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~ Jail Classification
"1'''' and Discipline
The National Sheriffs' Association
Alexandria, VA 22314
Jail Classification
and
Discipline
Marilyn B. Ayres
AQ.Q U1S-!TION S
Publication of this handbook was supported by Grant No. GR7 from the US. Department ofJustice, National
Institute of Corrections. Points of view or opinions stated in this document are those of the author and
do not necessarily represent the official position or policies of the US. Department of Justice or of the
National Sheriffs' Association.
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National Institute of Justice
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sion of the~owner.
The National Institute of Corrections is authorized to copy and print such additional copies of this
handbook as it deems necessary or desirable.
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TABLE OF CON'IiENTS
JAIL OLASSIFIOATION AND DISOIPLINE
Foreword v
Ackrwwledgments VI
INTRODUCTION JAIL CLASSIFICATION AND DISCIPUNE 1
Valid Classification, Discipline Procedures Needed 1
Accreditation as a Goal for Today's Jails 2
Chapter I
OVERVIEW OF JAIL CLASSIFICATION IN THE UNITED STATES 5
Evolution of Jail Classification in the United States 5
Present State of Jail Classification in the United States 7
Chapter II
GOALS AND BENEFITS OF PROPER JAIL CLASSIFICATION 9
Chapter III
ESTABLISHING THE JAIL CLASSIFICATION SYSTEM 13
Guidelines for Structuring a Jail Classification System 13
Classification Personnel 14
Classification Options for Today's Administrators 15
Inmate Programs and Services 16
The Computer's Impact on Classification 19
Chapter IV
INTAKE AND CLASSIFICATION PROCEDURES 25
Admission and Booking 25
Pretrial Release 27
Orientation 30
Protecting New Inmates' Rights 30
Ensuring Personal Safety 30
Classification Procedures 34
Inmate Accountability 43
iii
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Chapter V
RECLASSIFICATION PROCEDURES 45
Procedures for Reclassification 45
Emergency Reclassification 47
Non-Emergency Reclassification 59
Chapter VI
EFFECTIVE DISCIPLINE 63
Establishing Valid Disciplinary Procedures 63
Due Process and Disciplinary Procedures 69
Disciplinary Hearing Decision Appeals 69
Grievances 74
APPENDIX A
OBJECTIVE CLASSIFICATION-A MODEL SYSTEM 77
APPENDIXB
CLASSIFICATION TEAM DECISION MAKING-A MODEL SYSTEM 103
APPENDIXC
COMPUTERIZED CLASSIFICATION-A DECISION TREE MODEL 111
APPENDIXD
ACA STANDARDS FOR ADULT LOCAL DETENTION FACILITIES
-CLASSIFICATION 129
APPENDIXE
ACA STANDARDS FOR SMALL JAIL FACILITIES-CLASSIFICATION 131
APPENDIXF
ACA STANDARDS FOR ADULT LOCAL DETENTION FACILITIES
- INMATE RULES AND DISCIPLINE 133
APPENDIXG
SUICIDE PREVENTION MODEL POLICIES AND PROCEDURES 137
iv
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FOREWORD
The National Sheriffs' Association has prepared this handbook,Jail Classification and Discipline,
with support from the US. Department ofJustice, National Institute of Corrections. The topics
of classification and discipline were previously addressed in our 1974 monograph,Jail Security,
Classification and Discipline. Extensive developments in cOlTectional law and jail operations since
that time require that these critical topics now be divided into two volumes, with security to be
addressed in the near future.
Classification and discipline are major components of the correctional process, affec.ting inmate
control and supervision and the jail's overall orderly operation. Regardless of the jail's size-
whether it houses five inmates or 500-a properly functioning classification system has been
found to provide for the effective management of inmates in a safe, secure correctional environ·
ment, while also ensuring their eq nitable, humane treatment. In recent years, lack of standardized
classification systems has resulted it. frequent complaints by inmates, who allege their legal rights
have been violated. As a result, courts are more and more frequently intervening in jail c1assifica·
tion decisions, requiring officials to reach 'such decisions fuirly, after obtaining complete, accurate
information. In addition, courts are requiring jails to provide opportunities for reclassification
at properly conducted hearings.
Consistent, equitable discipline is also a prime requisite of any jail setting, impacting posi.
tively on the behavior and personal responsibility of all inmates. By contrast, inequitable, incon·
sistent, or improperly applied disciplinary procedures have long been the root of inmate
disturbances and grievances. Today, jail disciplinary procedures are subject to review by rules
infractions committees or disciplinary hearing boards. The actions of these boards can result
in loss of good time or certain privileges for tlle inmate; therefore, they often result in controversy
as well as scrutiny by the courts.
Because both classification and discipline are subject to frequent criticism by inmates and
examination by the courts, administrators must establish clear, workable policies and procedures
in these areas, remaining alert to current and forthcoming cases, developing standards, and evolving
correctional law.
The purpose of this handbook is to assist the administrator in establishing such policies and
procedures anclmeeting the objectives of classification and discipline within the framework of
applicable standards and state and local codes.
L. Cary Bittick
Executive Director
National Sheriffs' Association
v
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ACKNOWLEDGMH;NTS
This publication was made possible through the combined efforts of a number of individuals
who donated their time and expertise during its development. We are particularly grateful to
our advisory board:
Special appreciation is also extended to the following persons, whose critical reading of the draft
chapters and invaluable recommendations contributed significantly to Jail Classij"zcation and
Discipline:
Marvin Wilson
Assistant Chief Jailer
Polk County Sheriffs Office
Des Moines, IA
vi
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We are also grateful for the contributions of Vince McEvoy and the Prince George's County
(MD) Department of Corrections; Daniel McCarthy, the National Council on Crime and Delin-
quency, San Francisco, CA; the National Institute of Corrections Jail Information Center, Boul-
der, CO; Emmett A. Rathbun ill, Federal Bureau of Investigation National Crime Information
Center, Washington, ne.; and Judith E Cox, Assistant Director, Bureau of Forensic Services, New
York State Office of Mental Health, Albany, NY.
Credit for consistent direction throughout the text development belongs to NSA Executive
Director L. Cary Bittick and Assistant Executive Director Thomas Finn; to Anna laszlo for her
guidance and valuable insight; and to Walter Bacak, Theresa Seemiller,Jackie White, and Susan
Bowsky fo::- their assistance in producing and finalizing the manuscript.
vii
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INTRODUOTION
Jail Classification
and Discipline
As the chief officer of the local detention facility or jail, tionists ... murderers to check bouncers-persons with
today's jail administrator performs a critical, difficult role vastly differing criminal backgrounds, emotional makeup,
in American society. Not only are administrators and needs, skills, and educational levels are forced into the
their jails under seemingly constant attack from critics, same jail population, requiring equally differing security,
but also, with increasing frequency, inmates in our custody, and treatment approaches.
nation's correctional facilities are questioning the con· Classification, or the evaluative process by which hous-
ditions of their confinement, particularly in the areas of ing decisions are made, is the primary management tool
housing, programs, and disciplinary procedures. to aid in providing appropriate responses to this widely
In many instances, especially during the past two diverse inmate population. Classification determines the
decades, courts have found it necessary to intervene on degree of supervision required to control each inmate
these issues and render decisions that impact significantly to maintain the safety and security of the institution and
upon jail operations. Successful challenges against jail the community. It also provides a diagnostic process by
conditions or policies have resulted in substantial finan· which newly admitted inmates' educational, social, med-
cial hardships, with many state and local corrections offi- ical, and psychological needs can be identified:
cials and jurisdictions now facing judgments in the thou- Overall, a properly functioning classification system
sands of dollars} Liability insurance is costly and difficult has been found to provide the basis for the effective
to obtain, and administrators must take a proactive stance management of inmates in a safe, secure correctional
to avoid unnecessary litigation. environment, while also ensuring their equitable, hu-
In the past, jail administrators were free to conduct mane treatment.
their operations with little or no regard for developments Classification Shotild be an ongoing process that reoc-
in correctional law. Today, these officials must take steps curs on a regularly scheduled or an as needed basis dur-
to gain insight into judicial developments in all areas of ing the inmates' incarceration. Since an inmate's classifi-
corrections. It is essential that they stay abreast of exist- cation affects every facet of the normal routine, he or she
ing as well as changing laws and that they follow the fed· is entitled to certain procedural safeguards prior to both
eral cases pertaining to corrections. initial and reclassification actions. It is essential that deci·
sions not be made capriciously or arbitrarily; and many
VALID CLASSIFICATION, DISCIPLINE jails have been reprimanded by the courts for failing to
PROCEDURES NEEDED provide an adequate or equitable classification system.
Two goals of any jail administration should be to: 1)
protect inmates' rights; and 2) reduce the potentiallia- Early Court Rulings. As far back as 1970, in Morris v.
bility of the administrator. Progress toward the first of Tmvisono, a Rhode Island district court initiated rules for
these objectives promotes the success of the second. In corrections officials to follow in making classification
attempting to reach the first objective, and as an aid to decisions. Among the rules it suggested were:
preventing, rather than defending lawsuits,jail administra-
• A review of certain inmates' classifications every 90
tors in recent years have begun to focus on developing days;
and implementing valid, equitable classification systems
• Automatic review of those in the lowest classification
and establishing appropriate, consistent disciplinary
every 30 days;
procedures based on equitable standards.
• The right of inmates to appear at classification
hearings;
Classification: An Essential Management Tool
• The right ofinmates to challenge unfavorable reports
All jails, regardless of size, are required to deal with widely affecting their classifications;
diverse elements of society. Armed robbers to exhibi- • The recording of all classification proceedings.s
1
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These opinions reflected inmates' successful challeng- As a result, inmates frequently contended that the facil-
ing of their classifications on due process grounds up to ity's rules and regulations varied with the officer in
that point. charge.
During the next few years, federal courts consistently Today, the use of punishment for disci plinary purposes
demonstrated the relevance and significance of classifi- is subject to review by certain bodies, such as a rules infrac-
cation, and findings continued to provide the framework tion committee or a disciplinary hearing board. Because
for developing standards. For example, in Kirby v. Black- the actions of these boards or committees can result in
ledge (1976) the court said that inmates were entitled to significant loss of "good time;' parole opportunity, or
a formal hearing before being subjected to any "grievous other privileges, they have been the object of considera-
loss;' such as that. accompanying assignment to a maxi- ble controversy as well as scrutiny by the courts. Discipline
mum security level. reviewers must ensure that the Eighth Amendment pro-
tections against cruel and unusual punishment are not
ACA Standards Published in 1977 violated and that considerations of due process are fol-
lowed closely, particularly those pertaining to the equal
In 1977, the American Correctional Association (ACA),
protection clause of the Fourteenth Amendment.5
in cooperation with the Commission on Accreditation
for Corrections, published the now widely acclaimed and
ACA Standards for Adult Local Detention Facilities details the
respected Standards for Adult Local Detention Facilities.
procedures to be followed by the jail in maintaining order
These standards have been recognized as nationally
and discipline within the facility. These procedures
accepted guidelines for professionalizing jail manage-
include:
ment, operations, and staff as well as for providing appro-
priate services and programs in response to inmate needs. • Establ~shing
a set of equitable inmate rules and regu-
In 1987, ACA, in cooperation with the Commission on lations specifying violations and sanctions and ensur-
Accreditation for Corrections, published Standards for ing that each inmate receives a copy and understands
SmallJail Facilities, in response to the need for professional them;
standards development in the 63 percent of the nation's • Providing that disciplinary hearings involving cases of
jails with populations of 50 or fewer inmates. rule violations are conducted by an impartial person
Today,jails that have achieved and maintained the goals or panel;
established by these standards report increased support • Granting inmates the right to appeal decisions of the
from the public, the media and the courts. disciplinary hearing to the administrator or an inde-
The standards include requirements that: pendent authority.
• Written policy and procedure provide for inmate clas- e Establishing a valid grievance procedure.6 *
sification regarding custody, housing, and program
participation; ACCREDITATION AS A GOAL FOR
• Specific criteria, including an appeals process, be uti- roDAY'S JAILS
lized for changing an inmate's status; Because both classification and discipline within the jail
" Certain categories of inmates be managed separately; are the subjects offrequent criticism from inmates as well
• Inmates not be segregated by race, calm, creed, or as examination by the courts, it is essential that all jails
national origin~* establish clear, workable policies and procedures in these
areas, based on nationally recognized standards that have
Equitable Discipline Procedures Mandated survived such scrutiny.
Equally important to the jail as a proper classification Today, a number ofjails across the nation have completed
system are appropriate, equitable disciplinary procedures the process of accreditation through the Commission on
to ensure order, control, and staff and inmate safety. Accreditation for Corrections; and many more are
Prompt, consistent discipline throughout the jail can preparing to go through the process. The documentation
serve as a positive force, encouraging inmates to behave for this procedure is no easy task. Ideally, however, the
in an orderly fashion. administrator's long-range goal should be to achieve the
In many instances in the past,jail officials and staff were standards required for accreditation. Establishing and
granted wide discretion to punish inmates as they saw fit. maintaining the regulations for classification and dis-
cipline according to state and local codes as well as ACA
Standards for Adult Local Detention Facilities ensures that
*See Appendix D for ACA Standards related to classification and these two critical areas meet nationally recognized stan-
Appendix E for ACA Standards related to discipline. dards as well as the requirements for accreditation.
2
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Introduction
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CHAPTER I
Every jail needs a good classification system to identify These factors make classification extremely difficult
and separate inmates into compatible, controllable liv- and complicated in many facilities; howevel~ a brief exami-
ing units to ensure their security and safety as well as that nation of each reveals that they are often the very factors
of the staff and the institution. Classification exists to that require its implementation.
some degree in every jail in which inmates are ~ssigned
to housing units with differing levels of custody or sur- 1. Unique, DiverseJail Functions. While prisons con-
veillance or whenever they are provided or denied access fine only sentenced offenders, jails have traditionally
to jail activities or services. However, the development of detained a widely diverse population, such as the following:
classification in jails has consistently lagged behind that
• Suspects awaiting investigation and charge;
in our nation's prisons. Indeed, many jails today are said
• Persons charged and awaiting trial;
to have classification systems similar to those in our pri-
• Persons convicted and awaiting sentence;
sons 100 years ago.!
• Persons sentenced to terms of less than one year and
This chapter discusses the evolution ofjail classification,
a day;
including the factors impacting on its slow development.
• Persons believed to have violated their probation or
parole;
EVOLUTION OF JAIL • Persons held because of detainers in other
CLASSIFICATION IN THE jurisdictions;
UNITED STATES • Sentenced offenders awaiting transfer to state prisons;
Inmate classification in the United States has evolved " Persons awaiting transfer to juvenile facilities.4
from the pre-1870 prison method of placing persons Compounding the problems associated with the hOllS- .
according to the severity of their offenses to the late 1800s ing of offenders in varying stages of investigation or sen-
focus on placing them to provide individual treatment tencing are the presence in jails not only of both men
and rehabilitation, and finally, to its present state-as a and women, but also ofjuveniles and special management
tool for determining appropriate inmate security and cus- inmates, such as homosexuals, drug addicts and psycho-
tody levels to facilitate population management. paths. Forcing persons from all walks of life to live side-
While classification as a management strategy has by-side in vastly differing physical and mental states,jails
existed in prisons in some form since before the mid- are now dealing with a range of personalities and problems
1800s, its use in jails is a relatively new concept. As recently that, in many instances, cannot function together.
as 1979, 'a National Institute of Corrections survey
revealed a lack of formal, pre-trial classification proce- 2. ChangingJail Populations. To further diversify and
dures in most facilities. Today, the majority of jails still complicate the jail's function, its mission, as well as its
simply separate males from females, adults from juveniles, population, has changed drastically during the past
sentenced from unsentenced inmates, and mentally stable decade due to a number of factors, including the following:
inmates from mentally disturbed inmates:
Overcrowded Prisons. Critical overcrowding in state
Factors Impacting on Lagging Development prison systems has forced many local facilities to
hold, for longer and longer periods, more felons and
The slow evolution of jail classifi~ation is the result of
hardened criminals, many of whom are sociopaths
a wide range offactors injails, including: 1) their unique,
or social misfits.
diverse functions; 2) changing populations; 3) frequent
lack of verifiable information; 4) overcrowding and high Deinstitutionalization of the Mentally HI. At the
volume of daily admissions; 5) rapid population turnover; same time the jails have been placed in the role oflong-
6) facility limitations; and 7) lack of staff training.s term keeper of the prison overflow, there has been a
5
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movement to deimtitutionalize the mentally ill from 5. Rapid Population Thrnover. While obtaining and
large state hospitals; and many of these persons have verifying information necessary for separating offenders
filtered into the jails." into effective categories to facilitate management is a
problem with many inmates, it is most difficult with those
Incarceration Replacing 1reatment Programs. who are released from jail within 72 hours. As a result,
Societal pressures have increased to incarcerate cer- many facilities delay the classification process for inmates
tain groups of offenders that previously might have who are likely to leave within a short time after intake.
been considered for treatment programs or other In most cases, any decisions that are made regarding these
alternatives. These offenders include such diverse persons are based upon charges, bond amounts, and self-
elements as DUIs, child abusers, drug users, and reported medical histories?
white collar criminals, who, along with the usual
assortment of misdemeanants, traffic offenders, and
civil defendants, have contributed to a mix as varied 6. Facility Limitations. Most jails are designed for max-
as society itself-all under one roof.6 imum security and lack the capabilities to physically
separate inmates who have been categorized by varying
Thus, the traditional view of the jail as the short-term custody levels. In addition, most older facilities have a
holding facility for pre- and post·trial misdemeanants and limited number of single cells. Occasionally, this lack of
felons awaiting transfer to state systems is no longer always appropriate space leads to disregarding all but the most
an accurate one. flagrant security and supervision needs and to housing
inmates solely according to their perceived abilities to
get along with others.lO
3. Lack of Verifiable Information. Lack of timely, high Many smaller jails also have limited or non-exi5tent pro-
quality information is nearly always a critical factor in gram and counseling facilities; thus, their classification
the failure to establish valid, workable classification sys- systems exist for supervision purposes only.
tems. Classification is dependent upon the information
received; and while information is readily obtainable
from record checks and inmate interviews, it is often 7. Lack of Staff Training. The intensive training
incomplete (lnd unreliable; and both the inmate and the needed for developing skilled, effective classification
jail suffer as a result of inappropriate housing and pro- interviewers is not available in all jails. In addition, in
gTam assignments. many facilities, all staff, including correctional officers,
have not been trained to fully understand the basis for
and appropriate use of the classification system, includ-
4. Overcrowding, High Volume of Admi.~sions. New, ing the criteria and procedures for reclassification. The
more severe drug laws have contributed to greater num- officer who lacks training and/or confidence in the facil-
bers of admissions, which, along with increased sentences ity's system can easily sabotage it, knowingly or inadver-
and a constant backlog of court cases have resulted in crit- tently, by such actions as arbitrarily moving an inmate
ical overcrowding and overwhelming workloads in many to a different cell or preventing his or her participation
facilities. These factors, coupled with inadequate staffing, in a scheduled program or activity.
have often prevented accurate inmate assessment for clas- Research has shown that attempts to elStablish reliable
sification purposes. Overworked staff may tend to stream· classification systems have been unsuccessful in jails
line and simplify procedures, obtaining inadequate where the entire staff, including correctional officers,
information on some inmates, thereby misclassifying them: have not been trained and motivated to implement and
When not enough time or staff are available for support them correctly.
accurate inmate assessment, the classification system is
adversely affected.
Overcrowding may also lead to "capacity-driven" clas- Benign Neglect, Conflicting Pressures
sification decisions, in which housing and program In addition to the above factors that have slowed the devel-
assignments are determined, not by formal policies and opment of effective jail classification, many jail adminis-
procedures, but by available bed space and program trators have simply not placed the emphasis on
openings. Since there is added potential for violence classification as a management tool to the degree prison
among crowded inmates, the tendency is to overclassify administrators have. Other administrators have been
them (place them in overly restrictive custody levels) in influenced by conflicting local politics and community
an effort to increase security-a move that results in need· pressures, which stress, on the one hand, the rights of
less confinement and longer stays.s inmates and the non-legal principle of least restrictive
6
Overview of Jail Classification in the United States
custody, and on the other hand, restrictive custody to growing number of states have now instituted jail stan-
ensure public safety and orderly jail operations. The dards addressing classification. Twenty-five states require
administrator's failure to strike a balance between these mandatory compliance with explicit jail standards, which
two pressures may lead to serious problems involving mis· generally concern the separation of the inmate popula-
classification.l l tion into certain, traditional groups, according to sex, age
Guvenile/adult), and legal status (pretrial/sentenced)_
Significance of Classification Established Unfortunately, many jails lack the capabilities to further
by Courts separate inmates into categories to facilitate proper
The significance of classification was underscored in management.1S
Palmigiano v. Garrahy (1977), in which the court presented Thus, in some cases, requirements such as those that
t.~is view: mandate separation based on adjudication status may
only deter the development of critically needed systems
Classification is essential to the operation of an
that provide appropriate security and custody levels to
orderly, safe institution. It is a prerequisite for the
ensure inmate, staff, and public safety and facilitate
rational allocation of whatever program opportunities
appropriate treatment and program participation. In
exist within the institution. It enables the institution
addition, in some jurisdictions, there is an erroneous, lin-
to gauge the proper custody level of an inmate, to
gering belief that separation based solely on charge or
identify the inmate's educational, vocational, and
adjudication status constitutes adequate classification.
psychological needs, and to separate non·violent
inmates from the more predatory ... Classification is
Court Scrutiny, Decisions Impact on System
also indispensable for any coherent future planning.12
Development
Because of the profound impact classification decisions
PRESENT STATE OF JAIL have on nearly every aspect of the inmates' existence,
CLASSIFICATION IN THE U.S. courts are, more and more frequently, requiringjail offi-
In our nation's jails today, classification varies from a cials to reach such decisions through procedures that are
sim pie, quick, informal process to a structured procedure fair, that are based on accurate, complete information,
involving numerous trained staff, diagnostic tools, and and that provide opportunities for reclassification at
standardized forms through which newly admitted properly conducted hearings.
inmates' educational, social, medical, psychological, and Between 1968 and 1984, damage awards against jails
treatment needs can be identified. While there is wide for classification-related mistakes or failures averaged
variance in the systems utilized, there is general agree· . $93,000 per case. The most common basis for award was
ment that any jail classification procedure should be negligent failure to separate inmates likely to be assaul-
based on humane considerations, recommended stan- tive from those vulnerable to assault. Other awards
dards, and good security practices. resulted from negligent failure to prevent inmates from
intentionally or accidentally injuring or killing them-
A Critical Management Tool selves and negligent failure to place inmates where they
would receive needed medical attention.14
Effective classification is now regarded as critical to the
Today, jails that give the classification process only
operation of a safe, secure facility. As a management tool,
minimal consideration are quickly being criticized by the
classification is considered essential for assessing and
courts. With more and more officials recognizing the
meeting the needs, risks, and constitutional rights of each
im pending threat of court intervention, particularly with
offender through appropriate housing, work, programs,
regard to inmate housing and programs, there is grow-
and activities, while at the same time maintaining the
ing interest in developing reliable, valid classification
security and safety of the facility and community.
systems.
Standardized Procedures Sought
In recent years, lack of an available, standardized classifi- Model Systems
cation system has been a source of frequent complaints Today, criminal justice professionals researching the
by inmates who allege that their legal rights have been effects of varying methods of classification are develop-
violat!,!d. ing model systems, which offer the administrator
As previously discussed, ACA published its now widely guidance as well as options in establishing a plan for meet-
accepted Standards for Adult Local Detention Facilities in ing the facility'S overall goals within the confines of its
1977 and Standards for SmallJail Facilities in 1987; and a capabilities and resources.
7
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SUMMARY NorES
1. Karen Whitlow, Robert Buchanan,James Austin, Daniel McCarthy.
While classification as a management tool has existed in Jail Classification: A Review of the Literature. San Francisco, CA: The
prisons since before the mid-1800s, jails have tradition- National Council on Crime and Delinquency, 1987.
ally lagged in developing valid classification systems. 2. Ibid.
Several factors have caused this slow development, includ- 3. Ibid.
ing the jail's widely diverse functions, changing popula- 4. Ibid.
tions, overcrowding, rapid population turnover, facility 5. Carl R. Peed. ':Jail Classification: Its History and Impact:' The National
Sheriff, December 1986January 1987.
limitations, and lack of staff training_ 6. Ibid.
In addition, in some jurisdictions, there is a lingering 7. Timothy Brennan. Offender Classification andJail CronJding: Examin·
belief that separation by such factors as charge and adju- ing the Connections Between Poor ClassifICation and the Problem ofJail Crowding
dication status constitutes adequate classification. Where and Developing Some Preventative Interventions. Washington, DC: The
National Institute of Corrections, 1985.
statutes mandate separation by these categories, capabil-
8. Carl B. Clements. "The Future of Offender Classification: Some
ities are often lacking for further separating inmates Cautions and Prospects:' Criminal Justice and Behavior, March 1981.
according to appropriate security and custody levels. 9. J. Whitlow et aI, op. cit.
In recent years, lack of standardized classification sys- 10. James Austin, Paul Litsky. MultiJail Classification Study Final Report.
tems has resulted in frequent complaints by inmates who San Francisco, CA: The National Council on Crime and Delinquency,
1982.
allege that their legal rights have been violated. As a result,
11. Brennan, op. cit.
courts are more and more frequently intervening in jail 12. Palmigiano v. Garrahy, 443 F. Supp. 965 (1977).
classification decisions, requiring officials to reach such 13. Whitlow, et ai, op. cit.
decisions through fair procedures after obtaining com- 14. Whitlow, et ai, op. cit.
plete, accurate information. In addition, courts are requir-
ing jails to provide opportunities for reclassification at
properly conducted hearings.
There is increasing interest among administrators in
developing valid classification systems for assessing the
risks and meeting the needs of each offender as well as
for maintaining security and safety within the institution
and community.
Today, model systems developed by criminal justice
professionals offer the administrator options and
guidance for meeting the facility's goals of classification
within the limits of its capabilities and resources.
8
{~~f".r.:~'''''!Ijt'!'i\i,r';,","R,;:''-~,?,I~ •• ::.• i ~·"~h'S'!'·t·.:d~.,..,·;·· - - •." "".,\,,,"f~'•• ,~« " '
'!!r'!'''''',,·~''l'.tt'''J31'!11,,1I4'''',$,!I!l¥QI!II!,,!!!1!..,!4!!1!Ai~.*/
CHAPTER II
Inmate and staff security and safety are the most impor- based placement, when appropriate, is a necessary step
tant aspects of jai'l operations, and the key elements of to alleviating the critical crowding that plagues many facil·
these objectives are knowledge, control, and prevention. ities. In addition, for some offenders, placement in
Under a properly functioning classification system, the suitable work situations may provide a much-needed
more we know about a person in custody, the safer and focus.
more secure that person will be.l
The classification process should be the jail's central Information Clearinghouse
point of information gathering, whether that informa- To achieve the goals of both initial and ongoing classifi-
tion comes from interviews; criminal history records; cation, the classification system should serve as an infor-
mental, medical, or psychiatric reports; or records of mation clearinghouse, receiving and assessing input
exhibited behavior during previous or present incarcer- regarding inmates' past criminal/institutional behavior
ation? Classification affects every aspect of the inmates' as well as current data from medical/mental health, inter-
existence and should be the primary focus of all decisions nal security, drug/alcohol rehabilitation, education, and
pertaining to security, supervision, and program custody staff.
assignments.
This chapter discusses the goals of classification as well Balancing Society's Rights, Inmates' Needs
as its benefits for both the jail and the inmate.
Overall, achieving the goals of classification should pro-
vide a balance between society's right to be protected
GOALS OF CLASSIFICATION from criminal behavior with the inmates' needs not to
The primary goals of classification are the proper housing deteriorate in jail and to be placed in the least restrictive
and custody assignment of inmates to enSUTe inmate, staff, and housing compatible with his or her risks; Thus, a properly
public safety and to facilitate appropriate tTeatment and pro- classified inmate who is suicidal will not be placed in a
gmm paTticipation. Additional goals include compliance remote isolation cell; an epileptic will not be placed in
with state and ACA standards and providing equitable an upper bunk; and a high-risk person with detainers or
classification for all inmates that places them in the least a record of previous escapes will not be assigned as a
restrictive level possible. trusty:' The risks and needs of each newly admitted inmate
An .Ongoing Process. To ensure that proper housing will be assessed and addressed individually_
and custody is maintained during the inmates' entire
period of incarceration, their classification status must DETERMINING, DOCUMENTING
be updated on a scheduled or an as·needed basis. Con· GOALS
sistent updating is particularly beneficial to such persons In planning for an appropriate classification system, it
as the alcoholic who behaves violently upon intake is essential that a facility determine and clearly define
(requiring a high degree of security and custody during its objectives and expectations, then structure the system
the initial period of incarceration) but who, after a few to meet these objectives within the framework ofappHca-
days, may be calmer and more predictable, requiring a ble ACA standards and state and federal laws. One facil-
change in the classification status. ity, for example, determined and documented that it
expected its classification system to:
Identifying Non-Dangerous Offenders • Safely house inmates; provide for the safety of staff and
In some facilities, a primary goal of initial classification the safety and security of the public;
is to evaluate a person's suitability for release from pretrial • Make timely and appropriate module assignments;
detention. This "skimming off' of non·dangerous, • Minimize violence and disruption throughout the cor-
pretrial detainees for work release and other community- rectional facility;
9
.,>:7~~~-f<?,~fV\'I;~.,r;;<?h?JJ"~~-%t~~~f,:'~"I\":f~',~":O;l •.&j4'.1'f')!"t"';!n,s·j·,.".·1, h¥b'c, "'" .'''''j~d,·,".w.
• Develop an objective classification instrument with • Social structures that minimize the likelihood of
subjective override; inmates acting out disruptively or aggressively;
• Develop a system that fosters consistency ofjudgment; • Social structures of inmates similar in demeanor
• Develop a classification instrument that is simple to (aggressiveness or vulnerability), prior criminal justice
understand; experience, and age;
• Receive management and county counsel's support; • Racial integration and relative balance;
• Make the system open to correctional staff, easily • Easy inmate access to counseling services and pro-
understood, and verifiable wherever possible; grams most relevant to needs and interests;
• Build in feedback and evaluation mechanisms; • Positive peer support and constructive conduct.**
• Build a system that will be compatible with the facil-
Such positive benefits as the above aid management
ity's overall corrections population management sys-
in controlling the jail climate, minimizing disturbances,
tem (the ongoing, computerized breakdown of all
and ensuring consistency in administrative decisions and
inmate movement);
good communication among staff and inmates.
• Measure and document inmate needs;
• Use time as a reward for inmates;
Additional Benefits for the Jail
• Assess and consider personality types in making
module assignments.* In addition to providing better population management
and reducing litigation, classification can facilitate:
• Early recognition and proper assignment of mentally
BENEFITS OF INMATE ill and problem inmates;
CLASSIFICATION SYSTEMS • Improved capability for separate maintenance of
co·defendants;
Management, the community, and the inmate all become
• More effective, efficient use of jail resources;
beneficiaries of an active, well-supervised classification
• Obtaining of valuable data for facility planning and
system, as such a system provides opportunities for bet-
budgeting;
ter population management, which, in turn, results in
• Monitoring and evaluating program goals;
improved security and inmate control.
• Assisting with personnel assignments to facilitate pro-
grams and security needs;
Identifies Community Reintegration, Maximum • Providing information on inmate behavior that can
Security Candidates impact on the development of future policies and
With today's jail populations spiraling upward nation- procedures;
wide, the most beneficial classification system is that • The development of a consistent, equitable decision-
which can identify the non-violent, one-time offenders making process, contributing to the speed and
who may quickly become candidates for community work accuracy with which all inmate-related actions may be
release programs as well as the relatively few who actu- taken;
ally need costly, tight, maximum security. By identifying • Better staff and inmate morale;
and promoting prompt community reintegration for • Establishment of the appropriate level of probationl
those persons for whom such action is appropriate, more parole.5
space as well as more surveillance is made available for
problem inmates who require increased supervision. Benefits for the Inmate
Where crowding is thus alleviated, there are fewer assaults, Generally, a proper classification system minimizes the
escapes, suicides, and other inmate disturbances, which, negative effects of incarceration on the inmate and also
in turn, reduce costs for legal and court actions and med- promotes his or her physical, social, and emotional
ical expenses. well-being.
Specifically, such a system ensures: 1) Adequate pro-
Fosters Compatible Living Units tection against physical assaults, indignities, and crue/-
The proper classifying and housing of inmates facilitates ties; 2) separation from potentially violent inmates; 3)
the forming of: opportunities for appealing the initial classification status;
4) reasonable protection against exposure to communicable
• Social structures of inmates homogenous in custody diseases; 5) physical and mental health care; and 6) and
level;
equitable opportunities for participation injaiJ programs.
*Multnomah County Sheriffs Office, Portland, OR. **Lucas County Correction Center, Toledo, OH.
10
Goals and Benefits of Proper Jail Classification
II
CHAPTER III
Since jails differ widely in size, scope, and inmate popu- cannot function in the general population without
lations, a classification system cannot be established with assistance or professional treatment and medication.
the concept that "one &ize fits all:' The jurisdiction's (See Chapters IV and V for further discussion on spe-
specific mission, policies, and needs, along with state sta- cial management inmates.)
tutes, local politics, available resources, staffing, and struc-
tural design create a unique pattern that impacts on the
type of classification system that is appropriate. Steps to Effective Classification
This chapter presents general guidelines for structur-
The administrator attempting to establish a valid classifi-
ing a valid inmate classification system that includes
cation system that provides for these custody levels and
provisions for separating the inmates into general pop-
special management groups should consider the follow-
ulation as well as special management categories and for
ing guidelines:
assigning appropriate programs, services, and work. It dis-
cusses both objective and subjective approaches to clas- • A policy statement should be written that clearly
sification and emphasizes the importance of personnel defines the facility's classification goals and objectives;
training_ In addition, it details the expanding use of the • Detailed policies and procedures should be written
computer in jail classification. that govern the classification process;
• The classification process should provide for the col-
lection of complete, verified, standardized data;
GUIDELINES FOR STRUCTURING A • Measurement and testing instruments used for
decision-making must be valid, reliable, and objective;
JAIL CLASSIFICATION SYSTEM
o Explicit policy statements should be written to struc-
ACA standards require the jail to provide for inmate clas- ture and check the discretionary decision-making
sification to include level of custody required, housing powers of the classification staff;
assignment, and participation in correctional programs.l • Provisions should be made for screening and further
To ensure effective, appropriate classification, each newly evaluating prisoners who are management problems
admitted inmate should be evaluated in terms of per- or have special needs;
sonal, criminal, medical, and social history. • Offenders should be matched with program!: that are
consistent with custody classification;
Custody Levels • Prisoners should be classified at the least restrictive
custody level;
The facility's structural design, staffing, services, and pro-
• Prisoners should be involved in the classification
grams should provide for separating inmates into mini-
process;
mum, medium, and maximum custody (larger facilities
o Systematic, periodic reclassification hearings should
may require the addition of close and community cus-
be held;
tody levels) as well as into at least three major categories
.. The classification process must be efficient and
of special inmates, each with different needs:
economic;
• The vulnerable-the inmate who requires some form ., There must be provisions for continuously evaluating
of protection to survive in the jail setting; and improving the classification process;
II The troublemaker-the inmate who must have special • Classification procedures must be consistent with con-
restraints to prevent harm to other inmates, staff, or stitutional requisites;
jail security; • There must be an opportunity to gain input from
~ The mentally abnormal-the inmate who, because of administration and line staff when developing a clas-
emotional or mental problems, including retardation, sification system.2
13
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~·""A.,!!,fu·~d,--!,!!!!:.;iftl'll!<."'L"'P..,)'-!'I!!)?S!I!!,.R'!I!lil1fY
14
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~l'"~~:,."~JA!!'l;,}I!!'!A,l!I!j,)I!I!S4!!1!!JMI!!I,~A!I'!![§!~C&"
and medical histories is considered for both the initial defined criteria established for risk-screening decisions.
and ongoing classification process.* These criteria are then weighted and scaled within a well-
Committee or team participation by a representative structured instrument, which is then used to assess an
of the correctional staff is particularly valuable for provid- inmate's level of custody risk or program needs. A brief
ing greater understanding of and confidence in the clas· description of each of these approaches follows.
sification system on the part of the correctional officers.
Since these staff members manage the individual inmates Subjective Decision Making
on a day·to·day basis, they are vital links in the overall clas· Subjective classification systems require independent
sification process. assessments on the part of the classification officer(s) or
the person(s) making the classification decisions; there-
Importance of Correciional Staff Support. Ongoing, two· fore, to be effective, these systems require considerable
way communication bdween classification staff and cor· staff expertise. While officers using subjective criteria are
rectional officers ensures that the latter understand and expected to make the most valid, appropriate decisions,
support the facility's classification policies. Such under- they are not always experienced or knowledgeable
standing will promote confidence in the system, ensur- enough to do so. Training in the areas previously dis-
ing that correctional staff andlor supervisors do not cussed is critical to aid these officers in more consistently,
arbitrarily void the placement decisions made by the clas- accurately determining newly admitted inmates' risks and
sification staff-a move that has potentially disastrous needs and recommending or assigning resources within
results. the framework of the agency's correctional philosophy,
The following example illustrates the crucial impact the jail's physical design, and the inmate's characteristics~
lack of communication between classification and cor-
rectional officers can have on the overall jail operation: Objective Decision Making
A correctional supervisor (who was not trained to Objective classification systems purposely seek to limit
understand the purpose or value of classification) discretionary decision making and to ensure uniformity
was asked for a housing change by a particularly in agency operations while minimizing the potential for
cooperative inmate. Since the inmate had never unfavorable litigation. Since objective classification uses
given the staffa problem, the supervisor decided to standardized forms, such as decision trees, checklists, or
comply with the request. The supervisor did not scoring sheets, it is often said to place greater emphasis
realize until too late that the move had placed the on fairness, consistency, and openness in determining
inmate within reach of a second inmate, who was inmates' risks and needs than does the purely subjective
scheduled to testify against the first. Within hours approach. Custody and programming recommendations
of the move, the second inmate was found, uncon- made in objective classification are based upon the results
scious and bleeding-the victim of a vicious attack of actual scoring; therefore, the role of staff is confined
by the seemingly calm, mild-mannered inmate. to agreeing or disagreeing with these recommenda-
tions.5 ** It is important to stress, however, that an objec-
Unfortunately, in some facilities, it is only after inci-
tive classification system should not be viewed as a
dents such as this one that the real value of the classifica-
substitute for competent, thoroughly trained staff.
tion system is realized. A properly functioning
Supporters of objective classification contend that it:
classification system is truly the clearinghouse of infor-
mation for the entire institution; and as such, it should • Provides highly visible decision making rules, ensur-
impact on every inmate-related decision. ing that all staff are aware of them;
• Promotes an accurate, consistent, information-
CLASSIFICATION OPTIONS FOR gathering process;
'IODAY'S ADMINISTRA'IORS • Enforces consistency in decision-making by using
equitably applied, standardized criteria;
In the past, most jail classification systems have been
• Provides easier evaluation/monitoring, as standardized
purely subjective, relying completely on the judgment of
criteria and procedures facilitate review and
the individual(s) making the classification decisions.
assessment;
Recent trends appear to be moving toward objective, or
• Controls discretion, permitting overrides of the clas·
more formal methods of classifying, with specific, well-
sification process only within explicitly stated
parameters.6
*Appendix B contains a summary ora classification system in which
a committee approves all housing and custody recommendations by
a classification officer. **Appendix A contains a complete objective system model.
16
'J~'~~'~T""'~~~~~"'J"!~~~h'(l".~~m:,C',<.<\'J,.,q",..."
:','n.,,", )l!IIb)".Q)!I!IftI!!!r41!!!y!.!!!SS411i,,.J
... k!\!l'P.!!!II
16
Establishing the Jail Classification System
... English as a second language; library or law library at the same time. Such persons must
• Family support groups (including parenting skills and be placed in like activities at differing times; therefore,
nutrition); the classification staff should screen lists of inmates desir-
• Mental health support groups; ing to participate prior to each scheduled group activity.
o AlcohollNarcotics Anonymous; Figure 3.1 is a form used by inmates in one facility to
• Community awareness programs (for education and request participation in a program or activity; the form
referral to outside support agencies); is reviewed by classification personnel to determine the
• Correspondence classes through local community inmates' eligibility. Copies of this request, along with
colleges. responses (including reasons for any refusal) are main-
tained in classification files.
Pre-Release Preparation. In addition to the above, pro·
grams to assist inmates with their transitions to the com· Program Participation in Segregation. Generally,
munity should be available for those scheduled for release inmates on disciplinary :letention are restricted from
within 30 days. Resource information contained in the most program participation, while those on administra-
properly designed pre· release program is beneficial to tive segregation or protective custody are not necessar-
all inmates, particularly those who require special post- ily restricted if they are not a threat to themselves, others,
confinement treatment and support; i.e., the handi- or the facility'S security. Inmates on all forms of segrega-
capped or indigent or those with substance abuse or med- tion (including medical) should have access to library
ical, dental, or emotional problems. The program plan reading and legal materials. (See Chapters V and VI for
should address such vital issues as finding housing and further discussion on the rights of inmates in
employment and learning to prepare job applications segregation.)
and resumes. In one facility, program participants are
required to develop a specific plan of activities for their CitizenlVolunteer Program Involvement
first two weeks following release; a staff member then ACA standards require that written policy and procedure
reviews the plan. permit citizen involvement in inmate programs, with
discretion afforded the administrator for curtailing, post-
Religious Service Participation. Inmates of all religious poning, or discontinuing the services of a volunteer
affiliations should be free to follow the practices of their organization or person. Volunteers can be used to help
faiths as long as in so doing they do not infringe upon coordinate and staff the facility's educational, library,
the rights of others, advocate disobedience or disruption, recreation, religious, and other programs; these persons
or otherwise pose a security threat in the jail. Inmates should be recruited from all cultural and socioeconomic
who have indicated a desire to attend religious services segments of the community.
but who are not allowed to participate in group activi- A staff member should direct the volunteer services
ties for any reason should be referred for visits from the program; lines of authority and accountability should be
chaplain or from a member of the inmate's religious communicated to staff and volunteers: 3
organization. For inmates who are on disciplinary deten-
tion, this referral should be documented on a special Coeducational Programs
housing observation log located near their cells (see Where coeducational programs and activities are offered,
Figure 5.7, page 57). they should be closely supervised and suitably structured.
Participants should be carefully screened and increased
Non·Participants'Rights security measures taken during the programs and all
It is important to note that inmates should have the movement to and from them.
option to refuse to participate in facility programs (except
work assignments and programs required by statute) and Inmate Work Programs
should not be penalized for doing SO!2 Inmates may also
ACA standards require that each facility establish a writ-
be removed from programs for rule infractions.
ten work assignment plan that provides for inmate
employment, subject to the opportunities available and
Screening Inmates for Programs the maintenance offacility security. Where resources are
The classification staff is responsible for screening available, inmates should be assigned to work that is
inmates for programs, and care must be taken to prevent compatible with their interests. Pretrial and unsentenced
known adversaries or "keep separates" from participat- detainees are not required to work, except for personal
ing together in group activities or using the inmate housekeeping.14
17
.~,.'tr:;>~!{F'/"""'~~"W!""~'';''~·Jo~". i_.M#i N@,SAe.;;..¥...,.f·$.LRi};:J.&S.3d.·n¥9i.¥. . $!I¥l}tt¥"fliJm·lM .. r •...,*', :;:-,:;;.pv.~·.;'~'~'·'·· .. -,~.",q:::-.-:;:.~
~,f'F:!""·· . .t.".v.&k¥!tA·,99kh4#·
Figure 3.1
Use one form for each request. Give completed form to your unit officer.
Earning "Good Time" and housing (see Appendix C, Figure C.g), resulting in
Where statute permits, the inmate program and work unbiased, consistent decisions.
plan should provide for earning "good time;' or credits
toward a reduction in sentence, thus reinforcing positive Manual Overrides. In computerized classification,
beh()vior.15 For example, in one facility, inmates who are manual overrides must be implemented for certain
involved in drug, alcohol, educational, or mental health categories of inmates, such as "keep separates" or inmates
programs on a voluntary basis may be granted five days who need special medical attention or housing; i.e., the
credit per month toward sentence reduction based upon epileptic who requires a lower bunk. Computers
theil: attendance, participation, and attitude. Inmates who programmed to determine housing/custody level do not
work on a voluntary basis may be granted up to five days necessarily assign the exact living space, and special con-
credit toward sentence reduction for each 30 days of work. ditions may require the correctional officer's interven-
Maintaining an "activity summary;' such as in Figure tion to ensure the inmate receives the most appropriate
3.2, provides a concise method of monitoring each cell and bunk for his or her safety as well as for delivery
inmate's program participation for assessing eligibility of needed services.
for "good time" as well as for determining overall facility In addition, subjective appraisals and manual overrides
adjustment. Maintaining as much inmate information as may be needed for certain inmates whose behavior war-
possible through the use of a computer is also beneficial rants further observation. For example, a newly admit-
for monitoring each inmate's program participation and ted inmate may be emotionally distraught and behaving
for facilitating overall jail management, as explained in erratically over family problems; yet, he may not normally
the following discussion. be a behavior problem or necessarily require special cus-
tody or housing.
THE COMPUTER'S IMPACT ON
CLASSIFICATION Information Storage and Recall
The computer is proving to be a valuable tool for use in The computer can maintain all initial screening, risk
overall management of the constantly changingjail popu- assessment, and information regarding each inmate's clas-
lation and is gaining wide use, from booking through sification status, such as:
release. The two basic types of computerized jail manage-
• Classification category;
ment information systems in operation are inmate track-
• Security and supervision requirements;
ing systems and management and statistical reporting
• Special needs;
systems. Inmate tracking systems cover inmate booking
e Specific housing assignment;
and release, cell assignment, movement, and manage-
• Date of and person responsible for initial screening
ment. Management and statistical reporting systems regu-
and classification.
larly generate reports and provide detailed information
on the jail population. In addition to the above, information regarding cer-
In some fucilities, classification is but one link in the total tain groups, such as juveniles; members of the same or
computerized management information system. For opposing gang; persons on medical/religious diets; and
example, one micro-computer-based system designed for persons with specific behavior alerts, including escape
small- and medium-sized jails automatically assigns book- risks, can be maintained and immediately accessed. The
ing numbers to each inmate at the beginning of the book- computer can, upon demand, generate instant feedback
ing process, searches the data base for previous booking on the entire jail population.
information, brings any existing old data forward for the In one facility, entering a single qualifier will produce
operator to update, and then automatically prints all infor- a list of all inmates in custody with a particular charac-
mation entered by the operator during booking. (See "Addi- teristic. For example, entering the behavior alert "P" will
tional Sources;' "Computerized Jail Management Systems:') result in a list of all inmates in custody labeled as having
Administrators attempting to implement efficient clas- psychiatric problems. In another facility, a computer-
sification systems today should investigate the computer's generated list of inmates scheduled for release within 30
potential benefits for classification, as discussed below. days provides the basis for selection of pre-release pro-
gram participants.
19
.f"!""';:~~T"Y~~)'1'A_'c .. r:'~,.I;.4t,;;.t,,\i'l,f!;,'~~L!!i'.C","ifICi'%AN .. 4,~,,$)Afi,JN.,!J-;;:;.G"'·f'!'~> ..1{,*,I,~;~1}'2,i?Jv~i'?l;~·'~:""'·'-;;-··
~'""1.V;s:m,.J; ,,,.mbPAiR,,**j
Figure 3.2
PRINCE GEORGE'S COUNTY DEPARI'MENT OF CORRECTIONS
ACTIVITY SUMMARY
Group:
Group: _________________
Individual Counseling
Comments: _______________
20
Establishing the Jail Classification System
ActivIty Summary
Page 2
Inmate Worker Program Performance
Satisfactory Unsatisfactory
Assignments: _ _ _ _ _ _ _ _ _ _ _ __
Commenffi: ______________________________________________________
Director
21
",<."t~~",~~~~",~:;;"'!\(.""bl, •. 'l\t}!~,t(i*-!'-.,Lr'(,),"'-Qf",,"'!i"',...._., .. ,,(;.;n_:~, , ..,~,H.'''.,..-,,,.;:;'''','.>~"'''''''~,,.,=~=
be programmed to play an effective role in ensuring seem to be toward more objective methods of classifica-
inmate accountability by maintaining complete informa- tion, with specific, well-defined criteria established for
tion on each inmate's activities and tracking all inmate risk-screening decisions.
movement within the facility. A computerized special Inmate programs, services, and work should be offered
housing log can generate information on an ongoing for both male and female participation. Inmates must be
basis, providing counts, locations, and special indicators. screened by the classification staff prior to program or
The computer's ability to instantly recall inmate infor- work assignment to prevent contact between "keep
mation and location is critical in determining housing separates" and to prevent participation by persons on dis-
and program assignments for such "keep separates" as ciplinary status or those with infectious or contagious dis-
co-defendants, enemies, and relatives. eases that may be spread.
Computers are gaining wide use in classification,
Statistical Analyses enhancing consistency in housing decisions and provid-
Computer-generated statistical analyses can provide valu- ing statistical analyses. In addition, their use for infor-
able information on the inmate population for planning mation storage and recall makes them invaluable for
programs and overall jail operations, including determin- determining housing and program assignments for "keep
ing and directing treatment needs and services. For separates;' such as homosexuals and gang members.
example, Figure 3.3 is one facility'S monthly report of all
housing assignments based on attitude, behavior alerts, NarES
prior institutional problems, and a score assigned to each
1. Standards for Adult Local Detention Facilities, 2nd ed. College Park, MD:
inmate's charge. American Correctional Association in cooperation with the Commis-
sion on Accreditation for Corrections, 1981.
Rationale Feedback 2. Larry Solomon. "Developing an Empirically Based Model for Clas-
sification Decision Making?' Prison Law Monitor, Vol. 2, 1980.
Computerized classification allows instant feedback infor-
3. John Finnerty. "Structuring an Inmate Classification System." The
mation to all staff regardi ng the reasons for specific hous- National Sheriff, February-March 1986.
ing decisions. In addition, the computer can produce a 4. Carl B. Clements. "The Future of Offender Classification: Some
written copy of the initial screening, risk assessment, and Cautions and Prospects?' CriminalJustice and Behavior, March 1981.
classification for the inmate and quickly generate com- 5. Karen Whitlow, Robert Buchanan,James Austin, Daniel McCarthy.
Jail Classification: it Review of the Literature. San Francisco, CA: The
plete information to be sent with the inmate upon trans- National Council on Crime and Delinquency, 1987.
fer or commitment to another facility. 6. Library Information Specialists, lnc.]ail Classification. Corrections
Information Series. Boulder, CO: National Institute of Corrections
SUMMARY Information Center, 1983.
7. Whitlow, et. aI., op. cit.
Jail classification systems cannot be established with the 8. Marvin Bohnstedt, Saul Geiser. Classification Instr1l1nents fol' Crimi·
"one size fits all" concept. Rather, a wide range of varia- nalJusticeDecisions. Washington, DC: National InstitulC of Corrections
bles impacts upon the type of system established by the Information Center, 1983.
jail today. Carl B. Clements, op. cit.
Robert Buchanan, Karen Whitlow,James Austin. "National Evalu-
Personnel involved in classifying inmates need good ation of Objective Prison Classification Systems: The Current State
verbal and written skills, experience with the institution, of the Art?' Crime and Delinquency, Vol. 32, 1986.
and the respect of other sraffmembers. In addition, they 9. Whitlow et ai, op. cit.
must be well-trained in interviewing skills and listening 10. Standards for Adult Local Detention Facilities, 2nd ed. College Park,
techniques, as well as in identifying special needs and MD: American Correctional Association in cooperation with the Com·
mission on Accreditation for Corrections, 1981.
abnormal behavior, including suicidal tendencies. Their 11. Ibid.
responsibilities include accurately assessing inmate needs 12. Ibid.
and risks; assigning custody and housing and effecting 13. Ibid.
status changes, as necessary; and assigning appropriate 14. Ibid.
work and programs. 15. Ibid.
Some facilities utilize a subjective approach to classifi-
cation; others follow an objective plan. Recent trends
22
;il
~
I
;~
Figure 3.3
"
i,
SX8403 MULTNOMAH COUNTY CORRECTIONS POPULATION MANAGeMENT SYSTEM a
1l
~
RUN OATE: MONTHLY CLASSIFICATION REPORT MONTH OF
~
TOTAL CLASSIFIED THIS MONTH: 918
H 0 U SIN G A S S 1 G N Jot E N T S
ATTITUDE
"i
PSYC MODULE: o 0% MENTAL CLOSE: 18 1% 1: 1 0%
2: 8H 92% ~
~
CLOSE: 160 16% GENERAL! 706 72% 3: 142 14%
4: .- <>" ,
MEDICAL UNIT: o 0% VULNERABLE: 82 8% ~~
PRIOR INST PROBLEMS: U 4Yo ,j
A:
E
15
7
f% ASSAULTIVE RISK
0% ESCAPE RISK
M
C
S3
128
5% MILO MENTAL
13" CHRG.OF VIOLENCE
]
"
b
k
97
91
9% REP_ DIsRUPTIVE
9~KEEP SE~AQATED
n
F.:
369
109
37"
11%
RECIDIVIST
~IR5T OFFEND£R
~
ro H 12 ,,, HOMOSEXUAL 11: 1 0% JUVENILE
VI
t 48 .% EASILY INTIMIDATED U: 180 18% UNSTABLE
N 17 ,% INFORMANT 0: 766 78% NO PROBLEMS
S 16 1% SUICIDE RISK T: 61 6% TRUSTEE
P '9 1% PSYCHIATRIC
NEEDS ENTRIES:
A 222 22% ALCOHOL ..J: 692 70% ..JOB
P 13 1% PSYCHIATRiC M: 238 24" MEDICAL
R
o ~59
1 0"RETAROED
361. DRUG
H;
E:
234
807
23% HOUSING
Bl% EOUCATION
• NOT£: All ~£RC~NfAGES ARE OF
TOTAL CLASSIF1ED THIS MONTH
L 5 0% LANGUAGE
,:
2:
7 0% 11: 1 or. 21:
22: U1
6 0%
14~
31: 0 or.
13 1" 12: 4 O~ 32: 0 0%
3: 0 0% 13: 0 0% 23: 12 1% 33: 0 0'1.
4: 0 01- 14 : 0 0% 24: 26 2% 34: 0 0%
5: O~ 25;
6:
7:
0
0
1
0%
o~
OY-
15:
16:
17 :
1
29
12
2%
1%
2'5:
27:
26"
:11'
0%
2Y-
3Y-
35: 0 oY-
8; 25 21. 18 : 8 O~ 28: 56 5~
9: 7 01- 19: 5 O~ 29: ~!4 2%
to: 2 01- '20: S oy. 30: it:) 7~
'i •.'~~fi"';_'i*.i", . .. .. ,., , .• -:;-=;-:-:-;--;;;--::-:-.-.- -•..
I.!lj"',;: ..l..',"." _ ;;;j!jJ."""< .• c')vP)\""}'l"!~~,~~~,,,,.~,,~'-~·ly,.,, ,101"·""'"".",..,-,,~~~ - ; : : - - - c --------
~,"'\'~.\"l!{
,),I"!!l!A!!!,!!";;1'!!!)Q!I!'l;;!I!Il.$,""Jte~«'l!!lti
CHAPTER IV
Jails must establish thorough, precise admissions and clas- • Persons brought to the jail for probation or parole vio·
sification procedures, both to protect themselves and to lations must be accompanied by an order authorizing
ensure the proper regard for legal requirements and the confinement by the court and signed by the parole
rights of the individual. The booking or admissions board or parole officer;
officer performs critical functions during this process, • Persons sentenced to jail are legally confined by a com-
including; 1) screening out those seriously ill or injured mitment order issued by the court. Some jurisdictions
persons who should receive medical attention before require all commitment orders to be signed by a judge;
admission;* 2) knowing the appropriate state laws and others allow the signature or initial of the clerk. If a
verifying the proper documents for legal commitment; person is committed in error, the commitment order signed
3) observing new detainees for violent, aggressive, or sui- by the proper authority is the admissions officer's only
cidal tendencies; and 4) in smaller facilities, classifying protection.1
the new inmate.
This chapter discusses the proper intake and classifi- In addition to the above, the admissions officer must
cation procedures-key components of the confinement know the jurisdiction's laws related to accepting the sick
process-and presents criteria for assessment anrt custodyl or injured; and where such persons must be accepted
housing assignments. before receiving treatment, the officer must be trained
to recognize the need for medical attention and obtain
it promptly. Once an inmate is accepted into the jail, he or she
must, by law, receive adequate medical and health care.
ADMISSION AND BOOKING
It is important to note that, in jails lacking a 24·hour,
Admission professional medical staff, the American Medical Asso-
Admission to jail takes place when jail personnel accept ciation recommends that the following inmates not be
custody of the arrested or sentenced person. Since the accepted into the jail until they have been taken by the
admissions officer is responsible for legally admitting all arresting officer for medical evaluation andlor treatment:
persons brought to the jail, he or she must be thoroughly
familiar with proper screening procedures, confinement • Those who are unconscious;
orders, and court commitment papers to be able to deter- • Those who are having or recently had convulsions;
mine their validity. While admissions procedures vary • Those with significant external or apparent internal
widely between jails, the ACA has established standards bleeding; fractures; or head, neck, or spinal injuries;
rela[ed to admission, orientation, and personal property • Those who are unable to walk (except where intoxica·
control; in addition, the following guidelines may gener· tion is the obvious cause);
ally be applied; • Those with signs of alcohol or drug withdrawal;
• Those who are in labor or with serious pregnancy-
• The confinement order should contain a legal charge related problems;
(the particular felony or misdemeanor); • Those claiming to be on medication but not having
• The arresting officer should bring the accused person it in their possession?
to jail; however, if this is not possible, the officer who
accompanies the accused must show positive identifi- When the jail by policy or law must accept inmates wi th
cation and must also have a custody report that origi· any of the above problems, medical care must be obtained
nated with and is signed by the arresting officer; as soon as possible, even if it means transporting the
inmates to a hospital emergency room. Failure to obtain
medical treatment has resulted in numerous adverse legal
*Jurisdictionallaws vary on the pmcech.4res for accepting injured or actions. Upon admission of such persons, the jail assumes
ill persons into the jail. responsibility for:
26
'~"""f:':"T~T~.To~-''''.'7_?l'iW:ili#)sqj .,j~V:::!k·<,,,"o;l·!;W~:r"~:""'l'f!"!1";"~.l."<-=P.l-!''J7!"1',''~ ,~,,·,-=<'i·'c.::~,-·~;-r---- - - - - - -
''!''-'It'~''''<
~,§0'i!
..,,,"I!!.,~II!I!Uqll!!.
,~.IJ'!,III!I.JI!!!P.,hBlII';;:'
• The cost of all medical care;* In checking for outstanding warrants, entering the
• All necessary hospital security (resulting in a poten- inmate's name, sex, race, and a numeric identifier** will
tial drain on jail staff); cause an automatic search of the Canadian Warrant, Miss-
.. Providing necessary special attention to the iII or ing Persons, U.S. Secret Service Protective, and Wanted
injured person in jail; Persons files. Responses to the inquiring agency are
• Maintaining close watch to prevent sick or injured obtained within seconds.
inmates from potential suicide; Each new inmate's criminal history should be checked
• Facing threats of costly litigation resulting frem alleged through NCIC's Interstate Identification Index (III), a
inadequate medical care (particularly if an inmate dies criminal records index of approximately twelve million
in jail as a result of illness or injury); people. These records represent all people born in 1956
or later who have an FBI record; persons born prior to
Booking 1956 whose first arrest fingerprint card was submitted
Mter being admitted to the jail, new arrivals are searched to the FBI in 1974 or later; and certain fugitives and repeat
and interviewed to ·obtain identifying data, including offenders whose older records were converted to the auto-
name, age, address, social security number, marital sta- mated systems. (There are no records fer individuals who
tus, and an emergency contact. To ensure a fair trial, have been arrested but whose fingerprints were not sent
detailed questions about the inmate's current charge to the FBI.)
should be avoided. New inmates should be allowed to Criminal history information available through III is
com plete unmonitored local or collect long-distance tel- vital to the intake and classification officer to assist with
ephone calls to locate and communicate with attorneys risk assessment. In addition, this information is valuable
and families. Where new detainees are unable to tele- for bond setting, charging determination, and sentenc-
phone for assistance on their own behalf (because of ing. The routine use of the III file enables agencies to
intoxication, drugs, etc.), a jail staff member should learn of a person's previous arrests that would otherwise
attempt to reach the appropriate parties for them. If the not be known_ The following example illustrates the value
inmate can be identified, a call to his or her family is of this resource:
appropriate; if identity is unknown, a call to the local pub- A 30-year-old resident of a midwestern city was
lic defender is warranted.4 arrested on a Friday night for the manufacture of
New arrivals are fingerprinted, photographed, and cocaine. More than $150,000 worth of drugs was
relieved of personal property, which is inventoried in seized. The suspect's appearance was that of the aver-
their presence. They are then given a receipt, and their age middle-class citizen; he had no prior arrest
property is properly labeled and stored. Written policy record within the state and claimed no knowledge
and procedures should specify the personal property of the alleged offense. An III inquiry produced an
inmates can retain in their possession. New inmates may Index record indicating that the FBI Identification
also be administered a breathalyzer test. Division maintains information submitted by
Following booking, inmates are placed in holding areas, INTERPOL. The record showed the subject was sen-
separated from the general inmate jJojJUlation, pending tenced to four years in Rome, Italy, for possession
pretrial release or arraignment and classification. of cocaine. The subject expressed surprise that infor-
mation of the prior foreign offense could be so readily
Warrant and Criminal History Checks obtained, especially on a Saturday morning, when
It is important that warrant and criminal history checks many offices are closed~
be made on all new inmates through the FBI's National It is important to note that if the III does not provide
Crime Information Center (NCIC). NCIC is an index of a criminal history record, the FBI Identification division
computerized criminal justice information available should be checked, as it maintains millions of ad-
through connecting terminals in sheriffs' offices, police ditional criminal records accessible through fingerprint
departments, state police facilities, federal law enforce- su bmissions.
ment, and other criminal justice agencies throughout the To make an III inquiry, the detainee's FBI number (if
United States, Canada, Puerto Rico, and the U.S. Virgin known from a previous fingerprint identification) should
Islands. (Smaller agencies without NCIC terminals may be entered, as it eliminates receiving multiple record
access NCIC information through the nearest law
enforcement agency housing a terminal.) **Numeric identiticrs include but are not limited to: date of birth,
alicn registration, number. FBI idcnlilication number, or military.
driver's license, Social Sccurity, Selective Service, passport, or Cana·
*Statc laws vary with rcgard to medical cost rcsponsibilities. dian social insurance number.
26
:r;~~~!m'>.l';lf:'l~~~~r~,i'tN!I'!.r;ei·" ~<··;r,!l>~"",~f,!",,,~'''''·n·''''.,,.'''''''''''',,",,,,,""'.,,,"",,,,,,",,,,,",,-,--,..",--~-,-..,--~--
1~~iNi1>'t k~~~43JtW£A;9M,~;'
responses. If the FBI number is unknown, the index in·depth screening by medical personnel to facilitate appro·
records can be searched for a matching record by using priate management. An affirmative answer to anyone or
the name, sex, race, and date of birth or Social Security a combination of the questions does not necessarily indio
number. This type of inquiry may result in more than cate the inmate is AIDS·infected since AIDS symptoms are
one matching record for persons with similar names and similar to the symptoms of other diseases;\'* If answers to
birth dates:~ two or more AIDS·related questions are yes, the officer
Criminal records available through III are updated con· should follow departmental policies and procedures with
tinuously by the states that furnish them, as well as by the regard to notifying medical personnel and making hous·
FBI. A new record should be requested each time a per· ing assigl1Inents.6
son's background information is needed.
While some agencies continue to rely solely on FBI Drug/Alcolwl Addiction. During initial medical screening,
"rap" sheets for criminal history information, III records special alelts should be placed immediately on inmates who
from participating states will provide as much or more are addicted to dmgs or alcohol. Such persons often require
information, often within 60 seconds of the request, than close attention and medical treatment to prevent life·
that available on rap sheets. threatening seizures during withdrawal.
In addition to the NCIC, state police and local police/
sh~riffrecords should be checked as soon as possible for In-Depth Physical Examinations. In addition to initial
information on the newly admitted inmate. medical screening of each inmate, an actual physical exami·
nation should be conducted as soon after admission as pos·
Medkal Screening sible. Inmates found to have sexually transmitted diseases
or bacterial or viral illnesses that may be spread through·
Some larger jails have medical staff on duty at all times,
out the jail should be placed in medical isolation and
enabling new inmates to be screened thoroughly shortly
receive appropriate treatment.
after booking to identify problems that require imme·
An inmate who is found to have symptoms of AIDS
diate attention, such as infectious/contagious diseases or
should be tested for the disease, following established med-
drug/alcohol withdrawal. In many smaller facilities,
ical procedures, to ensure receipt of appropriate medical
however, all initial screening, including medical, is con·
treatment and housing in accordance with jurisdictional
ducted by the intake officer. During this process, any iden·
tifying marks, tattoos, or unusual characteristics on the policy.
inmate are noted.
PRETRIAL RELEASE
Infectious/Contagious Disease Control. All inmates are New detainees are often interviewed following booking by
at high risk for many infectious/contagious diseases; personnel {i'om pretrial services or other appropriate agen-
therefore, preliminary health screening is essential to cies. The purpose of this interview is to determine whether
help prevent medical emergencies in jail and to aid in arrestees are both harmless and safe enough risks to be
the control of such diseases. Qualified medical person· released on their sworn and written promise to return to
nel should handle in·depth medical screening for all dis· court without posting bail bond.
eases, including acquired immune deficiency syndrome
(AIDS)-a major concern in jails today. However, in some
Pretrial Release Risk Assessment
cases, all preliminary screening may be done by the intake
officer; and since effective management of AIDS is now In determining a detainee's eligibility for pretrial release,
a primary goal in all facilities, administrators in smaller the following factors are generally considered:
jails lacking a 24·hour, professional medical staff may wish • The person's ties and stability in the community (family,
to expand the intake officer's screening form to indude employment, length of residence);
AIDS· related questions and observations. • Level of danger to community, self;
Figure 4.1 is an expanded receiving screening form • Criminal/conviction record;
incorporating such questions and observations. The intalle • Nature of current charge;
officer should not draw conclusions with regard to an inmate's • Record of past court appearances or failure to appear;
health status. Rathel; the purpose of the expanded form • Detainers or outstanding warrants;
is to assist in identifying persons who should receive further • The person's legal status; i.e., fugitive {i'om justice.
*Positiv('! identification can be made only by cf)mparison of fingerprints. *"'For [urlhel; specific information on the management of AIDS injails,
Professional judgement must be used to associate records with individuals see AIDS: ImjJroving the Respor~fe of the Correctional System, published by
based solely on names and descriptors. the National Sheriffs' Association.
27
__:?'l7~~~~'.,J')W.*.'"'i,-"*.,.,,,\'ALA<i;, ..!.l, ..&::!.'I'\J,.,,'.'~N911 ...x:w,t.·11'rr"~m~!"rtl?~i'ji~~~'-:;·1-,C~-\'''~,-:;-:-:;:>,,~, .
!!~""':)"~"!t.~'>·""\'·Q¥!!'!l!,K!'J!!t·1_!!I'!UfAIII'!!QL!!!!!J.'p~){
Figure 4.1
DATE _______________
3. Are there visible signs of trauma or illness requiring immediate emergency or doctor's YES NO
care?
4. Is there obvious fever, swollen lymph nodes, jaundice, or other evidence ofinfection that YES NO
might spread through the jail?
OFFICER-INMATE QUESTIONNAIRE
15. Are you presently taking medication for diabetes, heatt disease, seizures, arthritis, asthma, YES NO
ub~rs. high blood pressure, or psychiatric. (If yes, circle condition(s).)
28
\'o)4"'lY>'7~~'''~"lI~'~~''''~!:1':~TIn''~'''''~:;;:''7i''~''i',-,,!j ',I<.,·~.',-"~~."",·,,,·,,- ~'-"->"'.~"·"~,;""I·"
.¥!'I!Ii4"",,],""l.1¥!!!I!.~....!I!!IJjI!\!ll.w!LIII\Iij!lJl!9AJi.;
-;;::'r7'1'!,
•
18. Have you recently been hospitalized or seen a medical or psychiatric doctor for any illness? YES NO
27. Have you had recent weight loss of more than 10 pounds without dieting?* YES NO
*Additional AIDS·related observations a~ described in "Revision of the Case Definition of Acquired Immune Deficiency Syndrome of National RepOlting'
·United States:' Morbidity and Mortality Wee/lly He/Jort 34:373·374, 1986.
**See Figure 4.3, "Suicide Prevention Screening Guidelines" and Appendix G for policies and procedures for screening and identifying suicidal or
mentally ill inmates.
29
Jail Classification and Discipline
Following interview and risk assessment, the interview- able, when necessary, not only during orientation, but also
ing agency makes recommendations to the court or other during the classification interview, during any counsel-
applicable authority regarding the detainee's potential ing following housing assignment, and whenever circum-
for release on personal recognizance. Persons not consi- stances warrant.
dered safe enough risks for this type of release may be
eligible for release in the custody of a third party or fol-
ENSURING PERSONAL SAFETY
lowing payment of a bail bond. In some jurisdictions, cer- In addition to being separated from the general inmate
tain pretrial detainees are eligible, under objective criteria population, newly admitted inmates should be protected
established by the courts, for pretrial work release pro· from other detainees or inmates who may be mentally
grams following risk assessment interviews. As discussed ill, drun1-, or violent. The administrator may be heldlia-
in Chapter II, this identifying of non-dangerous offenders ble for injury or death resulting from failure to take
for quick community reintegration pending trial is an reasonable measures to protect inmates against attacks
important step in preventing critical jail crowding in from other persons in the jail.
many facilities. Suicide Prevention
The new inmate who may be suicidal must also be pro-
ORIENTATION tected, literally from himself or herself, and this is both
Orientation should be provided for new inmates, during an important responsibility ofjail administrators and an
which they receive a handbook with information on rules increasing source ofliabiIity. This liability arises from two
of inmate conduct and sanctions for offenses; the facil- potential failures: 1) Staff failure to respond to and deal
ity's services, programs, and work opportunities; fire with an immediate situation, such as an inmate demon-
safety; visiting policy; mail procedures; use of the com- strating clearly aberrant behavior or actually attempting
missary; use of the telephone; obtaining medical/dental suicide; and 2) administration failure to train staff ade-
care; use of inmate request forms (for submitting requests quately in recognizing potential suicide symptoms and
to staff); personal hygiene; and the facility's daily routine. in suicide prevention and response.s
The book should also contain information on inmate Since suicide is the leading cause of death among
grievance procedures and the facility's search policy, and inmates in county jails and police lockups, it is impera-
it may present options for possible jail release. Non· tive that all correctional staff be alert to and take action
English-speaking inmates should receive an appropriate to prevent self-destructive behavior by inmates.9
translation of the handbook or should he provided with Figure 4.3 is a copy of the Suicide Prevention Intake
oral translators. Illiterate English·speaking inmates should Screening Guidelines developed as part of the New York
have access to an audio recording of the handbook, and State Local Forensic Suicide Prevention Crisis Service
llearing-impaired persons should be provided with Model (see "Additional Sources") to assist intake officers
appropriate interpreters. in promptly identifying jail and lockup prisoners who
Following orientation, inmates should sign and date are suicidal or seriously mentally ill so they may receive
a statement indicating they have received and completed timely emergency and non-emergency care. The form
orientation (see Figure 4.2). takes approximately five minutes to administer:~
Detailed instructions on the back of the form direct
the officer to notify the shift commander if: 1) total "yes"
PRaJ'ECTING NEW INMATES' RIGHTS answers is eight or more; 2) any shaded boxes are checked;
From the moment a person is admitted to jail, the 3) if the officer feels notification is appropriate.
administrator and staff are responsible for taking The form is but one part of the model's total screen-
reasonable measures to protect the inmate's personal ing and referral process that is initiated by the intake
safety and welfare, as well as to prevent theft or destruc- officer and becomes an ongoing responsibility ofhous-
tion of personal property. The new inmate is completely ing and medical officers. The screening process includes
dependent onjail personnel for basic needs; and if these both face-to-face interview and observation activities, and
needs are not met nor personal safety and welfarp pro· the referral process includes activities to link inmates to
tected, the administrator can be held liable? supervision and safety services and to mental health
and/or medical treatment services.
Interpreters for Non-English-Speaking,
Hearing/Speech-Impaired *Devcloped by the New York State Office of Mental Health, the New
York State Commission of Correction, the Ulster County, New York,
Interpreters for non-English-speaking as well as hearing- Mental Health Services, and the New York State Division of Criminal
and/or speech-impaired inmates should be made avail- Justice Services.
30
.. ..
,"<;'f'rn.,,,,~~~~);:./,i,, >.~~at!,,,,,r,~,, ){:d'ii';.A."':'·;:>'''0'il,,~·~.,1,''',·,,:),.,,~,,;"'" J,--;;::::-",,-~.~-,""
Figure 4.2
INMATE ORIENTATION
The following items are contained in the Fairfax County Adult Detention Center's Inmate Handbook on the pages listed:
1. Daily Routine-page 19
CO. Initials
2. Mail-pages 20·21
CO. Initials
4. Commissary-pages 24·25
C.o. Initials
5. Visiting-pages 26·27
e.o. Initials
6. Ivledical Assistance-pages 28·29
e.o. Initials
7. Programs-pages 32·35, 41·43
e.o. Initials
8. Code of Inmate Offenses and Disciplinary Procedure-pages 45·56
e.o. Initials
9. Grievance Procedure-page 57
CO. Initials
by _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ on _ _ _ _ _ __
Classification Officer Date
Inmate's Signature
Comlnents _______________________________________________________________________
31
>JJ~T'~,,~t;I!iM .iN;' £JA,L,£Q£~
Form 330 ADM(CC) (3-86) 81.te 01 New York
Figure 4.3 Com million of Correction
Office 01 Ment.1 Health
3, Detainee has experienced a significant loss within the lasl Sill months (e,g"
loss of job, loss of relationship, death of close family member).
4. Detainee is very worried about major problems other than legal ,ltuatlon
(e.g, serious ftnancial or family problems, a medical condition or fear of
losing Job).
5. Detainee's family or significant other (spouse, parent, close friend, lover)
has attempted or committed suicide.
6. Detainee has psychiatric history. (Note current psychotropic medications
and name of most recenf treatment agency.)
7. Detainee has hlslory of drug or alcohol abuse.
TOT AL Column A
ACTIONS
II total checks In Column A are 8 or more, notlly Shift Commander.
32
-:~"'~'t'1:~~~"""1"'-th'I~'h.;,!,~~.~~n:~~;';'li;~1':'i:;~~~,4~~~~~;,;, ,"-~l;o-----:;;;~;~- ----;-----;-,-:-------;---
SCORING
Be sure to count an ch&Cka in column A lind enter total In the spacl! provided. Nolity shill commander 1) total Is 8 Of more. or 2) arry shaded boxes are
checked, or 3) If you feel notification is appropriate.
DISPOSITION
OHlcer Action.
Shlfl commander nollfied: Check YES or NO. Shift Commander should be notified about delainee prior to celf assignment
Supervision instituted: Check appropriate supervision disposition. This section Is to be completed by shift commander. For definition of active. constant
and routine see N.V.S. Commission of Correcllon Minimum Standards for Local Correctional Facilities.
Detainee referred to medical and mental health personnel: Check YES or NO. If YES. cheCk emergency/nonemergency, medical/mental heslth. This
laction is to be completed by shift commander.
MedlcDI/Mental Health Action.
This D3Ction .hould be completlKi by medical/mental health 'tiff and fhould Include I'&commendations and/or actions taken
33
,\"_ll",-:.)}.,rY;l.! •.. ~,~'P.,""~ .~., ...>.\j,v'h,.'~.V~:J."':,~~~":f'i,,,,,,,;-,··'·i>,','$.., .. ,t~.'!.~~"",,-;--~,_~-;:---;:.-c-;-;-
0'T'~""·>:l"!!",!!iI'A,!!!'lAIfM!\lI;;::".)II!JIl.1•.J II!JIlC~M);
Close Observation, Appropriate Referral Essential Special Holding Areas. Special holding areas should be
Booking/admissions officers must be acutely aware that available for closer observation of inmates who are dis-
being arrested or incarcerated, especially for the first ruptive or violent during the initial period of incarcera-
time, can be extremely traumatic for many persons. tion. Depending on the degree to which such persons are
ReseaTch shows that 50 peTcent of all jail and lockup suicides disruptive, they may also require evaluation by the men-
OCCUT within the fiTst 24 hOUTS of intake.tO Therefore, it is tal health unit.
imperative that newly admitted inmates never be placed
in isolation and that they be closely observed at all times CLASSIFICATION PROCEDURES
for depression or extreme remorse, p:'.rticularly for In smaller jails, where facility limitations preclude
crimes of passion, or for violent, psychotic, or other separate maintenance of new inmates in receiving, a
abnormal behavior that may indicate potential suicide risk/needs assessment and custody/housing classification
risks. Escape attem pts during the early hours of confine- should be implemented as soon as possible and inmates
ment by persons detained on minor charges may also be moverl accordingly_ Care must be taken to ensure that,
a warning of potential suicidal behavior. . even where the classification process must take place
Inmates who threaten verbally or in writing to take shortly after admission, all risks and needs are weighed
their own lives or who show physical signs of past suicide and housing decisions are based on complete, valid infor-
attempts (scars on wrists, neck, etc.) should be referred mation. (Where a single intake officer assigns custody/
immediately to the medical or mental health unit for housing levels, it is beneficial for management staff to be
evaluation and should be observed closely until they are involved in classification review and reclassification
under that staffs supervision. It is important that this decisions.)
referral be fully documented. (Figure Col, Appendix C In most larger facilities, after new inmates are main-
is a form used by one facility for requesting psychiatric tained tempoTarily in receiving/booking (generally from
evaluation of an inmate upon intake or at any time dur- 24 to 72 hours), those who are free of mental or medical
ing incarceration.) problems are moved to a classification area for further
Inmates suffering from alcohol or drug withdrawal and observation, risk/needs assessment, and subsequent hous-
those arrested for DUI should be considered at particu- ing and program assignment by classification staff_
lar risk f01- suicide; those exhibiting extTeme withdrawal The custody classification process is not intended for
symptoms should be referred to medical staff at once and persons who are likely to be released within a few hours
watched closely until they are under that staffs care. (See after admission; therefore, only those inmates who are
Appendix A for additional screening procedures for sui- likely to remain for a reasonable period are selected for
cide risk as well as for substance abuse and alcoho/drug the move to classification housing areas. (Larger facili-
withdrawal.) ties often delay classifying inmates at least until after
In addition to mental health referral for psychotic or arraignment to avoid wasting staff time processing those
suicidal inmates, such referral is recommended for who will be released by that time and to allow adequate
inmates exhibiting signs of mental retardation. In time for inmate observation and for gathering criminal
extreme cases of mentally or emotionally disturbed or record and social history information.)
retarded inmates, there may be a potential need for alter-
native placement, such as hospitalization; and the courts
should be contacted regarding the inmate's state.
Initial Risk/Needs Assessment
Inmates vary widely in their potential for violent behavior
within the institution; thus, the most crucial aspect of clas-
Single Cell Holding sification is determining which persons are likely to be
Booking/receiving officers are responsible for assigning dangerous to others. Some may pose a relatively low threat
all new detainees to temporary housing in the receiving of violence in the outside community but have a history
area; and where possible, single cells are recommended of continuously assaultive behavior in an institution.
for this initial assessment and observation period. Others may be known to cause little or no trouble while
Exceptions to single-cell holding may occur in "new incarcerated, and yet be in constant trouble with the law
generation" or "direct supervision" jails as well as in some while out in the community.
minimum security facilities, where only disorderly orvio- With thorough knowledge of an inmate's problems in
lent detainees are locked down; calm, cooperative per- both the community and the institution, classification
sons may be placed together in day rooms, where they aTe staff can best determine the appropriate security and cus-
under constant supervision. tody level and, most importantly, can identify inmates
34
;~",Y""'''$l]::jI"r11Jt,t';_:'l1,?~.. n,!*,?IP:,\, , .., h,"f.nl~W.~""·~·e"";I.')"".h_"'}""·.·
..""',~M''''~;,'''f"~·''''',·"\'''':.i,''''-'-'''·,,.~""""'=~=-',,.,..,..-=-c=~~~
:11(, §YlC3lJ&,4,iJ\YIJ{
who pose a threat of violence, escape, or other manage- Treatment Approach. In planning for the inmate's ti~at
ment problems. In addition, such knowledge is critical ment approach, the interviewer should note any special
for addressing inmates' medical, mental health, or other academic or vocational needs that may be addressed
special needs. The amount, type, and quality of data col- through the facility's programs and services. For exam-
lected determines how accurately an inmate is assessed ple, the inmate who reports that he or she currently lacks
and classified} I a stable home address or will lack one upon release or
Generally, the initial risk/needs assessment occurs the inmate who is able to work but is unemployed or
within 24 to 48 hours of the inmate's transfer from the employed well below the expected level may benefit
booking area. It serves as the basis for custody classifica- greatly by educationallvocational programs as well as by
tion and initial housing placement decisions, and it may pre- and post-release support services and counseling.
also determine assignment of counselors to assist inmates
with special problems. Determining Custody Classification and Housing
Determining the degree of custody (level of staff super-
vision) required to safely house inmates is the primary
Assessment Sources. Information required for an accurate concern in jail classification. For management purposes,
risk/assessment is obtained through the following sources: inmates should be placed at the lowest necessary level ofcon-
II Booking report; straint (and the highest possible level of activity/program
• Medical/psychological screening and examination; participation) at which they will not be a risk to the public,
• Criminal record and pre·sentence reports from pro· staff, other inmates, or themselves.
bation department;
• Institution reports from prior incarcerations; Custody Levels. At the very least, the classification system
., State, local police/sheriff records; should provide for dividing the inmate population into
., NCIC data; minimum, medium, and close or maximum custody
" Inmate interview. (larger jails may have close and maximum as well as a com·
munity custody level, for inmates who participate injobs
Assessment Criteria. Since past conduct is a critical fac- and programs outside the facility and require only mter-
tor in determining a person's potential for dangerous mittent observation). Minimum custody should be
behaviOI; prior criminal history, including its frequency, assigned to those inmates who pose little or no threat to
recenC}; and severity, particularly that involving violence the community; they are usually eligible for work outside
and escapes or escape attempts should be prime con· the jail. Medium custody should be assigned to those who
cerns to the classification officer conducting the risk/ pose medium risks and cannot be trusted to work out-
needs assessment. The officer should also pay special side the jail without supervision.
attention to severity of the inmate's current offense; Close custody should be reserved for those inmates
prior institution adjustment; social factors, such as age, who are escape risks and require constant supervision.
behavior, and attitude; and special needs, such as men- These inmates should be allowed to participate in selected
tal or physh:al illness or handicaps, suicide risk, drug programs and services. Inmates who pose serious escape
or alcohol use, or protective custody requirements. risks or threats to themselves, other inmates, or staff
The officer should be highly skilled in problem iden- should be assigned to maximum custody and confined
tification and during the inmate interview be able to to one cell.
determine passiveness and vulnerability as well as aggres- The more severe the custody, the more restrictions are
siveness and beIIigerence. He or she should also pay spe- placed on the inmate's movement. However, a person clas-
cial attention to tattoos and other indicators of gang sified as "maximum custody" in one jail may have more
membership and determine to which gang the inmate freedom of movement than a person similarly classified
belongs. (Sample interview forms and procedures may in another jail. The jail administrator should assess the
be found in Appendices A, B, and C.) physical aspects of the facility and determine the restric-
Under a project supported by the National Institute tions for each custody level.12
of Corrections, the National Council on Crime and Delin-
quency and. the Correctional Services Group recently sur· Separate Management Requirements. In addition to plac-
veyed 60 jails throughout the United States to determine ing inmates into custody levels at the lowest necessary level
the current status of and approaches to classification. of constraint, all custody/housing decisions should
Table 4.11ists the factors most often included in the ini- include provisions for separate management of the
tial classification of these jails. following:
36
~jJ~~'~;<!J'~'I"l""'5'I'F..,.~~~~~~~-';:~~77~~·',.·,,-,~··?,~-·-;--'---:;-;;-;:-----;-
·,T:'·'('·' ;2L\J.,N9$d"#'i1A,J~Z;)
Table 4.1
Current OUense(s)
Nature of current offense(s) 100% 0%
Arresting officer's version 22% 78%
Detainers 87% 13%
Outstanding warrants 90% 10%
Social Factors
Current age 90% 10%
Marital status 58% 42%
Employment status 65% 35%
Education level 60% 40%
Military record 40% 60%
Length of residence in county/city 53% 47%
Cooperativeness of inmate 90% 10%
Psychological test data 22% 75% 3%
Special Issues
Health care needs 98% 2%
Physical stature 77% 23%
Physical handicaps 98% 2%
Mental illness 100%
Mental retardation 98% 2%
Notoriety of inmate or offense 95% 3% 2%
Protective custody needs 100%
Suicide risk 100%
Prior alcohol use 82% 18%
Prior drug use 82% 18%
(N '" 60)
36
_"<l'>~",,_. '~,.,-:;;Y.1'!W!W Al!.!"""_.",,,_'?!'!" ",",'H'''"''''''=='
~~~+! ().9,,- "PI'"'' 'I"", ,'n!'l~~~~w'::>n·;,,..:,,!r.:c;,,;:~,~··""1\'.,,,,,.,,.,,.",,",
·~JAiJM9AtAjl,;¥.k\
• Female and male inmates; histories of attempted :"uicide; been diagnosed as suici-
-housing should be separate; however, as discussed dal, psychotic, or emotionally disturbed; or are display-
in Chapter III, females and males may participate ing signs of self-destructive behavior or severe depression.
together in certain, closely supervised activities and In larger facilities, mental health units are available for
programs; housing and treatment of such persons. In facilities
o Certain classes of detainees, such as witnesses and without mental health units, these persons may be housed
civil prisoners; in close custody, depending on the degree to which they
• Community custody inmates, such as work release, are disturbed. Where inmates are diagnosed by qualified
"weekenders:' and trusties; medical/mental health personnel as severely mentally dis-
-inmates interacting with persons outside the inmate abled and their behavior is uncontrolled, they may be con-
population must be prohibited from contact with sidered for protective custody.
other inmates; The primary objective in assigning custOdy for such
-inmates assigned as trusties, who may have contact persons is to ensure that maximum observation is
with potential contraband, such as kitchen tools, provided; they should never be jJlaced in isolation. In addi-
knives, and yeast or spices from which alcoholic tion, it is important to ensure that mentally disturbed or
beverages may be made must be prohibited from disabled inmates are accorded the same rights and
contact with normally restricted inmates; privileges as all inmates. Efforts should be made to pro-
• Inmates with special needs, such as substance abuse vide mental health treatment services and activities that
or mental or physical problems, including communi- enable such persons to achieve their maximum functional
cable diseases; leveL Inmates who meet state standards for emergency
• Inmates requiring disciplinary detention or mental health hospitalization should be evaluated for
administrative segregation; hospital admission.
o Juveniles;
-those sul~ject to trial as adults must be separated SpecialMallagementIllmates. Segregated custody must
from adults by sight and sound; those not subject to be provided for inmates who require administrative
trial as adults mllst be housed in an entirely separate segregation, disciplinary detention, or protective custody;
facility.I" and written policy and procedure should govern the oper-
ation and supervision of their units.'·1 Inmates should not
Medical Custody. Separate custody is necessary for be segregated without clothing, mattresses, blankets, pil-
inmates who: I) have illnesses that cannot be adequately lows, and basic necessities of hygiene, except when
treated or monitored in general population housing; 2) prescri bed by the medical unit for medical or psychiatric
have injuries that prevent them from managin!', them- reasons.
selves in the general population; 3) need treatment for
withdrawal from alcohol or drugs; 4) have prostheses that Administrative Segregation. Administrative segregation
are difficult to manage and arc potential contraband is a form of segregation for inmates when their presence
(where the inmate is able to manage the prosthesis, in the general population would pose a serious threat to
general housing with a special alert may be appropriate): themselves, other inmates, staff, property, or the facility's
5) are undergoing a sex change or were born with both orderly, secure operation. This type of segregation is not
malc and fcmale sexual characteristics; or G) have seri· imposed as a punishment for specific acts. Aggressive
OllS, pregnancy-related problems. homosexuals, violent, assaultive persons, and inmates
Inmates with chronic medical problems, such as dia- requiring protection from others (or from themselves)
be' . :tndmilcl {(>rillS of epilepsy, may oCten be managed are all potential candidates for this c1assit1cation status,
in ~eneral population as long as strict attention is paid Additional inmates who may be in administrative segre-
to such f~lct{)rS as appropriate diet, housing, and neces- gation arc those awaiting investigation or a hearing (or
sary medications. Special alerts should indicate the ongo- a scrious violation of f~lcilit)' regulations. Pretrial inmates
ing needs of such persons. and correctional officers must as well as inmates awaiting transfer can also be housed
be aware or the im porlance of ensuri ng that these needs in this unit.
are met. Long-term assignment to administrative segregation
should be sul~ject to approval by the classification com-
Mental Health Custody. Separate custody is also needed mittee or unit; short-terlll assignmcnt may be ordered by
for inmates who have psychological or emotional dis- the f~ldlity administrator or designee when it is neces-
orders so incapacitating they cannot function in the sar}' to protect the inmate or others. Emergency place·
general populatioll. 1'l\es(' may include persons who have ment should be considered temporary pending input
37
~..'~~r.:;l",~,,",,"~"'f!H$JI,~~~~,,:,~<:m17~~~""iOJ'M1!;::"~~·I,l:"'- o;v.~'\'·;·.f·-~"··~·'""
N>"~'!iI~§C~·i("",I!I'J""",,,I!!!JI!I!L,,,!!!!Pl!Ifhf
from the classification unit. (See Chapter V for proce- Disciplinary SegregatilDn. Disciplinary segregation is a
dures for assignment to administrative segregation and form of segregation for inmates who have been found
the rights of inmates housed there.) guilty of serious rule violations by the disci plinary com-
mittee or hearings officer and whose presence in the
general population poses a threat to the facility's orderly
Protective Custody. Protective custody is a form of operation or security. (See Chapters V and VI for dis-
administrative segregation from the general population cussions on the assignment of inmates to disciplinary
for inmates who appear vulnerable or have special needs detention.)
and who request or require protection from other
inmates. In general, the more effective a facility's overall
classification system, the less frequently protective cus- Additional Management Problems. In addition to those
tody will be required. inmates known to be violent, predatory, or escape risks
Prior to an inmate's assignment to protective custody, who are assigned to segregation, numerous other inmates
it should be documented that such a measure is warranted may be potential management problems, although to a
and no reasonable alternatives are available. lesser degree. Such persons generally require close or
When an inmate waives, requests or consents to pro- maximum custody. After a reasonable period of time, the
tective custody, it should be fully documented, with forms inmate's classification status may be reviewed; and if
signed by the inmate. The inmate may at any time request stable, cooperative behavior is documented, he or she may
reassignment to the general population (see Figures 4.4 be eligible for reclassification to a less restrictive custody
through 4.6). Inmates who may be vulnerable to assault level.
by other inmates and are candidates for protective cus- Inmates in the following categories are potential
tody include the following: management problems, and depending on the facility's
design and capabilities, are candidates for maximum or
II Civil prisoners; witnesses;
close, but not necessarily segregated custody:
" Informants;
" Convicted sex criminals, particularly those involved in • Persons of whom violence is reasonably anticipated:
child sexual assaults; -their behavior and attitude is belligerent or hostile
• Weak/old; toward the interviewer or other staff; they appear
• Young/small/frail; to resent authority and are uncooperative or
• Submissive or easily intimidated; aggressive;
" Effeminate males; -they have histories of chronically assaultive or dis-
• Physically handicapped; ruptive behavior while incarcerated;
• Mentally retarded/handicapped; -they have made written or verbal threats to harm a
• Former criminal justice officers; staff member or another inmate;
• Those unable to speak English or to communicate ade- -they have current or prior charges of violent
quately to care for themselves within the facility; offenses;
• Those charged with heinous or notorious crimes. -they have been known to make or possess weapons
Some facilities also place submissive homosexuals in while incarcerated;
protective custody; however, care must be taken to ensure • Persons of whom sexually assaultive or deviant
that such custody is not used simply to isolate any inmate behavior is reasonably anticipated:
suspected of being homosexual. Any inmate who appears -they have histories of sexually assaultive or deviant
vulnerable, regardless of sexual orientation, may need behavior while incarcerated or they have been
protective custody; i.e., a heterosexual male who appears arrested for sexual offenses;
extremely frail or effeminate is as vulnerable as a • Known drug dealers, who require close custody to
homosexual male with the same appearance. ensure their activities are curtailed;
Persons known to be infected with AIDS, who are not • Escape risl{s;
symptomatic enough to be placed in medical units, may -they have histories of attempted or successful
also be given protective custody, particularly where they escapes;
have been threatened by other inmates. Care must be -they have been found in possession of escape tools
taken to ensure that infected inmates thus housed are not while incarcerated;
deprived of the rights and privileges of general popula- -they have made written or verbal threats to escape;
tion inmates anei that they receive required medical • Persons with holds, detainers or warrants for a
attention. major offense jn another jurisdication (some fucilities
38
~V~~"l!",,*,>1. !hl'J.(UiF,'jt' '",,1' ~:l~ •. ·.• t.?·hm!p,_')I,.!,.,~~~.'J';~X.;,.""<M'jF.'di?:'~~p,~,·.-~."·,, ·.·,4~'-('"
7Y"''f~-\
\@"l!!"g'!!!!!!!M¥!III!!VRI!!I!WJt""'U;-@i§j!llfi,,¥;r
Figure 4.4
DEPARTMENT OF CORRECTIONS
PRINCE GEORGE'S COUNTY, MARYLAND
I have been
Detainee
Date
Classification Counselor
Date
Witness
Date
39
Figure 4.5
DEPARTMENT OF CORRECTIONS
PRINCE GEORGE'S COUNTY, MARYLAND
HOUSING
CHARGE: __________________________ ~AREA: _____________________
Classification Coordinator
Classification Coordinator
DOC FORM#4-CLS-12
P.G.C. FORM #3187 40
:<,1!,~"'-~ur.~~.\~,-,,,;,,,,~~'h.,.,Q ·o~l!!:j.i'R;r;.~~~;'l.,~'il7'tt"'.v...!~,).':';;!':T:'''~~""I,-·jF',.:h'"\·_,,·,\.-,_,
",~~"'.1!'
··¥!IiI!!*'1h,\,\!!,;~.
3¢IlI'!'!J<'lIlII!Miq~A.t.!llr.iq.
Figure 4.6
DEPARTMENT OF CORRECTIONS
PRINCE GEORGE'S COUNTY, MARYLAND
review.
Date________________ Resident_______________________________
Reason: ________________________________________________________
41
Jail Classification and Discipline
may house such persons in the general population; The number of older persons (well past middle age)
however, an alert should then be placed on them); in our nation'sjails has climbed significantly during the
• Persons whose crimes, arrests, or trials received past few years. Such persons are particularly vulnerable
unusual publicity. to intimidation; and where they are not placed in pro-
tective custody, they may be most effectively housed with
Special Alerts others in a similar age range.
It may also be detrimental to younger inmates to be
"Keep Separates." Frequently, persons may he admit- housed with older, more experienced inmates. For exam-
ted to the jail who should not have contact with certain
ple, a 17-year-old, first-time offender who killed his par-
other inmates, such as relatives, members of the same or
ents should not, upon turning 18, be housed with older,
opposing gang, witnesses, co-defendants, or known ene- more experienced inmates being held for equally violent
mies_ It is essential that special alerts indicate the "keep felonies.
separate" status of such persons, and that "keep separate"
lists are updated constantly and distributed to all units First Offenders and Recidivists. Facility crowding often
involved with inmate management. Officers taking prohibits the separation of first-time offenders and
inmates out of the facility for any reason should check recidivists. However, some administrators favor such sepa-
lists and prevent contact between persons indicated. ration, where it is possible, since recidivists have often
developed skill in manipulating staff and other, less
Homosexuals. A range of variables must be considered experienced inmates as well as in making, buying, and
in determining appropriate housing for inmates who are selling contraband.
known or suspected homosexuals. Good interviewing
techniques are needed in identifying those who are Charge, Sentencing StahlS. ACA standards do not require
promiscuous as well as those who are aggressive or sub- the separation of felons and misdemeanants or of pretrial
missive and vulnerable. Homosexuals who are prone to detainees and sentenced inmates. However, of 58 jails
be promiscuous or aggressive may require administrative responding to a recent survey, 22 (38 percent) were required
segregation, while, as previously discussed, submissive, by formal policies or legislated standards to separate by
effeminate homosexuals may be vulnerable to assault and charge status (of this number, only 13jails, or 59 percent,
thus may require protective custody. ~Nhere the inmate's reported they actually met this requirement); and 31 jails
behavior, attitude, or demeanor do not indicate aggres- (53 percent) were requ.ired by formal policies or legislated
siveness or vulnerability, and other needs or risk factors standards to separate by :;cntencing status (19 jails, or 61
are not present that would indicate close, maximum, or percent, reported they actually met this requirement).15
special management custody, general population hous- The disadvantages of automatically separating inmates
ing may be appropriate. according to charge or sentencing status are that: 1) many
facilities lack the capabilities to further classify accord-
Special Considerations ing to inmate needs, risks, attitude, behavior, and other
In addition to classifying inmates according to the primary criteria; ,!-nd 2) since many misdemeanants were
primary considerations discussed, some administrators former felons and many pretrial detainees were former
report that, depending on other risk factors, considera- sentenced inmates, separating inmates solely according
tion may also be given to separating large and small to these categories is not actually warranted.
inmates (particularly where the large inmate is also However, there are officials who believe that where sen-
aggressive) as well as the following groups: tencing or charge status can be considered along with the
primary classification criteria, resulting in the separation
• Young adults and older adults; of dangerous and non-dangerous offenders, the jail may
IIFirst offenders and recidivists; be afforded some additional protection against liability.
• Felons and misdemeanants; pretrial and sentenced Some administrators also believe that separating
inmates. pretrial and sentenced inmates can facilitate overall
management because of the differential treatment occa-
Young Adults and Older Adults. Some administrators sionally required for these two categories. For example,
report that placing inmates with others in a similar age statutes or court decisions in some states may mandate
range facilitates harmonious relations within the living that specific considerations or rights be provided to
units. In some cases, older inmates may tend to be vic- pretrial detainees that are not provided to sentenced
timized by younger ones, with results that can range from inmates. In addition, while pretrial detainees are subject
intimidation to blackmail and violent assaults. to the jail's rules and regulations as well as to the sanctions
42
/'"':""'~f"!!"'l'l'e:x:.~',.Jjh!th")"''''-;';-''!J''''Afi''!'-"f~'!!"!T~m-~~f)~,..~:~r.;;:'·<';:J.7;-\';;"'~--:;;;-; ,-'-';-:;;;:---:--::;-::--;;-i.;-~,~'
~\~~·;JILi}.@. ,.)}J..§Akt.JC
for violations, they cannot be subjected to conditions or -free of detainers and outstanding charges;
treatment that can be interpreted as punishment without -approved by the classification committee.
appropriate due process procedures.I6 While policies vary, work release status is generally con-
fined to inmates who have a limited time before release.
Special Status Inmates ACA requirements for work release programs include
written operational procedures; careful screening; writ-
Trusties. Careful screening is necessary to ensure that ten rules of inmate conduct; and a system of supervision.17
only those persons who are least likely to attempt to
escape, to assist others to escape, or to obtain contraband
are assigned to trusty status. In particulat; inmates apply- INMATE ACCOUNTABILITY
ing for this status should be considered only if they have: A key element in inmate management is accountability-
the staffs ability to locate and identify each inmate at any
• An excellent behavior and attitude record, 'Xith mini-
given time, including those outside the facility on work
mal incompatibility;
release, appearing in court, or hospitalized. In some
• Psychiatric and emotional stability;
larger facilities, computers now maintain complete infor-
• No history of attempted escapes;
mation on all inmate location and movement. Other large
• Intelligence commensurate with responsibilities (abil-
facilities maintain a central file of inmate locations and
ity to understand directions);
daily status.
o Minimal drug or alcohol involvement;
Smaller facilities should have a control board listing
e No "keep separate" status;
the inmates and their housing assignments in the book-
• Medical department approval for work (no infectious/
ing area. A daily roster of the inmate popUlation can be
contagious diseases, able to perform duties);
compiled from this board, and the board can also be used
• No high-risk detainers;
as a check against daily inmate counts. A single person
• No history of charges involving violent or sexual
on each shift should be assigned the responsibility for
offenses.
maintaining this record. When the officer completes a
In addition to the above, it is recommended that shift, the incoming duty officer should acknowledge the
inmates selected as trusties have no major offense con- board's accuracy by initialing it in the lower right-hand
viction while incarcerated and no recent minor offense corner.I8
conviction.
Thorough examination of the inmate's record as well
as recommendations from the correctional supervisor of SUMMARY
his or her unit should precede any assignment of an Proper intake and classification procedures are essential,
inmate to trusty status. To allow time for this observation both to protect the jail and to ensure that legal require-
as well as to receive the results of intake medical screen- ments and the rights of the individual are met. The book-
ing, it is recommended that inmates not be considered ing/admissions officer performs critical functions during
for trusty status until they have been in the general popu- these procedures, including screening out critically
lation a minimum of two weeks. injured or ill persons or, where they must be admitted,
Following assignment to trusty status, no inmate must ever obtaining immediate medical attention for them. The
be allowed to supervise, control, or exert authority over other officer also verifies the proper documents for legal con·
inmates. finement; observes new detainees for violent, aggressive,
or suicidal tendencies; and, in smaller facilities, classifies
the new inmate.
Worll Release. In many facilities, work release must be
New arrivals must be separated from the general
approved by the courts for county inmates and by the
inmate population and from other inmates who may be
Slate Department of Corrections for state inmates. In
mentally ill, drunk, or violent. All new inmates must be
other facilities,jurisdictional philosophy may dictate the
closely observed for aggressive, suicidal, or other abnor-
criteria for work release assignment. In one facility,
mal behavior. It is particularly im portant that all correC-
inmates are considered for work release only if they are:
tional staff be trained to recognize and take action to
-currently serving on the inmate work force (trusty) prevent self-destructive behavior by inmates.
a minimum of two weeks, with an excellent record; Determining the degree of custody (level of staff super-
-sentenced on a misdemeanor or non·violent felony vision) required to safely house inmates is the primary
and scheduled for release or mandatory parole concern injail classification. Inmates should be placed
within six months; at the lowest necessary level of constraint and the highest
43
y;y."'~".~th(F.1 .,3.J'~' ..f; hl\'9" '\l..,.'i!t',~~.~:rJ1;;J}:;:~H<W,\,'\i'.~,,,'.'f _r"fiJ.c,', j69')7""~~--:s'!~~~~r";o>.",
~~,"',"',k"1')''''!.,_A!!I!'(..i!!$i¥!Ii!,g!ll!J!'I!1!bI'l'!.j.","",!'Iil41~~
possible level of activity/program participation at which 5. National Crime Information Center. The Investigative Tool: A Guide
they will not be a risk to the public, staff, other inmates, to the Use and Benefits ofNCIC. Washington, DC: Federal Bureau of
or themselves. Investigation, U.S. Department of Justice, 1984.
In addition, ACA standards require that custody/hous- 6. A.T. Laszlo, M.B. Ayres. AIDS; Improving the Response of the Correctional
System. Alexandria, VA: National Sheriffs' Association, 19S6.
ing decisions include provisions for separate manage-
7. Inmates' Legal Rights, revised ed. Alexandria, VA: National Sheriffs'
ment of female and male inmates; certain classes of Association, 19S7.
detainees, such as witnesses, civil prisoners, community S. Ibid.
custody inmates; inmates with special needs or problems; 9. The New lVrk State Local Forel1sic Suicide Prevention Crisis SI!I1Jice Model.
inmates requiring disciplinary detention or administra- New York State Office of Mental Health; New York State Commission
tive segregation (including protective custody); and of Correction; Ulster County, New York, Mental Health Services; and
New York State Division of Criminal Justice Services, March 19S6.
juveniles.
10. Lindsey M. Hayes and Barbara Kajdan. And Darlmcss Closes hz. Alex-
Maximum or close custody is generally assigned to per- andria, VA: National Center on Institutional Alternatives, 19S1.
sons of whom violence or sexually assaultive behavior is 11. American Correctional Association. Guidelil1es for the Development
reasonably anticipated; known drug dealers; escape risks; of (I Seettrity Program. College Park, MD: U.S. Department of Justice,
persons with holds or detainers for major offenses in National Institute of Corrections, 19S7.
other jurisdictions; and persons whose crimes, arrests, or 12. Ibid.
trials received unusual publicity. 13. Standards for Adult Local Detl!l!liO/! Facilities, 2nd ed. College Park,
MD: American Correctional Association in cooperation wit.h the Com·
mission on Accreditation for Corrections, 19S1.
NarES 14. Ibid.
1. Jail Officers Training lvlanual. Washington, DC: National Sheriffs' Asso- 15. Survey ofJail Classification Systems. San Francisco, CA: National Coun-
ciation, 19S0. cil on Crime and Delinquency; Correctional Services Group, 19S8.
2. Ibid. 16. Inmates' Legal Rights, revised ed. Alexandria, VA: National Sheriffs'
3. Ibid. Association, 19S7.
4. Inmates'Legal Rights, revised ed. Alexandria, VA: National Sheriffs' 17. Standards for Adult Local Detl!l!tion Facilities, 2nd ed. College Park,
Association, 19S7. MD: American Correctional Association in cooperation with the Com·
Staru1nrds for Adult Local Detention Facilities, 2nd ed. College Park, MD: mission on Accreditation for Corrections, 19S1.
American Correctional Association in cooperation with the Commis- IS. Jail Officers Training Manual. Washington, DC: National Sheriffs'
sion on Accreditation for Corrections. Association, 19S0.
44
.:!?:~:r""';r'W'-~,~R;;:;~",c»~o:'l"'m""'''')'~'~;;il.:,~r>,;<,,...:.>~,,;.~",f·,A:;;·'· ..l'i'"\'~·~-;-:-'-··-··-··
,,,,,,",,,c.d,«fik ..,.Rt(UIl.3P..,.;;;;:
OHAPTER V
Reclassification
Procedures
Reclassification is a vital component of the classification part of the reclassification process only when inmates are
process, and each facility's classification plan should being placed in involuntary segregation.) Reclassification
include specific criteria and procedures for reviewing and is often required after the segregation period.
changing each inmate's status and program/work Reclassification may be conducted through a formal,
participation.l objective instrument, such as a decision tree or as the
While initial classification utilizes such criteria as reclassification model in Appendix A; or it may be con-
inmates' criminal history and current charge to deter· ducted simply through assessment of the inmate's status
mine custody level, reclassification actions are usually by classification staff, who determine whether a change
dependent on the inmates' behavior or status changes is warranted on the basis of a variety of factors, including
while incarcerated. For example, misconduct may result inmate needs, behavior, facility or unit overcrowding, etc.
in reclassification to a higher custody level; satisfactory
or exemplary conduct may result in reclassification to
trusty status. In addition, an inmate in the general popu· Reclassification Issues
lation may be placed in segregation at his own request In the survey of 60 jails previously referenced, 54 jails
(protective custody), as punishment for violation ofajail reported they have a reclassification system; of these, more
rule (disciplinary segregation), or as an administrative than 87 percent addressed issues involving housing and
measure (as during an investigation or to prevent custody levels; a lesser number addressed programuob
self·destruction). changes, need for services, and release considerations (see
This chapter discusses procedures for reclassifica- Table 5.1).
tion-an important step for all inmates, but particularly
so for those sentenced to lengthy jail terms and for defen-
dants waiting several months for court disposition.2 The Criteria for Reclassification
chapter also details the rights of inmates to appeal clas- Of the 54 reportingjails, m ore than 80 percent routinely
sification decisions as well as the rights of those inmates included disciplinary violations of various types, pro-
assigned to segregated custody. tective custody needs, and psychological instability in
their criteria for reclassification (see Table 5.2). Approx-
imately two-thirds of the jails included meritorious con-
PROCEDURES FOR
duct, time left to serve, program involvement, and actions
RECLASSIFICATION involving "good time" and work release.
Classification is an ongoing process, and the potential
for reclassification must be available to every inmate. Any
time there is a change in the criteria on which the origi- Proper Authorization, Complete Documentation.
nal classification was based (inmate is convicted of cur- The most critical requisites of any reclassification actions
rent charge; new information is received regarding are that they are effected under proper authority and that
detainers, pre-sentence reports, etc.), the inmate's status they are completely documented. Since the classification unit
may change, requiring a reevaluation of custody, hous- maintains all pertinent information on each inmate, mak·
ing, and treatment needs by the classification unit. ing this unit primarily responsible for effecting or
In addition, the inmate who exhibits exemplary behavior approving all inmate reclassification and subsequent
may be a candidate for reclassification to lower custody; transfers ensures consistent housing according to appro-
and one with adjustment problems or involvement in a priate custody levels, program participation, "keep
serious infraction offacility rules may be placed in adminis· separate" status, and other critical factors. The following
trative segregation pending a hearing or disciplinary excerpts from one facility's policies and procedures illus-
segregation following a hearing. (Hearings are generally trate the critical role the classification unit plays in inmate
45
~,,,~~~'~:~~"i';:1"'j";:;''::l'~,'f,~~~\dtP.1',3iJ1,V,!n;y:j;.j,il~e'_""I£"!_",.'"'r.\', .. 'J~~,·.\"~,>:"'·~,,,,,,·,V;;;-~:Z;"~A'.;
Table 5.1
RECLASSIFICATION ACTIVITIES
Table 5.2
FACTORS ROUTINELY INCLUDED IN RECLASSIFICATION
46
Reclassification Procedures
moves as well as the importance of accurately document- inmate locations on booking cards and all records;!'
ing such moves to ensure continuously updated inmate As noted in the preceding policies and procedures, in
location records. emergency situations, non-classification personnel may
effect an inmate's immediate segregation for security,
Authorization for Transfers, Reclassifications
administrative, or medical reasons; i.e., when he or she
The Institutional Classification Committee (ICC) exhibits adjustment problems, particularly involving
directs and controls all assignment and transfer of aggressive, disruptive, abnormal, or suicidal behavior. The
inmates except the following: following discussion focuses on appropriate steps for
such immediate, or emergency reclassification .
., Newly admitted inmates in receiving areas;
-Booking deputies, receiving deputies, and shift
supervisors control the assignment of newly EMERGENCY RECLASSIFICATION
admitted inmates to cells in receiving areas; When an inmate's continued presence in the general
transfers within receiving are at the discretion population poses a serious threat to himself or herself,
of the shift supervisor; other inmates, the staff, or the facility's security, the
-Inmates ordered housed in receiving areas for administrator or a designee may order immediate
administrative or disciplinary reasons by the administrative segregation, protective custody, or discipli-
ICC or Adjustment Committee may be reas- nary segregation; In addition, designated personnel may
signed within ti:l~ receiving area by shift super- order an inmate's immediate transfer to the medical or
visors; (howevel~ the classification section must mental health unit. Written policy should specify those
be notified of transfers and new cell locations); staff members who are authorized to effect these actions
o Inmates reassigned within the dispensary and detail the steps to be followed.
(however, moves must be reported to the clas- The following procedure for immediate housing
sification section); and/or custody reclassification utilized by one facility is
• Inmates who require immediate segregation presented as guidance for administrators who may be
for security or medical reasons or for the pro- writing related policies:
tection of themselves or others; • All immediate reclassification action must be initiated
-Shift supervisors, medical staff, and classifica- by a counselor, with great caution and in accordance
tion staff can order immediate segregation of with custody level and housing classification
inmates without the ICC's approval; however, the procedures;
classification section must be notified of such • All counselors have the authority and responsibility
transfer and actions must be reviewed by the ICC to initiate immediate reclassification of an inmate's
within three working days. housing and/or custody if the inmate is in jeopardy;
It Counselors will immediately reclassify an inmate to
47
Figure 5.1 INMATE TRANSFER SHEET DATE
All institutional transfers by Classification or by Supervisors will be placed on this sheet. Each move on the list will
be initialed by the officers authorizing the move and the reason for the move noted. As each move is completed~ initials will
be placed in the Action Column. This will indicate the current status of transfers. This sheet will be used for all shifts on
the date indicated~ and one copy will be turned in each night to the Confinement Captain's Office with all other daily sheets.
II
~
PRESENT BIN ASSIGNED AUTHORI- ~
CELLBLOCK NAME NO. CELLBLOCK REASON FOR MOVE ZATION ACTION
I. ,
:1',,"
2. ~
~
',1
3.
4. ~
:1)
5.
6.
' i
j
l
7. ~
~
OlI 8.
•
9. ~
(I
~I
10.
II.
12.
13.
14.
15.
16.
17.
18.
19. -- -~---
f.\~~~~r!~;UhS;V~,?a!i£)fii*<hf!"'~!j".f,5,S;':';\~d! ;.,·,8 t"."_.,, .. ~,..-;-;:---:::-a
Re'11assification Procedures
authorization of the highest ranking official on duty, and The Supreme Court thus clearly distinguishes between
the jail administrator must be advised of the inmate's sta· administrative and disciplinary segregation; it sees
tus as soon as possible.4 administrative segregation as a step in the classification
Figure 5.2 is an example of a form used for notifying process instead of as a form of quasi-discipline. In spite
appropriate officials as well as the classification unit of of this distinction, since limited due process rights will
an inmate's administrative segregation. still attach to most administrative segregation placement
In addition to this notification immediately following schemes; and since generally, the conditions of such
any type of emergency segregation, ACA standards placement are highly restrictive, courts will continue to
require that such action be reviewed within three work- be sensitive to claims arising from the administrative
ing days by the classification or the disciplinary commit- segregation process?
tee, depending on the type of segregation used.5 While, as stated, methods for providing due process
The following discussion presents guidelines for rights to inmates placed involuntarily in administrative
specific emergency reclassification to administrative segregation vary, it is generally agreed that any time an
segregation. inmate is placed in this type of segregation against his
or her wishes, there is a risk of litigation. Therefore, as
an effective, precautionary step toward preventing this
Administrative begregation costly, time-consuming action, it is recommended that a
hearing be provided the inmate before, at a minimum, one
As described in Chapter III, administrative segregation designated official.
is a non-punitive form of segregation, often for extended By requiring that a hearing as well as certain other
periods, for inmates who require speciaJ housing to procedural steps be adhered to and that a record be pre-
ensure the safety and security of themselves, other pared that is subject to review, greater fairness is ensured
inmates, staff, or the facility. While, as previously dis- than would be created by a decision-making process that
cussed, long-term assignment to administrative segrega- excludes inmate participation and input. A hearing and
tion should be subject to approval by the classification record also provides a check on the arbitrary and/or
unit, short-term assignment, including emergency place- unnecessary use of segregation as well as valuable
ment, may be ordered by the facility administrator or documentation for future dealings with the inmate.s
other authorized personnel when it is necessary to pro- It is important that the inmate be given notice of the
tect the inmate or others. Such emergency placement administrative segregation hearing, including a statement
should be considered temporary pending input from the of the specific reasons why the facility is considering segre-
classification unit. gation. The notice should avoid general statements, such
Methods for providing due process rights to inmates as: "You are believed to be a risk to the facility's security
placed involuntarily in administrative segregation vary and order." Such a statement is of no value to an inmate
among jails today. The following discussion details the who is attempting to prepare a defense, nor is it of benefit
Supreme Comt's actions with regard to this sensitive issue. to staff who are attempting to conduct a meaningful
review of the case. If the inmate is considered a security
risk, the notice should explain why; e.g., "You assaulted
Due Process and Administrative Segregation Placement. (name) on (date):,
In 1983, despite numerous lower-court decisions that Tl. ""Bowing sample procedures are presented as
required a disciplinary-type hearing as a condition to guid . .; for administrators writing policies regarding
placing an inmate in administrative segregation, the immediate placement in administrative segregation.
Supreme Court held that there is no inherent right under
the due process clause of the Fourteenth Amendment to • An inmate may be placed in administrative segrega-
a hearing as a condition to placement in administrative tion by persons designated by the chief jail adminis-
segregation. The Court held that only very limited due trator; these persons may be sergeants, shift
process procedures were required, such as an informal, supervisors, or the hearing officer;
non-adversarial review of the information that provided • An officer who believes an inmate is in need of
the basis for the segregation placement decision. It also administrative segregation as a result of a particular
held that the inmate had to be given notice of the pro- incident will make a written report of the incident and
posed grounds for the decision and an opportunity to immediately present it to his or her supervisor;
present his or her views to the decision maker, either • The reporting officer and the supervisor will discuss
orally or in writing. However, the inmate had no right to the incident and determine if administrative segrega-
be present or to present witnesses.6 tion is warranted;
49
,~~l;:'f.~?'~l'~X_;,ij@,)<"IN::'~1 t.,9'i9'8"E4;;;o;.~.~!';~II'I'f!",m;O:;!'TJ"tc,;lJ1:~\";:~-f.r·ll.··->,.. -,':-..... /.,'-.~".,"
8. Gther (specify):
Shift Commander
(Signature)
Administrator of Security____~----------~--__--__--__
(Signature)
*Detainee
--------------------~----------~---------------
(Signature)
*Please indicate refusal to sign and initial.
************************************************************~***
Reviewed by Date------
Asst. Administrator,CCS/BOP Administrator
\p'~'",,>
.. .I""i)1,!'!:.H."",<,tOl!!!4.;,'!!!!.m'!ll!-l-fllll!k.·!II'!A)PIfIr;;
Reolassifioation Prooedures
.. If it is determined that administrative segregation is notified of the Chiefs decision within three working
warranted, an authorized official will transfer the inmate days and may appeal this decision within ten days;
pending the administrative segregation hearing:~ 110 Within three working days after receipt ofICC's recom-
*Polk COuIlt)' Jail, Des Moines, lAo **Fairfax Count)' Adult Detention Center. Fairfax, VA.
61
;'~'i!"F,k;ts,..l~I."ii<;{!i'!ff3'.?,.~_~~.- ..;?'"fi'l~"','i~:.Hl__';;"~"",f.5""'!'~4,yp,!,4,,.-$lA·-.}f-f\h"'VB,>p;m~::>""-;-:~T;-;:-;-"''''-'
:~,'''''.
9 !!,!!,Q-'!'!!I)AIII'I!;@iI!!!l!~ L5~J
'" l!!!'1!.:SII!!!!.
Figure 5.3
This is to certify that I have received a copy of this notice and have had
the same explained to me. Listed below are witnesses I wish to have appear
in my behalf at the above mentioned hearing. Any witnesses in addition to
those listed below will only be heard at the descretion of the ICC.
WITNESSES REQUESTED:
Inmate's signature
Witness Signature
DATE AND TIME SERVED:
----------------------------
Inmate Concerned
Classification 52
Figure 5.4
YES NO
·rr:"I'I'·Q":'!l'·lNh!'!ll.:q;;~_.c.!!I!'!A.@:q;;;q~.#..lZl!!'i*'
Figure 5.5
DATE:
2. ICC Participants:
Chairman: _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
Members:
Witnesses: _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
3. Action of ICC: _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
4. Miscellaneous information: _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
Attachment 5
64
Reclassification Procedures
Figure 5.6
_____ Disagree with the committee's recommendation and order the following action:
I have been provided a copy of this notification and notified of my right to appeal.
55
1,;"¥9;!~~~Yf1.\~.it."_YL.' ...",,;;>.1'_ ,!,l,l..'flll.i,.~-",.·~!,r,q 1"4l'5, n·>'l,,,,·,!"",c!:-,:,~,·-,":Lv,.,.,;-:-;;:-:::"l
~-"'i;;·;m3$.~."I)""",""',~SI!ll!FP.f4""9~,!,,!,A~;~
For example, if during one shift an officer notices an When an inmate's illness or injury requires his or her
inmate depressed and crying, this should be documented immediate removal from the general population, the first
on the shift report and relayed to the next duty officer. correctional officer who learns of the inmate's problem
The next officer should then be particularly alert to this should notify the supervisor. The classification unit and
inmate's behavior and mood. Such debriefing sessions the medical unit should be contacted immediately, and
are invaluable for identifying inmates and circumstances the medical unit should take custody of the inmate for
that require close monitoring as potential suicide alerts. evaluation and lor treatment. As in all transfers, the
Staff should be particularly alert to inmate mood or inmate's referral to the medical unit should be completely
behavior immediately following any change in the per· documented.
son's classification or housing status. Any such move is
Crowding in Medical Unit. If crowding in the medical
extremely stressful to the inmate, and close observation unit prevents the placement of an inmate who has been
is critical during the adjustment period.
diagnosed as requiring medical housing, the medical staff
Monitoring inmates for signs of impending suicide
may be required to identify inmates who are currently
requires a degree of skill and sensitivity on the part
in the unit but not in need of close medical attention.
of staff that can be developed and maintained only
Reclassification of these inmates should be initiated by
through continuously updated training.
the classification unit following notification from the
Appendix F contains sample policies and procedures medical staff.
developed for county correctional facilities that list verbal
and behavioral indications of suicidal intent and lor men- Emergency Medical Evacuation. Written policy and
tal illness. The procedures direct officers to observe all procedure should detail steps to be followed in case of
inmates for these indicators on an ongoing basis to assist a medical emergency, such as a contagious disease that
in identifying potential suicide risks and reduce the inci- warrants evacuation of numerous inmates from a partic-
dence of suicide among the inmate population. ular housing area. Generally, the administrator or desig-
nee, with guidance from the medical director and the
classification unit, should order appropriate action to
Review of Inmates' Administrative Segregation protect the health and well-being of inmates and staff.
Status Precautions must be taken during multiple emergency
Following reclassification to administrative segregation transfers to maintain all inmates in appropriate custody
for suicide prevention as well as for other purposes, it and to prevent contact between "keep separates:'
is important that the status of inmates be closely moni-
tored; inmates should remain in administrative segrega- Special Housing Log
tion only as long as the reason for their initial placement The status of every inmate in segregation, including med·
there remains valid. ical/mental health custody should be maintained on a spe-
ACA standards require that all cases ofinmates housed cial housing log, such as Figure 5.7. The staff in charge
in administrative segregation be reviewed by the classifi- of the segregation unit should be responsible for record·
cation committee every seven days, with the inmate ing all admissions, including name, number, houslng loca-
present at the hearings. The revie\1, should determine tion, date, and special medical or psychiatric problems;
whether the reasons for initial placement still exist; if they releases; visits by clergy or medical/mental health staff;
do not, the inmate should be released from the uniUo and any unusual events concerning an inmate. This spe-
Reclassification may be required following the segrega- cial log should be used for all segregated and special
tion period. needs inmates, including "keep separates;' those on reli-
Inmates housed in administrative segregation for pro- gious/medical diets, escape risks, etc. Such records are
tective custody reasons should be encouraged to return essential to proper jail administration and valuable in
to the general population if there is sufficient reason to the event legal action is filed by the inmate} I
believe such a move would not present a serious threat Inmates occasionally react to the removal of certain
to life or property. privileges by refusing to eat. Therefore, as protection
against potential inmate complaints of inadequate diet
Emergency Medical Segregation or attention, some facilities weigh each inmate (noting
In addition to emergency reclassification to administra- the weight on the special housing log) both upon place.
tive segregation and protective custody for security and ment in the segregation unit and again during regular
administrative reasons, immediate segregation may be physicians' reviews, every 15 days or so.
necessary for inmates with injuries or other medical It is important that special housing logs be checked
problems, such as infectiouslcontagious diseases. by officers transporting inmates out of the facility to
66
, ....,'?i~!"V-~,'::"""i:::t;;]'i-c,f_,g-_.3,',t,~·,:~;-:;~~'11.''[~~~~''{''''''''7F-S,." .~("',h~.',,, '_.' " >'::1.~71'~'-:;-':;-;;-;-'-;-::;;:; .,-
Reclassification Procedures
Figure 5.7
SPECIAL HOUSING OBSERVATION LOG
TO ALL STAFF
Date and initial all entries and use Comments section for details.
Irrational Emotional
Agitated Talkative
Loud Nervous
Quiet Listless
Problem
Downcast Sleeping
COMMENTS:
57
Jail Classification and Discipline
Clean
Date Meals Shower Shave Uo Comments
!
I
68
. .:,;~"'t."'< ',",'","'"f~~"~~~'~"""<' ·,,}e:8,j'o~,!"},A'·~;h~t·,.~~,.,"".·,~,r,""·· •. i_{".~'-;-·,r.:_,".,,!,~,t;;7";~;-;--,.~-,-;-~.~. -;-:;:->~.-.-----;; ..•-- . -
Reolassifioation Prooedures
determine whether those in their charge are suicidal or • Opportunities to shave and shower at least three times
escape risks. Appropriate, added precautions should then per week;
be taken to ensure the safety and security of these inmates. • Opportunities for writing and receiving letters;
Facilities with computerized inmate management capa· • Opportunities for visitation, unless there are substan-
bilities now maintain computerized special housing logs, tial reasons for denial;
with critical information regarding counts, locations, and • Receipt of telephone privileges (inmates in disciplinary
special indicators continually generated. detention may be limited to telephone calls related to
the judicial process and family emergencies);
• Access to the courts and opportunities to address
Rights of Inmates in Segregation uncensored communications to governmental authori-
ties without reprisals or penalties;
As previously stated, no inmate should be kept in segre-
• Access to attorneys and their authorized representa-
gation for more than one hour without the express
tives and to materials, paper, and other supplies and
authorization of the highest ranking official on duty, and
services related to legal matters;
the administrator should be advised of the inmate's sta-
• Access to reading materials;
tus at the earliest practical moment. In addition, the con-
• Access to basic medical and dental care; written policy
ditions under which the segregated inmate is confined
and procedures should provide for daily visits from
should meet certain minimum standards; courts have
the chief security officer, shift supervisor, or members
become increasingly sensitive to unnecessarily harsh or
of the program staff, or from a qualified health care
inhumane conditions. Any condition not required for
)fficial three times per week unless medical attention
segregation that imposes additional discomfort on the
is needed more frequently;
inmate is likely to be unacceptable by the courts and
• The right to practice their religion;
should be avoided.
• Opportunities for exercise outside cells a minimum
While an inmate may be physically separated and in
of one hour a day, five days a week, unless safety or
more secure housing than others, he or she should not
other considerations dictate otherwise; a written
be deprived of those items necessary for the maintenance
record should be kept of each inmate's participation;
of psychological and physical well being. Any practices
reasons for imposition of constraints should be
that cause unnecessary physical or mental deterioration
documented;
could fall below the constitutional standard of care
• Protection from personal abuse, corporal punishment,
required.12
personal injury, disease, property damage, and harass-
Practices the courts have consistently condemned as
ment; where physical force or disciplinary detention
violating the "cruel and unusual punishment" clause
is required, only the least drastic measures should be
include placing an inmate in a filthy cell, providing inade-
used;
quate toilet facilities, and denying basic hygiene tools,
• Access by inmates in administrative segregation and
such as soap, water, toilet paper, and toothbrush.
protective custody to programs and services, includ-
To protect inmates' rights as well as to protect the jail
ing the commissary, the library, and those involving
against litigation, it is imperative that written policies and
education, social services, counseling, and recreation;
procedures provide specific requirements for inmates in
• Access to a written grievance procedure that includes
segregated units. Such requirements should be clearly
at least one level of appeal (see Chapter VI).13
understood by all staff and include the following:
• Housing in a cell that is clean, well lighted, adequately
heated and ventilated, and equipped with a toilet as NON-EMERGENCY
well as water for drinking and washing; RECLASSIFICATION
• Receipt of the same meals as served to the general As previously discussed, because the classification unit
population; maintains all pertinent information on each inmate, in
• Receipt of the same jail clothing, bedding, linens, and most facilities it is primarily responsible for effecting or
toilet articles as issued to the general population, approving all non-emergency reclassification and subse-
except where removal of such items is necessary for quent transfers. This policy prevents the mixing of "keep
security reasons (exceptions should be recorded in unit separates" and the moving of inmates to inappropriate
log, justified in writing, and forwarded to the facility housing. One facility follows a procedure whereby, in all
administrator; if circumstances warrant removal of all non-emergency cases, shift supervisors have the authority
inmate's personal items, advance approval should be to transfer inmates only back to the classification hous-
obtained from the administrator or designee); ing area until the inmate's status can be reviewed.
59
_"~~~~'~~,"I':';-I'\.~i~f_"""'-'f\j'l'!''''<Y;;;l"n;:.,,,!,''>i'~ .~"",-.,. ,1 ~.~,"" ,",,,,-,,~'M~,'f
f,p:~"":,,!!!,<~,..<,!!!!·L,,!!I!I)!!II;U!!l!lL!!I!IIJ?!!I!I.M!!!I!tt:
Factors Prompting Non-Emergency be taken as a result of it. The committee will hear the
Reclassification evidence presented by the shift supervisor and give the
Recldssification action generally follows any change in inmate the opportunity to speak;
inmate status; and in addition, reclassification occurs as • Written notice regarding the action taken by the reclas·
a result of an inmate's involvement in a serious incident sification committee shaIl be forwarded to the inmate
or infraction of facility rules (see Chapter VI); when an with a copy placed in the inmate classification jacket.
inmate is released from disciplinary segregation; or when The inmate shall be informed of the right to appeal
serious facility or unit overcrowding requires inmate reas· the decision within 72 hours, in writing. If the classifi·
sessment for potential release or intra·facility transfer. cation supervisor participated in the hearing, the
Reclassification may also be effected under the follow· appeal shall be submitted to the Director of
ing circumstances: Corrections.*
• A routine, regularly scheduled review of each inmate's Inmate Appeals Classification Decision. ACA standards
classification status reveals a change is warranted; require that written policies and procedures provide for
• A staff member requests alteration or review of the a process by which inmates may appeal their initial clas·
inmate's classification status; sification or reclassification status, as in the following
• The inmate appeals the classification decision or example:
requests a review of his or her status;
• A regularly scheduled evaluation of the overall jail • To appeal a decision regarding custody level or cell·
climate indicates changes in housing configurations block assignment, an inmate must submit a written
may be warranted. appeal to the classification supervisor that includes his
or her name, cell location, and grounds for the appeal;
• The classification superv:sor will review and answer
Routine Status Review. To ensure that the goals of clas· the appeal in writing within three working days;
sification are being met and to evaluate each inmate's • In the absence of the classification supervisor, the
adjustment, many facilities have established a reasonable appeal will be reviewed by a classification committee
time frame for periodic, routine review of each inmate's of, at a minimum, three employees, including at least
classification status. In the model in Appendix A, for one classification officer (not the officer who originally
example, the first custody reclassification is completed classified the inmate);
30 days after incarceration, with each subsequent reclas· • The appeals process may be waived if it appears that
sification occurring every 90 days. Thus, inmates who continued housing in the assigned area may result in
remain in jail for a lengthy period may be given consider· injury to the inmate; the classification supervisor, shift
ation for reclassification several times before they are supervisor, or classification officer shall house the
released; those who are sentenced to only a few weeks inmate in a receiving unit until the inmate's status can
or weekends may never be reclassified. be reviewed.*
Routine reclassification does not necessarily result in
Inmate Requests Status Review. An inmate who desires
the inmate's custody or housing change. Rather, its
programs, services, housing, or jobs that require a cus·
primary functions are to monitor the inmate's adjustment
tody change may request a review of his or her classifica·
and call attention either to problems or to satisfactory
tion. The inmate generally submits the request on a
conduct that may lead to reclassification and a possible
specific inmate request form (Figure 5.8); it is considered
trusty position, work release, or other job placement.
by the classification supervisor or team, who may con·
suIt with the housing block or module officer for an
StaffReque... ts Inmate Status Review. A staff member may
update on the inmate's behavior or for information on
request a review of the inmate's classification if there is
special circumstances. A written response is presented
a reason to believe the inmate has an inappropriate cus·
to the inmate, expla.ining the reasons ifit is negative and
tody/housing assignment. The following procedure is
effecting the change if it is positive.
utilized by one facility for effecting such a review:
• Upon the request ofa shift supervisor, an inmate may Overall Jail Climate Evaluation. To evaluate the over·
be taken before an impartial reclassification com· alljail climate, some facilities summarize every incident
mittee, composed of three persons, to determine if the in each housing area weekly or monthly. Such regular
inmate is appropriately housed;
• The reclassification committee shall inform the inmate
of the purpose of the hearing and the actions that can *Arlington County Detention Center, Arlington, VA.
60
Jail Classification and Discipline
Figure 5.8
INMATE: Check Area You Want Information On. DEPUTY: Forward This Request To The Appropriate Mail-
box As Checked At The Right Of This Request.
*********************************************************************************************
INMATE REQUEST TYPE FORWARD TO:
61
~~7"';.'M".'- , •.",~.;(,,'"-~ ••__".·,~ •. ".,,~r''''',-''·~.n''·rN-'
~;_i"_'?,"<,,,,.,_ .' '" ", -'V_,~ ,.'0'.', '" -
rom;!" 'Wt~AL.4M O'¥J:!~~
Reclassification Procedures
monitoring for numbers and types of incidents is invalu- policies and procedures should specify the requirements
able for identifying unusual or potentially dangerous pat- for segregated inmates.
terns or trends_ Where numerous assaults or other Non-emergency reclassification may occur when a
indicators of high stress or hostility are seen, the hous- regularly scheduled review of each inmate's status reveals
ing configurations may require evaluation, resulting in a change is warranted; a staff member requests alteration
potential inmate transfers andlor reclassification_ of the inmate's status; the inmate appeals or requests a
A complete, accurate summary of all jail incidents is review of his or her status; or a regularly scheduled evalu-
a valuable management tool for pinpointing areas where ation of the overall jail climate indicates changes in hous-
the goals of classification are not being met. Such a sum- ing configurations may be warranted.
mary can be developed only through careful documen-
tation by shift officers during each 24-hour period_ NarES
1. StandardsjorAdult Local Detention Fadlities, 2nd ed. College Park, MD:
American Correctional Association in cooperation with the Commis·
sion on Accreditation for Corrections, 1981.
SUMMARY 2. Karen Whitlow, Robert Buchanan,James Austin, Daniel McCarthy.
Jail Classification: A Review oj the Literature. San Francisco: National Coun-
Every jail's classifIcation plan should include specific cil on Crime and Delinquency, 1987.
criteria and procedures for reviewing and reclassifying 3. Ibid.
each inmate, based upon his or her behavior or status 4. Inmates 'Legal Rights, revised ed. Alexandria, VA: National Sheriffs'
changes while incarcerated. Association, 1987.
5. American Correctional Association, 1981, op. cit.
For example, a status change and subsequent reclassifi-
6. HL'11lett v. Helms, 459 U.S. 460 103 S.Ct. 864, 74 LEd. wd 675 (1983).
cation may occur when new information is received on
National Sheriffs' Association, op. cit.
the inmate; or misconduct may result in reclassification
7. Ibid.
to a higher custody level and exemplary conduct to trusty 8. American COlTectional Association. Model Correctional Rules andReglf'
status. lalions. College Park, MD: U.S. Department ofJustice, National Insti-
Proper authorization and complete documentation are tute of Corrections, 1979.
critical to a valid reclassification process to ensure con- 9. American Correctional Association, 1981, op. cit.
sistent, appropriate housing and continuously updated 10. American Correctional Association, 1981, op. cit.
11. National Sheriffs' Association, op. cit.
inmate location records.
American Correctional Association, 1981, op. cit.
The classification unit maintains all pertinent infor-
12. National Sheriffs' Association, op, cit.
mation on each inmate and in most facilities is responsi-
13. American Correctional Association, 1981, op. cit.
ble for all reclassification actions. In emergency situations,
National Sheriffs' Association, op. cit.
non-classification personnel may effect an inmate's
immediate segregation for security, administrative, or
medical reasons. HoweveI; such actions should be
documented and the classification unit notified.
A hearing is recommended as part of the due process
rights afforded inmates placed involuntary into adminis-
trative segregation. The hearing should be held before
at least one designated officer.
Inmates who are intimidated or fear assault by other
inmates may request administrative segregation (protec-
tive custody); such housing should be used only where
it is truly warranted and no reasonable alternatives exist.
Quick placement of an inmate into administrative
segregation is critical when a suicide alert occurs. Precau-
tionary measures should include alerting the medi-
callmental health staff for a suicide risk evaluation and
constant monitoring of the inmate until it is determined
that the suicide risk no longer exists.
The status of every inmate in segregation should be
maintained on a special housing log, and all such inmates
must be afforded certain rights; courts are increasingly
sensitive to unnecessarily harsh conditions. Written
62
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CHAPTER VI
Effective
Discipline
Inmate discipline has traditionally been one of the most in every jail. The following discussion details those require-
controversial elements of the correctional process. Con- ments that must be met in every disciplinary process to
sistent, equitable discipline is a prime requisite of any maintain the facility's security and safety as well as to
jail setting, impacting positively on the behavior and per- ensure inmates' legal rights and thus protect the jail
sonal responsibility of all inmates. On the other hand, against litigation.
inequitable or improperly applied disciplinary proce-
dures have long been the root of inmate disturbances and
grievances as well as the subject of litigation.
Steps to Effective Discipline
At the onset of incarceration, all inmates must be made
to recognize: 1) the potentially favorable results of con- An effective, valid disciplinary process requires written
forming to the jail's standards of control by following policies and procedures that clearly state the following:
directions and conducting themselves in an orderly • Discipline must be administered within the con·
fashion; and 2) the consequences of failing to do so. fines of both the constitutional rights afforded
Proper discipline has the immediate effect of prevent- inmates and applicable federal and state court
ing misconduct and promoting a calm, orderly, predic- rulings;
table atmosphere. At the same time, it has the long-term e Disciplinary actions must adhere strictly to the
potential for developing inmate self-control and the procedures of due process;
ability to conform to accepted standards for society. • Inmates charged with offenses are entitled to fair
Proper discipline also facilitates delivery of the jail's pro- and impartial hearings.
grams and services, since inmates who are aware that they
are being monitored according to reasonable, impartial In implementing the above requirements, the adminis-
standards, free from arbitrarily imposed rules, tend to trator should be committed to: 1) reviewing and updat-
be more cooperative. In addition, such inmates are often ing the facility's rule:;; and disciplinary practices at least
more receptive to training and instruction aimed at annually, maintaining a close watch on related court cases
behavior modification than inmates who perceive their and developing standards to ensure jail compliance; and
supervision or discipline to be unfair. 2) providing initial as well as ongoing staff training in
This chapter presents guidelines for establishing and all areas of both supervision and discipline.
implementing an effective discipline system based on
ACA standards, as listed in Appendix E. Staff Training
In particular, training should thoroughly familiarize staff
with established rules of inmate conduct, the rationale
ESTABLISHING VALID DISCIPLINARY for each, those acts that constitute violations, and the sanc-
tions available for each.
PROCEDURES
Today, just as there is no universally accepted classifica- Inmate Rules of Conduct. It is imperative that inmate
tion process, there is no "best" system of punishments rules are rational, equitable, and easily understood by both
and rewards, sanctions and restrictions. The structure of inmates and staff. To be effective, rules must explain the
each jail's disciplinary process is dependent on a variety required standards of conduct, define behavior that vio-
of factors, including size, inmate population, layout and lates these standards, and tell the inmate what will hap-
design, goals and missions, and state and local statutes. pen ifhe or she engages in this behavior (sanctions that
While these and other elements often vary between will be applied). Inmate rules must clearly tell the per·
jails, numerous other requirements are critical to the son who wants to obey them what he or she must and
effective administering of discipline and must be present must not do.
63
Jail Classification and Discipline
Rules should emphasize the inmate's behavioral performance of duties; demonstrate disregard for rights
responsibilities regarding all aspects of the jail environ- and welfare of others and contempt for the jail's proce-
ment, activities, and services, including visitation, cor- dures or staff; or result in the defacing of state county,
respondence, personal hygiene, sanitation, food services, or municipal property. (Some facilities divide these
medical care, laundry, recreation, commissary, library offenses into additional categories, in descending order
service, educational opportunities, counseling and of severity.)
guidance, housekeeping, care offacility and equipment,
and the treatment of jail personnel and other inmates.l
Sanctions Available
The administrator should ensure that only those rules
and regulations that actually promote or protect impor- Inmate rules should be enforced with penalties related
tant interests of the jail are established and im plemented. to the gravity of their violations. Criminal law is increas-
Trivial rules only promote hostility and lack of respect ingly adhering to the notion of "proportionality;' and
for staff In addition, rules must not venture beyond some court decisions have voided punishments on the
observable conduct, atterr::.pting to address such subjective, sole basis that they were excessive in relation to the
unpunishable issues as mental attitude or unspoken offense.4
words. Since an officer can only assume what an inmate Bothjail staff and inmates should understand the var·
may be thinking, any enforcement of such rules would ious sanctions that can be imposed for breaches of dis-
be dependent on individual interpretation.2 cipline. Inmates who violate the regulations by such
activities as dealing in contraband, destroying reading
materials, stopping up plumbing, cutting mattresses and
Ensuring Rule Receipt, Understanding. Inmate rules sheets, refusing to maintain neat and clean living quarters,
should be printed or typed and displayed conspicuously or assaulting or mistreating staff and other inmates
throughout housing and activity areas. In addition, writ- should be disciplined only in accordance with specific,
ten policy and procedure should ensure receipt and established procedures for handling such infractions.5
understanding of all rules by every inmate during orien-
tation. Such procedures deter the inmates from claim- Sanctions for Minor Infractions. Minor infractiol13 are
ing ignorance of rules when an infraction occurs later. ones for which the penalties imposed do not cause the
Interpreters should be provided, where necessary; as inmate a deprivation of rights requiring due process.
well as a written translation in any language spoken by Penalties may range from a reprimand to the loss of com-
a significant number ofinmates.3 Inmates should sign a missary, entertainment, recreation, telephone use, or
statement acknowledging receipt and understanding of other privileges.
rules (see Figure 4.2, page 31). Where the inmate is either
illiterate or refuses to sign, the officer should read the Sanctionsjor Major Infractions. Major rule infractions
rules aloud or ensure that the inmate hears a recording often involve a grievous loss, and they require the impo·
in the language in which he or she isfluent. The officer should sition of due process procedures. Major infractions are
then sign the statement indicating the inmate has generally punishable by placement in disciplinary segre-
received a copy of and been read the rules. gation, removal of statutory "good time;' extension of time
Any rule changes should also be announced and pro- before parole eligibility, or referral for criminal
visions made to ensure understanding by each inmate. prosecution.*
The following sample policies and procedures detail
three separate offense categories and established sanc-
Infraction Categories. Specific inmate regulations vary tions for each.
somewhat between facilities; howevel~ in general, they
apply to violations that are categorized according to
severity. Major (often called Class I) offenses are those that
*When a crime is committed injail, the administrator should seek the
threaten or actually breach the facility's safety or secu· advke oflegal counsel regarding whether to punish administratively
rity; threaten staff authority; endanger staff, visitors, or to proceed as in regular criminal cases. There is no doublejeopardy
inmates, or the community; deprive persons of their issue raised by bringing both administrative disciplinary proceedings
and criminal prosecution. The primary concern of jail staff should
property; or result in the willful destruction of state, be to avoid any action that would later hinder the inmate's prosecu-
county, or municipal property. tion. Inmates who are suspects in crimes have the same constitutional
Minor (often called Class II) violations are generally rights as persons who are suspects in crimes outside ofjail. For a com·
plete discussion regarding the treatment of inmates suspected of
those that threaten to disrupt the facility's routine oper- crimes, see Inmates' Legal Rights, pp. 62·63, published by the National
ating procedures by interfering with a staff member's Sheriffs' Association.
64
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Effective Discipline
66
Jail Classification and Discipline
While, in general, the violations listed above are consi- prompt punitive measures must be taken to force the
dered offenses in most jails, each one may not necessrily inmate to conform to the jail standards so he or she (as
be applicable to every facility or categorized in the same well as other inmates who may be observing the behavior)
manner; and some jails may have additional, specific regu- realizes it will not be condoned.
lations for which sanctions are imposed_ For example, some Occasionally, the prompt measures cited above may
facilities include such activities as self-mutilation, tattoo- include the need for using reasonable force to prevent
ing oneself or another inmate, and possessing or wear- an inmate from inciting a disturbance, escaping, or
ing a disguise or staff clothing among their major assaulting another inmate or staff member. The follow-
infractions; with cursing at staff or visitors, smoking in ing discussion details procedures for appropriate dis-
unauthorized areas, unauthorized communication or cipline and supervision while avoiding unnecessary force.
contact with another inmate or visitors, malingering or
feigning illness, and failure to wear ill band included Appropriate Use ofForce. Every officer should under-
among their less serious violations_ stand that he or she will be violating an inmate's con-
Since inmate rules in every facility must adhere to state stitutional rights (and engaging in unlawful behavior)
and federal law, each should be implemented only after if corporal punishment, rather than reasonable force,
review by the local prosecutor or county counsel. is used to maintain order and security. Force used
against an inmate in any kind of vindictive retaliation
Additional Staff Training for a specific act is a violation of the inmate's right not
In addition to providing the staff with an understanding to be deprived of life, liberty, or property without due
of inmate rules and regulations, the ability to recognize process of law. In addition, depending on its nature,
those acts that constitute violations, and established sanc- provocation, and circumstances, corporal punishment
tions available for each, initial and ongoing training for can be a violation of the inmate's right to be free of cruel
all staff involved in the supervisory or disciplinary proc- and unusual punishment.6
ess should emphasize the following: Understanding the appropriate use of physical force
is one of the most important concepts in jail discipline.
(>Methods for supervising and disciplining inmates Generally, force should be used only for preventing injury,
in an impersonal, unbiased manner, including the such as to subdue or separate unruly or fighting inmates;
appropriate use of force; it should never be used for punishment. Jail staff may
• Proper actions upon discovering rule violations, use only that degree of force that is necessary for self-
including procedures for the prompt, timely writ- defense, to prevent a criminal act by an inmate, to pro-
ing and filing of discipliuary reports; tect other inmates or staff, to prevent escape or a riot,
• Procedures for providing due process rights to each or to maintain order. Even then, the force used must be
inmate against whom action is being taken. only the smallest degree or amount required to restore
discipline; it must never be for the purpose of causing
Unbiased, Impersonal Supervision a'lId Discipline. It is harm.' For example, an officer is not entitled to strike an
critical that staff be trained to supervise and discipline inmate with a night stick for talking back to him. The
inmates in an unbiased, impersonal manner. The officer force must be reasonable in view of the offense and the
must avoid all forms of intimidation, threats, harassment, surrounding' circumstances.
corporal punishment, punishment by other inmates, or Depending on the degree to which inmates are disrup-
any action that may injure inmates or damage their tive or uncooperative, calm, reassuring statements by staff,
property. In addition, the officer should avoid public cen- such as "We're here to help you;' or "I understand how
sure. If an inmate misbehaves in the presence of other you feel" may aid in defusing a situation, thus avoiding
inmates, he or she should be called aside and the behavior the use of force. Where these statements do not calm the
discussed privately. An audience of other inmates can inmate, he or she may be given an alternate choice; i.e.,
have a negative effect on attempts at constructive dis- "Cooperate or we will have to .. :' etc. Where talking
cipline, particularly where they respond by heckling and calmly has no effect, the officer may need to touch the
jeering at the officer, prompting a situation that can inmate in the same manner as when guiding him or her
quickly get out of conl:',')!. through booking, holding the shoulder firmly.
Officers should UtJdeiJtalld that discipline in the jail The above procedures are often appropriate when an
is based on a system of rewards and punishments. When officer responds to or observes a situation in which an
an inmate's standards of work and conduct are unaccept- inmate has violated or is violating a rule. The following
able, he or she should be advised, counseled, and discussion details additional procedures for officers
instructed, where possible. If these steps are ineffective, encountering this situation.
66
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Effective Discipline
Proper Actions Upon Discovering Rule Violations. All Reports should be written clearly and concisely, avoid-
staff are responsible for maintaining the facility's over· ing legal jargon and unnecessary detail. (They may be
all security and safety through appropriate initial action. reviewed by the courts and should be as uncomplicated
Officers who respond to or observe an infraction must as possible.) Reports should include the following:
use good judgment in determining what constitutes a via·
• Name and ID number of inmate(s) involved;
lation, what rule has been violated, how it will be
• Date, time, and location of alleged offense;
reported, and whether formal charges will be made.
• Specific title and number of alleged offense (as stated
Officers responding to or receiving information con·
in list or code of inmate offenses);
cerning an alleged infraction should consider such fac·
• Formal statement of charge;
tors as whether the act in question actually violated rules
• An explanation offacts surrounding the event, includ-
intended to preserve order and security, whether it threa·
ing names of witnesses; unusual inmate behavior;
tened the safety of the staff or inmates, and whether it
immediate action taken, including any use of force;
was the result of sim91e ignorance or carelessness on the
pre-hearing detention, etc.;
part of the inmate or was a deliberate defiance ofjail rules.
• Evidence disposition;
• Printed name, signature, and badge number (where
Verbal Reprimand. If, in the officer's judgment, the vio·
applicable) of reporting officer.8
lation was a result of ignorance or carelessness, the officer
may be able to correct the inmate immediately, pointing Following the filing of a report concerning a particu-
out the unacceptable behavior and explaining what is larly violent or serious incident or one regarding an
acceptable. The inmate should be advised that repeating inmate who continues to threaten security or disrupt the
this behavior will result in the filing of a formal report. facility's orderly operation, the administrator or desig-
Good judgment on the part of staff using appropriate nee may order the inmate placed in immediate, or emer-
verbal reprimands can often prevent minor infractions gency segregation_
from becoming serious problems.
A verbal warning should be noted on the inmate's Immediate, Pre.Hearing Segregation. Immediate segre-
record so the inmate cannot subsequently claim he or gation for disciplinary infractions, considered temporary
she never received it or was not told that the act in ques- pending the outcome of a disciplinary hearing, is not
tion constituted a violation. punishment; and inmates so placed are generally per-
mitted to retain authorized personal property. However,
Written Warning. Many minor offenses do not warrant except for such privileges as visiting, telephone use, and
the time and effort of a full disciplinary proceeding yet recreation, inmates undergoing pre-hearing detention
do warrant a staff response that includes a written record. are generally restricted from program participation until
Where a reprimand, warning, and/or counseling is a satis- final disposition of their cases.
factory means of dealing with a situation, the officer may Emergency reclassification to pre-hearing detention
issue a written warning, not to trigger a disciplinary should follow the procedures for immediate placement
proceeding, but to go into the inmate's file for future refer- in administrative segregation, as detailed in Chapter V.
ence. A written warning may also be issued by the dis- These procedures include careful documentation and
ciplinary board following the filing of a disciplinary immediate notification ofthe highest ranking official on
report. duty as well as the classification unit (see Figure 5.2, page
50). ACA Standards require that the action is reviewed
Written Disciplinary Reports. Where an officer 0 bserves within three working days by the disciplinary committee
or suspects that an inmate is committing or has commit- or a hearings officer and that a special housing observa-
ted a violation specified in the facility's code of inmate tion log is maintained on all inmates placed in pre-
offenses for which warnings are not appropriate, the hearing segregation as well in disciplinary segregation
officer should write a disciplinary report and file it with following a hearing (see Figure 5.7, Chapter V).o
the designated official as soon as possible (see Figure 6.1). In addition to the disciplinary committee's or hearing
(The officer should avoid threatening the inmate with officer's review of immediate segregation actions, addi-
any specific punishment; he or she has no control over tional requirements, established by Supreme Court deci-
the determination of guilt or the type or extent of poten- sions as well as ACA Standards, provide inmates accused
tial punishment and can only lose the respect of the of written rule violations and against whom disciplinary
inmates by threatening something that may not actually action is being taken with certain due process rights, as
be delivered.) detailed in the following discussion.
67
Jail Classification and Discipline
Figure 6.1
DISCIPLINARY REPORT
D REPORT # _ _ _ _ _ _ _ _ _ __
DATE OF TIME OF
INMATE: _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __ INCIDENT _ _ _ __ INCIDENT _ _ _ __
OFFENSE(S) _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ ____
DESCRIPTION OF OFFENSE
OFFICER'S SIGNATURE:
68
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Effective Discipline
DUE PROCESS AND DISCIPLINARY for that decision, including evidence relied on;
PROCEDURES such written stat~ments provide a basis for subse-
quent review of the process and of the decision;
In 1974, the Supreme Court specified in Wolffv. McDon-
nell the due process procedures that must be followed in • Except for emergency situations, inmates may be
a disci plinary proceeding in which the potential sanc- placed in disciplinary detention only after the hear-
tions include a loss of good time or confinement in segre- ing bas determined that other dispositions are
gation. Since the Wolff decision, the courts have decided inadequate to regulate bebavior within acceptable
many more disciplinary procedures cases that, along with limits, and their presence poses a serious threat to
ACA Standards, clarify, interpret, and apply Wolff. Today, the facility's orderly operation or security;
an inmate's procedural rights, which should be included • The maximum sanction for rule violations is no
in the inmates' handbook, include the following: more tban 60 days for all violations arising out of
one incident; continuous confinement for more
• An investigation is begun within 48 hours of the
than 30 days requires the review and approval of
disciplinary report;
the facility administrator; tbe time an inmate
to Within 24 hours after the investigation is com- spends in disciplinary detention sbould be propor-
pleted, the inmate who is being charged is given tionate to the offense committed and sbould also
a statement concerning the alleged violations take into consideration the inmate's prior conduct,
requiring a hearing (see Figure 6.2); the reason(s) specific program needs, and other relevant mctors.
for the proposed hearing should be clearly speci-
fied; i,e" "You set fire to your housing module on • If tbe inmate is found not guilty, tbe disciplinary
(date)"; report and all otber papers pertaining to tbe inci-
dent in question will be destroyed.lo
• The inmate receives at least 24 hours' notice of the
time of the hearing so he or she may clarify the In addition to these rights, inmates found guilty and
charges and prepare a defense; the inmate may also placed in disciplinary segregation retain certain rights.
consent, in writing, to a hearing in less than 24
hours;
• The hearing is conducted before an impartial Rights of Inmates in Disciplinary Segregation
board within 72 hours of the notice of charges, ACA Standards require that, in general, inmates placed
excluding weekends and holidays; in disciplinary segregation following a hearing have many
-At least the board chair (or the single person presid- of the same rights as those placed in administrative segre-
ing) should be trained in constitutional and agency gation (see Chapter V, "Rights ofInmates in Segregation").
rule requirements and in hearing procedures; such Among the privileges not generally afforded inmares
training is necessary for avoiding critical procedural segregated for disciplinary purposes are the following:
errors and subsequent potential lawsuits; telephone use (except for calls to attorneys and those
• The inmate is given an opportunity to prepare a related to family emergencies) and access to the commis-
defense to the charges, with the possibility of sary, recreation, television, and other programs and serv-
assistance by a staff person or other inmate if the ices. Visiting privileges are also revoked in some cases
issues are complex or the inmate is not capable of (every effort should be made to allow the inmate to notify
defending himself; approved visitors of restrictions).))
• The inmate may request and be provided staff
assistance at the bearing;
• Tbe inmate is given an opportunity to witnesses can DISCIPLINARY HEARING DECISION
and present defense evidence except when tbis APPEALS
would be unduly hazardous to facility safety; ACA Standards also require that inmates have the right
-Before denying inmate witnesses the opportunity to appeal decisions of the disciplinary hearing board to
to testify, the hearing body should at least make the administrator or other designated official not other-
individualized determinations as to their actual wise involved in the hearing process (see Figure 6.4).
threat; reasons for denying each witness should be Inmates should be advised of that right at the time they
included in the written record of the hearing; are provided with the decision. The administrator or
• Inmates are entitled to a written record of the bear- independent authority either affirms or reverses the deci-
ing (see Figure 6.3) as well as a statement of the dis- sion of the disciplinary hearing board within five days
ciplinary committee's decision and the rationale of the appeal (see Figure 6.5).
69
Jail Classification and Discipline
Figure 6.2
DATE: ____________________________________
You have been charged with the above listed disciplinary offense, which has been referred to a disciplinary board
for a hearing. A more detailed description of the offense is contained in the attached disciplinary report,
#_---------------------------------
A hearing on that disciplinary report will be held on ____________________________________________
*********************************************************************************************
(Where an inmate has been given copies of this notice and disciplinary report numbered above, the following must
be completed.)
I have personally delivered copies of this notice and the disciplinary report numbered above to:
Inmate
SIGNED: _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ ____
DATE TIME
70
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Effective Discipline
Figure 6.3
DATE OF HEARING: _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
The inmate has been advised of his right to remain silent if the offense charged has been or may be referred to
the district attorney for possible criminal prosecution.
The following is a summary of the credible evidence presented to the disciplinary board:
Findings:~ __________________________________________________________
The inmate has been advised in writing of the findings, sanctions and recommendations of the Board. _ _ __
71
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Figure 6.4
_ _ _ _ _ _ _ _ _ _ _ _ _ _ Date
MEMORANDUM
FROM: Inmate _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
This is to inform you that I am formally appealing the decision of the Adjustment Committee at the hearing held
I understand that all appeal decisions made by the Director are final on the departmental level.
Inmate Signature
72
Effeotive Disoipline
Figure 6.5
Date
TO: __________________________________________________________________________________
( ) I remand the case back to the Adjustment Committee for further action, investigation, hearing and/or
reconsideration;
( ) I am not in agreement with the finding(s) and sanction(s) of the Adjustment Committee and modify the
decision and/or disposition to be:
( ) I reverse the decision of the Adjustment Committee and find you not guilty with no sanctions imposed.
73
Jail Classification and Discipline
An appeal is a valuable means for the administrator to The right to petition for a redress of grievances was
review the actions of the disciplinary hearing board; it established by the First Amendment and is not forfeited
is virtually the only way any errors can be identified and by confinement. Inmates are entitled to report grievances
corrected before they are presented to a court. Thus, a to any proper official within the state, and jail staff may
properly functioning appeals process can reduce litiga· not interfere with the exercise of this right by stopping
tion by correcting mistakes before suits are filed. mail to public officials.
The official considering the appeal should, as a deter· In addition to such outside contacts for the expression
rent to litigation, examine any claims that the discipli· and resolution of inmates' problems, ACA Standards
nary rules themselves were not followed. If such require that all inmates have access to an internal
procedural errors are detected, a determination should grievance procedure without reprisal. Where such an
be made as to whether they were harmless, or did not internal procedure exists for receiving and responding
prejudice the inmate. If they apparently were not harm· to grievances, complaints to public officials are reduced,
less, the inmate should be given a new hearing. If, as morale improves, and records are created that reduce or
occurs rarely, procedural errors are so serious that they eliminate certain federal hearings,15
cannot be corrected fairly in a second hearing, the entire The facility'S grievance procedure should be explained
proceeding should be dismissed!2 in the imnate handbook and should allow inmates to sub·
The disciplinary hearings procedures determined by mit formal, written complaints concerning: 1) an exist·
the courts to be constitutionally required cannot be ing policy, procedure, or condition that they perceive as
ignored. Their violations open the way for judicial inter· harmful to themselves; 2) an attitude or behavior on the
vention, reversal of the disciplinary decision, and impo· part of another inmate or an employee that they perceive
sition of damages and attorneys' fees. For example, to be unjustified or unreasonable; or 3) the absence of
constitutional flaws in a New York prisoner's disciplinary policy and procedure dealing with conditions that they
hearing resulted in a $25 per day damage award plus perceive as harmful or dangerous to themselves.
damages for lost wages for each day the inmate spent in Complaints submitted as grievances should be carefully
disciplinary housing as a result of the hearing.13 reviewed to determine their legitimacy and whether they
may be resolved through other means or are serious
Discretionary Privileges in Disciplinary Pmceedings. In enough to warrant priority action. Where a preliminary
addition to the required due process procedures dis· review reveals a complaint is legitimate and attempts have
cussed, certain other privileges mayor may not be been made to resolve it through other procedures, such
afforded inmates involved in disciplinary actions, accord· as standard inmate requests, an investigation should be
ing to individual facility policy. For example, the Supreme conducted.
Court does not require that inmates have the right to con· The facility should provide written responses to all
front and cross examine witnesses against themselves; grievances, including the reason for the decision, within
therefore, any decision regarding cross examination rests a reasonable, specified time limit.16 If additional inves·
completely within the discretion ofjail officials. (If cross tigative time is required, the inmate should be notified
examination is allowed in some cases, it should not be in writing. When the inmate receives the decision, he or
denied arbitrarily in others.)14 she should ~lso be informed of the right to appeal it
In addition, the Supreme Court does not require that within a specified time limit.
inmates have the right to counsel unless the alleged vio·
lation is one for which the inmate can also be prosecuted.
Howevel~ some agencies allow counsel's assistance before
and during the hearing, with the latter generally limited Emergency Grievance Processing
to advising the inmate in matters of due process. Priority attention should be given any grievance when
normal review procedures might be detrimental to the
safety or welfare of the inmate; i.e., where there are alleged
GRIEVANCES threats against the inmate's life, welfare, or the facility's
Facilities that have not carefully followed due process security or where there are complaints of inadequate
procedures in all disciplinary as well as other inmate· treatment involving an inmate with serious medical, psy·
related actions are more likely to be burdened with chological, or physical problems. In addition, complaints
inmate grievances than those that have adhered strictly by an inmate scheduled for transfer regarding deficien·
to such procedures. However, all facilities should be pre· cies in policies, procedures or conditions that might be
pared for the receipt and processing of grievances per· categorized as civil rights' violations warrant prompt
taining to every aspect of the inmates' routine. attention.
74
Effective Discipline
75
~':'.l~.-o;~".,'I},..~,;;:."ljf,~!:!iVh'!f.'.\,f""'1 •. t."'N,.4~J?'~,<r.-nr..~.q,J,J .•\~o.;, ,S,., ,.",,,,,,,~"''''':-'''J' .",,,,-~ <'
~-;"",t,t,,1'!\'"'!'.'i'lliI3!11!1!Q1i)J!!!!i.;;;""':;~!II!I«'!'II'
.. R... ..AFl
APPENDIX A
Objective Classification:
A Model System
The following objective classification system was devel· The Initial Custody Assessment Scale (Figure A.2)
oped by the National Council on Crime and Delinquency and the Severity of Offense Scale (Figure A.3) are used
and the Correctional Services Group under a grant from during initial classification only on those inmates who
the National Institute of Corrections. It is being imple· were not released after booking, as explained in the infor-
mented in Marion County, Oregon; Johnson County, mation following them.
Kansas; and Hillsborough County, Florida. It utilizes the The Custody Reclassification Scale (Figure AA) is
same instruments for both pretrial and sentenced inmates. used at regular intervals and when new information
The Inmate Screening Form (Figure A.I) is utilized affecting the inmate is received. The Severity of Offense
by the booking officer and, as explained in the informa- Scale is applied for items 1 and 2 under "Maximum Cus·
tion following it, it functions as a preliminary step in the tody Evaluation" on the Custody Reclassification Scale;
classification process and is applied to the entire booked and Figure A.5, the Disdplinary Sevedty Categories list-
inmate population. ing, is applied to item 6, the "Most Serious Disciplinary
Conviction:'
77
'''7'''''V",; .•".·<... :::'tk~.'j,.:,:,:-."!-t',,,-, ,. '("-> ,r.,.".y~"", ,,{'"<':'," ,;;--" ,C,' e·" .,'., ""... ~<.-'" .'.'" ",' ' .• c,,'- '"'
~'!.. M(~,:"JJ .. L14P..A.t$1~
Figure A.l
MARION COUNTY JAIL
Inmate Screening
Ie IDENTIFICATION
Inmate Name (Last;-First, HiddleT-
2. SUICIDE RISK
Yes •• No •• Suicidal Threats
Yes •• No •• Physical Signs of Suicide Attempts
Yes •• No •• Withdrawn/Non-communicative
Yes •• No •• Flight on Minor Charge 6. MANAGEMENT RISK
Yes .. No •• Report Received From Other C.J. Agency Yes •• No •• Disruptive/combative behavior during
Yes .. No •• Report of Medical Staff arrestlintake
YES NO CURRENT SUICIDE RISK Yes •• No .• Violence History While Confined
Comments: Yes •. No .. Disciplinary Violation Histor,
Yes •• No .• Gang Affiliation
Yes •• No .• Past Management Problem
YES NO CURRENT MANAGEMENT RISK
Comments:
3. MENTAL HEALTH
Yes .. No •• Use of Psychotropic Medication
Yes •• No •• Abnormal Behavior (specify in remarks)
YES NO CURRENT MENTAL HEALTH NEEDS 7. MEDICAL HEALTH
Comments:
Complete the medical screening form. Briefly
describe any medical problems which need to be
brought to the attention of the housing unit:
4. PROTECTIVE
CUSTODY
Yes .• No ••
MentalLy Deficient
Yes •• No ••
Witness 8. REMARKS:
Yes •• No ••
Known Informant
Yes •• No ••
Known Enemies in FaciLity
Yes •• No ••
Acknowledged Homosexual
Yes •• No ••
Charged with Heinous Crime/Notoriety
Yes •• No ••
Criminal Justice Personnel
Yes •• No ••
Expressed Need for Protection (Inmate
must complete PC Request)
Yes •• No •• Other Need for Protection
YES NO CURRENT PROTECTIVE CUSTODY NEEDS
Comments:
78
Appendix A-Objective Classification: A Model System
b. Other identified risk/needs (Discussion required if officer recommends an override of the screening
instrument): _______________________________________________________________________________________________________
79
Jail Classification and Discipline
An Inmate Screening Form is completed for each inmate upon admission to the
facility. This includes an offender who has been previously booked, then
released pending trial, and is now returned to serve a jail sentence. Most
of the information needed to fill out the Inmate Screening Form can usually
be obtained from the committing documents, inmate interview, and stafr
observation. However, the staff member completing the screening form is
also to ask the arresting officer about behavior relevant to the inmate's
risk and need assessment. To ensure a fair trial, detailed questions abou~
the inmate's current charge(s) are avoided.
The Inmate Screening Form is a checklist designed for relatively easy and
quick completion. It requires only yes and no responses to various
assessment criteria and, where necessary. brief commentary. Completion of
this form functions as a preliminary step in the classification process. It
is to be used to assist with inmate management and stafr decision-making
during an inmate's first 72 hours in custody. A more thorough assessment of
each inmate will be performed at initial classification.
Completion Policy:
The screening form is completed on each inmate within two hours of admission
to the jail floor. Inmates who hav~ been previously &.dmitted and released
(i.e. pending trial) require a new screening when readmitted.
INSTRUCTIONS
Section I: Identification
Inmate Name: Enter inmate's full name (last, first, middle initial).
Screening Date: Enter the date the screening form is compeJted using
numbers to indicate month, day, and year.
80
~,~~~7"'f"l"!.~J!lI:'!!,,~ .. '
$§1'l!I!9(ji~-
"""."",,''''''0'!!!'O!Hl!!II'd#Im!j4i2!1!!!1!194!!1'1!-..
General Instructions:
In each of the seven screening areas, circle "yes" or "no" for each
line item to indicate that ,he issue has been addressed in screening.
AnY "yes" response to any line requires a "yes" response be circled for
the current needs in that screening area.
Screening Items:
81
Jail Olassification and Discipline
82
Appendix A-Objective Classification: A Model System
83
Jail Classification and Discipline
Current Security Risk: If any Q.!JS. of the above criteria has received a
"yes" response, circle "yes." A brief explanation for an affirmative
Current Security Risk designation is to be provided in the Comments
space.
84
~~~.-.--,~- -- -~--- -~ -----
88
,!""""<C,,,,,,,,,,",.,,""""',,,,,,,~""j""""""""~'"'''''''A,,,',,,,,n,,,,,,,,,,=,,,,,,,,,,,,,,,,,,,,,,,,,",,n,"'''''',!',m',I,==,"",~~~ --- ----
"''"'t.''''''''',;;~~A"",'hl!!!!14i!!!'!,!Ll!!!llh~I!!!/!X¥!I!i"'H
e. Indicate the referrals made for the inmate and reason for the
referral. Provide the date and time of referral.
86
Figure A.2
MARION COUNTY JAIL
INITIAL CUSTODY ASSESSMENT SCALE
I IDENTIFICATION
Inmate Name (Last. First. Ml) Booking * Status
1 - Pre-Sentence
Assessmeltt Date Classificatioll Officer Officer # 2 - Post-Sentence
87
l!,,'-'.5'lI"'~~'''h'tf;~{'1'+''''''.''''f'', ,.-" .....,.,.,i':~~~~>:';e-\<:ffll?l58:\- .. " pl.'" ·!'t'):JMh' "~"'. (,>'J;A··,.f.•·,.·'.-".;. I, "«"~"".,,--:~. n
~ .:::"l'!"l'i..A"!!'!.
A!"!I!,. '. *""--:'/
dt!'!lll.i44!!!I!'!,\e;!I!lI1JI"II!_
b. Check (X] all the special management concerns which apply to this inmate:
Protective Custody Known Management Problem
Psychological Impairment Suspected Drug Trafficker
_____ Mental Deficiency Suicide Risk
Escape Threat _____ Medical Problems
Serious Violence Threat Physical Impairment
Known Gang Affiliation Other
c. Override of scale custody level is recommended • . .
1 = Yes 2 = No Code
If yes, give rationale (required):
88
,~~i"!':'~~~~!m,';L~~lIi$'::~~''''i'''';;~~~~~rtf''.~;~~~(,''\." ....,..;",,~~~.'.:'".,~;-·--;-';c;:-·--'--;-T.·'"
,a;;"~'"' .ad6L.,,,t,,.?JA?!/
Figure A.3
flWUOO COUNTY cnH.N.ITY c:aum::rlOOS
SEVERITY OF 0f"FENSE SCALE
Completion Policy:
INSTR UCTIONS
SectloD I: IdentificatioD
Inmate Name: Enter inmate's fuH Dame, last Dame followed by first
Dame and middle initial.
Items one through four are intended to identify the inmate .... ho presents a
lerious risk to the IIfety, lecurity. and orderly operation of the racility.
Inmates who .core .evcn or above on the first Cour itemJ are recommended (or
muimum cu.stody without totilling the Icorcs for the remaininl items.
90
.;l;i?3,L ..aA(.J"l MA'Ahk,i-;i-;;;«. 'fi...i..-"c ,-" ..y}I,':it'. '''.. 6'1.'' . 4",,~,,·'H:; ",.:~'. -. .
J2_",""Q!'!'l!§Q.tI[!I!!I!J,,~""'~,$Ml!!!I!i}@l!!I!v#""'1),C
:;,;;:-'--:J"''''!B
Maximum Custody SCQr.,t: Add points Cor ractors and cnter total in the
box designated -maximum c~stody score," If this ICOft Is 7 or .reater,
1-".
inmate Is (0 be assigned to maximum rustod),. The remaining factors do not
need to be totaJled unless the maximum custody score is 6 or less.
This section is designed to establish a custody score ror the inmate who is
not immediately identified as a maximum custody risk on the first four
items.
91
Jail Classifioation and Disoipline
In which the carclories Ire ~ddhive. (Eumple: A 27 year old who was
empJoyed at the time or arres~ and livinl at the lime address ror two
years has ·4 p!)ints deducted.)
Comprehensive Custody Score: Enter the lotal Icore rrom h~ms I-I iD tbe
box.
Mental Penciency: Inm3te has been examined by mental health starr and
found to have difficulty interacting with others due to limited
comprehension and communication skills.
92
Appendix A -Objective Classification: A Model System
~J.liC'ide Risk:
considered to be at risk ror luemptina '0
Inmate has been eumir.ed by mental health Itarr and is
lake his or her own life.
d. Recommended Custody Level: Afier reviewing the ICl~e Score Ind all
other information which may justify an override. enter the code
indicating the recommended custody level. This will be the same code
IS IlIa. above. if 110 i)verride is recommended.
93
Figure A.4
MARION COUNTY JAIL
CUSTODY RECLASSIFICATION SCALE
l. IDENTIFlCATION
Inmate Name (Last. First. MI) Booking # Status Reclassification
1 - Pre- Reason
8. ALCOHOL/DRUG ABUSE
No problems or occasional abuse resulting in economic or legal problems ________ 0 Score
Abuse resulting in social. economic or legal problems _ _ _ _ _ _ _,_ _ _ _ _ _ _ __ 1
Abuse resulting ill assaultive behavior _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __ 2
b. Check [X] all the special management concerns which apply to this inmate:
Protective Custody Known Management Problem
Psychological Impairment Suspected Drug Trafficker
_____ Mental Deficiency Suicide Risk
Escape Threat _____ Medical Problems
Serious Violence Threat Physical Impairment
Known Gang Affiliation Other
c. Override of scale custody level is recommended • • . •
1 = Yes 2 = No Code
If yes, give rationale (required):
95
)I·:
,r./
/J
:/ Jail Classification and Discipline
,I
Figure A.5
DISCIPLINARY SEVERITY CATEGORIES
Moderate: Any major misconduct not including physical injury or threat of physical injury; threat to
order of facility.
High: Any major misconduct involving physical injury or threat of physical injury; any escape.
96
Appendix A-Objeotive Classifioation: A Model System
Completion Policy:
INSTRUCTIONS
Section I: Identification
Inmate Name: Enter inmate's full name, last name followed by first
name and middle initial.
Reclassification Reason: Circle the reason that best describes why the
reclassification is being done. Routine means the reclassification is
being done per the time frame described by policy. Disciplinary should
be circled if the reclassification is the result of a disciplinary
infraction. Use the "other" code to indicate any other special
circumstances which may require a reclassification.
97
Jail Classification and Discipline
Items one through four are intended to identify the inmate who presents a
serious risk to the safety, security. and orderly operation of the facility.
Inmates who score seven or above on the first four items are recommended for
maximum custody without totalling the scores for the remaining items.
Maximum Custody Score: Add points for factors 1-4, and enter total in the
box designated "maximum custody score." If this score is 7 or greater,
Inmate is to be assigned to maximum custody. The remaining factors do not
need to be totalled unless the maximum custody score is 6 or less.
This section is designed to establish a custody score for the inmate who is
not immediately identified as a maximum custody risk on the first four
items.
98
~---- ----.--~
Comprehensive Custody Score: Enter the total score from items 1·8 in the
box.
Mental Deficiency: Inmate has been examined by mental health staff and
found to have difficulty interacting with others due to limited
comprehension and communication skills.
99
-------------------------------------~---------
Suicide Risk: Inmate has been examined by mental health staff and is
considered to be at risk for attempting to take his or her own life.
d. Recommended Custody Level: After reviewing the scale score and all
other information which may justify an override, enter the code
indicating the recommended custody level. This will be the same code
as lIla. above, if no override is recommended.
100
Appendix A-Objective Classification: A Model System
101
APPENDIX B
Classification rr9am
Decision Making:
A Model System
The classification system in the Fairfax County Adult placed on a magnetic master location board. The board,
Detention Center, Fairfax, Virginia, operates under the which is divided into housing blocks, provides a means
Institutional Classification Committee (ICC), with all ini- for immediate visual monitoring of each inmate's loca-
tial custodylhousing recommendations by classification tion and also ensures that only inmates with particular
officers as well as all status changes and reassignments similarities are housed in the same block.
subject to this committee's approval. The tags are coded according to inmate size, age, pre·
The system emphasizes the matching and placing of vious incarcerations, medical/psychological needs, jail
inmates into similar groups, or blocks, within the facil- adjustment, sexual profile, and charge (f'.=e Figure B.1).
ity. Where nine inmates are living in one block, thorough The tags are also color·coded, indicating previous incar-
screening ensures that the tenth person will fit into that cerations, work force status, and escape risks.
group before being placed there. For example, an inmate who is 39 years old, weighs
The detention center houses approximately 700 between 190 and 204 pounds, is being held on first· degree
inmates, of whom 66 percent are generally recidivists and ITmrder, has previously served 20 months or more, has
85 percent are felons. Its classification system has evolved general medical problems, and is aggressive and an
as a result of the staff maintaining a close watch on court escape risk would be identified on a blue tag as follows:
cases and decisions during the past 12 years. It divides
the inmate population into minimum, medium, and max- John Doe
39 - L - 18.2-32
imum custody levels; however, it does not refer to the hous-
ing units by these terms. According to the staff, in the past, 1 - 2 - 7A - 7E
when inmates were classified to maximum custody, it was Since age, size, and severity of charge are considered
discovered that they tried to live up to the term, portray- prime criteria for classification in this system, this
ing the toughest image possible. inmate's tag would not be located on the master board
in the same housing block as one that contained the
following:
CRITERIA FOR HOUSING/CUS1ODY
John Smith
CLASSIFICATION 19 - M - XS - 1J
Criteria emphasized in determining inmate classification 2D - 7D· 3B
and housing assignment include the following:
The second example is a brown tag identifying a
• Age; 19-year-old drug addict who is being held on a mis-
• Size; demeanor, weighs between 116 and 129 pounds, has
It First offender or recidivist;
served time in juvenile detention, and may need protec-
• Prior criminal history; tive custody as he is mentally slow or retarded.
• Prior incarceration and adjustments;
• Severity of charge and whether felony or misdemeanor; INITIAL CLASSIFICATION PROCEDURE
• "Keep separate" status;
After approximately 24 hours in individual cells in receiv·
e Special needs, including medical/psychological;
ing, newly admitted inmates are given preliminary inter-
fiI Attitude and degree of cooperativeness;
views and transferred to the diagnostic and treatment
• Degree of aggressiveness;
(classification housing) area unless: 1) there is a reallikeli-
• Sentencing status.
hood that the inmate will be released shortly after the
As each inmate is classified and assigned to housing, initial 24 hour period; 2) the inmate is too unstable or
appropriate criteria from the above are entered in coded dangerous to be transferred for classification; or 3) there
form onto individual inmate identification tags that are is no housing availa ble for classification purposes.
103
Jail Classification and Discipline
Figure B.1
Classification Coding/profile Codes
Size Chart
XXS Between 100 - 115 Ibs. under Sft. (+ - ) 3 inches tal.l
XS Between 116 - 129 lbs Sft 3in. (+ - ) 3 incnes tall
S Between 130 - 144 Ibs. Sft. 6in. (+ -) 3 incl.1es tdll
8M Between 145 - 159 lbs. 5ft. 9in. (+ -) 3 lnches tall
M Between 160 - 174 Ibs. Sft. 9in. (+ -) 3 inci1es tall
ML Between 175 - 189 Ibs. 6ft. (+ - ) 3 inChes tall
L Between 190 - 204 Ibs. 6ft. (+ - ) 3 inches tall
XL Between 205 - 220 Ibs. 6ft. 3i!l. (+ - ) 3 inc1.1es tall
XXL Between 220 - 300 Ibs. 6ft. 3in. (+ - ) 3 incnes tall
Recidivist Codes
1 served 20 months or more LJ served time in Juv Det.
lA served less than 20 months lW served weekends only
IB served local jail time only
Adjustment Codes
7 Institutionalized
7A Aggressive
7B Legal Action Potential
7C Critical Information
7D Protective Custody
7E Escape Risk
Inmates who are charged with the following offenses will have the
code number of that offense placed on their classification tags.
Capital Murder 18.2-31
1st or 2nd Degree Murder 18.2-32
Voluntary Manslaughter 18.2-34
Abduction/Kidnapping 18.2-47
Felonious Assault 18.2-51
Robbery 18.2-58
Rape 18.2-61
Sodomy 18.2-361
:1.04
Appendix B Classification Team Decision Making: A Model Syatem
The classification staff determines t.hrough observa- concurrently with or immediately following the interview.
tions and intensive interviews which inmates are to be The classificatiun counselor gathers additional criminal
transferred from the receiving area to the diagnostic and and social background information and records his or
treatment area for eventual classification and placement her evaluation of the inmate along with recommenda-
in the general population. Inmates who refuse to provide tions for placement (or reason for additional evaluation
pertinent information will not. be assigned to classifica- referral) in the comments section of the interview form
tion housing until an interview has been completed. or the computer screen. This recommendation will then
Inmates deemed unsuited for transfer are referred to the be considered by the ICC (which is comprised of
Institutional Classification Committee (ICC) for appro- representatives of each branch of the facility involved in
priate action. Those who exhibit abnormal behavior are the classification process) at their next informal meeting,
then referred to the forensics (mental health) unit to within three days.
determine mental health or substance abuse needs_
The classification officer is responsible for preparing Functions of ICC
and distributing a transfer sheet (see Figure 5.1, Chapter The ICC is responsible for assigning custody levels and
V), listing the name, receiving cell location, and classifi- effecting status changes, making housing assignments and
cation cell assignment of each inmate undergoing clas- reassignments, and approving and assigning inmates to
sification intake. The shift property deputy, medical major programs and work. A minimum of three staff
section, inmate records section, confinement branch, and members is required to convene an ICC meeting, and any
booking deputy all receive copies of transfer sheets, which member of the staff in the grade of corporal or above
are utilized for all intra-facility transfers. may be called upon to serve on the ICC during periods
Transfer Procedure. The confinement staff, in coordina- of reduced personnel availability.
tion with the shift property deputy, conducts the trans- The ICC convenes daily, with time and frequency deter-
fer of inmates from receiving cells to the classification mined by operational necessity. Special meetings may be
housing area, at a time compatible with normal operat- convened at any time, with the senior member present
ing hours. The transfer process includes: acting as chairperson.
Infcwmal Meetings. Informal meetings of the ICC are con-
• Turning in of personal clothing, shower, and issue of
Adult Detention Center clothing, linen, and inmate ducted to make routine decisions involving the classifi-
handbook; cation of inmates, such as to consider the custodylhousing
recommendations of the classification counselors follow-
• Physical examination by the medical section;
ing their risk/needs assessment. A representative from the
• Placement in assigned cells in the classification hous-
ing area. classification section, medical section, and confinement
division must be present at ICC meetings to make initial
Following the inmates' transfer, a classification officer custody level classifications, initial housing assignments,
conducts an orientation that covers, at a minimum, the and to transfer inmates within the facility. Neither
facility's policies regarding visitors, mail, commissary, advance notif1cation nor the preseIlce of inmates is
inmate request forms, telephone, medical assistance, required for informal meetings.
inmate/staff relations, daily routine, rule violations, and Additional matters subject to action by the ICC during
disci plinary proceedings. informal proceedings include assigning of inmates to pro-
Inmates spend 48 to 72 hours in the classification hous- grams and work; assigning of inmate worker status; peri-
ing area, which allows time for close observation by jail odic review (every seven days) of inmates on administrative
staff as well as for receipt of physical examination before segregation; and removing of inmates from administra-
assignment to the general population. Those inmates tive segregation for return to the general population.
found to have infectious/contagious diseases are placed
Formal Meetings. A formal proceeding of the ICC is
in medical isolation and treated before their move to
required whenever it is necessary to effect a major change
assigned housing.
in an inmate's status, such as involuntary placement into
During the period in classification housing, a classifi-
administrative segregation or removal from major pro-
cation officer conducts a risk/needs assessment, which
grams for other than disciplinary reasons. This proceed-
includes an intensive interview, to gather pertinent infor-
ing is conducted as a hearing, and the inmate who is the
mation for housing and program placement.
subject of the hearing will receive notification at least 48
Interview. The content of the inmate interview is hours in advance (see Figure 5.3, Chapter V) and will be
recorded on the classification intake form (see Figure B.2.) afforded the opportunity to be present. For a complete
or entered into classification section computer terminals discussion on the hearings process, see Chapter V;
106
Figure B.2
NAME: ADC # - - - - - RECEIVING CELL _ _ _ __
LAST FrRST MIDDLE
AKA:
SSN: DOB: - - - - - - -
W B AGE POB· __________
HT. WT. HAIR EYES _ _
ATTY: PHONE #: ________ SPECIAL DIET: ___________ LOW BUNK
po: PHONE #: _______ CLOTHING SIZES: TROUSERS SHIRT SHOES
------------------ --
SCARS/TATOOS RELIGIOUS PREFERENCE :_____________
COURT
CHARGE F M BOND DATE STATUS NCIC CHECK
•
REQUESTED ____
b
I
RECEIVED
Gl
PHONE CALLS GIVEN
I I
DATE/#_ _ _ _ __
PSYCHOLOGICAL INFORMATION
NATURE OF PROBLEM: _ _ _ _ _ _ __ NATURE OF TREATMENT: _ _ _ _ _ _ __
FACILITY OR PROGRAMS: ~_~~ _ _~~~~_ _ _ _~_ _ _~~~._ _~
INPATIENT OUTPATIENT DATES OF TREATMENT: _ _ _ _ _,_ _ _ _ _ _ _ _ _ __
SUICIDAL THOUGHTS:
SUICIDAL ATTEMPTS:
YES NO
YES NO
PRESENTLY
PRESENTLY
-- PAST
PAST IF YES; WHEN, HOW AND REASON:
107
~~-
~- ~- -~
CONSULTATION DATE: _ _ __
CONSULTATION DATE: _ _ __
CONSULTATION DATE: _ _ __
CONSULTATION DATE: _ _ __
Computerjzed Classification:
A Decision Tree Model
The Multnomah County (Oregon) Detention Center certain criteria used in Multnomah's system, such as
(MCDC) employs a computerized decision·tree classifi· behavior alerts and attitude severity, require the classifi·
cation system that facilitates fast inmate processing and cation staffs subjective appraisal. Therefore, this system
accurate, consistent decision making and is readily adapt· is not considered a purely objective one; rather, it requires
able to both large and small facilities. The decision tree that highly trained classification personnel enter into the
is applied to both pretrial and sentenced inmates. computer both their subjective assessments and certain
MCDC is a "new generation" maximum security facil· objective criteria.
ity that holds 526 inmates in separate housing modules.
The designation of each module may be changed sim·
ply by changing the post orders based on information
INTAKE AND CLASSIFICATION
obtained in the classification process. The jurisdiction PROCEDURES
also maintains the Multnomah County Correctional Facil· Upon arrival at the MCDC, each detainee spends approx·
ity (MCCF), which holds 186 medium security inmates; imately 15 minutes with two to four officers at the book·
the Multn·Hnah County Restitution Center (MCRC), a ing counter. During this interaction, the detainee is
minimum security work release facility for 80 inmates; observed closely for aggressive, violent, or abnormal
a maximum security court house jail for 70 inmates; a behavior. Following booking, the new arrival proceeds to
home arrest program for sentenced inmates; and a home the nurse's station, located near the booking area, for
arrest program for pretrial detainees. medical screening.
Multnomah's classific<l;tion system was developed Following screening, medical staff recommend one of
through the combined efforts of personnel representing the following for each inmate: rejection from custody due
all units of the facility involved with the classification to severe medical problems; placement in special hous·
process, including the medical, recognizance, custody, ing due to a disability, a need for special observation/treat·
program, work release, and receptionlintake staff. With ment of suspected contagious disease, or a need for
input from each unit, the group weighed all potential detoxification; or general processing.
criteria for assessing inmate risks and needs and selected At this point, the intake staff determines where the per·
those deemed most critical for incorporating into their son should be held prior to moving on to classification
new classification system. modules. Inmates who are completely cooperative and
Once the criteria for assessing inmate custody/hous· coherent and not intoxicated, disruptive, or seen as secu·
ing needs was determined, a computer specialist demon· rity threats to themselves or others are generally placed
strated the means by which a computer could be in a large room with others of a similar demeanor, where
programmed to follow a path through a decision tree and they are closely ohserved in a low·key atmosphere. Those
reach a logical recommendation for each inmate's clas· who exhibit signs of potential management problems are
sification status. This specialist then taught the staff not placed in single cells or, depending upon the degree of
only how the system worked, but also how they could problem behavior, observation cells close to the booking
renew it themselves, as necessary. area.
According to staff members implementing the system, Suicide prevention is a major concern during the ini·
Multnomah's decision tree process is fast and easy to use tial period after incarceration; therefore, all new arrivals
since little writing and no arithmetic is involved. In addi· are under constant observation. Persons arrested for DUI
tion, the system can be adapted for facilities that do not are considered particular suicide risks, as are those in
have access to a computer; these facilities then have the withdrawal from drugs or alcohol.
option of computerizing the system at a later date. During the first few hours in holding, detainees are
While the use of an instrument such as the decision interviewed by the recognizance unit, to determi ,e their
tree is characteristic of objective classification systems, eligibility fOf release on personal recognizance.
ill
Jail Classification and Discipline
After initial observation in the intake area, inmates who into the computer:
appear to have psychological disorders, are experiencing
• Charge score (see Figure C.6);
drug or alcohol withdrawal, or are apparent security risks
• Behavior alerts (as many as six behavior alerts can be
are moved into special housing, as appropriate, for closer
assigned any inmate);
observation. A "Request for Psychiatric Evaluation"
• Needs assessment (see Figure e.3);
(Figure Col) is completed for inmates moved into the men·
• Attitude severity (see Figure C.7).
tal health unit, indicating the reason for referral. The
examiner completes the bottom portion, returning a copy In addition to the above, the officer enters whether the
to classification, indicating the results of the evaluation. inmate has had prior institutional problems and whether
After 24 to 48 hours in the holding area, inmates who he or she is a judicial person. (See Figure C.S.)
display no aggressive or self.destructive tendencies and The computer uses this information and a predeter·
have no special mental health or medical n.eeds are moved mined logic plan (see decision tree, Figure e.9) to arrive
to a classification module, where they are maintained and at a classification recommendation. The staff agrees with
observed in close custody, awaiting interviews, risk/needs the computer's "logic" approximately 95 percent of the
assessment, and initial classification. time; where they do not agree, subjective overrides are
used, with input from the entire classification team.
For example, a male inmate who is known to be an
Interviews escape risk may, through the computer's pre·programmed
Inmates who have been referred to special holding areas logic, be recommended for administrative segregation.
for evaluation/treatment are interviewed there by classifi· However, his attitude may be calm and cooperative, and
cation officers within 24 hours, or as soon thereafter as he may not appear to be a disciplinary problem. The clas·
the inmate is coherent and cooperative enough to commu· sification team may decide, in this case, that this inmate
nicate. Inmates who have been moved to classification mod· may be managed effectively in close custody.
ules are interviewed within 24 hours of their arrival there.
The interview is conducted in a confidential manner;
and beginning with the least intimidating questions (see Decision Tree Process
Figure C.2), an attempt is made by the classification The decision tree system operates in the following man·
officer to establish some degree of rapport with the ner: Following the officer's input of charge score, behavior
inmate. During the interview, the inmate's attitude toward alert, needs assessment, and attitude, the decision tree,
authodty, officer observations, and special needs are beginning at the top, "asks" itself if the behavior alert
noted. In completing the "Needs Assessment" portion entered is "S" (suicidal) or "P" (psychiatric). If the answer
of the interview form, the interviewer indicates the is yes, the computer moves down to ask if the behavior
inmate's educational level, alcohol and drug abuse (A & alert "U" (unstable/unpredictable) has also been entered.
D), mental health (MH), and particular stressors, circling If the answer is yes again, housing in the "psych" unit is
those letters that indicate special needs in the "Domes· recommended.
tic" entry and adding any other letters, as appropriate. If the behavior alert "U" has not been entered, the hous·
(See Figure C.3 for explanation of special needs codes.) ing recommendation is "mental close"; i.e., the facility's
The officer may also add a statement to further clarify protective custody unit for the mentally unstable that is
stressors or needs in the space to the right of the needs one step less secure than the "psych" unit. Ifthe behavior
assessment. alert "S" or "P" has not been entered at the beginning
The inmate is asked whether he or she feels the need of the tree, the computer moves down to ask itself if the
for protective housing and is shown the interview form, behavior alert "E" (escape risk) has been entered. If the
which is completed to this point. The inmate signs the answer is yes, the housing recommendation is adminis·
form, either waiving protective custody or requesting it, trative segregation; if the answer is no, the computer then
while the officer observes him or her closely, answering asks itself if the inmate has a history of institutional
any questions. The inmate is then excused and the officer problems or has a behavior alert of "N' (assault risk) or
completes the form immediately, sltmmarizing all obser· "D" (repetitively disruptive). lfthe answer is yes, the com·
vations; completing the "History Risk" after a complete puter asks if the attitude level entered is "4" (A = 4),
inmate background check; noting previous institutions indicating an offender who is belligerent or hostile (see
and persons contacted; and indicating behavior alerts. Figure C.7). If the answer is yes, the custody/housing rec·
(See Figure C.4 for explanation of behavior alert codes.) ommendation is administrative segregation; if the answer
As noted on the classification officer's daily audit is no, the computer asks itsdf if the behavior alerts M,
(Figure C.5), the following information is then coded I (mental, easily intimidated) have been entered. If they
112
Appendix C-Computerized Classification: A Decision Tree Model
have, the housing recommendation is "mental close"; if levels as beds become available. (See Figure C.lO.) "Keep
they have not, the computer asks if the behavior alert N separate" or other specific placement information is
(informant) has been entered, and so on. noted on this list by classification personnel.
General Population Recommendation. If the answer Each day, the previous day's contingency list should be
is no to each question the com puter asks itself about an consulted to ensure that no improper or emergency
inmate, the computer follows the entries down the right moves have been made in the absence of classification
side of the tree and recommends general population staff. In addition, the daily computerized management
housing. Depending on the inmate's charge score, he or program entitled "Inmate Moves" is reviewed to check
she may then be considered for medium or minimum on all housing transfers in a 24-hour period.
security housing as discussed below; however, 70 percent While awaiting their moves to assigned housing,
of all inmates begin their sentences in the general popu- inmates remain in classification modules in close custody,
lation, which is maximum security, or the Multnomah generally for a period of approximately 24 nours. An
County Detention Center (MCDC). Within that general inmate management card is marked with a "c" to indicate
population, only "keep separates" and gang members are the inmate has been interviewed and classified. Any perti-
further categorized. nent behavior alerts that will contribute to safety in mov-
ing the inmate, such as suicidal, psychiatric, assaultive, escape
Medium Custody Recommendation. Further consider· risk, keep separate, etc. should be placed on this card.
ation is given new inmates who are recommended for
general population housing and whose charge score is Post Classification Movement
in the range of 10 through 22. These persons are eligible After initial classification, inmates may be moved up (into
for consideration for medium custody housing in the
higher custody) through the disciplinary hearings proc-
Multnomah County Correctional Facility (MCCF).
ess or negative officer updates. Movement down may
Inmates already housed in MCDC who are reclassified
occur via an inmate request (a request may be submitted
from close custody to the general population must remain
once every 30 days), staff classification review, fulfillment
in the general population for a minimum of two weeks
of designated time periods without disciplinary
before being considered for reclassification to medium
problems, and signature of one day and one swing shift
custody and corresponding housing in MCCE
module officer. Changes in inmate charge/hold status may
also result in classification changes.
Minimum Security Recommendation. New inmates
Figure C.ll is a classification update form for recording
recommended for general population housing and
inmate behavior alerts based on inmate or staff statements,
whose charge score is 9 or under are eligible for consider-
law enforcement information, recognizance data, past
ation for minimum custody work release housing in one
corrections records or criminal records, court orders,
of the following: the Multnomah County Restitution
information from concerned citizens, and observed
Center (MCRC); the Intensive Supervision Program (ISP),
behavior. For example, an officer who becomes aware of
the home arrest program for sentenced inmates; or Close
special circumstances which may change an inmate's clas-
Street Supervision (CSS), the home arrest program for
sification status or housing assignment (inmate conflict,
pretrial detainees. Some home arrest inmates are moni·
etc.) should communicate this information on a classifica·
tored on electronic bracelets.
tion update form. These records are used in regular clas-
New inmates eligible for minimum custody work
sification reviews as well as in initiating special reviews for
release consideration who have served prior time in Mult·
potential changes to more or less restricted housing.
nomah County's general population with no problems
Updates are also entered into the inmate's computerized file.
are not initially assigned to work release; rather, they
Behavior alerts are dynamic and are updated in
begin their current sentences in medium security. After
response to ll1formation placed on the classification
screening and observation there for approximately one
update forms. Each day, classification staff are responsi-
week, they move on to the minimum custody work release
ble for retrieving classification updates submitted by var·
program. New inmates eligible for work release who
ious staff and for verifying all information thereotl. Based
served prior time with problems must begin their cur-
on this verification, classification staff determine whether
rent sentences in general population housing, moving
to change the inmate's existing behavior alert-a move
thmllgh tn{!dium and into minimum security according
that may potentially require reclassification action.
to their behavior.
After the custody/housing decision has been made, fte Appeals. Inmates may appeal their classification any time
newly assigned inmate is added to a contingency list of within 30 days of initial assignment. The appeal automat-
those who are to be placed in the various classification ically opens the classification decision for review by the
113
Jail Classification and Discipline
classification supervisor, who reviews all information upon a thorough review, changes the inmate's status or
regarding the inmate's assignment. A written response denies the request.
is sent to the inmate (Figure C.12), a copy of which is Documentation. A classification file is developed for
placed in his or her classification file. In addition, an each inmate who has progressed to the classification
inmate who becomes aware of special circumstances that assignment stage. All staff· or inmate·generated classifi·
may alter his classification, such as a change in legal sta· cation documents are maintained in this file; all changes
tus or protective custody needs may send a Program and reclassifications are reflected in a chronological clas·
Request form (see F;§lre 3.1, page 18) to classification sification history sheet. In addition, all factors considered
to have his or her ~illtus reviewed. The classification staff by the decision tree and the final classification assign·
consults with the module officer for an update on the ment are entered into each inmate's computerized file.
inmate's behavior, interviews the inmate, and based
114
Figure C.l
INMATE'S NAME
-------------------------------------------------- DOB ---------------------------
MODU~r.~E _______________________________________________________ DATE
Reason Requesting Evaluation (i.e., unusual behavior, past history, etc.). Please be
specific and circle if any of these areas exist:
EXPLAIN:
Treatment Plan
Suggest0d Housing
Examiner's Signature
Copies to: 1 - MCDC Nursing Office (4th floor), 1 - Classification, 1 - Staff Person
11B Originating Request
Figure C.2
MULTNOMAH COUNTY SHERIFF'S OFFICE
CORRECTIONS DIVISION
INMATE CLASSIFICATION FORM
-
RBJ/ Ja il Experience
-- -------------------
I HAVE HAD SOME OF THE DANGERS AND PROBLEMS OF JAIL "SOCIETY" EXPLAINED
TO ME. I UNDERSTAND THAT MY PHfSIQUE, CHARGES, BELIEFS, OR AFFILIATIONS
COULD CAUSE ME TO BE VICTIMIZED. I FEEL I .•.. do . • . . do not NEED
SPECIAL HOUSING CONSIDERATION.
0
----------------------------
Witness Inmate date
Behavior
B
S
--------------
withdrawn appropriate aggitated
E
R
V
Attitude
-----------------------------
passive friendly hostile
A Affect
T fearful coping immature/impulsive
N
I
0
Danger
- to self no danger - to others
PS 603
ll6
,...
H
I
£1 Ell History of violent arresta.
-
S
T ID III Mental health proble.s.
0
R - -.
y Prior Institutional Behavior:
R ~ rn Minor problems
I m D Major problems
S
K -Escapes (verify nature'
rtl II I
L.E.O Institutions 0 B
;E
g A-
E-
Assault Ri sk
Escape Risk
P.o.O Other _________________ C1 D- Repetitively Disruptive
C H CJ K- Keep Separate
o A CJ T- Return From MCCF
N V C1 H- Homosexual
I - Easily Intimidated
T
A
C
I
0
It
§ N-
V-
Informant
Return from ISP, CSS
or MCRC (Program Violation)
T D S- Suicidal
5 A C1 P - Psychiatric
M- Mild Mental Condition
L § C- Charge Violent
E R- Recidivist (prior prison)
It § F- First Jail Experience
~
T J - Juvenile
5
U- Unstable / Unpredictable
o- No Problem Behavior
G- Gang Membership
~I 0 Medical 5u.lllary:
A CI Psychiatric
S 0 Admin. Seg.
S
0 Close Custody General_
A 0 Close Custody P.C.
S
5 0 Vulnerable
I o General_
G
N o
Mini.u.
M Hcep' Priority
-
E
N
Behavior Alert.s
-
T
.....
Review Date .
-
I
CLASSIfICATION STAFF SIGNATURE/ DATE
117
Jail Classification and Disoipline
Figure C.3
NEED ENTRIES
DEFINITIONS
CODE
A Alcohol: Apparent alcohol abuse. Imnate may be receiving or needing treatment.
P Psychiatric: Inmate may be receiving or needing psychiatric treatment.
R Retarded: Inmate considered ·to have less than normal intelligence (IQ may be signified by lack of formal
education or by participation in special education classes).
D Drugs: Past record of admitted illicit drug use. Considered to be a drug abuser, currently receiving or believed
to be in need of treatment.
J Job: Able to work but is unemployed or employed considerably below his or her expected level of capability.
M Medical: Serious limiting medical condition. Receiving or needing treatment.
H Housing: At the time of arrest, defendant reported no stable address andlor stated that upon release will
have no stable address.
E Education: Inmate lacks GED or high school diploma.
L Language: Inmate unable to speak English sufficiently to care for himself or herself adequately either within
the facility or in the community.
118
Appendix C-Computerized CIassification-A Decision Tree Model
Figure C.4
BEHAVIOR ALERfS
Not all behavior alerts are negative; some measure predicted stability based on past positive performance. A maximum
of six behavior alerts can be assigned to any inmate, and all alerts that fit an individual inmate should be assigned for
statistical purposes and to measure the effects of different combinations of individuals in module assignments.
DEFINITION
CODE
A Assault Risk: An inmate who has had write-ups for assaultive behavior while incarcerated; an inmate whose
charge and/or criminal record, coupled with a current attitude of hostility toward staff or other inmates leads
staff to conclude that there is substantial risk of assaultive behavior.
E Ei!lcape Risk: An inmate who has been arrested for Escape I; an inmate who has been arrested for Escape II
from a maximum or medium security institution; an inmate who has had an institutional violation for possess-
ing escape tools or attempting to escape from a medium or maximum security institution. Severity of charge
or combination of charges leads staff to believe subject may attempt to escape.
D Repetitively Disruptive: An inmate with prior, documented history of chronically disruptive behavior. Either
an informal leader who incites others to perform disruptive behavior or an immature individual who by actions
in the module promotes fights or other disruptive behavior.
K Keep Separated: Inmates incarcerated for se.x crimes who need protective custody; co-defendants; gang mem-
bers; inmates incarcerated for notorious crimes; any inmate whose safety is jeopardized by contact with a specific
other inmate or group (e.g., police officer).
H Homosexual: .J.\.ny inmate who indicates he is gay or bisexual or for whom there is appropriate documentation
of past homosexual activities. (Inmates who are undergoing t,dilssi:Xual opctations that have not yet been com-
pleted or those born with both male and female sexual characteristics should be screened medically and housed
in the medical unit.)
I Easily Intimidated: An inmate whose age, size, behavior, or lack of institutional sophistication makes him prone
to be victimized by the inmate population.
N Infonnant: An inmate who has acted as an informant, either for law enforcement or corrections.
S Suicide Risk: An inmate who has recently attempted or threatened suicide, is diagnosed by medical staff as
being suicidal, or displays severe depression or remorse for a crime of passion.
P Psychiatric: An inmate diagnosed by medical staff as having psychiatric problems; an inmate suffering from
disorientation, hallucinations, incoherent rambling, severe depression, or hyperactivity; or an inmate who admits
to past psychiatric/pathological labeling.
M Mild Mental: An inmate with a history or diagnosis of mental illness who is found by medical staff to be stable
and not in need of housing on the special housing floor.
e Charge of Violence: An inmate whose current charge is on the "violent offense" list or who has been arrested
three or more times in a five-year period for offenses on this list.
F First Offender: An inmate whose current booking is his or her first adult jail experience.
J Juvenile: An inmate under the age of 18 who is remanded to the adult court system.
119
Jail Classification and Discipline
CODE
U UnstablelUnpredictable: An inmate who shows an unwillingness to cooperate; who appears to have a chip on
his or her shoulder; who does not appear to respect authority; or who has a history of any of these characteristics
while in custody.
o No Problem: An inmate who appears to have no history of problems while incarcerated and from whom no
problem behavior is expected.
T An inmate who has been returned to MCDC (maximum security) from MCCF (medium security) for a negative
classification update. Once inmate has earned his or her way back to MCCF, behavior alert T is removed from
records.
v An inmate who has been returned to MCDC for a disciplinary write·up or negative classification update from
one of the facility's minimum security work release programs. Once inmate has earned his or her way back to
minimum security work release, the behavior alert V is removed from records.
G An imnate who is affiliated with a recognized gang or motorcycle club, either in the community or within the
jail or prison system.
120
Figure C.5
CLASSIFICATION DAILY AUDIT
INTERVIEWER: DATE:
.",.
....
.....
...0lIl ~ .x
.
". j""III
t....I ~ :x
.
.",. ."II1II IJII""
.... L..II [X
JI'" 1"'11 .",.
.... L.. .... [X
... . """III
.....
,....
lr
JI'" ""III"'"
~
1--'
.... ...0lIl" IX
... L..I III..
II"'" ("""III III""
(XI
,
I
.... -'"~
JI'"
[XI
I
~ ~
.... l1li .. ~
I
1...... l1li... ~
~ ~
~
~
Figure C.6
CHARGE SCORE
(Transfer Eligibility/Priority)
l. Sentenced or unsentenced with work release recommended.
2. Sentenced but restricted from work release.
MINIMUM 3. Sentenced with added unsentenced recoggable charges.
SECURITY 4. Unsentenced ordinance violator.
IF NO 5. Unsentenced traffic.
ADVERSE 6. Unsentenced misdemeanor.
BEHAVIOR 7. Unsentenced misdemeanor/traffic probation hold.
ALERTS 8. Unsentenced nonviolent "C" felony.
9. Unsentenced nonviolent probation violator.
Figure C.7
ATTITUDE SEVERITY
Attitude Levels: 1. An offender who is genuinely polite and cooperative; the interviewer's expectation is that he or she
will be a "model" inmate.
2. The average inmate who presents no apparent problems in dealing with rules or authority.
3. A passive inmate who answers direct questions but is guarded and does not volunteer information;
an inmate who does not like authority but can be interviewed with tact.
4. An offender who is belligerent or hostile toward the interviewer or the corrections authority.
Figure C.B
CLASSIFICATION DEFINITIONS
During previous incarcerations injail or prison, the offender has had either a disciplinary write-up for mctior rule viola-
tion (fighting, disruption, etc.) or has had numerous write-ups for minor rule violations so as to present a management
problem to statf.
''JUDICIAL PERSON"
An inmate known as a 'Judicial person" is an offender who is currently or previously employed by the criminal justice
system (an ex-officer, district attorney, etc.).
123
SA .. S, P
S LaCI OAL, BA • BEHA VroR ALERT
Figure C.9 PSYCHIATRIC A .. ATTlTLOE
Y N
B/• .. U BA • E
ltISTABLE ESCAPE-RISK
Y N Y N
I I I
ASSIGN ASSIGN ASSIGN HIS ~-INSTlTU'rION} IL--
'PSYCH" "MENTAL -ACH IN PROBLEMS 1
CLOSE- SEG- I!A .. A,D OR,
PRIC ~-INST-PROBLEl' ~ - y
J • 1 J • 5 J • 4
y N I
I
A• 4 MURDER
ATTITlDE CHARGE?
• VERY
SERIOUS
Y I N Y N
I I I I
ASSIGN BA • M, I A .. 4 A .. 4
-AOilN MENTAL, ATTITUDE ATTITLDE
SEG M EASILY VERY VERY
J • 4 INTIM IDATED SERIOUS SERIOUS
Y NI y T N
I
ASSIGN BA • N ASSIGN BA • H. I
NHENTAL SNITCH "ALMIN MENTALI
CLOSE" SEG" EASILY
J .. 5 J • 4 INTlM IOATED
Y N Y N
I J
]
ASSIGN ASSIGN ASSIGN BA • N
"ALM IN "CLOSE" "MENTAL SNITCH
SEG" CLOSE"
J • 4 J - 2 J .. 5
Y I tl
I r-'
I
ASSIGN ASSIGN
MACH IN "CLOSE"
SEG"
J • 4 J r. 2
y N
I I
l
ASSIGN A .. 3
"ACt1 IN \liSTABLE
SEG"
J .. 4
Y I N
H,~,,,",l } I
BA .. H, I ElIsfly-Intfm. PA • If, I. M. N
MENTAL. Mental-Healtll OR JUlICIAL·
EASILY Snitch PERSON
INTIMIDATED
Y N Y I N
I
ASSIGN BA .. N ASSIGN ASSIGII
"MENTAL SNITCII " WLNERABLf" "G E~I£RAL "
CLOSE"
J .. 5 a .. 7 J • 6
J • 1 • ASSIGN PSYC MOOULE Y N
2 .. ASSIGN CLOSE
3 • ASSIGN MEDICAL UNIT
4 • ASSIGN ADMIN SEC ASSIGN ASSIGN
S .. ASSIGN MENTAL CLOSE "A01 IN "CLOSE"
6 .. ASSIGN GENERAL SEG"
7 • ASSIGN VUNERABL£ J " 4 J " 2
6 • ASSIGN MCCF
124
Figure C.IO
CLASSIFICATION POTENTIAL MOVEMENT
(From 8B and 60)
DATE:
DAY OF~W=E=E~K:---------------
7217a
126
Figure C.ll
CLASSIFICATION UPDATE
________________________________________ ID ___________________ ________________-
I
n
m
a
t
~
Dat~
126
Figure C.12
NA11E: Module:
Last Pi rst
( ] To get out of Close Custody your behavior must be positive enough to have two
~.2) module officers (day and eveningl recommend that you get out.
( ] Your name has been placed on our list to move to MCCF/General/Trusty Module.
You may not move immediately. but as space becomes available.
[ J You must get Officer to agree with this move before we will
take any action.
[ ) This is your second request on the same SUbject in less than a month. According
to the inmate manual· •.• you may fill out and return a 'Program Request Form'
(only once every 30 days) to the 'Classification' Team.- You may resubmit again
LPR/dkf/1173c'1
127
APPENDIX D
DISCUSSION: None.
2-5354::..-_ _ _ _ _ _ _ _ _ _ _ _ _ __
129
APPENDIX E
131
APPENDIX F
133
Jail Classification and Discipline
2-5311* 2-5314
When an alleged rule violation is reported: Written policy and procedure provide that in
instances in which an inmate is alleged to have com-
An investigation is begun ~'rithin 48 hours of the
mitted a crime, the case is referred to appropriate law
report.
enforcement officials for possible prosecution.
The inmate charged with the violation is given a
(Detention-Essential, Holding-Essential)
copy of any charges requiring a hearing within 24
hours of the completion of the investigation of the INTERPRETATION
alleged rule violation(s).
Regarding violations of the law, corrections and court or
The inmate receives notice of the time of the hear-
law enforcement officials should agree on the categories
ing at least 24 hours in advance of it, but may con-
of offenses that are to be referred to them in order to
sent, in writing, to a hearing within less than 24
eliminate minor offenses or those of no concern.
hours.
The hearing is conducted within 72 hours of the DISCUSSION: None.
notice of charges, excluding weekends and holidays.
134
Appendix F-ACA Standards for Adult Local Detention Facilities
2-5321* DISCUSSION:
Written policy and procedure provide that the inmate Inmates should be advised of their right to appeal deci-
is given an opportunity to make a statement and sions of the disciplinary officer(s) at the time they are
present documentary evidence, and to have in atten- provided the decision. The appeal process should consider
dance at a disciplinary hearing any person who has three factors: Was there substantial compliance with the
relevant and no unduly cumulative information, facility standards on inmate discipline; was the decision
except when doing so may severly jeopardize the life based on substantial evidence; under the circumstances, was
or safety of persons or the security or ofvier of the mcH- the sanction imposed proportionate to the offense. The
ity; such reaons for denial are stated in writing. inmate should be notified in writing of the results of the
(Detention-Important, Holding-Important) appeal.
DISCUSSION: None. There should be provisions for inmates to earn "good time';
or reductions in their sentences. This could serve as an
2-5324 incentive for inmates to remaio on good behavior during
their incarceration. The loss of "good time" credits also can
Written policy and procedure grant inmates the right serve as an effective disciplinary tool. (See related st:'1ndard
to appeal decisions of the disciplinary hearing 2-5360.)
officer(s) to the administrator or an independent
authority. The administrator or independent authority
either affirms or reverses the decision ofthe discipli-
nary hearing officer(s) within five days of the appeal.
(Detention-Essential, Holding-Not Applicable)
*With the exception of those standards that are ~lslerisked, all stan·
dards are also listed in the following: Standards for Small Jail Facilities.
College Park, MD: American Correctional Association in cooperation
with the Commission on Accreditation for COITections, 1987.
135
APPENDIX G
The following sample policies and procedures are excerpts (2) Administration of Suicide Prevention Screening
from the New York State Local Forensic Suicide Prevention Guidelines, Form #330 ADM (See page 32).
Crisis Service Model (see '~dditional Sources"). The model (3) Assessment for physical handicap(s);
is a multifaceted program designed to facilitate the iden- (4) Review of existing files (preferably rolladex) to
tification and treatment of inmates who are suicidal or determine if prisoner has attempted suicide or
acutely mentally ill, from intake through the incarceration received psychiatric inpatient services during
period. prior incarceration at the facility; and
Part I of the following policies and procedures guides (5) Consideration of any other relevant infonnation
the admissions officer in screening inmates for indications concerning prisoner's condition brought to the
of suicidal behavior prior to cell assignment. attention of the intake officer by any other
Part II guides the cOlTectional officer in observing person.
inmates on a daily basis for verbal and behavioral indica-
C. Immediately notity the tour supervisor whenever a
tions of suicidal intent and/or mental illness.
prisoner:
(1) Scores in the high risk (Score of 8 in Column
Policy: Facility personnel will make a conscious effort to
A) or immediate referral categories on the Si'li-
identity highly suicidal prisoners and/or prisoners with seri-
cide Prevention Screening Form;
ous mental health problems. Identification of such pris·
(2) Does not score high risk on the Suicide Preven-
oners will be an ongoing process which will begin at intake
tion Screening Form but displays verbal or
and continue until prisoners are released. This endeavor
behavioral indications which lead the admission
shall require the complete cooperation of all facility
officer to believe that the prisoner may require
personnel.
medical or mental health attention;
Purpose: To reduce the incidence of suicide amung the (3) Is in a semiconscious or unconscious state;
prisoner population at the (any county cOlTectional fucility). (4) Has prescribed medications within personal
property;
(5) Appears to be significantly under the influence
PROCEDURAL GUIDEUNES of alcohol or drugs; and
1. Admissions Officer will: (6) Has court orders for mental exams, suicide watch
A. Process all lawfully committed prisoners in accor- or medical attention.
dance with the (any county colTectional facility)
established policies and procedures, COlTection Law D. All such notifications will be completed by forward·
and New York State Commission of COlTection's ing a copy of the prisoner's screening form to the
Minimum Standards, Sections 7003 (Admissions) tour supervisor prior to cell assignment.
and 7013 (Classification of Inmates-New). E. Place the completed Suicide Prevention Screening
B. Screen all prisoners prior to initial cell assignment. Form in each prisoner's facility file at time of
This screening process shall include, but not be booking.
limited to: E Assign appropriate housing based upon the results
(1) Examination of all documents and records of completed Form #330 ADM and other classifica-
accompanying the prisoner for possible refer- tion determination.
ences to past or CUlTent mental health problems
and for prescribed medication and court orders G. Initiate the required documentation for prisoner
for mental health exam (e.g. CPL, Section 730 referral to appropriate health service agency, if
Exam); required.
137
Jail Classification and Discipline
138
Additiona,] Sources
PUBIlCA110NS
MANAGING ADUlT INMATES, by Herbert Quay, Ph.D., published by the American Correc·
tional Association, College Park, MD, 1981. This book contains a detailed description of a
beha.vioral classification system for adult offenders that groups inmates for effective manage·
ment and treatment.
139
Jail Classification and Discipline
Judith E Cox
Assistant Director
Bureau of Forensic Services
NYS Office of Mental Health
(518) 474-7275
AGENCIES
140
record·keeping needs of small· and medium·sized jails, LOCKUP's primary function is to pro·
vide an efficient means for jail staff to record and maintain accurate, up·to·date data on all inmate
activities, from booking to release.
System·generated reports include but are not limited to: daily bookings and releases, lists of
sentenced inmates, medical and classific2tion screening reports, inmates' court schedules, and
log repOlts detailing cell movements, visitors, telephone calls, and shift activity. LOCKUP requires
single·user micro and Local Area Network hardware.
Further information on LOCKUP may be obtained from SEARCH Group, Inc. (916) 392·2550
JAIL INJ....ORMATION SYSTEM (JIS)]IS is an automated booking, inmate accounting, and jail
population management information system for anestees from intake through incarceration.
The]IS design was based upon the information requirements of six pilot jurisdictions in Ore·
gon, California, Arizona, Kentucky, Florida, and New Jersey. Operational transactions include
but are not limited to intake, preliminary classification and housing assignment, custody manage·
ment, classification and cell assignment, and program assignment.
For further information, seeJail Information System (JIS)-An Automated Booking, Inmate Account·
ing, andJail Population Management Infonnation System, a manuar available through the NC]RS
Microfiche Program, Box 6000, Rockville, MD 20850. (Accession number 083078.)
JAILSTAR-JAILSD\.R is an on·line booking and prisoner records management system that fea·
tures 17 standard reports, and a customized repOlt generator. It is integratable with multiple
databases and uses single·user micro and Local Area Network hardware. For further informa·
tion, contact Applied Solutions, INC. (800) 722·4662.
141