U.S. Department of Justice

National Institute of Corrections

Sheriff's Guide to

Effective Jail 

Operations
U.S. Department of Justice


National Institute of Corrections


320 First Street, NW 

Washington, DC 20534 

Morris L. Thigpen 

Director 

Larry Solomon 

Deputy Director 

Virginia A. Hutchison 

Chief, Jails Division 

Jim T. Barbee 

Project Manager 

National Institute of Corrections


World Wide Web Site


http://www.nicic.org 
Sheriff's Guide to 

Effective Jail 

Operations 

Mark D. Martin 

Paul Katsampes, D.P.A. 

January 2007 

NIC Accession Number 

021925 
This document is supported by cooperative agreement #06J46GJJ2 from the 

National Institute of Corrections, U.S. Department of Justice. Points of view or 

opinions stated in this document are those of the authors and do not necessarily 

represent the official opinion or policies of the U.S. Department of Justice. 
Contents


Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v


Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii


Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix


Chapter 1. Role, Purpose, and Characteristics of the Jail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1


Purpose of the Jail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1


The Role of the Jail in the Local Criminal Justice System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1


Characteristics of the Jail Population . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2


Chapter 2. Sheriff’s Roles and Responsibilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5


Chapter 3. Providing Effective Leadership and Support for the Jail . . . . . . . . . . . . . . . . . . . . . . . . 9


The Leadership Function and Expected Outcomes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9


Creating a Vision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9


Developing and Implementing the Mission and Goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10


The Jail Administrator as a Member of the Sheriff’s Executive Team . . . . . . . . . . . . . . . . . . . . . . . 12


Managing Human Resources and Creating a Positive Organizational Culture . . . . . . . . . . . . . . . . 12


Managing the External Environment and Developing Public Policy . . . . . . . . . . . . . . . . . . . . . . . . 15


Chapter 4. Liability and Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19


Jail Liability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19


Jail Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20


Chapter 5. Jail Physical Plant . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23


Characteristics of Facilities That Support Effective Jail Operations . . . . . . . . . . . . . . . . . . . . . . . . 23


Capacity and Jail Crowding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23


Environmental Conditions, Sanitation, and Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24


iii 
Chapter 6. Critical Aspects of Jail Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27


Adequate Jail Staffing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27


Recruitment, Selection, and Retention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28


Staff Training and Supervision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30


Policies, Procedures, and Post Orders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32


Jail Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33


Jail Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35


Emergency Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36


Inmate Behavior Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38


Inmate Discipline and Grievance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42


Special Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43


Inmate Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44


Inmate Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46


Intake and Release . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48


Chapter 7. So Much To Learn . . . Where Do I Begin? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51


Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53


iv 
The National Institute of Corrections (NIC) 

recognizes that many local jails across the country 

are the responsibility of the elected county sheriff. 

With this in mind, NIC developed the Sheriff’s 

Guide to Effective Jail Operations to focus on 

jail issues from the perspective of the sheriff. 

This guide provides an overview of the sheriff’s 

roles and responsibilities with regard to the jail 

along with basic information on critical aspects 

of jail operations and management. 

The guide highlights the types of support and 

leadership the sheriff should provide to enable 

jail administrators to effectively manage the jail 

and includes other information to help the sheriff 

address jail problems, manage liability issues, 

and improve operations. Review checklists are 

included throughout the guide to help the reader 

assess the status or performance of his/her own 

jail. The guide concludes with a chapter outlining the steps a new sheriff may take during the 

Foreword


first few months in office to learn about his/her 

jail and identify potential problem areas. 

The content of the guide is drawn in part from 

the NIC publication, Resource Guide for Jail 

Administrators (Martin and Rosazza, 2004), and 

is organized to serve as a companion document to 

the larger Resource Guide. Readers interested in 

additional information about specific aspects of 

jail operations should refer to the Resource Guide. 

We hope this document will assist new sheriffs 

who are learning about their responsibilities for 

the jail for the first time as well as veteran sheriffs 

seeking to improve the effectiveness of their operations. We invite sheriffs and other readers to take 

advantage of the other resource documents NIC 

has developed specifically for jails and to contact 

the NIC Jails Division for additional assistance, 

if needed. 

Morris L. Thigpen 

Director 

National Institute of Corrections 

v 
In the United States there are more than 3,000 

county jails. In most states, the operation of the 

county jail is the sheriff's responsibility. Statutes 

typically identify the sheriff as the “keeper” of 

the jail and often include language that requires 

sheriffs to “take charge and custody of the 

prisoners lawfully committed and keep them 

until they are discharged by law.” Although 

many sheriffs hire jail administrators to manage 

day-to-day operations, it is the sheriff who is 

ultimately responsible for securing resources 

for the jail and ensuring that the jail is operated 

in a safe, secure, humane, and legal manner. 

The jail is only one of a number of major duties 

that may be assigned to the sheriff. Other duties 

may include law enforcement services, civil 

process, communications, court security, and 

inmate transport. However, given public safety 

concerns and the high potential for liability 

associated with incarceration, the operation of 

the jail is undoubtedly one of the sheriff’s most 

critical duties. 

In being responsible for the county jail, the sheriff 

faces the challenge of managing a criminal justice 

agency that is at the bottom of the priority list 

for public funds. County citizens often view the 

allocation of money for the jail as benefiting 

inmates, and they prefer making funds available 

to other “worthier” causes. In addition, law 

enforcement personnel, other county agencies, 

and public programs often view the jail as 

a competitor for public monies. The result is that 

political officials and public administrators are 

not enthusiastic about supporting the needs of 

Preface


the jail. They often wait until the courts, mobilized by inmate lawsuits, pressure agencies to 

change. This situation became complicated 

during the late 1970s and early 1980s, when jails 

became crowded in response to an increase in 

the length of sentences (primarily mandatory 

sentences for offenses such as driving under the 

influence, or DUI) and in the number of jailable 

offenses (such as domestic violence and DUIs). 

Capacity limits on prison populations, which 

kept prison-sentenced inmates in jail longer, and 

jail sentences as a condition of probation also 

contributed to jail crowding. 

Law enforcement officials, judges, prosecutors, 

and other criminal justice agency decisionmakers 

seldom admit that jail conditions and jail crowding 

have any significant impact on their policies and 

day-to-day decisions. In conducting criminal 

justice system assessments, however, officials 

often learn that jail conditions do affect how 

people do their business. The jail, although 

a low-priority public agency, can significantly 

influence the policies of the criminal justice 

system. This systemic effect requires that the jail 

population be managed and monitored regularly. 

Furthermore, criminal justice agency officials 

must recognize the influence their respective 

agencies’ policies have on other agencies and 

programs in the system. The sheriff must assume 

a leadership role to create a positive and professional jail operation and ensure that the jail is 

recognized as a significant part of the criminal 

justice system. 

vii 
As elected officials, sheriffs come from diverse management. To assist newly elected sheriffs, 

backgrounds and many begin their tenure this guide provides a basic overview of jail operwithout substantial knowledge about the jail or ations and the sheriff’s roles and responsibilities 

what is required for effective jail operations and in operating and managing the jail. 

viii 
The Sheriff’s Guide to Effective Jail Operations 

was written under the direction of the National 

Institute of Corrections (NIC). Special thanks to 

Virginia Hutchinson, Alan Richardson, Jim T. 

Barbee, and Georgette Walsh at NIC for their 

leadership and assistance in the development 

of this guide. Thanks also go to Shelley Zavlek, 

who edited the initial draft, and to Christine 

Tansey and Janet McNaughton at Lockheed 

Martin Information Technology, who took the 

document from the draft stage to final publication. 

We also wish to express our appreciation to the 

following individuals who took time out of their 

busy schedules to review and comment on drafts 

of the guide: 

Acknowledgments


❋ Nick Albers, Jail Standards Coordinator, 

Idaho Sheriffs’ Association 

❋ Richard Hodsdon, Legal Counsel, Minnesota 

Sheriffs’ Association 

❋ Sheriff Ken McGovern, Douglas County, 

Kansas 

❋ Sheriff Glen Meier, Valley County, Montana 

❋ Sheriff Craig Roberts, Clackamas County, 

Oregon 

❋ Sheriff Matt Strittmatter, Wayne County, 

Indiana 

Their thoughtful reviews helped ensure the relevancy of the guide to the intended audience and 

enhanced its overall usefulness and readability. 

Mark D. Martin 

Paul Katsampes, D.P.A. 

ix 
Role, Purpose, and Characteristics of the Jail
 1

Purpose of the Jail 

The jail is integral to local government’s public 

safety function and is an essential element of the 

local criminal justice system. It serves five basic 

purposes: 

❋ To receive and process people arrested and 

taken into custody by law enforcement. 

❋ To hold accused law violators to ensure their 

appearance at trial. 

❋ To hold offenders convicted of lesser 

offenses—usually misdemeanors, but also 

low-level felonies in some jurisdictions—as 

a court-ordered sanction. 

❋ To hold individuals remanded by the court 

for civil contempt. 

❋ To hold offenders for other jurisdictions or 

those awaiting transfer to prison or other 

facilities. 

To meet these objectives, jails are typically 

organized around two basic functions: 

❋ Booking and intake. 

❋ Custody. 

The booking and intake function of the jail 

serves a vital public safety function by providing 

a place where individuals taken into custody can 

be safely processed and assessed to determine 

the risks they present. Individuals who are not 

released shortly after intake or following their 

initial court hearing generally are those charged 

with serious offenses, who represent a public 

safety risk; those likely to flee the jurisdiction 

before their cases can be adjudicated; and those 

unable to make bond or otherwise secure pretrial 

release. Pretrial inmates constitute more than 

half of the jail’s population. The purpose of pretrial incarceration is not to punish, but to protect 

the public and/or ensure court appearance. 

In its custody function, the jail houses this pretrial 

population along with inmates sentenced to the 

jail. As a sanctioning option, the jail provides a 

means of holding convicted offenders accountable 

for their illegal acts. A central goal of incarceration as punishment in our system of justice is to 

discourage offenders from committing future 

criminal acts and to send a message to would-be 

offenders about the possible consequences of 

illegal behavior. Rehabilitation and reintegration 

are sometimes considered secondary goals of 

incarceration, and within the constraints of 

available resources, many local jails do make 

an effort to provide inmates with opportunities 

for self-help and change to deter future criminal 

behavior. 

The Role of the Jail in the Local Criminal 

Justice System 

The jail is a critical component of the local criminal justice system. It is used to address the need 

for detention at various points in the criminal 

justice process. Jails typically serve multiple law 

enforcement agencies in the community, including local law enforcement, the state police, conservation officers, and federal authorities. Jails 

also serve prosecutors, the courts, and probation 

1 
and parole agencies. The jail serves these entities 

by holding the following groups in custody: 

❋ New arrestees pending arraignment, trial, 

conviction, and sentencing. 

❋ Offenders sentenced to jail time. 

❋ Persons accused of probation, parole, or 

bail-bond violations pending revocation 

proceedings. 

❋ Offenders sentenced as a sanction for 

probation or parole violations. 

❋ Convicted offenders awaiting transfer 

to state or federal institutions. 

❋ Illegal immigrants pending transfer to 

federal authorities. 

❋ Offenders in the armed services awaiting 

transfer to military authorities. 

❋ Offenders held for violations of courtordered conditions such as failure to pay 

fines, contempt, failure to appear in court, 

violations of restraining orders, and failure 

to attend counseling. 

❋ Juveniles charged as adults or pending 

transfer to juvenile authorities. 

❋ Detainees held under contract for other 

local, state, or federal jurisdictions. 

❋ Witnesses for court. 

❋ Offenders held for state or federal authorities 

under a contractual arrangement with the 

local jurisdiction, or because the state or 

federal facilities cannot accept new inmates 

because of overcrowding. 

As evidenced by the list above, the jail responds 

to many needs in the criminal justice system and 

plays an integral role within that system. These 

needs are dynamic and influenced by the policies, 

practices, and philosophies of the various users 

of the jail. The sheriff must understand these 

various needs and be cognizant of the policies and 

practices that significantly affect the composition 

of the jail population and the demand for bedspace. The sheriff, along with other criminal justice system officials, should periodically assess 

how well the jail is meeting the needs of the 

local criminal justice system. Such assessments 

help identify the need for additional resources 

or for changes in system policies and practices 

affecting the use of the jail. 

Characteristics of the Jail Population 

The jail serves a tremendously diverse population. 

Unlike prisons, where inmates generally are of 

the same gender, legal status, and custody level, 

jails are expected to manage a broad cross section of people. At any given time, the jail population may include males and females, juveniles 

and adults, the dangerous and the vulnerable, the 

minor offender and the serious offender, the 

physically fragile and the mentally ill, and the 

chemically addicted. 

Inmates come to jail with varying degrees of 

medical, mental health, substance abuse, family, 

financial, and literacy issues. While in jail, they 

may display a wide range of emotions, including 

fear, anger, and anxiety, as well as violent, antisocial, and suicidal behaviors. The jail has a 

responsibility to appropriately house inmates and 

manage the behavior of this diverse population 

while they are in custody. 

The jail has little control over the number or 

types of inmates it holds or how long they stay. 

Rather, the various criminal justice agencies the 

jail serves—law enforcement, prosecutors, courts, 

probation, etc.—and the efficiency of case processing will largely determine who comes to jail 

and how long they stay. Laws establishing the 

role and function of the jail, criminal penalties 

for law violations, the incidence of crime, and 

public attitudes about crime also influence the 

use of the jail. 

2 
Chapter 1: Role, Purpose, and Characteristics of the Jail 

Review Checklist: Role, Purpose, and Characteristics of the Jail 

■ Does your county have a mission statement that describes the purpose of your jail? (See Chapter 3 for 

more information about jail mission statements.) 

■ If so, does the actual use of the jail correspond to its intended role and purpose? 

■ Do you have regular access to accurate data on the jail population, so as to ensure appropriate use 

of the jail? 

■ Is your jail currently meeting the needs of the local criminal justice system? 

■ Are there problems with the jail that adversely affect the functioning of the local criminal justice system? 

3 
Sheriff’s Roles and Responsibilities
 2

Jails today must be recognized and operated as 

professional institutions. They can no longer be 

operated on an ad hoc basis within the sheriff’s 

office. Regardless of their size, jails require the 

sheriff to be a full-time professional administrator 

capable of handling multiple roles internal and 

external to the jail. The sheriff must function 

effectively as the organization’s leader, as the 

manager of its operations and resources, and as 

the supervisor of the jail administrator. 

As a leader, the sheriff: 

❋ Creates a vision for the organization. 

❋ Helps define the jail’s mission and the goals 

that must be met to achieve that mission. 

❋ Creates a sheriff’s office executive management team that includes the jail administrator 

as an equal member. 

❋ Builds a culture within the jail division that 

supports the attainment of desired outcomes. 

❋ Serves as liaison to the external environment 

of the sheriff’s office (i.e., the local criminal 

justice system, special interest groups, stakeholders, the community, and the media). 

❋ Influences and develops public policy 

supporting the agency mission. 

❋ Creates and maintains a competent and 

diverse workforce. 

As a manager, the sheriff: 

❋ Mentors and coaches the jail administrator 

and other staff to elicit desired behaviors and 

develop talent. 

❋ Ensures that policies and procedures that 

meet professional standards are established 

to guide the staff and the organization in 

day-to-day operations. 

❋ Motivates the jail administrator and other 

staff to align their personal goals with those 

of the jail. 

❋ Implements the policy of the sheriff’s office 

by providing thorough written directives and 

training on those directives. 

❋ Monitors activities and assesses results by 

collecting and analyzing performance data 

on a regular basis. 

❋ Manages and allocates budgets, staff, and 

other resources. 

❋ Manages the organization’s preparation 

for and response to crisis situations and 

emergencies. 

As a supervisor, the sheriff: 

❋ Stays informed about day-to-day operations 

in the jail and is visible and available to 

assist when necessary. 

❋ Monitors compliance with policies, standards, and legal requirements through the 

establishment of a systematic internal 

inspection and review process. 

❋ Supports and facilitates the jail administrator’s 

efforts to redirect underperformers and 

address misconduct of jail staff. 

❋ Monitors the jail administrator’s performance through regular reviews and quality 

assessment. 

5 
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Sheriffs need the trust and support of their jail 

administrator to get this increasingly complex 

job done. A survey of jail administrators attending 

a National Institute of Corrections (NIC) training 

program, “The Jail as a Part of County 

Government,” in 2005 asked the administrators 

what types of support they needed from the 

sheriff to be effective in their job. Their responses 

included the following recommendations for 

sheriffs: 

❋ Give the jail administrator full support and 

backing. 

❋ Be knowledgeable about the jail. 

❋ Participate in problem solving. 

❋ Be involved, but do not micromanage. 

❋ Understand the jail’s budgetary needs. 

❋ Help road patrol and other divisions in the 

sheriff’s office better understand the jail’s 

needs and/or issues. 

❋ Foster cooperation and communication with 

the courts and other key decisionmakers. 

❋ Support adequate staffing, training, and 

facilities. 

❋ Support equitable salaries and benefits for 

jail staff. 

To support the jail administrator and contribute 

to the effective functioning of the jail, the sheriff 

should: 

❋ Stay informed. 

❋	 Visit the jail regularly. 

❋	 Attend training on jail issues and trends. 

❋	 Stay current with applicable jail


standards. 


❋	 Read jail-related periodicals and


resource materials. 


❋	 Review reports prepared by jail staff, 

inspectors, and others. 

❋	 Meet regularly with the jail administrator 

to review accomplishments and address 

issues. 

❋ Be proactive. 

❋	 Work with the jail administrator to solve 

problems in the early stages. 

❋	 Encourage staff to help provide solutions 

to problems. 

❋	 Support the use of nonjail options to 

help manage the growth of the jail 

population and ensure that the jail is 

being used as intended. 

❋	 Give risk management a high priority. 

❋	 Work with the jail administrator to 

comply with standards. 

❋	 Work with the jail administrator to 

achieve adequate staffing levels and 

develop a qualified workforce. 

❋	 Support the jail administrator’s efforts 

to keep the jail current with computer 

technology and related resources. 

❋ Secure adequate resources for the jail. 

❋	 Help secure an adequate operating 

budget. 

❋	 Work with the funding authority for 

resources to support and maintain an 

adequate facility. 

❋	 Help the jail administrator secure 

nonfiscal resources available through 

other county and state agencies. 

❋	 Support the jail administrator’s efforts to 

secure grant funding, subsidies, and 

other sources of financial support. 

❋	 Support cost-sharing efforts through 

cooperative agreements with other 

jurisdictions. 

6 
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Chapter 2: Sheriff’s Roles and Responsibilities 

❋	 Work with the jail administrator on ways ❋ Be an advocate and a champion for the 

to generate revenue. (However, do not jail. 

create an overreliance on revenues for ❋ Promote jail-friendly legislation in the essential jail operations.) state legislature. 

❋ Provide leadership. ❋ Work with the jail administrator to 

❋	 Help facilitate criminal justice system develop an effective public education 

coordination. and communication plan for the jail. 

❋	 Support internal strategic planning and ❋ Advocate for needed resources with the 

goal setting. funding authority and in community 

❋	 Support training and professional forums.


development opportunities for the jail


administrator. 


Review Checklist: Sheriff’s Roles and Responsibilities 

■ Do you view your leadership role as sheriff as that of a full-time professional administrator? 

■ Do you have a good understanding of your multiple roles as sheriff, both internal and external to the 

organization? 

■ Are your leadership, managerial, and supervisory knowledge and skills where they need to be to lead the 

sheriff’s office and jail effectively? Are there areas where you would like to improve? 

■ Do you provide the level and types of support needed by your jail administrator for the effective


operation of the jail?


7 
3 Providing Effective Leadership 

and Support for the Jail 

The Leadership Function and Expected 

Outcomes 

There are significant benefits in providing effective leadership and support for the jail, not just 

for the sheriff, but also for the community. A 

well-managed, professional operation results in 

a safe and clean jail environment, which in turn 

reduces litigation and liability exposure and 

maintains a positive public image. Efficient jail 

operation is achieved through compliance with 

standards and the efforts of a well-trained, 

motivated workforce. 

The sheriff’s leadership responsibilities include 

creating a vision for the organization; defining 

the jail’s mission and goals; implementing the 

jail’s mission through proper planning, budgeting, 

and monitoring; including the jail administrator 

in the executive management team; creating and 

maintaining a competent and diverse jail workforce; building a positive organizational culture 

within the jail division; influencing the external 

environment of the sheriff’s office and jail; and 

developing public policy that recognizes the jail 

as an integral part of the criminal justice system. 

Creating a Vision 

The vision is the leader’s statement of the organization’s direction and its near-term goals. Jim 

Collins, a private researcher in the field of leadership and management, identifies four elements 

of a successful vision (Collins and Porras, 1991): 

❋ The vision must be clear. 

❋ The vision must be compelling. 

❋ The leader must catalyze commitment to and 

vigorous pursuit of the vision. 

❋ As a result, the leader stimulates higher 

performance standards. 

The sheriff must use the vision to keep the jail 

administrator, jail supervisors, and jail staff 

focused on the direction of jail operations and 

the boundaries of decisionmaking. In communicating his/her vision, the sheriff should: 

❋ Present ideas so others can understand the 

reasoning behind the direction. 

❋ Give credit to those who helped make the 

organization what it is today. 

❋ Be prepared to repeat the ideas over and 

over again. 

❋ Give everyone a role in helping to refine and 

implement the direction. 

❋ Be patient. Others have not had as much 

time as the executive to absorb the ideas. 

❋ Beware of instant success. If everyone 

agrees immediately with the executive’s 

ideas, it is highly likely that they are not 

being honest. 

❋ Be prepared for resistance, and do not take 

it personally. It is natural for people to resist 

change. 

The vision statement is fundamental to effective 

leadership. It expresses a unique and ideal image 

of the future for the common good of the jail 

9 
and the sheriff’s office. The sheriff is responsible 

for defining the vision. Although certain aspects 

of the vision generally change with each new 

sheriff’s administration, the vision always 

should: 

❋ Express the organization’s highest standards 

and values. 

❋ Provide the focus for the organization’s 

efforts and the impetus for significant 

achievement. 

❋ Inspire the organization to “stretch,” grow, 

and improve. 

❋ Be achievable within a given period of time, 

such as the sheriff’s term of office. 

❋ Be supported by a plan for its achievement. 

The following sample vision statement for a 

county jail reflects these characteristics:1 

The sheriff’s office will serve the public by conducting 

organizational operations that are progressive and 

ethical. The agency’s staff, in all divisions, will be 

trained in current practices, trained in ethical and 

professional behavior, and supervised by experienced 

and professionally educated leaders and managers. 

The law enforcement and the detention divisions will 

comply with state and nationally based professional 

standards. The sheriff’s office will interact with the 

community, work to understand the needs of the 

community, and collaborate with other agencies to 

resolve the community’s problems. 

Developing and Implementing the Mission 

and Goals 

Mission and goals are also essential elements of 

an effective organization. They give the organization purpose and help keep it on track. They 

1 This vision statement is an example developed by the authors 

using the principles presented in the National Sheriffs’ Institute 

Training Program relating to developing a leadership direction for 

a sheriff’s office. 

also give the sheriff and his/her jail administrator 

a means of measuring current performance and 

provide a basis for future plans. 

A mission statement is a short, concise statement 

describing the purpose of the jail, that is, why it 

exists. The mission statement normally includes 

the following information: 

❋ The legal authority and responsibility of the 

facility within the local justice system. 

❋ The purpose and identity of the organization. 

❋ The values and philosophy of the facility 

and the community. 

❋ The ways in which the facility will serve 

those affected by its work. 

Goals are statements describing the outcomes 

resulting from the organization’s ability to fulfill 

its mission. They also establish priorities that 

focus the organization’s work on those activities 

that are essential to success. 

The jail’s mission and goals are defined and 

shaped by a number of factors: 

❋ Statutes that mandate the jail’s existence and 

its general purposes. 

❋ Community and criminal justice system 

values and expectations. 

❋ The sheriff’s vision, knowledge, and 

experiences. 

❋ The funding authority’s values and 

expectations. 

❋ Court decisions. 

❋ The availability of resources. 

❋ The jail itself. 

10 
Working with the jail administrator, the sheriff 

incorporates these mandates and expectations, 

along with his/her own philosophical orientation, 

into succinct mission and goals statements for 

the jail. 

Following is a mission and goals statement from 

a Colorado sheriff’s office:2 

The sheriff’s office is responsible for maintaining the 

county jail in a manner that ensures safety and 

security for the general public, jail staff, visitors to 

the facility, and jail inmates. The facility is designed to 

comply with Colorado state laws, the constitutional 

requirements as defined by the U.S. Supreme Court, 

and the American Correctional Association Standards 

for Local Detention Facilities. 

The facility serves as a countywide offender intake 

center and detention center for pretrial and sentenced felons and misdemeanors. To ensure security 

and safety, the facility operations include a classification system that separates males from females, 

violence-prone inmates from others, and workrelease inmates from other inmates. 

The facility has a goal that no inmates shall leave the 

facility in worse condition, physically or psychologically, 

than when they entered. Achievement of this goal is 

enhanced through adherence to life safety codes, 

the availability of inmate activities, and regular programming. The facility will offer education, mental 

health counseling, and jail ministry programs for 

inmates. Appropriate medical care, alternative meals, 

programs to address drug and alcohol dependency, 

no-smoking programs, and religious counseling will 

be made available. Work release and community service will be available to judges for the sentencing of 

offenders that meet community correctional criteria. 

The county sheriff also recognizes that for most 

offenders, incarceration is punishment in itself and 

that staff deserve a positive work environment. 

2 This example was adapted from the mission statement of the 

Boulder County Jail in Boulder, Colorado. 

Chapter 3: Providing Effective Leadership and Support for the Jail 

Once the facility’s mission and goals are established, plans for their implementation must be 

developed. Planning provides the organization 

with direction and focus; it determines how the 

organization will function and what it will 

accomplish. Planning aligns the facility’s goals, 

activities, and resources to achieve its mission. 

The planning process provides a systematic way 

for the sheriff to make decisions regarding the 

effective allocation and use of available resources 

for the jail and other functions of the office. 

Information developed in the planning process 

becomes a primary resource in the development 

and justification of the office’s budget. 

The sheriff obtains and uses the financial 

resources needed to operate the jail through the 

jurisdiction’s budget process. To provide effective leadership in this area, the sheriff must 

know the budget process for the jurisdiction and 

the specific responsibilities of the sheriff’s office 

for budget development and management. 

Ideally, the sheriff and the jail’s management 

team should play a key role in the process. 

Those who actually manage and deliver the 

services are most knowledgeable about what 

resources are needed and how to allocate 

resources. Although the jail’s budget is typically 

combined with the sheriff’s overall budget, 

it should be established as a distinct program 

within the sheriff’s office budget so the jail 

administrator knows what financial resources 

he/she has to work with and can manage those 

resources to meet the jail’s goals and objectives. 

The jail’s operations and programs should be 

monitored regularly through a process of internal 

inspections and reviews. An internal monitoring 

system provides timely observation and assessment of critical jail functions and helps the sheriff and jail administrator stay informed about 

programs, activities, and problems in the jail. 

11 
It can reveal how well the facility is complying 

with policies and procedures, standards, and 

other legal requirements. It also provides a 

means of determining whether the jail is meeting 

its goals and helps identify areas in need of 

improvement. 

The jail may also be inspected by a number of 

external entities having regulatory responsibility 

over various aspects of jail operations. This may 

include a jail inspection agency, a health department, a fire inspection agency, building code 

inspection bureaus, and agencies responsible for 

monitoring workplace safety. The sheriff should 

encourage his/her jail administrator to develop 

good working relationships with representatives 

from external inspection agencies. In addition to 

the objective assessment provided by an external 

inspection, the agency may be a source of technical assistance and support when improvements 

are needed. 

The Jail Administrator as a Member of the 

Sheriff’s Executive Team 

The sheriff’s office executive team usually consists of the sheriff (the team leader), the undersheriff or chief deputy, the division commanders, 

and an administrative manager.

3 It is critical that 

the jail administrator be included as a member 

with status and decisionmaking power equal to 

that of the other members of the team. The sheriff has the responsibility to set the tone for team 

interactions, modeling and reinforcing behaviors 

that encourage trust, open communication, honesty, respect, innovation, team spirit, commitment to vision, and accountability. The sheriff, 

as a team leader and facilitator, needs to be a 

role model for the team members. 

As the leader, the sheriff should facilitate collaborative working relationships among team members 

3 This section draws on the National Institute of Corrections, 

National Sheriff’s Institute Training Program (89th session) Lesson 

Plan, Module 5: Developing Your Executive Team. 

and enable them to share power. Sheriffs who 

rule with an iron fist and demonstrate no faith in 

the ability of the members of their executive 

team to take on responsibilities will find the 

team of little help to them. In other words, the 

sheriff needs to develop team members into 

strong independent leaders who know the value 

of protecting their interests and, at the same 

time, working with others for the good of the 

organization. 

The characteristics of the individuals who make 

up the executive team contribute to its effectiveness. The sheriff should work to build on individual strengths and compensate for individual 

weaknesses by acting in a supervisory role as 

a mentor to individuals in their personal and 

professional development process. The ability to 

work well together is a fundamental component 

of a successful team. Three keys to establishing 

a collaborative climate are clearly defined roles 

and responsibilities, strong lines of communication, and positive relationships. 

As a member of the executive team, the jail 

administrator should actively participate in organizational decisions, working with other division 

commanders to solve problems not just for the 

jail, but also for the overall organization. If the 

team is committed to the overall success of the 

sheriff’s office, division commanders will focus 

on helping other divisions, as well as their own, 

to succeed. 

Managing Human Resources and Creating 

a Positive Organizational Culture 

Effectively managing human resources is one 

of the sheriff’s most challenging and important 

responsibilities. There are myriad laws and regulations addressing all aspects of human resource 

management. In addition, collective bargaining 

12 
Chapter 3: Providing Effective Leadership and Support for the Jail 

agreements often spell out additional employment conditions and rights. As manager of the 

jail’s workforce, the sheriff should be aware of 

these requirements. 

The sheriff can support the jail administrator’s 

efforts to deal with human resource issues by 

taking these positive steps (Katsampes, 2004): 

❋ Developing written personnel policies and 

procedures. 

❋ Developing written job descriptions. 

❋ Properly classifying employees. 

❋ Evaluating employee performance. 

❋ Applying policies and procedures consistently. 

❋ Following the rules carefully in disciplining 

staff. 

❋ Maintaining adequate documentation. 

❋ Supervising direct reports and modeling 

supervision best practices. 

❋ Ensuring that meaningful performance 

reviews are conducted regularly. 

❋ Ensuring that timely and fair processes for 

mediation of staff problems, complaints, 

grievances, and labor relations issues are 

in place. 

❋ Encouraging the development and realization of opportunities for employee development and being sure employees understand 

how to access them. 

❋ Determining the division/institution’s 

staffing needs and ensuring that appropriate 

steps are taken to meet these needs. 

❋ Ensuring the establishment of fair and 

equitable human resource policies. 

❋ Establishing a positive working environment 

by creating a progressive vision, mission, 

and set of goals for the organization and 

a positive organizational culture. 

Organizational Culture—What Is It? 

Organizational culture may be described as a set 

of assumptions, values, and beliefs shared by 

members of an organization (Stojkovic, Kalinich, 

and Klofas, 1998).4 It may be derived, in part, 

from the culture and values of the community. 

These assumptions, values, and beliefs often 

influence the behaviors of the jail staff, especially 

in response to work-related problems. Such 

behaviors may be positive—supporting the sheriff’s office vision and mission—or negative— 

undermining the vision and mission. In any case, 

the norms and values of various groups influence 

the operation of the jail (Katsampes, 1998; 

Katsampes and Nees, 2002). Therefore, it is 

important for the sheriff to establish policies and 

procedures that contribute to a strong, positive 

organizational culture. 

Organizational Culture—How It Develops 

Organizational culture is developed and maintained through a process that includes three distinct stages—anticipatory, formal, and informal 

(Stojkovic, Kalinich, and Klofas, 1998). 

The anticipatory stage occurs before an individual 

enters an occupation. In this stage, the job applicant’s perceptions about the jail operation are 

being shaped even before they are hired. The 

applicant’s perceptions are influenced by others 

who have varying degrees of familiarity with jail 

operations—including family members, neighbors, 

teachers, and the media. Perceptions also are 

influenced by the information applicants receive 

through the recruiting process or other direct 

contact with the sheriff’s office. 

The formal stage consists of the preservice and 

on-the-job training conducted by the sheriff’s 

office for the purpose of teaching the new jail 

4 The organization of this and the following sections is derived from 

Katsampes (2004). 

13 
employee the “right way,” or the organization’s 

way, of performing jail duties. 

The informal stage occurs as various veteran jail 

staff tell the new jail officer “how we really do 

things here” and express views of right and 

wrong as they have been developed by the staff’s 

informal culture. Often feeling a need to be 

accepted by their colleagues, new employees 

may be easily influenced by peers and supervisors. This need to belong to the group is even 

stronger in criminal justice occupations because 

of safety concerns—concerns that are especially 

evident in jail operations. When the learning that 

occurs in the informal stage is in line with the 

Developing the Organization’s Culture 

sheriff’s vision and mission, it reinforces the 

commitment of the new employee to an overall 

positive organizational culture. When it diverges 

from that vision, the learning serves only to perpetuate a negative culture. 

Developing or changing the culture of a jail staff 

is a challenging and long-term goal. Values that 

have become ingrained over the years are not 

easily changed. The sidebar “Developing the 

Organization’s Culture” presents strategies that 

should result in the selection and retention of 

workers who are committed to the direction of 

the sheriff’s office and the jail organization. 

Anticipatory Stage 

1. Use agency advertising: the 

media, including news articles; 

and high school and college job 

fairs. 

2. Use model jail officers in 

recruiting efforts. 

3. Clearly state the organization’s 

vision, mission, goals, and policies and procedures during the 

recruiting and selection process 

and explain the consequences 

of violations. 

4. Develop selection requirements 

that emphasize professionalism 

and education. 

5. Use psychological, social, and 

value-based instruments and 

interviewing in the selection 

process. 

Formal Stage 

1. Increase the amount of


preservice training.


2. Increase the training emphasis 

on ethics and professionalism. 

3. Develop or reorganize the Field 

Training Officer (FTO) program. 

4. Implement a first-line supervisor 

training program that emphasizes problem solving and 

accountability. 

5. Clarify the organization’s vision, 

mission, goals, and policies and 

procedures. Clearly state the 

consequences of violations. 

6. Implement a progressive disciplinary process for officer 

infractions. 

7. Terminate repeat or serious


offenders.


8. Terminate new officers who are 

not professional during the FTO 

and probationary stage. 

9. Promote and reward officers 

who are productive, professional, and opinion leaders. 

10. Reward officers who recruit 

professional applicants. 

Informal Stage 

1. Identify jail staff opinion leaders 

and include them in training 

programs. 

2. Identify officer safety and


security issues and needs.


3. Reduce low staffing and inmate 

crowding. 

4. Involve middle managers and 

first-line supervisors in problem 

solving and strategy meetings. 

5. Terminate or demote staff who 

do not support or implement 

solutions. 

6. Initiate a collaborative conflict 

resolution process using small 

groups of officers to identify 

the safety and security needs 

of officers and the needs of the 

administration. 

7. Create officer problem-solving


teams to identify solutions to


inmate control problems.


Source: P. Katsampes, 2004, “The Tail that Wags the Dog,” Norwich University, Masters of Justice Administration Homepage, 

http://grad.norwich.edu/. 

14 
Chapter 3: Providing Effective Leadership and Support for the Jail 

Managing the External Environment and 

Developing Public Policy 

Managing the external environment is defined as 

interacting with citizens and interest groups, collaborating with other agencies, acquiring necessary resources, maintaining a productive place in 

the criminal justice system, and applying effective techniques and strategies to building public 

and media relations.5 Effective sheriffs recognize 

that their organizations are part of a larger 

whole, and external conditions may influence 

day-to-day operations and long-term goals. 

Developing Public Policy 

The sheriff’s leadership role includes responding 

to new laws, court decisions, and legislation; 

presenting needs and requirements to the county 

commissioners; developing relationships with 

community and special interest groups; implementing new technology; and recognizing social 

conditions. Sheriffs must learn to effectively 

carry out all these tasks. The sheriff must understand that he/she is part of a system in which all 

parts have an influence on the other parts. The 

external factors fluctuate continually, as does 

their impact on agencies of the criminal justice 

system. The sheriff must be aware that the sheriff’s office (particularly the jail) is dependent on 

others. It is important that the sheriff’s office be 

capable of performing environmental assessments, identifying trends, and developing strategies to respond to the changing environment. 

The sheriff differs from other managers in that 

he/she should not only respond to environmental 

influences, but also should actively shape or 

guide policy and budgetary directions affecting 

jail operations. Knowing the community enables 

the sheriff to make sound decisions and build 

viable partnerships. The sheriff must be able to 

5 A portion of this section was adapted from Katsampes (2005). 

discern which partnerships should be established, refreshed, or abandoned. The sheriff’s 

office is part of a larger system; what others do 

affects the office, and what the office does 

affects them. 

Special interest groups, stakeholders, and other 

agencies have either overt (obvious) interests or 

covert interests (hidden agendas, unidentified 

issues, politically incorrect issues, etc.). To identify these interests and uncover hidden agendas, 

the sheriff should: 

❋ Conduct meetings with these groups and ask 

about their concerns. 

❋ Read/observe how they act. 

❋ Attend public meetings and hearings. 

❋ Follow press coverage and develop positive 

relationships with the media. 

❋ Develop and maintain working relationships 

with legislative/political staff and officials to 

ensure implementation of the agency vision 

and mission. 

❋ Assist staff in understanding how the agency 

agenda fits into the context of other public 

policy issues. 

❋ Create opportunities for staff to participate 

in understanding, developing, and implementing public policy. 

❋ Create opportunities for external stakeholders 

to participate in the development of public 

policy. 

Following is one sheriff’s description of developing public policy and public partnerships for a 

county jail using some of the strategies just listed: 

In 2005, I attended the 89th National Sheriffs’ 

Institute (NSI)—sponsored by the NIC and the 

National Sheriffs’ Association—in Longmont, 

15 
Colorado. I had previously attended the 2-week class 

for newly elected sheriffs required by the state of 

Kansas; the class had provided a basic overview of the 

responsibilities and requirements of the sheriff’s job. 

When I enrolled in the NSI administration class, I was 

thinking I would be learning the same information as 

the Kansas class, but I was looking forward to the networking opportunity. During the NSI class, I realized 

that the back-home issues I was faced with were not 

unusual and there were some ways to deal with them. 

After I returned home, I worked with my management team on things I learned in the program. First 

we began with our mission and our vision, and we 

developed those that seemed to work for us. We 

continued to build from there, and although days 

seemed to drag in the beginning, as the work went 

on, it began to fall into place. We identified our 

issues and then worked on problem solving with 

each other. 

We began a plan for an addition to our jail facility. We 

began a conversation with the county commissioners 

to test the waters. Our programs director met with 

NIC consultants at a conference and began inquiries 

for assistance. NIC came and began a jail study for a 

reentry program. 

We contacted one of the county commissioners and 

relayed what we were trying to do with our reentry 

program. Our commissioners seemed impressed with 

our plan and forethought. We then contacted about 

20 to 25 stakeholders with community organizations 

for a scheduled meeting and gave a little information 

about the plan. Everyone came or sent someone to 

give input into our jail reentry program. On the final 

day we invited the media, and on the next day it hit 

the media. We received positive comments concerning 

the staff’s efforts. I continue to attend civic functions, 

and I continue to receive positive comments. 

I think back to the days in Longmont, when I was not 

sure these ideas would work when I got back home. 

But now I look forward to the next challenge and to 

working with the stakeholders’ help. I feel they will 

join us to solve problems and achieve our goals. 

—Kenneth McGovern, Sheriff 

Douglas County, Kansas 

Establishing Positive Media Relationships 

One goal of the sheriff is to build a long-term, 

professional relationship with the media. The 

sheriff should develop media policies and protocols that assure that all agency staff are aware of 

who should respond to what issues, what information may be released, and the agency’s philosophy 

of openness to the media. Media representatives 

value straightforward, timely, and reliable information. The sheriff should develop an agencywide 

expectation that openness and truthfulness are 

the norm. 

In addition to responding to requests for information about an event or incident, the sheriff 

should develop a media plan with a variety of 

proactive approaches, including the following: 

❋ The distribution of educational materials that 

provide background and factual information 

(not necessarily for immediate use). 

❋ Regular press releases. Policies should be 

developed to determine when press releases 

should be used, what subjects they should 

cover, and who should authorize their 

release. 

❋ Press conferences. Press conferences are 

useful in helping attract coverage of topics 

the sheriff is interested in sharing with the 

public and provide a venue for getting many 

journalists’ questions about an issue 

answered at one time. 

❋ Regular visits to editorial boards (print and 

broadcast media). 

Monitoring the media for stories that affect the 

jail is important to keep the agency up-to-date 

on media needs and trends. Jail staff members 

16 
Chapter 3: Providing Effective Leadership and Support for the Jail 

should be assigned (or a clipping agency con- correctional interest. This information should 

tracted) to read and clip stories that directly be shared widely throughout the organization. 

affect the jail and to record items of general 

Review Checklist: Providing Effective Leadership and Support for 

the Jail 

■ Is your vision clear and compelling and do you use it to enhance commitment? 

■ Do your jail policies and procedures support the mission and goals? 

■ Have you developed an executive team, and is the jail administrator an equal member of the group? 

■ Do you have a strategy for managing the jail budget that includes development by the jail administrator 

and feedback from the jail staff? 

■ Do you have a strategy that increases the competency of your jail staff and that influences the 


staff culture?


■ Do you have a role as a leader within the local community? If so, what form(s) does that leadership 

role take? 

■ Can you identify the public interest groups and stakeholders in your community who have an interest 

in and influence with the jail? 

■ Do you have a plan for dealing with the media as it affects the jail and jail-related issues? 

17 
Liability and Standards 
 4

The jail clearly carries the greatest risk of liability 

of all the functions in the sheriff’s office. The 

sheriff should be familiar with the legal requirements for operating a jail and the standards that 

are applicable to his/her jail. 

Jail Liability 

Prior to the 1960s, the public and courts largely 

ignored conditions and practices in jails. The 

courts adopted a “hands-off” policy toward 

inmate complaints and lawsuits that challenged 

institutional conditions and practices. This policy 

was based on the belief that corrections administrators knew best how to control inmates and 

should be deferred to concerning jail operations 

and management. 

During the 1960s and 1970s, there was a significant movement in the United States to recognize 

and increase the civil rights of many groups of 

people. In that climate, prisoners’ rights became 

a more important issue. Federal courts began to 

recognize prisoner lawsuits challenging conditions of confinement as legitimate legal claims. 

The legal basis for the intervention of the federal 

court in jail matters is Title 42, Section 1983 of 

the Federal Civil Rights Act of 1871. The law 

provides that “Any person acting under the color 

of law who deprives anyone of a right secured 

by the Constitution or laws of the United States 

shall be liable to the injured party.” Sheriffs can 

be sued under Section 1983 because they are 

operating under the “color of law.”6 

The courts recognized that inmates—although 

restricted for purposes of safety, order, security, 

control, and/or rehabilitation—do not lose their 

constitutional rights. To address inmate rights, 

the courts began to hear the petitions of inmates 

who claimed to have been subjected to physical 

abuse, inhumane conditions, corporal punishment, or other constitutional deprivations. 

During the 1970s and 1980s, there were several 

significant court decisions addressing the rights 

of inmates. These court decisions were mainly 

based on the 1st, 6th, 8th, and 14th amendments 

to the United States Constitution. Cases touched 

on almost every area of jail operations, including 

staffing; access to courts, counsel, mail, telephone, reading materials and libraries; religious 

practice; personal, professional, and media visits; medical care; recreation and exercise; food 

services; classification, disciplinary segregation, 

and due process; living conditions; and the use 

of force. 

As a result of this unprecedented judicial intervention, longstanding problems were broadly 

revealed and confronted. There is now a body of 

6 See Collins (1998). When a person acts or purports to act in the 

performance of official duties under any law, ordinance, or regulation, he or she is acting under the “color of law.” Virtually anything 

that government officials do in the jail may be considered under the 

“color of law.” 

19 
❋

❋

❋

❋

❋

clearly established law, with associated liability, 

that addresses nearly every aspect of jail operations and the conditions of inmate confinement. 

The courts continue to review and refine legal 

requirements as inmate rights cases are 

adjudicated. 

The sheriff has certain “affirmative duties” 

regarding the safety and well-being of the 

community and inmates in his/her custody. 

Deliberate indifference to the discharge of these 

duties is typically the basis of liability when 

conditions and/or practices are successfully 

challenged in court.7 These duties include: 

❋ Protecting the community from harm. 

❋ Protecting the incarcerated from harm. 

❋ Providing “due care” to protect the incarcerated from conditions that could result in 

harm, such as: 

❋	 Medical conditions. 

❋	 Mental health conditions. 

❋	 Self-harming behaviors. 

❋	 Inadequate confinement, security, 

or supervision. 

❋	 Environmental hazards. 

The sheriff has a duty to protect the community 

from harm by preventing escapes and properly 

supervising inmates when they are outside the 

secure perimeter of the jail. The sheriff also has 

a duty to protect the incarcerated from harm 

resulting from institutional or staff violence. 

This includes taking steps to properly classify 

and house inmates; maintain appropriate levels 

of supervision; and provide a safe, contrabandfree environment. Beyond the duty to meet the 

7 Estelle v. Gamble, 429 U.S. 97 (1976). The “deliberate indifference” test is applied in areas other than just medical care, including 

safety and other general living conditions. It has effectively been 

expanded to mean “deliberate indifference to the basic human 

needs” of the inmate. 

basic needs of inmates and protect them from 

harm, the sheriff has a duty to exercise “due 

care” to address conditions in the jail that could 

potentially result in harm to the inmates. 

Jail Standards 

The escalating number of court cases alleging 

unconstitutional jail conditions and practices has 

pointed to the need for a more standardized, 

uniform, and predictable way of addressing jail 

issues. In response, many states and professional 

organizations have developed comprehensive jail 

standards. By providing jail administrators with 

clear guidelines concerning jail operations and 

the treatment of inmates, these standards may 

decrease the likelihood of court intervention in 

jails. 

Standards typically outline the requirements for 

both the construction and operation of local jails. 

Compliance with standards demonstrates a sheriff’s commitment to professionalism and can 

significantly reduce the local government’s 

exposure to liability. 

The American Correctional Association (ACA)’s 

Standards for Adult Local Detention Facilities 

are perhaps the most widely recognized professional standards. Many states and other professional organizations have modeled their 

standards after those developed by ACA. Most 

states administer standards programs that include 

inspections, compliance monitoring, and sanctions for noncompliance. To facilitate compliance, some state programs offer technical or 

funding assistance. Some professional organizations, such as ACA, maintain an accreditation 

program as a means of recognizing jails that 

comply with and implement their standards. 

20 
Chapter 4. Liability and Standards 

The sheriff should keep up with the latest infor- program, the sheriff should get to know the 

mation about the standards applicable to his/her inspection personnel and take advantage of 

jail and be aware of the status of the jail’s com- resources they might have available to assist the 

pliance with those standards. Sheriffs should jail’s compliance with standards. When deficienalso stay informed about issues, trends, and cies are identified, the sheriff must develop and 

legislation that may have an impact on existing implement plans for corrective action to bring 

standards or create new standards affecting the the jail into compliance with the standards. 

jail.8 If the state has a standards and inspection 

Review Checklist: Liability and Standards 

■ Do the conditions and practices in your facility meet current legal requirements? 

■ Is there a history of litigation in any particular area of the jail (e.g., issues regarding medical care, the use 

of force, or suicide)? 

■ Have you developed and implemented a comprehensive risk management plan to eliminate or reduce 

hazards in the jail? 

■ Do you have a means of keeping up with issues, trends, case law, and “best practice”? 

■ Is the jail in compliance with applicable jail standards? 

■ Does the jail have a designated legal counsel? 

■ Is the jail adequately insured? 

■ Do you keep comprehensive documentation covering all areas of jail operations? 

8 For example, a major provision of the Prison Rape Elimination 

Act (PREA), a federal law passed in 2003, provides for the development of standards for the detection, prevention, reduction, and 

punishment of prison rape. Although the law refers to prisons, it 

applies to all federal, state, and local prisons, jails, police lockups, 

private facilities, and community settings such as residential facilities. PREA seeks to ensure that jails and other correctional settings 

protect inmates from sexual assault, sexual harassment, “consensual” 

sex with employees, and inmate-inmate sexual assault. 

21 
5

Characteristics of Facilities That Support 

Effective Jail Operations 

An adequate facility is essential to effective jail 

operations. Features and characteristics of facilities that support safe, secure, and efficient operations include the following (Kimme, 1998): 

❋ Adequate capacity with flexible housing 

arrangements that allow for proper classification of inmates and management of peaks 

in population levels. 

❋ The availability of appropriate types of 

housing (i.e., single-occupancy cells, 

multiple-occupancy cells, dormitories) 

for the types of inmates held. 

❋ Clear visibility into housing areas from fixed 

posts that facilitate constant, rather than 

intermittent, surveillance or supervision of 

inmates. Officers should have a clear line 

of sight into housing-unit day areas and cell 

fronts. 

❋ Adequate living and working environment 

(lighting, temperature, air quality, sound 

levels, cleanliness, plumbing, etc.). 

❋ Adequate space for intake, support services 

(including medical, food, laundry, and maintenance), inmate programs (including counseling, education, visitation, library, and 

exercise), administration, and storage. 

❋ An efficient layout of rooms and spaces that 

support staff and accommodate the flow of 

activities and services. 

Jail Physical Plant 


❋ A clean and well-maintained space with 

appropriate fixtures, finishes, furnishings, 

and equipment. 

❋ Space that is in compliance with life safety 

codes, health codes, workplace safety standards, and jail standards. 

Capacity and Jail Crowding 

Many jails across the country are experiencing 

crowding. The most common definition of 

crowding is when the jail population consistently 

exceeds design, or rated, capacity. However, 

symptoms of crowding may be apparent much 

earlier—once the jail reaches approximately 80 

percent of rated capacity. At that level, properly 

housing and managing the diverse jail population 

begins to become much more difficult because 

compromises in the jail’s classification system 

occur. Compromising the jail’s classification 

capabilities is likely to lead to increases in violence, tension, and the availability of contraband. 

Basic functions (security, maintenance, sanitation, programs, recreation, etc.) begin to break 

down when they are stretched to their limit for 

extended periods of time due to crowding. These 

conditions increase the jail’s liability exposure 

and jeopardize the safety and well-being of both 

inmates and staff. 

Ultimately, jail crowding is a community issue 

that requires an external response. The sheriff 

and jail administrator must make key decisionmakers aware of the issue and work closely with 

23 
them to develop and implement strategies to 

manage the jail population. Rated capacities may 

be established for the jail by a state inspection 

program or other regulatory agency. If not, the 

sheriff should work with local officials to establish capacity limits for the jail and to keep the jail 

within these limits. Both internal and external 

population management strategies should be 

developed to deal with bedspace demands that 

exceed available capacity. Knowing the characteristics of the inmate population is key to population management because it enables the sheriff 

to identify target groups for whom alternatives 

may be appropriate. 

Environmental Conditions, Sanitation, and 

Maintenance 

The quality of the jail environment not only 

affects the health and well-being of those who 

occupy and work in the facility, but also influences their behavior. Poor conditions often lead to 

low morale of both inmates and staff, increased 

inmate health care costs, more disciplinary problems, higher levels of staff absenteeism and 

turnover, and an overall negative atmosphere. 

Attention to light and noise levels, temperature, 

air quality, plumbing, and sanitation can improve 

the overall quality of the jail environment as both 

a residential setting and worksite. 

Unsanitary living and working conditions not 

only make for an unhealthy environment, but 

also communicate a lack of concern about the 

quality of the jail environment. The message 

conveyed is that sloppy work will be tolerated. 

Sheriffs are advised to make a clean jail a high 

priority. After getting an outside assessment of 

the current level of sanitation and correcting any 

identified deficiencies, the sheriff should develop 

a comprehensive sanitation plan for the facility 

and provide the resources necessary for its 

implementation. The sheriff’s office should then 

monitor the level of sanitation on an ongoing 

basis through a system of inspections. 

Due to constant and hard use, jail facilities and 

equipment age almost 4 years operationally for 

every chronological year they are in service. 

Sheriffs should develop an effective preventive 

maintenance program for the jail and gain support from the funding authority by communicating the benefits of such a program. 

Preventive maintenance will: 

❋ Maximize the useful life of all building 

systems in the jail. 

❋ Help the jail operate at peak efficiency. 

❋ Prevent breakdowns of critical building 

systems. 

❋ Maintain a safe and healthy environment for 

staff and inmates. 

❋ Avoid costly repairs resulting from neglect 

or deferral of maintenance. 

The sheriff should work with the jail administrator and funding authority to plan and implement 

a program of inspection, testing, servicing, 

repair, and/or replacement of building systems 

and components to achieve these goals. The 

availability of qualified and trained maintenance 

staff is an important consideration when considering the staffing needs of the jail. Inmate labor 

may also play a significant role in maintaining 

adequate levels of sanitation in the jail. 

24 
Chapter 5. Jail Physical Plant 

Review Checklist: Jail Physical Plant 

■ Does the population of your jail regularly exceed its design, or rated, capacity? 

■ Are there compromises in classification due to lack of bedspace for certain types of inmates? 

■ Can your jail maintain adequate separation of the various categories of inmates that must be housed 

separately? 

■ Is there agreement among key decisionmakers on the capacity of the jail? 

■ Does crowding in your jail affect sentencing decisions by the courts or decisions to detain by arresting 

authorities? 

■ Do key decisionmakers work collaboratively to keep the jail population within agreed-upon limits? 

■ Does your county have a long-range plan that identifies and addresses future detention needs for the 

community? 

■ Does the community perceive the jail to be a decent and safe environment for staff to work, inmates 

to live, and visitors to conduct business? 

■ Is the jail kept clean and in good repair? 

■ Does your jail have written sanitation and preventive maintenance plans? 

■ Is there a system of internal inspections to monitor the level of sanitation and maintenance in the jail 

on an ongoing basis? 

25 
Critical Aspects of Jail Operations 
 6

Adequate Jail Staffing 

Adequate staffing is essential to effectively managed, safe, and secure jails. Jails with staffing 

deficits are more vulnerable to litigation, compromise community safety, and place both inmates 

and staff at higher risk of harm. Facilities in this 

situation also have a more difficult time providing 

programs and services to their inmates. 

Adequate staffing means more than having the 

right number of staff members to run a detention 

or correctional facility. It also means placing welltrained staff into positions that are appropriately 

matched to their skills. Appropriate placement 

ensures that the staff can provide effective supervision and oversee the day-to-day operations of 

the facility. 

Following are factors influencing the staffing 

needs of jails: 

❋ Population characteristics. The number 

and type of inmates in a jail are significant 

factors. The security risks presented by 

inmates, their behavior while in custody, and 

any special needs (medical, mental health, 

etc.) all determine the level of supervision 

and staff involvement required. Inmates’ age, 

gender, and length of stay have implications 

for staffing as well. 

❋ Jail mission. The jail’s operational philosophy is generally reflected in its mission 

statement. The mission expresses not only 

the facility’s legal authority and responsibilities, but also community values and beliefs. 

The emphasis placed on community values, 

along with the jurisdiction’s legal responsibilities, affects the level and type of programs and services offered in the facility. 

❋ Functions and activities. Sufficient staff 

must be available to perform essential security 

functions in the jail, provide basic services to 

the resident population, and oversee the various programs and activities that are part of 

the daily routine. 

❋ Physical layout of the jail. The physical 

layout of the jail affects where staff will be 

stationed, the number of staff required to 

supervise each area, and the number of staff 

needed to effect movement of inmates to 

services. 

❋ Method of inmate supervision. Effective 

supervision requires that staff stationed in 

close proximity to housing areas regularly 

interact with inmates. 

❋ Standards and court decisions. Standards 

and court decisions influence staffing 

requirements by establishing minimum levels 

of service or specifying particular operational practices and activities. Many state 

and professional standards address staffing 

directly. 

Understanding these factors early in the process 

of planning new jails can lead to better, more 

efficient design decisions. In existing jails, careful 

analysis may open the door to other solutions 

that result in a better use of staff resources. 

27 
A staffing analysis is a process used to determine staffing needs in detention settings. It 

includes consideration of the factors listed above 

along with the identification of posts, coverage 

requirements, and staff availability (Liebert and 

Miller, 2001). The process results in a staffing 

plan and report that provide recommended 

staffing levels and estimated costs. Sheriffs are 

advised to find out whether the jail has had a 

recent staffing analysis and, if not, to have an 

analysis completed. The jail staffing plan should 

be updated at least annually and when any major 

changes occur in the primary factors that affect 

staffing. 

Recruitment, Selection, and Retention 

The turnover rate for jail staff across the country 

increased during the past decade. At the same 

time, the pool of potential new hires has dwindled. The cost of staff turnover is tremendous. 

Therefore, it is imperative that sheriffs develop 

practical strategies to recruit the best possible 

applicants, to select staff who are a good fit for 

the agency, and then to retain these staff. 

Recruitment, selection, and retention are intertwined. Sheriffs who select and retain the right 

staff will find that their need to recruit will lessen. 

Recruiting the right staff improves selection and 

retention considerably. 

Recruitment 

The goal of the recruitment process is to locate 

and attract a diverse pool of qualified candidates. 

To increase the effectiveness of the recruiting 

process, a recruiting plan that includes the following elements may be helpful: 

❋ Recruiting committee to assist and advise 

the jail administrator in the development of 

the recruitment plan. 

❋ Recruiting materials such as brochures, 

posters, recruitment videos, and Internet 

Web sites. Obtaining assistance from 

marketing or public relations specialists 

within the jurisdiction will ensure that a consistent, effective message is conveyed 

through the various types of media. 

❋ Recruiting team. Recruiting activities may 

be assigned to existing staff. Recruiters 

should reflect the desired diversity of the 

organization and be selected for their enthusiasm, job knowledge, professionalism, 

advocacy skills, public speaking skills, 

and public relations skills. They should 

be knowledgeable about personnel matters, 

the agency’s personnel needs, the selection 

process, training requirements, compensation 

and benefit plans, and career opportunities. 

❋ Recruiting strategies. Effective recruiting 

strategies vary according to the types of 

positions being filled, the available labor 

pool, and a variety of other factors unique 

to each jurisdiction. The most effective plans 

use multiple strategies to develop the largest 

possible pool of qualified candidates. 

There are a number of ways to attract media 

attention to the jail’s recruiting efforts at little 

or no cost. Examples include press conferences, 

feature stories, talk/news shows, public service 

announcements, and public appearances. Paid 

advertising is often a popular and effective 

means of recruiting. Content, timing, and placement are key ingredients to generating a large 

response through paid advertising venues. Some 

of the more traditional approaches include classified newspaper ads, television and radio ads, 

and brochures and posters placed at strategic 

locations in the community. Special events 

provide excellent opportunities to recruit. Some 

examples include job fairs, open houses, college 

career days, or local fairs or festivals. 

Selection 

The purpose of screening during the selection 

process is to assess an applicant’s suitability for 

28 
working in a jail environment and to determine 

whether the applicant’s skill sets match the 

requirements of the position being filled. 

Screening should serve to funnel applicants 

using job-relevant and legally defensible screening, interviewing, and assessment methods and 

tools. Screening out unqualified and unsuitable 

candidates early in the selection process allows 

more time and attention to be focused on the 

most qualified candidates. Assessment tools 

should be based on actual job requirements and 

administered in a consistent manner by trained 

individuals. 

Many states have established minimum qualifications for jail officers. Sheriffs should be aware 

of minimum qualifications established by the 

state or jurisdiction and periodically review jail 

officer job descriptions to see that they are consistent with these requirements. 

Screening and selection processes vary from one 

jurisdiction to another, but generally include 

some combination of the following elements: 

❋ Written testing. 

❋ Oral interviews. 

❋ Background investigations. 

❋ Physical testing. 

❋ Selection. 

❋ Psychological evaluations. 

❋ Medical examinations. 

Prospective jail staff should be subject to more 

than criminal-history checks. Complete background investigations—such as those conducted 

for law enforcement officers—should be conducted on every prospective employee. 

Retention 

Retention of quality employees is critical to effective jail operations. Turnover is tremendously 

Chapter 6. Critical Aspects of Jail Operations 

costly to the organization in terms of lost productivity, employee replacement expenses, lost 

expertise, lower employee morale, and diminished quality of services. 

To retain quality employees, sheriffs may need 

to develop a formal retention plan. The following strategies have been found to be effective: 

❋ Recruiting people who are a good fit with 

the organization. 

❋ Creating a positive work environment. 

❋ Developing effective orientation, performance management, and coaching processes. 

❋ Providing innovative compensation and 

benefit packages. 

❋ Establishing a recognition and rewards 

program. 

❋ Providing training and educational opportunities that improve job skills and provide 

career development. 

❋ Establishing a mentoring program. 

❋ Providing career growth opportunities. 

❋ Providing an adequate, safe work 

environment. 

❋ Conducting exit interviews to find out why 

employees leave. 

A retention plan may involve a combination of 

these strategies. The success of the jail’s retention plan can be measured using the following 

indicators: 

❋ Reduced turnover rates. 

❋ Reduced absenteeism. 

❋ Improved employee morale. 

❋ Reduced numbers of disciplinary actions. 

❋ Increased productivity. 

29 
Review Checklist: Adequate Staffing, Recruitment, Selection, 

and Retention 

■ Does your jail have a written staffing plan that is updated regularly? 

■ Are current staffing levels sufficient to provide full coverage of all posts, actively supervise inmates, and 

cover all essential jail functions? Are staffing levels sufficient to ensure inmate and staff safety and compliance with standards? 

■ Are both male and female staff available in the facility when both male and female inmates are housed? 

■ Are there written job descriptions for all positions? 

■ Is the jail able to recruit and retain qualified staff? 

■ Is the budget sufficient to address staffing needs? 

Staff Training and Supervision 

A good staff training and development plan is 

critical to effective jail operations. In fact, it may 

possibly yield more benefits to the organization 

than any other function. Effective staff training 

can improve consistency in operations, promote 

staff confidence and professionalism, improve 

morale, and reduce workplace stress, operational 

problems, and liability. Staff training contributes 

to effective operations by helping to ensure that 

staff: 

❋ Understand and adhere to policies and 

procedures. 

❋ Know what to do while on duty and how 

to do it. 

❋ Know how to operate complex jail systems 

and equipment. 

Staff training is not optional. It is the duty of the 

sheriff and jail administrator to properly train 

staff. To win a case, plaintiffs may need only 

to show a causal link between a constitutional 

violation and a reasonable assumption that it 

could have been prevented through training. 

The goal of training is to change staff behavior 

to improve job performance. Although training 

needs for new employees are different from 

those for existing employees, the goal remains 

the same. With new employees, the focus of 

training is on building entry-level knowledge and 

skills in the core tasks the officer performs in the 

course of duty. With existing employees, the 

focus is on addressing deficiencies and performance issues identified through an individualized 

performance analysis. The jail’s training program must address the training needs of both 

groups to be of maximum benefit. 

Following are recommended steps for implementing a jail training program: 

❋ Write a job description for the training 

coordinator. 

❋ Designate a training coordinator. In small 

agencies, this duty may be added to an existing position. Larger agencies may be able to 

justify filling the position on a full-time 

basis. 

❋ Provide training to the training coordinator. The training should focus on developing 

coordination skills. The training coordinator, 

as the title implies, organizes the training 

and sees that it is delivered but may not necessarily do a lot of hands-on training. 

❋ Develop policies and procedures for the 

training program. 

❋ Develop an annual training plan that 

includes: 

30 
❋

❋

❋

❋

❋

❋

Chapter 6. Critical Aspects of Jail Operations 

❋	 Training goals for the current year. 

❋	 A summary of previous years’ needs 

and problems. 

❋	 A list of topics to be addressed in the 

current year. 

❋	 A proposed master schedule. 

❋	 A total training budget. 

❋	 A plan for evaluating the impact


of training.


❋ Implement the annual training plan. 

❋ Evaluate the results of the training provided. 

The annual training plan should include basic 

training for new employees as well as inservice 

training for existing staff. It should address all 

job classifications in the facility. The sheriff can 

support the provision of training for jail staff by: 

❋ Designating a training coordinator. 

❋ Establishing a line item for training in the 

jail budget and including adequate funding 

in the jail’s budget request. 

❋ Assuring adequate access to training space 

and equipment. 

❋ Approving overtime and/or schedule 

changes to allow staff to attend training 

as necessary. 

It is incumbent upon the jail administration to 

provide active, ongoing supervision of staff to 

ensure that the knowledge and skills developed 

in training are used in the jail and to ensure that 

staff are following the jail’s policies and procedures. The supervisory duties of the jail administration are often scrutinized in litigation against 

the jail. In defending against such challenges, 

the sheriff and jail administrator must be able to 

demonstrate that staff were performing duties in 

accordance with the training they received and 

that practices were consistent with policies and 

procedures. The combination of training and 

ongoing supervision also helps jail staff achieve 

competency and maintain it over time. 

Review Checklist: Staff Training and Supervision 

■ Does your jail have a designated training coordinator? 

■ Are there adequate training staff, facilities, equipment, and materials? 

■ Is there a specific budget allocation for training? 

■ Does your jail have a formal, written staff training plan that is updated annually? 

■ Is your jail in compliance with preservice and inservice training requirements for all staff? 

■ Is all training provided and received thoroughly documented? 

■ Is there a formal, written system for assessing staff performance (performance appraisals)? 

■ Is there a supervisor or lead officer who is accountable and responsible for all staff and their actions 

on each shift? 

31 
Policies, Procedures, and Post Orders 

The sheriff has a duty to provide direction to 

the staff about how the jail is to be operated. 

Accordingly, jails should have a written policies 

and procedures manual developed specifically 

for the facility and consistent with the jail’s mission and goals. The manual should be comprehensive, addressing all aspects of jail operations. 

It should conform to current case law, professional practices, statutes, state standards, and the 

operational capabilities of the organization and 

should reflect the sheriff’s own philosophy. Staff 

should receive training in policies and procedures, 

and copies of the manual should be readily available to staff for use as a reference. The policies 

and procedures manual should be reviewed and 

updated at least annually and whenever major 

operational changes are made. 

Post orders detailing the responsibilities and 

tasks for each post and position included in the 

jail staffing plan should also be prepared and 

implemented in the same manner as operational 

policies and procedures. The policies and procedures manual provides staff direction for what is 

to be done, why it is to be done, and how it is to 

be done. Post orders detail what specific tasks 

are to be done, when they are to be done, and 

who will do them. 

Written policies and procedures offer a number 

of benefits for the jail and its operation. They 

serve to: 

❋ Provide clear direction to staff on operations. 

❋ Communicate the organization’s mission and 

values and the sheriff’s philosophy to staff. 

❋ Promote consistency, efficiency, and professionalism by standardizing how staff carry 

out their duties. 

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

❋ Provide protection for the jurisdiction 

against liability when individual acts can be 

shown to be outside what is prescribed in the 

policies and procedures. 

❋ Facilitate compliance with standards and 

other legal requirements. 

The sheriff can help the jail administrator develop 

and implement policies and procedures by: 

❋ Clearly communicating his/her values and 

philosophy so they may be reflected in the 

written directives. 

❋ Supporting requests for resources needed for 

the development and implementation of the 

policies and procedures and helping to 

secure a legal review of the directives by the 

county counsel. 

❋ Supporting efforts to monitor compliance 

and keep the policies and procedures current 

through ongoing monitoring and annual 

review. 

❋ Facilitating review of the policies and procedures by the jurisdiction’s legal counsel. 

32 
Chapter 6. Critical Aspects of Jail Operations 

Review Checklist: Policies, Procedures, and Post Orders 

■ Does your jail have a written policies and procedures manual developed specifically for your facility? Is 

the manual up to date? 

■ Is the policies and procedures manual comprehensive, covering all aspects of your jail’s operation? 

■ Is the manual reviewed and updated at least annually? 

■ Have the policies and procedures been reviewed by your jail’s legal counsel? 

■ Have staff been trained in the policies and procedures? 

■ Is there a process in place to verify that policies and procedures are being followed on all shifts? 

■ Does your jail have written post orders for key posts and positions within the facility? 

■ Are staff trained in the post orders for the posts to which they are assigned? 

■ Are post orders reviewed and updated as applicable policies and procedures, schedules, or other 

aspects of your jail’s operations are changed? 

Jail Security 

The primary goals of jail security are to prevent 

escapes and institutional violence and to maintain order within the facility. Security in jails is 

established through a combination of appropriate 

staffing, adequate facilities, and well-defined 

operational procedures. 

A jail’s security requirements are determined by 

its mission and the types of inmates housed in 

the facility. The security capabilities of jails are 

defined by such factors as internal design and 

layout, perimeter security features, facility 

capacity, construction method and materials, 

type of security equipment, staffing pattern, and 

operations. Effective security depends on a good 

match between the jail’s security capabilities and 

the custody level of the inmate population. 

The basic elements of effective jail security 

include: 

❋ Perimeter security. Effective perimeter 

security prevents inmates from escaping the 

secure area of the jail and prohibits unauthorized access by the general public. The security perimeter is the barrier between the 

secure area of the jail and the outside world. 

The barrier must be constructed of materials 

that cannot be easily breached and must be 

maintained in good repair and working condition. To prevent unauthorized access, the 

jail should have a facility access policy that 

governs entry into the facility. 

❋ Monitoring and communication. There 

should be a means to monitor the overall 

security of the jail. This includes ongoing 

monitoring of audio and video electronic 

surveillance systems, life safety and security 

systems, electrical and mechanical building 

systems, and general movement within the 

facility from a central control post. 

Communication between members of the jail 

staff is also vital to security. Jail communications systems typically include internal 

telephones or intercoms connecting each jail 

post and a control center post, intercoms or 

call boxes strategically located throughout 

the facility, portable radios carried by individual staff, and personal alarm devices. 

❋ Inmate well-being checks and counts. Jail 

staff must be able to account for and assure 

the well-being of inmates at all times. This is 

accomplished through a system of inmate 

33 
well-being checks and counts. The presence 

of staff in inmate-occupied areas is the most 

effective means of assuring the well-being of 

inmates. Good practice dictates that all 

inmates in the general population be viewed 

by staff in person at least every 30 minutes 

on an irregular schedule. Persons who are 

violent, mentally ill, intoxicated, or have 

other special problems warranting closer 

supervision require more frequent checks. 

The jail should also have a system to physically count inmates to verify that all inmates 

in custody are present or otherwise accounted for. Counts should occur on a regular, 

routine basis and when there is some indication that inmates may be missing. 

❋ Searches and contraband control. 

Searches in jails are operational strategies 

used to control contraband and detect conditions that adversely affect the security and 

well-being of both staff and inmates. Jail 

policies and procedures should detail criteria 

and methods for searches of inmates and 

their personal property, other persons having 

access to the jail, vehicles, and the facility. 

❋ Control of equipment and supplies. Jail 

staff must be able at all times to account for 

and control access to keys, weapons, tools, 

equipment, and supplies used in the jail. 

Failure to do so can potentially provide 

inmates access to materials that can facilitate 

their escape or result in harm to themselves, 

staff, or the public. 

❋ Use of force and restraints. To maintain 

security and order in the jail, it is sometimes 

necessary to use force, security equipment, 

and/or restraints to control an inmate or a 

group of inmates. The use of force and 

restraints as security measures must be 

balanced against the jail’s obligation to 

safeguard the individual rights of inmates. 

❋ Inmate movement and transportation. 

Inmate movement includes movement of 

inmates internally from one area of the jail 

to another to access services, participate in 

programs, and receive visitors. It also 

includes the external transport of inmates 

(generally by agency vehicle) outside the 

security perimeter for a court appearance, 

transfer to another facility, or appointments 

in the community. The jail should establish 

procedures to respond to the increased security risk presented by inmates during either 

type of movement. 

❋ Security inspections. Inspections are an 

integral part of the jail’s security program. 

They provide a systematic method to evaluate the condition of security features of the 

physical plant, the proper function of security 

devices, and adherence to appropriate security 

practices. The process should provide for 

regular inspection of all areas of the facility, 

including inmate housing, program areas, 

support services areas, intake and release 

areas, administrative areas, the public lobby, 

parking areas, the exterior grounds, the security perimeter, and mechanical services and 

shop areas. 

If there are questions or concerns about jail 

security, the sheriff should seek a comprehensive 

security audit of the jail. Such an audit will 

uncover deficiencies in facilities, systems, equipment, or practices that may adversely affect 

security in the jail. Action plans should then be 

developed to resolve deficiencies. 

34 
Chapter 6. Critical Aspects of Jail Operations 

Review Checklist: Jail Security 

■ Does the jail have a physically secure perimeter separating inmate-occupied areas from the outside


world? 


■ Are all security devices and features operable and in good repair? 

■ Are all monitoring and communications systems adequate and in good working order? 

■ Do the locations of staff posts allow staff to observe and manage inmate behavior effectively? 

■ Does the jail have a system for physically counting inmates to verify that all inmates are in custody


or otherwise accounted for?


■ Are staff required to conduct and document frequent well-being checks of inmates? 

■ Does the jail have written policies and procedures governing searches of inmates, property, visitors,


the facility, and vehicles?


■ Does the jail have adequate provisions for the control of contraband? 

■ Does the jail have adequate provisions for the proper storage and controlled use of keys, weapons,


tools, equipment, supplies, and hazardous materials?


■ Does the jail have adequate written policies and procedures governing the use of force and restraints? 

■ Are security inspections conducted on a regular basis? Is there a supervisory review of inspection findings and prompt corrective action taken to address issues? 

Jail Safety ❋ Management commitment and employee


The sheriff has a responsibility to provide a safe involvement.


jail setting for staff, inmates, and others who ❋ Assigned responsibility and authority.


visit or use the facility. The primary goal of safe- ❋ Worksite analysis.
 ty in the jail is to protect inmates, staff, and the


public from harm. This goal is achieved through ❋ Hazard prevention and control.


the identification and management of risks to the ❋ Written policies and procedures.


safety and well-being of jail occupants and the ❋ Safety and health training.


community. These risks include not only those


unique to the jail environment, such as inmate ❋ Internal inspections by trained staff and


independent inspections by external auditors. assaults or violence, but also risks inherent in


any residential and work setting (e.g., accidents, ❋ Recordkeeping and evaluation.


disease, natural disaster). Support by the sheriff and jail administrator pro-


The sheriff should establish a safety program vides the motivating force and resources neces­


that provides comprehensive protection against sary for organizing and managing safety activities


potential hazards and specific protection against within the jail. Executive officials must regard the


known hazards. Elements of an effective safety safety of inmates, staff, and visitors to the facility


program include the following: as a fundamental value of the organization. 


35 
The first step in improving jail safety is a comprehensive safety audit to identify safety hazards 

and develop strategies to eliminate, minimize, or 

control them. A safety program should be develReview Checklist: Jail Safety 

oped for the jail and a safety officer designated 

to oversee the program. The sheriff should provide the leadership and resources necessary for 

the safety program to be effective. 

■ Has a safety officer for the jail been designated and trained? 

■ Has a recent worksite analysis been conducted to identify potential safety hazards? 

■ Is the jail in compliance with applicable safety standards (jail standards, fire codes, building codes, 

Occupational Safety and Health Administration regulations, etc.)? 

■ Does the jail have written policies and procedures to govern the safety program? 

■ Is the jail’s safety record satisfactory? 

■ Does the jail have a system for routine inspections conducted by designated jail staff to identify potential hazards? 

■ Do staff receive adequate training on safety issues and control measures? 

■ Are inmates made aware of their responsibilities with regard to safety? 

Emergency Preparedness 

Despite efforts to maintain a safe and secure 

environment, emergencies can arise. An emergency is any significant disruption of normal 

facility routine or order caused by a riot, an 

escape, a fire, a natural disaster, or some other 

serious incident. Emergency situations can result 

in serious harm to people and property. 

Emergency preparedness in jails: 

❋ Reduces the likelihood of emergency 

situations. 

❋ Contains emergencies (when and if they 

occur) before they escalate into major 

incidents or disasters. 

❋ Mitigates the consequences or the amount 

of harm resulting from emergencies. 

A comprehensive emergency response plan is 

the foundation of emergency preparedness. 

An effective plan should include the following 

components: 

❋ Risk assessment and control to identify the 

types of emergencies that could occur in the 

jail and to implement appropriate control 

measures. 

❋ Organization and coordination of emergency response to provide a clear process for 

decisionmaking, assignment of staff, and 

deployment of resources during an emergency. 

❋ Emergency plans to direct the actions of jail 

staff in containing and controlling emergencies, and to provide for the protection of staff, 

inmates, and visitors during emergencies. 

❋ Equipment and resources to effectively 

respond to emergency situations and carry 

out emergency response plans. 

❋ Training and drills to train staff in the 

execution of emergency plans and in the use 

of emergency equipment and devices. 

❋ Recovery to provide for the return to routine 

operations once an emergency is over. 

36 
❋ Reporting to document critical events and 

actions associated with the emergency. 

❋ Review to provide a systematic means of 

ascertaining all the pertinent facts about the 

emergency situation. 

Chapter 6. Critical Aspects of Jail Operations 

The sheriff should seek an assessment if there 

are questions about the jail’s emergency preparedness. Such an assessment will identify deficiencies or weaknesses in the jail’s emergency 

response capabilities. Action plans should then 

be developed to resolve deficiencies. 

Review Checklist: Emergency Preparedness 

■ Does the jail have a comprehensive, written emergency response plan? The plan should include the 

following: 

❋ Assessment and control strategies. 

❋ An organizational structure for emergency response. 

❋ Interagency coordination. 

❋ Written emergency plans for a range of predefined emergencies. 

❋ Evacuation plans, including arrangements for designated evacuation sites. 

❋ Appropriate equipment and resources. 

❋ Training and drills. 

❋ Recovery plans. 

❋ Reporting and documentation. 

❋ Critical incident review. 

■ Does the jail have the necessary emergency systems, equipment, and resources in place and operational? These should include: 

❋ Communications. 

❋ Alarms. 

❋ Fire detection and suppression. 

❋ Emergency generators. 

❋ Emergency keys. 

❋ Protective equipment. 

❋ Floor plans and related information. 

37 
Inmate Behavior Management 

Management of inmate behavior is a key component of safety, security, and the overall effective 

operation of the jail. If inmate behavior is effectively managed, jails can be a good workplace 

for staff, a safe and clean detention environment 

for inmates, and a valuable and highly regarded 

service to the community. The sheriff and jail 

administrator should view managing inmate 

behavior as the primary function of the jail. 

Historically, jails have focused on physical containment as a means of maintaining security. 

Staff safety was believed to depend on maintaining physical barriers between staff and inmates. 

Accordingly, staff-inmate interaction was minimized. Unfortunately, this approach resulted 

in many of the problems commonly associated 

with jails, such as assaults, suicides, vandalism, 

contraband, unsanitary conditions, and inmate 

misconduct. 

These problems are minimized when staff continuously and actively supervise inmates, set 

clear expectations for behavior, and hold inmates 

accountable for their behavior. In addition to 

maintaining a secure physical environment, staff 

management of inmate behavior is essential to 

achieving safety and security in the jail. 

An integrated approach to inmate behavior 

management includes six essential elements: 

❋ Assessing the risks and needs of each 

inmate at various points during his/her 

incarceration. 

❋ Assigning inmates to housing. 

❋ Meeting inmates’ basic needs. 

❋ Defining and conveying expectations for 

inmate behavior. 

❋ Actively supervising inmates. 

❋ Keeping inmates occupied with productive 

activities. 

Assessing Risks and Needs 

The risk and needs assessment, also called 

inmate classification, lays the foundation for 

inmate behavior management. Information gathered in this assessment is used to classify the 

inmate and develop a strategy for managing 

his/her behavior while in the facility. An effective classification system is objective, straightforward, and easily understood and implemented 

by staff. It is based on a consistent set of criteria 

and a systematic method of applying the criteria 

to classification decisions. 

Inmate risks and needs must be assessed at various points during incarceration. During booking 

and intake screening, arrestees are first screened 

to determine their fitness for confinement. Once 

accepted into custody, the inmate is further 

screened to determine how he/she should be 

managed in the booking room. The booking and 

intake screening process identifies and responds to 

critical issues related to the information gathered. 

The next assessment takes place when the decision is made to admit the inmate into the jail and 

assign him/her to housing. This is an indepth 

assessment that provides the basis for decisions 

about how to best manage the inmate’s behavior 

while in jail, the inmate’s housing assignment, 

the level of supervision, and access to services 

and programs. 

The inmate’s risk and needs should be reassessed 

at regularly scheduled intervals and when new 

information is received. This reassessment 

ensures that staff can respond to changing circumstances affecting inmates. 

Inmate classification should be a formal, documented process that is reliable, valid, and equitable. The sheriff should work with the jail 

administrator to establish detailed classification 

policies and procedures and assign trained staff 

to conduct the process. Adequate supervision of 

38 
classification staff is important to ensure that 

they implement the system according to policies 

and procedures. 

Assigning Inmates to Housing 

Assigning inmates to appropriate housing based 

on a well-thought-out plan is a second essential 

element of effective inmate behavior management. Information gathered during the risk and 

needs assessment serves as the basis for assignment of housing. Each jail should have a housing plan that describes how bedspace within the 

jail is to be used. Housing plans are based on the 

following factors: 

❋ The characteristics of existing bedspace, 

including the number of housing units, 

the number of beds within each unit, the 

configuration of the units, and the level of 

physical security in each unit. 

❋ The level of supervision in each housing 

unit. 

❋ The overall breakdown of risk and needs of 

the inmate population, including compatibility 

factors and security threat status. 

❋ The number of inmates within each 

classification. 

In addition to describing how space will be used 

for the general population, the housing plan must 

also designate space for separating inmates in 

disciplinary detention, protective custody, and 

other special designations. If the jail is not able to 

meet the housing requirements of the population 

served, it may include provisions for housing 

certain types of inmates in other jurisdictions. 

A carefully developed housing plan helps ensure 

that: 

❋ Inmates are placed where they can be best 

managed. 

❋ Groups of inmates that must be separated 

by law are kept separate. 

Chapter 6. Critical Aspects of Jail Operations 

❋ Inmates that must be separated for safety 

and security reasons are kept separate. 

Meeting Inmates’ Basic Needs 

A third element of effective inmate behavior 

management is meeting inmates’ basic needs, 

which are no different than those of all human 

beings. In the jail, these include physical needs 

such as adequate food, medical care, hygiene, 

and physical exercise. Providing a safe, clean, 

and healthy environment also is vitally important. As with all people, inmates have basic safety needs; they wish to be protected from illness 

or injuries resulting from an assault or unsafe 

environmental conditions. The social needs of 

inmates include maintaining contact with family 

and friends and positive interaction with others 

in the jail environment. The jail should provide 

mail, telephone, and visiting services as well as 

opportunities for positive interaction with other 

inmates and staff. 

If the jail does not meet the inmates’ basic 

needs, it cannot be a safe environment. Inmates 

who are angry form gangs and can pose a threat 

to safety. Staff who work in an environment 

where their own basic need for safety is not met 

often resort to counterproductive ways to meet 

this need. They may resign, avoid interacting 

with inmates, carry weapons, or physically abuse 

inmates as a way to establish their authority. 

Such practices exacerbate the already-dangerous 

conditions in the jail—conditions that can quickly 

become deadly for staff and inmates. 

Defining and Conveying Expectations for 

Inmate Behavior 

The staff’s expectations for inmate behavior and 

the way these expectations are conveyed have 

a powerful influence on how inmates act. 

Historically, jail staff have expected inmates to 

be uncooperative, destructive, aggressive, violent, and manipulative. Staff have communicated 

these expectations by avoiding interaction with 

39 
inmates, adopting a negative demeanor when 

they do interact with inmates, and accepting 

negative inmate behavior as normal. It is important to set high, but attainable, expectations for 

inmates and then ensure that the inmates have 

the means to comply. Once acceptable inmate 

behavior is defined, the jail must convey its 

expectations to the inmates. 

Jails convey their expectations for inmate behavior both directly and indirectly. Most jails develop a handbook for inmates that not only gives 

information about jail schedules, procedures, and 

services, but also includes rules for the inmates. 

These rules include a description of sanctions if 

rules are broken and a description of the jail’s 

disciplinary process. Staff can indirectly demonstrate that they expect inmates to behave well by 

interacting extensively with them, treating them 

with respect and consideration, and ensuring that 

inmate living areas are maintained in good order. 

The jail environment should be such that it is in 

the inmate’s self-interest to meet behavior expectations. Housing units for inmates who behave 

well and do not pose high-level security risks 

should allow for easy access to basic necessities, 

services, and programs. Staff should promote 

positive inmate behavior with incentives ranging 

from a simple “thank you” to an inmate who has 

done a good job cleaning his cell to special 

rewards for accomplishing extra tasks within the 

housing unit. 

Conversely, there should be disincentives for 

negative inmate behavior. Such disincentives 

include removal from the housing area, lockdown within the housing unit, lockdown within a 

disciplinary unit, loss of the right to participate 

in programs, and loss of commissary privileges. 

The jail should have a formal, clearly articulated 

disciplinary process so that both staff and inmates 

are aware of the rules and the consequences of 

rule violations. 

Supervising Inmates 

The fifth element of effective inmate behavior 

management is supervising inmates to hold them 

individually accountable for their behavior. To 

do this, staff must interact with inmates. Such 

interaction has a clear purpose: to encourage 

positive inmate behavior and compliance with 

the jail’s rules. 

In their interactions with inmates, jail staff must 

exercise the skills of a good supervisor. These 

skills include effective decisionmaking and problem solving and the ability to communicate, listen, provide direction, and motivate. Jail staff 

must treat all inmates fairly. Staff must be able 

to detect and solve small problems before they 

become crises. They should be able to devise 

strategies to ensure that the inmate housing unit 

is safe, clean, quiet, and orderly and then determine the effectiveness of these strategies through 

inspection and documentation. It is essential that 

each staff member serve as a positive role model 

for inmate behavior. In addition, staff must 

demonstrate a thorough knowledge of jail policies and use their supervisory skills to establish 

their authority in the housing unit. All staff 

should be respectful in their interaction with 

inmates and should expect the same in return. 

The effectiveness of staff supervision is affected 

by several factors: 

❋ The physical plant. 

❋ Staffing levels. 

❋ Staff placement within the facility. 

❋ Staff behavior. 

❋ The level of administrative commitment 

to staff interaction. 

Each of these factors can be either fixed or 

variable. For example, if the physical plant is a 

barrier to supervision of inmates, and the physical plant cannot be changed, the jail can still 

increase supervision of inmates by changing the 

40 
Chapter 6. Critical Aspects of Jail Operations 

expectations for the level and type of staff interaction with inmates. If the number of staff cannot 

be increased for political or budgetary reasons, 

rethinking the placement of staff can enable a 

jail to more actively supervise its inmates. The 

sheriff should work with the jail administrator 

to assess the extent to which the factors listed 

above impede staff interaction and then develop 

strategies to decrease barriers created by one or 

more of these variables. 

Although following these recommendations 

for inmate supervision may represent a major 

change in current jail operations, significant 

improvements in inmate behavior will result. 

The staff will benefit too; they will begin to feel 

safer at work and more positive about their jobs. 

As they hone their supervisory skills, many staff 

members will gain a greater sense of professional fulfillment. 

Keeping Inmates Productively Occupied 

A final element of effective inmate behavior management is keeping inmates occupied with productive activities. This may include assigning inmates 

to work or providing a range of structured and 

unstructured activities for inmates both inside and 

outside the housing unit. 

Productive activities provide a powerful incentive for inmates to maintain positive behavior. 

When they have access to meaningful activities 

and continued access is based on the appropriateness of their behavior within the jail, inmates 

are strongly motivated to behave according to 

expectations. Providing access to activities gives 

staff a tool with which to reward positive behavior 

and enforce consequences for negative behavior, 

thereby, enhancing their ability to supervise and 

manage inmate behavior. If the jail does not provide inmates with productive activities, they will 

find other ways to fill their time, often through 

activities that are destructive and contrary to the 

jail’s mission of providing a safe and secure 

environment. 

Sheriffs should assess the extent to which inmate 

behavior is being effectively managed in the jail. 

To place control of the jail firmly in the staff’s 

hands, sheriffs should develop and implement a 

comprehensive plan that incorporates the six elements of effective inmate behavior management. 

Review Checklist: Inmate Behavior Management 

■ Does the jail have a procedure for systematically screening inmates on admission to determine security 

and safety risks and to identify the need for special services or supervision? 

■ Are intake staff provided training in the screening process and the use of screening instruments? 

■ Does the jail have a formal, written classification process to determine housing assignment, supervision 

requirements, and program eligibility? 

■ Is there a housing plan that provides for housing assignment and management of inmates based upon 

behavior, compatibility, and legal mandates or standards? 

■ Are inmates provided a formal orientation to the jail upon admission? 

■ Does the jail have an inmate handbook that outlines rules, expectations for inmate behavior, and 

consequences for rule violations? 

■ Are there enough staff to provide adequate inmate supervision on all shifts? 

Continued on next page 

41 
Review Checklist: Inmate Behavior Management (continued) 

■ Are the staff positioned within the jail so they can see, hear, and promptly respond to what is happening 

in inmate-occupied areas? 

■ Are staff trained in effective communication and supervisory skills? 

■ Is the level of interaction of staff with inmates sufficient for staff to effectively supervise inmates and 

manage their behavior? 

■ Is a system of incentives and sanctions used to guide inmate behavior? 

■ Are inmates kept productively engaged in activities throughout the day to avoid extended periods 

of idleness? 

Inmate Discipline and Grievance 

Fundamental fairness in the treatment of inmates 

is an essential aspect of effective jail operations. 

It rests primarily in the inmate discipline and 

grievance processes. 

Discipline is the ongoing correction of undesirable behavior, which includes coaching inmates 

to improve marginal behavior, positively reinforcing their positive behavior, and administering appropriate consequences for negative 

behavior. It is critical that the disciplinary 

process be fair from both a legal and operational 

standpoint. Inmates must be fully informed of 

the rules and the sanctions for violating the 

rules. The rules should be upheld consistently 

over time and from inmate to inmate. 

Disciplinary policies and procedures must be 

carefully crafted to meet basic due process 

requirements and ensure fairness. A clearly 

defined disciplinary process can be a positive 

tool in regulating inmate behavior and can 

reduce the jail’s exposure to potential liability 

for violations of due process. 

Fundamental fairness involves providing inmates 

with the opportunity to air and resolve grievances. The jail’s grievance process plays an 

important role in establishing a fair and just 

environment and, therefore, is an essential part 

of the jail’s overall behavior management 

scheme. A viable grievance system benefits both 

inmates and the jail in the following ways: 

❋ Relieves tension by providing inmates with 

a way to resolve real or perceived problems 

arising from their incarceration. 

❋ Provides a formal means of conveying 

information between inmates and the jail 

administration. 

❋ Highlights potential weaknesses in facilities 

or operations. 

❋ Provides an effective way for the jail 

administrator to spot trends and assess 

overall operational performance. 

❋ Provides a means for the administrator 

to assess the jail climate. 

❋ Provides an alternative to the filing of a 

lawsuit to resolve issues. 

The jail’s grievance system should be governed 

by written policies and procedures that define 

the kinds of issues appropriately addressed 

through this process and provide specific guidance in the filing, investigation, response, and 

documentation of grievances. If the process has 

credibility, inmates will use it to resolve complaints rather than act out in inappropriate ways. 

By providing an administrative remedy, the 

grievance process may also reduce the level 

42 
❋

❋

❋

Chapter 6. Critical Aspects of Jail Operations 

of litigation and potential liability for the jail. remedies through the jail’s grievance system 

Indeed, the federal Prison Litigation Reform Act before litigation can proceed in federal court. 

of 1995 requires inmates to exhaust administrative 

Review Checklist: Inmate Discipline and Grievance 

■ Does your jail have a formal, written inmate disciplinary process? 

■ Are inmates made aware of the jail rules, expectations, and possible sanctions for violations? 

■ Are rules enforced consistently and fairly? 

■ Does your jail have a formal, written inmate grievance process? 

■ Are inmates made aware of the grievance process and procedures for filing a grievance? 

Special Management 

The ability to temporarily isolate inmates who 

are a threat to security, who are a danger to themselves or others, or who have other special needs 

is essential to the safe and secure operation of the 

jail. The jail’s behavior management plan should 

include provisions for the separate housing and 

management of inmates who require temporary 

segregation from the general population. By definition, these are inmates who require special 

attention, including closer supervision and access 

to services more specialized than can be provided 

in general population housing. Deciding to place 

inmates in special management and determining 

the conditions under which they are housed 

involve important considerations in the area of 

due process. 

Special management generally includes three 

categories: 

❋ Disciplinary detention. Disciplinary detention is used to segregate inmates either 

detained for or found guilty of violations 

of the inmate rules and regulations. Inmates 

who are accused of committing serious rule 

violations, who are disruptive, or who are 

a threat to the safety and security of the jail 

may also be temporarily segregated, pending 

a hearing. 

❋ Administrative segregation. Administrative 

segregation is used for inmates who, for a 

variety of reasons other than discipline, must 

be separated from the general population. 

Those segregated may include: 

❋	 Inmates who, through their threats or 

actions, present a clear danger to other 

inmates, staff, themselves, or the security 

of the jail. 

❋	 Inmates who have communicable 

diseases or need to be isolated for 

other medical reasons. 

❋	 Inmates who cannot function appropriately and safely in the general population due to mental health problems or 

developmental disabilities. 

❋ Protective custody. Protective custody is 

used for inmates requesting or requiring 

protection from inmates in the general 

population. It may include inmates who 

are resented by the other inmates due to the 

nature of their criminal charges, codefendants who may testify against other inmates, 

or inmates who are unable to adjust to living 

with others and may be the target of assaults. 

The jail may house all three categories of inmates 

in the same area. However, the privileges of 

43 
inmates in segregation may be quite different 

from those of inmates in disciplinary detention. 

Because placement in administrative segregation 

or protective custody is not intended to be punitive, programs and services provided to inmates 

in these categories should approximate (to the 

extent possible) those available to the general 

population. On the other hand, the programs and 

services provided to inmates in disciplinary 

detention, while still fulfilling basic personal 

needs, may be much more limited. 

Inmates cannot be placed in special management 

arbitrarily. Due to the loss of liberty and other 

restrictions inherent in segregation, inmates must 

be afforded basic “due process” when placement 

in special management is being considered. With 

this in mind, the sheriff and jail administrator 

should establish written policies and procedures 

for making such placement decisions and should 

ensure that these decisions are implemented 

through the jail’s classification or disciplinary 

systems. 

The safe and effective operation of special management housing areas within the jail includes 

the following key elements: 

❋ Effective behavior-based classification 

systems. 

❋ Written policies and procedures. 

❋ Appropriate staffing. 

❋ Effective inmate supervision. 

❋ Thorough documentation. 

❋ Appropriate management, monitoring, and 

oversight. 

Attention to these key elements will enhance the 

overall safety and security of the jail and ensure 

the fair treatment of inmates segregated from the 

general population. 

Review Checklist: Special Management 

■ Does the jail have written policies and procedures governing the management of inmates in administrative 

segregation, protective custody, and disciplinary detention? 

■ Does the jail have a separate housing area for special management inmates? 

■ Do the conditions in the special management housing area approximate those of the general population 

housing areas? 

■ Have staff received training in the management and supervision of special management inmates? 

Inmate Services 

Jails must provide certain basic services to maintain the health and well-being of those in custody. These services provide the essentials of 

daily living such as food, health care, clean 

clothing and linens, personal hygiene resources, 

exercise, and communication with the outside 

world. 

Food Services 

The goal of food services should be the provision of nutritionally adequate meals each day 

that are reasonable in cost and produced and 

served under sanitary conditions. The importance of food service in the overall operation of 

the jail should not be underestimated. Whereas 

food service itself is an ongoing function essential to inmates’ health and well-being, the quality 

of food service has a significant impact on the 

44 
jail climate. Food takes on an exaggerated 

importance in the daily lives of inmates. 

Medical and Mental Health Care Services 

Adequate health care services are essential to the 

well-being of inmates and should be viewed as 

a basic human right and as the responsibility of 

the jail. Health care services not only serve the 

individual’s needs, but also prevent the spread of 

disease within the facility. Every jail should have 

a written health care plan that provides for the 

identification, treatment, and/or referral of both 

emergency and nonemergency medical and mental 

health problems. 

Inmate Clothing and Linens 

The jail is responsible for providing adequate 

clothing and linens for inmates. Clothing provided 

to inmates should be in good repair, clean, and 

properly sized. Inmates assigned to work details 

should be provided with protective clothing and 

gear appropriate to the assignment. Inmates not 

released at intake must also be provided with 

appropriate bedding and linen. A typical issue 

includes a mattress (constructed of fire-retardant 

material that is easily sanitized), sheets, one or 

more blankets appropriate to the season, a pillow, 

a towel, and a washcloth. 

Laundry Services 

To maintain adequate levels of sanitation and prevent the spread of disease, the jail must provide 

laundry services. Clothing, linens, and bedding 

of all inmates must be laundered when tendered 

at inmate release and before being reissued. 

Clothing and linens must also be laundered on 

a regular schedule. 

Inmate Personal Hygiene and Grooming 

The jail has a responsibility to provide inmates 

with the resources necessary to maintain personal hygiene. Proper hygiene not only promotes 

Chapter 6. Critical Aspects of Jail Operations 

the health and well-being of the individual, but 

also helps prevent the spread of disease to other 

inmates and staff. Additionally, good grooming 

enhances morale and the attitudes of both staff 

and inmates. A personal hygiene program should 

provide for the daily care of the skin, hair, and 

teeth. Equipment and supplies should be made 

available on a scheduled basis for personal 

grooming and hygiene. 

Inmate Visits 

The jail must provide inmates with the opportunity to maintain contact with persons outside the 

jail through personal and professional visits. 

Professional visits with attorneys, bondsmen, 

investigators, probation and parole officers, 

examiners, the clergy, and the news media are 

generally considered a right. Therefore, restrictions on these types of visits can be imposed 

only with substantial justification. Although 

inmates should be allowed personal visits with 

family and friends within a reasonable jail 

schedule, jail officials generally have more 

latitude in placing restrictions on personal visits 

for security and disciplinary reasons. 

Inmate Mail and Telephone Services 

The jail also provides mail and telephone services 

to enable inmates to maintain contact with persons in the community. Jail administrators must 

distinguish between what is and is not considered privileged communication. Whether by telephone or mail, communication between inmates 

and their attorneys, the courts, probation officers, 

the media, and certain public officials is privileged. Communication between inmates and 

their family and friends is considered nonprivileged. Inmates generally have a right to confidentiality in privileged communications, but 

other communications can be constitutionally 

monitored as long as the inmate is given notice 

that such monitoring may take place. 

45 
Inmate Exercise and Recreation 

Active indoor and outdoor exercise is important 

to the physical and mental well-being of inmates 

and to facility security. Outdoor exercise is especially beneficial because of exposure to fresh air 

and sunlight and because it provides a temporary 

(supervised) release from confinement within the 

building. In addition to being beneficial to 

inmate health, the availability of outdoor and 

indoor exercise may result in fewer operational 

problems such as inmate-on-inmate assaults, 

inmate assaults on staff, damage to jail property, 

and lawsuits. The provision of indoor and outdoor exercise in jails is generally required by 

case law and standards. 

Most jails also provide for passive recreational 

activities to reduce boredom and idleness. These 

may be unstructured dayroom activities such as 

table games, reading, radio, and television or 

organized activities such as arts and crafts, educational classes, movies, or other entertainment. 

Reading materials available to inmates are generally provided through library services at the jail. 

Inmate Commissary Services 

Although not generally obligated to do so, many 

jails provide commissary services. The commissary gives inmates the opportunity to purchase 

various items or amenities not otherwise provided by the jail. These items help to break the 

monotony of the jail diet and routine and provide 

access to a few “extras” that contribute to a more 

normalized environment. A commissary may 

also reduce jail costs, in that it provides a means 

for inmates to purchase items that the jail might 

otherwise be obligated to provide for free. Items 

that are typically available through the commissary include personal hygiene products, over-thecounter medications, stationery, postage stamps, 

playing cards, and snacks. 

Inmate Programs 

Beyond basic services, many jails elect to provide a range of self-improvement programs and 

other opportunities to help inmates make constructive use of their time. These programs help 

inmates with problems and assist in their reintegration to the community. 

Inmate programs are important to the overall 

management of jails and to the community as 

well as to inmates. Programs keep inmates busy, 

establish expectations, provide goals, and help 

inmates recognize their potential for growth. 

Programs enable inmates to learn useful skills, 

continue their education, overcome substance 

abuse problems, improve their mental health, 

receive spiritual guidance, improve parenting 

skills, work on anger and stress management, 

and ultimately learn to change antisocial and 

criminal behavior. 

Programs also reduce vandalism, violence, and 

other misbehavior. The community benefits by 

having the offender leave the jail setting better 

prepared to live and work as a contributing 

member of society. 

Education and Personal Development 

Education and personal development programs 

focus on developing basic knowledge and skills 

in a variety of areas, including: 

❋ Adult education (tutoring and testing for the 

General Equivalency Diploma). 

❋ Literacy. 

❋ English as a second language. 

❋ Computer literacy. 

❋ Health and nutrition. 

❋ Employment (job seeking, career counseling, 

interviewing, etc.). 

46 
Chapter 6. Critical Aspects of Jail Operations 

❋ Parenting. 

❋ Domestic violence. 

❋ Life skills. 

❋ Behavioral change (self esteem, anger 

management, decisionmaking, stress 

management, etc.). 

❋ Educational requirements for juveniles. 

Counseling 

With the help of volunteer organizations and 

professional service providers, jails may offer 

counseling programs intended to help inmates 

deal with emotional and behavioral problems. 

Programs of this type may include group and/or 

individual counseling in the following areas: 

❋ Mental health. 

❋ Chemical dependency. 

❋ Family relationships. 

❋ Spirituality. 

Religious and Spiritual Programs 

Inmates must be afforded the basic right to 

worship and given access to religious materials, 

unless doing so constitutes a justified threat to 

the security and order of the facility. Effective 

religious programs in jails often go beyond 

providing for these basic rights to address many 

of the spiritual, social, and personal needs of 

inmates. Religious/spiritual programming often 

includes: 

❋ Group worship. 

❋ Religious instruction. 

❋ Distribution of religious literature. 

❋ Individual and group spiritual counseling. 

❋ Social help to inmates and their families. 

Work Programs 

Work programs provide a productive outlet for 

inmates and give them the opportunity to learn 

new job skills and establish positive work habits. 

Compensation for some jobs can provide restitution to victims or help support the inmate’s 

family. Inmate labor can also reduce staffing 

needs for specific support services and may be 

a source of revenue for the jail. Jail work programs may include: 

❋ Work release. 

❋ Inmate worker programs. 

❋ Public works. 

❋ Jail industry programs.9 

Identifying Community Resources 

A range of services and programs responsive to 

the interests and needs of inmates is critical to 

effective jail operations. Attention to this area 

can lead to improved behavior and a more 

relaxed environment for both inmates and staff. 

Survey the community to identify resources that 

could be used to enhance jail services and programs. Develop cooperative agreements with 

other local government agencies and community 

service organizations to provide their services to 

inmates. These services could include health and 

mental health care, employment assistance, and 

substance abuse programs. 

9 Jail industries are not just for large jurisdictions. There are many 

opportunities for small jails to develop and operate jail industry 

programs as well. Miller, Sexton, and Jacobsen (2002) have developed a workbook that includes an introduction to jail industries, 

key development principles, components of the development 

process, and a step-by-step guide to planning and implementation. 

47 
Review Checklist: Inmate Programs 

■ Are essential services (medical and mental health care, food, laundry, personal hygiene, etc.) available 

to meet inmates’ basic needs? 

■ Are visitation, mail, and telephone services available to provide inmates the opportunity to maintain 

contact with family and friends? 

■ Is a range of programs (Alcoholics Anonymous, education, substance abuse, job readiness, etc.) available 

to assist inmates in self-improvement and successful reintegration into the community? 

■ Are efforts (exercise, library materials, passive table games, work programs, etc.) made to reduce 

idleness and keep inmates productively occupied? 

■ Are efforts made to involve community service agencies in developing and providing programs for 

inmates in your jail? 

■ Does your jail provide suitable space, equipment, and supplies for services and programs? 

Intake and Release 

The intake and release processes are essential to 

the safe operation of the jail. If not handled 

properly, these processes pose a greater risk of 

liability than any other aspect of jail operations. 

Intake and release functions clearly distinguish 

jails from prisons and other correctional settings. 

The jail intake unit is a round-the-clock operation 

that handles an extremely diverse population. 

Arrestees presented for jail intake may be under 

the influence of drugs or alcohol, be mentally ill, 

or have infectious diseases. Their behavior may 

run the gamut from violent to subdued and withdrawn. A majority are pretrial admissions with 

charges ranging from minor misdemeanors to 

serious felonies. Although some arrestees end up 

being detained in jail for lengthy periods of time, 

most are released within a day or two. 

These factors present unique management challenges, some of which (e.g., disruptive behavior, 

suicide risk, infectious disease, substance withdrawal) may require the use of force and 

restraints or placement into special holding. The 

intake process also involves a number of legal 

issues, such as access to the courts, access to 

health care, and strip searches. Additionally, 

the process of preparing arrestees for placement 

in the general population involves several steps, 

including identification, securing property, 

classification, and medical screening. 

Although the release process is typically less 

intense, it is no less important. The release 

process includes positive identification of the 

inmate, a check for holds or detainers, victim 

notification, medical referrals for inmates with 

special needs or conditions, and the return of 

property. 

The jail should have clearly defined policies and 

procedures to guide the intake process. The key 

elements of the intake process, presented in the 

sequence they generally occur, are as follows: 

❋ Receiving inmates into the intake area. 

❋ Verification of arrest and identification 

of the arrestee to ensure a legal commitment. 

❋ A preliminary medical assessment to 

determine fitness to confine. 

❋ An initial search for weapons and other 

contraband missed by arresting officers 

during their field search. 

❋ A medical screening to identify infectious 

diseases, mental illness, and other nonemergent medical conditions or injuries so that 

48 
Chapter 6. Critical Aspects of Jail Operations 

these may be treated and those who cannot 

be placed in the general population can be 

properly housed and supervised. 

❋ Inventory and disposition of inmate 

property. 

❋ Inmate booking to document the identity 

of the arrestee, personal data, and other 

essential information regarding pending 

legal matters. 

❋ A photograph and fingerprint of the 

arrestee to establish and confirm his/her 

identity. 

❋ A check for warrants or wanted notices 

from other jurisdictions in order to hold the 

arrestee on other charges, should they exist. 

❋ Telephone calls for arrestees who need to 

contact family or friends to notify them of 

their whereabouts and to attorneys or bail 

bondsmen to aid in securing release. 

❋ A pretrial release screening to determine 

eligibility for pretrial release. 

❋ A followup search and dress-out of 

inmates unable to secure release at intake. 

❋ Classification and orientation for inmates 

unable to secure release at intake. 

Effective supervision and management of inmates 

at intake is critical. This period of incarceration 

presents the greatest potential for injury or harm 

to staff and arrestees because of the instability 

or uncertainty of the circumstances in which 

arrestees find themselves. It is essential for jail 

officers to use the intake process as an opportunity to “set the tone” for the inmate’s stay in the 

facility. The expectations established during the 

process, the ways in which these expectations 

are conveyed, and the level of professionalism 

displayed by officers can have a positive impact 

on arrestees’ behavior during intake and throughout their stay in the facility. 

The release process may occur shortly after the 

intake process, if the arrestee secures pretrial 

release, or much later, at the end of a sentence 

or after disposition of the arrestee’s case. The 

process generally includes: 

❋ Verification of discharge approval and 

identification of the inmate to be discharged. 

❋ A file check to ensure that there are no 

active holds or detainers. 

❋ Return of the inmate’s property and 

money. 

❋ Medical discharge planning and referrals, 

if necessary. 

❋ Victim notification of release, where 

required. 

❋ A final administrative check of the 

inmate’s file to ensure that all requirements 

of sentencing have been met and any administrative charges or levies have been satisfied. 

❋ Arrangements for transportation for the 

inmate, if necessary. 

❋ Completion of the release document or 

checklist. 

A well-planned release process provides for the 

safe, legal return of inmates into the community. 

Discharge planning, referral to community 

resources, and victim notification are becoming 

increasingly important elements of the release 

process. Attention to these issues as well as the 

more routine aspects of the release process will 

enhance the safety of the community, improve 

prospects for the inmate, and reduce the jail’s 

exposure to liability. 

49 
Review Checklist: Intake and Release 

■ Does the jail complete all essential steps in the intake process? The jail’s intake process should include 

the following: 

❋ Securing of the arresting officer’s weapons. 

❋ An initial pat or frisk search prior to entering the intake area. 

❋ Identification of the arresting officer. 

❋ Verification of arrest or legal commitment. 

❋ Assessment for medical clearance. 

❋ Search of the arrestee. 

❋ Property removal and inventory. 

❋ Medical/suicide screening. 

❋ Completion of booking forms. 

❋ Identification (photographs and fingerprints). 

❋ Warrant checks. 

❋ Arrestee telephone calls to family, bondsman, or attorneys. 

❋ A pretrial release screening. 

❋ A shower, dress-out, and issue. 

❋ Initial classification. 

❋ Orientation. 

■ Does the jail complete all essential steps in the release process? The jail’s release process should include 

the following: 

❋ Verification of discharge documents. 

❋ Verification of the identity of the inmate being released. 

❋ A check for holds or detainers. 

❋ The return of property and money. 

❋ Referrals (medical, mental health, etc.). 

❋ Victim notification. 

❋ A review of release requirements. 

❋ Transportation arrangements. 

❋ The completion of release documents. 

■ Does the jail have policies and procedures governing the intake and release function? 

■ Are the basic tools such as rubber gloves, restraint equipment, and body-fluid protective equipment 

available in the intake area, and are staff trained in their use? 

■ Are staff trained in the supervision and management of intoxicated inmates? 

■ Are staff trained in universal precautions? 

■ Does the jail’s policy prohibit the blanket strip search of all arrestees and allow their strip search only 

based upon reasonable suspicion that the arrestee is concealing contraband? 

50 
So Much To Learn . . . Where Do I Begin? 
 7

This chapter presents a list of steps new sheriffs 

can take to get to know their jail, understand 

how it operates, and identify any potential problem areas. Although the chapter is specifically 

oriented toward the newly elected sheriff, many 

of the concepts may also be helpful to veteran 

sheriffs seeking to improve the effectiveness of 

jail operations. 

Sheriffs have many things to learn during their 

first few months in office. Some issues—like the 

budget, contracts, pending litigation, pending 

personnel actions, and facility problems—may 

require the sheriff’s immediate attention. In this 

initial period, it is imperative to sort out right 

away what is important to know and who can 

provide this information. To identify the major 

issues, sheriffs should: 

❋ Meet with the jail administrator to determine 

what he/she views as major issues and priorities. The sheriff should use this meeting to 

clarify the jail administrator’s role and the 

scope of his/her authority within the organization to make decisions relating to the jail. 

❋ Talk to staff on a regular basis. 

❋ Identify the jail’s budget analyst in the jurisdiction’s budget office. Set up a meeting to 

review the current budget and discuss any 

outstanding budget issues requiring immediate attention. Note the key dates for budget 

preparation, submission, and reporting. 

❋ Review all contracts or interagency agreements to determine what services are 

offered, their cost, and their current status. 

Get contact information for each contract or 

agreement. 

❋ Identify the jail’s human resources representative. Schedule a meeting to go over collective bargaining agreements and other 

pending personnel issues. 

❋ Review the current staffing plan, current 

staffing levels, and staff turnover. Review the 

current organizational structure and reporting relationships to see whether they are 

consistent with the sheriff’s philosophy and 

management approach. 

❋ Request an audit of the inmate financial and 

commissary accounts. 

❋ Review emergency procedures and assess 

the jail’s current level of readiness to 

respond to emergencies. 

❋ Identify the jail’s legal representative. Set up 

a meeting to discuss current issues and any 

pending litigation, court orders, or consent 

decrees. Find out whether there is a history 

of litigation in any particular areas. 

❋ Review the most recent inspection reports of 

outside agencies such as the fire marshal, 

health department, or jail standards inspection agency. Identify any outstanding deficiencies and determine what steps have been 

taken to correct them. Deficiencies affecting 

the lives, health, and safety of inmates and 

staff should receive priority attention. 

❋ Identify key staff responsible for the maintenance and upkeep of the jail. Schedule a meeting with them and with the jail administrator 

51 
to discuss the current condition of the facility 

and to identify any facility-related problems 

requiring immediate attention. 

❋ Review documentation of past internal 

inspections (security, safety, sanitation, 

maintenance, etc.). Determine whether 

appropriate corrective action has been taken 

to resolve any deficiencies identified in these 

inspections. 

❋ Review documentation of past incidents 

(e.g., suicides, suicide attempts, fires, use 

of force, disturbances) to identify potential 

problem areas and trends. 

❋ Review data on jail population characteristics 

and trends to get a good understanding of 

who is in jail and how the jail is used by the 

local justice system. 

❋ Determine the availability and current status 

of written directives (policies and procedures, post orders, etc.) and other types of 

documentation. Determine whether these 

written directives have been kept current 

and reviewed by the jail’s legal counsel. 

Also determine whether staff have received 

training on these written directives and are 

following them. 

❋ Identify key criminal justice officials whose 

decisions have an impact on the use of the 

jail. Set up a meeting to discuss their issues 

and concerns. 

❋ Identify key media representatives and get 

their contact information. Review their 

record of past coverage of the jail. Meet with 

them as necessary to set a positive tone for 

the future. 

The focus of this initial period should be to identify and compile a list of issues to be addressed 

and to gather information necessary to evaluate 

options. Once the issues are identified, the sheriff, 

working with the jail administrator, can develop 

a plan of action to address these issues. 

There is no ideal way to begin addressing jail 

issues during the first few months in office. Each 

newly elected sheriff brings strengths and a certain level of experience to the office. The key to 

a good start is to have a plan for quickly getting 

“up to speed” and focused on the important 

issues. Once this is done, the sheriff can begin to 

make his/her own imprint on the organization by 

defining and communicating his/her vision and 

putting the pieces in place to implement that 

vision. 

52 
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54 
National Institute of Corrections


Advisory Board


Collene Thompson Campbell 

San Juan Capistrano, CA 

Norman A. Carlson 

Chisago City, MN 

Michael S. Carona 

Sheriff, Orange County 

Santa Ana, CA 

Jack Cowley 

Alpha for Prison and Reentry 

Tulsa, OK 

J. Robert Flores 

Administrator 

Office of Juvenile Justice and 

Delinquency Prevention 

U.S. Department of Justice 

Washington, DC 

Stanley Glanz 

Sheriff, Tulsa County 

Tulsa, OK 

Wade F. Horn, Ph.D. 

Assistant Secretary for Children and Families 

U.S. Department of Health and 

Human Services 

Washington, DC 

Byron Johnson, Ph.D. 

Department of Sociology and Anthropology 

Baylor University 

Waco, TX 

Harley G. Lappin 

Director 

Federal Bureau of Prisons 

U.S. Department of Justice 

Washington, DC 

Colonel David M. Parrish 

Hillsborough County Sheriff’s Office 

Tampa, FL 

Judge Sheryl A. Ramstad 

Minnesota Tax Court 

St. Paul, MN 

Edward F. Reilly, Jr. 

Chairman 

U.S. Parole Commission 

Chevy Chase, MD 

Judge Barbara J. Rothstein 

Director 

Federal Judicial Center 

Washington, DC 

Regina B. Schofield 

Assistant Attorney General 

Office of Justice Programs 

U.S. Department of Justice 

Washington, DC 

Reginald A. Wilkinson, Ed.D. 

Director 

Ohio Department of Rehabilitation 

and Correction 

Columbus, OH 

B. Diane Williams 

President 

The Safer Foundation 

Chicago, IL 
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