathor major injury, enormous losses, and major dis-ruption to normal operations.

Identify risk priorities by developing a risk matrixthat includes both dimensions of likelihood andconsequences. A level of risk—high, significant,medium, or low—can be assigned on the basisof how the rankings of these two dimensions fallout on the risk matrix shown in exhibit 11.

After the range of potential emergency situationsis identified, appropriate strategies for eliminat-ing or mitigating the risks associated with

Exhibit 11. Risk Matrix

Likelihood ofEmergency Insignificant Minor Moderate Major Catastrophic

Rare Low Low Medium Significant Significant

Unlikely Low Low Medium Significant Significant

Moderate Low Medium Significant High High

Likely Medium Significant Significant High High

Almost certain Medium Significant High High High

Consequences (Level of Risk)

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particular types of emergencies can be devel-oped. Control measures may include thefollowing:

■ Removal of hazards/conditions that increasethe likelihood and/or consequences of anemergency (e.g., removal of clutter thatincreases fuel load or inhibits promptevacuation).

■ Improvement or redesign of the facility (e.g.,improved sight lines, installation of sprinklersystems).

■ Additional resources (e.g., additionalstaffing, emergency equipment, inter-agency coordination).

■ New methods (e.g., revision of policies andprocedures to reflect innovative or moreeffective prevention and containmentstrategies).

■ Better supervision of both staff and inmatesto ensure compliance with facility rules andprocedures.

■ Additional training and drills to increaseskill and competency levels in detecting andresponding to emergency situations.

■ Systematic inspections and reviews to detecthotspots or other problems that could eruptinto emergency situations.

Organization and Coordination ofEmergency Response

During an emergency, a clear process for deci-sionmaking, staff assignment, and resource deployment is essential. Emergency responsepersonnel may include regular on-duty staff, des-ignated emergency response staff, agency super-visory staff, and emergency response personnelfrom cooperating agencies. An organizationalstructure that establishes the chain of command

and delineates the roles and responsibilities ofall personnel is an integral part of an emergencyresponse plan. Emergency plans should specifythe level of response authority delegated to theon-duty supervisor to activate the emergencycommand structure when a crisis occurs. Thelevel of authority of various command staff with-in the official chain of command should also beestablished.

Emergency plans should provide for the activa-tion of a command post that can serve as a cen-tral location for assignment and deployment ofstaff, decisionmaking, communications, and in-formation management when a situation seemslikely to develop into an emergency.1 Plannedstrategies for assembly and assignment of re-sources should also be in place. Designated staffresponding to an emergency should know whereto go to be briefed on the situation and to receiveequipment and assignments, as necessary. Thecoordination of emergency response effortsshould also provide for continued operation ofthe parts of the facility that are unaffected bythe emergency.

The jail should enter into written agreements orcontracts to formalize the participation and in-volvement of external emergency responderssuch as the fire department, hazardous materialsteam, emergency medical services, and law en-forcement. External responders should partici-pate in planning and training activities at the jailto enhance coordination efforts.

Emergency Plans

Jail policies and procedures should include writ-ten plans for responding to emergencies. Theseplans should direct the actions of jail staff incontaining and controlling emergencies; provide

1 J.D. Henderson, W.H. Rauch, and R.L. Phillips, Guidelines forthe Development of a Security Program, 2d ed. (Lanham, MD:American Correctional Association, 1997), p. 182.


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for the protection of staff, inmates, and visitorsduring emergencies; and provide for the mainte-nance of security during emergencies. Many jailshave a general emergency response plan thatoutlines policies and procedures common to alltypes of emergencies. That plan is supplementedby specific written plans that address a range ofpredefined emergency situations, including thefollowing:

■ Outside assault on the facility.

■ Bomb threat.

■ Escape.

■ Fires.

■ Environmental contamination.

■ Hostage situations.

■ Medical emergencies, death of inmates, andepidemics.

■ Natural disasters (e.g., floods, earthquakes,tornados, hurricanes).

■ Riots and disorder.

■ Mass arrests and civil disturbances.

■ Utility failures.

All specific emergency response plans shouldinclude the following components: prevention,notification, specific procedures for the controland containment of the emergency, recovery,reporting, evaluation, and training.

Jails must also have basic plans for evacuationin the event of emergencies. Although evacuationplans may vary, depending on the type of emer-gency, the physical plant, and response capabili-ties, all plans should include the followingelements:

■ Designated areas of refuge and/or emer-gency shelter.

■ Posted primary and secondary exit routes.

■ Procedures to account for all inmates, staff,and visitors in the facility.

■ Staff assignments and duties duringevacuation.

■ Control of access points.

■ Security of jail records.

■ Security of the facility after evacuation.

Equipment and Resources

Jails should have the equipment and resourcesnecessary to respond effectively to emergencysituations and carry out emergency responseplans. The basic types of equipment and re-sources are as follows:

■ A communication system to notify law en-forcement, the fire department, and otherlocal emergency responders of an emergencyin the jail. Internal communication systemsshould also be in place to alert staff to emer-gencies in situations where issuing a generalalarm is not appropriate.

■ An alarm system within the jail to alertstaff, inmates, and visitors of an emergency.

■ A fire detection and suppression system,including sprinkler systems, strategicallylocated fire extinguishers, standpipes, andother fire-fighting equipment, to detect andextinguish fires in early stages.

■ Emergency generators to provide an alter-native source of power to essential systemsin the event of commercial power loss.

■ Emergency keys coded for quickidentification.

■ Protective equipment needed by staff andother emergency responders (e.g., protectiveclothing, gloves, breathing apparatus, securi-ty equipment, authorized weapons).

■ An emergency response team made up ofdesignated supervisory and line staff whocan be mobilized to assist on-duty staff inresponding to emergency situations.

■ External agency agreements providing forassistance during emergencies by outsideemergency responders.

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■ Floor plans and other documentation withinformation such as facility layout, locationof emergency utility cutoffs, secondary fireaccess doors, emergency access routes, fireextinguishers, and standpipe locations. Thisinformation should be readily accessible toresponse personnel in emergencies.

Training and Drills

Training and drills are critical to emergency pre-paredness. Training should extend to staff, in-mates, and emergency response agencies.

■ Staff should be given initial and refreshertraining in the execution of emergency plansand the use of emergency equipment anddevices.

■ Supervisory staff and staff specialists shouldreceive more indepth training in their respec-tive areas of responsibility (e.g., commandand control, hostage negotiation, mediarelations).

■ On admission, as part of the orientation proc-ess, inmates should be given informationabout relevant portions of emergency plans.This information should also be included inthe training inmates receive in regard tosafety and sanitation in the jail.

■ Emergency response agencies should receivean orientation to the jail so that they arefamiliar with the jail’s layout, location ofutility shutoffs, standpipes, etc., and overallsecurity procedures.

Drills to practice emergency response plansshould be conducted regularly. Drills are an im-portant method of “playing out” emergency re-sponse procedures so that both inmates and staffknow what to do and where to go in the event ofan emergency. Drills also provide an opportunityto practice emergency response procedures withemergency responders from outside the facility.Standards and fire codes require at least quarter-ly fire drills.

Drills should be conducted during each shift atleast once over the course of a year. Each drillshould be observed and critiqued by jail admin-istrative staff and outside emergency respondersto discover any flaws in the facility’s emergencyresponse efforts and suggest areas for improve-ment. Simulated, or “tabletop,” exercises can beused for training scenarios when full-scale drillsare not practical—for example, evacuation of allinmates or the shutting down of the facility.

Any problems identified in the critique shouldbe corrected. The critique and recommended im-provements should also be shared with staff sothat they can learn from the experience. Docu-mentation developed in relation to the drillsshould be maintained as evidence of compliancewith emergency plan requirements.

Recovery

Emergency preparedness includes provisions forreturning the jail to routine operations once anemergency is resolved. Specific recovery stepsdepend on the nature of the emergency and theseverity of damage to the facility. In general,postemergency actions include the following:

■ Notification that the emergency is over.

■ A complete count to ensure the presence ofall inmates and an accounting of all staff andvisitors present in the facility during theemergency.

■ Inspection of affected areas of the facilityfor damage or security breaches by appropri-ate inspection authorities.

■ Removal of debris and cleanup of the affect-ed area (provisions should be made for thepreservation of evidence if criminal activityis suspected).

■ Prompt repair of damage that affects security.

■ Thorough inspection of all areas of the jailand removal of emergency equipment.


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■ Return of inmates to their assigned areas ifthey were evacuated or moved during theemergency.

■ Provision of basic services to inmates (e.g.,medical care, meals) and restoration of otherservices as appropriate.

■ Provision of trauma services to staff and in-mates as necessary to help them deal withthe psychological impact of the experience.

Reporting

Information about each emergency should becarefully compiled and documented. All per-sonnel involved in an emergency must submitwritten reports concerning their actions andobservations at the conclusion of the emergencyor before leaving the facility at the end of theirshifts. Video- and audiotapes, photographs, logs,computer records, and inmate interviews mayyield additional information about critical eventsand actions associated with the emergency. Ifpossible, assign a staff person to keep a chrono-logical log of events as they occur during anemergency.

Review

The followup for all emergencies should includea critical-incident review to establish the factsabout the situation so as to understand what hap-pened. The review can also help assess the fol-lowing elements of emergency preparedness:

■ The appropriateness of training.

■ The appropriateness of policies andprocedures.

■ Whether any policy was violated or trainingwas insufficient.

■ The adequacy of systems, equipment, andinteragency coordination.

Periodic administrative examination of incidentreview findings is also useful to determinewhether a pattern exists that indicates a serious

problem in some aspect of the jail’s operationthat increases the risk of emergency situations.

The review process should yield recommenda-tions to improve future emergency responsecapabilities. Recommendations might includeadditional training, changes in policies and pro-cedures, changes in systems or equipment, ororganizational changes.

Summary

The primary goal of emergencypreparedness is to prevent acrisis situation from occurring.However, despite efforts to fol-low effective safety and securi-ty practices, emergencies mayarise. When they do occur, jailsmust be prepared to act prompt-ly to contain and control thesituations and minimize anynegative consequences to eitherpeople or property.


Chemical Hazard Communication. U.S. Depart-ment of Labor, Occupational Safety and HealthAdministration, rev. ed. OSHA 3084, 1998.

Critical Analysis of Emergency Preparedness.J.A. Schwartz and C. Barry, National Instituteof Corrections, 1996.


How to Plan for Workplace Emergencies andEvacuations. U.S. Department of Labor, Oc-cupational Safety and Health Administration,rev. ed. OSHA 3088, 2001.

Jail Design Guide: A Resource for Small andMedium-Sized Jails. D.A. Kimme, NationalInstitute of Corrections, 1998.


Assess the jail’s emer-gency preparedness.Identify deficiencies orweaknesses in currentemergency responsecapabilities. Develop anaction plan to resolvedeficiencies.

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Staff Safety: New Approaches to Staff Safety,2d ed. R.L. Thornton, National Institute ofCorrections, 2003.

Chapter 9

Inmate Behavior Management

9

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 137


Inmate Behavior Management: The Key to a Safe and Secure Jail . . . . . 137

Inmate Behavior Management Plan . . . 138

Element 1: Assessing Risks and Needs . 139

Attributes of an Effective Inmate Classification System . . . . . . . . . . . . . . . . 139

Assessment of Criteria . . . . . . . . . . . . . . . 140

Classification Decisionmaking Points . . . 140

Classification Process . . . . . . . . . . . . . . . . 142

Element 2: Assigning Inmates to Housing . . . . . . . . . . . . . . . . . . . . . . . . 142

Housing Assignment Decision . . . . . . . . . 143

Housing Plan . . . . . . . . . . . . . . . . . . . . . . 143

Element 3: Meeting Inmates’ Basic Needs . . . . . . . . . . . . . . . . . . . . . . . . . 144

Element 4: Defining and ConveyingExpectations for Inmate Behavior . . . . 145

Defining Expectations . . . . . . . . . . . . . . . 145

Conveying Expectations . . . . . . . . . . . . . 145

Incentives To Meet Expectations . . . . . . . 146

Element 5: Supervising Inmates . . . . . . 146

Physical Plant . . . . . . . . . . . . . . . . . . . . . . 147

Staffing Levels . . . . . . . . . . . . . . . . . . . . . 147

Staff Placement . . . . . . . . . . . . . . . . . . . . 148

Staff Behavior . . . . . . . . . . . . . . . . . . . . . . 149

Administrative Commitment . . . . . . . . . . 150

Element 6: Keeping Inmates Productively Occupied . . . . . . . . . . . . . . 152

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . 152


In This Chapter

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Inmate Behavior Management

Overview

Management of inmate behavior is a key compo-nent of jail safety and security. This chapteridentifies the reasons a jail should have a formal,written plan for inmate behavior managementand describes the six elements of such a plan.


1. Courts have established that jail personnelhave an affirmative duty to do the following:

■■ Protect inmates from other inmates andthemselves.

■■ Detect and respond to pressing medicaland mental health concerns.

■■ Provide due process protection.

■■ Protect the public.

2. Jail officials have a duty to respect an in-mate’s due process rights in making deci-sions about housing assignment, supervisionlevel, program placement, and access toservices:

■■ Assignments must be based on a properassessment of risks and needs conductedwith valid instruments.

■■ Decisions must be based on accurateinformation.

■■ The decision process must be appliedconsistently to all inmates.

■■ A process for review and reclassificationshould be in place.

■■ The basis for all decisions should beproperly documented.

3. Professional and state standards related toclassification, suicide and health screening,housing assignments, program participation,cell checks, counts, and discipline and griev-ance procedures address many aspects of in-mate behavior management.

Inmate Behavior Management: The Key toa Safe and Secure Jail

Chapter 8 identifies the primary goals of securityas preventing escapes and maintaining orderwithin the facility. Effectively managing inmatebehavior is critical to these goals. Traditionally,jails have sought to control inmates solely throughphysical containment, namely, hardware—locks,steel doors, security glass, and alarm systems.Staff safety was believed to depend on maintain-ing physical barriers between staff and inmates.

In the absence of staff management of inmatebehavior, however, the emphasis on physicallycontaining inmates failed to keep jails secure.With inmates left to their own devices insidecellblocks, problems such as violence, vandal-ism, and lack of sanitation became so commonthat they seemed inherent to jails, which, alongwith communities, have paid dearly for theseproblems through costly litigation, staff andinmate deaths, jail riots and fires, and escapes.

Over the past 25 years, jail practitioners havelearned that jails do not have to be and shouldnot be out of control, dangerous, or filthy. Ampleevidence shows that control of the jail can beestablished through effective management of

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inmate behavior. Much of what we have learnedabout managing inmate behavior is based on theexperience of jails that use podular direct super-vision. Introduced to jails by W. RaymondNelson when he was chief of the Jails Divisionat the National Institute of Corrections (NIC),podular direct supervision combines an inmatemanagement philosophy with a specific jail de-sign that conveys an expectation of positive in-mate behavior, facilitates staff interaction withinmates, and promotes management of inmatebehavior. In direct supervision jails, staff arepositioned within inmate dayrooms, and nophysical barriers separate them from the inmates.Staff are able to interact extensively with theinmates and provide continuous supervision.(For more information on podular direct super-vision, see the discussion on page 149 and“Recommended Resources” at the end of thischapter.)

Although many local jurisdictions that have builtnew jails in the past 25 years have opted fordirect supervision design and management, mostAmerican jails were built in the era when physi-cal containment was stressed to the virtual exclu-sion of inmate management. Jail professionalsnow realize, however, that all jails, regardless ofdesign, are responsible for managing inmatebehavior to ensure safety and security.

If inmate behavior is managed effectively, jailscan be a good workplace for staff, a safe andclean detention environment for inmates, and avaluable and highly regarded service for thecommunity. An effective jail administrator willaccept nothing less. Given the importance ofinmate behavior management in achieving safetyand security, it may be viewed as the jail’s corefunction and the jail administrator’s primaryconcern. You should consider all decisions re-garding jail operations with respect to their im-pact on inmate behavior management.

Inmate Behavior Management Plan

The inmate behavior management plan presentedhere is based on previous work in two majorareas: podular direct supervision and inmate clas-sification. As noted above, W. Raymond Nelsonis credited with introducing podular direct super-vision to jails. His work was supported and fur-thered by Michael A. O’Toole, his successor aschief of the NIC Jails Division. James Austinand Timothy Brennan are responsible for muchof the work on inmate classification. Both haveworked extensively in this area and produced abody of knowledge that has changed the way jailpractitioners think about assessing risks andneeds in the inmate population.

The inmate behavior management plan consistsof six essential elements:

1. Assessing the risks and needs of each inmateat various points during his or her detention.

2. Assigning inmates to housing.

3. Meeting inmates’ basic needs.

4. Defining and conveying expectations forinmate behavior.

5. Supervising inmates.

6. Keeping inmates occupied with productiveactivities.

These elements, once established, function as anongoing, integrated process designed to generatepositive inmate behavior—that is, behavior thatcomplies with the staff’s expectations of what isacceptable. Implementing these elements putscontrol of the jail in the hands of the staff insteadof the inmates.

Establishing a formal, written inmate behaviormanagement plan serves the jail administrator asboth a strategy for achieving more effective con-trol over inmate behavior and a mechanism foridentifying problem areas in inmate behaviormanagement. The written plan should include

and of the likelihood that the inmate willattempt to escape.

■ Need is a measurement of the inmate’s phys-iological and psychological requirements forwell-being, for example, in terms of medicalcare, mental health care, or education.

The risk and needs assessment lays the founda-tion for the behavior management plan. The in-formation gathered is used to classify the inmateand is also essential for developing a strategyto manage his or her behavior. For example, aninmate assessed as a high escape risk and oneassessed as a low escape risk will have substan-tially different requirements for housing, super-vision, and delivery of services, as will an inmatewith serious medical needs and one who ishealthy. An inmate who is developmentally dis-abled is likely to require a different behaviormanagement strategy than one who is not devel-opmentally disabled.

A jail’s system of assessing inmate risks andneeds is called inmate classification. Every jailadministrator is responsible for implementing aninmate classification system and for ensuringthat the classification process assesses each in-mate’s risks and needs accurately so that staffcan manage and control inmate behavior.

Attributes of an Effective InmateClassification System

An effective classification system is objective,that is, it is based on a consistent set of criteriaand a systematic method of applying the criteriato classification decisions. It is also straightfor-ward and easily understood and implemented bystaff. An effective classification system meets thefollowing three tests:

1. Reliability: Different staff using the systemwill get the same result for a given inmate.

2. Validity: The system accurately predicts (orassesses) the inmate’s risk level and need.

Chapter 9: Inmate Behavior Management

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goals, an overview of components (the six ele-ments), and provision for periodic assessment todetermine if the plan is meeting its goals. Thegoals of the plan should be based on an assess-ment of the current status of inmate behavior inthe jail and a determination of what behavior isexpected of inmates. For example, goals mightaddress issues such as violence, vandalism, con-traband, sanitation, and inmate compliance withrules. Goals should be specific and measurable,and the jail should develop a formal system toevaluate the achievement of stated goals at speci-fied intervals.

Implementing an inmate behavior managementplan requires the following:

■ Clear directives, in the form of written poli-cies and procedures for each step of the plan.

■ Adequate staffing levels.

■ Staff training.

■ Supervision of staff to ensure that the planis implemented according to policies andprocedures.

■ Systematic documentation and recordkeep-ing of all activities related to inmate behav-ior management.

Plan implementation and success also dependgreatly on the active direction and leadership ofthe jail administrator. You must clearly articulateand demonstrate support for inmate behaviormanagement both philosophically and opera-tionally. The remaining sections of this chapteroutline the six elements of an inmate behaviormanagement plan.

Element 1: Assessing Risks and Needs

The first element in the inmate behavior man-agement plan is to gather information on therisks and needs of each inmate:

■ Risk is a measure of how dangerous the in-mate is to himself or herself and to others

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3. Equitability: The system is applied in thesame way for each inmate.

Assessment Criteria

The following criteria are commonly used toassess inmate risk:

■ The severity of the current charge.

■ Detainers and warrants.

■ Sentencing status (pre- or postsentencing).

■ Criminal history and possible additionalcharges.

■ Escape history.

■ Institutional disciplinary history.

■ Substance abuse.

■ Age, employment, residence, and familyties.

Needs are commonly assessed in the followingareas:

■ Medical (physiological) condition.

■ Mental (psychological) condition.

■ Intellectual capacity.

■ Substance abuse.

Assessment criteria must be clearly defined andapplied consistently to all inmates.

Classification Decisionmaking Points

Inmate risks and needs must be assessed at vari-ous points during incarceration. The jail musthave a process to gather and respond to informa-tion at each classification decisionmaking point.

Booking and Intake Screening During booking and intake, inmate risks andneeds are screened at two points:

1. On arrival at the jail. Jail staff screen eacharrestee brought to the jail to determine

whether the jail can accept him or her basedon whether the arrestee has immediate, criti-cal medical needs that must be addressed ata medical facility.

2. On acceptance into the booking room. Jailstaff screen the inmate further to determinehow he or she should be managed in thebooking room. The information gatheredtypically covers the assessment criteriafound on this page, with the possible excep-tion of sentencing status and institutionaldisciplinary history.

The booking and intake screening process identi-fies and responds to critical issues related to theinformation gathered.

An initial assessment of risks and needs shouldnot be conducted randomly or haphazardly. Jailpolicies and procedures must ensure that everyarrestee brought to the jail receives an initialscreening. Policies and procedures should ad-dress both the process of gathering information(who, what, where, when, and how) and theresponse to information gathered during the ini-tial assessment. The assessment must be docu-mented on a standard form.

Admission to the Jail The next point at which inmate risks and needsare assessed is when the decision is made toadmit the inmate into the jail and assign him orher to housing. The move to housing takes placeafter an initial observation period, which variesamong jails and may last from 1 hour to 3 days.Depending on the physical layout and opera-tional philosophy of the jail, inmates may remainin the booking room until they are moved tohousing, they may be placed in a holding areauntil after they appear in court, or they may beheld in a separate intake unit until they are givena housing assignment. Regardless of where andhow long inmates are held on admission to the


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jail, they must undergo an indepth assessment ofrisks and needs and be classified before beingmoved to housing. The information gatheredduring the indepth assessment provides the basisfor decisions about how best to manage theinmate’s behavior in the jail, which in turninforms decisions about the inmate’s housingassignment, level of supervision, and access toservices and programs.

The indepth assessment, which is conducted dur-ing a face-to-face classification interview, con-siders all the information gathered previously,along with information about the risks and needslisted on page 140 that might not have beenavailable during the initial screening. In manyjails, the assessment of risks and needs does notrest with a single staff member. For example,security or custody staff may assess risk, andmedical, mental health, and program staff mayassess needs. When the assessment responsibili-ties are divided, the jail must have a system ofsharing information to give all staff access to theinformation they need to manage inmate behav-ior. For example, security staff need certain typesof medical information, such as whether an in-mate needs special accommodations (e.g., alower bunk or lower tier) or is appropriate forconsideration as an inmate worker. Medical staff,on the other hand, need information on whetheran inmate presents an escape risk and may re-quire a higher level of security for medicalappointments outside the jail.

The process for conducting the indepth assess-ment must be formal and documented. Policiesand procedures must address not only the kindof information gathered, but who gathers it, whenand where it is gathered, and the format in whichit is gathered. Policies and procedures must alsoaddress who is given access to the informationand the types of decisions that result from it re-garding supervision, housing, services, and pro-grams. The assessment must be documented ona standard form or instrument.

Reassessment Each inmate’s risks and needs should be re-assessed when new information is obtained andat regularly scheduled intervals. Reassessment inresponse to new information ensures that staffare able to react to the changing circumstancesaffecting inmates. The following events wouldprompt reassessment outside of routine intervals:

■ Improvement or deterioration of inmatebehavior.

■ A crisis in the inmate’s life (e.g., court deci-sions, personal problems).

■ A medical or mental health emergency.

■ Court information (e.g., new charges and/orsentencing).

■ An inmate’s request for reclassification.

■ An officer’s request for reclassification of aninmate.

When staff supervise inmates through extensiveinteraction (see “Element 5: Supervising In-mates”), they are able to assess inmates’ risksand needs continually. If housing unit staff orothers who work with inmates detect behavioror know of circumstances that might warrant achange in an inmate’s risk or need status, theyshould document this on a standard form. Thejail should have a procedure for such documen-tation, its distribution, and its use in makingdecisions on how an inmate is managed. Formalreassessments at regular intervals—for example,30, 60, or 90 days—help jail staff ensure that noinmate is overlooked and that staff have all theinformation they need to manage inmate behav-ior most effectively on an ongoing basis.

Reassessment cannot be conducted arbitrarily.Jail policies and procedures must ensure thatevery inmate is formally reassessed in responseto new information and at regularly scheduledintervals. Policies and procedures must addressboth the process of gathering information (what

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prompts the reassessment, who conducts it, andhow it is conducted) and the response to theinformation gathered during the reassessment.A standard form or instrument must be used todocument the reassessment.

Classification Process

To effectively assess inmate risks and needs andclassify inmates, the jail must have a clearlydelineated plan that includes the followingelements:

■ Established, defined classification criteria.

■ A consistent process for gatheringinformation.

■ Comprehensive policies and procedures thataddress all the components of the classifica-tion process, including who, what, where,when, and how.

■ Forms or instruments for documenting theassessment and classification.

■ A system for evaluating the classificationprocess to measure both how well the classi-fication system is being implemented andwhether it contributes to meeting behaviormanagement goals.

Two instruments are commonly used for riskassessment:

1. Point-additive instrument: Assigns weightsand numbers to various risk factors and leadsto a specific assessment of the inmate basedon a total score.

2. Decision-tree instrument: Leads the userthrough a series of yes and no questions con-cerning designated risk factors, resulting in aspecific assessment of inmate risk based onthe responses.

Whereas risk assessment instruments are de-signed to predict future behavior, needs assess-ment instruments are designed to describe

current needs. Although no needs assessmentinstrument has yet emerged as an industry stan-dard, several such instruments are available. Jailstypically use point-additive instruments or narra-tive surveys, or some combination of the two, tocapture information on needs. Point-additive in-struments rate the severity of need in particulardomains (e.g., physical health, mental health,intellectual capacity, substance abuse) and theindividual’s overall level of need (low, moderate,or high) based on the combined scores of all thedomains. Narrative surveys are used to capturedetails about specific needs.

Both types of needs assessment instrument yieldcritical information that assists jail officials in ad-dressing inmates’ basic needs. Each jail must de-termine the best method of assessing, documenting,and responding to inmate needs based on its ownphilosophy and operational capabilities.

The jail administrator must establish detailedpolicies and procedures regarding inmate classi-fication, particularly with regard to staffing con-siderations. Staff must be assigned to completeeach step of the assessment process. Some jailshave designated classification staff; others trainall staff or all booking room staff to conductclassifications. Some jails have continuous accessto onsite medical staff; others must rely on peri-odic visits from community medical personnel toassist with needs assessments. All staff shouldreceive general training in the classification sys-tem to enhance understanding and communica-tion. Adequate supervision of classification staffis important to ensure that they implement thesystem according to policies and procedures.

Element 2: Assigning Inmates to Housing

The second element in the inmate behavior man-agement plan, assigning inmates to appropriatehousing according to a housing plan, enablesstaff to manage the inmates’ behavior moreeffectively.


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Housing Assignment Decision

The information gathered about an inmate dur-ing the risk and needs assessment serves as thebasis for the housing assignment. Jail staff con-sider the following factors:

■ The level of security risk the inmate presents.

■ The inmate’s ability to function with otherinmates.

■ The level of supervision the inmate requires.

■ The types of services the inmate requires.

■ The types of programs that should be madeavailable to the inmate.

■ Legal requirements for separating certaincategories of inmates. These requirementsvary from state to state.

Housing Plan

The housing plan, which describes how bed-space within the jail will be used, is based onan assessment of the following components:

■ Existing bedspace, including the number ofhousing units and beds within each housingunit, the configuration of the housing units,and the level of physical security in thehousing units.

■ The level of supervision in each housingunit.

■ Risks and needs in the inmate populationand the resulting inmate classifications.

■ The number of inmates within eachclassification.

For each housing unit, the housing plan shoulddesignate the following criteria:

■ The types or classifications of inmateshoused.

■ How services are delivered.

■ The level of staff supervision.

■ The programs and activities available.

The housing plan must also designate space, asappropriate, for separating inmates for discipli-nary, protective custody, or other special needs.You should revisit your jail’s housing plan regu-larly to accommodate fluctuations in the numberand types of inmates in the jail population.

Housing plans vary from jail to jail accordingto existing bedspace, the design of the physicalplant, and operational philosophy. All jails, re-gardless of size or number of housing units,should have a housing plan. For example, jailswith severely limited housing options, such as a20-bed jail with a 15-bed housing unit and 5 sin-gle cells, must still have a housing plan. Theplan may simply specify that, within the 15-bedunit, inmates are assigned to rooms or bunksaccording to the need for staff to observe themeasily. Even in larger jails with more housingoptions, inmates within a given unit may beplaced where they can best be managed, depend-ing on the specific risks and needs of each inmate.

In some jails, the housing plan may also includea provision for housing inmates in another juris-diction. For example, some jails are not able tomeet the needs of the female population or donot have the space to ensure that they are sepa-rated from male inmates. Many jails are notequipped to separately house and manage juve-niles. In still other cases, the jail may simply beso crowded that it must send some inmates toother jurisdictions’ jails.

A carefully developed housing plan benefits thejail in the following ways:

■ Inmates are placed where they can be bestmanaged.

■ Groups of inmates that must be separated bylaw are kept separate.

■ Inmates that must be separated for safetyand security reasons are kept separate.

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The housing plan may also assist the jail admin-istrator in making staff assignments with respectto matching staff capabilities to the needs of par-ticular inmate groups.

Element 3: Meeting Inmates’ Basic Needs

The third element in the behavior managementplan is meeting inmates’ basic needs, which areno different from those of all human beings:

■ Physical needs: Things that sustain life andensure a baseline of human comfort, suchas adequate and nutritious food, protectionagainst the elements, adequate warmth,physical exercise, medical care, andadequate personal and environmental sanita-tion. In the context of the jail, meeting in-mates’ physical needs involves food services,medical services, allowing inmates to main-tain their personal hygiene, providing forphysical exercise, maintaining adequate airflow and appropriate temperature, and ensur-ing that all areas of the jail are clean enoughfor a healthy environment.

■ Safety needs: Protection from harm, includ-ing personal injuries resulting from assaultor unsafe environmental conditions. In thecontext of the jail, this means ensuring thatinmates do not victimize one another, elimi-nating hazardous environmental conditions,and developing plans to ensure inmates’well-being during emergencies.

■ Social needs: Maintaining contact with fam-ily and friends and the opportunity to havepositive interaction with others. In the con-text of the jail, this means providing for in-mates to receive and send mail; have accessto a telephone; visit with family, friends, andothers who are significant in their lives; andinteract positively with other inmates andstaff.

This categorization of human needs is based onthe work of Abraham Maslow, a psychologistwho developed a hierarchy of needs that wasfirst published in 1954.1 Well-established caselaw requires jails to meet the basic needs listedabove; failure to do so may result in costly liti-gation. However, behavior management is anoth-er compelling reason for the jail to meet basicinmate needs. All human beings seek ways tomeet their basic needs. If the jail does not pro-vide for these needs, the inmates will find waysto meet them on their own terms. A jail thatallows this to happen will hand over a significantamount of control to the inmates. For example:

■ If inmates do not have enough to eat, theymay hoard or steal food.

■ If inmates do not have adequate warmth,they may hoard blankets or clothing or coverair vents in their cells.

■ If inmates do not have appropriate ways tointeract socially with others, they may be-come depressed or interact inappropriatelywith other inmates.

■ If inmates are not physically safe, they maymake weapons, pay other inmates for protec-tion, or form gangs.

If the jail does not meet the inmates’ basic needs,it cannot be safe for either the inmates or thestaff. Inmates who are angry, form gangs, and/orhave weapons pose a direct and immediate threatto staff safety. Staff who work in an environmentwhere their own basic need for safety is not metmust devise ways to meet this need. They mayresign, devise ways to avoid interacting with in-mates, carry weapons, or physically abuse in-mates as a way to establish authority, therebyexacerbating the already dangerous conditions inthe jail—dangerous conditions that can quicklybecome deadly for staff and inmates.

1 A.H. Maslow, R. Frager, and J. Fadiman, Motivation andPersonality, 3d ed. (Boston: Addison-Wesley EducationalPublishers, 1976).


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Element 4: Defining and ConveyingExpectations for Inmate Behavior

The staff’s expectations for inmate behavior andthe way those expectations are conveyed have apowerful influence on how inmates act. Histori-cally, jail staff have expected inmates to be un-cooperative, destructive, aggressive, violent, andmanipulative. Staff have communicated theseexpectations by avoiding interaction with inmates,adopting a negative demeanor when they do in-teract with inmates, and accepting negative in-mate behavior as “normal.”

Over the past 25 years, it has been demonstratedthat jail staff can influence inmates to behavepositively within the jail; that destructive, manip-ulative, and aggressive inmate behavior will bethe norm only if allowed to be; and that, withproper supervision, most inmates will meet highexpectations for their behavior. Inmates cancomply with jail rules, maintain high levels ofsanitation within their living areas, treat the staffrespectfully, and interact positively with eachother. Jail staff should expect this and tolerateno less.

Defining Expectations

The expectations set for inmate behavior shouldsupport the goals of the overall inmate behaviormanagement plan. In determining what the jailwill consider acceptable inmate behavior, expec-tations should be high, but attainable. The jailnot only should define what is expected of in-mates, but also ensure that they have the meansto comply. For example, if the expectation is thathousing units are to be clean and orderly at alltimes, then the jail will need to supply sufficientcleaning supplies and equipment to facilitatethis. If the expectation is that inmates are to ad-dress their complaints about jail operations with-out resorting to destructive behavior, then the jailwill need to have a system through which inmatescan report and receive timely responses to theircomplaints.

Conveying Expectations

Once the jail has defined what it considersacceptable inmate behavior and has establishedthe means for inmates to comply with these ex-pectations, it must convey the expectations to theinmates. Jails convey their expectations for in-mate behavior both directly and indirectly. Mostjails develop a handbook for inmates that givesinformation about schedules, procedures, andservices; lists the rules for inmates; and describesthe jail’s disciplinary process and sanctions forbreaking the rules. Some jails may simply postthis information on a bulletin board in thedayroom.

A handbook effectively informs most inmates,but jails also need to provide this informationfor inmates who do not speak English and/or areilliterate. Jails should translate handbooks intothe primary foreign languages used in the region.For those who cannot read, the jail should pro-vide audio- or videotapes.

Information on behavioral expectations shouldbe part of each inmate’s orientation to the jail.The jail should give each new inmate a copy ofthe inmate handbook or access to an audio- orvideotape when he or she is first admitted tohousing. Staff should be available to answerthe inmate’s questions and verify that he or sheunderstands the information. The jail should re-quire inmates to sign a form to verify that theyhave been given the information and understandit. Inmates also must have ready access to thisinformation throughout their stay in the jail.

The indirect or subtle messages the jail givesinmates about expectations for behavior are asimportant as its formal message. For example,the jail’s physical plant itself conveys a powerfulmessage about expected behavior. Most jailswere built on the premise that inmates are vio-lent, dangerous, and destructive and convey thisexpectation by using bars and steel mesh to con-tain inmates and by equipping inmate areas with

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virtually indestructible fixtures and furnishings.In such jails, the message conveyed by the phys-ical plant clearly contradicts the formal messagethat inmates are expected to behave positively.These jails need to devise strategies to counterthe message conveyed by their physical plant.For example, staff can demonstrate that they ex-pect inmates to behave well by interacting exten-sively with them, treating them with respect andconsideration, and ensuring that inmate livingareas are maintained in good order.

On the other hand, the jail’s physical environ-ment may convey a positive message about be-havioral expectations that is aligned with theformal message, but staff behavior may contra-dict the official message if staff avoid interactingwith inmates, treat them disrespectfully, or ignoretheir concerns. The jail administrator must beaware of these potential contradictions and de-vise strategies to resolve them. Otherwise, thecontradictions will confuse and frustrate inmatesand will undermine the success of the inmatebehavior management plan.

Incentives To Meet Expectations

The jail administrator should ensure that thejail’s environment reflects that it is in the in-mates’ self-interest to meet behavioral expecta-tions. For example, housing units for inmateswho behave well and do not present high-levelsecurity risks should provide inmates easy accessto basic necessities, services, and programs. Staffshould offer incentives for positive behaviorranging from a simple “thank you” to an inmatewho has done a good job cleaning his cell tospecial rewards for accomplishing extra taskswithin the housing unit. For example, some jailsconduct weekly facility inspections and providethe cleanest housing unit with a small rewardsuch as soda or popcorn.

On the other hand, negative behavior should bemet with disincentives such as removal from the

housing area, lockdown within the housing unit,lockdown within a disciplinary unit, loss of per-mission to attend programs, and loss of commis-sary privileges. The jail should have a formal,clearly defined disciplinary process so that bothstaff and inmates are aware of the rules and con-sequences for violations.

Clearly stated behavioral expectations reinforcedby incentives for positive behavior and disincen-tives for negative behavior enable staff to directinmates to comply with the jail’s goals. Inmatesmeet high behavioral standards when the jail ex-pects them to and when staff are able to holdthem accountable for their actions, both positiveand negative. Inmate accountability is achievedthrough supervision, which is discussed in thefollowing section.

Element 5: Supervising Inmates

The fifth element in the inmate behavior man-agement plan is supervising inmates to holdthem individually accountable for their behavior.To do this, the staff must interact with the in-mates. Note that before staff can effectively andsafely interact with inmates, the jail must fullyimplement elements 1–4 of the inmate behaviormanagement plan.

Staff interaction with inmates has a clear pur-pose: to obtain positive inmate behavior, namely,compliance with jail rules to achieve the goals ofthe behavior management plan. In this interac-tion, jail staff are in the role of supervisor andrequire the following skills:

■ Effective decisionmaking and problem-solving skills.

■ The ability to communicate, listen, and pro-vide direction.

■ The ability to treat people fairly and moti-vate them to engage in positive behavior.

Staff must be able to detect and solve small problems before they become crises. They should


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be able to devise strategies to ensure that the in-mate housing unit is safe, clean, quiet, and order-ly and then determine the effectiveness of thesestrategies through inspection and documentation.Each staff member must serve as a positive rolemodel for inmate behavior and establish himselfor herself as the person in charge of the housingunit by demonstrating knowledge of jail policiesand applying supervisory skills. All staff shouldbe respectful in their interaction with inmatesand expect the same in return from them.

Several barriers can impede staff interaction withinmates and, therefore, supervision of inmates.These barriers include the following factors:

■ The physical plant.

■ Staffing levels.

■ Staff placement.

■ Staff behavior.

■ The level of administrative commitment tostaff interaction with inmates.

Because supervision is dependent on staff inter-action with inmates, the jail must develop strate-gies to decrease barriers between staff and inmates.Doing so will assist staff in establishing controlover all areas of the jail. For example, if thephysical plant is a barrier to supervision andcannot be changed, the jail can increase supervi-sion by changing expectations for the level andtype of staff interaction with inmates. If thenumber of staff cannot be increased for politicalor budgetary reasons, rethinking the placementof staff can enable a jail to supervise its inmatesmore actively.

Physical Plant

Because many jails were built in the era whenphysical containment was emphasized to the vir-tual exclusion of inmate supervision, the jail’sphysical plant is a common barrier to inmatesupervision. Security doors that offer limited or

no view into the housing units, long corridorsthat separate staff areas from housing units, andmultiple security doors are some of the literalbarriers that may separate staff and inmates.These barriers prevent staff from seeing, hearing,and sensing the mood and activities of the in-mates. Where staff do not have a presence, theydo not have control.

If the physical plant prevents staff from havingdirect contact with inmates, the jail administratormight consider modifying the plant to increasethe staff’s ability to interact with and supervisethe inmates. Such modifications may includeopening housing unit doors, removing glass thatseparates officer stations from inmate housingareas, or removing interior walls. Modifications,of course, must be carefully considered for theirlong-term impact as well as for what they areintended to achieve with specific types of inmates.Additionally, any decision to remove the physi-cal barriers between staff and inmates must betied to an evaluation of current staff behavior.Do staff currently interact with inmates positive-ly, negatively, or not at all? What changes mightbe necessary in terms of policy and training toprovide staff with the tools they need to interactwith inmates safely if barriers are removed?

Staffing Levels

Staffing levels may require staff to be responsi-ble for multiple housing units, preventing themfrom giving sufficient attention to any one groupof inmates. Staff may also have additional dutiesthat divert their attention from supervising in-mates. To increase the amount of time staff haveto interact with and supervise inmates, the jailadministrator should consider whether someduties could be:

■ Accomplished by staff who work anovernight shift, when inmates are sleepingand do not require extensive interaction withstaff.

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■ Transferred to staff who do not directlysupervise inmates.

■ Accomplished more efficiently.

If, after considering duty assignments, you findthat the number of staff is still insufficient tosupervise inmates, you should develop a propos-al for additional staff and include in the justifica-tion a description of the relationship of inmatesupervision to the safety and security of the staff,inmates, and community. You may need to edu-cate the agency’s chief executive officer andfunding authority about this issue.

Staff Placement

The location of staff duty stations varies fromjail to jail, depending on the design of the jailand its operating philosophy. Generally speak-ing, there are three basic types of jail design:linear intermittent surveillance, podular remotesurveillance, and podular direct supervision.(See chapter 4, “Jail Facilities.”)

Linear Intermittent Surveillance The cells in a linear housing unit are lined up ina row at a right angle to a staff corridor that isseparated from the cells, usually by bars. Theinmates’ dayroom may be located behind or infront of the cells. Staff observation of inmatesis intermittent. Staff walk through the corridorperiodically to observe the inmates, then returnto a duty station located outside the living unit.The duty station is usually some distance awayfrom the housing area, and staff are not able tosee or interact with the inmates from the dutystation.

This type of jail design usually presents the mostsignificant obstacles to staff supervision of in-mates, but the obstacles are not insurmountable.Administrators of this type of jail might considerthe following options for increasing staff interac-tion with inmates:

■ Establishing staff duty stations next toinmate housing areas. This may involvesomething as simple as placing a desk in ahallway just outside the inmate housing areaso that staff can more readily interact with,respond to, and supervise inmates. The dutystation should have sufficient supplies andequipment so the officer does not need toleave the post to get frequently used items.

■ Requiring staff to spend a certain amountof time within each dayroom. Staff shoulduse this time to interact with, respond to, andsupervise inmates.

■ Assigning one staff member to movethrough the housing units and interactwith inmates while another remains at thenearby duty station.

With any of these options, the jail administratormust ensure that the staff are fully prepared,through training and policy, to interact withinmates effectively and safely.

Podular Remote Surveillance The cells in podular housing are clustered arounda dayroom. The duty station is within the hous-ing unit and is enclosed with security glass win-dows that allow staff to observe the inmatesconstantly. The term “remote” refers to the staff’sseparation from the inmates by the glass barrier.In this type of jail, staff can observe the inmateswhile they are in the dayroom and interact withthem on a limited basis, usually through intercoms.

The podular remote surveillance jail offers anadvantage over the linear intermittent surveil-lance jail in that the location of the duty stationallows constant observation of inmates in thedayroom by staff. Staff interaction with inmates,however, is still limited, and observation is usu-ally limited to dayroom activities. Also, staffare not able to hear the inmates and may not beaware of problems in the unit until they become


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full-blown crises. Administrators of this type ofjail might consider the following options for in-creasing staff interaction with inmates:

■ Requiring staff to spend a certain amount oftime within each dayroom, interacting with,responding to, and supervising inmates.

■ Assigning one staff member to movethrough the housing units and interact withinmates while another remains at the dutystation.

With either option, the jail administrator mustensure that the staff are fully prepared, throughtraining and policy, to interact with the inmateseffectively and safely within the housing unit.

Podular Direct Supervision The cells in a podular direct supervision housingunit are clustered around a dayroom, and thestaff’s duty station is in the dayroom. The dutystation may consist of a desk or a counter with acontrol panel that allows staff to lock and unlockindividual cell doors and control housing unitlights. No physical barriers separate the staff’sstation from the inmates, and staff are encour-aged to spend most of their time circulatingthrough the housing unit and interacting exten-sively with inmates, with the purpose of manag-ing their behavior.

Although these jails do not present physical bar-riers between staff and inmates, administratorsmight find that staff stay at their desks instead ofcirculating among the inmates, prohibit inmatesfrom coming too close to their desks (again in-hibiting interaction), and focus primarily onpaperwork and phone calls. Reasons for thisinclude the following:

■ Staff have not been trained to focus onsupervising inmates.

■ Staff may have been given too many tasksthat detract from supervising inmates.

■ Shift supervisors do not coach staff in inter-acting with inmates, nor do they hold staffaccountable when they avoid interactionwith inmates.

■ The jail administrator may not have clearlyarticulated or demonstrated the importanceand purpose of staff interaction withinmates.

Variations in Jail Design and Staff Placement Although most jails fall into one of the threecategories discussed above, there are manyvariations. Some jails practice direct supervisionin dormitory housing. Some jails contain hous-ing units of all three types, usually as a result ofadditions to the original physical plant. Somejails have a podular remote surveillance designbut are able to assign only one officer to observeseveral housing units, so that constant observa-tion of any one unit is impossible. Some jailshave a podular remote surveillance design thatallows one officer to see into multiple housingunits from one duty station while another officeris assigned to roam through the dayrooms ofthese units. In all cases, the jail administratormust consider whether the location of staff dutystations facilitates or obstructs inmate supervision.

Staff Behavior

It is not surprising that staff behavior may be abarrier to inmate supervision and achievementof inmate behavior management goals given thehistorical emphasis on physically containing in-mates and the traditionally low expectations ofinmate behavior. Staff may see themselves as“guards” or “enforcers” rather than as supervi-sors of inmates. Redirecting a jail’s primaryfocus from physical containment to behaviormanagement is likely to require a significantshift in staff attitudes and behavior. Exhibit 12lists some examples.

The jail administrator is responsible for helpingthe staff make the transition to the role of super-vising inmates. Administrators should keep in

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mind that, traditionally, staff have been condi-tioned to believe their safety depends on keepinga distance from the inmates and that many arelikely to resist the new focus. They may be fear-ful of working directly with inmates. Some staffmight have particularly negative relationshipswith inmates. There might be staff who havedeliberately mistreated inmates because theythought the inmates could not retaliate. Suchstaff might feel—and might be—particularlyvulnerable and probably should not be assignedto work with inmates.

The jail administrator should take action to re-duce staff apprehension. The following are somestrategies to consider:

■ Fully implement the first four components ofthe inmate behavior management plan.

■ Help staff understand all components of thebehavior management plan and how, togeth-er, these components enhance safety andsecurity.

■ Make sure staff understand the purpose ofinteracting with inmates, what their role is,and, specifically, how to carry it out in thehousing unit.

■ Ensure that operational policies are clear anddocumented.

■ Train staff in supervision and interpersonalcommunication skills, problem solving, stan-dards for inmate behavior, and operationalpolicies.

■ Give staff the tools necessary to superviseinmates successfully: for example, a rangeof productive activities for inmates, an effec-tive inmate orientation plan, and an effectiveinmate disciplinary system.

■ Assign adequate staff to provide backup foremergencies in any area of the jail.

■ Require shift supervisors to spend time withstaff in the housing units, coaching and

supporting them in their role as supervisorsof inmates.

■ Involve staff in planning for this transitionso they will not feel that it is being unfairlyimposed on them.

■ Orient inmates to the new procedures.

Administrative Commitment

Administrative commitment, essential to the suc-cess of all components of the inmate behaviormanagement plan, is especially important in thearea of inmate supervision. Inmate supervisionis likely to require a significant change in termsof how staff view their role and the purpose,frequency, and type of interaction they have withinmates. If the administrator does not communi-cate and demonstrate commitment clearly andconsistently, staff are unlikely to make or main-tain the necessary changes in their behavior.

The following are some actions jail administra-tors can take to demonstrate their ongoing com-mitment to inmate supervision:

■ Ensure that policies and procedures supportactive inmate supervision.

■ Give supervisors a mandate to encouragestaff to meet these expectations, providestaff with needed support and coaching, andhold staff accountable for meeting theseexpectations.

■ Train staff in how to communicate with andsupervise inmates effectively to increase thestaff’s confidence in their ability to manageinmate behavior.

■ Give staff the job tools necessary to activelyand effectively supervise inmates, such asincentives for positive behavior and disin-centives for negative behavior.

■ Seek information from staff on what theyneed to be more effective in supervisinginmates.


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■ Give staff the authority and responsibility,within the guidelines of policy and proce-dure, to make decisions in the housing unitconcerning inmate supervision.

■ Make the skills needed for active inmatesupervision part of the criteria for hiring,evaluation, and promotion.

Although the inmate supervision component ofthe behavior management plan may represent asignificant change in current jail operations, itwill also result in significant positive changes ininmate behavior. Staff will begin to feel safer,take a more positive attitude toward their work,and, as they hone their supervision skills, gain agreater sense of fulfillment from their job.

Exhibit 12. Redirecting Staff Focus From Physical Containment to Behavior Management

Physical Containment Behavior Management

Staff perceive inmates as inherently violent, dangerous, Staff perceive inmates as capable of rational and positive and destructive. behavior.

Staff consider inmate requests and grievances to be Staff believe a timely response to inmate requests and bothersome and not worth close or immediate attention. grievances is critical to their role in inmate behavior

management.

Staff avoid interaction with inmates. Staff regularly initiate positive interaction with inmates.

Staff order inmates to follow their directives. Staff clearly state the jail’s expectations for inmate behavior and motivate inmates to meet them.

Staff provide no formal orientation to new inmates but Staff formally orient new inmates to behavior expectations, might refer them to written rules that are posted in the jail schedules, and jail services and ensure that inmates housing unit or available in the inmate handbook. have ready access to this information throughout their stay.

Staff react primarily to negative inmate behavior. Staff respond to both positive and negative inmate behav-ior, providing rewards for positive behavior and correcting negative behavior.

Staff are limited in their ability to hold individual inmates Staff are able to hold inmates individually accountable foraccountable for their behavior due to the limited inter- their behavior, both positive and negative, due to their ex-action they have with the inmates. tensive interaction with inmates.

Staff have little consideration for inmates’ needs and Staff interact with inmates in a respectful and considerate concerns. manner.

Staff-inmate relationships are often adversarial. Staff-inmate relationships are primarily positive, with staff inthe role of supervisor.

Staff observe inmates. They react to problems when the Staff supervise and manage inmates. They identify and ad-problems reach the point of gaining the staff’s attention. dress problems in their early stages, before they become

crises.

Staff “write up” inmates when they see them breaking Staff encourage and reward positive inmate behavior and rules. use a range of responses to manage negative inmate

behavior.

Staff are not particularly respectful of inmates. Staff Staff take the initiative to treat inmates respectfully.might return respect if it is shown to them. Staff set the standards for behavior and serve as role mod-

els for inmates.

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Element 6: Keeping Inmates ProductivelyOccupied

The sixth and final element in the inmate behav-ior management plan is keeping inmates occu-pied with productive activities that focus behavioron the positive instead of the negative. Jail staffcan keep inmates productively occupied in thefollowing ways:

■ Assigning each inmate work within thehousing unit, such as keeping his or herindividual cell clean and participating incleaning the dayroom area.

■ Allowing positive unstructured activitieswithin the housing unit by providing readingmaterials (e.g., newspapers, magazines,books), writing materials, art supplies, andtelevision.

■ Facilitating structured activities within thehousing unit, such as games, exercise, dis-cussion groups, and tournaments.

■ Encouraging inmates to attend organizedprograms and make use of services outsidethe housing unit, such as education classes,self-help and life skills programs, structuredrecreational programs, religious activities,and the library.

Many jails provide programs to improve inmates’ability to reintegrate into society or to decreaserecidivism. At a more fundamental level, howev-er, there are compelling behavior managementreasons to provide inmates with productive activ-ities. When the jail provides structured activities,it controls the nature of the activity and assuresthat it contributes to the overall goals of thebehavior management plan. If the jail does notprovide inmates with productive activities, theywill find ways to fill their time, often throughactivities that are destructive and contrary to thejail’s mission of providing a safe and secureenvironment. When the inmates direct activities,control of the jail shifts from the staff to theinmates.

Productive activities also provide a powerful in-centive for inmates to maintain positive behav-ior. When the inmates have access to meaningfulactivities and continued access is based on theappropriateness of their behavior, they are strong-ly motivated to behave according to the expecta-tions set by the jail. Providing access to activitiesgives staff a means of rewarding positive behav-ior and enforcing consequences for negative be-havior, thereby enhancing the staff’s ability tosupervise and manage inmates. (For additionalinformation on providing inmates with access toactivities, see chapter 12, “Inmate Services andPrograms.”)

Summary

The fundamental goal of every jail is to ensurethe security of the jail and the safety of the staff,inmates, and the community. To achieve thisgoal, jails have historically focused on the physi-cal containment of inmates. Over the past 25years, managing inmate behavior has been shownto be a more effective approach to jail safety andsecurity. By implementing the six elements ofthe inmate behavior management plan discussedin this chapter, the jail administrator puts controlof the jail in the staff’s hands, thereby ensuringthe security of the jail and the safety of staff,inmates, and the community.


2001 Directory of Direct Supervision Jails. B.G.Harding, National Institute of Corrections, 2001.

Interpersonal Communications in the CorrectionalSetting. (video, DVD, participant manual, in-structor guide). National Institute of Corrections,2004.

Jails in America: A Report on Podular DirectSupervision (video). National Institute ofCorrections, 1996.


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Objective Jail Classification Systems: A Guidefor Jail Administrators. J. Austin, NationalInstitute of Corrections, 1998.

Podular Direct Supervision Jails: InformationPacket. National Institute of Corrections, 1993.

Self-Audit Instrument for Administrators ofDirect Supervision Jails: Based on the Measur-able Elements of Direct Supervision. M.A.O’Toole, W.R. Nelson, D.R. Liebert, and K.D.Keller, National Institute of Corrections, 2004.

Women in Jail: Classification Issues. T. Brennanand J. Austin, National Institute of Corrections,1997.

Chapter 10

Inmate Discipline and Grievance

10

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 157


Inmate Discipline . . . . . . . . . . . . . . . . . . . 157

Discipline and Due Process . . . . . . . . . . . 157

Basic Elements of Disciplinary Process . . 158

Summary . . . . . . . . . . . . . . . . . . . . . . . . . 159

Inmate Grievance Process . . . . . . . . . . . 159

Benefits of a Grievance Procedure . . . . . 160

Defining Grievable Issues . . . . . . . . . . . . . 160

Basic Elements of a Grievance System . . 161

Summary . . . . . . . . . . . . . . . . . . . . . . . . . 161


In This Chapter

157

Inmate Discipline and Grievance

Overview

A formal, clearly defined inmate disciplinaryprocess is an essential element of a jail’s inmatebehavior management plan. The disciplinaryprocess provides a structured means for jail staffto hold inmates accountable for negative behav-ior. A formal process through which inmatesmay seek resolution of complaints and problemsrelating to their incarceration is equally impor-tant. This chapter describes the basic compo-nents and characteristics of legally defensibleand fair inmate discipline and grievance systemsfor local jails.


1. The Constitution provides that inmates beafforded basic due process in disciplinaryactions, including the opportunity to airgrievances and have them addressed.

2. State and professional standards addressinmate discipline and grievance processesin jails.

3. The federal Prison Litigation Reform Actrequires that inmates attempt to resolveissues through the jail’s grievance processbefore seeking relief in federal courts.

Inmate Discipline

Effective management of inmate behavior is keyto safety and security in the jail. The primary

goal of an inmate behavior management planshould be to generate positive behavior, that is,behavior that conforms to the rules of the jailand to staff expectations. The goal is partlyaccomplished by clearly defining and conveyingbehavioral expectations to inmates and thenoffering positive incentives to encourage compli-ance. Appropriate consequences for negativebehavior are equally important. The inmate dis-ciplinary process is the formal system used toregulate inmate conduct and to administer conse-quences for behavior that violates establishedjail rules.

Discipline and Due Process

Much litigation has addressed inmate discipline.The Constitution provides that people may notbe “deprived of life, liberty, or property withoutdue process of law.”1 Because imposition ofsanctions for serious rule violations may resultin loss of privileges, lockdown, or segregation,courts have ruled that due process provisionsapply. Generally, courts define “due process” asa set of procedures that ensure fair disciplinaryaction appropriate for the circumstances.

Wolff v. McDonnell2 is the leading case oninmate discipline. In ruling on this case, theSupreme Court set out the basic due processstandards for inmate disciplinary cases. Each

10

1 U.S. Constitution, amendments 5 and 14, sec. 1.

2 Wolff v. McDonnell, 418 U.S. 539 (1974).

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of these standards promotes some aspect of fair-ness in the process:

■ Advance written notice to the inmate of thealleged violation.

■ At least 24 hours between the written noticeand the hearing so that the inmate has timeto prepare for his or her appearance.

■ Opportunity for the inmate to call witnessesand present documentary evidence.

■ The right to assistance, if necessary, to pre-pare and present the inmate’s case.

■ A decision made by an impartial third party.

■ A written statement of the considered evi-dence and the reasons for the decision.

These standards provide abasic level of due process; theyare not as extensive as stan-dards associated with a trial incriminal court. In the Wolffcase, the Supreme Court recog-nized the special nature ofinstitutional disciplinary pro-ceedings. The Court recog-nized that violation of an

institutional rule is not the same as violation ofa law and that an institution’s hearing officerdoes not have the same authority as a trial judge.Jail proceedings for inmate disciplinary mattersare viewed as administrative rather than adver-sarial as in a court of law.

The Court considered the severity of the punish-ment that could be imposed. Generally, the moreserious the consequences, the more proceduralprotections are necessary. Because jails are limit-ed in the type and severity of imposable sanc-tions, basic due process provisions are deemedsufficient. The Court also recognized that jailand prison officials have a legitimate interest inregulating behavior and maintaining order.

Accordingly, inmates rights must be balancedagainst the jail’s safety and security interests.

Consequently, inmates in disciplinary hearingsare not afforded some of the due process rightsavailable to defendants in criminal cases. Courtshave ruled that inmates do not have a right to:

■ Confront and cross-examine witnesses.

■ Have retained or appointed counsel.

■ Avoid self-incrimination. (Accused inmatesmay remain silent, but officials may draw anadverse inference from the silence.)

Court rulings have since narrowed the circum-stances under which due process protectionsmay be required in jail or prison disciplinaryactions. In Sandin v. Conner,3 the Supreme Courtdetermined that sanctions such as segregation,withdrawal of privileges, or other restrictions donot constitute a deprivation of liberty that wouldtrigger the due process requirements describedabove (at least for sentenced inmates). Sanctionsthat put the inmate’s release date at risk, on theother hand, can only be imposed after a dueprocess hearing.

The Sandin decision gives jails the opportunityto limit the types of disciplinary cases for whichdue process hearings are required. As a matter offairness, and because due process may still berequired for pretrial detainees, some jails con-tinue to require hearings for all serious inmatemisconduct.

Basic Elements of Disciplinary Process

The following are basic requirements of a disci-plinary program:

■ A written set of rules and penalties for viola-tions that is presented to all inmates duringorientation.

■ A written set of policies and procedures gov-erning the disciplinary process.


You should ask the juris-diction’s legal counselto review your jail’s dis-ciplinary process toensure that it conformsto applicable standardsand legal requirements.

3 Sandin v. Conner, 515 U.S. 472 (1995).

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■ Training of staff in the rules and procedures.

■ Provision for resolving minor infractions.

■ Notice to the inmate of the violation and cer-tain due process protections.

■ Procedures for due process hearings to han-dle serious rule violations.

■ A record of the hearing, a review by a higherauthority, and the right to appeal.

A primary component of the inmate disciplinarysystem is a written set of rules defining inmatebehavior and the procedures for handling mis-conduct. Most jails have a misconduct code thatlists the offenses that are subject to disciplinaryaction, categorized by severity (e.g., minor andmajor offenses). The code also includes therange of sanctions that may be imposed for eachcategory of offense. These rules are presentedand explained to inmates on admission to the jailto advise them of the jail’s behavioral expecta-tions and that they will be held accountable formisconduct. At this stage, you are obliged tomake sure illiterate or non-English-speakinginmates also understand the rules.

The disciplinary program should be governedby written policies and procedures that clearlydelineate the steps for notifying inmates ofalleged misconduct, preparing disciplinary re-ports, conducting hearings, imposing sanctions,and providing avenues for appeal. Staff shouldreceive training in the policies and procedures.To apply the process consistently and fairly, staffmust understand the importance of the discipli-nary system and how it works.

The disciplinary process must include proce-dures for handling serious rule violations inaccordance with the basic due process considera-tions, including procedures for a fair hearing andthe inmate’s ability to receive staff assistance,make a statement, present documentary evi-dence, and request witnesses. Provisions shouldalso be made for resolving minor rule violations

that allow staff who witness minor misconductto handle the situation informally.

Complete documentation of all aspects of thedisciplinary process is essential. Disciplinaryrecords may include the following:

■ Original misconduct report.

■ Supplemental or corroborative reports orother evidence used at the hearing.

■ Notice of the hearing.

■ Written hearing summary prepared by thehearing officer.

■ Tape recording of the hearing.

■ Documentation of any appeals.

Summary

The disciplinary process is a key element of thejail’s overall management plan. It provides ameans by which to hold inmates accountable fornegative behavior. Disciplinary policies and pro-cedures must be carefully crafted to meet basicdue process requirements and ensure fundamen-tal fairness in the application of the disciplinaryprocess. A clearly defined disciplinary process isa positive tool in regulating inmate behavior andcan reduce the jail’s exposure to potential liabili-ty for violations of due process.

Inmate Grievance Process

The inmate grievance process is a formal, struc-tured system established and administered by thejail to give inmates a means to seek resolutionfor problems relating to their incarceration. Thejail’s grievance process plays an important rolein helping to establish a fair and just environ-ment and, as such, is an essential part of thejail’s overall behavior management scheme. Thegrievance system should be governed by writtenpolicies and procedures that define the kinds ofissues that are grievable and provide specificguidance in filing, investigating, responding to,and documenting grievances.

Benefits of a Grievance Procedure

A viable grievance system provides the follow-ing benefits for both inmates and the jail:

■ Tension relief through the provision of anofficial mechanism whereby inmates canseek resolution of real or perceived prob-lems arising from their incarceration.Having this process reduces the risk thatinmates will resort to inappropriate measuresto be heard.

■ Enhanced communication through aformal means of conveying informationbetween inmates and the jail adminis-tration. Many grievances arise from misun-derstanding policies and procedures. Thegrievance process is a means for the jailadministration to restate or clarify its poli-cies and procedures for inmates who believethey are being treated unfairly.

■ Improved management through the high-lighting of potential weaknesses in facili-ties or operations. Grievances, individuallyand collectively, offer a wealth of informa-tion that may suggest a need for furtherreview of particular areas to determinewhether corrective measures are needed.

■ Effective monitoring of trends in overalloperational performance and assessmentof the jail climate. Analysis and tracking of

grievance data can help the jailadministrator isolate the sourceof potential problem areas andwhether they relate to particu-lar activities, locations, orshifts. Information generatedthrough grievances is an excel-lent tool for assessing the levelof tension and morale of boththe inmates and the staff in

the facility. The administrator can then takepreventive measures to diffuse potentialproblems.

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■ Reduced potential for litigation throughthe provision of an alternative to filinglawsuits to resolve issues. Many courtsrequire inmates to try to resolve issuesthrough the jail’s grievance process beforeinitiating a federal civil rights lawsuit. Theresolution of problems in this manner avoidsthe expense, disruption, staff time, and po-tential liability associated with litigation.Even when issues cannot be resolved by thejail’s grievance process, the agency oftengains valuable information that is helpful indefending against the claim.

Defining Grievable Issues

To be meaningful, the inmate grievance processshould apply to a wide range of issues relatingto incarceration. These issues generally includeproblems or concerns arising from the followingsituations:

■ Application of jail policies, rules, andprocedures.

■ Staff or inmate conduct.

■ Access to programs or services.

■ Conditions of confinement.

■ Incidents occurring within the facility.

A clearly written description of issues that are orare not grievable is essential in establishing thejail’s grievance system. Issues that are outsidethe jail’s scope of authority are generally notconsidered grievable, for example, probation andparole decisions, judicial decisions, state andfederal laws, and issues governed by the policiesand procedures of other authorities (e.g., loss ofproperty that is covered by tort claims laws orrules). Grievance procedures in some jails alsoexclude certain issues relating to health or secu-rity decisions. Others make a distinction betweenfailure to follow the provisions of a policy andthe decisions made pursuant to the policy. Forexample, the decision made by a disciplinary


Use information frominmate grievances as amanagement tool totrack trends and moni-tor jail conditions andoperations.

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committee may not be grievable, but the failureto provide proper notice of the hearing, as pro-vided by policy, may be.

Basic Elements of a Grievance System

A functional and defensible inmate grievanceprocess includes the following basic elements:

■ Written procedures for the program.

■ Access by all inmates without reprisals.

■ Availability of grievance forms in housingunits.

■ Staff available to govern the programand assist inmates in articulating theirgrievances.

■ Written responses to all grievances, includ-ing the reasons for the decision.

■ Specified time limits for responses, withprovision for responding to emergencies.

■ Supervisory review of all grievances.

■ Staff participation in establishment of theprogram.

■ Periodic assessment of inmate satisfactionwith and confidence in the process.

■ An appeal process at a level above the usualapproving authority.

Staff must have input into the development ofthe grievance process. Provisions should also bemade for periodic assessment of the level of in-mate satisfaction and confidence in the processonce implemented. This assessment will enhancethe credibility of the process and ensure that it isnot perceived by inmates or others as a sham.

The grievance process should be governed bywritten policies and procedures that specify thesteps for filing the grievance, the types of issuesthat are grievable, levels of review, timeframesfor response, appeal process, and any specificlimitations. This information should be includedin the inmate handbook and given to inmates as

part of their orientation to the jail. Staff shouldreceive information and training on their respec-tive roles in implementing the process.

The policy should include clearly defined timelimits for responding to grievances. It shouldprovide for timely action on complaints and pro-visions for inmates to go to the next level if timelimits are not met. Provisions should also bemade to permit immediate action on grievanceswhere adherence to the regular time limits mightsubject the inmate to serious or irreparable harm.Investigation and response for emergency situa-tions should be expedited as appropriate.

Responses to grievances should be made in writ-ing in a standardized format. A log should bemaintained to track and monitor grievances. Thejail should also maintain documentation of eachgrievance and its disposition (including the com-plaint, investigation, and response).

Summary

A grievance system is an essential component ofa jail’s inmate behavior management plan. It isalso a valuable management tool for monitoringjail conditions and operations over time. If theprocess has credibility, inmates will use it toresolve complaints rather than act out inappro-priately. By providing an administrative remedy,the grievance process may also reduce the levelof litigation and potential liability for the jail.


Correctional Administration—Integrating Theoryand Practice. R.P. Seiter, Prentice Hall, 2002.

Jail Design and Operation and the Constitution:An Overview. W.C. Collins, National Institute ofCorrections, 1998.

Prison and Jail Administration: Practice andTheory. P.M. Carlson and J.S. Garrett, Jones andBartlett Publishers, 1999.

Chapter 11

Special Management

11

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 165


Special Management Categories . . . . . . 165

Disciplinary Detention . . . . . . . . . . . . . . . 165

Administrative Segregation . . . . . . . . . . . 166

Protective Custody . . . . . . . . . . . . . . . . . 166

Guidelines for Placement and Review . . . . . . . . . . . . . . . . . . . . . . . . . 166

Conditions of Confinement in SpecialManagement . . . . . . . . . . . . . . . . . . . . . . . 167

Key Elements of Effective SpecialManagement Operations . . . . . . . . . . . . . 168

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . 170


In This Chapter

165

Special Management

Overview

The jail’s inmate supervision plan should includeprovisions for the housing and management ofinmates who need to be separated temporarilyfrom the general population. This group typical-ly includes inmates who have special needs, area threat to the security of the jail, or pose a dan-ger to themselves or others. By definition, theseinmates need special attention, including closersupervision and, possibly, access to more spe-cialized services than can be provided in generalpopulation housing. In addition, the decision toplace inmates in special management and in sep-arate housing involves several due process con-siderations. Accordingly, jail administratorsshould have clearly defined policies and proce-dures governing special management and shouldconstantly monitor the operation and use of spe-cial management housing areas.

This chapter describes the various categories ofspecial management, provides guidelines forplacement in and use of special management,and outlines minimum confinement conditionsfor inmates classified as special management. Italso highlights key elements of effective specialmanagement operations.


1. Inmates have a right to a level of due proc-ess when administrative or disciplinaryactions are taken that result in their segrega-tion from the general population.

2. Professional and state standards addressmany aspects of special management, in-cluding placement and review, supervision,conditions of confinement, and access toprograms and services.

Special Management Categories

Special management generally includes threecategories:

■ Disciplinary detention.

■ Administrative segregation.

■ Protective custody.

Disciplinary Detention

Disciplinary detention is used to segregate in-mates who are detained for or found guilty ofserious violations of the inmate rules and regula-tions. Inmates are typically placed in disciplinarydetention for short periods (usually not morethan 30 days per incident).

Inmates accused of committing serious rule vio-lations and who are disruptive or a threat to thesafety and security of the jail may also be tem-porarily segregated pending a hearing before thejail’s disciplinary officer or committee. Becausethe purpose of segregation in the latter cases issecurity rather than punishment, the hearingshould be held promptly (preferably within 3working days after placement in detention).

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Administrative Segregation

Administrative segregation is used for inmateswho must be separated from the general pop-ulation for reasons other than discipline, includ-ing inmates who:

■ Present a clear danger to other inmates, staff,self, or the security of the jail through theirthreats or actions.

■ Have communicable diseases or need to beisolated for other medical reasons.

■ Cannot function appropriately and safelyin the general population because of mentalhealth problems or developmental disabilities.

Placement in administrative segregation shouldbe based on recent conduct, a medical or mentalcondition, pending charges, or an inmate’s over-all record. The basis of this classification deci-sion is fundamentally different from that ofdisciplinary detention, in which an inmate isplaced in restrictive confinement as punishmentfor violating a jail rule. Placement in administra-tive segregation may be long term, depending onthe individual circumstances.

Protective Custody

Protective custody is used for inmates requestingor requiring protection from other inmates inthe general population. Candidates may includethose who are resented by the other inmates be-cause of the nature of their criminal charges,codefendants who may testify against other in-mates, and inmates who are unable to adjust toliving with others and may be the target ofassaults. Protective custody is a nonpunitiveclassification.

Guidelines for Placement and Review

Inmates may not be placed in special manage-ment arbitrarily. Because of the loss of libertyand other restrictions inherent in segregation,inmates must be afforded basic due process

when placement in special management is beingconsidered. Due process means that the thingsone has a right to, including possessions, pri-vacy, and liberty, cannot be taken away by thegovernment unless the procedures designed toensure fairness have been followed. With this inmind, the jail administrator should ensure thatwritten policies and procedures are establishedfor making special management placementdecisions and that the process is implementedthrough the jail’s classification or disciplinarysystem. Policies and procedures for makingplacement decisions should adhere to the follow-ing guidelines:

■ Inmates should be placed in disciplinary de-tention only after an impartial disciplinaryofficer or committee has established that theinmate committed a rule violation and hasdetermined that no alternative dispositionsare available that will adequately regulatethe inmate’s behavior. (See chapter 10,“Inmate Discipline and Grievance,” formore details.)

■ Placement in administrative segregation orprotective custody should be based on well-documented evidence supporting the needfor segregation. Inmates placed in adminis-trative segregation or protective custodyshould have the opportunity to contest thedecision. Although placement in protectivecustody is often an action initiated or sup-ported by the inmate, it should be document-ed with a consent form signed by the inmate.

■ Supervisory staff may order immediate seg-regation of an inmate in special managementwhen necessary for the protection of the in-mate or others. In such cases, the decisionshould be reviewed within a reasonable time(ideally 3 days) by the facility administratoror designated authority.

■ Provisions should be made for periodic review of the status of inmates in special

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management by the classification or disci-plinary committee or another designatedauthority. Professional standards require areview at least every 7 days for the first 30days of segregation and every 30 days there-after. The purpose of the review is to assessthe need for continued segregation. At thereview meeting, the reviewing authorityshould also consider assistance or resourcesto be provided that would facilitate the in-mate’s return to the general population.Inmates housed in special management formedical or mental health reasons, however,may not be subject to the same type of peri-odic review. In these cases, the appropriatehealth authorities should make the decisionsregarding the need for segregation. Whenthe medical need for segregation no longerexists, decisions regarding placement fallback to the classification committee or des-ignated authority.

Guidelines for placement of inmates in specialmanagement should also address release. Thejail administrator should decide the level ofauthority required to grant release. In some facil-ities, release from special management must beauthorized by the jail administrator. In otherjurisdictions, the releasing authority may be thecommittee or person authorizing placement inspecial management, the disciplinary committee(if the placement was related to a disciplinaryaction), or the classification committee. Releasesare generally authorized when the conditionsrequiring placement in special management nolonger exist, new information indicates the in-mate is no longer a threat to self or others, or theinmate has completed the sentence imposed bythe disciplinary committee for a rule violation.

Conditions of Confinement in SpecialManagement

The various categories of special managementinmates may be handled differently. Discipline

and segregation cases can be housed in thesame area, but their privileges may vary greatly.Because placement in either administrative seg-regation or protective custody is not intended tobe punitive, programs and services provided toinmates in these categories should approximatethose available to the general population to theextent possible. The programs and services pro-vided to inmates in disciplinary detention, on theother hand, may be much more limited, althoughthey should still fulfill basic personal needs. Ingeneral, inmates in special management shouldbe afforded the following amenities and privileges:

■ Housing. Special management housing, likethe rest of the jail, should be safe, clean,and well maintained, with adequate lighting,climate control, and ventilation. The cellsshould be properly equipped, and all furnish-ings and fixtures should be in good repair.Inmates in special management are morelikely to be housed in single-occupancy cellsor rooms because of the particular risks andneeds they present. Protective custody in-mates may even need further separationfrom other inmates within the special man-agement housing area.

■ Food. The quality and quantity of food givento inmates in special management should bethe same as that given to inmates in the gen-eral population.

■ Personal property. Excess property shouldbe placed in inmate property storage; howev-er, long-term inmates in special managementshould be permitted access to the same typesand amount of personal property permittedin the general population.

■ Personal hygiene. Inmates should be ableto maintain acceptable levels of personalhygiene, including showering and shaving atleast three times per week, and basic toiletarticles (e.g., toilet paper, soap, toothbrush,toothpaste) should be provided. For safety

and security, access to certain toiletries maybe given on a scheduled basis. Laundry serv-ices should be on the same schedule as therest of the jail.

■ Clothing and bedding. Inmates should wearthe same type of clothing as worn by thegeneral population. A mattress and beddingshould be provided. These items should berestricted only when prescribed by the med-ical authority for medical or psychiatricreasons.

■ Medical care. Medical staff should see eachspecial management inmate at least threetimes weekly and document the results ofthe visit. Where medical staff are not regu-larly available in the jail, visits should beconducted by jail staff who have receivedhealth-care training, who would then con-vey any concerns to health authorities forfollowup.

■ Exercise. Inmates in special managementshould have at least 1 hour of exercise perday, 5 days per week, outside their cells,unless safety and security concerns dictateotherwise. Inmates should be able to exer-cise in areas designated for that purpose,both indoors and outdoors, weatherpermitting.

■ Correspondence, telephone use, andvisitation. Inmates in special managementshould be able to send and receive mail onthe same basis as inmates in the general pop-ulation. Visitation and telephone privilegesshould also be similar to those for the gener-al population, as much as feasible. However,telephone privileges for inmates in discipli-nary detention may be restricted to legalmatters that cannot be handled through cor-respondence. Any other restrictions imposedin these areas should be supported by com-pelling safety and security concerns.

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■ Access to courts and legal materials. In-mates should have access to personal legalmaterials and available reference materials.The courts and legal system should be acces-sible through correspondence, telephonecalls, and visits.

■ Programs and services. Although the scopeof services and the manner in which they areoffered may not be identical to conditions inthe general population, inmates in adminis-trative segregation or protective custodyshould have access to the same types of pro-grams and services as the general popula-tion, including education, commissary, library,counseling, religious guidance, social serv-ices, and recreation. Programs and servicesother than those essential to basic health andsafety may be restricted as part of the associ-ated sanctions for inmates held in discipli-nary detention.

Key Elements of Effective SpecialManagement Operations

In reviewing the jail’s handling of special man-agement inmates, consider the following key ele-ments of effective operations:

■ Classification. The placement of inmatesinto special management and decisions re-garding their care and supervision must bebased on sound classification data. Failure todo so may compromise security and exposethe jail to potential liability.

■ Written policies and procedures. Specialmanagement operations should be governedby written policies and procedures. You mustgive clear direction to staff because of thehigh-risk population typically housed in seg-regation. Staff should be thoroughly trainedin the policies and procedures to ensure con-sistent implementation.

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■ Staffing. Staff assigned to work in specialmanagement housing areas should be select-ed according to their experience, personality,and ability to work with difficult inmates.They should be trained in the operation ofthe special management unit and in dealingwith the types of inmates typically held insegregation. Supervision of special manage-ment staff should be a high priority for thejail administrator.

■ Supervision. Staff should actively superviseinmates in special management with theskills and techniques described in chapter 9,“Inmate Behavior Management.” Inmatesand staff should interact regularly so thatissues may be resolved before they escalateinto crises. Policy should provide that staffpersonally observe inmates at least every 30minutes on an irregular schedule. Because ofthe high-risk potential of the special man-agement population, supervision of this unitmay also include enhanced security precau-tions such as the following:

■■ Controlling access into and out of thespecial management unit.

■■ Requiring inmates to be in restraintsduring movement out of the cell.

■■ Requiring additional staff members to bepresent while moving certain inmates.

■■ Reducing the need to move inmates outof the special management area by bring-ing services and programs to the unit.

■■ Enhancing property and contraband con-trol procedures.

■■ Enhancing security inspections.

■■ Strip-searching all inmates entering orleaving the unit.

■ Documentation. A permanent log should bemaintained to record information pertinent tospecial management. The log should docu-ment the reason inmates were placed in this

custody classification, their behavior andcondition while in special management, andhow they were managed. The log is also ameans to communicate essential informationacross shifts and with professionals workingwith the inmates. Documentation shouldinclude the following:

■■ Special management admissions andreleases.

■■ Information about each inmate (i.e.,name, location, date admitted, reason foradmission, tentative release date, andspecial problems or needs).

■■ A record of all visits to the special man-agement unit, including those by staff toinspect the unit, assess the status andwell-being of inmates, or counsel inmates.

■■ Notations of unusual behavior by indi-vidual inmates and the unit as a whole.

■■ Pass-on information (for future shifts).

■■ Individual records for each inmate ofdaily activities (e.g., meals, showers,exercise, visits, administration of med-ications, program participation) andbehavior, to be completed by staff dur-ing each shift.

■ Monitoring and oversight. Given the issuespresented by inmates placed in special man-agement and the restrictive nature of thesetting, special management should be moni-tored regularly by supervisory and profes-sional staff. Staff should observe conditionsand operations and give inmates an opportu-nity to voice problems or concerns to staffnot responsible for their direct supervision.The shift supervisor should visit specialmanagement areas once per shift, and thejail administrator or a designee should visitthe unit at least weekly. Other program staffshould visit all inmates in special manage-ment as often as necessary, but at leastweekly, to meet inmate needs.

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Summary

The ability to temporarily separate from the gen-eral population inmates who are a threat to secu-rity or a danger to themselves or others or whohave other special needs is essential to the safeand secure operation of the jail. The three cate-gories of special management are disciplinarydetention, administrative segregation, and pro-tective custody. Many jails have designated spe-cial management housing for these categories ofinmates. The jail administration should make themanagement and oversight of special manage-ment housing operations a priority for the fol-lowing reasons:

■ The high-risk nature and/or special needs ofthe population.

■ Conditions of confinement associated withsegregation.

■ Due process implications of placement andreview decisions.

The safe and effective operation of special man-agement housing areas within the jail includesthe following key elements:

■ Effective behavior-based classificationsystems.

■ Written policies and procedures.

■ Appropriate staffing.

■ Effective inmate supervision.

■ Thorough documentation.

■ Appropriate monitoring and oversight bymanagement.

Attention to these key elements will enhance theoverall safety and security of the jail and ensurethe fair treatment of inmates segregated from thegeneral population.




Chapter 12

Inmate Services and Programs

12

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 173


Inmate Services . . . . . . . . . . . . . . . . . . . . . 173

Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 174

Medical and Mental Health Care . . . . . . . 175

Clothing and Linens . . . . . . . . . . . . . . . . . 177

Laundry . . . . . . . . . . . . . . . . . . . . . . . . . . . 177

Personal Hygiene and Grooming . . . . . . 178

Visitation . . . . . . . . . . . . . . . . . . . . . . . . . . 179

Mail and Telephone . . . . . . . . . . . . . . . . . 180

Inmate Exercise and Recreation . . . . . . . 181

Library . . . . . . . . . . . . . . . . . . . . . . . . . . . . 182

Commissary . . . . . . . . . . . . . . . . . . . . . . . 183

Inmate Programs . . . . . . . . . . . . . . . . . . . 184

Education and Personal Development . . . . . . . . . . . . . . . . . . . . . . 184

Counseling . . . . . . . . . . . . . . . . . . . . . . . . 185

Religion and Spirituality . . . . . . . . . . . . . . 185

Work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 186

Program Resources . . . . . . . . . . . . . . . . . 187


In This Chapter

173

Inmate Services and Programs

Overview

Jails must provide certain basic services to main-tain the health and well-being of inmates. Theseservices include the essentials of daily livingsuch as food, health care, clean clothing andlinens, personal hygiene needs, exercise, andcommunication with the outside world. Beyondthe basics, many jails offer various programs tohelp inmates make constructive use of their timeand for self-improvement. This chapter describesthe following:

■ Legal requirements.

■ The range of services and programs that jailstypically provide.

■ What constitutes good correctional practice.

■ Alternative methods of providing servicesand programs.

■ Use of community resources.


1. Jail officials are responsible for providingbasic services for inmates to maintain theirhealth and well-being while in custody. Thecourts may consider any harm caused aninmate by the failure to provide these serv-ices as “deliberate indifference.”

2. Jails must give inmates reasonable opportu-nity to communicate with the outside worldwhile in custody. Inmates are entitled to con-fidential communication with the courts,attorneys, and other select parties.

3. Professional and state standards addressmany aspects of inmate programs and serv-ices. Standards relating to inmate health andsafety are generally detailed and prescriptive,reflective of the case law for these issues.Standards relating to programs generallyoffer jails some leeway in the types of pro-grams offered and the manner in which theyare delivered.

Inmate Services

Inmates have a fundamental right to basic serv-ices essential to their health and well-being. Themost significant of these services are food, medi-cal and mental health care, clothing and linens,

Distinction Between Services and Programs

Inmate services generally contribute to the

basic health and well-being of inmates and

include basic services such as food, health care,

clothing and linens, laundry, commissary, visita-

tion, exercise, and mail. Inmate programs are

activities offered to inmates as self-help oppor-

tunities for problems such as substance abuse,

anger, illiteracy, unemployment, and victimiza-

tion and to assist the inmate in reintegrating

into the community. Inmate programs may also

help reduce recidivism and reincarceration.

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174

laundry, personal hygiene andgrooming, visitation, mail andtelephone, exercise and recre-ation, library access, and com-missary. Each of these servicesis discussed below.

Food

The goal of food servicesshould be to provide nutrition-ally adequate meals daily thatare prepared and served undersanitary conditions at reason-

able cost. Special issues related to food servicesinclude the following:

■ Food procurement, preparation, and storageshould be supervised by qualified and trainedfood services personnel. Assigning this func-tion to a jail officer is not appropriate.

■ Dietary professionals should be solicited tohelp with menu preparation or at least to re-view menus regularly to ensure that theymeet the dietary allowances for basic nutrition.

■ Special meals should be available to meetreligious and medical dietary requirements.

■ All food services personnel, whether paidstaff, volunteers, or inmate workers, shouldreceive health examinations before beingassigned to kitchen duties.

■ Sanitation levels of all storage, production,and related areas should be monitoredregularly.

■ Inmates should be given a reasonableamount of time within which to eat. In addi-tion, many standards specify a maximumamount of time between dinner and break-fast (commonly 14 hours).

■ Where inmate labor is used in food servicesoperations, strict procedures should be inplace regarding selection, health screening,

training, and supervision of the inmate laborforce. There must be close coordination andcooperation between food services staff andjail security personnel to avoid securitybreaches, abuse of privileges, and relatedproblems.

■ Accurate records of served meals should bemaintained.

The importance of food services in the overalloperation of the jail should not be underestimat-ed. Not only is food services an ongoing func-tion essential to the health and well-being ofinmates, but the quality of the jail’s food serv-ices has a significant impact on it’s overall cli-mate. Food takes on exaggerated importance inthe daily lives of inmates. You can assess overallsatisfaction with food services through inter-views with staff and inmates, through review ofinmate grievances relating to food services, andby periodically sampling meals to assess qualityand taste.

The food services function in jails is handled invarious ways. Meals are generally prepared inthe facility by food services personnel, other jailstaff, or inmates under staff supervision. Somejurisdictions contract with qualified vendors forfood services. Under the terms of a typical con-tract, the jail makes its kitchen facilities andequipment available to the vendor. The vendorthen assigns food services staff to the jail. Awell-written contract details performance re-quirements for the vendor to ensure compliancewith applicable health and sanitation standards,compliance with nutritional requirements, andoverall quality of meals.

Another approach is to have some or all mealsprepared offsite and brought to the jail. Thisapproach may be more cost effective in smalljails or where the jail’s kitchen facilities areinadequate. In small facilities, meals are some-times simply purchased from local food services


Assess the quality andscope of services cur-rently available to theinmate population inyour jail. Are servicesbeing provided effi-ciently and meeting thebasic needs of inmates?Develop an action planto make necessaryimprovements.

to a clinic or emergency room.Historically, jails have sufferedfrom an absence of proper ex-amination or treatment spaceand special cells in which tohouse inmates who have infec-tious diseases, are intoxicated,or are suspected of havingmental health problems.

Larger jails will probably havehealth-care staff as employeesor under contract. Some largerjails contract the entire health-care function. In smaller jails,staff members with health-caretraining may work with local health authoritiesto coordinate health-care services in the jail.These staff are typically jail officers or other jailpersonnel who, with specific training and appro-priate supervision, may carry out specific health-related duties. Recent advances in the field oftelemedicine present new opportunities to in-crease access to health-care services in jails,particularly in rural and medically underservedareas. Physicians and other medical profession-als, working from remote locations, can consultwith jail medical staff in regard to the diagnosisand treatment of inmates.

The role of nurses in the jail’s health-care pro-gram should be clearly defined. Jail nursesshould not be considered gatekeepers to medicalcare. Nurses should be working under the directsupervision of a licensed physician or pursuantto standing orders established by the physician.

Regardless of the size of the jail or method ofdelivery, special attention should be given to thefollowing health-care functions:

■ Intake screening. Medical, mental health,and suicide screening should be performedfor every new inmate by trained jail staff orhealth-care professionals.

Chapter 12: Inmate Services and Programs

175

establishments, but this does not negate the needto have a nutritionally balanced and approveddiet. Where a higher volume of meals is re-quired, more formal arrangements may be madewith food services vendors or other local institu-tions (hospitals, nursing homes, etc.) to preparemeals according to an established menu fordelivery to the jail.

The size of the jail, its location, availability andadequacy of kitchen facilities, and costs are justa few of the factors that guide decisions as to thebest approach for each jurisdiction. Regardlessof the method used, you must ensure that a nutri-tionally balanced diet, reviewed and approved byqualified dietary professionals, is provided.

Medical and Mental Health Care

Adequate health-care services are essential to thewell-being of inmates and should be viewed as abasic human right and responsibility of the jail.Health-care services not only meet the individ-ual’s needs, they also prevent the spread of dis-ease within the facility.

Every jail should have a written inmate health-care plan that provides for the identification,treatment, and/or referral of both emergency andnonemergency medical and mental health prob-lems. The most effective method for provisionof medical and mental health services in a jaildepends on factors such as the size of the jailpopulation, physical space in the facility, avail-ability of onsite health-care personnel, proximityof the jail to local hospitals and emergencyrooms, and transportation services. You mustweigh all of these factors when selecting the bestoption. You should work with local health-careauthorities to evaluate alternatives and reachconsensus on the method to use for health-careservices.

Methods used to provide health care in jails varyconsiderably; that is, some jails provide healthcare at the facility, whereas others take inmates


Consult with healthdepartment and emer-gency service providersregarding medical prac-tices. Review the cre-dentials of medical staff,and research the limitsof their licenses. Deter-mine whether the med-ical staff are competentto provide the level ofservice and decision-making needed in thejail.

176

■ Access to health care. All inmates shouldreceive information on access to health-careservices at intake, and jail staff should beoriented to policies and procedures concern-ing inmate access to health care.

■ Sick call. A system should be in placethrough which each inmate may confiden-tially request and receive appropriate medical/mental health services for nonemergency ill-ness or injury on a daily basis.

■ Administration of medications. A writtenplan should assign responsibility for pre-scription medications, how they are to belabeled and stored, and when and by whomthey are to be administered. The plan shouldalso address the management of medica-tions in the possession of inmates on theiradmission to the jail. Administration of thesemedications should first be reviewed byhealth-care professionals. Only health-careprofessionals or staff who have received spe-cific training in this area should administerany medications.

■ Monitoring drug- and alcohol-intoxicatedinmates and safety cells. Either jail staffwho have health-care training or health-careprofessionals should directly observe in-mates in detox or safety cells frequently.Detoxification in the jail should only takeplace under close medical supervision.

■ Proper emergency medical aid. Every jailshould have a written emergency medicalresponse plan that provides for access toprofessional health care 24 hours per day.Jail staff should be trained in first aid andcardiopulmonary resuscitation.

■ Treatment and control of vermin-infectedinmates. Provisions should be made fortreatment of vermin-infected inmates to pre-vent contamination of other inmates andstaff.

■ Management of communicable diseases.Provisions should be made for screening,housing, and special management of inmateswith communicable diseases.

■ Dental services. Provisions should be madeto provide inmates with emergency and non-emergency dental care.

■ Mental health services. The right of in-mates to appropriate medical care extendsto mental health services, including crisisintervention, mental health assessments, andtreatment.

■ Medical records. Rendered health-careservices should be properly documented;however, provisions should be made to pro-tect the confidentiality of medical records.Review record management procedures withhealth-care authorities to ensure compliancewith state and federal confidentiality require-ments, including those established under theHealth Information Portability andAccountability Act.

■ Referrals on release. Provisions should bemade to link inmates with necessary com-munity medical and mental health serviceson release.

Review state standards that establish minimumrequirements for health-care services in jailsclosely. Both the National Commission onCorrectional Health Care and the AmericanCorrectional Association have an extensive listof operational and physical plant standards rel-ative to the delivery of health-care services inlocal jails (see “Recommended Resources,”page 188).


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Clothing and Linens

The jail is responsible for providing adequateclothing and linens for inmates. Many jails issuefacility-owned clothing for inmates held beyondinitial intake. Issuance of facility-owned clothingserves the following purposes:1

■ Helps prevent introduction of unsanitaryclothing, vermin, and contraband into thehousing areas.

■ Affords easy differentiation of inmates fromvisitors and staff.

■ Eliminates problems of stealing clothesamong inmates.

■ When color-coded uniforms are used, distin-guishes inmates according to housing unit,classification, or work assignment.

When facility-owned clothing is provided, theinmate’s personal clothing should be cleaned asnecessary and stored until release. Clothinggiven to inmates should be in good repair, clean,and properly sized. Inmates assigned to workdetails should be given protective clothing andgear appropriate to the assignment.

Individuals not released at intake must also beprovided with appropriate bedding and linen.A typical issue includes a mattress that is con-structed of fire-retardant material and easily san-itized, sheets, one or more blankets appropriateto the season, pillow, towel, and washcloth.

Special issues relating to the provision of cloth-ing and linens include the following:

■ Durability, fire retardancy, ease of mainte-nance, and security should be consideredwhen selecting clothing and linens for usein the jail.

■ The jail should maintain an inventory ofclothing and linens to accommodate at leastthree or four times the average population toallow for laundry exchange, repair, and peri-ods of higher demand. The clothing invento-ry may need to be larger for jails that usecolor-coded clothing for classification orhousing assignment level.

■ Provision should be made for mending cloth-ing and linens to keep them in good repair.Items that are not repairable should be re-moved from the inventory and replaced.Items that have been defaced by inmatesshould be removed from the inventory andrepaired or discarded.

You should visually inspect the condition andsufficiency of the clothing and linen inventory.When observing inmate housing areas, notewhether clothing and linens are being usedappropriately and whether inmates possess onlythose items issued to them. Provisions should bemade to hold inmates accountable for inappro-priate use (e.g., tenting bunks, covering vents) ordestruction of jail-issued clothing and linens.

Laundry

To maintain adequate levels of sanitation andprevent the spread of disease, the jail must pro-vide laundry services. Clothing, linens, and bed-ding of all inmates must be laundered whentendered at inmate release and before beingreissued. Clothing and linens must also be ex-changed for laundering on a regular schedule.

The following are options for providing laundryservice:

■ Contract with a local vendor who regularlypicks up soiled items for laundering offsite.

1 F.O. Jansen and R. Johns, Management and Supervision of SmallJails (Springfield, IL: Charles C Thomas, 1978), p. 93.

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■ Arrange for laundry services to be providedby another institution within the community(e.g., other jail, hospital, nursing home).

■ Provide equipment and facilities for staffand/or inmate workers to launder clothingand linens within the facility.

■ Provide laundry machines in the housingunits for inmates to launder their own cloth-ing and linens.

Special issues relating to the provision of laun-dry services include the following:

■ A regular schedule should be maintained forexchange of clothing and linens to be laun-dered. Most jails exchange clothing and tow-els twice per week and bedding once perweek. Inmates assigned to work details mayneed more frequent clothing exchanges.

■ Separate distribution systems are needed forclean and soiled clothing and linens to pre-vent contamination of clean items.

■ Personal clothing that is not allowed in thehousing area should be laundered and sani-tized as necessary before being placed inproperty storage.

■ Laundry operations should be supervised bya laundry technician or a trained jail officer.

■ The laundry area should be inspected regu-larly for safety and sanitation to ensure thatit is kept clean and free of safety hazards.

Personal Hygiene and Grooming

The jail has a responsibility to provide inmateswith the resources necessary to maintain person-al hygiene. Proper hygiene not only promotesthe health and well-being of individual inmatesbut helps prevent the spread of disease to otherinmates and staff. Additionally, good grooming

enhances morale and the overall attitude of bothstaff and inmates.

A personal hygiene program should includedaily care of skin, hair, and teeth. Equipmentand supplies for personal grooming and hygieneshould be available on a scheduled basis. Spe-cial issues to consider in this area include thefollowing:

■ Expectations for maintaining appropriatelevels of personal hygiene, along with sched-ules and procedures for accessing hygieneand grooming supplies, should be explainedin the inmate handbook and at orientation.

■ Medical screening conducted at intakeshould identify personal hygiene issuesrequiring attention for inmates who are notimmediately released.

■ Hygiene kits containing the essentials (tooth-paste, toothbrush, deodorant, comb, etc.)should be issued to inmates at intake andreplaced as necessary. Feminine hygieneproducts and sanitary disposal receptaclesshould be provided for women.

■ Other personal hygiene and grooming itemsshould be available for purchase by inmatesthrough the jail’s commissary.

■ Bathing or showering facilities should beavailable to the general population daily andspecial management populations at leastthree times per week, with hot and coldwater, soap, and towels furnished.2

■ Provisions should be made for hair-careservices. Arrangements may be made withlocal barbers to come to the jail on a sched-uled basis to give haircuts. As an alternative,jails may allow inmates to check out haircut-ting scissors and clippers for use under staffsupervision.

2 The logistics involved in the use of bathing and showering facili-ties and the higher supervision requirements for special manage-ment inmates often result in more restricted access for thispopulation.


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■ Inmates may need coaching and advice fromstaff to meet the jail’s expectations for per-sonal hygiene.

■ Shaving equipment and supplies shouldbe maintained by jail staff and issued on ascheduled basis. Razors should not be sharedby inmates for health reasons. Staff shouldcarefully supervise the issuance and returnof these items to prevent conversion toweapons or other contraband.

Visitation

Inmates must be given the opportunity to main-tain contact with people outside the jail. Oneway to maintain this contact is through visits.Two types of visits must be accommodated: pro-fessional and personal.

Professional Visits Professional visits typically include interviewsor consultations that inmates have with profes-sionals such as attorneys, bondsmen, investiga-tors, probation and parole officers, examiners,clergy, and the news media. Generally, thesetypes of visits are considered a right; therefore,substantial justification should exist before plac-ing restrictions on them. Special issues to con-sider in regard to professional visits include thefollowing:

■ The interview/consultation area should offerthe visitor and inmate privacy for confiden-tial exchange of information.

■ The space should allow for visual observa-tion by jail staff to maintain security of thearea but should not allow for monitoring ofconfidential conversations.

■ Attorneys and other professionals shouldbe permitted to visit inmates at reasonabletimes beyond the regularly scheduled visit-ing hours, particularly within the first 24hours of an inmate’s arrest.

Personal Visits Personal visits are those with family and friends.Although the courts have generally held that in-mates should be allowed to visit with family andfriends within a reasonable jail schedule, jailofficials generally have more latitude in placingrestrictions on personal visits for security anddisciplinary reasons. Special issues to considerin regard to personal visits include the following:

■ The jail should have an established visitingschedule with enough hours set aside to pro-vide visiting opportunities for all inmates inthe facility.

■ Visiting areas should offer a reasonableamount of comfort and privacy for both thevisitor and the inmate.

■ Personal visits are generally of the noncon-tact type; however, some facilities allow con-tact visits for low-security inmates such asinmate workers or for others on specialoccasions, at the discretion of jail officials.

■ Provisions should be made for staff to super-vise and manage the visiting process.

■ Written rules governing visitor conduct andresponsibilities should be developed andconspicuously posted for visitors to see.Some jails give prospective visitors abrochure detailing the visiting rules andschedule.

■ Many jails require inmates to submit a list ofprospective visitors at intake. This serves tolimit visitors to those closest to the inmateand gives the jail an opportunity to check forvisitors who may be undesirable for safetyand security reasons.

■ Accommodations should be made to receiveand register visitors in the public lobby area.Seating should be provided for people wait-ing to visit, and lockers should be providedfor personal belongings not allowed in thevisiting area.

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■ The visiting area should be arranged so thatvisitors do not enter within the inner securityperimeter of the jail.

■ Accommodations must be made for visitorswith disabilities.

Facilities for visits can be arranged in a numberof ways:

■ Interview rooms: Used primarily for pro-fessional visits and when limited individualcontact visits are permitted.

■ Noncontact visiting areas: Used whencomplete physical separation of inmates andvisitors is indicated to maintain security andcontrol contraband.

■ Contact visiting areas (other than inter-view rooms): Used when more direct con-tact between inmates and visitors ispermitted.

■ Areas for video visiting: An alternative tononcontact visits that does not require in-mates and visitors to be face to face in anoncontact visitation area.

Several factors affect the method and scope ofinmate visitation, including the type, quality, andsize of the jail’s visiting area; the number of vis-its that must be accommodated; the availabilityof staff to supervise visits; the visiting schedule;standards or jail rules relating to visitation; andthe administration’s philosophy.

Mail and Telephone

Mail and telephone services are two other meansprovided by the jail for inmates to maintain con-tact with people in the community. Jail adminis-trators must distinguish between privileged andnonprivileged communication. Privileged com-munication, whether by telephone or mail, iscommunication between inmates and their attor-neys, the courts, probation officers, the media,and certain public officials. Nonprivileged com-munication is communication between inmates

and their families and friends. Inmates generallyhave a right to confidentiality in privileged com-munications. Special issues to consider in re-gard to mail and telephone services include thefollowing:

Mail ■ The jail should have procedures to prevent

contraband from entering the jail through themail service:

■■ Nonprivileged mail may be inspected forcontraband before delivery to the inmate.Courts have generally authorized thereading or scanning of nonprivilegedmail by jail staff for security reasons,although some jail standards are morerestrictive in this regard (check withlocal rulings).

■■ Privileged mail that is inspected for con-traband should be opened in front of theinmate but should not be read by staff.

■■ Money received by inmates through themail should be removed and credited tothe inmate’s account. Other items re-ceived in the mail that are not allowed inthe jail should be returned to the sender,placed with the inmate’s personal prop-erty, or handled as contraband. The dis-position of these items should bedocumented.

■ Mail should be processed without unduedelay on the day it is mailed by the inmateor received at the jail.

■ A reasonable amount of writing supplies andpostage should be provided to indigent in-mates. Related policies and proceduresshould include the agency’s definition ofwhat qualifies an inmate as indigent.

Telephone ■ Inmates, except those restricted for discipli-

nary reasons, should have reasonable accessto telephone services.


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■ Courts generally authorize monitoring ofnonprivileged telephone calls, but this infor-mation should be posted if the jail elects tomonitor calls.

■ Privileged calls to attorneys and other publicofficials should not be monitored or revokedas a disciplinary measure.

■ The costs of telephone calls may be borneby the inmate or the party called (if theychoose to accept the charges), but thesecharges should not be excessive.

Many jails have established contracts with pri-vate vendors for inmate telephone services.These arrangements typically provide for theinstallation of vandal-resistant reverse-chargetelephones directly within inmate housing areas.Charges are generally paid by the party receivingthe call. These systems come with many featuresthat enable jail staff to control phone availability,record or monitor calls, block inmates fromcalling certain parties, and enable free calls tocertain parties as determined by the jail adminis-tration (e.g., the public defender’s office). Mostjurisdictions receive a percentage of the revenuegenerated by the telephone system. Check localordinances to see whether use of these funds isregulated.

Inmate Exercise and Recreation

Active indoor and outdoor exercise is importantfor the physical and mental well-being of in-mates and for facility security. Outdoor exerciseis especially beneficial because of exposure tofresh air and sunlight and because it provides atemporary (supervised) release from confine-ment within the building. In addition to thehealth benefits, jail administrators report thatthe availability of indoor and outdoor exerciseresults in fewer operational problems such asinmate assaults on other inmates, inmate assaultson staff, damage to jail property, and lawsuits.Provision of indoor and outdoor exercise in jailsis generally required by case law and standards.

Special issues to consider in regard to inmateexercise services include the following:

■ Space within the jail’s security perimetershould be available for indoor and outdoorexercise. The size of the space depends onthe type of exercise activities accommodatedand the size of the inmate groups participat-ing in exercise at any given time.

■ Sufficient time should be allotted in thedaily schedule for the number of inmategroups that must exercise at separate timesbecause of the number of inmates and/orclassification. The number of exercise areasavailable, frequency (days per week), dura-tion (length of exercise periods), and hoursof operation are all factors to consider inscheduling exercise.

■ Staff should be available to observe inmatesin exercise areas.

■ Sufficient amounts of equipment, in goodcondition, should be available for the typesof exercise and recreational activities permit-ted. Provisions should be made for the stor-age, issuance, and return of equipment usedduring exercise activities. Provisions shouldalso be made for instruction in the use ofthe equipment and supervision of its use.Malfunctioning or broken equipment shouldbe repaired or replaced.

■ Attention should be giving to controllingcontraband passage, escape attempts, andvisual and voice contact between inmatesand the public from the exercise areas.

■ Clothing appropriate for outdoor exerciseshould be provided during cold weather.

Most jails also offer passive recreational activi-ties to reduce boredom and idleness, includingunstructured dayroom activities such as tablegames, reading (library services are discussedseparately), radio, and television. Organizedactivities, which can take place in the dayroom

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or other multipurpose space, include arts andcrafts, educational classes, and movies or otherentertainment. If the jail offers cable television,the cable company can block some channels.Movies may be rented from the local videostore, but copyright law requires a license forshowing them to large groups. Select movieswith content appropriate for the jail’s inmatepopulation.

Funding authorities are sometimes hesitant toauthorize expenditures for recreational programs,despite their value in managing inmate behavior.However, the jail’s exercise and recreation serv-ices can still be established and maintained viaalternative funding sources and communityresources:

■ Equipment and supplies can be purchasedthrough commissary profits or inmate tele-phone revenue.

■ Local civic groups can be encouraged todonate equipment, supplies, or funding.

■ Local colleges are a good source of internswho can assist with organizing and leadingexercise and recreational activities.

You may also be able to successfully solicit sup-plies and equipment from excess inventory oflocal businesses.

Library

Reading materials available to inmates are gen-erally provided through the jail’s library serv-ices. Offering the inmates a range of readingmaterials has the following benefits for boththe inmates and the jail:

■ Combats idleness and boredom.

■ Provides a positive leisure activity.

■ Provides information for self-help andreentry.

■ Eases the stress of incarceration andovercrowding.

■ Is a healthy outlet for frustrations.

Library services may be operated directly by thejail or through an arrangement with an outsideentity. Many jails arrange for a local library tostock and service the jail’s library. Communityorganizations with volunteer services may fillthis role in some jurisdictions. Sources for read-ing materials, other than community libraries,include donations from individuals, communitygroups, businesses, and publishers. Professionalassistance in organizing the jail’s library may beobtained from the local community library, localschools, or volunteers with library experience(e.g., librarians, teachers).

Various methods are used to give inmates accessto reading materials. Factors to consider whendeciding which method would be best includeavailable space, amount of inmate movementneeded, and staff availability. The most prevalentmethods include the following:

■ Book cart. Carts are stocked with variousreading materials and taken to housing unitsat scheduled times. Inmates make selectionsfrom the cart and return previously issuedselections. The issuance and return of mate-rials are recorded by the inmate worker orstaff person operating the cart.

■ Housing unit collections. Various readingmaterials are maintained in each housingunit. Materials in the housing unit are re-turned to the central library on a periodicbasis and exchanged for new titles.

■ Library visits. Inmates in each housing areago to the jail library on a scheduled basis toreturn books and select new ones. A libraryworker checks the books in and out.


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Special issues to consider in regard to libraryservices include the following:

■ Procedures are needed to maintain accounta-bility for library materials. A system similarto that used by public libraries should beused both to catalog materials and to checkthem in and out.

■ Safeguards should be in place to prevent thetransfer of contraband through reading mate-rials brought into the jail.

■ Library materials should be responsive to theinterests and educational needs of the inmates.

■ General library services should be availableto inmates on a regularly scheduled basis.Care should be taken to prevent inmatesfrom hoarding books.

■ Library services should include access tolegal reference materials. Many jails makearrangements with local or state law librariesto provide reference materials by individualrequest for materials not available at thefacility. Legal reference materials may alsobe provided through online services such asWestlaw or may be available on CD–ROM.(Any inmate access to the Internet should bestrictly controlled.)

■ The jail should establish guidelines concern-ing the types of books and materials allowedin the jail. Materials that are illegal or threat-en the security or order of the jail should beprohibited.

■ Provisions should be made for repair ofmaterials.

Commissary

Although not generally obligated to do so, manyjails provide commissary services. The purposeof the jail’s commissary is to give inmates theopportunity to purchase various items or ameni-ties that are not provided by the jail. These itemshelp to break the monotony of the jail diet androutine and give access to a few extras that

contribute to a more normalized environment. Acommissary may also reduce jail costs in that itgives inmates an opportunity to purchase itemsthat the jail might otherwise have to provide forfree. Items that are typically available throughthe commissary include personal hygiene prod-ucts, over-the-counter (OTC) medications, sta-tionery and postage, playing cards, and snacks.

Generally, when inmates are booked into jail,trust accounts are established into which moneyin the inmate’s possession isdeposited. While in jail, as pro-vided by jail policy, inmatesmay receive additional moneyinto their trust account fromfamily or friends. When aninmate makes a commissarypurchase, the amount of thepurchase is deducted from thataccount. The transaction isdocumented by a written re-quest for the items, which theinmate signs, and the jail pro-vides a receipt when the items are delivered.Some jails (generally minimum-custody facili-ties) allow inmates to keep some money in theirpossession to make purchases. Recent innova-tions include the issuance to inmates of debitcards that automatically record transactionswhen purchases are made.

Commissary operations are either managed bythe jail directly or contracted to a private vendor.In very small jails, staff may simply take ordersaccording to an established schedule and securethe items from local retail stores. Larger jailsmay maintain an inventory of commissary items,purchased from a wholesale vendor, at the jail orin offsite warehouses. Bulk items are purchasedperiodically to replenish the inventory. Also,contract vendors may use space within the jailto maintain the commissary or provide vendingmachines from which inmates can purchaseitems.


Review the jail’s com-missary account.Request an audit toensure proper account-ing of all funds. If per-mitted, use commissaryprofits to purchaseitems for inmate benefitin the area of servicesand programs.

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The jail commissary is a source of revenue formany jails. Often, commissary items are pur-chased at wholesale rates and sold to inmates atretail. Profits generated from commissary sales,if permitted by local regulations or ordinances,may be used to purchase items for the benefit ofthe inmates, such as exercise equipment, librarybooks or subscriptions, program supplies, orresources for indigents.

Special issues to consider in regard to operationof the commissary include the following:

■ Proper accounting of inmate trust accountsmust be maintained. Effective methods mustbe in place to ensure accurate posting of alltransactions.

■ When commissary items are purchased inbulk and maintained in the jail, proceduresfor proper inventory control must be in placeto prevent pilfering or mismanagement.

■ Consideration should be given to inmates’tastes and preferences when selecting itemsto be available through the commissary.

■ Prices charged for commissary items shouldnot be excessive and should be similar tothose charged in local retail outlets.

■ Inmates should have the opportunity tomake commissary purchases according toa schedule that is established as part of thejail routine.

■ When possible, commissary profits shouldbe used to purchase items that benefit theinmate population (which may be requiredin some jurisdictions).

■ Items offered should be evaluated for poten-tial impact on security.

■ Access to OTC medications through thecommissary can reduce the frequency ofsick-call requests for minor issues and de-crease related medication costs to the jail.Provisions should be made to prevent hoard-ing and misuse. Health-care authorities

should be consulted to determine the typesof OTC medications to be offered and toestablish parameters on their availabilityand use.

Commissary funds and services should be audit-ed periodically. The audit will help identify anyproblems requiring immediate attention and sep-arate a new jail administrator from possible priormismanagement.

Inmate Programs

Programs are important to inmates, the overallmanagement of jails, and the community. Pro-grams keep inmates busy, establish expectations,provide goals for inmates to work toward, andhelp them recognize their potential for growth.Programs can teach inmates useful skills, pro-vide continuing education, help them overcomesubstance abuse problems, improve their mentalhealth, give spiritual guidance, improve parent-ing, help with anger and stress management, andultimately teach them to change antisocial andcriminal behaviors.

Programs reduce vandalism, violence, and othermisbehavior by involving inmates in productiveactivities. The community benefits by havingthe offender leave the jail setting more preparedto live and work as a contributing member ofsociety.

The type and scope of programs offered by a jailare driven by factors such as the jail’s mission,the philosophy of the jail administration and thecommunity, the relationship between the jail andcommunity service providers, standards, charac-teristics of the inmate population, and availabili-ty of resources. Several types of jail programsare described below.

Education and Personal Development

These programs focus on competency develop-ment in various areas of basic life functioning.The assumption is that offenders, if given the


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proper tools and skills, are more likely to be pro-ductive members of the community. Programs ofthis type strive to break what is often an inter-generational cycle of poverty, neglect, and addic-tion that may be factors in continuing criminalbehavior. Education-oriented programs offeredin jails address many areas, including thefollowing:

■ Adult basic education, including generalequivalency diploma (GED) tutoring andtesting.

■ Literacy.

■ English as a second language.

■ Computer literacy.

■ Health and nutrition.

■ Employment services such as job seeking,career counseling, and interviewing skills.

■ Parenting.

■ Avoiding domestic violence.

■ Life skills.

■ Behavior change such as enhanced self-esteem, anger management, decisionmaking,and stress management.

■ Education requirements for juveniles.

Resources necessary for education and personaldevelopment programs include teachers or groupleaders, program materials, equipment, and space.Needs assessments conducted as part of the in-mate classification process are a means of iden-tifying individual needs and an indication ofoverall needs for the inmate population.

Many jails collaborate with the local school sys-tem or community college to provide educationalprogramming. Local workforce developmentprograms often have funding and resources toassist with employment-related programming.Health and social services agencies, churchgroups, and other local organizations may begood sources for other types of personal devel-opment programs.

Counseling

These programs help inmatesdeal with identified emotionaland behavioral problems. Pro-grams may include groupand/or individual counselingby volunteer organizations orprofessional service providers.Counseling programs mayfocus on one or more of thefollowing:

■ Mental health issues.

■ Chemical dependencies.

■ Family problems.

■ Spiritual needs.

Resources for counseling programs include pri-vate space for individual counseling or largerspace for group sessions, professional coun-selors, volunteer counselors, and related programmaterials. Counseling needs may be identified atintake, during classification, or later during aninmate’s time in custody.

Local mental health agencies are generallyresponsible for assessment, crisis intervention,and counseling services. These services may beprovided at the jail, at the local mental healthcenter, or both. The jail administrator should col-laborate with local mental health authorities tooffer these services to the inmate population.You should also look to volunteer organizations,such as Alcoholics Anonymous (AA), NarcoticsAnonymous (NA), and faith-based groups, ascounseling resources for the jail.

Religion and Spirituality

The primary objective of religious programs injails is to give inmates an opportunity to practicetheir religious beliefs. Inmates have the right toworship and have access to religious materialsunless these activities are a justified threat to thesecurity and order of the facility. Effective reli-gious programs in jails often address many of


Review the facilityschedule to determineextended periods ofinmate idleness. Establishand schedule programsduring these times toproductively occupyinmates.

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the spiritual, social, and personal needs of in-mates beyond these basic rights.

Religious programming may include thefollowing:

■ Group worship.

■ Religious instruction.

■ Distribution of religious literature.

■ Individual and group spiritual counseling.

■ Social help to inmates and their families.

Worship services, religious instruction, and relat-ed activities held on a regular basis should beincluded in the jail’s weekly activity schedule.Inmates should also have access to clergy, onrequest, for individual counseling and assistanceat reasonable times.

Beyond meeting inmates’ spiritual needs, reli-gious programs can play a major role in meetingsocial needs for inmates and their families whilethe inmate is in jail and after release. Assistancemay be in the form of clothing, transportation,rental assistance, child care, or similar effortsthat help keep the inmate’s family intact or facil-itate successful reentry into the community.

Resources needed for effective religious pro-gramming include leadership, volunteers, pro-gram materials (e.g., literature, videos), fundingand supplies for social assistance, and adequatespace and equipment for group worship andinstruction.

Leadership may be a designated chaplain orreligious coordinator who plans, directs, andsupervises the religious programming. A keyresponsibility of leadership is to recruit and trainclergy and volunteers from the various faiths re-presented by the inmate population. A goal ofreligious programming in the jail is to accommo-date many faiths without showing a particularpreference.

Materials used in religious programming areoften donated by churches and other faith-basedgroups in the community. Funding to purchasematerials or pay for social assistance is oftenreceived from individuals, churches, and com-munity organizations. Some jails may have achapel or other designated space for religiousprograms. Where such space is not available,multiuse space, general program areas, and in-terview rooms may be used.

A local ministerial association or chaplaincy pro-grams in other jails are good sources of assistancefor jail administrators who want to establish orimprove religious programming. National organi-zations such as Prison Fellowship and the GoodNews Jail and Prison Ministry have local officesthroughout the country that partner with churchesto support religious programming in jails.

Work

Work programs are a productive outlet for in-mates. Inmates can learn new job skills andestablish positive work habits. Compensation forsome jobs can provide victim restitution or helpsupport the inmate’s family. Inmate labor canalso reduce staffing needs for specific supportservices and may be a source of revenue for thejail. The following are types of jail work pro-grams:

■ Work release. Many jails offer work-releaseprograms whereby inmates may leave thejail at scheduled times to work or seek em-ployment. In most jurisdictions, work releaseis authorized for individuals by the sentenc-ing court; however, jail officials often have asay in whether work release is granted orrevoked.

■ Institutional support services. Perhaps themost common form of work program in jailsis the use of inmate labor for various jobs inand about the jail facility. Inmate workersare most commonly used to assist in food


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service operations, laundry, janitorial serv-ices, and grounds maintenance.

■ Public works. Jurisdictions may use inmatesto work on projects for government or non-profit agencies. Usually, work crews leavethe jail during the day to work on publicprojects such as construction, conservation,and renewal and return at night. Compensa-tion generally takes the form of a reducedsentence or extra privileges.

■ Industry programs. Jail industry programsare characterized by the production of goodsor delivery of services for public or privatecustomers. Traditional jail industry involvesthe production of goods or provision of serv-ices for use by the jail or other governmentagencies. Farming, livestock production,construction, maintenance, landscaping, con-servation work, and recycling are traditionaljail industries. Private-sector jail industrytypically involves a partnership with a busi-ness that employs inmates to produce goodsor provide services for private customers.Inmates are generally paid the prevailingwage for the work, a portion of which comesback to the jail to offset incarceration costsor to supplement victim assistance funds.

Work programs operated by the jail require vari-ous resources, including space, equipment andfurnishings, tools, work clothing, protective gear,staff to coordinate and supervise inmate workers,training, and expertise. Fortunately, many low-or no-cost approaches are available to secureneeded resources that make work programs fea-sible. Work programs can be accommodated inexisting space in the jail by sharing multiuseareas or converting underused space for industri-al uses. Work programs can also use space adja-cent to the jail or even offsite. Equipment andmaterials for work programs that cannot be pro-vided by the jail may be secured through dona-tions, surplus property, salvage, or loan.

Businesses, professional asso-ciations, and local organiza-tions are usually willing to lendtheir expertise and support.

Program Resources

The following are means ofsecuring needed resources toorganize and deliver programsin jails:

■ Jail staff. The staffing planmay include positions forcoordinating and/or deliv-ering program services toinmates—for example, pro-gram coordinator, counselor, teacher,chaplain, or caseworker.

■ Professional service providers. The jailmay engage professional provider organi-zations (e.g., community mental healthagencies, schools, community colleges,employment service agencies) or individ-uals to provide program services.

■ Volunteer organizations. Many volunteerorganizations within the community servepeople with special needs (e.g., AA, NA,faith-based groups, civic groups).

■ Individual volunteers. Volunteers can in-clude student interns, retired professionals,business people, and others with a commit-ment to serve.

■ Private business and public works staff.Private-sector or public works employeesmay lead the various jail industry programs.

■ Inmates. Inmates are a great source of laborfor jail programs, either directly or by doingwork that enables other jail staff to havemore time to lead program activities.

Working relationships with provider organiza-tions are typically established through contracts,cooperative agreements, or similar means.


Survey the communityto identify resourcesthat could be used toenhance jail services andprograms. Develop coop-erative agreements withother local governmentagencies and communi-ty service providers (e.g.,health care, mentalhealth, employment,substance abuse) toprovide services in thejail.

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Chapter 3, “Jail Administration,” describes vari-ous approaches for establishing community part-nerships. Many jails have formalized methods ofrecruiting, screening, selecting, training, andmanaging volunteers for a host of duties withinthe jail.

The following are special issues to consider inthe provision of inmate programs in the jail:

■ Establishing a plan for inmate programs thatconforms to the jail’s mission and philoso-phy and appropriately addresses inmateneeds.

■ Establishing community partnerships to aug-ment jail programming and provide a link tothe community for inmates after release.

■ Treating all religions equitably in the provi-sion of religious programs.

■ Making accommodations for inmates withdisabilities to participate in inmate programs.

■ Applying workplace safety laws and regula-tions to inmate work programs.

■ Having clear policies and procedures gov-erning the selection, training, and supervi-sion of volunteers and contract staff workingin the jail.

■ Scheduling programs.

■ Determining who will deliver the programs.

■ Determining who can participate.

The availability of an array of services and pro-grams that respond to the interests and needs ofinmates is a critical element of effective jailoperations. Attention to this area can lead to im-proved behavior and a more relaxed environmentfor both inmates and staff.


Budget Guide for Jail Administrators. Part 3:Beyond Budget Allocation—Sources of Fundingand Services. M.D. Martin, National Institute ofCorrections, 2002.

Business Planning Guide for Jail Industries.T. Quirk and R. Miller, Bureau of Justice Assis-tance, 2002.

Developing a Jail Industry. R. Miller, G. Sexton,and V. Jacobsen, Bureau of Justice Assistance,2002.

Management and Supervision of Small Jails.F.O. Jansen and R. Johns, Charles C ThomasPublishers, 1978.


Standards for Health Services in Jails. NationalCommission on Correctional Health Care, 1996.

Chapter 13

Jail Intake and Release

13

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 191


Facility Design and Technology . . . . . . . 192

Intake Process . . . . . . . . . . . . . . . . . . . . . . 192

Receiving Inmates . . . . . . . . . . . . . . . . . . 192

Legal Commitment . . . . . . . . . . . . . . . . . 193

Medical Clearance To Accept . . . . . . . . . . 193

Initial Searches . . . . . . . . . . . . . . . . . . . . . 194

Medical Screening . . . . . . . . . . . . . . . . . . 194

Inmate Property and Money . . . . . . . . . . 195

Booking Form . . . . . . . . . . . . . . . . . . . . . 195

Identification: Photos and Fingerprints . . . . . . . . . . . . . . . . . . . 196

Checking for Warrants . . . . . . . . . . . . . . . 196

Telephone Calls . . . . . . . . . . . . . . . . . . . . 196

Pretrial Release Eligibility . . . . . . . . . . . . . 196

Followup Search, Dress-Out, and Issue . . . . . . . . . . . . . . . . . . . . . . . . . 197

Classification and Orientation . . . . . . . . . 197

Management of Inmate Behavior . . . . . . 197

Summary . . . . . . . . . . . . . . . . . . . . . . . . . 198

Release From Jail . . . . . . . . . . . . . . . . . . . 198

Legal Discharge Documents andVerification of Identity . . . . . . . . . . . . . . . 199

Checking for Holds or Detainers . . . . . . . 199

Return of Property and Money . . . . . . . . 199

Medical Issues . . . . . . . . . . . . . . . . . . . . . . 199

Victim Notification . . . . . . . . . . . . . . . . . . 200

Prerelease Requirements . . . . . . . . . . . . 200

Transportation for the Released Inmate . . . . . . . . . . . . . . . . . . . . . . . . . . . 200

Release Document . . . . . . . . . . . . . . . . . . 200

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . 200

Special Considerations at Intake . . . . . . 201

Suicide . . . . . . . . . . . . . . . . . . . . . . . . . . . . 201

Intoxication and Withdrawal . . . . . . . . . . . 201

Infectious Diseases . . . . . . . . . . . . . . . . . . 202

Use of Force and Restraint Equipment . . . . . . . . . . . . . . . . . . . . . . . . 202

Medical Services . . . . . . . . . . . . . . . . . . . . 203


In This Chapter

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Jail Intake and Release

Overview

The intake and release processes are critical tothe safe operation of the jail. Intake and releaseare functions that clearly distinguish jails fromprisons or other correctional settings. They arecharacterized by the volume of admissions andreleases, the physical and mental condition ofarrestees at the time of admission, their behavior,the time of day they are admitted, their length ofstay, and their legal status.

Although prison intake units are typically busiestduring normal business hours, receiving sen-tenced inmates of one gender with known back-grounds who are in reasonably good condition,the jail intake unit operates 24 hours a day, 7days a week, and handles an extremely diversepopulation. Arrestees presented for jail intakemay be under the influence of drugs or alcohol,be mentally ill, or have infectious diseases, andtheir behavior may range from violent to sub-dued and withdrawn. Most are being admittedprior to trial for charges ranging from minormisdemeanors to serious felonies. Althoughsome arrestees end up being detained in jail forlengthy periods, most are released within 1 or 2days.

The multitude of factors surrounding intakepresent unique management challenges that maysometimes require the use of force and restraintsor placement into special holding (e.g., behavior,potential for suicide, spread of disease, with-drawal). Legal issues such as access to the

courts, access to health care, and strip searchesalso affect the intake process. In addition, severalsteps, such as identification, securing property,classification, and medical screening, are in-volved in preparing arrestees for placement inthe general jail population.

The release process is typically less intense butno less important than the intake process. Therelease process should include positive identifi-cation of the inmate, a check for holds or detain-ers, victim notification, medical referrals forinmates with special needs or conditions, andreturn of property.

This chapter outlines the key steps of intake andrelease, including the design of facility intakeand release areas and the use of technology. Italso covers special issues related to intake, suchas suicide, infectious disease control, intoxica-tion and withdrawal, use of force, and access tohealth care.


1. Constitutional law requires that inmates:

■■ Be legally committed to the jail.

■■ Be provided a safe environment andprotected against excessive use of force.

■■ Be free from unwarranted searches.

■■ Have access to health care.

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2. Professional standards, such as those ofthe National Commission on CorrectionalHealth Care (NCCHC)1 and AmericanCorrectional Association (ACA),2 are rele-vant to policies and procedures for intakeand release.

3. Most state jail standards address intake andrelease, as do the standards of the Bureau ofIndian Affairs for Indian country jails.

4. Jail staff must be trained in all legal require-ments and enforce the requirements.

5. State laws require notification of victimswhen certain inmates are released. Statelaws also require reporting of inmates withcertain illnesses or diseases to public healthauthorities.

Facility Design and Technology

Many older jails are not designed to accommo-date the intake and release functions. As prob-lems relating to intake and the importance of theprocess have become more fully understood,much attention has been given to the design ofintake and release areas in newer jails. Intakeareas in newer facilities generally include a self-contained intake unit with open seating areas forcooperative arrestees and holding cells wherestaff can separate potentially dangerous or special-needs arrestees from others. These units alsotypically include functionally designed work-spaces and related technologies for the variousprocesses associated with intake, such as med-ical screening, identification, searches, propertycontrol, showers, pretrial release assessment,classification, and release. (See chapter 4, “JailFacilities,” for details on design elements ofintake and release areas.)

Advances in technology have also had a signifi-cant impact on the intake and release processes.Equipment for electronic fingerprinting (provid-ing almost instantaneous identification), videoimaging (to produce booking photos, identifica-tion cards, and wristbands containing barcodesand photos), and screening (for evidence of drugor alcohol use) are becoming commonplace injail intake areas. Automated booking systemsstreamline the collection of data and provideaccess to historical information that assists offi-cers in identifying potential risks. Many auto-mated systems also include objective screeningtools that aid in assessing inmate risk and need.Newer generation restraint equipment and suitsthat protect against body fluids are often usedat intake to increase safety for both inmates andstaff.

Intake Process

Jail administrators should establish clearly de-fined policies and procedures to guide the intakeprocess. The key elements of the intake processare described below in their usual sequence.

Receiving Inmates

The intake area should have an entrance sally-port, separate from the public entrance, wherethe arresting officer and arrestee enter the jail.Most new jails have a drive-through sallyport,where the officer drives through a locked gate,and parks. The officer is required to secure his orher weapons either in a gun locker or the trunkof the squad car, if there is no gun locker, be-fore removing the arrestee from the squad car.Weapons are firearms (including backups),chemical sprays, pocketknives, and anythingelse that could be used as a weapon. The intake

1 National Commission on Correctional Health Care, Standards forHealth Services in Jails (Chicago, IL: National Commission onCorrectional Health Care, 1996).

2 American Correctional Association, Performance-Based Stan-dards for Adult Local Detention Facilities, 4th ed. (Lanham, MD:American Correctional Association, 2004, including supplement).

serves as the transporting offi-cer. In the latter case, the trans-porting officer should have acitation signed by the arrestingofficer. Parole or probationviolators brought to the jailshould normally be accompa-nied by a hold order signed bythe parole or probation officeror a commitment order fromthe court.

Some individuals are sentencedto the jail and brought directlyfrom court. They should be accompanied byproper sentencing documents. Some may begiven deferred sentences, and yet others mayturn themselves in at some time in the future.To accommodate these situations, the intakeofficer must have access to the proper chargingdocuments.

Finally, the intake officer must ensure that theofficer bringing the arrestee to the jail is a bonafide law enforcement officer by requiring theofficer to produce proper identification. Failureto do so could result in an illegal commitment orleave the jail open to an attempt to breach secu-rity (e.g., an escape attempt).

Medical Clearance To Accept

Arrestees brought to the jail should be assessedby jail medical personnel or trained intake offi-cers to identify any obvious injuries or medicalconditions that may need care or treatment be-fore the jail accepts custody. Most jails, eventhose with full medical programs, are not equipped to treat serious medical conditions.Arrestees should not be accepted for admissionif they are unconscious, undergoing severe with-drawal, excessively intoxicated (many jails donot accept arrestees with a blood alcohol levelof 0.25 or higher), or reacting to existing acuteconditions or if they have head injuries, obvious

Chapter 13: Jail Intake and Release

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officer should confirm that weapons have beensecured. The arresting officer can then removethe arrestee from the vehicle and bring him orher into the jail.

Ideally, the entrance to the intake area from thesallyport should include a safety vestibule wherethe arresting officer and the intake officer canperform a frisk search and transfer restraintsbefore bringing the arrestee into the intake area.If the jail does not have a drive-through sally-port, jail and law enforcement officials shoulddevelop and agree on procedures to be used forsafe and secure transfer of the arrestee from thesquad car into the intake area of the jail.

If the arrestee is combative, the arresting officershould notify jail officers before arriving at thejail to give them a chance to prepare for the pos-sible need to use force and for immediate place-ment in a holding cell or appropriate restraints.

Legal Commitment

The intake process should include proceduresfor verification of arrest and identification of thearrestee. The arresting officer should presenta confinement order containing a legal chargewhen bringing an arrestee to the jail. The intakeofficer should be able to identify valid charges,have a list of codes and statutes that apply in thejurisdiction, and know how to read the statutebook. Failure to verify a legal charge may resultin an illegal admission, leaving the jail potential-ly liable for wrongful confinement.

Each state has laws defining who may be de-tained in the jail. In some states, juveniles arenot allowed to be confined. In others, intoxicatedindividuals may be confined temporarily for pro-tective custody. Admissions criteria establishedin intake policies and procedures should be con-sistent with applicable state laws and standards.

The arresting officer normally brings the arresteeto the jail, but sometimes a different person


Review policies and pro-cedures for intake andrelease to determine ifthey meet the require-ments of the standards.Consult with legal coun-sel and risk managers toassure that essential life,health, safety, and con-stitutional issues areadequately addressed inpolicies and procedures.

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broken bones, or open and gaping wounds. Policyshould require that these arrestees be taken bythe arresting officer to a hospital for treatment.Subsequent admission of the arrestee to the jailshould be only on written medical clearancefrom a qualified medical authority that indicatesthe arrestee is fit for confinement.

When arrestees are brought to the jail with lessserious medical conditions and jail medical per-sonnel are available, the intake officer shouldask the medical personnel to determine whetherimmediate medical treatment is needed. Basedon the assessment, jail medical personnel mayprovide treatment, defer treatment to scheduledsick call, or recommend that the arrestee betaken to the hospital.

Initial Searches

Before arrestees are admitted to the intake area,the intake officer should pat- or frisk-searchthem either in the sallyport or in a security vesti-bule. Intake officers periodically find weaponsand other contraband missed by arresting offi-cers during their field search.

Medical Screening

Medical screening at intake is an important func-tion intended to give arrestees access to healthcare. Many jails defer intake medical screeningto a later point in the process. If the screeningis deferred, it is important to conduct an initialmedical clearance before accepting the arresteeinto the jail.

Many arrestees come to the jail with infectiousdiseases, mental illness, and other chronic ornonemergent medical conditions or injuries. Thereceiving screening process should identify theseproblems so that conditions or injuries may betreated and those who cannot be placed in thegeneral population can be properly housed andsupervised.

Most professional and state standards permiteither qualified medical personnel or trainedofficers to perform medical screening by thefollowing methods:

■ Observation of the arrestee.

■ Dialog with the arrestee.

The medical screening should be documented onforms that are specific and adequate to identifyinjuries, medical conditions, or signs of druguse. Deferment of a complete medical screeningis accepted practice when the arrestee is non-communicative. However, the observation partof the form should be filled out, and the arresteeshould be placed on heightened observation untilhe or she can answer questions.

In jails without medical staff, officers should betrained to recognize potential medical problems.Any unusual conditions noted during screeningshould immediately be referred to the supervis-ing officer for possible heightened observationor to transport the arrestee for emergency treat-ment. Information from the screening formshould be used by medical staff, classificationofficers, and booking officers in the temporaryor permanent housing of inmates.

An essential part of the medical screening proc-ess is an assessment for suicidal indicators. Sui-cide is a leading cause of jail deaths, can happenin a very short time, and often occurs shortlyafter intake begins. When assessing suicide, theofficer should (1) ask questions regarding thearrestee’s current suicide ideation or plans, histo-ry of suicide, and mental health status (depres-sion and medications), and (2) observe behaviorsuch as crying or hopelessness and signs of pastattempts. Many medical screening forms in gen-eral use are inadequate to assess suicide poten-tial. The NCCHC standards manual includesseveral suicide screening forms appropriate for


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use in the jail. (See chapter 11, “Special Man-agement,” for more information on the care,housing, and supervision of inmates with specialneeds.)

An emerging area of scrutiny by the courts isthe screening for mental illness. Assessing thedegree of serious mental illness and decidinghow to house and supervise these inmates pre-sent a dilemma for intake officers and medicalproviders, in that most jails do not have qualifiedmental health personnel on duty at all times.Often, inmates with mental illness have com-pounded their condition with drugs or alcohol.In some cases, the mental health condition ofan arrestee may necessitate emergency hospital-ization and treatment. In others, the arrestee mayneed to be isolated, observed closely, and re-ferred to a mental health provider as soon aspossible.

Inmate Property and Money

All personal property should be collected fromthe arrestee, along with any property the arrest-ing officer previously confiscated that was notretained as evidence. Complete the proceduresfor the inventory and disposition of the arrestee’sproperty in the arrestee’s presence, identifyingitems that are accepted and those that are to bereleased to the arrestee’s family. Accepted prop-erty should be processed as follows:

■ Identification on a form.

■ Identification by item (including a descrip-tion, e.g., a yellow ring, a red stone, usingbrand names for items such as watches).

■ Description of condition.

■ Listing of items in wallet and amount ofmoney (counted in the presence of theinmate).

■ Packaged in tamperproof bags/envelopes andstored in a secure storage area.

The intake officer and arrestee should both signa receipt for all confiscated property and money.The jail should keep a copy of the receipt andgive one to the arrestee.

The jail should have a secure storage area forinmate property and procedures for limited andrecorded access to the area. Neither inmates norofficers should have access to the area withoutlegitimate reason. The storage area should bewell ventilated. A washer and dryer should beavailable to clean soiled inmate clothing.

A careful and thorough inventory of property, asecure property room, and signed receipts arethe best means to ensure that property has beenproperly identified and preserved. A clear chainof custody protects the jail from false claimsregarding stolen, switched, or missing property.

Booking Form

The identity of the arrestee and essential infor-mation regarding personal data and pendinglegal matters must be documented. Most jailsuse computer-generated forms that are quitethorough. However, when using such forms, youmust ensure that the data requirements for thesoftware program meet the jail’s informationneeds and the requirements of the jurisdiction.If not, you must capture the information inanother manner and on a separate form.

The following are the types of information usu-ally recorded:

■ General data: e.g., date, time, case number,and booking number.

■ Arrestee information: e.g., name; date ofbirth; social security number; driver’s licensestate and number; Federal Bureau of Investi-gation number; address; telephone numbers;employer, if known; occupation; height,weight, ethnicity, hair and eye colors, scars,

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marks, and tattoos; next of kin; and emer-gency contact.

■ Court information: e.g., charged crime,arresting officer, agency name, bail typeand amount, court of jurisdiction, warrants,detainers, and special instructions of thecourt.

Identification: Photos and Fingerprints

All arrestees should be photographed and finger-printed to establish and confirm their identity.Photographs are normally taken on intake torecord the identity associated with the bookingname and the physical condition of the arrestee’sface at the time of booking. Many jails also pho-tograph distinguishing marks, scars, and tattoosof arrestees. Photos are placed in the inmate’smain file and classification and medical files andon identification badges or wristbands. Manyjails place photos on housing unit “status boards”and other locations where an inmate’s file is kept.

Many jails now have automated fingerprintingsystems with a direct link to their state’s crimi-nal justice information system (CJIS). Somestates provide the equipment at no cost. Thebenefit of such a system is almost instantaneousverification of identity, aliases, and other infor-mation, including criminal record.

Checking for Warrants

Once an arrestee is identified and fingerprinted,intake officers should check for wanted noticesor warrants from other jurisdictions to hold thearrestee on other charges should they exist.These checks are usually done by submittingnames and/or aliases to the state CJIS or lawenforcement data system (LEDS), which is arepository of state wanted notices and warrants.Most state information systems are tied to theNational Crime Information Center (NCIC), anda single inquiry is all that is necessary. If yourstate is not connected to NCIC, a separateinquiry may be needed.

If warrants or wanted notices exist, the agencyor court issuing them must be identified. The jailshould have procedures for contacting the appro-priate agency for notification and requesting offi-cial written authorization to hold the arrestee.Procedures should also dictate time limits for aresponse by the requesting agency and extradi-tion and/or transport requirements.

Telephone Calls

The intake area should have telephones avail-able for arrestees who need to contact family orfriends to notify them of their whereabouts andto possibly assist in their release. Additionally,arrestees may need to contact bail bondsmen orattorneys.

Telephones may be viewed as a convenience,but they are related to an arrestee’s right ofaccess to an attorney or the court for purposesof bail. Telephones that allow only collect callsare used in many jails; however, some jurisdic-tions give arrestees access to free telephone callsat intake to facilitate their efforts to secure bond.Telephones may be located in a reception area ofthe jail or in holding cells, and their use shouldbe controlled by policies and procedures. Officersshould supervise the telephones and their use,especially if the telephones are in holding cells,to ensure that all arrestees have equal access tothem and that they are not vandalized or used asweapons.

Pretrial Release Eligibility

In most cases, arrestees will be eligible for re-lease through bond or on their own recogni-zance. Bond or recognizance procedures varygreatly among states. Some states mandate bondschedules set by law, others have bond schedulesapproved by the local court, and yet others havea magistrate system in which bond is set by acourt official on a case-by-case basis.


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Many states and counties have established pretrial release programs where court officialsestablish criteria for release on one’s own recog-nizance or under some type of community super-vision. In some jurisdictions, release can beautomatic or immediate if certain criteria are met.In others, an intake profile is developed and pre-sented to the court the next business day, andrelease on recognizance is either granted or de-nied by a judge.

Followup Search, Dress-Out, and Issue

When arrestees are not going to be releasedshortly after the booking process is completed,jails normally dress out the arrestee in jail cloth-ing. This process should be controlled by policy,including instructions as to what property theinmate is permitted to take into the general pop-ulation area. The process generally includes athorough followup search of the inmate, a show-er, exchange of civilian clothing for inmate uni-form, and issuance of a hygiene kit and jailproperty including bedding, linens, and a mat-tress. The inmate should sign a receipt acknowl-edging acceptance of jail property and theresponsibility to reimburse the jail for the costof any items that are not returned. If inmates willbe strip searched or observed in the nude duringthe shower and clothing exchange process, thejail administrator should ensure that proceduresadhere to the “reasonable suspicion” standarddescribed in the section on inmate searches inchapter 8, “Jail Security, Safety, and EmergencyPreparedness.”

Most jails delouse inmates only when it isobvious that the inmate is infested. Proceduresshould address delousing, noting which materi-als and what quantities are to be used foreffectiveness. If an inmate has evidence of in-festation, medical staff should assess the situa-tion and be involved in the delousing process.

Classification and Orientation

Classification and orientation are key elementsof inmate behavior management and are initiatedat intake for arrestees unable to secure releaseduring or at the completion of the intake process.These elements are described in further detail inchapter 9, “Inmate Behavior Management.”

Management of Inmate Behavior

Effective supervision and management of in-mates at intake are critical because this periodof incarceration presents the greatest potentialfor injury or harm to staff and arrestees due tothe instability or uncertainty of the conditions orthe circumstances in which arrestees find them-selves. The intake period is extremely stressfulfor arrestees and is often compounded by theirphysical and mental conditions when they arriveat the jail. Typically, officers should anticipatearrestees to come into the jail with one or moreof the following conditions:

■ Drug or alcohol intoxication.

■ Withdrawal symptoms.

■ Injuries resulting from arrest, accidents,or fights.

■ Malnutrition.

■ Mental illness or suicidal tendencies.

■ Infectious diseases.

Arrestees, fearful of their situation and theimmediate future, may be uncooperative, angry,and violent. These issues and conditions must beeffectively managed during the intake process.A well-planned intake process provides for thefollowing:

■ An adequately staffed intake area.

■ Appropriate equipment to perform intakefunctions and handle issues that arise.

■ Adequate staff training regarding the intakeprocess.

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■ Adequate staff training in interpersonal com-munications to deal with police officers andarrestees in stressful situations.

■ Adequate staff training in universal precau-tions for infectious diseases and use of force.

■ Functional spaces for booking, searches,property receipt and storage, identification,classification, medical screening, andorientation.

■ Enough holding cells to separate violentarrestees.

■ Cells or waiting areas for nonviolent andcooperative arrestees.

■ Observation cells for suicidal arresteesand those under the influence of drugs oralcohol.

■ Access to negative-pressure cells to housearrestees with airborne infectious diseases.

Use the intake process to set the tone for the in-mate’s stay in the facility. The expectations estab-lished during the process, how they are conveyed,the level of professionalism displayed by offi-cers, and the overall environment can positivelyinfluence arrestees’ behavior during intake andfor the duration of their stay in the facility.

People typically respond to their environment.Calm and professional staff create an environ-ment that has a calming effect on most arrestees.Such demeanor conveys an impression that staffare in charge and fully capable of successfullyresponding to any circumstance.

Summary

Intake is a critical area of jail operations wherenumerous factors converge, presenting staff andinmate safety issues that can lead to injuries,sickness, and death if mishandled. State, ACA,and NCCHC standards, and the checklists in theappendix of this guide, are primary resourcesthat jail policymakers can use to conduct self-audits to identify areas of deficiency related to

policy, operations, and training. Self-audits resultin improved safety for both staff and arresteesand may reduce the likelihood of liability fromnegative outcomes when serious incidents arise.

Release From Jail

Whereas the intake process must address life,health, safety, and legal issues, the release proc-ess is typically less intense, although not lesscritical. The release process may occur shortlyafter the intake process if an arrestee securespretrial release, or it may occur much later, atthe end of a sentence or on disposition of thearrestee’s case. Inmates are released from jail forvarious reasons, including bail, sentence comple-tion, dismissal of charges, a finding of not guilty,transfer to prison, release to another agency, andtransfer to a hospital.

For arrestees, the release process is routine, re-versing the intake process by identifying the in-mate, verifying that no holds or detainers exist,returning property, and securing the jail-issuedproperty that was given to the arrestee at intake.For inmates who have spent more than a shorttime in the jail, the process may be more compli-cated because medical and mental health issuesand certain legal issues that require attentionmay be involved. Regardless of the length oftime an inmate spends in jail, however, the fol-lowing issues need to be addressed:

■ Legal discharge documents and verificationof identity.

■ Checking for holds or detainers.

■ Return of property and money.

■ Medical issues.

■ Victim notification.

■ Prerelease requirements.

■ Transportation for the released inmate.

■ Release document.

These issues are discussed in the followingsections.


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Legal Discharge Documents and Verificationof Identity

Some form of official approval must be securedbefore any inmate can be released. The jail offi-cer must be certain of three circumstances:

1. The release is official and properly execut-ed. That is, the document is legal and signedby an authorized person. Sample documentsshould be available in the release area so thatofficers can check the legality and thorough-ness of documents. The availability of sam-ple signatures of judges and clerks is alsoadvisable. When in doubt, officers shouldask a supervisor to check the release docu-ment for correctness.

2. The identity of the person to be released isconfirmed. Properly identifying an arresteeor inmate is an important part of the releaseprocess. Although release of the wrong per-son is rare, failure to properly identify theperson may result in tragic consequences atthe worst and embarrassment at the least. Inevery case, the inmate should be identifiedby photo and by asking the inmate questionsregarding personal information such as dateof birth and social security number.

3. The identity of the person to whom the inmate is to be released is confirmed.Verification of officials should include ex-amination of credentials. Instruct staff to aska supervisor to verify the credentials if theyare in doubt.

Checking for Holds or Detainers

The file of any person to be released from jailshould be checked for active holds or detainers.Although a person may not have had any holdswhen arrested and initially detained, holds maysubsequently have been placed. The jail shoulddevelop a system to identify these holds and seethat releases are not made without checking forthem.

Return of Property and Money

Return of an inmate’s property and money canbe costly for the jail if either has been lost, dam-aged, or improperly identifiedat intake. The importance ofclear procedures for receipt,storage, and return of inmateproperty, including the in-mate’s acknowledgment of thereturn of the property, is dis-cussed above. Procedures forlost property should be estab-lished in conjunction with thecounty’s risk management sec-tion, and methods for filing claims should beexplained to, and acknowledged by, the inmatebefore release.

The jail’s funding authority should develop andapprove procedures for the handling of inmates’money, including the establishment of trustaccounts to track receipt and disbursement offunds while the inmate is in custody. Proceduresshould also be established for inmate return ofjail property and for charging inmates for miss-ing or damaged property.

Medical Issues

If an inmate received medical or mental healthcare and treatment at the jail, the law mayrequire specific reporting—especially wheninfectious diseases are involved. In most states,the jail is required to report infectious diseasesto the local health department, both when thedisease is identified and when the inmate isreleased.

NCCHC standards recommend even broadercommunication regarding released inmates, con-sistent with privacy requirements—specifically,that inmates identified as having long-term orserious conditions such as psychiatric illness,hypertension, diabetes, epilepsy, communicable


Verify that release pro-cedures address issuesrelated to medical notification, victim noti-fication, inmate identifi-cation, review for holds,and receipt, storage,and return of property.

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diseases, urinary tract infec-tion, serious trauma, pregnan-cy, or terminal illness bereferred to clinics or commu-nity health resources. Forsome of these inmates, specialarrangements may be warrant-ed, including case-managementreferral or provisions such

as mental health appointments and followup.NCCHC standards also recommend that only aphysician should be authorized to determine theneed for a medical discharge plan to facilitatethe inmate’s transition to the community andsubsequent treatment.

Another consideration is providing a releasedinmate with medications for illnesses or mentalhealth conditions that have been treated in thejail. In the absence of legal requirements, bestpractice for the jail may be to provide medica-tions for a short period until the person canaccess medical care in the community. The jailadministrator should check jurisdiction require-ments to determine whether this is a practice thatis supported by the jail’s medical provider.

Victim Notification

Another essential part of the release process isvictim notification. Most states now require thejail to notify victims when certain individuals arereleased from jail. The jail should have a “tick-ler” or “red flag” system for identifying victimsand procedures for notifying them. Automatedsystems can facilitate this notification in somejurisdictions. In the absence of such systems, thejail must develop procedures for victim notifica-tion and a system of documentation to verifythat notification has been made. The systemshould also provide for alternative methods ofnotification when the victim cannot be reacheddirectly.

Prerelease Requirements

Releasing officers should make a final adminis-trative check of the inmate’s file to ensure thatall requirements of sentencing have been met.They should also confirm that any administrativecharges levied on the inmate, such as copays formedicine, costs of booking, daily charges forwork release, and transport fees, have been paid.

Transportation for the Released Inmate

If the jail is in a residential neighborhood or anisolated rural area with no public transportation,procedures should be developed for safe trans-port to urban areas.

Release Document

A release document or checklist should becompleted and placed in the inmate’s file.The release document verifies the followinginformation:

■ Inmate name and number.

■ Personal and legal data collected at booking.

■ Case number.

■ Release time and date.

■ Method of release.

■ Person to whom the inmate is released (ifapplicable).

■ Check number and amount for returnedmoney.

■ Released property.

■ Medical release.

■ Medications and medical appointments.

■ Time and method of victim notification.

■ Time and method of verification of holdsand detainers.

Summary

A well-planned release process provides for thesafe, legal return of inmates to the community.Discharge planning, referral to community


Develop a checklist of allcritical areas in intakeand release, and assessthe level of compliancewith your jail’s policiesand procedures.


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resources, and victim notification are becomingincreasingly important elements of the releaseprocess. Attention to these aspects of the releaseprocess and those that are more routine willenhance the safety of the community, improveprospects for the inmate, and reduce the jail’sexposure to liability.

Special Considerations at Intake

The last section of this chapter addresses severalissues that should be given special considerationat intake. The potential for problems in theseareas is much greater during the initial periodof custody. The intake process must provide foradequate management of these risks and appro-priate responses when incidents occur.

Suicide

Suicide is a leading cause of death in jails,which is at least partially explained by the highpercentage of arrestees who are mentally ill anddepressed, often compounded by intoxication.Most jail suicides occur shortly after arrest, thefirst 72 hours being the most critical.

The jail should have a suicide identification andmanagement plan to detect potentially suicidalarrestees and supervise them while they are incrisis and until mental health providers establisha treatment and supervision plan for them. Thesuicide identification and management planshould include the following elements:

■ The arresting officer should be required tofill out a form regarding any injuries fromsuicide attempts or statements about suicide.

■ Any inmate identified as suicidal should beplaced on documented constant observation(with staff positioned where they can contin-uously monitor the suicidal inmate) until heor she is seen by a mental health authority.

Subsequent observation routines and deci-sions to remove the arrestee from suicidewatch are determined by the mental healthauthority.

■ A suicide observation cell, free of protru-sions, should be used and inspected for anyitems with which the arrestee may harmhimself or herself.

■ The arrestee should be given a commerciallyavailable suicide gown or blanket that cannotbe destroyed or torn. This type of garmentoffers dignity while denying any clothingwith which the arrestee can inflict harm.

■ Mental health providers should be undercontract to assist with suicide identificationand prevention.

■ A plan should be in place to deal with sui-cides in progress. Training in cardiopulmon-ary resuscitation and first aid is essential forfirst responders. Implements should be onhand to cut down inmates who hang them-selves. Staff should never preserve the crimescene rather than try to save an arresteeattempting suicide.

■ Each case of suicide and attempted suicideshould be documented and investigated todetermine whether policies were followedand whether they need to be revised.

Officers must be trained to identify suicidalsigns and symptoms. Local medical or mentalhealth providers can often give such training.Additionally, a complete training curriculum insuicide prevention3 is available through theNational Institute of Corrections InformationCenter. All training should be documented.

Intoxication and Withdrawal

Many arrestees come to the jail under the influ-ence of drugs, alcohol, or both, with varying

3 J.R. Rowan and L.M. Hayes, Training Curriculum on SuicideDetection and Prevention in Jails and Lockups, 2d ed. (Baltimore,MD: National Center on Institutions and Alternatives, 1995).

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degrees of intoxication. These arrestees areunpredictable and need close observation. Inmany cases, the intoxication may mask othermedical problems such as head injury or diabeticshock. Letting the person “sleep it off” with littlesupervision and observation may result in deathor serious injury.

The jail administrator should consult with med-ical providers to develop policies and proceduresfor identification, housing, observation, andtreatment of arrestees under the influence ofdrugs or alcohol. The procedures should addressthe following issues:

■ Rejecting excessively intoxicated individu-als. The policy of many jails is now to refuseto accept arrestees whose blood alcohol levelis 0.25 or higher, unless the arrestee has re-ceived medical clearance, because such indi-viduals are subject to withdrawal. Staff mustbe aware that severe alcohol withdrawal isthe abstinence syndrome with the highestincidence of death and that most jails areinadequately equipped to treat withdrawal.Management of severe withdrawal shouldonly be carried out in a licensed medicalfacility. The jail should have portable breathdetectors to test arrestees.

■ Prohibiting the “medicating” of arresteesin withdrawal by giving them alcohol.This procedure is illegal.

■ Developing protocols for observing andcaring for moderately intoxicated arresteesor those undergoing moderate withdraw-al. If symptoms worsen, the arrestee shouldbe transported to a hospital.

■ Establishing procedures for observation.Individuals under the influence of drugs oralcohol should be under heightened and doc-umented observation. Checks should bemade at least every 15 minutes, preferablyby available medical staff. Individuals underheightened supervision should never beplaced in an upper bunk.

Infectious Diseases

Arrestees with infectious diseases present a chal-lenge to staff in preventing the spread of diseaseand maintaining a healthful environment. Manytypes of infectious diseases are caused by illicituse of drugs and risky behavior.

Any program dealing with infectious diseasesshould be coordinated through the local healthdepartment or other appropriate medical authori-ty. At minimum, the following issues should beaddressed through policy:

■ Arrestees with infectious diseases mustbe housed separately from the generalpopulation.

■ Negative-pressure cells (i.e., cells where theair is not recirculated but vented to the out-side) should be available. Older jails, andeven some new jails, do not have negative-pressure cells. In facilities without thesecells, arrestees with communicable diseasessuch as active tuberculosis should be treatedin a hospital or other facility where negative-pressure rooms are available. Tuberculosiscan be fatal to staff and arrestees with auto-immune deficiency syndrome or other dis-eases that can deplete the immune system.

■ Staff and inmate workers must be trained inuniversal precautions.

■ Blood and body fluids must be cleaned withbleach solutions.

■ Hand-washing facilities must be readilyavailable.

■ Plastic gloves must be discarded after eachuse.

Use of Force and Restraint Equipment

The potential for use of force, including use ofrestraint equipment, during intake is greater thanat any other time during custody. The principlesoutlined in chapter 8, “Jail Security, Safety, andEmergency Preparedness,” should govern the use


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of force and restraints at intake. Booking officersmust be thoroughly trained in policies and pro-cedures and be competent in using approvedmethods and techniques. Approved restraintequipment should be pre-positioned and readilyaccessible in the intake area of the jail.

Medical Services

The provision of medical services at intake isimportant because many arrestees come to thejail with medical problems. Medical judgmentshould never be countermanded by security con-cerns or decisions. Although this principle islongstanding, medical and security staff stillmust collaborate in their shared concerns. Forexample, only qualified mental health or trainedmedical personnel may remove an arrestee fromsuicide watch. Jail officers, however, should givemedical staff any information they have gatheredfrom observing the arrestee.

A problem, especially with small jails, is thatmost do not have medical personnel on staff. Anarrestee with a medical problem may have to betaken to an emergency room or a doctor’s office.Although this is accepted practice, the decisionas to whether to access medical care in the mid-dle of the night places a considerable responsi-bility on an officer who may be on duty alone.Nonetheless, the officer cannot be a gatekeeperwhen serious medical needs present themselves.A solution may be to contract with a hospital oron-call physician with medical staff who can beavailable to answer the officer’s questionsaround the clock.


“Jail Intake: Managing a Critical Function. PartOne: Resources.” T.A. Rosazza and W.F. Cook,American Jails 13 (1): 35–37, 1999.

“Jail Intake: Managing a Critical Function. PartTwo: Intake Task Analysis.” T.A. Rosazza andW.F. Cook, American Jails 13 (2): 35–41, 1999.

Jail Officer’s Training Manual. NationalSheriffs’ Association, 1990.

“Jails and Lockups: Don’t Be Caught OffGuard.” T.A. Rosazza, Public Risk 5 (7): 8–10,1991.

National Study of Jail Suicides: Seven YearsLater. L.M. Hayes and J.R. Rowan, NationalCenter on Institutions and Alternatives, 1988.

“A New Strip Search Paradigm.” R. Sabbatineand D. Leach, American Jails 10 (5): 39–42,1996.


Prison Health Care: Guidelines for the Manage-ment of an Adequate Delivery System. J. Anno,National Institute of Corrections, 1991.

Standards for Health Services in Jails. NationalCommission on Correctional Health Care, 2003.

“Suicide Behind Bars.” T.A. Rosazza, PublicRisk 8 (7): 19–21, 1994.

“Suicide Litigation: Common Problems Seenin Training, Assessment, Housing, Observation,and Referral.” T.A. Rosazza, American Jails13 (4): 27–30, 1999.

Training Curriculum on Suicide Detection andPrevention in Jails and Lockups, 2d ed. J.R.Rowan and L.M. Hayes, National Center forInstitutions and Alternatives, 1995.

Chapter 14

Getting Started on the Job

14

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 207

Learning About the Jail . . . . . . . . . . . . . . 207

Developing an Action Plan . . . . . . . . . . . 208

Advice From Veteran Jail Administrators . . . . . . . . . . . . . . . . . . 209


In This Chapter

207

Getting Started on the Job

Overview

This final chapter is oriented toward the new jailadministrator, although many of the conceptsmay be of interest to veteran administrators whowant to improve the effectiveness of their jail’soperations. It includes steps that new administra-tors can take to get to know their jail, understandhow it operates, and identify any potential prob-lem areas. This chapter also describes how todevelop an action plan to ensure that priorityissues are addressed in the first few months.Lastly, the chapter includes advice from veteranjail administrators on how to get a positive starton the job.

Newly appointed jail administrators should findthe information and assessment tools in this doc-ument particularly useful in getting establishedin their new position. These materials, and thechecklists in particular, will create a structure forthe listening and learning that new administra-tors must do during the first few months on thejob to get the “lay of the land” and make anaccurate assessment of priority issues.

Learning About the Jail

Newly appointed jail administrators learn manyaspects of the job in the first few months. Issuesthat may require immediate attention include thebudget, contracts, pending litigation, pendingpersonnel actions, and equipment breakdowns.During this learning period, you should deter-mine what requires immediate attention andwho can provide the answers. Some steps

administrators can take to identify the majorissues are listed below:

■ General administration:

■■ Meet with the sheriff or chief executiveofficer of the agency to determine whathe or she views as major issues and pri-orities. Use these meetings as a means toclarify your role and scope of authoritywithin the organization in making deci-sions related to the jail.

■■ Meet with the jail’s legal counsel to dis-cuss current issues and any pending liti-gation, court orders, or consent decrees.Find out if there is a history of litigationin any particular areas.

■■ Determine the availability and currentstatus of written directives (e.g., policiesand procedures, post orders) and othertypes of documentation. Determinewhether the jail’s legal counsel haskept these written directives current andwhether staff have received training onthem and are following them.

■■ Review all contracts or interagencyagreements to determine what servicesare offered, the cost, and their currentstatus. Obtain contact information foreach contract or agreement.

■■ Identify key criminal justice officialswhose decisions affect the use of thejail. Meet with them as a group to dis-cuss their issues and concerns.

14

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■■ Identify key local media representativesand get their contact information. Re-view their record of past coverage of thejail. Meet with them as necessary to seta positive tone for the future.

■ Budget development and management:Identify the jail’s budget analyst within thejurisdiction’s budget office. Set up a meetingto go over the current budget and discussany outstanding budget issues that requireimmediate attention. Note the key dates forbudget preparation, submission, and reporting.

■ Human resources management:

■■ Review the current organizational struc-ture and reporting relationships, staffingplan, staffing levels, and staff turnover.

■■ Meet with the jail’s human resourcesrepresentative to go over collective bar-gaining agreements and other pendingpersonnel issues.

■■ Meet with key jail personnel to deter-mine what they see as issues andpriorities.

■■ Talk to staff on a regular basis.

■ Inmate services and programs:

■■ Review data on jail population charac-teristics and trends to get a good under-standing of what types of inmates are inthe jail and how the local justice systemis using the jail.

■■ Request an audit of inmate financial andcommissary accounts.

■ Facility:

■■ Review the most recent inspection re-ports of outside agencies such as the fireand health departments and jail inspec-tion agencies. Identify any outstandingdeficiencies and determine what stepshave been taken to correct them. Givepriority to deficiencies affecting the life,health, and safety of inmates and staff.

■■ Meet with key staff responsible for themaintenance and upkeep of the jail todiscuss the current condition of the facil-ity and identify any facility-related prob-lems that require immediate attention.

■■ Review documentation of past internalinspections (e.g., security, safety, sanita-tion, maintenance). Determine whetherappropriate corrective action has beentaken to resolve any deficiencies identi-fied in these inspections.

■ Security, safety, and emergencypreparedness:

■■ Review emergency procedures and assessthe jail’s current level of readiness to re-spond to emergencies.

■■ Review documentation of past incidents(e.g., suicides, suicide attempts, fires,use of force, disturbances) to identifypotential problem areas and trends.

Veteran jail administrators suggest that newadministrators take the time to walk around thejail and just listen. Keep a pad and pen handy totake notes during this time. If no major issuesare apparent, postpone making major changesuntil you have a better overall perspective offacility operations and how things came to beas they are. Your focus during the initial periodshould be to pinpoint issues to be addressed andgather the information necessary to evaluateoptions. Once the issues are known, you candevelop a plan to address them.

Developing an Action Plan

Each new administrator brings strengths and acertain level of experience to the position. Thepolitics and circumstances that lead to the selec-tion of a particular administrator vary signifi-cantly from one jurisdiction to another. The keyto getting a good start on the job regardless ofthe circumstances is to have a plan that bringsyou up to speed quickly so that you can focus

■ Get approval for the plan. Present the planto the sheriff or chief executive officer (CEO)for approval. This will reassure the CEO thata plan for addressing major issues is in place,a timeline has been established, and respon-sibilities fixed. The plan not only provides aroadmap for the jail administrator but offersan opportunity for the administrator andCEO to establish joint expectations.

■ Work the plan. Implement the action plansestablished for each issue.

■ Revisit the plan periodically. Interveningvariables may require adjustments to the plan.By reviewing the plan periodically, you mayfind that some tasks need more time whereasothers can be accomplished in a shorterperiod.

Advice From Veteran Jail Administrators

Several experienced jail administrators wereasked what advice they would give to new jailadministrators about how to approach their firstmonths on the job. Their responses are summa-rized below.

When asked what information they would advisea new jail administrator to seek out right away,the veteran administrators replied as follows:

■ Identify the problems that need immediateattention.

■ Identify the layout of the jail and whatequipment is available and in usablecondition.

■ Review current policies and procedures anddetermine whether they are constitutionallyand operationally sound.

■ Determine the extent to which staff are fol-lowing current policies and procedures.

■ Get to know the staff and assess theirperformance.

■ Learn about the needs and ambitions of staff.

Chapter 14: Getting Started on the Job

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on the important issues. The following guide-lines will help you develop an effective actionplan:

■ Compile a list of issues requiring immedi-ate attention. The previous section listedsteps for identifying the most critical issues.You can also use the assessment checklistsprovided in the appendix of this guide toconduct an overall assessment of the jail.

■ Analyze the issues. For each issue, write outall of the aspects of the problem. Identifyhow the problem is negatively affecting thejail and anything positive in the organizationor the community that can assist in solvingthe problem.

■ Define the issues. Define each issue in con-crete terms and find evidence of the prob-lem. For example: Contraband is a problemin the jail as evidenced by three knives thatwere found in a shakedown and the fact thatinmates were recently injured by weaponsused in a fight. The evidence clarifies theproblem for both the administrator and thestaff.

■ Prioritize the issues. At first, the list ofissues may seem overwhelming. However,by prioritizing the issues, you can focus onthose that are most critical to the success ofthe jail. Less urgent or important issues canoften be delayed or delegated.

■ Analyze options. Gather information on theoptions available to address each issue andselect the most appropriate course of action.

■ Establish a timeline for addressing priori-ty issues. Be realistic in establishing a time-line. Not all changes can or should be madeat once.

■ Assign staff. Select staff members and oth-ers to assist in addressing the issues andassign responsibilities to designated staffaccording to their skills and abilities.

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■ Get a copy of the jail’s current budget andreview it.

■ Find out what the jurisdiction’s proceduresare for purchasing goods and services.

■ Find out who controls the purse strings andwhat his or her view of the jail is.

■ Find out what your superiors expect of you.

■ Get an understanding of the power structureof the agency and jurisdiction and determinewhere you fit in.

■ Assess the cleanliness of the jail.

■ Identify the legal advisor for your office.

■ Learn about the sources of training availableto you and take advantage of them wherepossible.

■ Learn about the sources of training for jailstaff.

When questioned about the types of trainingthey would like to have had before beginningtheir jobs, the surveyed jail administrators citedthe need for more training in the following areas:

■ Jail management.

■ Human resources management.

■ Leadership.

■ Budgeting.

■ Public speaking.

■ Personnel law.

■ Staffing analysis.

■ Time management.

■ Organizing effective meetings.

■ Dealing with vendors.

Their top recommendations to new jail adminis-trators included the following:

■ Know what you are required to do and be-lieve in what you are doing. This attitudeshould motivate you to move your philoso-phy forward.

■ You are ultimately responsible for the actionsof staff and inmates, so be prepared to spendmany hours in thought, investigation, anddocumentation to resolve the issues that con-front you.

■ When angered or frustrated, do not takeimmediate action unless absolutely neces-sary. Wait 24 hours to clear your head andlet the anger or frustration dissipate. Thiswill help you avoid bad decisions.

■ Know what you want your jail to be like.Picture it in your mind, believe in yourvision, and make sure you can explain itand sell it.

■ Genuinely care about your inmates. Mostof them go back to your community.

■ Never give up on talking to the public.

■ Regardless of who comes up with a greatidea, letting staff or the public think theyhad the idea will generally benefit the plan.

■ Stay calm. Don’t lose your temper, particu-larly with the media.

Being selected as a jail administrator offers youan exciting career opportunity. The steps youtake in the first few months on the job are criti-cal to your future success and to the success ofthe jail. Careful preparation will help you makethe most of this initial transition period. The in-formation and tools provided in this guide areoffered as resources to help new jail administra-tors get a good start and to serve as an ongoingguide for effective jail administration.


Resource Guide for Newly Appointed Wardens.S.W. McCampbell, M.E. Hall, and E.P. Layman,National Institute of Corrections, 2002.

A

Appendix A


In This Appendix

Electronic Sources . . . . . . . . . . . . . . . . . . 213

Publications and Videos . . . . . . . . . . . . . 214

Electronic Sources

American Correctional Association,www.aca.orgThis Web site links to several resources of inter-est to jail administrators, including an online cor-rections training academy for self-paced learning,instructional videos, and more than 300 publica-tions, including self-instructional courses in oper-ations and management, standards manuals, andpublications that describe facility design andsecurity management.

American Jail Association,www.corrections.com/ajaThis Web site links to several resources for jailadministrators, including a training calendar,resolutions addressing political and managementconcerns (direct supervision, juveniles, standards,etc.), publications (in a training format) in allareas of jail operations, jail operations videos,and jail management certification.

Corrections.com, www.corrections.comCorrections.com is a master Web site that address-es current affairs in corrections as well as issuesof immediate interest to jail administrators. Itsdirectory links to topics such as security, health,food services, juveniles, privatization, and tech-nology, and to information from vendors ofitems and services used in jails.

National Commission on Correctional HealthCare, www.ncchc.orgThis Web site is a source of information abouthealth care in jails, prisons and juvenile confine-ment facilities that can assist and guide adminis-trators in matters of correctional health care,

ethics, and legal requirements. The site offersmedical publications, standards for health care,position statements on emerging issues not yetcovered in the standards, and clinical guidelinesto help health care providers manage care forpatients with critical chronic diseases. The sitealso provides information on research studies andconferences and access to technical assistance.

National Criminal Justice Reference Service,www.ncjrs.orgNCJRS is a federally funded resource offeringextensive reference and referral services oncrime- and justice-related research, policy, andpractice. NCJRS maintains one of the largestcriminal and juvenile justice libraries and data-bases in the world. Its holdings include statistics,research findings, program descriptions, con-gressional hearing transcripts, and training mate-rials. The NCJRS sponsoring agencies, whichinclude the National Institute of Corrections,publish hundreds of reports and other informa-tion products each year, most of which can bedownloaded or ordered through www.ncjrs.org.Via the Web site’s electronic question-and-answer service or by phone, NCJRS staff canprovide statistics and referrals, discuss publica-tions, compile information packages, search foradditional resources, and offer other technicalassistance tailored to a specific request. NCJRSpublishes a bimonthly newsletter, the NCJRSCatalog, and a biweekly electronic newsletter,JUSTINFO, and provides e-mail notifications ofnew publications and resources matching one’sinterests.

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Recommended Resources A

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National Institute of Corrections,www.nicic.orgThe National Institute of Corrections (NIC)offers several direct technical assistance servicesand training resources for jail administrators.The NIC Web site includes links to training pro-grams, videoconferences, resources, special top-ics for jail administrators, and links to valuableresources such as the National Academy ofCorrections, the NIC Jails Division, and the NICInformation Center (www.nicic.org/services/info_center). The Information Center providesjail administrators (as well as policymakers andelected officials in all areas of correctional ad-ministration) with free research assistance anddocument delivery. In addition to providingaccess to all NIC publications, the InformationCenter’s publications database provides accessto materials from other sources about issuessuch as crowding, health care, training, andmanagement.

Publications and Videos

2001 Directory of Direct Supervision Jails.Washington, DC: U.S. Department of Justice,National Institute of Corrections, 2001. Availablefrom the NIC Information Center.

The National Institute of Corrections developedthis resource to help local officials, jail adminis-trators, and others interested in direct supervi-sion design and management to locate directsupervision facilities in a state or other geo-graphic region.

Alternative Shift Schedules Survey Results.Portland, OR: Multnomah County Sheriff’sOffice, Planning and Research Unit, 1996.Available from the NIC Information Center.

This publication presents survey results, mostlyfrom large jails, about alternative shift schedules,specifically the types of schedules being used;the advantages and disadvantages of each type;

the effect of the schedule on sick and personalleave, overtime, staff morale, and consistency ofsupervision and operations; collective bargainingissues; shift rotations; and training.

Beyond the Myths: The Jail in Your Community.Washington, DC: U.S. Department of Justice,National Institute of Corrections, 2003. VHStape (23 min.). Available from the NIC Informa-tion Center.

This videotape provides a foundation for theefforts of sheriffs and jail administrators to in-form the public about jails in general and in par-ticular and the need for community interest inand discussion about local jails. It can also beused to educate prospective jail employees aboutlocal detention.

Budget Guide for Jail Administrators. Part 1:Developing the Budget. Mark D. Martin. Wash-ington, DC: U.S. Department of Justice, Na-tional Institute of Corrections, 2002. Availablefrom the NIC Information Center.

This manual, the first of three budget guides forjail administrators, discusses the elements of aneffective process for budgeting both capital andoperational jail expenses. It outlines the rolesof key participants and methods for assessingneeds, estimating costs, and documenting thebudget request. Sample forms and worksheetsare included.

Budget Guide for Jail Administrators. Part 2:Managing the Budget. Mark D. Martin. Wash-ington, DC: U.S. Department of Justice, Na-tional Institute of Corrections, 2002. Availablefrom the NIC Information Center.

This manual, the second of three budget guidesfor jail administrators, provides an overview ofjail budget management, including key aspectsof management, the jail administrator’s responsi-bilities, and useful strategies.

Appendix A: Recommended Resources

215

Budget Guide for Jail Administrators. Part 3:Beyond Budget Allocation—Sources of Fundingand Services. Mark D. Martin. Washington, DC:U.S. Department of Justice, National Institute ofCorrections, 2002. Available from the NIC Infor-mation Center.

This manual, the third of three budget guides forjail administrators, describes strategies for iden-tifying, securing, and coordinating jail resourcesfrom multiple sources, both internally and ex-ternally. It emphasizes nontraditional fundingapproaches outside the local tax-funded budget.

Community Corrections in America: New Di-rections and Sounder Investments for PersonsWith Mental Disorders and Codisorders. Na-tional Coalition for Mental and Substance AbuseHealth Care in the Criminal Justice System.Arthur J. Lurigio, ed. Washington, DC: U.S. De-partment of Justice, National Institute of Correc-tions, 1996. Available from the NIC InformationCenter.

This monograph consists of several articlesabout the mentally ill and their supervision inthe community and is intended to help jail ad-ministrators learn about problems arising fromthe presence of the mentally ill in the criminaljustice system. Chapter 10, “Effective Strategiesfor Providing Mental Health,” describes modelsand examples of how to build a coalition orcommunity collaboration in addressing the men-tal health problem.

Critical Analysis of Emergency Preparedness:Self-Audit Materials. Jeffrey A. Schwartz andCynthia Barry. Washington, DC: U.S. Depart-ment of Justice, National Institute of Corrections,1996. Available from the NIC InformationCenter.

This hands-on manual is intended to help jailadministrators prepare for emergencies. It con-sists of several checklists for responding toemergencies, such as those stemming from fire,weather, and riots, and addresses training and

coordination with other agencies that assistduring emergencies. The manual includes casestudies on which jail administrators can baseemergency plans.

Developing and Revising Detention FacilityPolicies and Procedures. Mark D. Martin.Washington, DC: U.S. Department of Justice,National Institute of Corrections, 1996, rev.2002. Available from the NIC InformationCenter.

This basic “how-to” manual for developing poli-cies and procedures is applicable to agenciesthat either do not have a policies and proceduresmanual or want to restart the process by revisingexisting policies and procedures. In addition,the manual describes how to identify areas forpolicies and procedures, develop and implementstrategies, develop and maintain a policies andprocedures manual, implement policy, and moni-tor staff compliance.

Fees Paid by Jail Inmates: Findings From theNation’s Largest Jails. Washington, DC: U.S.Department of Justice, National Institute of Cor-rections, 1997. Available from the NIC Informa-tion Center.

Derived from a national study, this report de-scribes the extent to which jails are chargingfees for services and programs, the amounts ofmoney actually collected, the prevalent types offees collected, and the legal authority and mech-anisms for collecting fees. This report is writtenfor jail administrators interested in instituting feeprograms. The fees surveyed include booking,release, transport, drug testing, per diem, med-ical care, phone calls, haircuts, work release,weekenders, and home detention.

Guidelines for Developing a Criminal JusticeCoordinating Committee. Robert C. Cushman.Washington, DC: U.S. Department of Justice,National Institute of Corrections, 2002. Availablefrom the NIC Information Center.

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A Criminal Justice Coordinating Committee(CJCC) is a vehicle through which local criminaljustice officials, elected officials, and citizenscan increase collaboration and coordination with-in the criminal justice system and thereby im-prove it. This manual may be most appropriatefor county criminal justice planners, but it mayalso be a tool for jail administrators who want toinitiate collaboration among the various actors inthe criminal justice system. Although establish-ing a CJCC may not be high on the agenda ofnew jail administrators, they may eventually finda CJCC helpful in developing policies to addresscrowding and jail use and in otherwise providinga forum for discussion of criminal justice prob-lems, large and small, that affect the county.

Guidelines for the Development of a SecurityProgram, 2d ed. James D. Henderson, W. HardyRauch, and Richard L. Phillips. Lanham, MD:American Correctional Association, 1997.Available from ACA.

This manual describes how to establish securityin a jail. The authors point out that there is morethan one way to design and implement a jailsecurity program and suggest that the manual bea guide toward that end. Although the manualaddresses security programs in larger jails andprisons, the principles and practices apply to alljails. The manual is helpful in implementingsecurity program standards as set forth by theAmerican Correctional Association.

How To Collect and Analyze Data: A Manualfor Sheriffs and Jail Administrators, 2d ed.Gail Elias. Washington, DC: U.S. Department ofJustice, National Institute of Corrections, 1999.Available from the NIC Information Center.

This manual provides a basic explanation ofcommon statistics, written in understandable lan-guage, to help jail administrators use statistics. Itexplains why data should be collected, “demysti-fies” statistics and data collection procedures,

and provides tips on how to collect basic data toallow policymakers to draw valid conclusions,an opportunity to practice analytical skills, andguidelines for presenting the information under-standably to others.

The Intermediate Sanctions Handbook: Ex-periences and Tools for Policymakers. Centerfor Effective Public Policy. Peggy McGarry andMadeline M. Carter, eds. Washington, DC: U.S.Department of Justice, National Institute of Cor-rections, 1993. Available from the NIC Informa-tion Center.

This “how-to” monograph identifies the processfor implementing intermediate sanctions, orsanctions/punishment that falls on a scale be-tween probation and incarceration. Appropriatefor jail administrators struggling with a crowdedjail, this monograph addresses the need to estab-lish consensus among all stakeholders in thecriminal justice system (judges, police, victims,jail administrators, district attorneys, probationofficers, etc.) and involve them in creating boththe policy and support to implement intermedi-ate sanctions. An intermediate sanctions programcan make sentencing more just and effective, en-hance public safety, increase local correctionalcapacity, contain growth in jail populations, andreduce costs.

Jail Crowding: Understanding Jail PopulationDynamics. Mark A. Cunniff. Washington, DC:U.S. Department of Justice, National Institute ofCorrections, 2002. Available from the NICInformation Center.

An important resource for the jail administratorwho is faced with a crowded jail, this pub-lication identifies factors contributing to jailcrowding, clarifies how jail bedspace evolves,examines trends that drive jail populationgrowth, discusses forecasting to meet future jailspace needs, identifies the analysis needed toproject future jail space needs, and describes


217

criminal justice system roles. The publicationpresents a series of questions that county offi-cials can ask to obtain a basic understanding oftheir own jail population dynamics and the fac-tors behind jail crowding. The answers to thesequestions can provide a foundation for effective-ly responding to jail crowding and forecastingjail bed requirements.

Jail Design and Operation and the Constitution:An Overview. William C. Collins. Washington,DC: U.S. Department of Justice, National In-stitute of Corrections, 1998. Available from theNIC Information Center.

This publication presents information about lia-bility, constitutional jail conditions and require-ments, and how and where modern correctionaladministration evolved and discusses issues suchas the Constitution and the physical plant, howcourts evaluate claims, amendments to the Con-stitution, and conditions of confinement. Thispublication is a must read not only for jail ad-ministrators but also for correctional trainers andthe attorneys who defend them.

Jail Design Guide: A Resource for Small andMedium-Sized Jails. Dennis A. Kimme. Wash-ington, DC: U.S. Department of Justice, Na-tional Institute of Corrections, 1998. Availablefrom the NIC Information Center.

This document, an expanded and revised versionof the Small Jail Design Guide published in1988, is an important reference for jail adminis-trators and county facility managers chargedwith designing a small- or medium-sized jail be-cause it provides information about basic con-cepts and issues in jail design. This guide canhelp local officials assume and retain control ofthe important design process and direct it towardthe most beneficial solution for their community.

Jail Design Review Handbook. Mark Goldman.Washington, DC: U.S. Department of Justice,

National Institute of Corrections, 2003. Availablefrom the NIC Information Center.

This handbook can assist sheriffs, jailers, countyadministrators, and other decisionmakers in re-viewing and critiquing jail design documents toensure that their new facilities work for themand their communities, are safe and secure, andfully support intended operations and inmatepopulations. To aid project team members withdesign reviews from planning through schematicdesign, the handbook provides checklists withsuggested questions about virtually every spacewithin a jail.

Jail Diversion for the Mentally Ill: BreakingThrough the Barriers. National Coalition forthe Mentally Ill in the Criminal Justice System.Henry J. Steadman, ed. Washington, DC: U.S.Department of Justice, National Institute of Cor-rections, 1990. Available from the NIC Informa-tion Center.

This monograph brings together the research andprogram reviews of a conference on the mentallyill person who comes in contact with the localjail. Chapters 3–5 address issues important to thejail administrator. Chapter 3 examines the admis-sions and screening of mentally ill inmates,especially in the context of overcrowding, highturnover rates of inmates, and the availability oflocal mental health services. Suicide and legalissues are discussed in addition to applicablestandards pertaining to admission and screening.Chapter 4 addresses jail-based mental healthservices and programs as well as the legal re-quirements for in-jail mental health services.Chapter 5 addresses linkages between the jailand the newly released inmate, noting the rela-tively short stay for most jail inmates (generally72 hours or less). Case studies are presented,noting the importance of referrals being an artic-ulated goal of the jail mental health program, theneed for close collaboration between the jail andcommunity mental health services, the need for

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release planning, encouragement to seek after-care, and “continuity agents” to facilitate thecontinuation of services.

Jail Planning and Expansion: Local Officialsand Their Roles. James R. Robertson. Washing-ton, DC: U.S. Department of Justice, NationalInstitute of Corrections, 2003. Available from theNIC Information Center.

This manual describes 16 steps to help electedofficials and policymakers develop jail facilities.The development process is contained within thefive overlapping phases of prearchitectural plan-ning, site selection and planning, architecturaland engineering design, construction, and occu-pancy. It includes tables, a bibliography, andexhibits.

Jail Population Reduction Strategies. AmericanJail Association. Washington, DC: U.S. Depart-ment of Justice, National Institute of Corrections,1994. Available from the NIC InformationCenter.

This brief document profiles five counties thateffectively reduced their jail populations: VolusiaCounty, Florida; Multnomah County, Oregon;Fairfax County, Virginia; Pinellas County, Florida;and King County, Washington. Factors identifiedas integral to successful population efforts areexplained, including the establishment of a jus-tice system advisory group; availability of data;judicial leadership; use of consultants; present-ing overcrowding as a community issue; andlawsuits.

Jail Resource Issues: What Every FundingAuthority Needs To Know. Gary M. Bowker.Washington, DC: U.S. Department of Justice,National Institute of Corrections, 2002. Availablefrom the NIC Information Center.

This basic, easy-to-read manual is intended toeducate and enlighten persons who provide re-sources to the jail, such as county commission-ers, county administration staff, and even

sheriff’s office administrators who are unfamiliarwith the basics of jail operations. It addressesissues such as the jail in the community, legalaspects and correctional standards, key elementsof jail operations, and the funding authority’srole and responsibility in supporting the jail andits role in monitoring and oversight.

Jails in America: A Report on Podular DirectSupervision. Washington, DC: U.S. Departmentof Justice, National Institute of Corrections,1996. Videotape (35 min.). Available from theNIC Information Center.

This video identifies the three types of jail de-signs and the supervision modes therein; theproblems with linear jails and podular remotejails, where officers are separated from inmatesand therefore have less interpersonal contactwith them and less control over their behavior;and the benefits of direct supervision in terms ofinmate supervision and its effect on the designand construction of the direct supervision jail.Jail managers and officers give compelling testi-mony that when facilities are well planned andofficers are well trained and supported by man-agers, direct supervision provides a safer, fairer,and more just jail environment. This video isappropriate for jail staff, public officials, andothers who may be planning a new facility or forthose training officers who may be involved indirect supervision.

Objective Jail Classification Systems: A Guidefor Jail Administrators. James Austin. Washing-ton, DC: U.S. Department of Justice, NationalInstitute of Corrections, 1998. Available from theNIC Information Center.

Classification is the process by which the duty toprotect is implemented and custody levels areestablished. This manual addresses the key com-ponents of an objective classification system,which ranks among the most important newstrategies for inmate management. The manualincludes discussions of how to implement,


219

monitor, and evaluate objective classification. In-cluded are sample forms for screening, custodyassessment and reassessment, and scales forseverity of offense and discipline.

Performance-Based Standards for Adult LocalDetention Facilities, 4th ed. Lanham, MD:American Correctional Association, 2004. Avail-able from the American Correctional Association.

This manual, a must for any correctional admin-istrator’s library, spells out in more than 400standards the best correctional practices for jails.Although many of the standards address whatadministrators may consider secondary issues,the standards also address the basic life, health,safety, and constitutional issues necessary toprotect staff and inmates, including inmates’rights. ACA publishes changes or additions to thestandards annually in its Standards Supplement,which also should be part of every administra-tor’s library.

Pretrial Services Programs: Responsibilitiesand Potential. Barry Mahoney, Bruce Beaudin,John Carver III, Daniel Ryan, and Richard Hoff-man. Washington, DC: U.S. Department ofJustice, Office of Justice Programs, National In-stitute of Justice, 2001. Available from the NICInformation Center.

Pretrial services programs offer courts alterna-tives to bail by improving the quality and breadthof information about defendants, including infor-mation about housing, employment, and familyrelationships. This report reviews issues andpractices in the pretrial services field, describeshow pretrial programs operate, discusses keypolicy issues, and outlines future issues andchallenges, paying particular attention to howpretrial programs obtain and convey informationrelevant to the pretrial release/detention decision.It also describes how the various criminal justiceagencies can work together to minimize non-appearances and pretrial crime.

Preventing Jail Crowding: A Practical Guide,2d ed. Robert Cushman. Washington, DC: U.S.Department of Justice, National Institute of Cor-rections, 2002. Available from the NIC Informa-tion Center.

This guide can help jail administrators and otherelected and criminal justice officials understandproblems caused by jail crowding. Jail adminis-trators can send copies to elected officials or usethe guide in developing presentations on the sub-ject. The guide shows how crowding is affectedby increases in either length of stay or numberof admissions; discusses the need for data andhow to set up a data collection system; addresseshow to reduce the inmate population; and pre-sents keys to preventing crowding.

Prison Health Care: Guidelines for the Manage-ment of an Adequate Delivery System. JayeAnno. Washington, DC: U.S. Department ofJustice, National Institute of Corrections, 1991.

Although directed at prisons, this companionmanual to the National Commission on Correc-tional Health Care’s Standards for HealthServices in Jails is also a useful resource formedical issues relating to jail intake.

Recruitment, Hiring, and Retention: CurrentPractices in U.S. Jails. Connie Clem, BarbaraKrauth, and Paula Wegner. Washington, DC:U.S. Department of Justice, National Instituteof Corrections, 2000. Available from the NICInformation Center.

This publication identifies multiple strategiesfor recruiting, hiring, and retaining staff. Recom-mended methods include the use of materials(fliers, Web sites, etc.) and people (staff, admin-istrators, and community members) as well aspolicies, programs, and procedures. Although noagency can eliminate the challenge of retaining aqualified workforce, jails that undertake a strate-gy that incorporates some of these suggestionsmay find that staffing issues become significant-ly more manageable.

220

A Second Look at Alleviating Jail Crowding: ASystems Perspective. Pretrial Services ResourceCenter. Washington, DC: U.S. Department ofJustice, Office of Justice Programs, Bureau ofJustice Assistance, 2000. Available from the NICInformation Center.

Today’s jail administrator faces challenges posedby a changing inmate population that includesmentally ill persons, drug users, drunk drivers,and perpetrators of domestic violence. Addressingthe needs of these populations has required cre-ativity and collaboration with other systems andactors. Other developments such as mandatorysentencing laws, victim rights, the prosecution ofjuveniles as adults, and the emphasis on commu-nity safety have forced officials to make the mostefficient use of limited jail space. This mono-graph describes how officials have responded tothese challenges. The role of criminal justiceofficials, including law enforcement, jail admin-istration, prosecution, judiciary, and pretrialservices, is described. The final chapter describeshow these actors can work together to alleviatejail crowding. This monograph is a follow-on toa 1985 publication.

Small Jail Special Issues. Kimme Planning andArchitecture. Washington, DC: U.S. Departmentof Justice, National Institute of Corrections,1986. Available from the NIC InformationCenter.

This document describes several planning issuesidentified by small jails across the nation: pre-design considerations, lawsuits and liability,multijurisdictional jails, bed capacity for a smalljail, supervision in small jails, operating costs,transition planning, maintenance, and the roleof architects. Although this guide is somewhatdated, it can provide invaluable assistance in theplanning of a small jail and also to new adminis-trators of small jails.

Staff Safety: New Approaches to Staff Safety,2d ed. Robert L. Thornton. Washington, DC:

U.S. Department of Justice, National Instituteof Corrections, 2003. Available from the NICInformation Center.

This manual can assist community correctionspractitioners in evaluating their officer safetytraining needs by presenting current conceptsand standards. It enables agencies to determinetheir respective needs, evaluate the most currentinformation in various safety training areas, andexplore a variety of information and resourceson officer safety training.

Staffing Analysis for Jails: NIC e-LearningProgram. Washington, DC: U.S. Department ofJustice, National Institute of Corrections, 2002.Available from the NIC Information Center.

This publication is an excellent companion tothe Staffing Analysis Workbook for Jails de-scribed below. It discusses interactive and self-paced training to help readers learn the conceptsinvolved in a staffing analysis. All requiredforms are included.

Staffing Analysis Workbook for Jails, 2d ed.Dennis R. Liebert and Rod Miller. Washington,DC: U.S. Department of Justice, National In-stitute of Corrections, 2001. Available from theNIC Information Center.

This workbook is appropriate for jail administra-tors who have questions about excessive over-time or having sufficient numbers and types ofjail staff or who may not be getting the staff sup-port from the funding authority to adequatelymeet all the requirements of the jail operation. Itmay be used for creating a staffing plan for anew or existing facility or for reviewing or revis-ing an existing staffing plan. The workbook pro-vides an overview of common staffing problems,describes overtime use and causes, identifiesunique characteristics related to the staffing ofjails, and identifies who should be involved indeveloping a staffing analysis. The 10-step pro-cess is clearly explained, and blank forms areprovided.


221

Standards for Health Services in Jails. Chicago,IL: National Commission on Correctional HealthCare, 2003. Available from the National Com-mission on Correctional Health Care.

This manual describes standards that addressthe length and breadth of jail health services. Although many of the standards are not applica-ble to health services in small jails, the manualaddresses medical and mental health issuescommon to jails of all sizes in the critical areasof intake/receiving/screening, suicide, alcoholand drug withdrawal, infectious diseases,emergencies, and so forth. In addition to identi-fying state-of-the-art medical standards, themanual contains several practical and helpfulappendixes, including sample forms for receiv-ing, screening, and mental health assessment;suicide prevention screening guidelines; proto-cols for supervising critically and noncriticallysuicidal prisoners; universal precautions andinfection control techniques; and guidelines onblood-borne pathogens. The standards differfrom the ACA standards in that they are pre-scriptive; moreover, they address not only whatshould be done but also how.

Training Curriculum on Suicide Detection andPrevention in Jails and Lockups, 2d ed. JosephRowan and Lindsey Hayes. Baltimore, MD:National Center on Institutions and Alternatives,1995. Available from the NIC InformationCenter.

This complete lesson plan consists of a 12-hourcurriculum for training jail staff in the detectionand prevention of suicide. It includes research on

jail suicide, predisposing factors, high-risk peri-ods, signs and symptoms of suicidal behavior,situational risk factors, assessment of suiciderisk, management of suicidal inmates, interven-tion in active suicides, jail design and suicideprevention, and suicide litigation. In addition tobeing an excellent resource for training jail staff,the curriculum is a good primer for jail adminis-trators because it outlines the depth and breadthof the problem and provides useful informationabout the management and prevention of thisreal and ever-present problem. The manual in-cludes suggested suicide screening forms and areview of case law.

Women in Jail: Legal Issues. William Collinsand Andrew Collins. Washington, DC: U.S. Department of Justice, National Institute of Cor-rections, 1996. Available from the NIC Informa-tion Center.

This practical guide for jail administrators ad-dresses the legal issues commonly faced whenhousing female inmates. Ignoring these issues tofocus on the relatively larger male inmate popu-lation increases exposure to litigation and liabili-ty. The guide reviews the major issues regardingfemale inmates and asks jail administrators toexplain and justify the differences that common-ly exist in housing, privileges, and programmingfor females. Other legal concerns for femaleinmates pertain to health care, sexual harass-ment, and sexual misconduct.

B

Appendix B

Bibliography

Allison, G.S. 1996. Accounting Issues andPractices: A Guide for Smaller Governments.Chicago, IL: Government Finance OfficersAssociation.

American Correctional Association. 2000. ACAPlanning and Design Guide for Secure Adultand Juvenile Facilities. Lanham, MD: AmericanCorrectional Association.

———. 2004. Performance-Based Standards forAdult Local Detention Facilities. 4th ed. (includ-ing supplement). Lanham, MD: AmericanCorrectional Association.

Anno, J. 1991. Prison Health Care: Guidelinesfor the Management of an Adequate DeliverySystem. Washington, DC: U.S. Department ofJustice, National Institute of Corrections.

Arthur, D. 1998. Recruiting, Interviewing,Selecting & Orienting New Employees. 3d ed.New York: AMACOM Books.

———. 2001. The Employee Recruitment andRetention Handbook. New York: AMACOMBooks.

Booth, W.L. n.d. The Manager’s Guide to Alter-native Work Schedules. 2d ed. Jacksonville, FL:University of North Florida, Institute of PoliceTechnology and Management.

Bowker, G.M. 2002. Jail Resource Issues: WhatEvery Funding Authority Needs To Know.Washington, DC: U.S. Department of Justice,National Institute of Corrections.

Carlson, P.M., and J.S. Garrett. 1999. Prisonand Jail Administration: Practice and Theory.Boston: Jones and Bartlett Publishers.

Clem, C., B. Krauth, and P. Wenger. 2000.Recruitment, Hiring, and Retention: CurrentPractices in U.S. Jails. Washington, DC: U.S.Department of Justice, National Institute ofCorrections.

Collins, W.C. 1998. Jail Design and Operationand the Constitution: An Overview. Washington,DC: U.S. Department of Justice, National In-stitute of Corrections.

Cunniff, M.A. 2002. Jail Crowding: Under-standing Jail Population Dynamics. Washington,DC: U.S. Department of Justice, NationalInstitute of Corrections.

Cushman, R.C. 2002. Guidelines for Developinga Criminal Justice Coordinating Committee.Washington, DC: U.S. Department of Justice,National Institute of Corrections.

———. 2002. Preventing Jail Crowding: APractical Guide. Washington, DC: U.S. Depart-ment of Justice, National Institute of Corrections.

Global Development Research Center. n.d.“Dealing With the Media—Special Feature,”www.gdrc.org/ngo/media/index.html. Accessedin July 2004.

Harris, J., and J. Brannick. 1999. Finding andKeeping Great Employees. New York: AMA-COM Books.

225

Bibliography B

226

Hayes, L.M., and J.R. Rowan. 1988. NationalStudy of Jail Suicides: Seven Years Later. Balti-more, MD: National Center on Institutions andAlternatives.

Henderson, J.D., W.H. Rauch, and R.L. Phillips.1997. Guidelines for the Development of aSecurity Program. 2d ed. Lanham, MD: Ameri-can Correctional Association.

Jacobson, V. 1995. Building Partnerships: ASystems Approach to Partnerships in Correc-tions. Washington, DC: U.S. Department ofJustice, National Institute of Corrections.

Jansen, F.O., and R. Johns. 1978. Managementand Supervision of Small Jails. Springfield, IL:Charles C Thomas Publishers.

Kichen, C., J. Murphy, and R. Levinson. 1993.Correctional Technology: A User’s Guide.Washington, DC: U.S. Department of Justice,National Institute of Corrections.

Kimme, D.A. 1998. Jail Design Guide: AResource for Small and Medium-Sized Jails.Washington, DC: U.S. Department of Justice,National Institute of Corrections.

Krauth, B. 1988. Staff/Inmate Ratios: Why It’sSo Hard To Get to the Bottom Line. Washington,DC: U.S. Department of Justice, National In-stitute of Corrections.

Liebert, D.R., and R. Miller. 2001. StaffingAnalysis Workbook for Jails. 2d ed. Washington,DC: U.S. Department of Justice, NationalInstitute of Corrections.

Martin, M.D. 2002. Budget Guide for Jail Ad-ministrators. Part 1: Developing the Budget.Washington, DC: U.S. Department of Justice,National Institute of Corrections.

———. 2002. Budget Guide for Jail Administra-tors. Part 2: Managing the Budget. Washington,DC: U.S. Department of Justice, National In-stitute of Corrections.

———. 2002. Budget Guide for Jail Administra-tors. Part 3: Beyond Budget Allocation—Sourcesof Funding and Services. Washington, DC: U.S.Department of Justice, National Institute ofCorrections.

———. 2002. Developing and Revising Deten-tion Facility Policies and Procedures. Rev. ed.Washington, DC: U.S. Department of Justice,National Institute of Corrections.

Martin, M.D., and N. Hild. 1986. Jail Planningand Construction Guide. Lincoln, NE: NebraskaCommission on Law Enforcement and CriminalJustice, Jail Standards Division.

Maslow, A.H., R. Frager, and J. Fadiman. 1976.Motivation and Personality. 3d ed. Boston:Addison-Wesley Educational Publishers.

McCampbell, S.W., M.E. Hall, and E.P. Layman.2002. Resource Guide for Newly AppointedWardens. Washington, DC: U.S. Department ofJustice, National Institute of Corrections.

McNamara, C. n.d. “Basics of DevelopingMission, Vision and Values Statements,” FreeManagement Library, www.managementhelp.org/plan_dec/str_plan/stmnts.htm#anchor519441.Accessed in August 2004.

———. n.d. “Human Resources Management,”Free Management Library, www.managementhelp.org/hr_mgmnt/hr_mgmnt.htm. Accessed inAugust 2004.

———. n.d.. “Strategic Planning,” Free Manage-ment Library, www.managementhelp.org/plan_dec/str_plan/str_plan.htm. Accessed inAugust 2004.

Appendix B: Bibliography

227

Mearig, T. 1999. Alaska School FacilitiesPreventive Maintenance Handbook. Juneau, AK:Alaska Department of Education and EarlyDevelopment.

Miller, R., G. Sexton, and V. Jacobsen. 2002.Developing a Jail Industry. Washington, DC:U.S. Department of Justice, Office of JusticePrograms, Bureau of Justice Assistance.

National Center for Women & Policing. 2000.Recruiting & Retaining Women: A Self-Assessment Guide for Law Enforcement.Washington, DC: U.S. Department of Justice,Office of Justice Programs, Bureau of JusticeAssistance.

National Commission on Correctional HealthCare. 2003. Standards for Health Services inJails. Chicago, IL: National Commission onCorrectional Health Care.

National Sheriffs’ Association. 1990. Jail Officer’sTraining Manual. Alexandria, VA: NationalSheriffs’ Association.

Pappas, N. 1971. The Jail: Its Operation andManagement. Washington, DC: U.S. Bureau ofPrisons.

Powdar, J.C. 1996. The Operating Budget: AGuide for Smaller Governments. Chicago, IL:Government Finance Officers Association.

Pretrial Services Resource Center. 2000. ASecond Look at Alleviating Jail Crowding: ASystems Perspective. Washington, DC: U.S. De-partment of Justice, Office of Justice Programs,Bureau of Justice Assistance.

Quirk, T., and R. Miller. 2002. BusinessPlanning Guide for Jail Industries. Washington,DC: U.S. Department of Justice, Office ofJustice Programs, Bureau of Justice Assistance.

Reid, T. 1997. Cost Effective In-Service TrainingAlternatives for Small Jails. Washington, DC:

U.S. Department of Justice, National Institute ofCorrections.

Rosazza, T.A. 1991. “Jails and Lockups: Don’tBe Caught Off Guard.” Public Risk 5 (7): 8–10.

———. 1994. “Suicide Behind Bars.” PublicRisk 8 (7): 19–21.

———. 1999. “Suicide Litigation: CommonProblems Seen in Training, Assessment, Housing,Observation and Referral.” American Jails 13(4): 27–30.

Rosazza, T.A., and W.F. Cook. 1999. “Jail In-take: Managing a Critical Function. Part One:Resources.” American Jails 13 (1): 35–37.

———. 1999. “Jail Intake: Managing a CriticalFunction. Part Two: Intake Task Analysis.”American Jails 13 (2): 35–41.

Rowan, J.R., and L.M. Hayes. 1995. TrainingCurriculum on Suicide Detection and Preventionin Jails and Lockups. 2d ed. Baltimore, MD:National Center on Institutions and Alternatives.

Sabbatine, R., and D. Leach. 1996. “A New StripSearch Paradigm.” American Jails 10 (5): 39–42.

Schwartz, J.A., and C. Barry. 1996. CriticalAnalysis of Emergency Preparedness. Washing-ton, DC: U.S. Department of Justice, NationalInstitute of Corrections.

Seiter, R.P. 2002. Correctional Administration:Integrating Theory and Practice. Upper SaddleRiver, NJ: Prentice Hall Publishers.

Stojkovic, S., D. Kalinich, and J. Klofas. 1998.Criminal Justice Organizations: Administrationand Management. 2d ed. Belmont, CA: West/Wadsworth Publishing Company.

Strachota, D. 1994. The Best of GovernmentalBudgeting: A Guide to Preparing Budget Docu-ments. Chicago, IL: Government Finance OfficersAssociation.

228

Tett, R.P., and J.P. Meyer. 1993. “Job Satisfaction,Organizational Commitment, Turnover Intention,and Turnover: Path Analysis Based on Meta-Analytic Findings.” Personnel Psychology 46(2): 259–293.

Thornton, R.L. 2003. Staff Safety: New Approachesto Staff Safety. 2d ed. Washington, DC: U.S.Department of Justice, National Institute ofCorrections.

U.S. Department of Health and Human Services.2002. Communicating in a Crisis: Risk Com-munication Guidelines for Public Officials.Washington, DC: U.S. Department of Healthand Human Services, Center for Mental HealthServices, Substance Abuse and Mental HealthServices Administration.

U.S. Department of Labor, Occupational Safetyand Health Administration. 1998. ChemicalHazard Communication. Rev. ed. (OSHA 3084).

Washington, DC: U.S. Department of Labor.Available at www.osha.gov/Publications/osha3084.pdf.

———. 2001. How to Plan for WorkplaceEmergencies and Evacuations. Rev. ed. (OSHA3088). Washington, DC: U.S. Department ofLabor.

U.S. Environmental Protection Agency andNational Institute for Occupational Safety andHealth. 1991. Building Air Quality: A Guidefor Building Owners and Facility Managers.Washington, DC: U.S. Environmental ProtectionAgency.

U.S. Environmental Protection Agency and U.S.Consumer Product Safety Commission, Office ofRadiation and Indoor Air. 1995. The Inside Story:A Guide to Indoor Air Quality. Washington, DC:U.S. Environmental Protection Agency.

C

Appendix C

Assessment Checklists

In This Appendix

The checklists in this appendix may help

newly appointed jail administrators learn

about their jail and the overall status of

its operation. Veteran jail administrators

and others may also find the checklists

useful in assessing the performance

and effectiveness of jail operations.

The following checklists are included:

Checklist 1

Statutes, Standards, and Case Law . . . . . . 231

Checklist 2

Planning, Budgeting, and Human Resources Management . . . . . . . . . . . . . . 235

Checklist 3

Community Partnerships and Media Relations . . . . . . . . . . . . . . . . . . . . . 239

Checklist 4

Policies and Procedures, Post Orders, and Documentation . . . . . . . . . . . . . . . . . 241

Checklist 5

Monitoring and Assessment . . . . . . . . . . . 245

Checklist 6

Jail Facilities . . . . . . . . . . . . . . . . . . . . . . . . 247

Checklist 7

Staffing, Recruitment, Hiring, Retention, and Scheduling . . . . . . . . . . . . 259

Checklist 8

Training . . . . . . . . . . . . . . . . . . . . . . . . . . . 263

Checklist 9

Security . . . . . . . . . . . . . . . . . . . . . . . . . . . 267

Checklist 10

Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 273

Checklist 11

Emergency Preparedness . . . . . . . . . . . . . 277

Checklist 12

Inmate Services and Programs . . . . . . . . . 281

Checklist 13

Inmate Behavior Management . . . . . . . . . 293

Checklist 14

Inmate Discipline and Grievance . . . . . . . . 297

Checklist 15

Special Management . . . . . . . . . . . . . . . . . 299

Checklist 16

Intake and Release . . . . . . . . . . . . . . . . . . 301

Checklist 1. Statutes, Standards, and Case Law

Assessment Questions Y N Comments

State Statutes

1. Are there specific statutes that outline the specific respon-sibilities of the sheriff, jail administrator, and funding authority with regard to the jail?

Review these statutes to find out how the responsibilities and authority of each party are defined.

2. Is the role of the jail within the local criminal justice system defined within the statutes?

Find out if there are any statutory parameters regarding the types of inmates the jail may hold, and for what purposes and for how long.

3. Is the jail in compliance with all statutory provisions re-lating to the establishment, operation, and maintenance of the jail?

Make a list of the statutes not being followed and the ramifica-tions for any noncompliance with the law.

Note: You may discover some archaic laws that are no longer relevant or followed. Bring these to the attention of your legal counsel. Failure to follow state statutes, even those that are out-dated, is a basis for liability. Where possible, such laws should be repealed or amended to make them more relevant to contem-porary practices.

Standards

4. Are there agencies that inspect and regulate various aspects of the jail?

Identify each agency, along with pertinent contact information. Find out how recently the jail has been inspected by each agency and put the tentative date of the next inspection on your calendar.

5. Are current copies of each agency’s standards available in the jail?

If not, request copies from the inspection agencies.

6. Is the jail out of compliance with any required standards?

Cite the standard and the nature of any noncompliance.

Appendix C: Assessment Checklists


231

232


Checklist 1. Statutes, Standards, and Case Law (continued)


Standards (continued)

7. If you answered yes to #6, has a corrective action plan been developed to correct the deficiency?

Affirm that appropriate steps are being taken to resolve any non-compliance as required by each inspection agency.

8. Based on a review of past inspection reports, is the jail consistently out of compliance with required standards in certain areas?

Find out the reason for the ongoing noncompliance and deter-mine what steps need to be taken to correct the problem.

9. Are the jail’s policies and procedures consistent with the standards?

10. Are standards incorporated into staff training?

11. Does the jail comply with professional standards (e.g., American Correctional Association, National Commission on Correctional Health Care) where possible?

Case Law

12. Does the jail have any pending litigation, court orders, or consent decrees?

Get copies and review the status of any lawsuits, court orders, or consent decrees.

13. Is there a history of litigation in any particular area of the jail (e.g., medical, use-of-force, suicide)?

Determine whether any areas require your immediate attention.


233

Checklist 1. Statutes, Standards, and Case Law (continued)


Case Law (continued)

14. Does the jail have a designated legal advisor?

List name and contact information.

15. Is the jail adequately insured?

Find out who handles insurance issues for the jurisdiction. Deter-mine the type and extent of coverage. Ask for copies of records showing loss history and insurance payouts relating to the jail. Find out if any risk management services are available.

16. Is a system in place for keeping the jail administrator current with case law and best practices?

Additional Comments


235


Checklist 2. Planning, Budgeting, and Human Resources Management


Mission

1. Does the jail have a written mission statement?

When was it written and is it current?

2. Are staff aware of the jail’s stated mission and do they support it?

3. Are the actual use and operation of the jail consistent with its stated mission?

4. Is the current mission statement compatible with the vision, values, and philosophy of the following parties?

Jail Administrator . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Sheriff or CEO . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Funding authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Key criminal justice system officials . . . . . . . . . . . . . . . . . . . . . . . . . .

Community . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

5. Is the jail meeting the needs of the local criminal justice system and the community?

If not, describe what criminal justice or societal needs are not being adequately met by the jail.

Planning

6. Does the jail currently have a written strategic plan?

If so, review the plan and assess the extent to which it is being followed.

236

Checklist 2. Planning, Budgeting, and Human Resources Management (continued)


Planning (continued)

7. Have goals and objectives been established for the jail?

If so, review them to see whether they are consistent with the jail’s mission, are realistic, and are consistent with your vision for the jail. Also, assess the extent to which stated goals and objec-tives are being achieved.

8. Have goals, strategies, and action plans developed for the jail been incorporated into the jail’s operational plan and budget?

9. Are resources (staff, facilities, equipment, training, etc.) adequate to realistically achieve the goals and objectives?

Budgeting

10. Does the jail administrator have access to the following?

Approved facility budget for current fiscal year . . . . . . . . . . . . . . . .

Expenditure plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Monthly expenditure reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Agency/jurisdiction rules governing budget development/management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Agency/jurisdiction rules governing purchasing . . . . . . . . . . . . . . . .

Budget history information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Listing of identified equipment and infrastructure needs . . . . . . . .

Listing of current issues/priorities affecting budget. . . . . . . . . . . . .

Personnel information (authorized FTE, vacant positions, turnover rate, etc.) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Report from the last fiscal audit. . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Current contracts, leases, maintenance agreements with vendors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Interagency agreements for services provided to the jail . . . . . . . .

Information on revenue sources (grants, fees, contracts, aid, sales, etc.) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .



237



Budgeting (continued)

11. Are designated staff within the agency responsible for the various aspects of budget management?

Identify names, titles, and contact information for key budget personnel. Determine the roles and responsibilities of each person.

12. Does the jurisdiction’s budget office have a designated budget officer for the jail?


13. Are there key dates for budget preparation, submission, and reporting?

Note the dates on your calendar.

14. Has a fiscal audit of the jail been conducted recently?

Find out when the last audit occurred, the results of the audit, and when the next audit is scheduled. Determine what action has been taken, if any, to correct exceptions noted in the audit.

15. Do any outstanding budget issues require your immediate attention?


16. Do you have access to the following?

Agency/jurisdiction personnel policies and procedures . . . . . . . . . .

Employee handbook . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Copies of written job descriptions for each job class . . . . . . . . . . . .

Employee personnel files . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

17. Does a process exist for conducting employee performance appraisals?


238



Human Resources Management (continued)

18. Have past personnel actions been properly documented?

19. Does the agency have a key contact for personnel matters?


20. Does the jurisdiction’s personnel office have a designated personnel officer for the jail?


21. Do any outstanding personnel actions require your immediate attention?

Additional Comments


239


Checklist 3. Community Partnerships and Media Relations


Community Partnerships

1. Is the jail involved in or supported by any of the following types of community partnerships? If so, describe the part-nership, its purpose, the members, and key contact information.

Task forces . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Advisory boards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Coordinating bodies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Networks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Coalitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

2. Has the jail entered into any contracts or interagency agreements for services?

Describe all agreements and contracts, indicating the types of services provided, cost, and contact information.

3. Have services provided under these contracts or agree-ments been effective?

4. Have any individuals or stakeholders in the community demonstrated an interest in the effective operation of the jail or improved services for offenders?

List and describe the nature of their interest.

5. Are any groups within the community strong advocates and supporters of the jail?

6. Are any individuals or groups within the community critical of the jail or the way in which it is operated?

Describe the nature of their criticism.

240

Checklist 3. Community Partnerships and Media Relations (continued)


Media

7. Does the jail (or parent agency) have policies and proce-dures for dealing with the media?

8. Is a staff person within the jail or the agency designated to coordinate media communications and serve as a spokes-person for the jail?

9. Is there a record of past media contacts and coverage of the jail?

10. Are key media representatives currently assigned to cover the jail?

List key media representatives and contact information. What has been the tone of their coverage in the past?

11. Does the jail have a communications plan for working with the media and doing outreach to the community?

Additional Comments


241

Checklist 4. Policies and Procedures, Post Orders, and Documentation



1. Does the jail have a current policies and procedures manual developed specifically for the facility?

2. Is the policies and procedures manual comprehensive—i.e., does it cover all aspects of the jail’s operation?

3. Is the manual reviewed and updated at least annually?

4. Is there a log or some other record of all reviews and up-dates to the manual?

5. Has the jail’s legal counsel reviewed the policies and procedures?

6. Have staff been trained in the policies and procedures?

How is the manual made available to jail staff?

7. Is a process in place to verify that policies and procedures are being followed on all shifts?


242

Checklist 4. Policies and Procedures, Post Orders, and Documentation (continued)


Policies and Procedures (continued)

8. Does the policies and procedures manual comply with applicable jail standards?

Post Orders

9. Does the jail have written post orders for key posts and positions within the facility?

10. Are staff trained in the post orders for the posts to which they are assigned?

11. Are post orders reviewed and updated as applicable policies and procedures, schedules, or other aspects of the jail’s operations are changed?

Documentation

12. Does the jail have written policies and procedures govern-ing records management?

13. Does the jail maintain a master log of all forms and records used in the facility?

14. Does the jail have a system that provides for regular super-visory review of completed records and forms for quality assurance?



243

Checklist 4. Policies and Procedures, Post Orders, and Documentation (continued)


Documentation (continued)

15. Does the jail have an organized filing system that permits efficient retrieval of needed information?

16. Is the jail following records retention laws/regulations in the archiving or destruction of inactive records?

17. Is someone on staff delegated the responsibility of manag-ing the jail’s records system?

18. Are some or all parts of the records system automated?

If so, list names and contact information for staff responsible for jail management software (and other software applications), hard-ware, and network administration.

Additional Comments


245

Checklist 5. Monitoring and Assessment


Internal Inspections and Reviews

1. Does the jail have a formal system of internal inspections and reviews to monitor critical operations?

Security. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Fire and safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Sanitation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

2. If you answered yes to #1, respond to the following:

Is a staff person designated to coordinate the internal monitoring process?

Are staff trained in conducting assigned inspections and reviews?

Is there a process in place to review inspection findings and correct any identified deficiencies?

3. Is documentation of past inspections (along with corrective measures taken) maintained and available for review?

External Inspections

4. Do any outside agencies or organizations currently conduct audits or inspections of the jail?

List the name of each inspecting entity, the purpose and author-ity for inspections, the enforcement authority, and frequency of inspections.

5. Are copies of the most recent inspection reports available?

6. Has the jail documented corrective measures taken to re-solve any deficiencies identified in these inspections?


246

Checklist 5. Monitoring and Assessment (continued)


External Inspections (continued)

7. Is technical assistance and/or financial support available from any of the external inspection agencies to assist the jail in complying with regulatory requirements?

Monitoring Data

8. Does the jail regularly collect accurate data to monitor the jail population to assure appropriate use of the facility?

9. Are data reviewed and analyzed on a regular basis to profile characteristics, track trends, or identify issues?

10. Does the jail regularly provide reports describing jail popu-lation characteristics and trends to funding authorities and other key decisionmakers?

Review the following:

Characteristics of the jail population. . . . . . . . . . . . . . . . . . . . . . . . . .

Risks and needs of the inmate population. . . . . . . . . . . . . . . . . . . . .

Trends in the average daily population and average length of stay for the jail. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

11. Given your assessment of the jail population, do any deficits or needs require your immediate attention?

Additional Comments


247

Checklist 6. Jail Facilities


General

1. Does the jail have a reliable security perimeter that forms a barrier between the secure area of the jail and the out-side world?

2. Are there means to manage the movement of staff, inmates, visitors, and service providers in and out of the secure area of the jail?

3. Does the jail have a secure control center for monitoring and coordinating communications, life safety, and security systems?

4. Are the following types of security equipment and/or sys-tems available and in operable condition in the jail?

Emergency generator . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Walk-through metal detectors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Detection/alarm systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Closed-circuit television. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Public address systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Two-way radio systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Telephone systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Intercom systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Locking systems. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

5. Rate the following environmental conditions in the jail:

Light levels ■■ Poor ■■ Fair ■■ GoodNoise levels ■■ Poor ■■ Fair ■■ GoodTemperature ■■ Poor ■■ Fair ■■ GoodAir quality ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good


248

Checklist 6. Jail Facilities (continued)


General (continued)

6. What is the overall level of sanitation in the facility?

■■ Poor ■■ Fair ■■ Good

7. Does the jail have a preventative maintenance plan?

8. Are there malfunctioning or broken facilities, equipment, or furnishings in need of repair?

Intake and Release Area

9. Is there a secure sallyport available to receive arrestees in-to the intake area?

10. Is the intake and release area located within the security perimeter, but apart from inmate housing?



249



Intake and Release Area (continued)

11. Does the intake and release area adequately accommodate the following functions?

Temporary holding/detoxification . . . . . . . . . . . . . . . . . . . . . . . . . . .

Alcohol testing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Booking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Telephoning (arrestees) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Fingerprinting/photographing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Searching . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Showering . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Property storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Clothing issue/dress out . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Medical screening/examination . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Confidential interviewing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Intake storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Intake housekeeping (janitor’s closet) . . . . . . . . . . . . . . . . . . . . . . . .

Intake operations (office area) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

12. What is the condition of the following building elements in the intake and release area?

Exterior walls ■■ Poor ■■ Fair ■■ GoodInterior partitions ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ GoodSecurity equipment ■■ Poor ■■ Fair ■■ GoodCabinets/furniture ■■ Poor ■■ Fair ■■ Good

Visiting Area

13. Is adequate secure space available for inmate visiting?


250



Visiting Area (continued)

14. If visiting is noncontact, are sufficient visiting stations avail-able for the expected number of visitors at each scheduled visiting time?

15. Do the visiting areas provide sufficient acoustic privacy, visibility, and seating?

16. Are visiting areas designed and arranged to prevent the passage of contraband?

17. Does the facility include the following spaces or features to accommodate inmate visiting?

Visitor check-in and waiting area . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Visitor access to seating, toilets, and drinking fountains . . . . . . . . .

Lockers for visitors’ personal belongings. . . . . . . . . . . . . . . . . . . . . .

Equipment/designated areas for searching of visitors/inmates. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Appropriate signage to inform visitors about visitation rules. . . . . .

18. What is the condition of the following building elements in the inmate visiting areas?

Exterior walls ■■ Poor ■■ Fair ■■ GoodInterior partitions ■■ Poor ■■ Fair ■■ GoodWindows/view panels ■■ Poor ■■ Fair ■■ GoodIntercom systems ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good Security equipment ■■ Poor ■■ Fair ■■ GoodFurniture ■■ Poor ■■ Fair ■■ Good



251



Inmate Housing Areas

19. Does the arrangement of the jail’s living units allow ade-quate visual surveillance?

20. Does the jail have sufficient separate living areas to provide separate housing for various classifications of inmates according to the facility’s housing plan?

21. Are single occupancy cells available to house inmates placed in administrative segregation or disciplinary detention?

22. Does each housing unit have access to natural light?

23. Does each housing unit include dayroom space?

24. Are the following fixtures and equipment available in each housing unit?

Bunk or bed for each occupant . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Toilet and shower facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Lavatory facilities with hot and cold water. . . . . . . . . . . . . . . . . . . . .

Tables and seating sufficient for the capacity of the unit. . . . . . . . .

Adequate lighting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Storage for inmate personal items/clothing . . . . . . . . . . . . . . . . . . .


252



Inmate Housing Areas (continued)

25. What is the condition of the following building elements in inmate housing areas?

Exterior walls ■■ Poor ■■ Fair ■■ GoodInterior partitions ■■ Poor ■■ Fair ■■ GoodWindows/view panels ■■ Poor ■■ Fair ■■ GoodIntercom systems ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good Security equipment ■■ Poor ■■ Fair ■■ GoodFurniture ■■ Poor ■■ Fair ■■ Good

Medical Services Area

26. Are adequate spaces within the security perimeter available to accommodate the following medical services functions?

Medical examination/treatment . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Storage of medications and medical supplies . . . . . . . . . . . . . . . . . .

Medical equipment storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Medical records . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Biohazard management and disposal . . . . . . . . . . . . . . . . . . . . . . . .

Medical administration (office/work space) . . . . . . . . . . . . . . . . . . . .

27. What is the condition of the following building elements in the medical services area?

Exterior walls ■■ Poor ■■ Fair ■■ GoodInterior partitions ■■ Poor ■■ Fair ■■ GoodWindows/view panels ■■ Poor ■■ Fair ■■ GoodIntercom systems ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good Medical equipment ■■ Poor ■■ Fair ■■ GoodFurniture ■■ Poor ■■ Fair ■■ Good



253



Food Services Area

28. Does the jail’s food services area have enough space to accommodate the following functions?

Food preparation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Serving . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Cleanup and disposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Refrigerated storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Dry storage. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

General storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Food service administration (office area) . . . . . . . . . . . . . . . . . . . . . .

29. What is the condition of the following building elements in the food services area?

Walls ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good Kitchen equipment ■■ Poor ■■ Fair ■■ GoodCabinets/furniture ■■ Poor ■■ Fair ■■ Good

Facility Support Services Areas

30. Does the jail have a separate service entrance?

31. Are spaces available to accommodate the following facility support functions?

Housekeeping (janitor’s closets) . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Laundry. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Maintenance. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

General storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .




Facility Support Services Areas (continued)

32. Does the laundry area provide adequate space/equipment for the following functions?

Collection/sorting of soiled items . . . . . . . . . . . . . . . . . . . . . . . . . . .

Washing/drying . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Mending . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Distribution of laundered items . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

33. Do janitor’s closets provide adequate space/equipment for the following housekeeping functions?

Secure storage of cleaning equipment/supplies . . . . . . . . . . . . . . . .

Preparation/staging for housekeeping activities. . . . . . . . . . . . . . . .

Clean up of equipment after use . . . . . . . . . . . . . . . . . . . . . . . . . . . .

34. Do maintenance areas provide adequate space/equipment for the following functions?

Tools storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Supply storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Workshop areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

35. What is the condition of the following building elements in facility support areas?

Walls ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good Equipment ■■ Poor ■■ Fair ■■ GoodCabinets/furniture ■■ Poor ■■ Fair ■■ Good

254



255



Program and Recreation Areas

36. Can the space available in the jail’s program and recreation areas accommodate the following functions?

Indoor physical exercise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Outdoor physical exercise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Passive recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Legal and general library . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Counseling (individual and group) . . . . . . . . . . . . . . . . . . . . . . . . . . .

Religious services/instruction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Program administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Program storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

37. Are the program and recreation areas easy to supervise?

38. What is the condition of the following building elements in program and recreation areas?

Walls ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ Good Equipment ■■ Poor ■■ Fair ■■ GoodCabinets/furniture ■■ Poor ■■ Fair ■■ Good

Administrative Areas

39. Does the jail have sufficient space to accommodate the following administrative functions?

Public reception. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Public waiting. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Public toilets. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Administrative work space (offices) . . . . . . . . . . . . . . . . . . . . . . . . . .

Clerical work space . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Records/file storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Conferences/meetings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Security equipment storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Administrative supply storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .


256



Administrative Areas (continued)

40. Are administrative areas beyond the lobby/reception area located outside the main security perimeter but in an area where access by the general public can be controlled?

41. What is the condition of the following building elements in the administrative area?

Walls ■■ Poor ■■ Fair ■■ GoodDoors/locks ■■ Poor ■■ Fair ■■ GoodCeilings ■■ Poor ■■ Fair ■■ GoodFloors ■■ Poor ■■ Fair ■■ GoodElectrical/lighting ■■ Poor ■■ Fair ■■ GoodPlumbing ■■ Poor ■■ Fair ■■ GoodEquipment ■■ Poor ■■ Fair ■■ GoodCabinets/furniture ■■ Poor ■■ Fair ■■ Good

Structural and Safety Issues

42. What is the overall condition of the following building systems?

Structure ■■ Poor ■■ Fair ■■ Good– Roof ■■ Poor ■■ Fair ■■ Good– Exterior walls ■■ Poor ■■ Fair ■■ Good– Floors/columns ■■ Poor ■■ Fair ■■ Good– Interior walls ■■ Poor ■■ Fair ■■ Good– Foundation ■■ Poor ■■ Fair ■■ Good

HVAC system ■■ Poor ■■ Fair ■■ GoodElectrical systems ■■ Poor ■■ Fair ■■ Good

– Lighting ■■ Poor ■■ Fair ■■ Good– Piped utilities ■■ Poor ■■ Fair ■■ Good– Communications ■■ Poor ■■ Fair ■■ Good– Elevators ■■ Poor ■■ Fair ■■ Good

Plumbing ■■ Poor ■■ Fair ■■ GoodFire safety systems ■■ Poor ■■ Fair ■■ GoodSecurity systems ■■ Poor ■■ Fair ■■ Good

43. Does the facility provide sufficient access for handicapped persons?



257



Structural and Safety Issues (continued)

44. Is the construction class of the building rated noncombustible?

45. Is a mechanism provided to permit prompt release of in-mates from locked areas?

46. Are exits continuously illuminated?

47. Are paths for evacuation clearly marked?

48. Are vertical openings between floors enclosed to prevent the spread of smoke, heat, and fire?


258



Structural and Safety Issues (continued)

49. Are hazardous areas (boiler rooms, laundries, kitchens, trash storage, etc.) protected by proper enclosure to pre-vent the spread of fire?

Additional Comments


259

Checklist 7. Staffing, Recruitment, Hiring, Retention, and Scheduling


Staffing

1. Does your jail have a current, written staffing plan?

If so, determine when it was last reviewed and updated.

2. If you answered yes to #1, respond to the following:

Have jail operations or workload changed significantly since the preparation of the staffing plan or its most recent update?

Does the staffing plan address staffing needs for the following categories of staff?:

Administrative security/custody . . . . . . . . . . . . . . . . . . . . . . . . . .

Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Does the funding authority agree with and support the staffing levels indicated in the staffing plan?

3. Do written job descriptions exist for all positions?

4. Are current staffing levels sufficient to accomplish the following:

Provide full coverage of all posts? . . . . . . . . . . . . . . . . . . . . . . . . . . .

Actively supervise inmates? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Cover all essential jail functions? . . . . . . . . . . . . . . . . . . . . . . . . . . . .

5. Are both male and female staff available in the facility when both male and female inmates are housed?

6. Are staff earning excessive amounts of overtime or comp time due to staffing shortages?


260

Checklist 7. Staffing, Recruitment, Hiring, Retention, and Scheduling (continued)


Staffing (continued)

7. Have programs or services that require additional staff in-creased significantly?

8. Are any staff on the payroll currently on extended leave due to military service, leave under the Family and Medical Leave Act, or disability?

Review the status of these employees and assess the impact of their absence on jail operations.

9. Is any current litigation related in whole or in part to staffing deficiencies?

Recruiting, Hiring, and Retention

10. Given your assessment of the jail population, do any staffing deficits or needs require your immediate attention?

11. Has the jail had a problem in recruiting qualified staff?

12. Does the jail have a recruitment plan?

13. Are there entrance level requirements for various categories of positions within the jail?



261



Recruiting, Hiring, and Retention (continued)

14. Does the jail have a formal process for screening applicants for staff positions?

Describe.

15. Is there a problem with staff turnover in the jail?

If so, what are the reasons for the turnover (low pay, stress/burnout, poor working conditions, other job opportunities, etc.) and is anything being done to address the problem?

16. Have the agency and the jurisdiction’s personnel office des-ignated a contact person on personnel matters for the jail?

List name(s) and contact information.

Staff Scheduling

17. Does the jail have a written facility activity schedule listing all of the activities and functions of the jail?

When was it last updated?

18. Have the jail’s programs, operations, or physical plant changed since the schedule was last reviewed?

19. Does the schedule make efficient use of staff resources?


262



Staff Scheduling (continued)

20. Do the shift configuration and staff work schedule provide adequate coverage at all times and allow for completion of activities in accordance with the facility activity schedule?

Assess the staff’s level of satisfaction with the current shift con-figuration and work schedule.

21. Do agency or union work rules affect the shift configuration and your flexibility in making changes?

22. Is absenteeism a problem?

If so, assess the reason for the absenteeism (insufficient time off, inequities in scheduling holidays and vacation, low morale, burnout).

23. Are staff cross-trained to assure coverage in critical posts or positions?

Additional Comments


263

Checklist 8. Training


Training Resources

1. Does the jail have a designated training coordinator?

2. Does the jail have adequate training staff, facilities, equip-ment, and materials?

3. Are outside training programs/resources used?

If so, describe.

4. Does the jail have a specific budget allocation for training?

Is it sufficient?

5. Is any current litigation related in whole or in part to training deficiencies?

Training Plan

6. Does the jail have written policies and procedures address-ing staff training?

7. Does the jail have a formal, written staff training plan?


264

Checklist 8. Training (continued)


Training Plan (continued)

8. If you answered yes to #7, does the plan meet the following criteria?

Is reviewed and updated annually . . . . . . . . . . . . . . . . . . . . . . . . . . .

Addresses all job classes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Addresses new and existing employees. . . . . . . . . . . . . . . . . . . . . . .

Is based on job analysis for new employees . . . . . . . . . . . . . . . . . . .

Is problem based for existing employees . . . . . . . . . . . . . . . . . . . . .

Yields minimum required hours for each job class . . . . . . . . . . . . . .

9. Does the training plan include an annual training calendar?

10. Has a job analysis been conducted to identify new employee training topics?

11. Is a problem analysis conducted annually to identify training topics for existing employees?

12. Is all staff training thoroughly documented?

13. Is the impact of training evaluated on both an individual employee and an agency basis?



265

Checklist 8. Training (continued)


Training Plan (continued)

14. Is the jail in compliance with all required training standards?

Additional Comments


267

Checklist 9. Security


Perimeter Security

1. Does the jail have a physically secure perimeter that pro-vides an overall barrier between inmate occupied areas and the outside world?

2. Is access into and out of the secure area of the jail con-trolled at all times?

Find out if there is a written facility access policy and procedures that govern entry into the facility.

3. Are all security features and devices operable and in good repair?

4. Are all monitoring and communication systems adequate and maintained in good working order?

5. Are control centers secure and is access limited to control center operators?

Inmate Accountability

6. Are a sufficient number of staff on duty at all times to re-spond to emergency situations and adequately supervise the anticipated level of activity?


268

Checklist 9. Security (continued)


Inmate Accountability (continued)

7. Do the locations of staff posts throughout the jail allow staff to observe and manage inmate behavior effectively?

8. Does the jail have a system for physically counting inmates to verify that all inmates in custody are present or other-wise accounted for?

9. Are jail staff required to conduct and document frequent well-being checks of inmates?

10. Have any recent, serious, security-related incidents such as fire, escape, assault, or suicide occurred?

11. If you answered yes to #10, have investigations been con-ducted to determine whether policies and procedures were followed or need to be changed or whether additional staff training is required?

Searches and Contraband Control

12. Does the jail have written policies and procedures governing the following types of searches?

Inmate searches (pat, strip, body cavity) . . . . . . . . . . . . . . . . . . . . . .

Property searches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Visitor searches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Facility searches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Vehicle searches. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .



269



Searches and Contraband Control (continued)

13. Does the jail have adequate provisions for the control of contraband?

14. Does the jail have adequate provisions for the proper stor-age and controlled use of the following types of equipment and supplies?

Keys . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Weapons. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Tools . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Supplies and hazardous materials. . . . . . . . . . . . . . . . . . . . . . . . . . . .

15. Have any incidents involving the introduction of contraband or misuse of facility equipment or supplies occurred?

Use of Force and Restraints

16. Does the jail have adequate written policies and procedures governing the use of force and use of restraints?

17. Are staff adequately trained in the use of force and use of restraints?

18. Have any incidents involved excessive use of force or in-appropriate use of restraints?


270



Use of Force and Restraints (continued)

19. Are all use-of-force incidents investigated for appropriate-ness of use of force or need for additional training and/or policy revision?

Internal Movement and Transportation

20. Does the jail have policy and procedures governing the internal movement of inmates within the jail (maintaining accountability, use of escorts, use of restraints, searches, etc.)?

21. Does the jail have policy and procedures governing the transport of inmates outside the jail (search of vehicle, searches of inmates, restraints, travel routes, etc.)?

22. Have staff assigned to transport inmates received adequate training in transport procedures and use of equipment?

23. Have any recent issues or incidents involving inmate move-ment or transport occurred?

Security Inspections

24. Are security inspections conducted on a regular basis?

25. Does the process provide for the inspection of all areas of the facility?



271



Security Inspections (continued)

26. Are checklists used that include the items to be inspected in each area?

27. Do procedures provide for a supervisory review of inspec-tion results and initiation of appropriate actions to correct any identified concerns?

28. Do any security concerns require immediate attention?

29. Does the jail staff include a position that holds primary re-sponsibility for overseeing jail security?

Additional Comments


273

Checklist 10. Safety


Safety Management

1. Does the jail have a designated safety officer who has been trained?

2. Has a recent worksite analysis been conducted to identify potential safety hazards?

If so, what were the results?

3. Is the jail in compliance with applicable safety standards (jail standards, fire codes, building codes, OSHA, etc.)?

If not, determine the nature of noncompliance and whether there are outstanding issues that require immediate attention.

4. Is the jail’s safety program governed by written policies and procedures?

5. Is the jail’s safety record satisfactory?

6. Have any recent serious safety-related incidents or accidents occurred?


274


Checklist 10. Safety (continued)


Safety Management (continued)

7. If you answered yes to #6, have investigations been con-ducted to determine whether policies and procedures were followed or need to be changed or whether additional staff training is required?

Safety Inspections

8. Does the jail have a system of routine inspections conducted by designated jail staff to identify potential hazards?

9. Are checklists that include items and locations unique to the facility used as part of the internal inspection process?

10. Are inspections conducted at regular intervals by inspection authorities and/or other qualified, independent auditors?

11. Are there provisions for supervisory review of inspection findings and initiation of appropriate corrective action where deficiencies are identified?

Safety Training

12. Do staff receive adequate training on safety issues and con-trol measures?

13. If there is a designated safety officer, has he or she received appropriate training in safety management?


275

Checklist 10. Safety (continued)


Safety Training (continued)

14. Are inmates made aware of their responsibilities with regard to safety?

Additional Comments


277

Checklist 11. Emergency Preparedness


Emergency Response Management

1. Does the jail have a written, comprehensive emergency re-sponse plan that includes the following components?

Risk assessment and control strategies . . . . . . . . . . . . . . . . . . . . . . .

Organizational structure for emergency response . . . . . . . . . . . . . .

Interagency coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Written emergency plans for a range of predefined emergencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Evacuation plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Appropriate equipment and resources . . . . . . . . . . . . . . . . . . . . . . .

Training and drills . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Recovery steps after emergencies . . . . . . . . . . . . . . . . . . . . . . . . . . .

Reporting and documentation of emergency information . . . . . . .

Critical incident review process. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

2. Has the jail established agreements with outside agencies that may provide assistance during emergencies?

3. Does the jail have an emergency response team?

4. Is the jail in compliance with applicable standards relating to emergency preparedness?

5. Do any issues or concerns relating to emergency prepared-ness require immediate attention?


278

Checklist 11. Emergency Preparedness (continued)


Training and Drills

6. Have staff been given adequate training in the handling of emergencies?

7. Are emergency drills conducted periodically to test the effectiveness of the emergency response plans?

Equipment and Resources

8. Are the following types of emergency systems, equipment, and resources in place and operational?

Communications system (internal and external) . . . . . . . . . . . . . . . .

Alarm system . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Fire detection and suppression system . . . . . . . . . . . . . . . . . . . . . . .

Emergency generators . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Emergency keys. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Protective equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Floor plans and other facility documentation . . . . . . . . . . . . . . . . . .

Recovery and Review

9. Does the jail have arrangements for housing inmates temporarily in other facilities if it cannot be occupied following an emergency?

10. Does the jail have the means to ensure that all information about an emergency is compiled and documented?



279

Checklist 11. Emergency Preparedness (continued)


Recovery and Review (continued)

11. Does the jail have a process for critical review of emer-gencies that provides for the following:

Assessment of the appropriateness of training . . . . . . . . . . . . . . . .

Assessment of the appropriateness of policy and procedure . . . . .

Assessment of the adequacy of systems, equipment, and coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Determination of any policy violations . . . . . . . . . . . . . . . . . . . . . . . .

Additional Comments


281

Checklist 12. Inmate Services and Programs


Food Services

1. How are food services provided in the jail?

Provided in-house . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Contracted . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Prepared onsite . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Prepared elsewhere. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

If contracted, determine how much time is left on the contract and how long it has been since the contract was rebid. Assess how well the food services contractor has performed.

2. Is the funding allocated for food services in the current budget sufficient?

Is the food services operation over or under budget?

Review food services expenditures for the past few years for trends in expenditures.

3. Is the cost per meal reasonable?

Has the cost per meal increased or decreased over the past few years?

4. Are food services facilities and equipment functional and in good condition?

5. Is the jail in compliance with applicable food services standards?

6. Does the jail have a system of internal sanitation inspections of food services facilities and operations?

7. Do procedures provide for a supervisory review of inspec-tion results and initiation of appropriate actions to correct any identified concerns?


282

Checklist 12. Inmate Services and Programs (continued)


Food Services (continued)

8. Have menus been evaluated and approved by dietary professionals?

9. Are there any complaints relating to food services?

10. Are there any incidents or problems involving food services issues?

Medical and Mental Health Services

11. How are medical and mental heath services provided?

Provided in-house . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Contracted . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Provided at the jail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Provided offsite . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Find out what services jail staff provide and what services are con-tracted out. If contracted, determine how much time is left on the contract and how long it has been since the contract was re-bid. Assess how well the medical services and mental health con-tractors have performed.

Identify the jail’s primary contact(s) for medical and mental health services. List name(s) and contact information.

12. Is the funding allocated in the current budget for medical and mental health services sufficient?

Are the medical and mental health services operations over or under budget?

Review medical and mental health expenditures over the past few years for trends in expenditures.



283



Medical and Mental Health Services (continued)

13. Does the current level of use of medical and mental health services seem appropriate?

Has utilization increased or decreased over the past few years?

14. Are the jail’s health-care facilities and equipment functional and in good condition?

15. Is the jail in compliance with applicable medical and mental health services standards?

16. Are there any complaints relating to health-care services?

17. Are there any incidents or problems involving health-care services issues?

Clothing and Linens

18. Does the jail have an adequate inventory of clothing and linens?

19. Are clothing and linens in good condition?


284



Clothing and Linens (continued)

20. Does the jail have procedures and schedules for the regular exchange of clothing and linens?

21. Are there any incidents involving the destruction or misuse of jail clothing or linens?

22. Is the current budget allocation for purchase of clothing and linens sufficient?

23. Is a designated staff person responsible for maintaining the jail’s clothing and linens inventory?

Laundry Services

24. How are laundry services provided?

Provided in house by jail staff. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Provided offsite by a third party. . . . . . . . . . . . . . . . . . . . . . . . . . . . .

25. If provided in house, are laundry equipment and facilities functional and in good condition?

26. Are inmate workers assigned to laundry services?

If so, how are they supervised?



285



Personal Hygiene and Grooming

27. Do inmates have access to operable shower or bathing facilities and lavatories?

28. Is the supply of hot and cold running water sufficient for daily showers and personal grooming?

29. Is hot water regulated to prevent maximum temperature from exceeding 120 degrees Fahrenheit?

30. Are essential hygiene and grooming products available to all inmates?

31. Is information concerning personal hygiene services and expectations included in the inmate handbook?

32. Are resources available to instruct inmates and staff on appropriate personal hygiene and self-care?

33. Are there any complaints relating to access to personal hygiene equipment, supplies, or services?


286



Visitation

34. Does the jail have written policies and procedures governing inmate visits?

35. Does the inmate handbook include information about visiting rules and schedules?

36. Are visitors made aware of visiting rules and schedules?

37. Does the schedule provide a sufficient number of hours to allow all inmates their allotted visiting time?

38. Does the schedule include evening and weekend hours that accommodate family members’ work schedules?

39. Are there provisions for confidential professional visits?

Are such visits allowed beyond normally scheduled visits?

40. Have inmates or visitors registered any complaints con-cerning the visiting process?



287



Visitation (continued)

41. Are there any incidents involving the visiting process?

42. Is the visiting area secure and can it be easily supervised by staff?

Mail and Telephone

43. How are telephone services provided in the jail?

44. If reverse-charge telephones are utilized:

Are the charges reasonable?

Is there an agreement with the funding authority regarding the use of telephone revenue proceeds?

Have telephone services and maintenance of equipment been satisfactory?

45. Do current procedures adequately safeguard the privacy required for privileged communications?

46. Do current procedures provide for the proper handling of inmate funds and other items received through the mail?

47. Do current procedures address inspection of mail for contraband?


288



Mail and Telephone (continued)

48. Are there any incidents involving contraband entering the facility through the mail?

49. Are there any inmate complaints regarding mail or tele-phone services?

Exercise and Recreation

50. Is exercise provided as part of the daily scheduled routine?

51. Is adequate indoor and outdoor exercise space available?

52. Can exercise areas be easily supervised?

53. Is the physical security of exercise areas sufficient?

54. Is the exercise equipment available to inmates sufficient and in good condition?



289



Exercise and Recreation (continued)

55. Are there indicators of idleness and boredom in the inmate population?

Library Services

56. Are library services provided in the jail?

Does the jail maintain its own library collection or does it have arrangements with a local library?

57. Does the jail make effective use of community resources in providing library services?

58. Does the inmate handbook include information on pro-cedures for accessing reading materials?

59. Have provisions been made to assure inmate access to legal reference materials or, alternatively, legal assistance services?

60. Are there any inmate complaints regarding library services?

61. Are there any incidents involving the passage of contraband or other problems relating to library services?


290



Commissary Services

62. How are inmate commissary services provided in the jail?

63. Is the responsibility for managing inmate commissary serv-ices assigned to a designated staff person?

List name and review responsibilities.

64. Are proper inventory controls in place to receive, store, and disburse commissary items?

65. Are proper accounting methods in place to manage inmate trust accounts?

66. Have commissary funds and inmate accounts been audited recently?

If so, were any problems noted?

67. Is the jail in agreement with the funding authority regarding the use of profits from commissary sales?

68. Are prices charged for commissary items reasonable?



291



Commissary Services (continued)

69. Does the inmate handbook outline procedures for making commissary purchases?

70. Are there any inmate complaints regarding commissary services?

71. Are there any incidents involving the improper handling of commissary products or funds?

Inmate Programs

72. Are inmate programs currently available in the jail?

How are the programs delivered?

List all programs, including contact information for key program providers.

73. Are space, equipment, and supplies adequate to meet pro-gram needs?

74. Is inmate participation in programs satisfactory?

What results have the programs achieved?

What is the current cost of inmate programs?

To what extent are community resources used for inmate programs?

75. If persons from the community are used for programs, do they undergo a screening and training process?


292



Inmate Programs (continued)

76. Are inmate programs included in the jail’s daily scheduled routine?

77. Are inmates engaged in constructive activities for significant portions of the day?

78. Is a specific staff person responsible for coordinating pro-grams in the jail?

List and review assigned responsibilities.

Additional Comments


293

Checklist 13. Inmate Behavior Management


Screening

1. Does the jail have a process for systematically screening in-mates at admission to assess security and safety risks and the need for special services or supervision?

2. Is the initial screening and assessment information collected at intake documented on a standard form(s)?

3. Is the screening information gathered at intake reviewed in a timely manner by appropriate personnel who can respond to the issues presented?

4. Have the intake staff received training in the screening process and the use of screening instruments?

Classification

5. Does the jail have a formal, written classification process for determining housing assignments, supervision require-ments, and program eligibility?

6. If you answered yes to #5, does the classification system in-clude the use of objective screening tools such as point-additive or decision-tree instruments?


294

Checklist 13. Inmate Behavior Management (continued)


Classification (continued)

7. Does the classification process provide for reassessment at scheduled intervals and in response to new information?

8. Does the jail have a system of information sharing so that program, support, and custody staff all have the information they need to manage each inmate’s behavior?

9. Is responsibility for managing the classification process assigned to a specific staff position?

Identify the staff person responsible for managing the classifica-tion process and determine what direction and authority this person has had in managing the process.

Housing Plan

10. Does the jail have a housing plan that provides for housing assignments and management of inmates based on be-havior, compatibility, and legal mandates or standards?

11. Does the jail provide housing apart from the general popu-lation for inmates who require protective custody, those who demonstrate chronic behavior problems, and those who are violent or who present an escape risk?

12. Does the jail provide housing apart from the general popu-lation for inmate workers and those on work release?

Orientation

13. Are inmates given a formal orientation to the jail at admission?



295



Orientation (continued)

14. Does the jail have an inmate handbook that outlines rules, expectations for inmate behavior, and consequences for rule violations?

15. Do the inmate handbook and orientation process make accommodations for inmates who are not literate, who are non-English-speaking, or who have disabilities that interfere with receiving and understanding the information provided?

Review the characteristics of the inmate population and the types of accommodations currently available.

Staff Placement and Interaction

16. Does the jail have enough staff to supervise inmates ade-quately on all shifts?

17. Are the staff positioned within the jail so they can see, hear, and promptly respond to what is happening in inmate-occupied areas?

18. Do staff conduct (and document) frequent well-being checks as required by applicable jail standards?

19. Is the staff’s level of interaction with the inmates sufficient for staff to supervise the inmates effectively and manage their behavior?


296



Incentives and Sanctions

20. Does the jail offer incentives to encourage inmates to be-have well and comply with the rules?

21. Does the jail have a formal disciplinary process for inmates who break the rules?

Productive Activities

22. Are inmates kept productively engaged in activities throughout the day to avoid extended periods of idleness?

Review the daily schedule to determine the amount of planned activity and tour the housing units at various times to see the level of inmate participation in activities.

Additional Comments:


297

Checklist 14. Inmate Discipline and Grievance


Inmate Discipline

1. Does the jail have written policies and procedures governing the inmate disciplinary process?

2. Does the inmate disciplinary process include the following components?

Written rules governing inmate conduct. . . . . . . . . . . . . . . . . . . . . .

Written description of sanctions for rule violations . . . . . . . . . . . . .

Written description of the disciplinary process . . . . . . . . . . . . . . . . .

Inmate orientation/access to rules, sanctions, and the disciplinary process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Provisions for resolving minor infractions . . . . . . . . . . . . . . . . . . . . .

Notice of rule violation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Procedures for a fair hearing on rule violations . . . . . . . . . . . . . . . .

Documentation of disciplinary actions . . . . . . . . . . . . . . . . . . . . . . . .

Review of disciplinary decisions by a higher authority . . . . . . . . . . .

Right to appeal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

3. Are staff adequately trained in the rules and the disciplinary procedures?

4. Do any problems or issues relating to inmate discipline re-quire immediate attention?

Inmate Grievances

5. Does the jail have a formal grievance process?

6. Is a staff person responsible for administering the grievance system?


298

Checklist 14. Inmate Discipline and Grievance (continued)


Inmate Grievances (continued)

7. Do the inmate handbook and inmate orientation provide information about the grievance process?

8. Does the jail’s grievance system provide for the following?

Access by all inmates without reprisal . . . . . . . . . . . . . . . . . . . . . . . .

Availability of grievance forms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Staff assistance to inmates desiring help in preparing grievances . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Written responses to grievances . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Reasonable timeframes for reviewing andresponding to grievances . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Supervisory review of all grievances. . . . . . . . . . . . . . . . . . . . . . . . . .

Process appeal to a higher level . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

9. Do any problems or issues relating to the grievance process require immediate attention?

Additional Comments


299

Checklist 15. Special Management


1. Does the jail have written policies and procedures governing the management of inmates in the following areas of special management?

Administrative segregation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Protective custody. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Disciplinary detention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

2. Do procedures for the handling of inmates in special management include the following?

Placement in special management pursuant to classification or disciplinary process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Periodic placement review . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Daily visits by supervisory staff . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Frequent well-being checks by special management unit staff . . . .

Medical oversight as appropriate . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Access to showers, hygiene supplies, and bedding . . . . . . . . . . . . .

Access to mail, reading materials, and visitation . . . . . . . . . . . . . . . .

Telephone privileges where not denied for disciplinary reasons . . .

Access to programs and services . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Access to out-of-cell exercise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Documentation justifying deprivation of hygiene/health items or exercise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

3. Does the jail have a separate housing area for special management inmates?

4. If you answered yes to #3, do the conditions in the special management housing area approximate those of the gen-eral population housing areas?


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Checklist 15. Special Management (continued)


5. Have staff received training in the management and super-vision of special management inmates?

Additional Comments


301

Checklist 16. Intake and Release


General Issues

1. Does the jail have policies and procedures governing the in-take and release functions?

2. Is the intake area set up efficiently for the intake and processing of arrestees?

If not, are there ways to modify the intake area for efficiency?

3. Does the intake area support the following functions?

Inmate searches. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Weapons security. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Police report area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Medical screening . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Booking and inmate ID . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Assessment and classification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Property receipt and storage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Telephone calls. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Temporary holding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Separate housing for inmates who are suicidal or have infectious diseases. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Shower and Dress Out

4. Does the jail employ any of the following technologies to augment the intake and release processes?

Electronic fingerprinting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Video imaging . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Barcoding for identification and inventory of property . . . . . . . . . .

Automated booking programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Telemedicine . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Negative pressure cells . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

5. Are basic tools such as rubber gloves, restraint equipment, and body fluid protective equipment available in the intake area?

Are staff trained in their use?


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Checklist 16. Intake and Release (continued)


Intake Process

6. Does the jail’s intake process provide for the following?

Securing of the arresting officer’s weapons . . . . . . . . . . . . . . . . . . .

Initial pat or frisk search before entering the intake area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Identification of the arresting officer . . . . . . . . . . . . . . . . . . . . . . . . .

Verification of arrest or legal commitment . . . . . . . . . . . . . . . . . . . .

Assessment for medical clearance . . . . . . . . . . . . . . . . . . . . . . . . . . .

Search of arrestee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Property removal and inventory. . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Medical and suicide screening . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Completion of booking forms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Identification (photographs and fingerprints) . . . . . . . . . . . . . . . . . .

Warrant checks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Arrestee telephone calls to family, bondsman, or attorneys . . . . . .

Pretrial release screening . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Shower, dress-out, and issue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Initial classification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Orientation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Release Process

7. Does the jail’s release process provide for the following?

Verification of discharge documents . . . . . . . . . . . . . . . . . . . . . . . . .

Verification of identity of inmate being released . . . . . . . . . . . . . . .

Check for holds or detainers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Return of property and money . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Referrals (medical, mental health, etc.) . . . . . . . . . . . . . . . . . . . . . . .

Victim notification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Review of release requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Transportation arrangements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Completion of release documents . . . . . . . . . . . . . . . . . . . . . . . . . . .

Suicide Prevention

8. Is the arresting officer required to complete a suicide form regarding any statements by the arrestee or observations by the arresting officer?



303



Suicide Prevention (continued)

9. Are suicidal arrestees placed under constant observation until they are seen by a mental health professional and a supervision routine has been ordered?

10. Is the suicide observation cell checked before the suicidal arrestee is placed in the cell and can the inmate be easily observed?

11. Are suicidal arrestees given “suicide” smocks and blankets?

12. Are decisions to remove the person from suicide watch made only by mental health professionals?

13. Is there a “suicide in progress” plan and are staff trained in its implementation?

Intoxication and Withdrawal

14. Are all intoxicated arrestees tested for blood alcohol levels?

15. Are arrestees experiencing serious withdrawal treated at a hospital?


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Intoxication and Withdrawal (continued)

16. Do protocols exist for supervising arrestees experiencing minor withdrawal symptoms?

Are there procedures for hospital referral if their symptoms be-come more serious?

17. Do staff receive training in the supervision and management of intoxicated inmates?

Infectious Disease Control

18. Are the jail’s infectious disease program and protocols coordinated with the local health department?

19. Are inmates with infectious diseases identified and housed separately from the general population?

20. Are staff trained in universal precautions?

21. Is the health department notified when an inmate with an infectious disease is released?

Intake Searches

22. Does the jail’s policy prohibit the blanket strip search of all arrestees and only allow strip searches based on reasonable suspicion that the arrestee is concealing contraband?



305



Intake Searches (continued)

23. Does a supervisor approve each and every case where an arrestee is strip searched?

24. Are provisions made to prevent officers/others from “observing” arrestees when they are showering or changing into jail clothing in cases where strip searches are not authorized?

Additional Comments