RESOURCE MANUAL FOR

TRANSITION TO 

A NEW JAIL

U.S. Department of Justice

National Institute of Corrections
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. Hutchinson

Chief, Jails Division

Alan Richardson

Project Manager

Vicci Persons

Project Manager 

National Institute of Corrections

World Wide Web Site

http://www.nicic.org
Gail Elias

John Milosovich

Voorhis Associates, Inc. 

March 2005

NIC Accession Number 020159

RESOURCE MANUAL FOR

TRANSITION TO 

A NEW JAIL
This publication was prepared under cooperative agreement 02J19GIV8 from the National Institute of Corrections,

U.S. Department of Justice. Points of view stated in this publication are those of the authors and do not necessarily

represent the official position or policies of the U.S. Department of Justice.

© Voorhis Associates, Inc.

The National Institute of Corrections reserves the right to reproduce, publish, translate, or otherwise use and to

authorize others to publish and use all or any part of the copyrighted material contained in this publication. 
Resource Manual for Transition to a New Jail iii

The Resource Manual for Transition to a New Jail describes a process for

moving into a new detention facility and introduces different philosophical

approaches to the facility’s operations. It provides guidelines for developing

a transition team and details the tasks associated with a successful transition

effort. 

Transition is not simply a matter of moving inmates and staff to a new facility.

It is a complex set of tasks that requires staff and other resources working to

ensure the move is successful. The transition process described includes steps

for transition management; construction coordination; staffing; document

development; training; purchase of furniture, fixtures, equipment, and supplies;

and the actual logistics of the move to the new facility. 

The process outlined in this document is the culmination of many years of

experience and study. Practitioners who participated in their own agency transitions provided original materials and information that have allowed the

National Institute of Corrections (NIC) to conduct training in the transition

process (How To Open a New Institution). The information contained herein

provides a foundation for agencies to plan properly their transition to a new

facility.

We hope this resource document will assist agencies starting the process of

planning for a successful transition to a new detention facility. We invite agencies to contact the NIC Jails Division for additional assistance, if needed.

Morris L. Thigpen

Director

National Institute of Corrections

Foreword
Resource Manual for Transition to a New Jail v

When a jurisdiction decides to make a major change to its jail facility, it commits to one of the most significant planning and construction projects it will

ever undertake. Many jurisdictions focus on the capital aspects of these projects; they miss the essential operational aspects. It is not enough to “build the

building.” Jurisdictions must also “build” their new operations as the buildings

come out of the ground. When the buildings are complete, jurisdictions must

merge their new operational plans with the new buildings to create a smooth

transition into the new jail.

The dictionary defines “transition” as “the act of passing from one stage to the

next,” “an event that results in a transformation,” and a “change from one

place, state, subject, or stage to another.” In this manual, transition means all

of the above. It is far more than a move from one building to another. Because

jails are constructed infrequently and because their operational style tends to

be driven by their design, a new jail almost always means a significant shift in

how the agency operates the facility. This transformation is the heart of transition. These changes do not occur in and of themselves; they are conscious

choices that are planned, developed, implemented, and nurtured through the

transition process. 

Transition is often presented as “the step in the planning process that follows

construction.” In reality, transition begins as the project begins. During planning and programming, the operational philosophy is defined and new operational practices are identified. These are actually the first steps of transition.

Then, many jurisdictions begin transition in a more significant way at about

the time construction begins. 

Regardless of where you are in your facility development process, in spite of

how much—or how little—time remains until you occupy your new jail facility, this manual will be useful. Although the transition tasks are described for a

fully staffed transition team with enough time to complete the work prior to

occupancy, we have also attempted to offer strategies for transition in a less

Preface
vi Resource Manual for Transition to a New Jail

than perfect world. We recognize that each jurisdiction is unique and that projects

can be structured in many ways. These differences influence who does what in any

specific project. They can shape the tasks the transition team completes and its role

in the process. 

As you develop and implement your transition project, recognize that this time

offers a unique potential for positive change and for addressing issues within your

organization. What is done to construct the new facility and develop the new operations will shape the environment for both staff and inmates. It will have a significant impact on your organization and your jurisdiction. Transition is both a challenge

and an opportunity worth taking. 

Gail Elias
Resource Manual for Transition to a New Jail vii

The National Institute of Corrections (NIC) wishes to acknowledge all of those

who have contributed to the development of this manual and the associated

curriculum:

Terry Moran (Inspector, New York Commission on Corrections), Cheryl Paul

(Retired Lieutenant, Sonoma County Sheriff’s Department), and Butch Reynolds

(Retired Major, Lexington County Sheriff’s Office) for their assistance in developing the foundation for this document and reviewing the draft, and for the useful suggestions they provided.

John Milosovich and Gail Elias who took the ideas and some of their own, and

formed them into this manual.

And last but not least, the many practitioners in the corrections and criminal

justice planning fields who have shared their transition experiences, both

positive and negative, with NIC and with other agencies undergoing the same

process.

Acknowledgments
Resource Manual for Transition to a New Jail ix

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

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .v

Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .vii

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

How To Use This Manual

What Is Transition?

What Is Transition Meant To Do?

What Principles Guide Transition?

Why Is Transition Essential?

How Does Transition Fit in the Facility Development Process? 

What Are the Outcomes of Transition?

What Comes Next?

Chapter 2. Transition Management . . . . . . . . . . . . . . . . . . . . . . . .2–1

Transition Tasks

Organizing the Transition Process

What Comes Next?

Appendix 2–1. Action Plan

Chapter 3. Construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–1

Overview

Construction Monitoring

Construction Completion

Construction Coordination After Facility Turnover

Renovations/Additions

Final Thoughts

Appendix 3–1. Construction Terminology

Contents
x Resource Manual for Transition to a New Jail

Chapter 4. Staff/Human Resources . . . . . . . . . . . . . . . . . . . . . . . . . . .4–1

Overview 

Staffing Analysis

Recruitment and Selection

Personnel Management Resources

Final Thoughts

Chapter 5. Document Development . . . . . . . . . . . . . . . . . . . . . . . . . . .5–1

Overview

Before You Write

Developing Individual Documents

Final Thoughts

Appendix 5–1. Document Coordinator Position Description

Appendix 5–2. Sample Tracking Log

Appendix 5–3. Sample Operational Scenarios

Appendix 5–4. Sample Policy and Procedure Tables of Contents

Appendix 5–5. Sample Policy and Procedure Formats

Appendix 5–6. Sample List of Forms

Appendix 5–7. Sample Post Order Format

Appendix 5–8. Sample Master Schedules

Chapter 6. Training and Orientation . . . . . . . . . . . . . . . . . . . . . . . . . .6–1

Overview

Types of Training

Training Challenges

Appendix 6–1. Sample Lesson Plan

Chapter 7. Furniture, Fixtures, Equipment, and Supplies . . . . . . . . . .7–1

Overview

Defining FF&E Needs

Bidding and Acquiring the Items

Final Thoughts

Appendix 7–1. Sample List of FF&E

Chapter 8. Move Logistics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–1

Overview

Pre-Move Activities

The Move

Post-Move Activities

And Everything Else 

Appendix 8–1. Sample Inmate Move Plan

Appendix 8–2. Sample Inmate Move Checklist

Chapter 9. Transition Themes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–1

Managing Change

Community Relations

Conclusion 
Introduction

CHAPTER ONE
How To Use This Manual . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1–3

What Is Transition? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1–4

What Is Transition Meant To Do? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1–5

What Principles Guide Transition? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1–5

Why Is Transition Essential? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1–6

How Does Transition Fit in the Facility Development Process? . . . . . .1–6

What Are the Outcomes of Transition? . . . . . . . . . . . . . . . . . . . . . . . . . .1–8

What Comes Next? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1–8
Resource Manual for Transition to a New Jail 1–3

Introduction

CHAPTER ONE

How To Use This Manual

The Resource Manual for Transition to a New Jail was created to assist users/

owners of correctional facilities and transition teams who oversee building,

opening, and moving into a new jail facility. This manual will help you with

every aspect of the transition process from construction to staffing, training,

and orientation to acquiring furniture, fixtures, equipment, and supplies

(FF&E) to moving into the new jail. 

The manual is divided into nine chapters, each of which provides detailed

information that will help the user/owner with each function necessary for a

successful transition:

■ Chapter one, Introduction, provides an overview of the transition process,

including the purpose of transition, the principles that guide transition, the

need for transition, how transition fits with the other steps in the facility

development process, and the goals and outcomes of transition. 

■ Chapter two, Transition Management, discusses how to organize the transition process, including selecting a transition coordinator and transition

team, developing a transition budget, and creating an action plan for accomplishing each of the tasks detailed in the succeeding chapters.

■ Chapter three, Construction, describes transition duties related to facility

construction.

■ Chapter four, Staff/Human Resources, reviews staffing and other personnel

issues.

■ Chapter five, Document Development, analyzes both general and individual

requirements for documents (e.g., policies and procedures, post orders,

schedules) that must be developed during transition.

■ Chapter six, Training and Orientation, details typical transition training

activities, including training and orientation for staff, inmates, and other

users of the jail.
1–4 Resource Manual for Transition to a New Jail

■ Chapter seven, Furniture, Fixtures,

Equipment, and Supplies, outlines

transition tasks related to acquiring

FF&E, including selection, purchasing, receipt, and installation.

■ Chapter eight, Move Logistics,

identifies the tasks associated with

the actual move, including premove activities, the move itself, and

activities related to the continued

operation or shutdown of the old

facility and closing the transition

office.

■ Chapter nine, Transition Themes,

discusses strategies for managing

change and building community

relations. 

Appendixes to the chapters can be

found at the end of the individual chapters. These appendixes include terms

lists; sample forms, checklists, and

worksheets for the transition team to

use in planning and organizing the

transition; and sample formats for

selected documentation that the transition team will need to prepare. 

This manual uses the term “jurisdiction” to refer to the governmental

entity, i.e., a city, county, or state, that

operates the facility. The term “department” refers to the agency that

oversees the facility, i.e., the sheriff’s

department or department of

corrections.

To help users get started, the remainder

of this chapter discusses what transition is, what it is designed to accomplish, what principles underlie it, why

transition is essential, and where it fits

into the facility development and the

contributions that the other steps in the

process make to transition, and what its

outcomes are. 

What Is Transition?

During the marathon process of planning and designing a new jail or

prison, jurisdictions focus their financial, political, and human resources on

one goal—a new building. Although

this focus is natural, it is equally essential for jurisdictions to “build” the new

facility’s operations. “Building the new

operation” is the task of “transition.”

Most jurisdictions build new facilities

infrequently. As a result, they do not

know what to expect when they begin

planning for a new building, except by

way of “war stories” from other jurisdictions that have gone through the

process. Jurisdictions tend to think of

transition as moving to the new facility,

like moving to a new home. Although

moving to a new jail is similar in some

ways to moving into a new home—

both involve moving a lot of possessions and fixing last-minute details that

the contractor didn’t get quite right—

the differences are great. Many of

these differences stem from the fact

that operations must continue in the

old jail during the move. Corrections

personnel must still receive and release

inmates, serve meals, and respond to

medical emergencies. For most of us,

a move doesn’t significantly change

how we perform the basic functions

we carry out in our homes. We don’t

supervise our children or cook differently. We don’t have a host of new

family members who are joining us for

the first time and who don’t know how

we do things, and we don’t typically

have family members who are intent

on exploiting the situation to their own

advantage with potentially dangerous

results. 
Resource Manual for Transition to a New Jail

CHAPTER ONE

1–5

What Is Transition Meant 

To Do?

Transition involves a complex set of

tasks that must begin before the move

and often continue for some time afterward. It is both the anticipation and

preparation that will make the new

facility effective when it opens. 

Transition has three main purposes:

■ To develop and implement an

operational plan.

■ To teach staff how to operate the

new facility.

■ To anticipate and resolve building

problems before occupancy. 

Imagine you are starting a totally new

institution. If you had never operated

a jail before, what would you need to

open the doors and start accepting prisoners? Although the building in which

you will operate is essential, think of

all the other things you would need.

Those other things are the products of

transition. It is essential that all of the

tasks necessary for a smooth transition

be identified and completed. To do so

requires a tremendous amount of coordination among those who work in,

use, service, and visit the jail.

Transition implies change. Many people in corrections think of it only as a

change from an old to a new facility.

However, it is as much a change of

operations as a change of building,

even if the jurisdiction has essentially

replicated its current building. The new

facility will incorporate new technology and equipment, and it is likely that

its components and spaces will be

arranged differently. Therefore, facility

operations will change even if the

jurisdiction’s basic philosophy and

approach to inmate management

remain constant. More likely, both the

philosophy and style of inmate

management will change to some

degree, making the operational changes

even more significant. 

What Principles Guide

Transition?

Transition is based on underlying principles about change, human behavior,

and good correctional practice that

include the following:

■ People support what they help create. Considerable evidence shows

that people resist change, but support for change increases when they

have an opportunity to participate in

the process. Transition helps build

support by involving a variety of

individuals and groups in the

change.

■ A new building is only a part of the

solution. A principle of jail operations is that safety and security

come from the effective interaction

of three components: a strong physical plant, well-trained staff, and

effective and appropriately used

technology. In older facilities, technology is seldom current and the

physical plant has weaknesses. A

competent well-trained staff provides much of the security. People

often assume that replacing the

physical plant will somehow eliminate the need for the other two

components. Nothing could be further from the truth. All three will

be necessary for effective future

operations.

■ Transition provides jurisdictions

with a “once in a lifetime” opportunity to shape the future and significantly improve jail operations. 

Transition

provides

jurisdictions

with a “once

in a lifetime” opportunity to

shape the

future and

significantly

improve jail

operations. 
1–6 Resource Manual for Transition to a New Jail

Why Is Transition Essential?

Transition is essential for many reasons:

■ No matter how skilled in current

operations staff are, they will not

know where everything is and how

it works in the new facility. Beyond

that, other users, e.g., other law

enforcement agencies, bonding

agencies, and the public, will need

to know how those parts of the

facility they interact with will work.

■ No matter how good the architect

and the contractor are, some things

will not work as anticipated when

the facility is finished and will need

fine-tuning. You need to know what

these are before you move into the

new jail. It’s not good to discover

after the prisoners are moved in

that the electronic security system

isn’t working. Adequate testing

of all building systems (called

shakedowns in this manual) and

searching the facility will minimize

the potential for escapes and other

potentially dangerous and embarrassing incidents.

■ Rumors about the new facility will

arise among staff and inmates. The

unknown can create anxiety for

everyone. Part of the transition

process is to provide the right

amount (and kind) of information

to the right people to reduce the

level of tension associated with the

move.

■ Opening a new facility often

requires hiring new staff. This new

staff has to be integrated with current employees in a way that makes

them all competent in the new operation and promotes consistency.

■ Finally, like much of what is done

in corrections, a good transition

process should minimize future liability, not only during the transition

and initial occupancy but also for

the life of the facility. The work

done during transition to develop

policies and procedures, create post

orders, and train staff goes a long

way in protecting long-term

interests.

How Does Transition Fit in the

Facility Development Process?

Transition is one of the five stages of

the facility development process, as

illustrated by the flowchart (exhibit

1–1):

■ Planning. This comprises all the

activities that occur before design.

These typically include needs

assessment, economic feasibility

analysis, and architectural programming and planning.

■ Site analysis. This comprises all

the activities involved with evaluating and selecting a site.

■ Design. This comprises all the

activities required to translate the

functions and spaces defined in the

previous steps into a physical form.

It creates the documents from

which the contractor bids the job.

■ Construction. This is the process

of building the facility.

■ Transition. This is the process of

planning, developing, and integrating the new operation with the

building.

Facility development is often presented

as a linear, multistep process in which

one activity occurs after the other.

Although many later steps depend on

the results of previous steps, at least

some of this process must be concurrent. Transition cannot wait until

No matter

how skilled

in current

operations

staff are,

they will not

know where

everything is

and how it

works in the

new facility.
Resource Manual for Transition to a New Jail

CHAPTER ONE

1–7

construction is complete. Activities that

occur during the planning and design

stages are the foundation on which

transition is built. 

To some degree, the arrows in the first

row of exhibit 1–1 represent the facility

development process and the arrows

in the second row represent the operational development process. 

As exhibit 1–1 illustrates, transition is

linked to all of the previous (and

concurrent) activities in the facility

development process. These links are

particularly important for generating

the documentation that the transition

team must rely on to perform its functions and develop its own documentation for the facility’s operations (see

chapter five):

■ Planning produces a mission statement for the facility that directs its

design and operating philosophy.

Materials developed during transition should be consistent with this

philosophy. 

■ Programming provides a statement

of the functions carried out in the

new facility and a staffing analysis.

Statements of how various functions should be carried out form the

basis of detailed scenarios to be

developed. 

■ Design provides the floor plans,

specifications, and other construction documents, which define in

words and drawings how the facility

will be constructed and what equipment and materials will be required.

■ Construction produces other types

of drawings that will be important

resources for transition as well as

the facility itself.

Ideally, transition is a 12- to 18-month

process. However, many jurisdictions

must complete the transition process in

far less time. If that is the case, there

are three key issues for transition:

■ How can tasks be prioritized into

those that must be done before

occupancy and those that can be

Exhibit 1–1. Facility Development Process

Planning Site Analysis Design Construction

Transition

Planning

produces a

mission

statement

for the

facility that

directs its

design and

operating

philosophy. 
1–8 Resource Manual for Transition to a New Jail

deferred without jeopardizing the

safety, security, and integrity of the

institution?

■ How can more resources be made

available for transition to accomplish as much as possible before

occupancy?

■ Is the situation so acute that occupancy should be deferred until the

jurisdiction is better prepared? 

Decisions about each of these key

issues must be made by the department, preferably with the support of

the county administration.

What Are the Outcomes 

of Transition?

As mentioned earlier, the desired outcomes of the transition process fall into

three categories:

■ To develop and implement an

operational plan.

■ To teach staff how to operate the

new facility.

■ To anticipate and resolve building

problems before occupancy. 

In addition to the specific outcomes

related to the operation of the new jail,

a well-designed and well-executed

transition process realizes goals and

byproducts that improve the operation

of the department as a whole. The following are the goals of a typical transition process:

■ To develop the skills and knowledge of the new jail’s staff.

■ To re-create and improve operations, starting with a clean slate.

■ To anticipate and solve building

and operational problems prior to

opening.

■ To include a wide range of users to

promote ownership.

■ To enhance the credibility of the

jail as an equal partner within the

department.

■ To use individual skills needed for

transition without regard to title,

position, or rank. 

■ To recognize and plan for a smooth

transition to the new facility for all

inmates and staff, whether the staff

is full time or part time.

Beneficial byproducts of transition for

the department include the following:

■ A cadre of highly skilled and more

knowledgeable employees who are

capable of taking on a variety of

challenging assignments.

■ Improved working relationships

with a variety of agencies both

inside and outside of government.

Because most communities construct a

county jail only once every 50 to 100

years, transition provides a unique

opportunity to do it right. Transition

gives the criminal justice and corrections community a new opportunity to

meet the needs of inmates, enhance

public safety, and improve the entire

criminal justice system. 

What Comes Next?

Now that you’ve had a brief exposure

to transition, you may wonder how

you’re going to put together your

department’s approach to this challenging task. Chapter two, Transition Management, offers some suggestions on

how to get started. 

Use individual skills

needed for

transition

without

regard to

title,

position,

or rank. 
Transition

Management

CHAPTER TWO
Transition Tasks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–3

Organizing the Transition Team . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–3

Monitoring the Construction Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–4

Hiring Staff . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–5

Developing Documents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–6

Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–6

Acquiring FF&E . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–7

Planning Move Logistics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–8

Miscellaneous Tasks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–9

Organizing the Transition Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–9

Organizing the Transition Team . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–10

Transition Budgeting and Its Relationship to Project 

and Operating Budgets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–14

Developing the Action Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–16

What Comes Next? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–17

Appendix 2–1. Action Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2–19
Resource Manual for Transition to a New Jail 2–3

This chapter begins with an overview of the individual transition tasks that will

be discussed in greater detail in the remaining chapters of this manual.

Following this general overview, the remainder of the chapter discusses the

organization of the transition process in more detail, including organizing and

housing the transition team, developing and following a transition budget, and

developing an action plan. 

Transition Tasks

Transition tasks can be organized in various ways, but tend to fall into these

seven groups:

■ Organizing the transition team. 

■ Monitoring the construction process. 

■ Acquiring staff for the new operation. 

■ Developing the documents needed for the new operation. 

■ Training the staff in how to operate the new facility. 

■ Acquiring the furniture, fixtures, equipment, and supplies (FF&E) that are

not part of the general contract.

■ Planning the logistics of the move.

All of these tasks play a significant part in a successful transition, and a number are related to or depend on successful completion of previous tasks. They

will not all take an equal amount of time and it is likely that each will have

periods of ebb and flow. This chapter and each of the following chapters

focuses on one of these primary tasks following the brief description below.

Organizing the Transition Team

At a minimum, organizing the transition team involves the following tasks:

■ Selecting the transition coordinator and transition team members.

■ Requesting and obtaining the transition budget.

Transition Management

CHAPTER TWO
2–4 Resource Manual for Transition to a New Jail

■ Locating the transition office.

■ Developing an overall transition

plan and schedule.

■ Identifying transition team training

needs.

■ Establishing a reporting structure.

■ Identifying transition tasks.

■ Prioritizing and assigning tasks.

The first group of transition tasks are

about getting organized. This involves

not only selecting the team members,

but also developing the resources to

support the team—such as a budget

and office space. Because transition

teams rarely come with the necessary

skill sets fully developed, some training will likely be required. The individuals on the transition team will work

closely together over an intense period,

which can lead to difficulties if team

members do not understand each

other’s work styles and have no mechanism to resolve issues that arise. Therefore, it may be a good idea to kick off

transition with a team-building activity.

Once the transition team is organized,

the next series of tasks is to develop an

overall transition plan, including a

schedule. This often takes the form of

action planning to identify all required

tasks and their time sequence and due

dates, the resources needed to complete

the tasks, and who has overall responsibility for completing the tasks.

In the best of all possible worlds, transition teams would have all the time

they need to do all of the transition

tasks before occupancy of the building.

However, sometimes reality diverges

from the ideal. As a result, transition

teams need to focus first on those tasks

that must be done before occupancy

and defer those that can occur after the

building is operational. In prioritizing

tasks, it is important to focus on those

tasks that have implications for training, affect the safety and security of

the facility and its staff, or require long

lead times for acquiring essential

equipment and supplies. 

Monitoring the Construction

Process

At a minimum, monitoring the construction process involves the following

tasks:

■ Determining/clarifying the roles of

the transition team’s construction

specialist, the owner’s representative or project manager, and the

contractor. The scope of this transition task can vary widely from

jurisdiction to jurisdiction, depending on how the project is being

managed. Even if the jurisdiction

has a totally separate project management structure, the transition

team will still play a role in monitoring construction activities. It is

important to be very clear on what

the transition team’s role will be in

monitoring the construction process

and how input from the team can be

integrated to enhance the construction process. 

■ Clarifying when and how the

transition team will gain access

to the site. One of the givens is

that the transition team will need

access to the site, not only for

walkthroughs, but also for testing

transition work products, such as

scenarios and policies and procedures. Transition team members

must learn how to behave while on

the site to ensure that they do not

create conflicts or safety issues.

In the best

of all possible worlds,

transition

teams would

have all the

time they

need.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–5

■ Establishing a plan to gain access

to shop drawings. The transition

team will need to put in place a

process that will allow them to get

shop drawings that are of particular

interest to them. These will typically involve security-related items. In

some cases, the team may want a

copy of all shop drawings, particularly if it is not familiar enough

with the project to determine which

are important to them.

■ Securing and maintaining as-built

drawings. The transition team

needs to ensure that the building

contractor’s drawings that describe

how the facility is actually built are

provided, stored, and secured for

future use.

■ Preparing for the facility to be

turned over to the jurisdiction. As

occupancy draws nearer, the transition team will be increasingly involved with construction. Team

members typically participate in

punchlists (a list of work to be corrected or completed by the contractor after substantial completion),

walkthroughs, and the shakedown

of equipment and systems in the

facility.

■ Coordinating post-construction

activities. After the general contractor is finished, transition team

members will need to coordinate

various activities, including telephone and computer installation.

The team also will likely be involved in followup warranty work.

Hiring Staff

Jurisdictions sometimes underestimate

the impact of transition on their personnel departments, and they differ

significantly in how they approach

completing the tasks that are discussed

in this section. Team members are

likely to play a supporting role in this

area—their participation will be

essential. At a minimum, acquiring

human resources to operate the new

facility involves the following tasks:

■ Developing or updating a staffing

analysis for the new facility. If no

staffing analysis has been completed, this will be the team’s first order

of business to ensure that the facility will have the necessary staff to

operate. If a staffing study has been

done, team members need to ensure

that it is updated and verified based

on the final design. Team members

may need to develop several staffing studies: an initial occupancy

study as well as a full-occupancy

staffing analysis.

■ Developing a hiring plan.

Transition team members need to

familiarize themselves with the normal hiring process and work with

the department’s and/or jurisdiction’s human resource staff to identify the impact on the normal

recruitment and selection process

of the numbers of people who will

have to be hired. Jurisdictions often

find that the number of individuals

to be screened and taken through

the selection process can overwhelm normal resources. This may

lead to either an increased role for

the transition team in the recruitment and selection process or a

modification of the process.

■ Modifying the recruitment and

selection process, if required.

Together with human resource officials at both the department and

jurisdiction levels, team members

may need to modify the selection

process to recruit, select, and hire
2–6 Resource Manual for Transition to a New Jail

the number of personnel required

for the new facility within the

established timeline. 

■ Participating in recruitment and

selection activities. Transition team

members may be called on to take

part in recruiting and selecting staff

for the new facility. 

■ Coordinating hiring and training

activities. The recruitment process

must be coordinated with training.

Transition team members who

focus on training often discover

challenges involved in providing the

necessary training to current staff.

As a result, one strategy involves

hiring new staff early enough that

they can fill in at the existing facility, which, in turn, increases the

training that the new staff may

require.

Developing Documents

Probably the most time-consuming

task in the transition process is developing the documents that are necessary

for the new facility. Each of these documents fills a different need, but all are

essential and all are related. At a minimum, developing transition documents

involves the following tasks:

■ Developing scenarios for jail

operations. Scenarios are the first

documents developed; they describe

how different functions, such as

receiving inmates, serving meals,

and moving inmates for services,

will occur in the new facility.

Although scenarios are often written

during pre-architectural planning,

during transition they become more

detailed.

■ Developing policies and procedures. Policies and procedures are

developed next. They are derived

from a variety of sources: the scenarios, existing policies and procedures, and standards. These documents form the basic way in which

new operations are taught. Not all

policies and procedures are equally

important—and not all will change

from your previous operations.

Procedures that have strong links to

the physical plant, such as those for

receiving inmates, are more likely

to change with the move to a new

facility than those that do not, such

as those for conducting a disciplinary hearing. This allows some prioritization, but does not eliminate

the need to review all policies and

procedures.

■ Developing post orders. Post

orders tell staff all the things they

must do at a specific post assignment. They summarize the activities

that have been identified for that

post in all of the policies and

procedures. 

■ Developing an inmate handbook.

The inmate handbook is the primary means of informing inmates

about facility rules and procedures.

Like the post orders, the inmate

handbook is derived from policies

and procedures. 

■ Developing a master schedule.

The master schedule documents

facility operations based on time of

day and day of the week. It identifies when all inmate and staff activities occur and is a good way to test

assumptions about when and where

things will happen. 

Training

Jurisdictions often underestimate transition training needs, particularly when

multiple sessions of the same training

Probably the

most timeconsuming

task in the

transition

process is

developing

the documents that

are necessary

for the new

facility.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–7

must be provided to accommodate all

those who need the training. Ultimately

the training effort will involve the

department and, potentially, the jurisdiction’s training personnel, team

members, and (frequently) supervisors

in the new facility. Given the amount

of training that will be needed, the

jurisdiction may want to consider providing a training-for-trainers program

to ensure staff will succeed in their

training assignments. At a minimum,

training involves the following tasks:

■ Identifying training types.

Potentially five different types of

training may be needed:

–Facility orientation focuses on

teaching a broad spectrum of

individuals what they need to

know about the facility. Training

needs will vary by group, but

everyone needs some basic orientation to the facility. 

–Document training uses the policies and procedures developed by

the transition team as a way of

teaching the new operations. 

–Post order training focuses on

teaching staff who will work at a

post how to use all of the equipment, access all of the spaces, and

function effectively in their new

area.

– Simulations provide an opportunity to test the effectiveness of

procedures that require the interaction of inmates and staff; these

activities typically involve considerable movement on the part of

staff and inmates. Simulations

also provide an opportunity to test

the operational readiness of building systems and equipment. 

–Basic academy training will be

necessary for new hires.

■ Identifying groups requiring

training. The transition team needs

to identify all of the groups that will

need training. The facility has many

users besides staff; these include

inmates, user agencies, vendors,

and visitors.

■ Developing a training schedule.

The team must develop a schedule

of training events that takes into

account when both new and old

staff will be available for training. 

■ Developing curriculums. Although

the team may draw on existing curriculums for some types of training,

such as academy training, a great

deal of facility-specific curriculum

will need to be developed.

■ Identifying trainers. The amount

of training that typically must occur

will exceed the resources of either

the training division and/or the transition team. The team may need to

identify potential trainers, such as

supervisors, to teach other staff.

These individuals may require

“train-the-trainer” workshops to be

effective. The team may also look

outside the division or the department for some types of training. 

■ Conducting training. Training

must be both conducted and

documented.

Acquiring FF&E

Correctional officials and staff often

assume that they will be able to walk

into the new facility after the contractor leaves and find everything they

need to start operating. This is typically not the case. The contractor is

responsible for building the facility and

acquiring everything that is attached to
2–8 Resource Manual for Transition to a New Jail

it. Unfortunately, many other things

will be necessary. If you could turn

your existing jail upside down and

shake it, the items that would fall out

are in the category of furniture, fixtures, and equipment. They are movable items, and the jurisdiction is

typically responsible for acquiring

them along with supplies. This becomes

one of the specialized tasks of the transition team. 

At a minimum, acquiring FF&E

involves the following tasks:

■ Defining which items are needed,

the budget from which they will be

purchased, and how they will be

acquired.

■ Evaluating, testing, and selecting

(or recommending the selection of)

FF&E items.

■ Assisting in acquiring these items

either through a bid process or by

purchasing them directly through a

government contract.

■ Scheduling delivery to avoid or

lessen the need for storage, receiving

items, and either placing or supervising the placement of these items.

■ Checking the condition of FF&E

items and inventorying them. 

■ Identifying warranty start and

end dates and maintaining the

warranties.

This workload is not evenly distributed

during transition. Initially, a significant

amount of time must be invested in

selecting items, and items that have a

long lead time must be ordered early

enough to ensure that they are at the

new facility when needed. Team members will also be responsible for the

security of these items if other arrangements have not been made with

vendors.

Planning Move Logistics

In transition, even “moving” is more

than just getting from one place to

another. Various activities must occur

after the building is substantially complete but before the move. At a minimum, planning the logistics of the

move involves the following tasks:

■ Developing a plan for the move.

Transition teams need to develop an

overall plan for the move. Will it

occur at one time or in phases?

Who will move first and where? All

of these relatively simple questions

can be complicated by the need to

keep both facilities operational for

a period of time. Some transition

teams may believe that they will

have less to do if the old facility

continues in operation after the new

one is opened. However, that is not

necessarily the case. For example,

a significant renovation of the old

facility may occur after the move to

the new facility. Therefore, a good

plan for the sequence of the move is

essential to deal with this or other

contingencies that may affect operations in the new facility. 

■ Testing the building systems and

equipment. Transition team members will be involved in the shakedown (and possibly commissioning)

of building systems and equipment,

testing not only the operation of

individual systems, but also how

systems interact under normal and

emergency conditions.

■ Cleaning the facility before public

events. “Contractor clean” is not

the same as “correctional clean.”

Team members will need to ensure

that the facility meets the department’s standards of cleanliness and

neatness before public events.

In transition,

even “moving” is more

than just

getting from

one place to

another.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–9

■ Holding public events. Team members will be involved in a variety of

public events—particularly tours

and open houses for a broad spectrum of groups and individuals.

■ Searching the building for safety

and security items. Once the public events are over, the transition

team must conduct a thorough

shakedown to ensure that all items

that should not be in the jail are

removed and to make sure that all

systems are operating as intended.

■ Managing the move of staff,

inmates, and services. Finally, the

move itself involves a great deal

more than just the inmates and their

property. Staff and their equipment

and supplies must also be moved,

including files and items stored in

all of the “nooks and crannies” of

the current jail. This is an excellent

time to determine which items

must be moved and which can

be disposed of. 

■ Coordinating move activities with

other agencies. The team needs to

determine when operations will

shift from one facility to another

and convey that information to

those agencies and other entities

who need to know, such as local

law enforcement and vendors.

Miscellaneous Tasks

As if these tasks were not enough, a

variety of miscellaneous tasks must be

done both throughout the transition

process and at specific times. These

tasks are likely to include—

■ Community relations. The transition team is often involved with

community relations as its members

are likely to be the most visible representatives of the department at the

new facility. This is an ideal opportunity to develop good relations

with the surrounding community,

and handling these tasks becomes

the transition team’s responsibility. 

■ Internal communication and

information management. Staff

who are not involved with transition

need to get accurate information

about the new facility and operations—in the absence of some type

of regular information exchange,

rumors can take hold.

■ Post-move activities. The transition

team will also be responsible for a

variety of activities after the move.

Policies and procedures will need to

be fine-tuned. The old jail may be

closed and must be secured if it will

be renovated and/or abandoned. 

■ Post-occupancy evaluation. After

6 months or a year, the facility

should be evaluated to determine if

it is operating as intended. 

■ Transition closeout. Finally, the

transition team must close itself

down and move to new assignments

after making appropriate disposition

of equipment, furnishings, and files.

Organizing the Transition

Process

Good management principles should

be used throughout the transition

process to establish a model that can

be applied later to other aspects of jail

operations. The transition process is a

unique opportunity to create teamwork,

develop new systems, prepare new jail

operations, and provide for personal

and professional development. The following section looks at the three major

subtasks associated with organizing the

transition process: determining the

makeup, structure, and housing of the
2–10 Resource Manual for Transition to a New Jail

transition team; budgeting for transition and analyzing how the transition

budget relates to the facility’s project

and operating budgets; and developing

the action plan. 

Organizing the Transition Team

This section discusses several crucial

aspects of organizing the transition

team:

■ Determining who the transition

coordinator and the members of the

transition team should be and how

many team members are needed;

what skills, characteristics, and

experience they must possess; and

what level of commitment they

should be prepared to devote to the

transition process.

■ Determining how the transition

team should be structured (team

approach vs. task force approach). 

■ Determining where the transition

team should be located. 

Who Should Do Transition? 

Because most jurisdictions have little

experience with either facility construction or transition, considerable

uncertainty often exists about who

should actually do the work associated

with transition. This situation is complicated by the lack of adequate staff

for current operations in many jails.

As a result, transition activities may

become just one more collateral duty

assigned to the jail administrator or a

key staff person. 

However, transition—even for a small

facility—is not a part-time job. Too

many tasks must be completed with a

high degree of accuracy for anything

less than a full-time commitment. In

most cases, the window of opportunity

for transition activities is short, and

failures that occur as a result of inadequate attention to transition activities

can be too serious and last for too long

a time. Transition has to be someone’s

top priority. It is equally important to

understand that at certain periods transition will be more than an 8-hour-aday, 5-day-a-week job. Team members

need to be prepared to devote the necessary time to the project, and agencies

must be prepared for the implications

of longer workdays and fewer days off. 

Team Approach

Jurisdictions that have had the greatest

success with transition have used a

full-time dedicated transition team. The

size of the team will vary based on a

number of factors:

■ The quality of the current operation,

especially in relation to its documents and training.

■ The resources of the jail, department, and jurisdiction.

■ The level of staff involvement in

earlier phases of the project.

■ The size of the facility.

■ The degree of change in operations,

i.e., moving from “no programs” to

“program intensive” or from a “linear intermittent” style of inmate

management (one that requires

guards to walk the corridors and

look into cells) to “direct supervision” (one that places staff in the

housing units with no barriers

between them and the inmates).

■ The level of community resources

available for the project.

The length of time available for transition is the critical factor to consider

when determining how many people to

assign to transition duties. When jurisdictions begin transition relatively

Transition

has to be

someone’s

top priority.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–11

early, many begin with a smaller core

group of transition team members and

add people to the team as occupancy

nears. This can result in the need to

educate new team members about decisions and actions that occurred before

they became involved. Jurisdictions

that have a shorter lead time may need

all their resources immediately. After

you have determined the tasks that

must be done, estimated how many

labor hours it will take to do them, and

decided when occupancy will occur,

make an initial—or second—

assessment of the resources you will

require.

Most jurisdictions also find that the

work of transition is not evenly distributed among the primary tasks. Some

are more labor intensive than others;

in addition, some groups of tasks have

time-intensive periods followed by

downtime. This may allow for dividing

labor among team members, so that a

single member can wear two hats. It

may also allow some tasks to be considered collateral duties. 

Role of the Transition Coordinator

Although there is no single right

answer to the question of how to

organize staff for the transition

process, experience has shown that

transition is neither a second nor a

part-time job. The role of transition

coordinator is pivotal, because the

coordinator will be accountable for the

overall transition process. Even in the

smallest facilities, a great deal of work

is required to get ready to start operations in the new facility. It is important

to understand that these tasks really are

the jurisdiction’s responsibility.

Although the architect, contractor,

and/or consultant can help with the

process and some of the tasks in

specific areas, much of the work has to

be done by the jurisdiction.

The transition coordinator will routinely and systematically evaluate the

progress of the transition process. He

or she is responsible for establishing

and meeting transition goals and time

and cost objectives. The transition

coordinator must be able to manage

many tasks at once, set and monitor

deadlines, delegate effectively, and

identify and track the thousands of

tasks required in transition. 

We noted earlier how important the

team leader or transition coordinator

will be, and we also indicated that this

is not the jail administrator’s part-time

job. However, if the jurisdiction assigns

someone as acting jail administrator,

then the jail administrator can serve as

transition coordinator. Regardless of

who this person is, he or she needs a

variety of skills, experience, and personal characteristics. 

Skills. This is a major planning project. Although the transition coordinator

needs to be able to deal with the

details, it is critical that he or she also

be able to see the overall picture. This

individual will have to make some

decisions, but he or she will also have

to manage the decisionmaking process

of others, often those who do not necessarily work for the coordinator.

Because transition is challenging, and

because many others—both on and

outside the transition team—will do

necessary transition work, the leader

has to motivate and coach others while

holding them accountable. Good written and oral communication skills are

essential. The transition coordinator

does not need to be the best writer on

Experience

has shown

that transition is

neither a

second nor

a part-time

job.
2–12 Resource Manual for Transition to a New Jail

the team, but his or her communications

must be clear and easy to understand.

Experience. The transition coordinator

needs to have a broad spectrum of

detention experience. It will be helpful

for the transition coordinator to have

led a team and/or worked on special

projects. Certainly an understanding of

planning and construction will be helpful, but typically many of the substantive aspects of the transition coordinator’s job can be learned. Furthermore,

in the transition process, a number of

deadlines will have to be met, many of

which will be beyond the coordinator’s

or team leader’s control. The transition

coordinator has to know how to get the

job done and to see that others get the

job done within the time allotted.

Finally, because this process has a great

many unknowns, it is not a good spot

for someone who is uncomfortable with

uncertainties. 

Characteristics. Transition is a critical

activity for the department, the jurisdiction, and its elected officials. The

transition coordinator has to have the

confidence of top management if he or

she is to get the job done. The coordinator needs to be empowered to make

decisions and then allowed to do so.

The transition coordinator needs to

understand clearly which decisions he

or she can make on his or her own and

which ones will require consultation

and/or approval at the administrative or

executive level. When the transition

coordinator does not have the authority

to make the decision, he or she needs

to be able to facilitate decisionmaking.

It is equally important that the coordinator be respected by staff. Without

respect from other personnel, transition

coordinators will encounter high levels

of resistance and may find it difficult

to get things done. 

Team Members

Ideally, transition team members will

monitor and/or coordinate each of the

major aspects of transition that are discussed in detail in this resource manual:

■ Construction.

■ Staff/human resources.

■ Document development.

■ Training and orientation.

■ Furniture, fixtures, equipment, and

supplies.

■ Move logistics.

Team members also need special skills,

experience, and characteristics. Being a

member of the transition team has

some characteristics in common with

being part of a regular work group, like

a shift, but it also has significant differences. Transition is a temporary work

group that typically is outside the formal chain of command. Line staff may

see it as an “easy” assignment, but it is

far more challenging than most jobs

they have held. For most people, the

work of transition is unlike anything

they have done in the past.

Skills. Team members must be able to

do more than one thing at a time and

stay organized. All of the team members need to be able to communicate

well, but individuals with strong writing skills are a must for the team.

Team members will encounter problems that will often differ significantly

from those they have experienced in

day-to-day operations. As a result, they

need to be good at identifying, analyzing, and developing solutions.

For most

people, the

work of

transition is

unlike anything they

have done in

the past.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–13

Experience. Team members need

experience using a wide variety of software applications. Nearly all aspects of

transition benefit from automation.

Team members also need to know how

to read and use drawings and specifications. They need to be knowledgeable

about jail operations—not just their

own operation, but how other jails

operate, and not just their own area,

but other areas of the operation as well.

Finally, they need to know and support

the new jail philosophy.

Characteristics. Team members need

to be able to work well with others.

They will represent the department to

a broad spectrum of people. Team

members need to be assertive but flexible. They can’t be “my way or the

highway” kinds of people, but they

need to know how to represent their

needs and perspectives strongly.

It is unlikely that you will find all of

these skills represented in each team

member; members will exhibit a variety of characteristics and will have a

number of potentially useful experiences outside their work life that may

be helpful in transition. Look for a

team that achieves balance within these

skills—and don’t assume that all of the

team members must be experienced

security staff. Teams that include

clerical, maintenance, and/or program

personnel may incorporate a wider

breadth of experience and skills. If

you widen your search parameters,

you may find resources you did not

anticipate.

How Can the Transition Team Be

Structured?

Transition personnel resources probably can be organized in an infinite

number of ways. All of them require a

transition coordinator or team leader.

However, transition staff are generally

organized in one of two basic ways.

The team approach assumes that the

majority of team members are full-time

staff; the task force approach does not

assume full-time staffing.

Teams can be structured in one of several ways. A team of specialists—in

which work is assigned by task—might

include one or more specialists in construction, writing, training, equipment,

move logistics, and so on. A team of

generalists might be assigned responsibility for all tasks within a specific area

of the facility. Both of these approaches have pros and cons. A team of specialists will build a high level of

expertise in a specific task and can be

recruited for interest and ability in a

specific area. Because they will see all

of the materials related to that task,

there is less potential for inconsistencies and duplication of effort.

However, a team of generalists will

learn a specific area of the facility better and may see an interaction between

tasks such as a potential conflict

between policies and procedures and

the equipment that will be used to

carry out those procedures.

When NIC first began providing transition training, a task force approach was

used. The task forces might include

one or more full-time members, but

could also include operational specialists. Task forces were often organized

by a combination of tasks, i.e., move

logistics, and by function, i.e., program

services or security. The task force

approach has the potential to involve

more individuals, but it also may result

in inconsistencies, such as when two

task forces write policies or procedures

Teams that

include clerical, maintenance, and/

or program

personnel

may incorporate a wider

breadth of

experience

and skills.
2–14 Resource Manual for Transition to a New Jail

that are inconsistent. Those inconsistencies may go undetected for a considerable time until an activity that

looks at the interaction of multiple

policies and procedures, such as the

development of post orders, occurs. By

then, major revisions to the policies

and procedures may be necessary. 

Although there is no single answer to

the question of how the transition team

should be structured, a key factor for

success is to clearly define who is to

do what during the transition process

and to put in place a method of quality

control that identifies and resolves

inconsistencies.

Where Should the Transition Team

Be Located? 

One of the least considered questions

is where the transition team should be

located. Ideally, it should be located at

the site of the new facility. Because the

new facility has not yet been constructed, this is likely to mean that the team

will need one or more trailers on the

site. 

If locating the team onsite is not an

option, the team will still need separate

office space in a single location. It is

important that the team not get drawn

into current operational situations. If

the team’s offices are in the existing

jail, it may be tempting for the team to

continue to be involved in jail operations and for managers to look at the

team as a potential resource when a

shift is running short.

Regardless of where the team ultimately ends up, they will need—

■ Adequate space for all members of

the team and their materials.

■ Adequate space for all equipment,

including telephones, computers,

copiers, files, and lots of paper. 

■ Access to e-mail and both intranet

and Internet.

■ Access to the facility construction

site as negotiated with the contractor.

Transition Budgeting and Its

Relationship to Project and

Operating Budgets

Transition activities require a variety of

resources—personnel, equipment, and

supplies. Although many departments

initially believe they can support transition activities out of their existing

operating budgets, they soon learn

that transition activities require more

resources. This section identifies

resources that may be required for

transition activities and differentiates

the transition budget from both the

project budget and the department’s

operating budget. 

Transition staff will be involved with a

number of activities that relate to both

the project budget and the department’s

operating budget. Team members need

a broad understanding of both project

budgeting and their department’s own

budget process to carry out transition

activities in a timely and fiscally

responsible manner. 

Transition team members may deal

with three different budgets: the project

budget, the department’s operating

budget, and the transition budget. These

three budgets may have different requirements, may be on different budget

cycles (it is rare that construction budgets coincide with the department’s

budget cycle), and may be controlled

by different stakeholders. As a result,

transition team members must—

■ Identify and become familiar with

their budget resources and

requirements. 

A key factor

for success is

to clearly

define who

is to do what

during the

transition

process.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–15

■ Determine lines of authority and

budget procedures.

■ Clarify their role with regard to

budget requests.

■ Educate themselves regarding the

lead time for budget requests.

Project Budget

The project budget “builds” the facility

and is typically controlled by the designated project manager. It has two

distinct components: the construction

contract and the other budgeted

expenses, usually called project costs.

The construction contract is awarded to

the building contractor. Of more interest to the transition team are the other

budgeted expenses, which fund what

are sometimes called the project’s “soft

costs.” To understand these two budgets, think what would happen if the

building were turned upside down.

Everything that stayed attached to the

building would be paid for from the

construction contract; everything else

would be paid for from the funds set

aside for soft costs. These soft costs

include fees, permits, administrative

costs, and two budget categories that

are particularly important to the transition team: the contingency fund, which

deals with project “unknowns,” and the

budget set-aside for FF&E. 

Contingency Funding

The transition team needs to know the

status of the contingency budget. The

size of this budget is typically based on

the size of the construction project and

the stage of the planning process.

Contingency costs are typically calculated as a percentage of the construction cost; this percentage is highest

during planning and decreases throughout the design process. Jurisdictions

often carry different contingency

percentages based on the type of construction. The contingency budget in a

renovation may be as high as 25 percent, while contingency funds in new

construction average 10 percent or less.

The transition team needs to know how

much money remains in the contingency budget and what it can be used

for. Contingency budgets are managed

as part of the project budget. This

means that the transition team will

need to meet with the designated project manager to determine if and when

they can expect to have access to any

contingency dollars. 

FF&E Budgeting

The FF&E budget is most often used

for furniture and equipment. This can

include computers and software and

such specialized equipment as digital

mugshot and fingerprint systems. The

FF&E budget is often developed

during design as a percentage of the

construction cost. However, during

transition, the actual number and cost

of each item must be identified.

Several of these items can have relatively long acquisition lead times and

their storage can be problematic. This

issue is discussed in more detail in

chapter seven, Furniture, Fixtures,

Equipment, and Supplies.

Operating Budget and Startup Budget

The operating budget is the department’s normal budget. However,

during a new facility’s first year of

operation the department often incurs

one-time expenses that require a startup budget. The startup budget is typically used for supplies that are required

to open the facility but do not cost

enough to be considered capital expenditures, such as inmate and staff uniforms,

Transition

team members may

deal with

three different budgets:

the project

budget, the

department’s

operating

budget, and

the transition budget.
2–16 Resource Manual for Transition to a New Jail

property bags, inmate bedding, and

wastebaskets. In some cases, however,

they can be capital items, such as vehicles, that are required but typically are

not funded from the project budget. As

a result, most jurisdictions do not build

these items into the department’s permanent budget. 

A major challenge for transition is figuring out the timing of budget requests.

Most jurisdictions have budget submission times 6 to 12 months in advance

of the budget award. This means that

transition staff often must figure out

and submit operating and startup budgets just as they are beginning the transition process, when there are still

countless unknowns. Worse yet, staff

may discover that the submission period has passed and a special request

must be justified. 

Transition Budget

The transition budget is a budget established to support transition activities. It

can include all of the normal budget

categories within the department’s

operating budget. Initially, many jurisdictions believe that they can support

transition with normal operating funds.

However, as time passes, transition

teams often need to purchase computers, software, office supplies, cameras,

and other items. Transition needs a

budget of its own. 

Developing the Action Plan

A daunting aspect of transition is the

need to complete thousands of tasks on

an extremely tight timeline in a way

that allows the new facility to open

without a hitch. Team members are

often selected for their operational

expertise, but few have been challenged to organize as many new and

related activities as they face in the

transition process. Action planning

allows the transition team to organize,

divide, and monitor the status of

numerous complex transition tasks. 

An action plan differs from the longterm planning process that was used to

develop the new facility. It is shorter in

duration and much more specific in its

intent. The action plan focuses on the

intended outcome. It clearly identifies

all of the tasks that will be required to

create that outcome, breaking them

down into discrete and manageable

pieces of work that can be divided

among team members. 

The action plan identifies who is

responsible for each activity or task, as

well as who has overall responsibility

for overseeing the completion of the

entire plan. This person must use the

action plan to hold transition team

members accountable for completing

their tasks. Also, he or she must be

aware of task interdependencies not

only within the individual action plan

but between action plans as well. Task

interdependencies occur when one

task, such as policy and procedure

training, depends on another, such as

writing policies and procedures. These

interdependencies must be closely

monitored to ensure that the transition

process stays on track. 

The action plan also identifies required

resources, when applicable, and

assigns a specific date for completion

of each task. The action plan should

identify the specific task, the due date,

the person responsible, the resources

required, and the status of the task,

such as “in process” or “completed.”

Due dates should be developed in conjunction with the transition schedule.

Action 

planning is

sometimes

like figuring

out the

opening sentence for a

100-page

essay.
Resource Manual for Transition to a New Jail

CHAPTER TWO

2–17

Many of the activities need to be carefully coordinated to achieve a smooth

transition. Action plans can guide the

transition process and the work of the

transition staff. The transition coordinator can use the action plans to monitor the status and progress of transition.

After the action plans are initially

developed, they should be dynamic,

constantly changing in response to the

project. A list of possible action plans

for each topic has been included in

chapters three through eight of this

manual. Appendix 2–1 shows a sample

action plan format.

What Comes Next?

Often the first task is the hardest.

Action planning is sometimes like figuring out the opening sentence for a

100-page essay. If you approach this

task with the attitude that the action

plan will be a living document that

grows and evolves with transition, you

will be less likely to avoid this task and

more likely to create a useful tool that

can help throughout transition. Once

you have a clear idea of your transition

roadmap, it is time to begin working

on the details. The next seven chapters

will help you fill in the details for your

project. 
Resource Manual for Transition to a New Jail

APPENDIX 2–1

2–19

APPENDIX 2–1.

ACTION PLAN

Any Community, Any State, Any Project—Transition Action Plans

Action Plan No.: 1.1 Area: Transition Management Sub Area: Overall Plan

Task/Objective: Develop an overall strategy for the transition process.

Person Responsible: Due Date:

Person Completion Resources

Activities Responsible Date Required Status

1.1.1 Review/update mission statement 

and goals established for the project.

1.1.2 Develop goals for transition.

1.1.3 Approve transition goals.

1.1.4 Draft overview transition flowcharts 

with due dates.

1.1.5 Obtain consensus of draft flowcharts.

1.1.6 Develop transition assumptions. 

(Assumptions are items you believe 

will happen but which are beyond 

your control.)

1.1.7 Obtain construction project schedules 

and receive updates.

1.1.8 Determine desired earliest and latest 

occupancy/move date considering

operational budget.

1.1.9 Identify other key dates relative to 

the project, transition and operations, 

i.e., budget dates, construction 

completion.

1.1.10 Develop process to update/modify 

flowcharts and due dates.

1.1.11 Implement process to update/modify 

flowcharts.
2–20 Resource Manual for Transition to a New Jail APPENDIX 2–1

Any Community, Any State, Any Project—Transition Action Plans

Action Plan No.: 1.2 Area: Transition Management Sub Area: Action Plans

Task/Objective: To implement transition action plans.

Person Responsible: Due Date:

Person Completion Resources

Activities Responsible Date Required Status

1.2.1 Review activities and modify these 

transition action plans, plus develop 

other needed action plans.

1.2.2 Update transition action plans.

1.2.3 Identify person responsible, due date, 

and resources required to complete 

each action plan and for each activity.

1.2.4 Develop system to monitor status of 

each action plan on a weekly basis.

1.2.5 Implement action plans.

1.2.6 Update flowcharts based on 

action plans.

1.2.7 Establish tentative move dates.

ACTION PLAN (continued)
Resource Manual for Transition to a New Jail 2–21APPENDIX 7–1 APPENDIX 2–1

Any Community, Any State, Any Project—Transition Action Plans

Action Plan No.: 1.3 Area: Transition Management Sub Area: Transition Staffing

Task/Objective: To develop a transition staffing plan.

Person Responsible: Due Date:

Person Completion Resources

Activities Responsible Date Required Status

1.3.1 Identify transition staffing needs.

1.3.2 Designate a staff member as 

coordinator for each major 

transition function, considering 

current and future job assignments:

• Transition management

• Facility construction

• Personnel

• Program development

• Document development

• Orientation and training

• Furnishings and equipment

• Move logistics

1.3.3 Designate staff for each transition 

functional team as either full-time 

or part-time staff.

ACTION PLAN (continued)
Construction

CHAPTER THREE
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–3

Role of the Transition Team . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–3

Construction Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–4

Guidelines for Getting Started . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–4

Construction Monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–9

Walkthroughs/Operational Inspections . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–9

Shop Drawings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–10

Construction Completion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–10

Punchlist . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–10

Substantial Completion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–11

Certificate of Occupancy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–12

Warranties . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–12

Keying . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–12

Material Turnover . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–13

Contractor Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–13

Utilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–13

As-Built Drawings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–13

Operating and Maintenance Manuals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–13

Phased Occupancy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–13

Construction Coordination After Facility Turnover . . . . . . . . . . . . . . .3–14

Security/Facility Turnover . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–14

Telephone Installation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–14

Computer Installation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–14

FF&E Installation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–15

Startup Tasks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–15

Renovations/Additions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–15

Final Thoughts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3–15

Appendix 3–1. Construction Terminology . . . . . . . . . . . . . . . . . . . . . . .3–17
Resource Manual for Transition to a New Jail 3–3

Construction

CHAPTER THREE

Overview 

Construction is the most expensive item in the project budget and receives

most of the attention from project stakeholders. Sometimes those involved in

the project forget that the ultimate purpose of the construction project is to

support the jail’s operation. Therefore, transition staff must constantly keep

operations in focus as they monitor construction. 

Role of the Transition Team

The role of the transition team in monitoring construction activities varies significantly; it generally depends on what other community resources are allocated to the project. Let’s look at how everyone is involved:

■ Architect/engineer. The firm that is responsible for design and generally

for construction administration. This designation is reserved, usually by

law, for a person or organization that is professionally qualified and

licensed to perform design services.

■ Contractor. The firm that is responsible for constructing the jail. In construction terminology, the contractor is the person or entity that has ultimate

responsibility for performing the work under the contract. The contractor

may retain a number of subcontractors to build certain elements of the jail.

■ Construction manager. This firm may provide construction management

services either as an adviser or as a general contractor.

■ Project manager. This agency, firm, or individual may manage the construction project and coordinate or supervise the work of the architect/

engineer and contractor/construction manager. In some communities,

project management is provided by a public works department or by a

contracted firm or individual.

■ Project inspector. Two inspectors potentially may be involved during construction: (1) a building inspector who is an employee of the jurisdiction

responsible for code enforcement, and (2) an onsite inspector who is

Action plans for

constructionrelated tasks

may include—

• Construction 

monitoring.

• Maintenance.

• Housekeeping.

• Utilities.

• Release of construction information to

the public.

• Keying.

• Punchlist.

ACTION

PLANS
3–4 Resource Manual for Transition to a New Jail

retained by the owner (i.e., the department) to oversee the contractor’s

work and ensure that the building is

built as designed and specified.

■ Owner’s representative. This firm

or individual represents the owner

and performs the owner’s functions.

This person frequently becomes the

transition team leader when the

team is established.

Construction Terminology

Appendix 3–1 is a construction terminology list that can be used as a reference. It is important to understand how

these terms are used on your project

and how they are incorporated into the

contracts with the architect and the

contractor. The following terms are

among those most commonly used to

describe products and stages of the

design and construction process. 

■ Contract documents. These are the

drawings and specifications that set

forth in detail the requirements for

the construction of the project. 

■ Drawings. The contract documents

include various types of drawings.

The following are the most

important:

–Elevations. An elevation is a twodimensional graphic representation of the design, location, and

certain dimensions of the project

as seen in a vertical plane viewed

from a given direction. Elevations

may be of exterior or interior

(wall) surfaces. 

– Sections. A section is a drawing

of a surface revealed by an imaginary plane as if it were cut

through the building. Generally

speaking, a section refers to a vertical cut. The locations at which

sections are cut should be indicated on both plans and elevations.

–Plans. A plan is a twodimensional graphic representation of the design, location, and

dimensions as seen in a horizontal

plane viewed from above. Notes

on the plans should crossreference sections and details,

and materials should be indicated

to the maximum extent feasible. 

■ Specifications. These are the narratives that describe how the project

is to be built and the requirements

for all systems and equipment.

Most specifications written for construction today are in the “16 divisions” format (see appendix 3–1

under the definition for “specifications division” for a list of the 16

divisions). For correctional facilities, a 17th division is sometimes

used for the security electronics

system. Many specifications also

further break down the divisions

into sections. Divisions group related sections into a standard framework without conflicting with the

normal bidding procedures of local

trade jurisdictions. 

Guidelines for Getting Started 

As you get started, one member of the

transition team should take the lead in

coordinating with construction personnel. In this manual, the term “construction specialist” is used to describe this

role. This individual may also be

involved in other aspects of transition. 

The construction flowchart (exhibit

3–1) illustrates the major elements of

the construction project as they relate

to transition.

One member

of the transition team

should take

the lead in

coordinating

with

construction

personnel. 
Resource Manual for Transition to a New Jail

CHAPTER THREE

3–5

The construction specialist should first

identify the individuals who have been

involved in the project from the start

and ask them to describe the project

structure and help define the transition

team’s role regarding construction.

Some project managers are anxious to

receive user input. In other cases, your

input may not be welcome, but it is

still needed to achieve a user-friendly

jail.

The next step is to find written documentation about the project. Some of

these documents may have been written at the very beginning of the project.

The pre-architectural program is a

good source of information about how

the jail is intended to operate. It should

include descriptions of typical functions that will be useful as you begin to

figure out the building. You may, however, find that things have changed

somewhat during design. You may also

find minutes of the design meetings to

be helpful sources of information about

changes that impact operations. 

Next, because the contract documents

define what the contractor is to do,

transition team members must become

familiar with these documents and

learn how to interpret them. The transition team needs to obtain plans/

drawings and specifications to learn

about the facility and how it is planned

to operate. If the project is already

under construction, you will also need

to get copies of addenda, change

orders, selected shop drawings and

submittals, requests for information

(RFIs) from the contractor and/or subcontractor, and the architect’s supplementary instructions (defined on page

3–8). With all of this documentation,

you will have the information the

contractor is using to construct the

building. The documents need to be

available to the entire team, so you

should set up a system for checking

out and returning them.

The following suggestions provide

guidelines for using these documents:

■ Obtain a set of the plans and

specifications used to construct

the facility. Learn the contents of

these documents—both plans and

specifications. The plans provide

only part of the picture of how the

facility and systems are to be constructed and installed. To help you

learn the plans, color code major

systems and the secure perimeter.

Also obtain a half-size set of plans

for each team member so they are

easy to carry onsite. Insert or attach

tabs to sections of the plans for easy

reference.

■ Stay current with the project by

updating your plans and specifications as changes are made.

Changes will be made in a number

of the following documents and

may be used to solicit input from

the transition team:

–Application for payment. In some

jurisdictions, the transition construction specialist may be asked

to approve or provide input on the

contractor pay applications. This

will be determined before the

construction contract is awarded.

If the transition team has some

responsibility in this area, meet

with the project manager to

understand your role and how to

perform this task in a manner consistent with the contract.
Yes

3–6 Resource Manual for Transition to a New Jail

Make

Periodic

Payments

Revise

OK?

No

Exhibit 3–1. Construction Flowchart

= Task is part of another chapter, but is critical to completion of this flowchart.

Go to A

Go to A

START

Conduct

Preconstruction

Meeting

Maintain

Plans and

Specifications

Security

Select

Construction

Specialist

Review/

Approve Shop

Drawings

Document

All Answers

Develop

Project/Facility

Fact Sheets

Implement

Change

Orders

Approve

Periodic

Payment

Requests 

Develop

Preliminary

Service Contract

Budget

Implement

Site Access

Protocol

Observe

Systems

Approve

Shop Drawing

Protocol

Develop

Protocol for

Questions and

Answers

Collect

Plans and

Specifications

Approve

Protocol for

Change Orders

Review

Periodic

Payment

Requests

Document

Construction

Activities

Identify

Possible Service

Contracts

Develop

Protocol for

Site Access

Monitor

Schedule/

Coordinate With

Transition

Develop

Utilities

Budget

Go to A

Learn

Technical

Systems

Develop

Public

Information

Program

Color Code

Plans

Implement

Public

Information

Program

Attend

Construction

Meetings

Monitor Construction

• Test Systems

• Learn Systems

• Check for Program,

Plan, Operation, and

Security Efficiency

• Conduct Pre-Punchlist
Resource Manual for Transition to a New Jail

CHAPTER THREE

3–7

Make

Final

Payment

Revise

OK?

Yes

No

A

Conduct

Punchlist

Develop

Warranty

Process

Establish

Process for

Substantial

Completion

Complete

Punchlist

Search

Building for

Contraband

Accept

Building

Develop

Service

Contracts

Develop

Maintenance

Plan

Develop

Preventive

Maintenance

Plan

Approve

Final Payment

Requests

Review

Final Payment

Requests 

Move

Implement

Warranty

Procedures

Hold Open

House

Dedicate

Facility

Implement

Maintenance

Plan

Shakedown

Building

Implement

Service

Contracts

Implement

Preventive

Maintenance

Plan

Activate

Utilities

Conduct

Contractor

Training

Obtain

Approval of

Facility Budget

Start

Operation

END
3–8 Resource Manual for Transition to a New Jail

–Architectural supplementary

information. This is additional

clarification issued by the architect during the construction

process, typically as a result of an

RFI.

–Change order. A change order is

an amendment to the construction

contract (signed by the owner,

architect, and contractor) that

authorizes a change in the work,

an adjustment in the contract sum

or the contract time, or both.

Change orders assume that the

contract documents are correct as

published but a change is necessary. The change can have a positive or negative cost impact or no

cost impact at all. One of the first

tasks for the transition team will

be to clarify their role in the

change order process and determine how to deal with items that

should be changed. Change orders

differ from errors in work in

which the project has not been

built as specified. If you see items

that should be changed or that

indicate errors, notify the project

manager immediately.

–Proposal request. An architect

may submit this document after

contract award to solicit a proposal for a change in the work. It is

also called a request for change or

bulletin, and may include drawings and other information. 

–Request for information. The contractor will periodically issue an

RFI for clarification on an issue.

The architect’s job is to research

the issue and provide a response.

However, the architect’s response

may change the original intent of

the design. One way to protect

against this is to have the construction specialist receive copies

of all RFIs and let the architect

know if the transition team needs

to be consulted in formulating the

response.

– Supplementary instructions. The

transition construction specialist

may be consulted before the

architect issues any architect’s

supplementary instructions in

response to comments from the

transition team to see that the

operational intent is maintained. 

– Shop drawings. Shop drawings

are drawings, diagrams, schedules, and other documentation

prepared by the contractor, subcontractor, manufacturer, supplier,

or distributor to illustrate some

portion of the work. Shop drawings may be particularly useful

when they relate to jail operations, such as the electronic security system, keying, glazing, and

detention equipment. 

At a minimum, the transition team

should have a presence on the project

that includes participation in construction meetings and regular jail walkthroughs by the construction specialist

or another designated transition team

member. When doing a walkthrough,

do it with a particular purpose, e.g., to

observe wall construction. To observe

the project, work with the project team

to develop a protocol for site access.

This protocol may include a sign-in/

sign-out sheet, dress standards (e.g., a

hardhat, sturdy hard-soled shoes), and

how to document issues and concerns.

It is important that jail staff do not provide direction to the contractor. All

direction should come through the

established channels of communication
Resource Manual for Transition to a New Jail

CHAPTER THREE

3–9

for the project unless there are compelling reasons for an exception to be

made.

Construction Monitoring 

In monitoring construction, the transition team must be able to both inspect

the physical construction site and

review the shop drawings for the portions of jail construction that will

directly affect jail operations. 

Walkthroughs/Operational

Inspections

The usefulness of walkthroughs

depends on the degree to which transition staff are prepared and whether

they know what to look for and how to

behave. Initially walking through the

facility to become familiar with the

overall layout is helpful, but will teach

you little about the systems. The best

walkthroughs are those done with a

purpose. The following are guidelines

for walkthroughs:

■ Site visits. Work with the contractor

and architect to identify the best

times to visit the site (times that

will cause the least disruption in the

construction).

■ Hardhats. Obtain your own hardhats or make arrangements to get

hardhats while onsite.

■ Clothing. To do good walkthroughs, be prepared to climb

ladders and scaffolding and to

maneuver around other obstacles;

realize that the construction area

will have a lot of dust, dirt, wet

surfaces, and loose items. Clothing

should include hard-soled, lowheeled, closed shoes, no loose

items, and pants.

■ Corrections and changes. Learn

how to document items that need to

be changed. Correcting errors (noncompliance with plans and specifications) requires a different process

and has different financial implications from change orders (needed

changes). Change orders and corrections must be handled through

the project manager consistent with

established procedures.

■ Onsite resources. When you go

onsite, take paper (pad and/or note

cards), a personal digital assistant

(PDA), a pen, a camera, a flashlight, a hardhat, half-size plans,

and/or a ladder (or arrange to use

the contractor’s ladders onsite). 

■ Documenting the project. Work

with the inspection agency, architect, and/or contractor to document

the project through photographs,

slides, and/or video recording. As

construction progresses, many areas

that you may later need access to

will become hidden by structures

such as walls or ceilings. It is

important to organize this documentation so it is readily available when

needed.

■ Site. Become familiar with the

entire site, not just the building. To

do this, you will need access to the

site, the area around the site, and

the building.

■ Perspective. Remember that the

facility is being built according to

the contract documents (e.g., plans,

specifications, change orders, and

shop drawings). When you go

onsite, your job is to observe that

the work is being completed as

specified in these documents; this is

not the time to rethink your design.

If you see something that just will

not work, develop an appropriate

response that describes what you

Become

familiar with

the entire

site, not 

just the

building. 
3–10 Resource Manual for Transition to a New Jail

saw, what you believe is needed,

and any options you see and present

them through the proper channels.

This may result in a change order.

Hundreds of decisions are being made

throughout the construction phase.

Regardless of your role in monitoring

the construction process, it is important

for the transition team to be in the

communication loop and, ideally, part

of the decisionmaking process.

Whatever your role in the decisionmaking process, it is critical that these

decisions be documented in a systematic manner that allows the transition

team to find information quickly and

efficiently.

Shop Drawings

To know what selected shop drawings

and/or submittals to receive, ask the

architect for a copy of the shop drawing and submittal log. Identify the

items on the log that you want to

review and those for which you want

to be part of the decisionmaking

process. For example, you may not

want to review the submittals for structural steel, roofing supplies, and other

materials. However, you will want to

review submittals for the electronic

security systems, keying, glazing, and

other aspects of construction that relate

directly to jail operations and security. 

You may wonder why you need to look

at a submittal if the design is already

approved. A good example is the labeling of a door control graphic panel or

touch screen that staff will use to open

and close doors. The only room names

and numbers a supplier/subcontractor

knows are those on the plans. Although

the names and numbers on the plans

are good for construction purposes,

they are probably not how you want to

refer to specific areas in your 

facility. You will want to develop an

operations-friendly name and numbering system for graphic panels and

touchscreen controls, signage, and

other elements that need labels. Another

example is determining which keys

open which doors and what areas can

be keyed alike.

Construction Completion 

A construction project includes numerous tasks and can take months to

complete. Coordination and good

communication are essential in monitoring and enforcing the terms of the

contractor’s agreement. It is not unusual to experience conflict at this stage

of the project. Working together collaboratively will help alleviate problems.

Punchlist 

Many of us are used to doing a walkthrough inspection before buying or

renting a home. For a construction

project this is referred to as a punchlist.

The purpose of the punchlist is to document where construction is not compliant with the construction documents.

Generally, the development of the

punchlist is the responsibility of the

architect and contractor. But you, the

transition staff, should also be part of

this process because you offer a unique

perspective. If you are asked to develop your own punchlist, or if you are

part of a team effort, the punchlist

should include the following:

■ Project name.

■ Date punchlist was made.

■ Area of the project.

■ Room name and/or number according to the plans (not how you intend

to use the space).
Resource Manual for Transition to a New Jail

CHAPTER THREE

3–11

■ Specific area, i.e., north wall.

■ Description of the problem(s) that

is as specific as possible.

Remember that different areas of the

facility require different security levels.

What may be appropriate for one area

may not be appropriate in another area.

When conducting a punchlist, establish

a routine to conduct consistent and

complete reviews. For example, in

every room, start with the ceilings,

then the walls, then the floor. Develop

a set pattern. Start in the same corner

of every room and move around the

room in the same direction. Your

observations need to be documented.

Good strategies for doing this include

entering the comments directly onto a

laptop or PDA, dictating them to an

assistant, or following and filling out

room sheets or plans with elevations.

To confirm that the comments have

been recorded correctly, have the person making the entries read back each

comment as it is entered. 

The following areas need to be inspected while doing the punchlist:

■ Casework and millwork. 

■ Ceilings.

■ Chase (pipe).

■ Closed circuit television (CCTV).

■ Communications.

■ Consoles.

■ Doors.

■ Electrical.

■ Elevators.

■ Emergency generator.

■ Fire safety.

■ Floors.

■ Furniture.

■ Guardrails.

■ Hardware/doors.

■ Heating, ventilation, and air

conditioning (HVAC).

■ Kitchen equipment.

■ Lights (facility, site, and exit).

■ Plumbing.

■ Roof.

■ Security electronics.

■ Showers.

■ Sinks.

■ Site (such as exterior fencing and

gates, bollards, vehicle barriers,

landscaping, sprinkler systems,

parking lot striping, signage,

location of exterior outlets, and

hose bibs).

■ Sprinkler heads.

■ Stairs.

■ Toilets.

■ Walls.

■ Windows/frames.

Develop a transmittal letter for the

punchlist, send it to the architect and

contractor, and keep a copy. The

process does not end with the punchlist. You will need to develop a monitoring system to see that all issues are

addressed.

Substantial Completion

The term “substantial completion” is

usually defined in the contractor’s

agreement and is therefore binding.

Generally, the term means the building

is substantially ready for occupancy for

the facility’s intended purpose.

However, just because the building is

substantially complete, it does not

automatically mean that you are ready

to move in. Many tasks must be done

Just because

the building

is substantially complete, it does

not automatically

mean that

you are

ready to

move in. 
3–12 Resource Manual for Transition to a New Jail

between the substantial completion of

the building and your move. The transition staff may be in the best position

to determine if you can operate the

facility as it currently exists. Remember

that if numerous issues have to be

resolved after the facility is occupied,

your staff will have to sign construction workers in and out and escort

them throughout the facility. Most

jails do not have staff available for

this function.

Certificate of Occupancy 

The community’s building and fire

inspectors usually have to provide a

certificate of occupancy before you can

move into and begin using the facility.

It is important to understand your community’s certification process and how

it may impact occupancy.

Warranties

Most of the systems will be warrantied

for a period of time. You will want to

receive a list of all warranties and their

start and end dates. A warranty implementation process needs to be developed with input from the architect,

contractor, and maintenance staff. This

process should include a tracking log

to monitor when repair requests are

made and how long it has taken to

make the repair. In the best of all

possible worlds, warranties will start

at the time of substantial completion.

However, the warranty may begin at a

different time, i.e., the time of delivery

to the site or the time that the item is

installed. Be sure to flag these items

for special attention.

Keying 

Although most jails operate with a significant number of electric locks, keys

are essential for successful, safe operation. The facility will use many keys

during normal operations as well as in

override or emergency situations. The

keying process is complex and time

consuming; you should develop your

keying schedule early in the construction process. As construction is completed, you should make sure all of the

keys work properly and as planned. As

with most tasks related to construction,

review the specifications to see what

the project requires. 

Keying requires a minimum of three

basic tasks:

■ Keying testing. This involves testing the door key and master key to

see that they work as intended.

■ Development of the key box. This

involves tagging all of the keys in

some user-friendly manner, hanging

them in a key box, and developing a

master inventory.

■ Development of key logs. Key logs

may be created as follows:

– Master Key Log by Key Number.

– Master Key Log by Door

Number.

– Master Key Log by Key Box

Number.

– Master Key Log by Key Ring.

Throughout this documented process,

keys should be formally transferred

from the contractor to the user. Often,

the user does not receive all of the

keys. Sometimes keys are left hanging

in access panels, service panels, or just

overlooked. Transition staff need to

inventory each lock by room and verify

that they have a key. 

In some situations, the owner may have

the contractor install temporary locks

with keys for use only during the construction process. When the facility is
Resource Manual for Transition to a New Jail

CHAPTER THREE

3–13

turned over to the jurisdiction at the

time of substantial completion, the

department can install the permanent

locks. This has advantages from a

security perspective, but it also increases costs—and the department may not

have personnel who are qualified to

install the permanent locks. 

Material Turnover 

Most construction contracts call for

extra materials to be turned over to the

owner at the end of the project. You

will need to determine if receiving

these extra materials will be the responsibility of the transition team or

another agency in your jurisdiction.

To know what you should receive, see

each section of the specifications.

Whoever you designate to receive these

materials will need to inventory, sign

for, and store them. 

Contractor Training 

The contractor is generally required to

provide staff training; these training

requirements are described in the specifications. Months before the project is

to be completed, request a list from the

architect of the type and length of

training to be provided and who should

attend. The training should be scheduled with several weeks’ notice and

with your approval in order to have

the right staff attend. It is appropriate

to request a lesson outline and course

materials in advance of the training.

Often the contractor is required to

videotape the training. Ask for a copy

of the tape shortly after the training is

conducted and carefully review it to

verify its quality. If the contractor is

not required to videotape the training,

the transition staff should do so.

Utilities 

With the funding agency, determine if

utilities are in your budget or what

budget they are in. Switch the billing

of utilities to the proper agency.

As-Built Drawings 

With the architect, determine if as-built

or record drawings are to be provided

and if you are to receive them. If you

receive these, review them as best you

can to determine if they are correct.

Ideally, one copy goes to maintenance

and one stays with the facility.

Operating and Maintenance

Manuals 

Receive the operating and maintenance

manuals per the contractor agreement.

Review the manuals to see that they

are complete, and determine where

they will be kept. Ideally, one copy

goes to maintenance and one stays

with the facility.

Phased Occupancy

For a variety of reasons, the facility

may be turned over to the user in phases. If this is done, consider the impact

on the warranties for central systems

(e.g., HVAC) and the amount of work

that may take place in the occupied

areas. Most important, consider the

impact on essential operations such

as food, laundry, programs, and staff

services.

There is no one correct approach to

phased occupancy. One good approach

is to develop a pros and cons issues

paper to see if phased occupancy is

good for your jurisdiction. Benefits of

a phased occupancy, regardless of

phased turnover for the facility,

include—
3–14 Resource Manual for Transition to a New Jail

■ Building staff confidence.

■ Making resources available to

troubleshoot problems.

■ Enhancing implementation of

policies and procedures.

■ Allowing for training of staff who

have not yet been trained.

■ Allowing several days at the start to

train inmate workers.

■ Starting up services such as health

care, food, and visitation gradually.

Disadvantages associated with phased

occupancy include—

■ Potential disputes regarding damaged items.

■ Increased complexity.

■ Potential presence of construction

personnel in areas occupied by

inmates.

■ Need for multiple shakedowns and

searches.

■ Impact on staff who have to

escort/move workers through the

facility.

■ Noise disruptions.

■ Warranty issues.

■ Long-term duplicate operations.

Construction Coordination

After Facility Turnover

Up to this point, the facility is generally under the contractor’s control. The

contractor has the keys and grants

access to the facility. This section

addresses tasks and procedures that

generally take place after the owner/

user assumes responsibility for the

facility. 

Security/Facility Turnover 

Because you are now the owner/user,

the jail staff will be responsible for

building security. This is an awesome

responsibility for the staff because

many construction workers will still be

in the facility. You will need to implement your check-in/check-out policy

and procedure, control access to the

facility, staff the entry points to meet

contractor needs, and probably escort

workers. Before assuming this responsibility, however, determine the status

of construction and whether your staff

resources are sufficient to perform the

above tasks in addition to the staff’s

other duties.

Telephone Installation

The jail has probably already been

wired for telephone installation, but

you will need to direct the final placement of instruments, activation of

phones, and testing of the system.

Phone directories also will need to be

developed and distributed. Telephones

are often one of the user-supplied systems, which puts them in the category

of FF&E. When you plan the telephone

system, you should discuss the

following:

■ Telephone numbers (new or current). If current numbers will be

used, determine when they can be

activated in the new building.

■ Functions required and calling

access levels at each telephone

location.

■ Changeover from the current

facility, if it is to be closed.

Computer Installation

Like the telephone system, wiring for

the facility’s computer network is

probably already in place. This network is not for the computers that are

associated with the new security system or the building systems; this

[Building

security] is

an awesome

responsibility

for the staff

because

many construction

workers will

still be in

the facility.
Resource Manual for Transition to a New Jail

CHAPTER THREE

3–15

network is for the computers that are

typically used for business functions

and would include the department’s

intranet. This task involves placing

equipment and checking the connectivity and functionality of all operating

systems. The transition team needs to

determine which aspects of this will be

their responsibility and which will be

done by the jurisdiction’s information

technology department. 

FF&E Installation

This task refers to owner-purchased

and -installed items (see chapter seven,

Furniture, Fixtures, Equipment, and

Supplies).

Startup Tasks 

Startup tasks may include—

■ Obtaining a facility address (if not

required early in the project).

■ Assigning parking spaces—a bigger issue than you might think!

■ Initiating maintenance, including

warranty work.

■ Initiating housekeeping, including

trash removal.

Renovations/Additions 

Most people think of construction

projects as new construction. However,

many jail projects are expansions

and/or renovations. These projects

present special challenges during both

construction and transition because the

jurisdiction must continue operations

while construction occurs.

The best time to address renovation/

addition issues is when the specifications are being developed. In addition

to the items normally included, the

specifications should address the following issues: estimated length of time

under construction; estimated length of

time of service interruption, including

days and times; work hours; levels of

security required and erection of safety/security barriers; hours that construction workers will need access to

occupied areas and related security

requirements; background checks,

identification, and searches of construction workers; tool control; construction worker contact with inmates;

emergency aid; parking; weapons; and

intoxicants. 

Transition team members should look

for a phasing plan that will identify the

timing of construction in different

areas of the facility. The phasing plan

should also address the basic renovation strategy, e.g., shutting down one

floor or unit at a time; the need for

construction of any temporary facilities; and completion of any new construction for a specific use, such as

housing, while renovating the old facility. The team needs to ensure that the

plan adequately addresses safety and

security items. In complex renovations,

you may have to balance the need for

speed with the need for space—

especially housing space. It may be

worth the effort to identify the difference in cost between boarding inmates

at another location, which allows the

contractor greater access to the facility,

versus a slower process in which

inmates remain in all or part of the

facility while the renovation occurs. 

Final Thoughts

In a perfect world, construction of the

facility would proceed at a consistent

and steady pace. Unfortunately, the

real world is often quite different.

Construction activity may be exceptionally busy for a time, followed by a

Construction

activity may

be exceptionally busy

for a time,

followed by

a period of

inactivity.
3–16 Resource Manual for Transition to a New Jail

period of inactivity. The transition

coordinator should review the contractor’s schedule, looking for periods

when activity will be intense and when

project work will be slower, as he or

she makes decisions about the construction specialist’s availability to

work on other aspects of transition. It

is also important to monitor changes

like labor issues and incentives for

early completion that could result in

significant, unexpected variation in

construction activities. 
Resource Manual for Transition to a New Jail

APPENDIX 3–1

3–17

APPENDIX 3–1.

CONSTRUCTION TERMINOLOGY

Addendum (pl. addenda): A written graphic instrument issued by the architect before execution

of the construction contract that modifies or interprets the bidding documents by additions,

deletions, clarifications, or corrections.

Allowance: See cash allowance, contingency allowance.

Application for payment: Contractor’s certified request for payment for completed portions of the

work and, if the contract so provides, for materials or equipment suitably stored pending their

incorporation into the work.

Architect: Designation reserved, usually by law, for a person or organization professionally qualified and duly licensed to perform architectural services.

As-built drawings: Drawings based on field measurements for an existing building. The level and

detail of measurements included in the drawings will depend on how the drawings will be used. 

Bid opening: The physical opening and tabulation of sealed bids following the time specified in

the bidding requirements. This term is preferable to “bid letting.”

Bidding documents: Collectively, the bidding requirements and the proposed contract documents,

including any addenda issued prior to receipt of bids.

Building inspector: See code enforcement official.

CAD (or CADD): See computer-aided design.

Cash allowance: An amount established in the contract documents for inclusion in the contract

sum to cover the cost of prescribed items not specified in detail, with provision that variations

between such amount and the finally determined cost of the prescribed items will be reflected in

change orders that appropriately adjust the contract sum.

Certificate for payment: A statement from the architect to the owner confirming the amount of

money due the contractor for work accomplished, or materials and equipment suitably stored, or

both during a specific period.

Certificate of substantial completion: A certificate prepared by the architect on the basis of an

inspection (a) stating that the work or a designated portion thereof is substantially complete; (b)

establishing the date of substantial completion; (c) stating the responsibilities of the owner and the

contractor for security, maintenance, heat, utilities, damage to the work, and insurance; and (d) fixing the time within which the contractor shall complete the items listed therein.

Change order: An amendment to the construction contract signed by the owner, architect, and

contractor that authorizes a change in the work, an adjustment in the contract sum or the contract

time, or both.
3–18 Resource Manual for Transition to a New Jail APPENDIX 3–1

CONSTRUCTION TERMINOLOGY (continued)

Code enforcement official: A representative of a governmental authority employed to inspect construction for compliance with applicable codes, regulations, ordinances, and permit requirements.

Computer-aided design: A term applied to systems or techniques for design and drafting that use

integrated computer hardware and software systems to produce graphic images.

Construction budget: The sum established by the owner as available for construction of the project, including contingency allowances for bidding and for changes during construction. See also

project budget.

Construction documents: Drawings and specifications that set forth in detail requirements for the

construction of the project.

Construction manager: An individual or entity who provides construction management services.

This entity may remain as advisor (CMa) during construction or become the construction contractor

(CMc).

Contingency allowance: A sum included in the project budget to cover unpredictable or unforeseen items of work or changes in the work. The amount of the contingency allowance will vary

with the stage and type of project.

Contract award: A communication from an owner accepting a bid or negotiated proposal. An

award creates legal obligations between parties.

Contract documents: These include the agreement between owner and contractor; conditions of

the contract (general, supplementary, and other conditions); drawings, specifications, and addenda

issued prior to execution of the contract; other documents listed in the agreement; and modifications issued after execution of the contract.

Critical path method (CPM): A schedule or diagram of all events expected to occur and operations

to be performed in completing a given process, rendered in a form that permits determination of

the optimum sequence and duration of each operation.

Design development documents: Drawings and other documents that fix and describe the size and

character of the entire project regarding architectural, structural, mechanical, and electrical systems; materials; and such other elements as may be appropriate.

Design development services: Services in which the architect prepares the design development

documents from the approved schematic design studies for submission to the owner for approval.

Design development is the middle stage of design, between schematic design and construction

documents.

Detail: A detail is a drawing at a larger scale of part of another drawing, indicating in detail the

design, location, composition, and correlation of the elements and materials shown. 

Dimensions: Numbers that indicate the quantity or measure of items shown on the drawings.

Building dimensions are normally given in feet, inches, and fractions of inches, and should be oriented on the drawings for reading from either the lower or right-hand side of the sheet.

Dimensions should never be determined by measuring drawings with a scale; in the event of a discrepancy between a scaled dimension and the figures given for that dimension, the figures will

govern.
Resource Manual for Transition to a New Jail 3–19APPENDIX 3–1

CONSTRUCTION TERMINOLOGY (continued)

Drawings: Graphic and pictorial documents depicting the design, location, and dimensions of the

elements of a project. Drawings generally include plans, elevations, sections, details, schedules, and

diagrams. When capitalized, the term refers to the graphic and pictorial portions of the contract

documents.

Elevations: Two-dimensional, graphic representations of the design, location, and certain dimensions of the project, seen in a vertical plane viewed from a given direction. Elevations may be of

exterior or interior (wall) surfaces.

Fast track: A process in which certain portions of the architect’s design services overlap with construction activities in order to expedite the owner’s occupancy of all or a portion of the project.

Feasibility study: A detailed investigation and analysis conducted to determine the financial,

economic, technical, or other advisability of a proposed project.

Final acceptance: The owner’s acceptance of the project from the contractor upon certification by

the architect of final completion. Final acceptance is confirmed by making final payment unless

otherwise stipulated at the time this payment is made.

Final completion: Term denoting that the work has been completed in accordance with the terms

and conditions of the contract documents.

Inspection: (1) Examination of work completed or in progress to determine whether it conforms

with the requirements of the contract documents. Distinguished from the more general observations made by the architect from time to time on visits to the site during the progress of the work.

(2) Examination of the work by a public official, owner’s representative, or others.

Low bid: Bid stating the lowest price proposed by two or more bidders for performing the work,

including selected alternates. Must conform with the bidding documents.

Lowest responsive bid: The lowest bid that is responsive to and complies with the requirements of

the bidding documents.

Plan: A two-dimensional, graphic representation of the design, location, and dimensions seen in a

horizontal plane viewed from above. Notes given on the plans should cross-reference sections and

details, and materials should be indicated to the maximum extent feasible.

Program (architectural or facilities): A written statement setting forth design objectives, constraints, and criteria for a project, including space requirements and relationships, flexibility and

expandability, special equipment and systems, and site requirements.

Project budget: The sum established by the owner as available for the entire project, which for

building projects includes the construction budget; land costs; costs of furniture, furnishings, and

equipment; financing costs; compensation for professional services; costs of owner-furnished goods

and services; contingency allowance; and similar established or estimated costs.

Project closeout: Requirements established in the contract documents for final inspection, submission of necessary documentation, final acceptance, and final payment on a construction project.

Project manager: (1) Term often used interchangeably with “project architect” to identify the individual designated to manage the firm’s services related to a given project. Normally, these services

include administrative responsibilities as well as technical responsibilities. (2) Regarding the contractor or construction manager, the term may refer to the individual designated by that entity to

manage that entity’s activities.
3–20 Resource Manual for Transition to a New Jail APPENDIX 3–1

CONSTRUCTION TERMINOLOGY (continued)

Proposal request: A document issued by the architect after contract award that may include drawings and other information used to solicit a proposal for a change in the work; sometimes called a

“request for change” or “bulletin.”

Punchlist: A list of work to be completed or corrected by the contractor after substantial completion; sometimes referred to as “punch list.”

Schedules: Tabulations of items of information of a similar nature that are used to limit repetitive

drafting and notes. Schedules may be developed containing data for room finishes, hardware,

laboratory equipment, columns, footings, lintels, plumbing fixtures, lighting fixtures, etc.

Schedule of values: A statement furnished by the contractor to the architect reflecting the portions

of the contract sum allocated to the various portions of the work and used as the basis for reviewing the contractor’s applications for payment. 

Schematic design: Services in which the architect consults with the owner to ascertain the requirements of the building project and prepares studies consisting of drawings and other documents

that illustrate the scale and relationships of the building components for approval by the owner.

The architect also submits to the owner a preliminary estimate of construction costs based on current area, volume, or similar conceptual estimating techniques.

Section: A drawing of a surface revealed by an imaginary plane as if it were cut through the building. Generally speaking, a section refers to a vertical cut. The locations at which sections are cut

should be indicated on both plans and elevations.

Shop drawings: Drawings, diagrams, schedules, and other data specially prepared for the work by

the contractor or a subcontractor, sub-subcontractor, manufacturer, supplier, or distributor to illustrate some portion of the work.

Specifications: The specifications, together with the agreement, the conditions of the contract

(general, supplementary, and other conditions), the drawings, all addenda issued prior to the execution of the agreement and all modifications thereto, compose the contract documents for most

construction projects.

Specifications division: A format for writing construction specifications. A great majority of the

specifications written for construction today in the United States and Canada use a standard “16

divisions” format. A respectable majority of them also break down the “divisions” into “sections.”

Divisions group related “sections” into a standard framework without conflicting with the normal

bidding procedures or local trade jurisdictions. The 16 divisions are currently titled as follows:

Division 1—General Requirements

Division 2—Site Work

Division 3—Concrete

Division 4—Masonry

Division 5—Metals

Division 6—Wood and Plastics

Division 7—Thermal and Moisture Protection
Resource Manual for Transition to a New Jail 3–21APPENDIX 3–1

CONSTRUCTION TERMINOLOGY (continued)

Division 8—Doors and Windows

Division 9—Finishes

Division 10—Specialties

Division 11—Equipment

Division 12—Furnishings

Division 13—Special Construction

Division 14—Conveying Systems

Division 15—Mechanical

Division 16—Electrical

Sometimes in correctional work, a 17th division, Security Electronics, is also used. 

Substantial completion: The stage in the progress of the work when the work or designated portion thereof is sufficiently complete in accordance with the contract documents that the owner can

occupy or use the structure for its intended use.

Sub-subcontractor: A person or entity who has a direct or indirect contract with a subcontractor to

perform any of the work at the site.

Superintendent: The contractor’s representative at the site who is responsible for continuous field

supervision, coordination, completion of the work, and, unless another person is designated in

writing by the contractor to the owner and the architect, the prevention of accidents.

Unit price: Amount stated in the bid as a price per unit of measurement for materials or services as

described in the bidding documents or in the proposed contract documents.

Value-enhanced design: The process of analyzing the elements of a building design in terms of its

cost-effectiveness, including the proposed substitution of less expensive materials or systems for

those initially suggested (this is also referred to as “value engineering”).

Warranty: Legally enforceable assurance of quality or performance of a product or work or of the

duration of satisfactory performance.

Source: Adapted from American Institute of Architects, The Architect’s Handbook of Professional

Practice, 13th ed., New York: John Wiley & Sons, 2001.
Staff/Human

Resources

CHAPTER FOUR
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–3

Importance of Staffing to Transition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–3

General Staffing Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–3

Staffing Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–4

When Should Staffing Analysis Be Done? . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–5

Staffing Analysis Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–6

What Is the Staffing Analysis Process? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–6

What Factors Influence the Staffing Pattern? . . . . . . . . . . . . . . . . . . . . . . . . . . .4–7

What Is Adequate Staffing? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–8

Staffing Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–9

Recruitment and Selection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–9

Position Descriptions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–9

Recruitment Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–9

Selection Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–10

Personnel Management Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–10

Final Thoughts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4–11
Resource Manual for Transition to a New Jail 4–3

STAFF/HUMAN RESOURCES

CHAPTER FOUR

Overview

Successful occupation of the new jail will require adequate staffing. The role

of the transition team will vary depending on the personnel/human resources of

the department and/or jurisdiction and the work done during the planning

process. These tasks may include creating a staffing analysis and obtaining the

needed funds as well as recruitment and selection of personnel. 

Importance of Staffing to Transition

Ideally, the new facility’s staffing requirements will have been determined as

part of the initial planning process. In this case, staffing tasks during transition

will focus on ensuring that initial staffing assumptions remain valid and assisting in the recruitment and selection process. Early in transition, transition team

members must meet with the jail administrator and/or chief executive to see

what actions have been taken to date and determine the transition team’s role

in this process. It can be politically devastating to have a new facility that is

complete and not have the staff to operate it. Although the transition team may

not have control over these issues, it needs to take all reasonable actions to

ensure that adequate human resources are available and ready to work when

the new facility opens. 

General Staffing Issues

Jail staff is one of three essential resources that can help the institution achieve

its mission of safety and security for the public, staff, and inmates. Along with

the physical plant and technology, staff members make the jail and its programs work. Staff is also the largest operating cost. In any given year, most

jails spend between 70 and 80 percent of their budgets on staff salaries and

benefits. Unlike capital costs, staffing costs are not onetime expenditures. They

continue year after year.

Because of the expense, the importance of adequate and appropriate staffing,

and competition for scarce resources both inside and outside the department,

Action plans for

staffing and human

resource tasks may

include—

• Staffing plan.

• Recruitment/selection

plan.

• New staff.

ACTION

PLANS
Exhibit 4–1. Staffing/Recruitment Flowchart

4–4 Resource Manual for Transition to a New Jail

Conduct

Reference

Checks

OK?

Yes

No

Screen A Applications*

= Task is part of another chapter, but is critical to completion of this flowchart.

* = Your organization may complete these tasks in a different order. 

Go to END Reject

Applicant

OK?

Yes

No

Reject

Applicant

START Update/Approve

Staffing Plan

and Budget

Develop

Hiring

Schedule/Plan

Advertise/

Recruit

Staff

Develop

Job

Descriptions

Review

Current Hiring

Process

Develop

Recruitment/

Selection Policies

and Procedures

Conduct

Assessment

Center/

Interview

OK?

Yes

No

Conduct

Specialized

Testing

B

Go to END Reject

Applicant

OK?

Yes

No

Reject

Applicant

Make

Shift

Assignment

OK?

Yes

No Conduct

Physical and

Specialized

Testing

C

Go to END Reject

Applicant

Conduct

Training

staffing costs are likely to be a source

of conflict. Jail administrators often

experience difficulty when they want to

increase facility staffing levels. The

transition process provides an ideal

opportunity to educate public policymakers and the chief executive officer

on staffing issues.

Exhibit 4–1 illustrates the major elements of staffing as they relate to

transition.

Staffing Analysis 

Staffing analysis is a process that

allows you to identify, justify, and document the number of staff required to

operate a facility. Staffing analysis can
Resource Manual for Transition to a New Jail

CHAPTER FOUR

4–5

be done in various ways. Regardless of

the method used, the goal of the

process is to develop a responsible and

reasonable justification for the number

of staff required to operate the facility. 

When Should Staffing Analysis

Be Done?

Ideally, each jurisdiction will have analyzed staffing requirements during

planning and programming and

obtained agreement with the funding

agency at that time. The jurisdiction

will also have taken pains to ensure

that the agreed-upon staffing level continues to be valid during the design

process. However, sometimes jurisdictions are less cognizant of the importance of determining and reaching

agreement on staffing levels early in

the planning process. For these jurisdictions, completing a first staffing

analysis will be a critical transition

task that must be linked with the

budget process. 

OK?

Yes

No

Reject

Applicant

Conduct

First

Interview

OK?

Yes

No

Conduct

Criminal

History

Reject

Applicant

B

Receive

Applications

(Tracking

System)

Go to END Go to END Go to END

A

OK?

Yes

No

Reject

Applicant

Offer

Job

(Conditional)

OK?

Yes

No

Conduct

Administrator’s

Interview

Reject

Applicant

C

Go to END Go to END Go to END

Implement

Staffing

Plan

Conduct

Training END
4–6 Resource Manual for Transition to a New Jail

If a staffing analysis was not completed during the planning and/or design

process, you will need more detail than

this resource manual can provide. The

National Institute of Corrections’

Staffing Analysis Workbook for Jails,

Second Edition, provides detailed

information about how to do a staffing

analysis. Usually the architect will

have worked with the county representatives to develop a preliminary staffing analysis so the jurisdiction would

be aware of staffing implications, but

architects should not do the final staffing analysis for the facility. They do

not have the knowledge of the jail’s

operation that is required to do a complete analysis.

For many jurisdictions, the key staffing

analysis that must be developed during

transition is a startup staffing analysis.

This is particularly true if the ultimate

capacity of the new facility is greater

than the number of inmates who will

be moved from the old institution. 

Staffing Analysis Terminology

Staffing analysis uses the following

terms:

■ Post. A staff assignment to a specific place or a specific function.

■ Staffing pattern. The relationship

of posts over time.

■ Schedule. Days and times staff are

expected to work.

■ Net annual work hours. A calculation of the number of hours staff are

available to work based on the contracted number of hours per year

minus the number of hours off per

staff person per year.

What Is the Staffing Analysis

Process?

Most staffing analysis is built around

an analysis of the posts required to

operate a facility. Posts are related to

either a place or a function and apply

to all types of staff. Common examples

of posts include control officer, floor

officer, and shift supervisor. However,

posts also include assignments such as

facility administrator, program coordinator, food service manager, and clerk.

Posts can be filled by one or more staff

members, typically within one job classification. The staffing pattern determines when these posts are needed.

The staffing pattern is different from a

schedule because it considers all shifts

and all times of the day. 

About 60 percent of the jail’s personnel resources come directly from the

staffing pattern. If staff were always

available to work, then the staffing pattern by itself would provide a good

estimate of the number of staff required

to operate the facility. However, staff

are not always available. They have

scheduled time off and various types of

leave. A number of processes are used

to determine the impact of leave. The

“net annual work hours” method is 

described in the Staffing Analysis

Workbook for Jails, Second Edition.

Regardless of the method used, the

process uses historical data to calculate

how much time the average staff member within a job classification is available to work, dividing that into the

total number of hours that the agency

needs to have the posts filled.
Resource Manual for Transition to a New Jail

CHAPTER FOUR

4–7

The staffing analysis process typically

consists of four steps but, for transition, a fifth is recommended:

1. Identify all of the staff posts

required to staff the building when

inmate capacity is reached. 

2. Identify when each post needs to be

staffed.

3. Identify which posts must be

staffed, which posts could be collapsed or combined, and when each

mandatory post is needed.

4. Calculate and apply the net annual

work hours factor to identify the

total number of staff required.

5. Repeat the process for startup

staffing requirements. 

The staffing analysis process itself is

quite straightforward and basically

consists of the first four steps. The

challenge for transition teams is to

avoid replicating the staffing pattern of

their existing jail if it does not apply to

the new facility. The fifth step is often

critical for transition teams. In many

cases, the population that will be

moved to the new facility is significantly less than the facility’s ultimate

capacity. As a result, the team will

need to look for strategies that will

allow them to move into the new facility with an appropriately sized staff.

One strategy might be to consider

housing inmates in one area of the

facility, leaving other areas—and other

full-time posts—vacant until they are

required. This approach is clearly

related to the department’s operating

budget.

What Factors Influence the

Staffing Pattern?

Three primary factors influence the

staffing pattern:

■ Mission. Defines the purpose of the

facility. The facility’s mission influences staffing through the operational philosophy it articulates

and/or implies and its statement of

what the facility is to accomplish.

Together these factors, along with

professional standards, help define

the type and level of programs and

services provided in the facility. 

■ Physical plant. Provides the environment in which corrections operations occur; the physical plant can

function as both an asset and a liability. The design and layout of the

physical structure directly affect the

staffing level. The physical plant

dictates staff members ability to

maintain sight and sound contact

with the inmates, and their ability

to classify inmates, and determine

flow patterns and, to some degree,

the method of supervision.

Analyzing the facility for staffing

needs provides the transition staff

with an excellent opportunity to

learn about the jail.

■ Operations and activities.

Determine the frequency with

which activities are carried out

together with schedules and the

environment. The number, frequency, and schedule of inmate programs and services, as well as the

number and type of individuals

being detained, dictate the staffing

level in part. Jail management can

control the level of some activities

but can do little to regulate others.

For example, management staff can

typically determine when it will

permit family visitation, but can

rarely define when it will admit

prisoners.

Jail management can

control the

level of

some activities but can

do little to

regulate

others. 
4–8 Resource Manual for Transition to a New Jail

As the transition team develops scenarios and drafts policies and procedures,

those documents influence operations

and activities; as a result, work affects

staffing. It is essential that transition

team members understand the basic

assumptions that were made about

staffing levels when the facility was

planned and designed and that their

work remain consistent with the basic

intent of earlier staffing efforts.

Transition teams that do not have the

benefit of previous work have a far

more challenging task. They must

develop a staffing plan that is responsive to both design and operations and

fits within the resources allocated.

What Is Adequate Staffing?

Ultimately, the outcome of the staffing

analysis is to ensure that the jail has an

adequate level of staffing to operate

safely and securely. At the most basic

level, adequate staffing is a matter of

numbers. This concept is best illustrated by looking at how many people it

takes to provide 24-hour coverage of a

single assigned post 365 days a year. A

24-hour-a-day post must be staffed

8,760 hours a year; an employee works

approximately 40 hours a week—

approximately 2,080 hours if that

employee were available to work 5

days a week, every week of the year.

Divide the total number of hours that

must be worked by the total number

of hours that the typical staff member

could work, and basic math shows you

that you need at least 4.2 officers to

cover that post.

The problem is that the average

employee is not available 2,080 hours a

year. Staff take vacation, get sick, use

other types of leave, and go to training,

among any number of other activities—

all of which make them unavailable to

work at the post where you need them.

When you include staff members’ typical use of leave in the equation, you

actually need five staff members to

cover a post. No factor is more critical

in determining the number of staff than

net annual work hours.

If adequate staffing were just a question of having the right number of

staff, then the only possible response to

staffing needs would be to add more

staff; however, adequate staffing is

much more than numbers. Staff must

work when and where you need them.

The work of jails is not always

distributed evenly. Some hours of the

day and week tend to be busier than

others. Sometimes the day shift, especially Monday–Friday, has a disproportionate amount of the activity; it may

also have a disproportionate amount of

staffing. Sometimes this is the result of

meeting staff’s desire for “more typical

schedules.” Staff members want weekends off; they want vacations in the

summer; and many do not like working

night shifts. As a result, jail administrators have to weigh the value of giving

staff members the time off they prefer

against having the facility staffed consistent with workload. This does not

change during transition.

Finally, maintaining an adequate

staffing level also means ensuring that

the staff is doing the right things.

Unfortunately, in both day-to-day operations and critical situations, it does little good if staff members fail to follow

policies and procedures or fail to do

what they have been trained to do. The

transition team has a unique opportunity to influence this component by

the quality of the training provided

during transition.

At the most

basic level,

adequate

staffing is a

matter of

numbers. . . .

however,

adequate

staffing

is much

more than

numbers.
Resource Manual for Transition to a New Jail

CHAPTER FOUR

4–9

Staffing Report 

Transition teams frequently have to

document staffing requests, particularly

if no staffing analysis was completed

during planning. If the jail requires

additional staff, the request for personnel generally needs to be initiated a

year in advance. It is important for the

transition team to understand the budget cycle and when budgets are due. The

transition coordinator should initiate

this task by reviewing planning documents that may have addressed staffing. Also, the training coordinator

should meet with the jail administrator

and the chief executive officer to

receive their input. It is not unusual to

hear “We promised not to increase staff

if ‘they’ built us a new jail.” This may

be in spite of doubling the inmate

capacity. At the onset, understand

what is expected of the transition team

regarding staffing levels. 

Overcoming unrealistic staffing expectations is a serious problem for the

transition team. First, the team needs to

understand the assumptions on which

prior staffing levels were established,

and then determine if any of these

assumptions have changed. If they

have, then clear analysis of the differences should resolve some of the

issues. As part of this process, the transition team must make certain that it is

not importing the old jail’s view of

staffing into the new. Situations in

which design failed to allow the

staffing levels identified during planning, or in which no staffing levels

were established, are more difficult. In

these situations, the transition team

may need to look for strategies, such as

not opening all of the housing units,

that will allow the facility to start operating safely and securely while some

staffing issues are resolved or deferred. 

Recruitment and Selection 

The role of transition regarding recruitment and selection will depend on the

resources of the department and jurisdiction. Possible tasks may include—

■ Developing and writing position

descriptions.

■ Developing and assisting with the

recruitment strategy.

■ Developing and assisting with the

selection strategy.

Position Descriptions 

Position descriptions may need to be

developed or rewritten to be consistent

with the operations of the new jail.

New positions that are not in the current job classification system may

require research. Abilities to consider

are hand/eye coordination to operate

electrical control panels and touchscreens, verbal communication skills

for direct supervision facilities, and

physical conditioning for jails that

require staff to move continuously

through housing units that often have

steps.

Recruitment Strategies 

Current recruitment strategies should

be reviewed to determine if you are

getting the number and types of staff

members you need. If not, the transition staff should identify the problems

and share these with the appropriate

staff in either your department or the

jurisdiction. A new recruitment strategy may need to be developed to ensure

that the pool of qualified applicants is

large enough for the number of personnel who will be recruited during this

short period of time. Recruitment

strategies may include—

■ Advertising—radio, television,

print.

Overcoming

unrealistic

staffing

expectations

is a serious

problem for

the transition team.
4–10 Resource Manual for Transition to a New Jail

■ Colleges and universities.

■ Direct mailings.

■ Hiring incentives.

■ Internships.

■ Job fairs.

■ Military bases.

■ Newsletters (neighborhood, civic

groups).

■ Online services and the Internet.

■ Open houses.

■ Professional journals.

■ Professional agency meetings.

■ Public service announcements.

■ Recruiting firms/headhunters.

■ Speaker bureaus.

■ Volunteers.

■ Word of mouth.

Selection Process 

Just as you may revisit the current

recruitment strategy, this may be the

time to review your selection process.

Start by analyzing the current selection

policies and procedures and determining if you are getting the intended

results. If your department has a personnel officer, you two should meet to

clarify your respective roles and any

legal requirements that relate to

recruiting and selecting personnel; if

no one in your department is involved

in this process, meet with the jail

administrator and the jurisdiction’s

personnel officer.

New instruments, forms, tests,

brochures, and other materials may be

required to implement the new selection process. The selection process

may include evaluation of the application, an initial interview, a reference

check, a criminal history check, a tour

of the facility, an aptitude test, final

interviews, psychological screening,

and a physical examination. Applicants

should be evaluated after each activity

to determine if they should continue

with the process.

Comprehensive screening has associated upfront costs, not only in staff to

manage the process, but also in the

purchase and/or development of instruments and the use of specialists, i.e.

psychologists. However, the costs spent

on screening may help reduce both

staff turnover and the costs of recruiting, selecting, and training new staff. If

you decide to enhance the hiring process, make that decision early in the

process so you can budget for any

associated costs. 

Personnel Management

Resources 

The tasks discussed in this chapter

indicate that the staff/human resources

activities may require more resources

than the jail and/or the jurisdiction is

used to using. Just consider the time

that will be required for more comprehensive testing and background

investigations; this time crunch can be

compounded by the need to bring a

number of new staff on at the same

time to facilitate training. At a minimum, consider using the following

resources:

■ Human resources coordinator.

Designate one staff member to

coordinate with the department and

jurisdiction. For most agencies, this

will be a collateral assignment.

■ Human resources budget. In addition to the budget for new staff, you

will need a separate human resources budget to support recruitment, selection, and testing

Just as you

may revisit

the current

recruitment

strategy, this

may be the

time to

review your

selection

process.
Resource Manual for Transition to a New Jail

CHAPTER FOUR

4–11

activities. These dollars may not be

in the jail budget, but rather in

another department’s budget. It is

in the jail’s best interest to see that

money is allocated for this purpose,

regardless of the budget in which

the funds are located. Jail administrators may want to actively support

the jurisdiction’s human resources

budget request to enhance the jail

recruitment/selection process.

■ Staff scheduling. Assuming the

budgets have been approved and

staff employed, the jail administrator or designated staff will need to

develop a staff schedule. It is

important that the schedule reflect

a balanced approach to integrating

new and old staff while meeting

both the needs of the jail and any

contractual obligations. 

The degree to which transition personnel will be involved in staffing and

human resource issues varies widely.

As a transition assignment, staffing and

human resource tasks will have periods

of intense activity that may be followed by periods of relative inaction.

Regardless of the degree to which transition team members are involved in

the recruitment and selection process,

one of their most critical tasks—training—depends on the individuals who

are responsible for selecting personnel

completing their tasks on schedule. At

a minimum, this suggests a strong need

for frequent communication and coordination; it presents an excellent

opportunity to enhance relationships

among the divisions of the department

and/or between the department and the

jurisdiction’s human resources agency. 

Final Thoughts 

The transition team needs to develop a

human resources timeline that clearly

identifies the relationships among the

hiring process, training requirements,

and the budget cycle. Many jurisdictions defer hiring until the latest possible moment because of its impact on

the budget. However, deferred hiring

often creates unrealistic expectations

for training. During the early phases of

transition, encourage development of a

realistic timeline for this task.

This transition task has discrete periods

of activity. Relatively early in transition, the human resources specialist

may spend a considerable amount of

time on staffing issues; this activity

must be coordinated with the budget

process. Depending on the length of

transition, a significant lull may occur

before the intense activity of recruitment and selection begins. This may

allow the human resources specialist to

help develop the documents associated

with the middle stages of transition. 
Document

Development

CHAPTER FIVE
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–3

How Are the Documents Related? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–4

How Do Documents Benefit Transition and New Operations? . . . . . . . . . . . . .5–4

What Resources Are Required for Document Development? . . . . . . . . . . . . . .5–5

When Should Documents Be Developed? . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–6

Before You Write . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–7

General Suggestions About the Writing Process . . . . . . . . . . . . . . . . . . . . . . . .5–8

Suggestions About Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–12

Suggestions About Format . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–13

Suggestions About Style . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–13

Developing Individual Documents . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–15

Mission Statement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–15

Operational Philosophy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–17

Scenarios for Jail Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–19

Policies and Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–21

Forms/Forms Manual . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–25

Post Orders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–26

Inmate Handbook . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–28

Master Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–30

Final Thoughts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5–31

Appendix 5–1. Document Coordinator Position Description . . . . . . . .5–33

Appendix 5–2. Sample Tracking Log . . . . . . . . . . . . . . . . . . . . . . . . . . .5–35

Appendix 5–3. Sample Operational Scenarios . . . . . . . . . . . . . . . . . . .5–39

Appendix 5–4. Sample Policy and Procedure Tables of Contents . . . .5–41

Appendix 5–5. Sample Policy and Procedure Formats . . . . . . . . . . . . .5–47

Appendix 5–6. Sample List of Forms . . . . . . . . . . . . . . . . . . . . . . . . . . .5–65

Appendix 5–7. Sample Post Order Format . . . . . . . . . . . . . . . . . . . . . .5–67

Appendix 5–8. Sample Master Schedules . . . . . . . . . . . . . . . . . . . . . . .5–69
Resource Manual for Transition to a New Jail 5–3

DOCUMENT DEVELOPMENT

CHAPTER FIVE

Overview 

Developing written documents is the most detailed and time-consuming transition task. This chapter discusses the principles and mechanics of document

development. It begins with a discussion of the sources of and the relationships

among the documents, the operational benefits of well-prepared documentation

to both transition and new jail operations, and the staff and other resources

needed to prepare the documentation. The second section provides a set of

general writing guidelines, including document terminology and suggestions

for getting started with the writing process and for formatting and style. The

rest of the chapter provides detailed directions on how to develop each related

document type, including the—

■ Mission statement. 

■ Operational philosophy.

■ Scenarios.

■ Policies and procedures.

■ Forms.

■ Post orders.

■ Inmate handbook.

■ Master schedule.

Before you begin, it is important to understand how these documents fit together. This helps to establish the sequence in which it is easiest to write them. It is

also important to spend time determining formats, writing style, and terminology. Everyone who will be involved in writing documents needs to be very

familiar with these suggestions and the resources that your team identifies. 

Action plans for

document development may

include—

■ Document 

management.

■ Mission statement/

operational 

philosophy.

■ Operational scenarios.

■ Policy statements.

■ Policies and 

procedures.

■ Forms.

■ Post orders.

■ Inmate handbook.

■ Activity schedule.

ACTION

PLANS
5–4 Resource Manual for Transition to a New Jail

How Are the Documents

Related?

Documents related to jail operations

fall into three main categories:

■ External and internal source documents that set forth the legal

requirements that the jail must

meet. 

■ Working documents that set forth

the jail’s general operating philosophy and operating scenarios.

■ Documents that govern day-to-day

operations, including policies and

procedures and the documents that

flow from them. 

Sources

Two categories of sources shape the

documents that are updated and/or created during transition. The first category comprises laws, regulations, and

legal precedents that define what the

jail must do. These include correctional

standards, statutes, case law, and consent judgments/decrees. The second is

the mission statement, which defines

the jail’s statutory role and the jurisdiction’s and the department’s values and

beliefs. It begins to shape how things

will be done. The mission statement

sometimes includes a statement of correctional philosophy. Ideally, a mission

statement has already been developed

and used to shape facility design. The

philosophy of operations is the point

from which transition work begins. 

Working Documents for Transition

A statement of operational philosophy

for the jail division and a description of

operational scenarios are two working

documents for transition. The statement of operational philosophy is related to the mission statement, but

it defines more clearly how the

department believes the facility should

be operated and summarizes departmental values and beliefs. It defines

the inmate management strategy and

general beliefs about the role of programs and services in the facility.

Scenarios describe in detail how facility functions will be performed in the

new facility. They are the foundation

on which policies and procedures are

based. Scenarios should be retained

according to the document retention

schedule used by your jurisdiction.

Final Document Products

Policies and procedures are the primary

documents developed during transition.

Policy statements are derived from a

combination of standards and operational philosophy, while procedures

flow from the scenarios. All of the

other documents—forms, the inmate

handbook, post orders, and the master

schedule—are derived from the policies

and procedures. 

How Do Documents Benefit

Transition and New Operations? 

Well-written, consistent, current documents have positive effects on both

transition and new jail operations:

■ Documents can be useful in hiring staff. Policies and procedures

can be used to determine an applicant’s reading and comprehension

skills. Forms and form descriptions

can be used to see if the applicant

can follow written instructions.

■ Documents are the foundation of

training. Policies and procedures

can be the principal training documents; forms are often used in simulation training. Many lesson plans

use policies and procedures as the

basis for the training curriculum.

The philosophy of operations is the

point from

which transition work

begins. 
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–5

■ Documents may be used as the

basis for testing. Promotional

exams to assess competency level

may test the employee’s knowledge

of policies and procedures.

■ Documents are essential for staff

supervision. Without good documents to provide direction to staff,

staff disciplinary action may be

unproductive and unfair.

■ Consistency in documents promotes consistency in operations.

Consistency is essential to a successful operation.

What Resources Are Required for

Document Development? 

The primary resources needed to develop documents are—

■ Staff. 

■ Computers.

■ Project documents.

■ Standards. 

The use of standards and existing project documents as sources for the documents to be created in transition has

been discussed briefly above under

“Sources,” and will be dealt with in

more detail on page 5–8 under

“General Suggestions About the

Writing Process.” The following discussion deals primarily with staff

resources, with emphasis on the document coordinator, and briefly touches

on the need for computer literacy

among staff. 

Staff

The key staff person is the document

coordinator, who manages the entire

process. The document coordinator

should—

■ Have a good level of knowledge

about corrections.

■ Be a good writer. 

■ Be extremely organized; the document manager must coordinate the

writing of numerous drafts of hundreds of documents.

■ Be detail oriented; the document

manager must make sure that all

documents are consistent in content,

format, and terminology. 

■ Be able to see how all of the documents relate to one another.

The document coordinator is a fulltime position for at least a year before

occupancy of the new jail and for several months after occupancy. If you

intend to pursue accreditation, this

position may become your accreditation manager. In addition to the document coordinator, you will need—

■ Writers for the various documents. 

■ Review teams of “operational

experts” (such as cooks, maintenance personnel, support staff, and

officers) to provide input to the

writers and to review their work. 

Because many of the operational

experts may not have been involved in

earlier planning tasks, it is essential

that you help them learn about the new

facility’s operational philosophy and

basic operating assumptions. By bringing these experts up to speed on these

topics, you avoid dealing with groups

of experts in the old operation while

transition team members are developing the new one. Although this may

take a little more time, it can prevent

later misunderstandings. Bringing

broad-based input to the process ultimately will help to create ownership in

the transition process, the documents

which will be developed, and the new
5–6 Resource Manual for Transition to a New Jail

operation. A sample document coordinator position description is included

as appendix 5–1.

Computers

Because of the volume of materials to

be generated, all writers need to be (or

quickly become) computer literate.

Consider training not only in the

appropriate software programs, but also

in effective writing. 

When Should Documents Be

Developed?

Ideally, documents should be written in

a specific, systematic order. Some documents are derived almost completely

from others. As a result, starting all of

the documents at the same time will

probably create inconsistencies and

duplication of effort. Unfortunately,

few departments have time to finalize

all of one type of document before

Exhibit 5–1. Document Development Flowchart

= Task is part of another chapter, but is critical to completion of this flowchart.

Develop/Revise

Process/Formats

Review

Documents

Develop

Policies and

Procedures

Develop

Scenarios

Prioritize

Policies and

Procedures

Needs

Select

Writers/

Reviewers

Identify

Writer/Reviewer

Knowledge,

Skills, and

Abilities

Train

Writers/

Reviewers

Collect All

Resources

Establish

Facility Access

Protocol

Collect

Plans/

Specifications

Update

Mission

Statement

Establish

Facility

Terminology

Identify

Resources

Required

Select

Document

Coordinator

Review

Program

Documents

START

Select

Standards
Revise

OK?

Yes

No

Approve

Documents

Develop

Inmate

Handbook

Develop

Post Orders

Develop

Forms, Logs,

etc.

Develop

Operational

Schedules

Develop

Plans, etc.

Conduct

Training

A B

Print/

Distribute

Documents

Update

Documents

Create

Forms

Storage

B Start

Operation Move

Review/

Update

Documents

END

Resource Manual for Transition to a New Jail

CHAPTER FIVE

5–7

proceeding to the next. Even if the

department has this time, information

developed in later documents may

result in the modification of earlier

ones. 

The linear document development

flowchart (exhibit 5–1) illustrates the

general relationship among the documents. Many documents will be started

while preceding documents are still in

draft form. Items in boxes with dotted

lines are tasks discussed in other chapters of this manual that are critical to

completing this task.

Before You Write 

Because document development is one

of the largest and most familiar tasks,

transition teams tend to leap into this

task. However, team members can save

themselves a significant amount of

time and aggravation by resisting this

impulse and focusing on some of the

more tedious aspects of writing first.

The suggestions in this manual fall into

four areas:

■ The writing process in general.

■ Terminology.

A
5–8 Resource Manual for Transition to a New Jail

■ Format. 

■ Style. 

General Suggestions About the

Writing Process 

These general suggestions focus on

how to get ready to write and how to

review the products the team develops.

Assemble a Resource Library

Put together copies of all the documents that relate to the project and to

specific transition tasks. At a minimum, this should include the new

facility’s mission statement, the prearchitectural program, the contract

documents (plans and specifications),

design notes, copies of all relevant

standards, and a complete set of your

existing policies and procedures,

forms, and schedules. Relevant standards will include your state standards

(if applicable) and the appropriate set

of standards of the American Correctional Association (ACA) and the

National Commission on Correctional

Health Care (NCCHC). You may also

include copies of policy and procedure

manuals from other facilities and materials you find through the National

Institute of Corrections (NIC) Information Center. You could also include

information on relevant jail operational, program, and/or construction

topics. Significant portions of this

resource library should be both in

hardcopy and electronic format. 

Use Standards as a Foundation

Read the relevant standards before

undertaking any writing task. As you

write, you will need to reference the

standard. The level of reference will

vary based on what you are writing.

For example, in policies and procedures, you may elect to include the text

from the standard in the document. In

scenarios, you may elect only to reference the standard by name and number.

Be sure you follow the standards when

you write, and if the standard requires

documenting an activity, make sure the

procedure that is ultimately developed

includes the method of documentation

to be used. If it is impossible to meet a

standard for specific reasons, indicate

so in a “Note” after the standard. You

may not need to write a procedure at

this time. For example, if the jail does

not have an inmate work program, you

will not need to write procedures for it.

However, if the jail cannot meet the

standard for the frequency of outdoor

recreation because the recreation area

is too small, you still need to write the

procedure for outdoor recreation. 

Select and Train Writers

It is important to select staff members

who have good writing skills. Consider

the reports that the staff member typically produces in his or her current job.

Are they clear and easy to understand?

Are they thorough? Writing ability is

probably more important than jail

experience because the writers should

have operational experts available to

them. To test writing skills, have applicants use the writing format you select

to describe how they arrived at work.

This chapter of the manual could be

used to train writers. 

Develop Clear Expectations About the

Final Product 

Team members need to have a clear

picture of what the final product will

look like. Although most departments

will have some form of policy and procedure document, transition is a time

when many departments update their

Read the

relevant

standards

before

undertaking

any writing

task. 
Resource Manual for Transition to a New Jail

CHAPTER FIVE

5–9

policies and procedures manual so that

it reflects current thinking and content.

In addition, with the advent of automation, many departments use this opportunity not only to change the format of

the manual but also to change how

they make the manual available to

staff. These approaches include searchable automated documents as well as

written copies.

Use the New Jail as Your Frame of

Reference

When you start writing, it’s easy to get

trapped into thinking of your current

jail. Think about how the new building

is designed to operate. Think about the

change in philosophy that is occurring.

Ask yourself as you begin to write, “Is

this consistent with new jail operations?

Or is it based on what we do in the

existing facility?”

Consider the Impact on Staffing

When writing, consider all shifts,

including weekends and holidays, and

the staffing level associated with those

shifts. Do not write policies and procedures that create busywork for jail

staff. Write what is necessary to comply with the policy and standards and

to eliminate current problems. Ask

yourself why you are requiring a particular step. Is it consistent with the jail

and proposed operations?

Stay Organized

How many policies and procedures are

in a good manual? If standards provide

a clue, there are likely to be at least

100. Each policy and procedure will go

through several drafts. You will probably have multiple writers working on

these. Multiply the number of policies

by an average of three drafts and you

can quickly see just how much paper

can be generated for just one document. Organization is key to knowing

the status of each of these documents.

Each document should have a clear

title and associated name or numbering

scheme. It should also include the

writer, the date and the number of the

draft, and page numbers. If it’s an electronic document, include a directory

location for the electronic file. 

As you write, you may find changes

that will be required in other documents. A change in a policy and procedure can result in a change in the

inmate handbook. You may find a

change that will also need to be made

in a related procedure. While writing

one policy, you may discover that

another needs to be written. Develop a

list of these changes and new tasks. It

may be very helpful to other writers

and to the trainers who will use your

work to identify known operational

changes and any training implications

that you identify. This will be a significant help as you develop the later documents and lesson plans. 

Don’t Get Stuck 

As you begin writing, you will discover a great number of unknowns.

Perhaps you don’t know the correct

title for the new staff person involved

with programs or the number on a specific door. Develop a list of questions

that need answers, insert a blank space

where the information is missing, and

go on. Then, don’t forget to update the

document as information becomes

available.

Track Your Progress

The documents you develop will have

multiple drafts. If you do not note the

draft number and the document’s

review status on each, it will be very
5–10 Resource Manual for Transition to a New Jail

difficult to know the status of any particular document by just looking at it.

Labeling documents appropriately is

especially important when developing

policies and procedures.

Develop a tracking log for each type of

document after you’ve developed the

review process, especially if it includes

various individuals or groups. This log

can be generated using either project

management software or a database

application. The tracking log should—

■ List all documents by number and

title. 

■ Provide columns for the number of

anticipated drafts and the various

reviewing groups in the order of

review. 

■ Note the date and the draft number

of the document in the column that

identifies where the document is in

the writing process. 

Appendix 5–2 is an example of a

tracking log.

The document coordinator should

maintain the tracking log. This allows

one person to see the overall status of

the policies and procedures and initiate

followup if necessary. Regardless of

the exact review process that you

develop, the last two columns should

be “Quality Control” and “Approved.”

For quality control, the document coordinator should review all documents

for consistency, formatting, and their

relation to/conflicts with other policies

and procedures. Writers should do this

as they draft their documents, but the

document coordinator should do one

final check. In the “Approved” column,

write the date the document was

approved. The date on the document

should match this date until the entire

process is complete. This column will

show quickly how many documents are

approved, while the rest of the tracking

log will show how many are in

progress or need to be started.

Use Team Members To Test Your Work

Most people understand what they

have written when they read it because

they know what they intended to say.

However, jail document writing must

be clear to everyone. Use transition

team members to review and ask questions about your work. These questions, particularly when raised early,

can avoid lots of corrections later on.

Remember, this isn’t personal—it’s

about the final product.

Establish a Writing Sequence 

Not all documents are equally important, but some have the ability to influence others strongly. For example, a

scenario or policy that deals with

inmate movement has the potential to

influence many others. It’s a good idea

to identify the key scenarios and write

them first. This approach will save you

from having several variations of how

to move inmates from one place to

another attached to another scenario,

policy, or procedure; minimize writing

time; and decrease the potential for

documents that conflict with each

other. You also should identify which

documents must be in place for training and operations; do these first.

In general, the writing sequence parallels the relationship among the documents: scenarios have to precede

policies and procedures. But you may

want to consider whether all documents of one type should be developed

completely before moving on to the

next type or if it would be more appropriate, given time and manpower constraints, to develop all the documents
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–11

related to a particular set of functions

together. The documents should not be

written randomly. Develop an order in

which to complete them.

Establish a Review Process 

All documents require multiple levels

of review. The review process generally falls into the following sequence:

■ Walkthrough with the blueprints.

“Walk through” or test each draft of

a document against the blueprints at

the conclusion of each draft to

ensure that the document provides

sufficient detail.

■ Format and detail check. Review

the document for consistency with

the established style and format;

check all references to standards,

policies, and procedures; and check

spelling, grammar, and punctuation.

■ Walkthrough in the building.

Now walk through the document

(either in the actual building, or as a

step-by-step “talkthrough” with

other staff members who have not

worked on it). Have staff follow the

directions in the document, demonstrating what it tells them to do. If

you have to answer questions or

correct staff’s actions, then the document needs more detail. Before

doing this walkthrough, however,

consider that doors, gates, and other

entrances will be locked and get

any equipment that will be needed.

The walkthrough should be as real

as possible. 

■ Transition team review. Transition

team members should review the

revised document to provide their

input, check for agreement with

other documents, and learn about

the new jail and its operations.

■ Operational expert review.

Although the transition team will

not need an operational expert to

review all documents, it is important to develop a team of supervisors and subject matter experts for

areas such as food service, health

care, and maintenance to review

documents that affect their area of

responsibility. 

■ Staff review and comment. The

transition team should provide

opportunities for all staff to read

documents as drafts are developed.

All staff are not required to read the

materials at this time, but offering

these items—even if just by posting

the policies and procedures—can

help reduce resistance to change.

This step tends to increase ownership, provide for a high degree of

input, and start the staff orientation

process. 

■ Final review and approval. The

transition team must determine if

jail or department administrative

staff need to review the documents.

It also needs to determine who

should approve the documents and

what the approval process will be. It

is important to define clearly who

has what level of authority to draft

and revise documents. Consider the

role of the transition staff, transition

coordinator, jail administrator, and

chief executive officer of the

agency. Decisionmaking may vary

by subject, i.e., the CEO may not

want to decide on trash removal but

may want to on booking. A meeting

with the department’s and/or jurisdiction’s attorneys may be needed

to determine their role in the

process. Regardless of the approval

process chosen, it is extremely

If you have

to answer

questions or

correct

staff’s

actions, then

the document needs

more detail.
5–12 Resource Manual for Transition to a New Jail

important for the reviewers to complete their review and forward their

comments and/or approval within a

short period of time. Delays in this

process could result in the facility

opening without a working set of

policies and procedures.

Suggestions About Terminology 

Decide from the outset what terms to

use for people, places, and things in

the jail; make those terms clear and

concise; and make sure that all writers

know about and consistently use those

terms. This will reduce the time and

cost of writing documents, and will

make those documents easier to use

and understand. 

Establish Naming Protocols 

Name areas, staff, forms, and other

things as you want them to be called,

which may be different from what is

on the plans. Keep names simple and

easy to remember. Make sure this common language is consistent with your

jail’s current and future philosophy.

What you name areas will have longterm impact. But don’t let uncertainty

about a room or position name bog

down your writing process; leave

blanks and go on. Just make sure that

you fill in the blanks as soon as possible. Maintain a list of these terms in

both hardcopy and electronic formats

to ensure that all writers have access to

it and use it consistently.

Use Clear, Concise Titles 

Develop brief titles when possible, i.e.,

“trash detail” instead of “support service staff and two inmate workers.” You

will, however, need to describe “trash

detail” in the background section or

include it as a definition. It’s easier to

consistently use short, clear terms.

When a lengthy term is the most accurate, e.g., “qualified health professional,” consider using an acronym, “QHP.”

However, use the entire term the first

time it is mentioned with the acronym

following in parentheses so that the

reader understands what the acronym

means. When referencing forms, use

short, descriptive form names. Add

form names to a style sheet or list of

definitions to ensure that they are referenced correctly and consistently.

Develop Consistent Styles for

References to People 

Consider how easy your style choice

will be to read and use in the future.

■ Decide on a consistent style for

referring to men and women. Do

you use “s/he, his/hers, him/her,” or

simply “he, his, him”? Consider

using the simpler form of “he” and

indicate in the introduction to the

policy and procedure manual that

“he” applies to both he and she. 

■ Decide how to address singular

and plural. Some have used

“inmate(s),” but this can make for

awkward reading. 

■ Consider how you refer to those

being held, e.g., arrestees,

inmates, prisoners, and be

consistent throughout. 

■ Consider capitalizing position

titles, forms, and names of rooms

and areas to make them stand out

from the text.

Document all of the above decisions on

a central terminology list in both hardcopy and electronic formats. All writers and reviewers should have the list

and use it while writing and reviewing.

As new terminology develops, update
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–13

and redistribute the list; it will change

frequently during the process. This

approach involves considerable discipline, but will result in consistent documents that are easier to understand

and use. 

Suggestions About Format

Although each type of document will

have a format of its own, consider

these global suggestions about formats.

Formats for specific documents are discussed in more detail in the appropriate

portion of this chapter. 

Be Consistent

Standardize the format before you

begin writing and create a document

template (a model document that is

correctly formatted). Use the same format for each type of document. Be

aware of the need for consistency

among all writers. Because some documents are related, their formats should

be consistent to reduce the time needed

to reformat text. For example, the scenario format should be consistent with

the general format of policies and procedures. Use a style sheet to document

your format choices.

Organize the Format so Components

Can Be Identified Quickly

How this is done will vary from document to document. For scenarios, a

column format often works well,

although it does not allow for a significant amount of detail and will not lend

itself to a format closely related to the

final policy and procedure format. For

policies and procedures, headings and

subheadings with a change in font, i.e.,

bold and italics, and good titles make it

easy for staff to find what they are

looking for. 

Use an Attractive, Easy-To-Read

Format 

Make the document (typing and page

layout) attractive, with good spacing.

Make it easy to read by considering

font size and style. Maintain consistent

margins for each document and use

consistent headings, number formats,

and so forth. Avoid excessive use of

the outline format and its descending

subcategories within procedural steps.

If you use the outline method, maintain

good sentence structure and a logical

thought process.

Refer to Standards Consistently 

As writers develop documents, they

will need to refer to standards. How

much of each standard is included in

the document is a matter of preference

and potentially of technology. If you

don’t include the text of the standard,

make it easy for staff to look at the

standard itself. If your manual is automated, you may be able to include a

lookup feature for standards.

Suggestions About Style 

Clear and effective writing requires

clear and effective thinking. Following

the general suggestions about writing

style presented below will not only

give your writing more clarity, but also

help you organize how you look at the

tasks you are writing about before you

write. The key to writing procedures

that are easy to understand and to follow is to break each task down into its

component steps, identify who is

responsible for performing each step,

and present each step in order. 

Write Clearly and Concisely 

These suggestions will help you define

the writing style you need for your

documents:
5–14 Resource Manual for Transition to a New Jail

■ Use clear, brief statements. Avoid

long sentences and paragraphs,

which are likely to include multiple

tasks that require separate steps. Try

to limit each step to a single activity. Numbering each step will help

to separate each activity.

■ Avoid extra verbiage. Minimize

the use of phrases like “before

releasing inmate from unit . . . .” If

releasing the inmate occurs later,

list it as a separate step.

■ Use the active voice. This focuses

the reader first on the who or the

person, and then on the what or the

action. Writers often use the passive

voice, which describes what is happening, but not who is doing it.

Using the active voice ensures that

the person responsible will be identified. Examples:

Passive: “The Incident Report is

completed and forwarded to the

Shift Supervisor.”

Active: “The involved worker

writes an Incident Report and

hand-delivers it to the Shift

Supervisor no later than the end

of the shift.”

■ Use the present tense. This shortens sentences, is easier to read, and

makes steps clearer. Whatever tense

you use, be consistent in all documents.

■ Use correct and descriptive verbs.

Select your verbs carefully and

specifically, e.g., how do you

“check” a door? You need to “pull

on,” “push,” or “shake the handle

of” a door. Choose verbs that

describe what is really being done.

Specify the Sequence of Steps for

Each Task 

For scenarios and procedures, much of

the writing involves putting a series of

tasks in the correct order and specifying who performs these tasks. The following suggestions can help you

organize your writing:

■ Write the typical sequence first.

As you begin to write, approach the

typical sequence first—what usually

happens in most cases, i.e., lockdown, not refusal to lock down.

Continue this sequence from beginning to end. Then analyze the scenario for variances or problems in

the typical activity or service and, if

necessary, add relevant information

to explain the variance or, if there

are significant differences, consider

writing a second scenario.

■ Keep the steps in order. Keep

steps in the correct sequence for the

process being described. Avoid

steps like “The Control Room

Worker maintains the log of all

equipment issued, logging time out

and in . . . .” You generally do not

log things out and in at the same

time. When you issue an item, you

record that on the proper form.

Later in the process you log items

back in. Steps must always be

sequential.

■ Group related steps. After the first

draft, look at grouping related steps.

For instance, Inmate Mail could

evolve into procedures or scenarios

on Incoming Mail, Distributing

Mail, Collecting Mail, Outgoing

Mail, Legal Mail, and Packages.

For scenarios

and procedures, much

of the writing involves

putting a

series of

tasks in the

correct order

and specifying who performs these

tasks.
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–15

■ Identify who performs each step.

Indicate who is doing each task in

every step. Name positions as

specifically as possible. Then use

these titles consistently in each step

and from scenario to scenario.

Remember that telling someone to

do something requires a step for the

activity to be done and that separate

steps are usually required when

more than one staff member carries

out different functions related to the

same step.

■ Identify when tasks must be completed. Be specific. Does “. . . closing the same day” mean the end of

the shift, a 24-hour period, or a calendar day?

■ Specify the means of communication. When uncertain, leave a blank

in first drafts or indicate possible

options. “The worker notifies the

Shift Supervisor via ________ . . .”

or “The worker notifies the Shift

Supervisor via ?phone or intercom.”

■ Always complete a task. For

example, if you write procedures to

follow when allowing inmates to

leave the unit, you need to write the

steps needed to return the inmates

to the unit. Stating that inmates

return “in the reverse order” is not

sufficient and may be inaccurate. 

■ Write background or general

information last. Statements of fact

that do not reflect action go in the

background section, not in a scenario or procedure. Develop the

general information or background

after you’ve written steps or during

the process, but not before writing

action steps. This will help you

avoid including information in the

background section that should be

written as descriptive action steps.

Keep background information to the

absolute minimum.

■ Eliminate duplication. Eliminate

duplication between the background

and procedural steps.

Now that you’ve reviewed these general writing suggestions, it’s time to

explore the different types of documents in greater detail. 

Developing Individual

Documents

The remainder of this chapter discusses

the preparation of individual documents in greater detail. This discussion

proceeds from the higher level documents that are prepared first (the

mission statement and operating

philosophy) to scenarios (general

descriptions of day-to-day activities),

then to the policies and procedures

manual, and, finally, to the documents

that govern specific duties and responsibilities of staff and inmates (post

orders, inmate handbook, and master

schedule).

Mission Statement

Mission statements are often developed

at the beginning of a planning process

by individuals at the highest level of

the organization and jurisdiction. The

developers frequently include stakeholders from other agencies, county

government, and the community. As

a result, staff at lower levels of the

organization may not be familiar with

the new mission statement, its implications, and its inherent values.

When jurisdictions develop a new jail,

they often change their mission

because the project represents a shift in

correctional philosophy. Hopefully,

management personnel in your department will have helped to define that
5–16 Resource Manual for Transition to a New Jail

shift. The new mission statement sets

a new direction, which is then carried

out by policies and procedures that the

transition team is responsible for developing. The process of moving from the

mission statement to policies and procedures begins with understanding

what the mission statement should be

and how it relates to operational philosophy, and what both ideas imply for

the department’s preferences in carrying out the requirements of professional standards. 

What Are the Elements of a Mission

Statement? 

Transition team members need to begin

their work by locating and analyzing

the new mission statement. The mission statement should contain three key

ingredients: purpose, responsibilities,

and philosophical direction.

Purpose

The purpose of the jail should

include—

■ The legal mandate for its operation.

■ The role of the jail within the local

criminal justice system and, in a

general sense, the community. 

■ The types of inmates who will be

held. 

By asking the following questions, the

transition team may uncover transition

responsibilities:

■ Is the operation of the jail mandated

by state and/or local statutes?

■ Who is ultimately responsible for

the jail’s operation?

■ What law enforcement agencies and

courts are served by the jail, and

how does the jail help them fulfill

their responsibilities?

■ Whom will this jail hold and why?

Responsibilities

The mission statement must define the

jail’s primary responsibilities to its

clients/users and other major constituencies. In the broadest sense,

those responsibilities are—

■ Security. Making sure that those

individuals incarcerated remain so

until legally released.

■ Safety. Making sure the staff,

inmates, and visitors to the jail are

not subjected to physical, emotional, or psychological abuse or danger

while in the jail.

■ Service. Providing for the basic

human needs of the inmate population and offering program opportunities for those inmates who choose

to participate in them.

By asking itself the following questions, the transition team will begin to

identify the department’s operational

philosophy:

■ What makes a jail secure?

■ What makes a jail safe?

■ What are the responsibilities of the

jail to its constituencies, i.e., staff,

inmates, visitors, and the public?

Philosophical Direction 

Determining the philosophical direction of the new jail requires putting

aside current perceptions of the jail’s

mission, and trying to conceptualize

the mission 5, 10, or 20 years into the

future. There are many correctional

philosophies. Most jails operate with a

mixture of the following:

■ Punitive. The jail’s mission is to

punish inmates and to house them

to fulfill their “debt to society,” and

to deter them from future criminal

activity.

The mission

statement

should 

contain

three key

ingredients:

purpose,

responsibilities, and

philosophical

direction.
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–17

■ Reform. The jail’s mission is to

provide inmates with vocational and

educational skills, and instill in

them contemporary community

standards, to make them productive

members of society when they are

released.

■ Rehabilitation. The jail’s mission

is to treat the inmates’ social and

psychological problems and change

their attitudes so they can better

“cope” with society on release.

■ Reintegration. The jail’s mission is

to develop a cooperative relationship between the inmates and the

community in order to reduce the

stigma of criminality and enhance

the inmate’s ability to successfully

reenter the community on release.

■ Restraint. The jail’s mission is to

operate in a smooth and efficient

manner and to tightly control the

behavior of inmates through

rewards and punishments in order

to keep the environment of the jail

calm. 

By asking themselves some of the following questions, transition teams will

begin to identify the underlying correctional philosophy:

■ Does the facility provide for interaction with the community through

programs, such as work details? 

■ Does the mission statement suggest

anything about the role that inmate

programs play in jail operations?

■ Is there an emphasis on inmates’

responsibility to repay the community in some way for their offenses?

Getting Started

The tasks of the transition team will

vary based on whether or not a mission

statement has already been developed.

If a mission statement has been developed for the project, the transition team

must—

■ Locate it.

■ Determine the philosophy and values that are inherent in the mission

(this may require additional discussion with those who drafted the

mission statement).

■ Identify the implications of these

values for both the jail’s operational

philosophy and the transition team’s

specific tasks. 

If no mission statement was developed,

it is critical that the transition team

raise the issue with individuals who

participated in planning and designing

the facility and document their

assumptions about the jail’s mission in

a draft mission statement. Additional

information about developing a mission statement is available through

NIC’s Information Center. 

Operational Philosophy 

What Is an Operational Philosophy? 

Community expectations about what

the jail should and shouldn’t do vary

widely based on local and regional culture. The department also has clear

beliefs about how the jail should operate and what its responsibilities to its

various constituencies are. These have

been known to change with the chief

executive. Research and evaluation

about “best practices” also provide

strong direction about what works in

jails and what jails should be doing to

carry out their mission. The U.S.

Constitution, state constitutions, federal and state statutes, standards, and case

law also define what jails must do.

Sometimes these expectations conflict

with each other. Transition teams need

Research and

evaluation

about “best

practices”

also provide

strong direction about

what works

in jails and

what jails

should be

doing to

carry out

their

mission. 
5–18 Resource Manual for Transition to a New Jail

to sort through these expectations to

define the underlying principles that

will define their future operations. 

Getting Started

These suggestions can help the transition team put their operational philosophy into words:

■ Review and analyze the jail’s mission statement. Team members can

review the new jail’s mission statement and, as a group, identify the

responsibilities that it defines and

its underlying philosophical

approach. Ideally, this approach has

driven the design philosophy, so

thinking about what makes the new

building “different” from the old

may help with this process. Team

members also can talk with individuals in the department who helped

draft the new mission statement. 

■ Review and analyze the department’s mission statement. The

jail’s operating philosophy must be

consistent with the department’s

philosophy. Transition team members can review their department’s

mission statement—which may

include statements of values, vision,

and goals. They can then compare it

with the new jail’s mission statement and identify the implications

of the department’s mission statement for jail operations. 

■ Review standards. By now, team

members should have reviewed the

standards with which the facility

will comply. In addition to examining their state’s standards (if their

state has standards for jail operations), team members should review

professional standards, most likely

the appropriate set of ACA standards. If no standards have been

selected, team members should recommend a set of standards to jail

administrators and request confirmation of the standards to be used

for future operations. 

■ Consider best practices. The

degree to which team members are

familiar with best practices will also

shape their expectations for the new

jail. In the past 20 years, the corrections profession has developed a

significant body of information

about how to improve our business.

These changes, identified as best

practices, provide a vision of what

can be done in your jail. If team

members are not familiar with these

concepts, consider obtaining additional information from NIC’s

Information Center.

■ Draft a statement of operational

philosophy. Transition team members can begin to draft their operational philosophy by identifying the

operating principles that will guide

how they will do business. These

are brief statements that provide

direction. Like the mission statement, the operating philosophy

should be a clear statement that provides direction about both the intent

and the quality of future jail operations. Sample operating principles

might include the following:

– People in the facility are safe

from abuse.

– Communication between staff and

inmates demonstrates mutual

respect.

– Inmates are encouraged to change

the behavior that led to their

incarceration.

– Staff members treat inmates 

justly and fairly.
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–19

– The jail holds inmates accountable for their behavior both in the

facility and in the community.

■ Obtain approval. After team members have drafted their statement of

operating philosophy, the team

needs to confirm with both jail and

department administrations that

these will be the basic principles of

operations. 

In conjunction with the standards,

these operating principles will be the

foundation on which the new jail operations will be built. 

Scenarios for Jail Operations

The scenario development process is

the foundation for other transition

activities that follow; it is an essential

activity. Skills learned here will make

later transition tasks easier. Scenarios

outline the sequence of activities needed to perform a particular function or

service, i.e., meal service, visiting, or

lockdown. Establishing scenarios

allows transition team members to

determine jail operations before the

building is complete. Scenarios facilitate the development of policies and

procedures.

What Are Scenarios? 

A scenario is a written description of

how a specific function is to occur.

Scenarios are written when there is

substantial movement of people

(inmates, staff, other jail users),

information, and/or things (e.g., food,

laundry). Scenarios are used to—

■ Develop an overview of how the jail

will operate.

■ Assist the writers in learning the

jail’s physical and electronic layout,

including systems such as intercoms,

door controls, and closed-circuit

television.

■ Develop consistent terminology for

each space, group of spaces, and

system.

■ Identify staff posts and agreed-upon

post titles.

■ Establish a consistent writing style.

■ Make policy decisions that will

affect daily operations, e.g., which

inmates can move escorted or

unescorted in the jail.

■ Initiate daily activity schedules.

Each scenario should include the following components:

■ Name or title of the scenario.

■ Date of the current draft.

■ Background information that

explains elements of the scenario.

■ Each step or activity in the scenario

and the following associated

information:

– Who performs each step.

– What resources or equipment are

required for that step.

– What signage is required at that

step.

– What behaviors are desired or

anticipated at that step.

– What policy decisions are made

at that step.

– What case law and correctional

standards apply to that step.

Getting Started 

These guidelines provide direction

about how to begin developing

scenarios:
5–20 Resource Manual for Transition to a New Jail

■ Identify global scenarios. Global

scenarios describe activities that set

a pattern for other activities and

would commonly be referenced in

many other scenarios. They would

include scenarios such as Door

Controls, Inmate Movement,

Lockdown, Perimeter Security,

Programs (Centralized and Decentralized), and Reporting to Work.

Developing these first minimizes

duplication of effort and conflict

between scenarios. 

■ Determine scenarios to be written. Typically, about 25 to 50 major

topics require scenarios. These

include, but are not limited to, the

following:

– Booking. 

– Commissary. 

– Door Controls. 

– Housekeeping. 

– Housing Transfer. 

– Inmate Counts. 

– Inmate Dressout. 

– Inmate Release. 

– Inmate Showers. 

– Inmate Telephone Use.

– Laundry. 

– Library. 

– Mail. 

– Meal Delivery Service. 

– Medical Intake. 

– Medications. 

– Natural Disasters. 

– Perimeter Security. 

– Personal Property. 

– Personal Visits. 

– Pest Control. 

– Professional Visits. 

– Recreation. 

– Religious Programs. 

– Shift Briefings/Reporting to

Work. 

– Sick Call. 

– Special Visits. 

– Staff Meal Service. 

– Total Facility Evacuation. 

– Waste Disposal. 

Many of these can be broken down

into more specific scenarios, e.g.,

Booking a Cooperative Inmate and

Booking an Uncooperative Inmate.

Creating scenarios for each major topic

will likely lead to developing other

scenarios, frequently resulting in a total

of 100 to 150 or more.

Scenario Formats

Scenarios may be developed using

either a column (table) or a narrative

format. In the column format, the

largest column, “Activity,” is used to

record the sequential steps of the process; smaller columns may be used

for information such as Resources/

Equipment, Signage, and Notes. Other

areas to consider including in the column format may be Behaviors (of

People Involved) and Policy Decisions.

The narrative format presents the

same information in a list. Because a

list lends itself to more detail than a

column format, the narrative format

may take longer to develop. Sample

scenario formats are provided in

appendix 5–3.

Global

scenarios

describe

activities

that set a

pattern for

other activities and

would

commonly

be referenced in

many other

scenarios. 
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–21

Policies and Procedures 

The third type of document to be written is the most familiar: the policies

and procedures manual. Other documents that govern day-to-day operations flow from this, including the

forms/forms manual, post orders, and

inmate handbook. If time is very limited, you might start with writing policies and procedures. If this is the case,

it is still advisable to write scenarios

for the critical policies and procedures

first and then draft the policies and

procedures.

What Are Policies and Procedures?

A policy statement is often the first

element of a policy and procedure to

be written. It should be a concise statement that explains the organization’s

position on an operational issue. It

indicates what is to be done and why.

Some jurisdictions divide this into a

statement of policy (what) and a statement of purpose (why). In this manual,

policy refers to both. The policy statement should relate directly to the standard that it implements (the what) and

an operating principle (the rationale for

the policy or the why). Keeping the

policy statement simple and brief is a

challenge; it is tempting to try to fit all

the information into the statement

instead of keeping it more general. 

Procedures are detailed, step-by-step

descriptions of the sequence of activities needed to achieve the related policy. Procedures are the who, when, how,

and where statements. They tell people

what to do and are a primary training

tool.

Getting Started 

This section provides guidelines for

getting started on policy and procedure

development:

■ Develop a table of contents. To

begin, develop a table of contents

that references the policy and procedure subjects to the applicable

standards. Appendix 5–4 lists

potential topics for tables of contents and gives several examples of

formats for them, including multilevel numeric formats and an alphabetical labeling system. 

■ Finalize terminology. Finalize a

list of accepted terminology for

rooms, areas, doors, systems, and

titles and groupings of staff posts if

this was not done during scenario

development.

■ Establish a format. Establish a

consistent format for all policy and

procedure statements. Although

most departments have a current

policies and procedures manual,

during transition many agencies

change both the format of the

manual and the way in which it is

distributed. Word processing has

created a number of options for formatting headings and footers, integrating tables, generating tables of

contents and automatic numbering

systems, and otherwise enhancing

the general appearance and usefulness of these documents. During

transition, many departments elect

to automate their policies and procedures manual. Some even add a

search feature to make it easier to

use. The manual can be posted on a

department intranet or made available on CD–ROM.

■ Draft the policy statement first.

Remember, the policy statement

tells the what and why. It provides

the “big picture,” so write it first to

ensure that the writer is clear about

what is to be accomplished and why

it is to be done.

Policies are

the what

and why

statements;

procedures

are the who,

when, how,

and where

statements. 
5–22 Resource Manual for Transition to a New Jail

■ Stay focused. Don’t stray from the

policy subject when writing the procedure. If you find yourself needing

to explain more and more items,

consider adding another policy and

procedure. Add the new policy

statement to the list of documents

to be developed. At the same time,

be sure that all information presented in the policy statement is

implemented completely in the

procedures. 

Policy and Procedure Formats 

These are guidelines for policy and

procedure formats (see examples in

appendix 5–5):

■ Develop a numbering and labeling system. Number the pages of

each policy and procedure within

that statement. You may want to use

a numbering system that uses multiple digits to relate a single policy

statement to a chapter or section of

the manual (see Guideline, “Sample

Numbering System” and examples

in appendix 5–5). Each page should

have the number in a consistent

location. Using an outline format

within the procedure sections works

well. You may also want to list the

policy and procedure chapters

alphabetically by subject rather than

by the number of a large category

such as Administration (for example, look under “B” for a booking

policy and procedure).

■ Develop and use consistent headings. Write all policy and procedure

elements (headings) consistently. If

a policy and procedure element

does not contain text, enter the

word “None,” except for the

“Authorizing Signature” line.

Consider using the following policy

and procedure headings:

Subject. The subject is the title of

the policy and procedure. It states

the main topic that the policy and

procedure covers.

Number or chapter title. The number or chapter title relates one policy to others. The chapters in the

manual may be arranged in the

same chapter format as your state

standards, other professional standards you may follow, or alphabetically by subject. 

Effective date. The date that a policy becomes effective is specified

here. When developing drafts, show

the date and draft number, e.g.,

11/08/03 (Draft #1). Distribute policies on a set date approximately 4

days before they go into effect.

Version number. Each version typically is numbered in conjunction

with the date, e.g., 01.04.03 would

indicate that 01 is the version number, 04 is the month, and 03 is the

year.

Authorizing signature. Before a

policy goes into effect, it must be

approved and signed by the authorizing official. Decide who will sign

each statement, e.g., the jail administrator or another official. If the

manual is automated, a signature

may be necessary on the copy of

record, but not on the electronic

copy.

Distribution. The group of individuals and posts to which the document will be distributed.

Policy. A policy is a brief statement

that defines the organization’s position on an operational issue. Policy

development criteria—

Sample

Numbering

System

Numbering System

Example

1—Denotes the chapter

(Use of Force).

2—Indicates the section

of that chapter

(Restraints).

3—Indicates the subject

(Handcuffing).

Alpha Title

Numbering System

Administration—

Denotes the chapter.

Personnel

Management—Indicates

the section of that

chapter.

Off-Duty Employment—

Indicates the subject.

Page x is the page

number.

GUIDELINE
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–23

– Use complete sentences.

– Reflect action.

– Provide a rationale for why something is done.

– Are general but directive.

– Are concise (one or two

sentences).

– Are clear and unmistakable.

Source. The source identifies the

legal and professional basis for the

policy and procedure. (This section

may also be called References or

Resources.) Sources generally are

standards and statutes. 

Background or General

Information. This section contains

information that helps the reader

understand something, such as an

operating system or the location of

equipment. These items are statements of fact; each should be numbered. (This section may also be

called General Information.)

Definitions. Carefully define specific terms used in the policies and

procedures so that the terminology

is clear to the reader. A term not

used in the text of the policy and

procedure should not be defined in

this section; if it is worth defining,

figure out where it belongs in the

sequence of the procedures and add

the term there. List items alphabetically (and not numbered) and

underline and/or boldface them. 

Forms. List the forms used in each

policy and procedure.

Related Procedures. List any related policies and procedures.

Procedure letter, name, and steps.

Procedures are detailed, step-bystep descriptions of the sequence of

activities needed to achieve the

desired policy. Procedures should

be given a number or letter and

should have a subject heading, e.g.,

Procedure 1 or A: Preplanning the

Transport. Often, multiple procedures are needed to implement a

policy. Use the following criteria in

developing procedures:

– Each procedure requires a policy

statement (there is no procedure

without a policy).

– Steps are in sequence.

– Each procedure indicates responsible individuals/functional units.

– Each procedure indicates times

and locations to complete

activities.

– Each procedure identifies forms

by name and number.

– Each procedure specifies the

mode of communication.

– Each procedure identifies areas

where staff may use their discretion in carrying out the procedure.

■ Develop a consistent method of

referencing other policies and

procedures. When referencing

other policies and procedures, use a

consistent style to give the policy

and procedure number and the subject name. (See Guideline, “Sample

Reference Strategy,” for how to

cross-reference policies and procedures. See also the format examples

in appendix 5–5.) 

■ Check the reference. When referencing another policy and procedure, the writer needs to confirm

the accuracy of that reference, i.e.,

that the additional information

referred to in the other policy and

Sample

Reference

Strategy

To refer to another policy and procedure: 

(e.g., see 3.1.10 Inmate

Searches).

To refer specifically to

one procedure of

another policy and

procedure: 

(e.g., see Procedure B of

3.1.10 Inmate Searches).

To refer back to a procedure, or to steps of a

procedure, in the same

policy and procedure:

■ The worker searches

the inmate (according

to steps in) or (following) Procedure A of

this policy.

■ The worker escorts

the inmate according

to Procedure A, steps

3–9, of this policy.

If the manual is automated and the agency

has staff with computer

expertise, it may be possible to link references

so that when a reference is selected, it will

take the reader directly

to that reference in

another section of the

procedure or another

policy and procedure

chapter.

GUIDELINE
5–24 Resource Manual for Transition to a New Jail

procedure has actually been written

there. Read through the other policy

and procedure. If it hasn’t been

written yet, check the table of contents for suggested procedures to be

covered in that policy, talk with the

assigned writer, and/or establish a

“tickler file” for memos about such

references to unwritten policies and

procedures. Writers should then

routinely check through that file for

any memos regarding policies and

procedures they are writing.

Document Coordination/Management 

As you develop policies and procedures, you will need to create and

maintain several resource documents

for writers. These can actually be initiated during scenario development.

Although it takes time and discipline to

do these, in the long run, they will

make everyone’s job easier.

Table of Contents 

One of the first steps listed in this section was to develop an initial table of

contents. Throughout the documentation process the titles of policies and

procedures may change, the policies

and procedures themselves may

change, and some policies and procedures may be deleted or merged with

others. Maintain a central/master table

of contents in a location accessible to

all writers. Update the table of contents

either manually or on the computer as

policies and procedures are completed.

Simple database programs are very

useful for this function. Keep this document current so that all writers know

the current policy and procedure numbers, and titles. Doing this allows for

proper referencing of policies and procedures. It is also suggested that the

table of contents include the current

date and draft number of the policy

and procedure. This is an easy way to

know the status of the policies and procedures. This information should be

updated as each draft is completed.

Forms List

This document works well in a column

format. The first column lists alphabetically the forms that you identified

while writing policies and procedures.

The second column lists the policies

and procedures in which the form was

used. This will be a blank document

until the first policies and procedures

are written. Update the forms list either

manually or on the computer when the

first draft of a policy and procedure is

completed. Maintaining this list creates

a master list of all the forms that will

need to be developed.

The forms list also ensures consistency

among policies and procedures so that

a form that serves the same function is

not called different things in different

policies and procedures (see appendix

5–6 for a sample list of forms). If a

form title changes in the documentation process, the forms list provides an

easy way to see all of the policies and

procedures that reference the form so

that the title can be changed throughout all of the documentation. If the

forms list includes the policies and

procedures in which each form is used,

it will make it easier for the forms

developer to make sure what he or she

designs meets the documentation needs

of the policies and procedures. For

example, if the policy and procedure

says that the supervisor signs and dates

the incident report, then the incident

report form must have a place for the

supervisor to sign and date the form.
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–25

Definitions List 

This document lists alphabetically all

the definitions used in all the policies

and procedures and which policies and

procedures the definition was used in.

Update the definitions list either manually or in automated form as drafts of

policies and procedures are completed.

The definitions list promotes consistency throughout the writing process. The

same term should be defined the same

way in all policies and procedures.

Writers should consult the definitions

list to see if a definition they need has

already been developed. If a current

definition must be modified based on

new information, the previously written policies and procedures can easily

be updated.

If you are disciplined about updating

the definitions list throughout the

process, you will not need to create a

comprehensive definitions list when

the policies and procedures manual is

complete.

Form of the Manual

The policies and procedures manual

should be easy to update, particularly

while it is being developed and tested.

Put hard copies of the draft materials

in a three-ring binder and make them

available electronically to staff on an

internal management information system. Develop and implement a process

to document that staff have read and

understand the new policy and procedure statement and determine where

documentation of this step will be kept.

Develop a system so the document

coordinator is available to develop,

review, print, and issue statements after

the initial manuals are issued. Remember, the policies and procedures need

to be reviewed and updated constantly

as staff are trained and as the jail operates. As updates are made, the document coordinator needs to check for

consistency in format and content with

other documents. This individual is

responsible for overall quality control.

Forms/Forms Manual 

What Is a Forms Manual and Why Is

It Needed? 

Even if a jail has an exceptional strategy for documenting information,

during transition some changes in

documentation will need to occur. As a

result, the transition team is likely to

need to develop and revise either paper

or automated forms. In this sense, the

role of the transition team is similar to

that of the accreditation manager, who

ensures that the jail is not only in compliance with all standards, but also can

document that compliance. It may be

surprising that existing forms may

change during transition. Some forms

include information such as locations

and titles that will change in the new

institution. Even if the information on

existing forms doesn’t change, it may

be appropriate to put the forms in the

new format.

A forms manual is typically used to

organize and explain all the forms that

are developed during transition. It contains all the forms and reports needed

to implement the policies and procedures manual. In the forms manual,

forms may be organized by the chapters of the policies and procedures

manual or alphabetically by form titles.

The forms manual should explain the

purpose of each form and how it is to

be used. A one-page form could be put

in the forms manual as a left-hand

page so that users will see the form’s

description on the right. A form with
5–26 Resource Manual for Transition to a New Jail

several pages should be placed on a

right-hand page and followed by the

form description. The form description

includes a concise explanation of when

to use the form and what information

to enter in each blank.

The forms manual includes an alphabetical index. Along with the name of

the form, the index lists the names

and/or numbers of the policies and procedures that require using the form.

Theoretically, this list could be maintained as a database, allowing the list

to be sorted and printed by name in

alphabetical order or by chapter or policy and procedure number. 

Forms should be consistent with the

policy and procedure statements. Use

the same style (i.e., terminology, titles,

and verb tense) to make it easier to

relate the forms to the procedures.

Make the forms easy to use.

Getting Started 

The following guidelines will help you

create forms that are easy to use:

■ Give the form a brief, descriptive

title that clearly indicates its

purpose.

■ Use distinct, descriptive, and brief

subtitles when they add clarity.

■ Use wide enough margins on both

the left and right sides of forms of

several pages to allow for doublesided copying and to provide room

for punching holes for notebooks.

■ Include the date the form was

developed in the footer at the

bottom right (or left) corner.

■ Show the form’s assigned number

either under the title or in the footer

at the bottom left (or right) corner. 

■ Use an open, block-style text

arrangement by grouping related

information and leaving an adequate amount of white space to create an “open” image that separates

sections, or use a double line to

separate areas of the form.

■ Use checklists where appropriate

and where consistency of information is desired.

■ Number the items of information

requested, where appropriate.

■ Allow adequate space for the information requested, i.e., do not provide just one line to describe an

incident. The amount of space provided sets an expectation.

■ Request information in the same

basic order on all forms, from

specifics (names, dates, locations)

to check-off lists, to fill-in-theblanks sections, to narrative parts

(what happened, details).

■ Use boldface, underlining, or type

size to emphasize/bring out section

titles on the form. Avoid abbreviations and WORDS IN ALL CAPS,

which can be hard to read.

■ Determine which forms can be

computer generated, which must be

completed by hand, and which

should be printed on no-carbonrequired (NCR) paper (identify the

number of copies required). 

■ Consider the reproduction budget

and available equipment/expertise

when designing forms.

■ Develop a forms table of contents.

Post Orders 

What Are Post Orders? 

Post orders are a direct outgrowth of

policies and procedures and become a

major component of staff training. Post

Use checklists where

appropriate

and where

consistency

of information is

desired. 
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–27

orders differ from policies and procedures in that a post order informs a single employee of all the tasks for which

he or she is responsible while assigned

to a specific post.

Getting Started 

These guidelines can help you get

started in developing post orders. 

■ Organization of post orders. Post

orders should be assigned either a

number or an alphabetical name,

consistent with agreed-upon terminology and previously completed

staffing analyses. The post orders

should be organized in alphabetical

or numerical order in a post order

manual that has an index.

■ Relationship to policy and procedure development. Post order

development may begin when the

policy and procedure development

process is well underway, but post

orders cannot be finalized until after

the policies and procedures are

finalized. The date and draft number of the policy and procedure

used to develop the post order could

be added after the policy and procedure reference so you can track

which version of the policy and

procedure was used to develop the

post order. The dates and draft

numbers can be removed after the

post orders are finalized. When

policies and procedures are rewritten, the post orders should be

reviewed to determine if changes

are required.

Format 

The transition team needs to adopt a

standard format for post orders. This

format should include the following

items (see appendix 5–7 for a sample

post order):

■ Post. This is the name/title of the

post from the policy and procedure,

e.g., Booking Officer.

■ Hours of post. The shifts and times

that the post is staffed are listed

here.

■ Identifier. This is the number or

name assigned to the particular post

order.

■ Effective date. The date when a

post order becomes effective is

specified here. When developing

drafts, show the date and draft number (e.g., 11/08/02 Draft #1). Post

orders should be distributed on a set

date approximately 4 days before

they go into effect.

■ Version number. The version and

date of the draft of the post order. 

■ Authorizing signatures. Before it

goes into effect, each post order

may be signed by the authorizing

official to confirm its approval. The

authorizing official may be the jail

administrator or another appropriate

department official. Alternatively,

an authorizing signature may not be

necessary.

■ Post overview. The overview is a

brief description of the post outlining staff’s major responsibilities.

■ Chronological or scheduled

duties. This briefly describes tasks

that must be done on a regular

basis, which may be daily, weekly,

monthly, annually, or on another

designated schedule. The supporting policy and procedure numbers

and titles are referenced, and staff

refer to the policy and procedure

statements for how to undertake the

task. These tasks must occur at a

specific time during the shift,

potentially on a specific day of the

A post order

informs a

single

employee of

all the tasks

for which he

or she is

responsible

while

assigned to

a specific

post.
5–28 Resource Manual for Transition to a New Jail

week or at a designated frequency.

Indicate this time in the same style

used in the policy and procedure

statement, e.g., military time or

a.m./p.m. The post order task statement may be written in different

styles (see Guideline, “Sample Task

Statements”).

■ Random or non-time-specific

duties. Random tasks are those that

may occur at any time during the

shift. The word “random” appears

in the column where specific times

have been listed for other tasks or

the random tasks may be listed in a

different section of the post order.

■ General duties. These duties are

those performed by staff on an asneeded basis but governed by policies and procedures. They may

include duties such as disciplinary

action, emergency situations, housekeeping, and movement.

Inmate Handbook 

What Is the Role of the Inmate

Handbook in Transition?

Transition staff members may be so

focused on the tasks they need to

accomplish for staff that they lose sight

of the needs of another significant population—the inmates. The attention

paid to preparing the inmate population

for transition by providing appropriate

kinds and amounts of information and

by using this opportunity to establish

behavioral expectations can help make

occupancy a positive change. This

change begins with inmate orientation. 

The revised inmate handbook is the

primary vehicle for inmate orientation.

Inmate orientation represents a microcosm of the transition process; in a

number of ways, it is similar to the

orientation process for staff. Preparing

for the staff orientation includes developing written materials, which are

converted to various forms of training.

The same process applies for inmates,

although there may be less information

to convey.

An inmate handbook is written and

provided to inmates to inform them of

the rules and regulations, behavior

expectations, their rights and privileges, policies and procedures, services, and programs of the jail—in other

words, to assist them in learning what

they need to know about the operation

of the jail, what is expected of them,

and what they can expect from staff.

Inmates are held responsible for knowing and following the contents of the

inmate handbook. Sharing information

and requirements with inmates can

help to create an environment of

cooperation and respect. A copy of the

handbook may be given to each inmate

at orientation, or copies for inmates’

use can be maintained in each housing

unit. The inmate handbook should be

reviewed with inmates in detail during

their orientation.

Getting Started

The following guidelines should be

used when developing or modifying an

inmate handbook:

■ Identify information-sharing

methods. Consider how you will

provide information to inmates as

you begin this project. Will the

handbook be printed or videotaped

or audiotaped? Will it be presented

by staff? Or will it be presented by

some combination of these methods? The amount of information

and style of the handbook will be

influenced by its anticipated size

and form. Will it be in booklet form

Sample Task

Statements

Time-Specific Task

Statements

This style uses a title for

quick reference, and a

brief one- or twosentence summary/

explanation of the

duties.

0730 Shift Briefing

(1.3.18 Shift

Briefing). All housing

workers attend shift

briefings. 

The style below eliminates the title and uses

the brief summary:

0745 The housing

worker conducts a

shift count at the

beginning of the

shift (See 3.1.5

Inmate Counts). 

Random Task

Statement

Welfare Checks,

3.1.6 Welfare

Checks. All housing

workers conduct

and document

welfare checks on a

random hourly basis.

GUIDELINE
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–29

(81/2” x 51/2”) or on 81/2” x 11”

pages? A smaller document may be

difficult to read and much easier to

misplace. The amount of information included may also be influenced by whether your jail will use

videotapes or audiotapes along with

the handbook.

■ Make it easy to use and easy to

read. Include a simple table of contents and an index. The index

should include terms that inmates

would look for in addition to those

used by jail personnel. Consider the

reading level of most inmates and

provide strategies to deal with people who have learning disabilities.

You can use the grammar functions

of most word processing programs

to identify the reading level of what

you’ve developed. 

■ Set the right tone. The introduction can set the tone of the entire

document. One strategy is to begin

with the purpose of the handbook

and explain the inmate’s responsibility to know the information in

the handbook and to retain it.

Consider whether you will use a

matter-of-fact approach to sharing

information; a more personal, helpful approach; or an authoritative

tone. Generally set expectations by

stating what you want rather than

what you don’t want. The handbook

should support the principles and

dynamics of your operating

philosophy.

■ Provide the right level of information. Decide how much information

the inmates need on each topic. You

could provide lots of details in a

conversational style (which may

reduce inmates’ requests for clarification from staff, but may make the

manual appear too long to read). Or

you could present the information

in an outline or with numbered

steps of short sentences (which may

encourage inmates to read it, but

may require staff to answer many

questions). 

■ Decide how to deal with the

unknown. When you begin to write

the inmate handbook, some details

of the jail’s operation may not have

been decided, e.g., how often the

commissary will be available. You

may decide not to include details

about some complicated processes,

such as bonding out. In either case,

you may simply use the phrase,

“For more information, ask your

Unit Officer.” If you use this phrase

temporarily, until specific information is available, create a running

list of such questions with possible

answers for the Unit Officers. As

you finalize your operation, potentially after transition, revise the

inmate handbook to provide the

appropriate information. 

■ Consider translating the handbook. Determine if the handbook

also needs to be provided in languages other than English, and

develop a strategy to address this

need as the final draft of the handbook is completed.

■ Consider timing. The inmate handbook may be initiated when the policy and procedure process is well

underway but cannot be completed

until the policies and procedures are

finalized.

Sharing

information

and requirements with

inmates [via

an inmate

handbook]

can help to

create an

environment

of cooperation and

respect.
5–30 Resource Manual for Transition to a New Jail

Format 

Decide on a logical, easy-to-understand, and consistent way of organizing

all the information an inmate needs.

You can—

■ Alphabetize key topics.

■ Group information into sections of

related topics, such as the same

chapters used in the policies and

procedures manual.

■ Write these sections in a somewhat

sequential order, the same as the

inmate is likely to encounter them.

■ Write the sections in their order of

importance to the administration

(rules and regulations/behavior).

■ Write the sections in their order of

importance to inmates (what they

will want to know first, i.e., food,

safety, visiting).

Master Schedule 

Why Create a Master Schedule? 

All jail staff know how the current jail

operates, whether there is a master

schedule or not. Generally, jails have

schedules for program activities, such

as visiting, and for staff activities, such

as briefings and counts. But a comprehensive schedule for all jail programs

and services for staff, inmates, and

other jail users is rare. Typically, familiar routines change when the move to

the new jail occurs, and the new jail

often has more places in which activities can occur, so schedules may

change. Because operations in the new

jail have not begun, a daily schedule is

needed. 

It is best not to include times in the

policies and procedures because schedules are highly likely to change over

time. By making schedules separate

documents, it is easier to make

changes, keep the information current,

and post revised schedules in appropriate staff and inmate locations. 

The daily schedule lists all staff,

inmate, and other user activities; the

days and times the activities occur; and

where they occur, if applicable. The

daily schedule has a powerful impact

on staffing requirements. Think carefully about who will supervise the

activity you are scheduling and ensure

that you have adequate coverage on the

shift to allow the activity to happen

when all other activities for that time

period are considered. 

Getting Started

These guidelines can help you begin to

develop the master schedule:

■ Research other documents. The

master schedule is closely related to

other documents that are developed

during the facility construction and

transition process:

– Some pre-architectural programs

include information about scheduled activities.

– Scenarios may reference times

when some activities occur.

– Post orders indicate times when

activities occur at a specific post. 

■ Identify activities. Develop a list of

all of your current programs and

services regardless of how basic

The daily

schedule has

a powerful

impact on

staffing

requirements.
Resource Manual for Transition to a New Jail

CHAPTER FiVE

5–31

they may seem. Develop a master

list of activities from the previous

steps and from the other documents.

■ Plot typical day activities. Using a

white board, easel pad, Post-It

Notes, or other means, create a

daily schedule for a 24-hour period.

This can start at midnight or with

your first shift. Plot all of the services on a master schedule with input

from all divisions, i.e., security,

food, programs, and health, among

others. This will create the best

schedule in the quickest way and

will avoid later conflicts.

■ Refine the typical day. After creating a typical day, create a typical

weekday and weekend day. Then

create the daily schedules.

■ Update the schedule. Distribute

the draft daily schedule to all transition staff member. They should use

it as they develop their documents.

On a regular basis, the various sections of your organization should

come together to revise the schedule. Sample schedules are included

in appendix 5–8.

Final Thoughts 

Developing the documents takes much

of the time involved in transition. It is

also one of the most critical tasks

because the documents should be in

place before training begins. However,

if time is short, team members will need

to prioritize document development.

The team should focus on the critical

documents—typically a group of highpriority policies and procedures—and

complete these thoroughly and accurately before beginning training. 
Resource Manual for Transition to a New Jail

APPENDIX 5–1

5–33

Appendix 5–1.

DOCUMENT COORDINATOR POSITION DESCRIPTION

Document coordinator (DC): A staff person designated by the jail administrator or transition coordinator to coordinate the development of and revisions to policies and procedures (P&Ps), forms,

post orders, and the inmate handbook and the distribution of these documents.

Duties may include the following:

1. The DC maintains a filing system with hard copies of P&Ps in the file folders set up for each

P&P. The file should be chronological with the latest draft on top.

2. The DC maintains a computer filing system for the facility documents, particularly the P&Ps,

because there will be 200+ P&Ps.

3. The DC works with the human resource specialist and the training staff to see that they have

the latest P&Ps and to meet the training staff’s schedule.

4. The DC knows the basic organization of the P&P manual (i.e., chapter numbers and titles,

section numbers and titles).

5. The DC develops a standards compliance system.

6. The DC develops new P&Ps consistent with the established format and writing style.

7. The DC reviews new P&Ps for elements such as proper writing style, format, and terminology,

consistent with the P&P manual.

8. The DC reviews new P&Ps for consistency of content with other P&Ps and how the P&P may

affect other P&Ps and other documents. The DC updates the necessary documents.

9. The DC reviews updated P&Ps to determine if changes will affect document/activity lesson

plans and any tests required in training.

10. The DC notifies training staff of the changes needed to the lesson plan and test. 

11. The DC updates/revises current P&Ps.

12. The DC attends command staff meetings to monitor P&P changes and obtain direction.

13. The DC coordinates the printing and distribution of new and updated P&Ps.

14. The DC updates the P&P table of contents and definitions list as necessary.

15. The DC develops a system for ensuring that all staff receive the P&Ps and sign a statement 

acknowledging that they have read them.

16. The DC develops a system to keep track of all documentation/forms.

17. The DC develops and/or reviews forms for consistency with P&Ps.

18. The DC coordinates the inventorying, printing, and distribution of the forms.
5–34 Resource Manual for Transition to a New Jail APPENDIX 5–1

DOCUMENT COORDINATOR POSITION DESCRIPTION (continued)

19. The DC revises or updates the forms manual table of contents, definitions list, index, and 

forms storage list.

20. The DC coordinates the printing and distribution of post orders.

21. The DC provides a link to the policies and procedures manual or post order manual on any

networked computer.

22. Only the DC monitors the use of facility manuals, including removal from designated locations

and checkout of manuals to staff.

23. Each month, the DC reviews the manual to identify statements that require annual review 

(2 months in advance of the review date) and gives the list to the superintendent for review

and action.

24. The DC may become the standards accreditation manager.

25. The DC participates in the annual review of P&Ps.
Resource Manual for Transition to a New Jail

APPENDIX 5–2

5–35

Draft #1* Draft #2 Draft #3

Priority Writer Number Subject Out In Out In Out In Approved

1.1.2. Mission Statement and Goals

1.1.3. Adult and Youth Separation – – 10/1010/16 H† 11/7

1.1.4. Facility Reports

1.1.5. Facility Manuals – – 10/10 10/29 11/7

1.1.8. Organizational Structure‡ – – 10/1 10/13 H 10/27

1.1.10. Communication Channels§ – – 10/1 10/13 H 10/28 10/29

1.1.13. Legal Counsel

1.1.14. Internal Affairs

1.1.16. Facility Tours 10/1 10/13H 10/24 10/29 10/31

1.2.13. Receiving and 

Documenting Deliveries – – 11/5 11/24 12/3

1.3.4. Code of Ethics/Conduct – – 9/23H 9/24 9/26 10/3

1.3.19. Shift Briefings/Reporting 

to Work – – 10/8 10/16 H 10/31

1.3.27. Staff Breaks – – 10/2 10/13 H 10/28

1.5.1. Inmate Records

1.5.2. Information Release

2.3.1. Environmental Conditions – – 10/8 10/29 11/5 11/25

2.3.2. Tobacco-Free Workplace – – 10/7 10/10 10/29 10/31

2.4.2. Routine and Emergency 

Repairs – – 9/23H 9/23 H 10/2 10/13H

2.4.4. Housekeeping – – 10/30 11/24 12/1

2.5.1. Safety and Sanitation – – 11/5 11/24 12/3

Appendix 5–2.

SAMPLE TRACKING LOG

* Policies and procedures (P&Ps) that have dashes in the Draft #1 columns were provided earlier on disk. 

† All P&Ps sent via e-mail unless otherwise noted. F = fax. FE = Federal Express. H = hand delivered.

‡ Rows with lighter shading indicate P&Ps that are final pending decisions or feedback.

§ Rows with darker shading indicate final P&Ps.

Quality

Control
5–36 Resource Manual for Transition to a New Jail APPENDIX 5-2

Draft #1* Draft #2 Draft #3

Priority Writer Number Subject Out In Out In Out In Approved

2.5.2. Waste Disposal – – 10/10H 10/16H 10/23 10/29

3.1.1. Central Control

3.1.2. Inmate Control or Authority – – 9/23H 9/24 9/26

3.1.3. Housing Unit Supervision – – 10/30 11/24 12/2

3.1.4. Shift Reports – – 10/8 10/16H 10/28 10/29

3.1.6. Inmate Counts – – 12/10

3.1.7. Inmate Movement – – 11/10

3.1.8. Inmate Transports – – 11/14

3.1.10. Incident Report – – 9/23H 9/24 10/2 10/13 H

3.1.11. Inmate Searches – – 10/10 10/29 11/10

3.1.12. Control of Contraband – – 10/10 10/29 11/3

3.1.13. Key Control – – 11/7

3.1.15. Facility Radios – – 11/21

3.1.16. Door Controls

3.1.17. Lockdown/Unlock 10/8 10/16H 10/23 10/29 11/5

3.1.18. Perimeter Security 10/8 10/29 11/4

3.1.19. Crime Scene

3.1.20. Restraints 11/10

3.1.22. Firearms 10/2 10/15H 10/24

3.2.1. Fire Safety 

Officer/Inspections 11/4 11/24 12/2

3.2.2. Fire Emergency Plan 11/4 11/24 12/2

3.2.3. Total Facility Evacuation 11/4 11/24 12/3

3.2.11. Escapes 10/30 11/24 12/2

3.3.1. Inmate Handbook 10/2 10/13H 10/28

3.3.2. Inmate Rights 10/8 10/29 11/3

SAMPLE TRACKING LOG (continued)

Quality

Control
Resource Manual for Transition to a New Jail 5–37APPENDIX 5–2

Draft #1 Draft #2 Draft #3

Priority Writer Number Subject Out In Out In Out In Approved

3.3.3. Inmate Grievance 10/8 10/16H 10/27

3.3.4. Inmate Rules and Discipline 11/19

3.3.5. Minor Violations 11/19

3.3.6. Major Violations 

Disciplinary Hearing 11/19

3.5.1 Booking

3.5.2. Personal Property 11/12

3.5.3. Housing Transfer and 

Orientation 11/12

3.5.4. Inmate Release 12/4

4.1.8. Meal Delivery Service – – 9/23 H 9/24 10/2 10/13H

4.2.5. Medical Intake

4.2.7. Sick Call

4.2.13. Suicide Prevention/

Intervention

4.2.14. Serious and Infectious 

Diseases

4.2.19. Medications 11/11

4.3.2. Inmate Showers – – 9/23 H 9/23 H 9/26 10/3

4.3.4. Laundry – – 10/7 10/15H 10/24 10/29

5.6.1 Recreation 11/7

5.7.1. Mail – – 10/13 10/29 F 11/5

10/15H

5.7.2. Inmate Telephone Use – – 10/2 10/13H 10/29

5.7.3. Personal Visits – – 10/15 H 10/15H 10/30 11/24

5.7.4. Professional Visits – – 12/5

5.7.7 Staff/Inmate 

Communication – – 9/23 H 9/23 H 10/8 10/29

SAMPLE TRACKING LOG (continued)

Quality

Control
Resource Manual for Transition to a New Jail

APPENDIX 5–3

5–39

Appendix 5–3.

SAMPLE OPERATIONAL SCENARIOS

Sample Operational Scenario (Column Format)

Title:

Date:

Activity Resources/Equipment Signage Notes

1

2

3

4

5

6

7

8

9
5–40 Resource Manual for Transition to a New Jail APPENDIX 5–3

Sample Operational Scenario (Narrative Format)

FUNCTION/ACTIVITY

Inmate Counts—Housing Units

APPLICABLE POLICIES, STANDARDS, AND STATUTES

ACA: 4–ALDF–

NARRATIVE

1. At the designated time, the Unit Officer (UO) tells the inmates via the paging system that it is

count time.

2. All inmates go to their designated area, which is inside the cell at the cell door, or remain in

their program area, ceasing movement.

3. The UO uses the Housing Notebook and conducts a physical count of all the inmates in the

Housing Unit by looking at the inmate. He or she will compare each inmate to the booking

photo in the notebook. 

4. If an inmate’s appearance has changed so significantly that a new identification photo is 

needed, the UO will arrange for a new photo to be taken.

5. The UO compares his or her count to the Unit Roster and the Movement Log to account for all

inmates present in and outside of the Housing Unit.

6. If the Movement Log indicates the inmate is at a program, the UO goes to that area to make

the count or asks the Shift Supervisor to go to the area to conduct the count, taking the

Housing Notebook with him.

7. If an inmate cannot be accounted for and there is a discrepancy, the UO implements the Count

Discrepancy Procedure.

8. If no count discrepancy is discovered, the UO calls the count to the Control Officer.

9. The Control Officer compares the counts called in from the UOs to the Unit Roster count.

10. If the Control Officer determines that the numbers match, he or she clears the count by

announcing such over the paging system.

11. If the Control Officer determines that the numbers do not match, he or she announces a

recount and the UOs do so.

12. The UO records the count on the Post Log indicating the location of all inmates.

13. When the count is cleared by the Control Officer, the Shift Supervisor documents the count on

the Shift Report (see 3.1.4 Shift Reports).

ANTICIPATED BEHAVIORS/VARIATIONS

Count discrepancy.

Inmate shown out to program is in Housing Unit and vice versa.

Inmates refuse to go to designated count areas.

EQUIPMENT/SUPPLIES/FORMS

Housing Notebook (will have identification pictures of all inmates in unit).

Unit Roster (printed from computer system at the beginning of each shift).

Movement Log (need to develop form).

SAMPLE OPERATIONAL SCENARIOS (continued)
Resource Manual for Transition to a New Jail

APPENDIX 5–4

5–41

APPENDIX 5–4.

SAMPLE POLICY AND PROCEDURE TABLES OF CONTENTS

Table of Contents Topics 

Items in a table of contents may include, but are not limited to, the following topics:

Administration and Management

General Administration, which includes policies on Legal Authority, Mission Statement and

Goals, Adult and Juvenile Separation, Facility Reports, Facility Manuals, Criminal

Justice/Community Coordination, Jail Administrator, Organizational Structure, Contract

Agencies/Services, Communication Channels, Public Information, Staff Visitors, Legal Counsel,

Internal Affairs, Staff Mail, Facility Tours.

Fiscal Management, which includes policies on Budget, Petty Cash, Bonding—Staff, Fiscal

Audits/Accountability, Cash Management, Independent Audit, Inventory Control,

Procurement, Inmate Per Diem Rate, Payroll, Insurance Coverage, Inmate Account, Receiving

and Documenting Deliveries.

Personnel, which includes policies on Personnel Policy Manual, Staffing Plan, Drug-Free

Workplace, Code of Ethics, Equal Employment Opportunity, Staff Selection, Staff Assignments,

Part-Time Appointments, Staff Probationary Period, Staff Promotion, Staff Performance

Reviews, Reimbursements, Staff Discipline, Compensation and Benefits, Personnel Files,

Wellness Program, Employee Assistance Program, Staff Out-Processing, Shift

Briefings/Reporting to Work, Staff Accident and/or Injury, Staff Medical Conditions and

Medication Usage, Outside Employment, Staff Grievances, Posttrauma Assistance, Sexual

Harassment, Political Practices, Staff Breaks.

Training and Staff Development, which includes policies on Training Plan, Training Resources,

Orientation Training, First-Year Training, Inservice Training, Specialized Training,

Nondepartmental Training, On-the-Job Training, Physical Fitness Training, Reimbursement,

Evacuation Drills, Continuing Education.

Records/Information Management, which includes policies on Inmate Records, Information

Release, Daily Report, Information Management System, Research.

Citizen Involvement and Volunteers, which includes policies on Volunteers.

Physical Plant

Building and Safety Codes, which includes policies on Building, Fire Safety, and Life Safety

Codes.

Size, Organization, and Location, which includes policies on Facility Capacity, Living Area

Observation.
5–42 Resource Manual for Transition to a New Jail APPENDIX 5–4

SAMPLE POLICY AND PROCEDURE TABLES OF CONTENTS (continued)

Environmental Conditions, which includes policies on Environmental Conditions, Tobacco-Free

Workplace.

Maintenance/Janitorial, which includes policies on Preventive Maintenance, Routine and

Emergency Repairs, Emergency Equipment Testing, Housekeeping.

Safety and Sanitation, which includes policies on Safety and Sanitation; Waste Disposal;

Flammable, Toxic, and Caustic Materials; Noncombustible Receptacles; Water Supply; Pest

Control.

Institutional Operations

Security and Control, which includes policies on Central Control, Inmate Control or Authority,

Pod Area Supervision, Shift Reports, Security Inspections, Inmate Counts, Inmate Movement,

Inmate Transports, Facility Vehicle Use, Incident Report, Inmate Searches, Control of

Contraband, Key Control, Equipment Control, Facility Radios, Door Controls, Lockdown/

Unlock, Perimeter Security, Crime Scene, Restraints, Use of Force, Firearms, Duress Alarms.

Safety and Emergency Procedures, which includes policies on Fire Safety Officer/Inspections,

Automatic Fire Alarm and Sprinkler Detection System, Fire Emergency Plan, Total Facility

Evacuation, Emergency Power Generator, Bomb Threats, Natural Disasters, Work Stoppage,

Disturbances and Riots, Hostage Situations, Escapes, Hunger Strikes, Mass Arrests/Civil

Disturbances, Emergency Treatment of Injuries, Use of Chemical Agents.

Rules, Discipline, and Rights, which includes policies on Inmate Handbook, Inmate Rights,

Inmate Grievance, Inmate Rules and Discipline, Minor Violations, Major Violations Disciplinary

Hearing, Criminal Violations.

Special Management Inmates, which includes policies on Special Management (Cell)

Placement, Special Management Review, Special Management Observation.

Inmate Processing In/Out, which includes policies on Booking, Personal Property, Orientation,

Housing Transfer, Inmate Dress Out, Inmate Release.

Classification, which includes policies on Classification.

Inmate Services

Food Service, which includes policies on Food Purchase and Accounting, Meal Costs, Dietary

Allowance, Menu Planning, Special Diets, Food Storage, Meal Preparation, Meal Delivery

Service, Staff Meal Service, Food Service Staff, Sanitation and Cleanliness Inspections, Food

Utensil Control and Use, Food Poisoning.

Health Service, which includes policies on Health Service Management, Continuity of Care,

Health Service Staff, Administration of Treatment, Medical Intake, Emergency Medical

Treatment, Sick Call, Dental Screening and Evaluation, Mental Health Services, Mental Illness

and Retardation, Detoxification, Chemical Dependency Management, Suicide Prevention/

Intervention, Serious and Infectious Diseases, Urine Analysis, Prosthesis and Orthosis Services,

Pregnancy Management, Hospitalization, Medications, First Aid Kits, Health Record Files,

Designated Individual Notification, Health Education, Experimentation and Research.

Hygiene, which includes policies on Personal Hygiene Items, Inmate Showers, Hair Care

Services, Laundry.
Resource Manual for Transition to a New Jail 5–43APPENDIX 5–4

SAMPLE POLICY AND PROCEDURE TABLES OF CONTENTS (continued)

Inmate Programs

Program Scope, which includes policies on Inmate Programs, Individual Treatment Plans, 

Electronic Monitoring.

Commissary, which includes policies on the Commissary.

Social Services, which includes policies on Counseling Services.

Work Programs, which includes policies on Inmate Work Program, Inmate Worker Supervision,

Inmate Worker Compensation, Community Service, Industry, Work Release.

Education, which includes policies on the Education Program.

Recreation and Activities, which includes policies on Recreation.

Mail, Telephone, and Visiting, which includes policies on Mail, Inmate Telephone Use, Personal

Visits, Professional Visits, Special Visits, Notary Services, Staff Inmate Communication.

Library, which includes policies on the Library.

Religious Programs, which includes policies on Religious Programs. 
5–44 Resource Manual for Transition to a New Jail APPENDIX 5–4

SAMPLE POLICY AND PROCEDURE TABLES OF CONTENTS (continued)

Three-Level Numerical Table of Contents 

The three-level numbering system assigns the first number to the chapter, the second number to

the section, and the third number to the policy. Procedures are assigned a letter. A fourth number

can be used for the specific page number.

1.0. CHAPTER: Administration and Management

1.1. SECTION: General Administration

1.1.1. Legal Authority

1.1.2. Mission Statement and Goals

1.1.3. Adult and Juvenile Separation

1.1.4. Facility Reports

1.1.5. Facility Manuals

1.1.6. Criminal Justice/Community Coordination

1.1.7. Jail Administrator

1.1.8. Organizational Structure

1.1.9. Contract Agencies/Services

1.1.10. Communication Channels

1.1.11. Public Information

1.1.12. Staff Visitors

1.1.13. Legal Counsel

1.1.14. Internal Affairs

1.1.15. Staff Mail

1.1.16. Facility Tours

1.0. CHAPTER: Administration and Management

1.2. SECTION: Fiscal Management

1.2.1. Budget

1.2.2. Petty Cash

1.2.3. Bonding—Staff

1.2.4. Fiscal Audits/Accountability

1.2.5. Cash Management

1.2.6. Independent Audit

1.2.7. Inventory Control

1.2.8. Procurement

1.2.9. Inmate Per Diem Rate

1.2.10. Payroll

1.2.11. Insurance Coverage

1.2.12. Inmate Account

1.2.13. Receiving and Documenting Deliveries
Resource Manual for Transition to a New Jail 5–45APPENDIX 5–4

SAMPLE POLICY AND PROCEDURE TABLES OF CONTENTS (continued)

Two-Level Numbering System 

Chapters and policies are numbered sequentially. Procedures may be assigned a letter or a number,

i.e., 1.1.A or 1.1.1. A page number may be added.

1. Administration and Management

1.1 Policies and Procedures

1.2 Facility Administration

1.3 Goals and Purposes

1.4 Staff Communications

1.5 Public Information

1.6 Legal Assistance

1.7 Outside Resources

2. Fiscal Management

2.1 Budget

2.2 Accounting

2.3 Inmate Accounts

2.4 Storeroom

2.5 Insurance Coverage

Alphabetical Labeling System 

Access—Staff

Access Passes

Accident Reporting—On Duty Injuries

Accounting—Inmate Cash Handling

Activity Logging

Administrative Relationships

Affirmative Action

Association

Bail Bonds

Bilingual Premium Pay

Booking—Bail Bond Surrender

Booking—Book, Print, Release (BPR)

Booking—CDC/Warrant Self-Surrenders

Booking—Detainee

Booking—Dress In

Booking—Federal Charges

Booking—General Procedures

Booking—Hospitalized Arrestees
5–46 Resource Manual for Transition to a New Jail APPENDIX 5–4

SAMPLE POLICY AND PROCEDURE TABLES OF CONTENTS (continued)

Booking—Inmates From Mental Health Facilities

Booking—John Doe Identification

Booking—Mass Arrests

Booking—Mugs and Prints

Booking—Prebooking Medical/Mental Health Screening

Booking—Remands/Court Arrests

Booking—Return From Temporary Release

Booking—Supplemental Charges 
Resource Manual for Transition to a New Jail

APPENDIX 5–5

5–47

Appendix 5–5.

SAMPLE POLICY AND PROCEDURE FORMATS

Three-Level Numeric Format 

Chapter: 3 Institutional Operations 3.1.6

Section: 1 Security and Control Effective Date: 12/2/02

Subject: 6 INMATE COUNTS Revision Date: 

Superintendent Approval: Date:

Commissioner Approval: Date:

I. POLICY

Inmates are counted at designated intervals and on an irregular schedule.

II. PURPOSE

Inmates are counted to confirm their presence and well-being, to ensure the safety and security

of the Facility, and to maintain control of inmates during regular operations and emergency

situations.

III. STANDARDS

ACA Adult Local Detention Facilities, 4th Edition (4–ALDF)

2A–17 Inmate Counts: The Facility has a system for physically counting inmates. The system

includes strict accountability for inmates assigned to work and educational release, furloughs, and

other approved temporary absences.

IV. DEFINITIONS

Alpha Roster: The Alpha Roster is a computerized Excel form that alphabetically lists all of the

inmates in the Facility and their unit and cell/bed. This form may be used to check for available

beds in the Housing Units. The Alpha Roster is sorted to get the Unit Roster.

Emergency Count: A formal headcount conducted during situations including, but not limited to,

disturbances, escapes, escape attempts, hostage situations, extreme weather conditions, and discrepancy in count.

Formal Headcount: A documented inmate count conducted by calling an inmate’s name while making eye contact with the inmate, receiving a verbal response, and comparing the inmate to a copy

of the booking photo, unless the inmate is well known to the Detention Officer.
5–48 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

Informal Counts: Counts made while inmates are engaged in various activities during the duty

shift, conducted at specified intervals on an irregular schedule, and recorded on the Post Log.

Lockdown Status: Inmates are placed in a designated area to conduct an emergency count.

Standup Count: A formal headcount during which staff stand face to face with the inmate to

observe the inmate’s physical condition. 

Unit Roster: The Unit Roster is a computerized Excel form that shows all the inmates in the Facility

by Housing Unit. This form may be used to check for available beds and for counts. The Unit Roster

is created by sorting the Alpha Roster.

V. GENERAL INFORMATION

1. During shift changes, staff members lock down inmates if they are in the Housing Unit.

2. All movement stops during inmate counts.

3. Formal headcounts occur as shown on the daily schedule.

4. Detention Officers have 5 minutes to complete their formal headcounts and call them into the 

Shift Supervisor.

5. The booking photo referred to in this policy and procedure is a duplicate of the photo taken at

Booking.

6. The Housing Notebook contains copies of the booking photos to be used during formal headcounts.

VI. FORMS

The following forms are included within this policy and procedure:

Alpha Roster

Movement Log

Post Log

Shift Report

Unit Roster

VII. PROCEDURES

A. Formal Headcounts—Shift Change (Day and Evening Shifts)

Upon arriving at the assigned post, the Detention Officer coming on duty walks through the

Housing Unit before the off-going Detention Officer leaves the post.

1. The oncoming Detention Officer announces via the paging system “COUNT TIME,” and all

inmates stand at their cell door.

2. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate to the booking

photo, unless the inmate is well known to the Detention Officer.
Resource Manual for Transition to a New Jail 5–49APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

3. The oncoming Detention Officer compares his count to the Unit Roster and the Movement Log

to account for all inmates present and out of the Housing Unit.

4. If the Movement Log indicates the inmate is in the Adult Detention Center, the oncoming

Detention Officer goes to that area to make the count or asks the Shift Supervisor to go there

to conduct the count.

5. If an inmate cannot be accounted for, the Detention Officer implements Procedure E.

6. If all inmates are accounted for, the Detention Officer coming on duty calls the count to the

Control Officer.

7. The Control Officer verifies the offsite count following Procedure H (Procedure H is not

included in the sample procedure).

8. The Control Officer compares the counts with the Unit Roster count.

9. If the Control Officer determines that the numbers match, he clears the count by announcing 

the match over the paging system.

10. If the Control Officer determines that the numbers do not match, he announces a recount and

the Detention Officers conduct it.

11. The Detention Officer coming on duty records the count on the Post Log indicating the

location of all inmates.

12. After the count is cleared by the Control Officer, the Shift Supervisor documents the count on

the Shift Report (see 3.1.4 Shift Reports).

B. Formal Headcounts—During Shift

1. The Detention Officer announces via the paging system “COUNT TIME,” and all inmates go to

their designated area, which is inside the cell at the cell door, or remain in their program area,

ceasing movement.

2. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate to the booking

photo, unless the inmate is well known to the Detention Officer. 

3. If the Detention Officer finds that the inmate’s appearance has changed so significantly that a

new identification photo is needed, he will arrange to have a new photo taken. 

4. The Detention Officer compares the count to the Unit Roster and the Movement Log to

account for all inmates present and out of the Housing Unit.

5. If the Movement Log indicates the inmate is in the Adult Detention Center, the Detention

Officer goes to that area to make the count or asks the Shift Supervisor to go there to conduct

the count, taking the Housing Notebook with him or her.

6. If inmates cannot be accounted for, the Detention Officer implements Procedure E.

7. If all inmates are accounted for, the Detention Officer calls the count to the Control Officer.

8. The Control Officer compares the counts with the Unit Roster count.

9. If the Control Officer determines that the numbers match, he clears the count by announcing

the match over the paging system.
5–50 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

10. If the Control Officer determines that the numbers do not match, he announces a recount and

the Detention Officers conduct it.

11. The Detention Officer records the count on the Post Log indicating the location of all inmates.

12. After the count is cleared by the Control Officer, the Shift Supervisor documents the count on

the Shift Report (see 3.1.4 Shift Reports).

C. Standup Counts

1. The Detention Officer announces via the paging system “STANDUP COUNT TIME,” and all

inmates go to their designated area, which is outside of their cell against the cell door for

general population inmates or at the cell door inside the cell for special management inmates.

2. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate with the booking photo, unless the inmate is well known to the Detention Officer.

3. If the Detention Officer finds that the inmate’s appearance has changed so significantly that a

new identification photo is needed, he will arrange to have a new photo taken. 

4. The Detention Officer observes each inmate for signs of injury, assault, unusual behavior, etc. 

5. The Detention Officer compares the count with the Unit Roster and the Movement Log to

account for all inmates present and out-count. If inmates cannot be accounted for, see

Procedure E.

6. If the Movement Log indicates the inmate is in the Adult Detention Center, the Detention

Officer goes to that area to make the count or asks the Shift Supervisor to go there to conduct

the count, taking the Housing Notebook with him or her.

7. If no count discrepancy is discovered, the Detention Officer calls the count to the Control

Officer.

8. The Control Officer compares the counts called in from the Detention Officers to the Unit

Roster count.

9. If the numbers match, the Control Officer clears the count by announcing the match over the 

paging system.

10. If the numbers do not match, the Control Officer announces a recount and the Detention

Officers conduct it.

11. The Detention Officer coming on duty records the count on the Post Log indicating the location of all inmates.

12. After the Control Officer clears the count, the Shift Supervisor documents the count on the

Shift Report (see 3.1.4 Shift Reports).

D. Informal Counts 

1. Detention Officers account for all inmates under their supervision at all times.

2. The Detention Officer conducts informal counts in the Housing Unit for each wellness check 

completed as follows:
Resource Manual for Transition to a New Jail 5–51APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

a. At least every hour on an irregular schedule for general population inmates whether in

their cells, in the Housing Unit, or in programs.

b. At least every 30 minutes on an irregular schedule for special management inmates.

c. At least every 15 minutes on an irregular schedule for inmates who are mentally disordered

or who demonstrate unusual or bizarre behavior.

d. Continuous observation of suicidal inmates (see 4.2.13 Suicide Prevention/Intervention).

3. The Detention Officer records the count in the Post Log.

E. Count Discrepancies

1. When a Detention Officer discovers a count discrepancy that cannot be rectified by either

recounting the inmates or by checking the Movement Log, he explains the situation to the

Shift Supervisor.

2. The Shift Supervisor proceeds to the Housing Unit.

3. The Detention Officer and the Shift Supervisor determine the name of the inmate not

accounted for.

4. The Shift Supervisor notifies the Control Officer of the situation and the Shift Supervisor

verifies if the inmate was released or is an out-count.

5. If the Shift Supervisor confirms that the inmate was released, the Shift Supervisor confirms with

the Releasing Officer that the inmate was released correctly and appropriately.

6. If the Releasing Officer confirms that the inmate was released and the numbers balance, the

Shift Supervisor reports that the count is cleared.

7. If the comparison shows that the inmate has not been released, the Shift Supervisor notifies

the Control Officer that the Facility is on “LOCKDOWN STATUS.” 

8. The Control Officer verbally notifies the Housing Units that the Facility is on “LOCKDOWN

STATUS” and orders a recount, and staff conduct it.

9. If the recount still indicates a discrepancy, the Shift Supervisor verbally orders all staff in the

Facility to inspect their immediate area for the inmate not accounted for by checking areas

within the Housing Unit, including showers, closets, under beds, and anyplace where the

inmate may hide.

10. The Shift Supervisor assigns a staff member to check all other areas of the Facility, e.g.,

classrooms, restrooms, Booking, Outdoor Recreation, Gym.

11. If the inmate is found, the staff contacts the Shift Supervisor via telephone or in person (not

via radio) with the inmate’s name.

12. The Shift Supervisor contacts the Control Officer via telephone with the inmate’s name.

13. The Control Officer balances the count with the new name.
5–52 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

14. The Control Officer notifies the Shift Supervisor that the count is clear. If the inmate is found in

an unauthorized area, the discovering staff prepares a Disciplinary Report (see 3.3.4 Inmate

Rules and Discipline).

15. The Shift Supervisor notifies the Housing Unit Detention Officer that the count is clear. 

16. If the count cannot be confirmed in this way, the Shift Supervisor determines whether or not

an escape has occurred (see 3.2.11 Escapes).

F. Emergency Counts

1. If an emergency occurs that requires that a count take place immediately, the Shift Supervisor

notifies all staff via radio to secure all inmates in the closest available area or contacts the

Control Officer to make the announcement via the paging system.

2. The Detention Officer directs all inmates to enter their cells and stand at the doors for an

emergency count.

3. The Shift Supervisor may order that the count take place as is or may have inmates moved back

to their Housing Units in controlled groups for count.

4. If any inmates are out of the Facility, the Shift Supervisor instructs the staff to immediately

return them to the Facility until the count is clear. 

5. When the Shift Supervisor determines that the emergency situation has passed and normal

operations may resume, he advises staff and the Control Officer. 

6. The Detention Officer has the inmates who were locked down taken off lockdown status.
Resource Manual for Transition to a New Jail 5–53APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

Two-Level Numbering System 

Chapter: 3. Institutional Operations No: 3.1.6

Subject: Inmate Counts Date: 12/2/03

Policy

Inmates are counted at designated intervals and on an irregular schedule to confirm their presence

and well-being, to ensure the safety and security of the Facility, and to maintain control of inmates

during regular operations and emergency situations.

Standards

ACA Adult Detention Facilities, 4th Edition (4–ALDF)

2A–17 Inmate Counts: The Facility has a system for physically counting inmates. The system includes

strict accountability for inmates assigned to work and educational release, furloughs, and other

approved temporary absences.

Definitions

Alpha Roster: The Alpha Roster is a computerized Excel form that alphabetically lists all of the

inmates in the Facility and their unit and cell/bed. This form may be used to check for available

beds in the Housing Units. The Alpha Roster is sorted to get the Unit Roster.

Emergency Count: A formal headcount conducted during situations including, but not limited to,

disturbances, escapes, escape attempts, hostage situations, extreme weather conditions, and

discrepancy in count.

Formal Headcount: A documented inmate count conducted by calling an inmate’s name while

making eye contact with the inmate, receiving a verbal response, and comparing the inmate to

a copy of the booking photo, unless the inmate is well known to the Detention Officer.

Informal Counts: Counts made while inmates are engaged in various activities during the duty

shift, conducted at specified intervals on an irregular schedule, and recorded on the Post Log.

Lockdown Status: Inmates are placed in a designated area to conduct an emergency count.

Standup Count: A formal headcount during which staff stand face to face with the inmate to

observe the inmate’s physical condition. 

Unit Roster: The Unit Roster is a computerized Excel form that shows all the inmates in the Facility

by Housing Unit. This form may be used to check for available beds in the Housing Units and is

used for counts. The Unit Roster is created by sorting the Alpha Roster.

Background

1. During shift changes, staff members lock down inmates if they are in the Housing Unit.

2. All movement stops during inmate counts.

3. Formal headcounts occur as shown on the daily schedule.

4. Detention Officers have 5 minutes to complete their formal headcounts and call them into the 

Shift Supervisor.
5–54 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

5. The booking photo referred to in this policy and procedure is a duplicate of the photo taken at

Booking.

6. The Housing Notebook contains copies of the booking photos to be used during the formal

headcounts.

Forms

Alpha Roster

Movement Log

Post Log

Shift Report

Unit Roster

Procedures

A. Formal Headcounts—Shift Change (Day and Evening Shifts)

1. Upon arriving at his assigned post, the Detention Officer coming on duty walks through the

Housing Unit prior to the off-going Detention Officer leaving the post.

2. The oncoming Detention Officer announces via the paging system “COUNT TIME,” and all

inmates stand at their cell door.

3. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate with the booking photo, unless the inmate is well known to the Detention Officer.

4. The oncoming Detention Officer compares his count to the Unit Roster and the Movement Log

to account for all inmates present and out of the Housing Unit.

5. If the Movement Log indicates the inmate is in the Adult Detention Center, the oncoming

Detention Officer goes to that area to make the count or asks the Shift Supervisor to go there

to conduct the count.

6. If an inmate cannot be accounted for the Detention Officer implements Procedure E.

7. If all inmates are accounted for, the Detention Officer coming on duty calls the count to the 

Control Officer.

8. The Control Officer verifies the offsite count following Procedure H (Procedure H is not

included in the sample procedure). 

9. The Control Officer compares the counts with the Unit Roster count.

10. If the Control Officer determines that the numbers match, he clears the count by announcing

the match over the paging system.

11. If the Control Officer determines that the numbers do not match, he announces a recount and

the Detention Officers conduct it.

12. The Detention Officer coming on duty records the count on the Post Log indicating the location of all inmates.
Resource Manual for Transition to a New Jail 5–55APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

13. After the Control Officer clears the count, the Shift Supervisor documents the count on the

Shift Report (see 3.1.4 Shift Reports).

B. Formal Headcounts—During Shift

1. The Detention Officer announces via the paging system “COUNT TIME” and all inmates go to

their designated area, which is inside the cell at the cell door, or remain in their program area,

ceasing movement.

2. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate with the booking photo, unless the inmate is well known to the Detention Officer. 

3. The Detention Officer compares his count to the Unit Roster and the Movement Log to account

for all inmates present and out of the Housing Unit.

4. If the Movement Log indicates the inmate is in the Adult Detention Center, the Detention

Officer goes to that area to make the count or asks the Shift Supervisor to go there to conduct

the count, taking the Housing Notebook with him or her.

5. If an inmate cannot be accounted for, the Detention Officer implements Procedure E.

6. If all inmates are accounted for, the Detention Officer calls the count to the Control Officer.

7. The Control Officer compares the Detention Officers’ counts with the Unit Roster count.

8. If the numbers match, the Control Officer clears the count by announcing the match over the 

paging system.

9. If the numbers do not match, the Control Officer announces a recount and the Detention

Officers conduct it.

10. The Detention Officer records the count on the Post Log indicating the location of all inmates.

11. After the Control Officer clears the count, the Shift Supervisor documents the count on the

Shift Report (see 3.1.4 Shift Reports).

C. Standup Counts

1. The Detention Officer announces via the paging system “STANDUP COUNT TIME,” and all

inmates go to their designated area, which is outside of their cell against the cell door for general population inmates or at the cell door inside the cell for special management inmates.

2. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by looking at the inmate and comparing

the inmate to the booking photo, unless the inmate is well known to the Detention Officer.

3. If the Detention Officer finds that the inmate’s appearance has changed so significantly that a

new identification photo is needed, he will arrange to have a new photo taken.

4. The Detention Officer observes each inmate for signs of injury, assault, unusual behavior, etc. 

5. The Detention Officer compares his count with the Unit Roster and the Movement Log to

account for all inmates present and the out-count. If inmates cannot be accounted for and

there is a discrepancy, see Procedure E.
5–56 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

6. If the Movement Log indicates the inmate is in the Adult Detention Center, the Detention

Officer goes to that area to make the count or asks the Shift Supervisor to go there to conduct

the count, taking the Housing Notebook with him or her.

7. If no count discrepancy is discovered, the Detention Officer calls the count to the Control

Officer.

8. The Control Officer compares the counts called in from the Detention Officers with the Unit

Roster count.

9. If the numbers match, the Control Officer clears the count by announcing the match over the

paging system.

10. If the numbers do not match, the Control Officer announces a recount and the Detention

Officers conduct it.

11. The Detention Officer coming on duty records the count on the Post Log indicating the

location of all inmates.

12. After the Control Officer clears the count, the Shift Supervisor documents the count on the

Shift Report (see 3.1.4 Shift Reports).

D. Informal Counts 

1. Detention Officers account for all inmates under their supervision at all times.

2. The Detention Officer conducts informal counts in the Housing Unit for each wellness check

completed as follows:

a. At least every hour on an irregular schedule for general population inmates whether in

their cells, in the housing unit, or in programs.

b. At least every 30 minutes on an irregular schedule for special management inmates.

c. At least every 15 minutes on an irregular schedule for inmates who are mentally disordered

or who demonstrate unusual or bizarre behavior.

d. Continuous observation of suicidal inmates (see 4.2.13 Suicide Prevention/Intervention).

3. The Detention Officer records the count in the Post Log.

E. Count Discrepancies

1. When a Detention Officer discovers a count discrepancy that cannot be rectified by either

recounting the inmates or by checking the Movement Log, he explains the situation to the

Shift Supervisor.

2. The Shift Supervisor proceeds to the Housing Unit.

3. The Detention Officer and the Shift Supervisor determine the name of the inmate not accounted for.

4. The Shift Supervisor notifies the Control Officer of the situation and the Shift Supervisor verifies if the inmate was released or is an out-count.
Resource Manual for Transition to a New Jail 5–57APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

5. If the Shift Supervisor confirms that the inmate was released, the Shift Supervisor confirms with

the Releasing Officer that the inmate was released correctly and appropriately.

6. If the Releasing Officer confirms that the inmate was released and the numbers balance, the

Shift Supervisor reports that the count is cleared.

7. If the comparison shows that the inmate has not been released, the Shift Supervisor notifies

the Control Officer that the Facility is on “LOCKDOWN STATUS.” 

8. The Control Officer verbally notifies the Housing Units that the Facility is on “LOCKDOWN

STATUS” and orders a recount, and staff conduct it.

9. If the recount still indicates a discrepancy, the Shift Supervisor verbally orders all staff in the

Facility to inspect their immediate area for the inmate not accounted for by checking areas

within the Housing Unit, including showers, closets, under beds, and anyplace where the

inmate may hide.

10. The Shift Supervisor assigns a staff member to check all other areas of the Facility, e.g., classrooms, restrooms, Booking, Outdoor Recreation, Gym.

11. If the inmate is found, the staff contacts the Shift Supervisor via telephone or in person (not via

radio) with the inmate’s name.

12. The Shift Supervisor contacts the Control Officer via telephone with the inmate’s name.

13. The Control Officer balances the count with the new names.

14. The Control Officer notifies the Shift Supervisor that the count is clear. If the inmate is found

in an unauthorized area, the discovering staff prepares a Disciplinary Report (see 3.3.4 Inmate

Rules and Discipline).

15. The Shift Supervisor notifies the Housing Unit Detention Officer that the count is clear. 

16. If the count cannot be confirmed in this way, the Shift Supervisor determines whether or not

an escape has occurred (see 3.2.11 Escapes).

F. Emergency Counts

1. If an emergency occurs that requires that a count take place immediately, the Shift Supervisor

notifies all staff via radio to secure all inmates in the closest available area or contacts the

Control Officer to make the announcement via the paging system.

2. The Detention Officer directs all inmates to enter their cell and stand at the door for an emergency count.

3. The Shift Supervisor may order that the count take place as is or may have inmates moved back

to their Housing Units in controlled groups for the count.

4. If any inmates are out of the Facility, the Shift Supervisor instructs the staff to immediately

return them to the Facility until the count is cleared. 

5. When the Shift Supervisor determines that the emergency situation has passed and normal

operations may resume, he advises staff and the Control Officer. 

6. The Detention Officer has the inmates who were locked down taken off lockdown status.
5–58 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

Alphabetical Labeling System (Automated—Underlined headings are hyperlinked and will take you

directly to the section selected)

Any County Detention Facility

Inmate Counts

1.0 POLICY

2.0 DEFINITIONS

3.0 STANDARDS

4.0 GENERAL INFORMATION

5.0 FORMS

6.0 PROCEDURES

6.1 FORMAL HEADCOUNTS—SHIFT CHANGE (DAY AND EVENING SHIFTS)

6.2 FORMAL HEADCOUNTS—DURING SHIFT

6.3 STANDUP COUNTS

6.4 INFORMAL COUNTS

6.5 COUNT DISCREPANCIES

6.6 EMERGENCY COUNTS

7.0 REVISION HISTORY

Title: Inmate Counts ACDF Version: 5.09.03

1.0 POLICY

Inmates are counted at designated intervals and on an irregular schedule to confirm their presence

and well-being, to ensure the safety and security of the Facility, and to maintain control of inmates

during regular operations and emergency situations.

2.0 DEFINITIONS

Alpha Roster: The Alpha Roster is a computerized Excel form that alphabetically lists all of the

inmates in the Facility and their unit and cell/bed. This form may be used to check for available

beds in the Housing Units. The Alpha Roster is sorted to get the Unit Roster.

Emergency Count: A formal headcount conducted during situations including, but not limited to,

disturbances, escapes, escape attempts, hostage situations, extreme weather conditions, and discrepancy in count.

Formal Headcount: A documented inmate count conducted by calling an inmate’s name while making eye contact with the inmate, receiving a verbal response, and comparing the inmate to a copy

of the booking photo, unless the inmate is well known to the Detention Officer.

Informal Counts: Counts made while inmates are engaged in various activities during the duty

shift, conducted at specified intervals on an irregular schedule, and recorded on the Post Log.

Lockdown Status: Inmates are placed in a designated area to conduct an emergency count.

Standup Count: A formal headcount during which staff stand face to face with the inmate to

observe the inmate’s physical condition. 
Resource Manual for Transition to a New Jail 5–59APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

Unit Roster: The Unit Roster is a computerized form that shows all the inmates in the Facility by

Housing Unit. This form may be used to check for available beds in the Housing Units and is used

for counts. The Unit Roster is created by sorting the Alpha Roster. 

3.0 STANDARDS

ACA Adult Local Detention Facilities, 4th Edition (4–ALDF)

2A–17 Inmate Counts: The Facility has a system for physically counting inmates. The system includes

strict accountability for inmates assigned to work and educational release, furloughs, and other

approved temporary absences.

4.0 GENERAL INFORMATION

A. During shift changes, staff members lock down inmates if they are in the Housing Unit.

B. All movement stops during inmate counts.

C. Formal headcounts occur as shown on the daily schedule.

D. Detention Officers have 5 minutes to complete their formal headcounts and call them into the

Shift Supervisor.

E. The booking photo referred to in this policy and procedure is a duplicate of the photo taken

at Booking.

F. The Housing Notebook contains copies of the booking photos to be used during the formal

headcounts.

5.0 FORMS

Alpha Roster

Movement Log

Post Log

Shift Report

Unit Roster

6.0 PROCEDURES

6.1 Formal Headcounts—Shift Change (Day and Evening Shifts)

A. Upon arriving at his assigned post, the Detention Officer coming on duty walks through the

Housing Unit prior to the off-going Detention Officer leaving the post.

B. The oncoming Detention Officer announces via the paging system “COUNT TIME,” and all

inmates stand at their cell door.

C. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate with the booking photo, unless the inmate is well known to the Detention Officer.

D. The oncoming Detention Officer compares the count to the Unit Roster and the Movement Log

to account for all inmates present and out of the Housing Unit.
5–60 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

E. If the Movement Log indicates the inmate is in the Adult Detention Center, the oncoming

Detention Officer goes to that area to make the count or asks the Shift Supervisor to go there

to conduct the count.

F. If an inmate cannot be accounted for, the Detention Officer implements Procedure 6.5.

G. If all inmates are accounted for, the Detention Officer coming on duty calls the count to the

Control Officer.

H. The Control Officer verifies the offsite count.

I. The Control Officer compares the counts with the Unit Roster count.

J. If the Control Officer determines that the numbers match, he clears the count by announcing

the match over the paging system.

K. If the Control Officer determines that the numbers do not match, he announces a recount and

the Detention Officers conduct it.

L. The Detention Officer coming on duty records the count on the Post Log indicating the

location of all inmates.

M. After the count is cleared by the Control Officer, the Shift Supervisor documents the count on

the Shift Report (see Shift Reports chapter).

6.2 Formal Headcounts—During Shift

A. The Detention Officer calls out “COUNT TIME” and all inmates go to their designated area,

which is inside the cell at the cell door, or remain in their program area, ceasing movement.

B. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate with the booking photo, unless the inmate is well known to the Detention Officer. 

C. The Detention Officer compares his count to the Unit Roster and the Movement Log to account

for all inmates present and out of the Housing Unit.

D. If the Movement Log indicates the inmate is in the Adult Detention Center, the Detention

Officer goes to that area to make the count or asks the Shift Supervisor to go there to conduct

the count, taking the Housing Notebook with him or her.

E. If an inmate cannot be accounted for, the Detention Officer implements Procedure 6.5.

F. If all inmates are accounted for, the Detention Officer calls the count to the Control Officer.

G. The Control Officer compares the counts with the Unit Roster count.

H. If the Control Officer determines that the numbers match, he clears the count by announcing

the match over the paging system.

I. If the Control Officer determines that the numbers do not match, he announces a recount and

the Detention Officers conduct it.

J. The Detention Officer records the count on the Post Log indicating the location of all inmates.

K. After the count is cleared by the Control Officer, the Shift Supervisor documents the count on

the Shift Report (see Shift Reports chapter).
Resource Manual for Transition to a New Jail 5–61APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

6.3. Standup Counts

A. The Detention Officer announces via the paging system “STANDUP COUNT TIME,” and all

inmates go to their designated area, which is outside of their cell against the cell door for general population inmates or at the cell door inside the cell for special management inmates.

B. The Detention Officer obtains the Housing Notebook with the booking photos and conducts a

physical count of all the inmates in the Housing Unit by comparing the inmate with the booking photo, unless the inmate is well known to the Detention Officer.

C. If the Detention Officer finds that the inmate’s appearance has changed so significantly that a

new identification photo is needed, he will arrange for a new photo to be taken.

D. The Detention Officer observes each inmate for signs of injury, assault, unusual behavior, etc. 

E. The Detention Officer compares his count with the Unit Roster and the Movement Log to

account for all inmates present and the out-count. If inmates cannot be accounted for, see

Procedure 6.5.

F. If the Movement Log indicates the inmate is in the Adult Detention Center, the Detention

Officer goes to that area to make the count or asks the Shift Supervisor to go there to conduct

the count, taking the Housing Notebook with him or her.

G. If all inmates are accounted for, the Detention Officer calls the count to the Control Officer.

H. The Control Officer compares the counts with the Unit Roster count.

I. If the Control Officer determines that the numbers match, he clears the count by announcing

the match over the paging system.

J. If the Control Officer determines that the numbers do not match, he announces a recount and

the Detention Officers conduct it.

K. The Detention Officer coming on duty records the count on the Post Log indicating the location of all inmates.

L. After the count is cleared by the Control Officer, the Shift Supervisor documents the count on

the Shift Report (see Shift Reports chapter).

6.4 Informal Counts 

A. Detention Officers account for all inmates under their supervision at all times.

B. The Detention Officer conducts informal counts in the Housing Unit for each wellness check 

completed as follows:

1. At least every hour on an irregular schedule for general population inmates whether in

their cells, in the housing unit, or in programs.

2. At least every 30 minutes on an irregular schedule for special management inmates.

3. At least every 15 minutes on an irregular schedule for inmates who are mentally disordered

or who demonstrate unusual or bizarre behavior.

4. Continuous observation of suicidal inmates (see Suicide Prevention/Intervention chapter)

C. The Detention Officer records the count in the Post Log.
5–62 Resource Manual for Transition to a New Jail APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

6.5 Count Discrepancies

A. When a Detention Officer discovers a count discrepancy that cannot be rectified by either

recounting the inmates or by checking the Movement Log, he explains the situation to the

Shift Supervisor. 

B. The Shift Supervisor proceeds to the Housing Unit.

C. The Detention Officer and the Shift Supervisor determine the name of the inmate not

accounted for.

D. The Shift Supervisor notifies the Control Officer of the situation and the Shift Supervisor

verifies if the inmate was released or is an out-count.

E. If the Shift Supervisor confirms that the inmate was released, the Shift Supervisor confirms with

the Releasing Officer that the inmate was released correctly and appropriately.

F. If the Releasing Officer confirms that the inmate was released and the numbers balance, the

Shift Supervisor reports that the count is cleared.

G. If the comparison shows that the inmate has not been released, the Shift Supervisor notifies

the Control Officer that the Facility is on “LOCKDOWN STATUS.” 

H. The Control Officer verbally notifies the Housing Units that the Facility is on “LOCKDOWN

STATUS” and orders a recount, and staff conduct it.

I. If the recount still indicates a discrepancy, the Shift Supervisor verbally orders all staff in the

Facility to inspect their immediate area for the inmate not accounted for by checking areas

within the Housing Unit, including showers, closets, under beds, and anyplace where the

inmate may hide.

J. The Shift Supervisor assigns a staff member to check all other areas of the Facility, e.g.,

classrooms, restrooms, Booking, Outdoor Recreation, Gym.

K. If the inmate is found, the staff contacts the Shift Supervisor via telephone or in person (not

via radio) with the inmate’s name.

L. The Shift Supervisor contacts the Control Officer via telephone with the inmate’s name.

M. The Control Officer balances the count with the new name.

N. The Control Officer notifies the Shift Supervisor that the count is clear. If the inmate is found

in an unauthorized area, the discovering staff prepares a Disciplinary Report (see Inmate Rules

and Discipline chapter).

O. The Shift Supervisor notifies the Housing Unit Detention Officer that the count is clear. 

P. If the count cannot be confirmed in this way, the Shift Supervisor determines whether or not

an escape has occurred (see Escapes chapter).
Resource Manual for Transition to a New Jail 5–63APPENDIX 5–5

SAMPLE POLICY AND PROCEDURE FORMATS (continued)

6.6 Emergency Counts

A. If an emergency occurs that requires that a count take place immediately, the Shift Supervisor

notifies all staff via radio to secure all inmates in the closest available area or contacts the

Control Officer to make the announcement via the paging system.

B. The Detention Officer directs all inmates to enter their cell and stand at the door for an emergency count.

C. The Shift Supervisor may order that the count take place as is or may have inmates moved back

to their Housing Units in controlled groups for the count.

D. If any inmates are out of the Facility, the Shift Supervisor instructs the staff to immediately

return them to the Facility until the count is cleared. 

E. When the Shift Supervisor determines that the emergency situation has passed and normal

operations may resume, he advises staff and the Control Officer. 

F. The Detention Officer has the inmates who were locked down taken off lockdown status.
Resource Manual for Transition to a New Jail

APPENDIX 7–1

5–65APPENDIX 5–6

Forms include, but are not limited to the

following: 

Title

Alpha Inmate Roster 

Application/Recruitment and Screening

Arrest Report

Booking

Booking Sheet

Cell Checkout Sheet

Classification Interview Form

Classification Interview Score Sheet

Code of Ethics Acknowledgment

Contraband Log

Criminal Complaint

Custody Request Form

Death of an Inmate

Disability Accommodation and Tracking

Disciplinary Disposition Log

Disciplinary Investigation

Discipline Committee Findings Report

Education Log

Employment Processing

Escape Checklist

Escape Report

Expense Voucher

First Aid Kit Log

Food Equipment Sheet

Grievance Form

Incident Report

Inmate Log

Inmate Request Form

Title

Inmate Worker Application

Inmate Worker Assignment

Inmate Worker Contract

Inspection—Common Area

Inspection—Housing

Interview Rating Form

Interview Rating Summary

Inventory Control Card

Key Log

Key Log—Permanently Assigned Keys

Library Log

Mail Log

Maintenance Order

Master Roster

Meal Order Sheet

Medication Log

Movement Log

Observation Log

Pat Search Consent Form

Policy and Procedure Acknowledgment

Post Log

Post Order Acknowledgment

Property Form

Receipt for/Release of Funds or Property

Receiving Report

Reclassification Decision

Reclassification Hearing

Reclassification Notice

Appendix 5–6.

SAMPLE LIST OF FORMS
5–66 Resource Manual for Transition to a New Jail APPENDIX 7–1 APPENDIX 5–6

Title

Recreation Log

Release of Information

Religious Services Log

Requisition Order Request

Restraint Inventory Form

Restraint Signout Form

Shakedown—Common Areas

Shakedown—Housing

Shift Report

Sick Call List

Special Diet Receipt

Special Diet Request

Title

Statement of Preference

Suicide Prevention Screening

Telephone Log

Tool and Equipment Checkout Form

Training Record

Unit Roster 

Visitor Log

Visitor Log—Professional

Visitor Pass

Volunteer Agreement

Volunteer Application Form

Waiver of Liability

SAMPLE LIST OF FORMS (continued)
Resource Manual for Transition to a New Jail

APPENDIX 7–1

5–67APPENDIX 5–7

Appendix 5–7.

SAMPLE POST ORDER FORMAT

Post Order: __________________________________ P.O. #: ______________________________________

Effective Date: _______________________________ Version #: ___________________________________

Authorization by: ____________________________

Hours of Duty: _______________________________ Days: _______________________________________

_________________________________ Shifts:_______________________________________

Post Overview/General Instructions: __________________________________________________________

____________________________________________________________________________________________

Scheduled Duties:

Grave Shift Day Shift Swing Shift Duties

Unscheduled Duties:

All Shifts

Grave Shift

Day Shift

Swing Shift
Resource Manual for Transition to a New Jail

APPENDIX 7–1

5–69APPENDIX 5–8

Appendix 5–8.

SAMPLE MASTER SCHEDULES

Activities include, but are not limited to, those listed in the sample schedules.

Narrative 

Sunday

4:30am Breakfast Meal Count

5:30am Shift Briefing at Roll Call

5:45am Shift Briefing at Post/Inmate Count

6:00am Unlock/Lights On/Razors and Clippers

6:30am Breakfast Delivery

7:00am Medication Rounds

7:30am Pod Cleaning

7:30am Replacement of Personal Hygiene Items

9:30am Lunch Meal Count

10:00am Returning Cleaning Supplies

11:30am Lunch

12:00pm Medication Rounds

2:30pm Shift Briefing at Roll Call

2:35pm Lockdown Announcement

2:45pm Shift Briefing at Post/Lockdown

3:00pm Inmate Count

3:15pm Unlock

3:30pm Dinner Meal Count

5:30pm Dinner

7:00pm Library Cart Delivered

8:30pm Shift Briefing at Roll Call

8:45pm Shift Briefing at Post

9:00pm Laundry Exchange

9:50pm Lockdown Announcement

10:00pm Lockdown/Inmate Count

10:30pm Lights Out/Library Cart Returned
5–70 Resource Manual for Transition to a New Jail APPENDIX 7–1 APPENDIX 5–8

SAMPLE MASTER SCHEDULES (continued)

Tabular 

In this format, as you check items, times when events are clustered are evident graphically. Look

for patterns and consider schedule adjustment to equalize demands on your staffing.

Daily Schedule 

Days Task Occurs

Time Activity S M T W Th F Sa

0530 Food Service Workers Wakeup

0600 Unlock/Standup Count

Food Service Workers to Kitchen—

after count clears

0600–0640 Showers/Housekeeping/Telephone

0630 Shift Briefing at Staff Training Room

0640 Lockdown

0645 Shift Briefing at Post

0700 Shift Change/Official Count

0715 Breakfast Delivery

0720 Unlock/Breakfast

0725 Medication Rounds

0745 Breakfast Completion/Cleanup

0745–0800 Housekeeping Inspection

0800–1130 Television/Telephone On 

(based on inspection)

0800–0900 Indoor Recreation

0800–0900 Programs

0800–1130 Professional Visitation 

0910–1010 Programs

0915–1015 Indoor Recreation

1015–1130 Indoor Recreation

1020–1120 Programs

1130 Lockdown/Official Count

1200 Lunch Delivery

1210 Unlock/Lunch

1215 Medication Rounds
Day Task Occurs

Time Activity S M T W Th F Sa

1235 Lunch Completion/Cleanup

1300–1440 Professional Visitation 

1300–1440 Television/Telephone On 

(based on inspection)

1300–1430 Programs

1300–1400 Indoor Recreation 

1300–1330 Visiting

1335–1405 Visiting

1410–1440 Visiting

1430 Shift Briefing at Staff Training Room

1445 Lockdown Complete

1445 Shift Briefing at Post

1500 Shift Change/Unlock/Standup Count

1500–1700 Television/Telephone On 

(based on inspection)

1505–1700 Professional Visits

1515–1615 Indoor Recreation

1715 Lockdown

1730 Dinner Delivery

1735 Unlock/Dinner

1745 Medication Rounds 

1800 Dinner Completion/Cleanup

1800–1900 Programs

1800–Lockdown Telephone/Television On 

(based on inspection)

1800–1900 Recreation 

1830–1900 Visiting

1910–2010 Programs

1915–2015 Recreation 

1915–1945 Visiting

2000 Special Management Lockdown 

Resource Manual for Transition to a New Jail 5–71APPENDIX 7–1 APPENDIX 5–8

SAMPLE MASTER SCHEDULES (continued)
5–72 Resource Manual for Transition to a New Jail APPENDIX 7–1

Day Task Occurs

Time Activity S M T W Th F Sa

2000–2030 Visiting

2015–2130 Recreation

2200 Official Count 

2230 Shift Briefing at Staff Training Room

2230 Inmate Worker Lockdown

2245 Shift Briefing at Post

2300 Shift Change/Official Count

APPENDIX 5–8

SAMPLE MASTER SCHEDULES (continued)
Training and

Orientation

CHAPTER SIX
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–3

Who Requires Training and Orientation? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–3

What Types of Training and Orientation Are Needed? . . . . . . . . . . . . . . . . . . . .6–5

What Resources Are Needed for Training and Orientation? . . . . . . . . . . . . . . .6–5

What Are the Training and Orientation Management Tasks? . . . . . . . . . . . . . . .6–6

What Are the Benefits of Involving Others in Training and Orientation? . . . . .6–6

How Should Training and Orientation Be Documented? . . . . . . . . . . . . . . . . . .6–6

Types of Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–7

Facility Orientation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–7

Document/Activity Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–7

Post Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–9

Simulation Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–10

Inmate Orientation and Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–11

Training Challenges . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–12

Appendix 6–1. Sample Lesson Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . .6–13
Resource Manual for Transition to a New Jail 6–3

Training and Orientation

CHAPTER SIX

Overview

Training is one of the major transition tasks. It is the essential activity that

translates all the policies and procedures, post orders, schedules, and numerous

other details into reality. It is also the most effective way for transition staff to

reduce anxiety about the change from the old facility to the new. The amount

and types of training that are needed vary from situation to situation. For

example, jails that are moving from intermittent surveillance to direct supervision will require specialized training in that area. In spite of their differences,

all transitions share some training constants. This section of the manual focuses on the types of training that will be associated with all transitions. Exhibit

6–1 is a flowchart that illustrates the major elements of training and orientation

as they relate to transition.

Who Requires Training and Orientation?

It is easy for transition staff to focus on training departmental staff—particularly

line correctional staff—because they are typically the largest group to be trained

and perhaps the most critical. However, everyone who works in the facility or

spends time there will require some training. Transition team members will

need to determine which groups of staff require which types of training.

Inmates, particularly those who will work in the facility, will also require some

specific types of training.

In new facilities, visiting procedures often change; both professional and family visitors will need some training in how visitation will work. Volunteers, particularly those who are in the facility on a regular basis, will require training

about new procedures and the areas of the facility they will use.

Criminal justice users, particularly law enforcement agencies, will require specialized training on booking procedures and other relevant topics. Officers

from first responder law enforcement agencies and fire and emergency medical

services personnel will need a more detailed orientation to the facility. Vendors

Action plans for

training and orientation may

include—

• Overall training.

• Staff training.

• Training equipment

and supplies.

• Training facilities and

space.

• Training sessions.

• Facility user

orientation.

ACTION

PLANS
Exhibit 6–1. Training and Orientation Flowchart

6–4 Resource Manual for Transition to a New Jail

Go to C

Develop Go to C

Inmate

Orientation

Develop

Facility User

Training

Move

Deliver

Facility User

Training

Revise

Documents

Revise

Documents

Revise

Documents

Conduct Basic

Program

A

= Task is part of another chapter, but is critical to completion of this flowchart.

START

Select

Training

Coordinator

Establish

Training

Committee

Collect All

Current

Curriculums

Review

Training

Standards

Review

Curriculums

Develop

Training

Overview

Identify/

Obtain

Resources

Select

Trainers

Develop/Deliver

Supervisory

Skills Training

Train

Trainers

Establish

Protocol for

Onsite Training

Develop/

Deliver Post

Training

Develop/Deliver

Simulation

Training

Develop/Deliver

Document

Activity Training

Revise

Documents

Hold Open

House

Hold

Sleepover

Hold

Dedication

Develop/Deliver Employee

Orientation

Training

B

A

B

Deliver

Inmate

Orientation

Start

Operation

Develop/Deliver Employee

Inservice 

Training

C END

Develop/

Deliver Dry

Run Training

B

Identify

Trainer

Skills

Develop

Training

Sequence

A
Resource Manual for Transition to a New Jail

CHAPTER SIX

6–5

who regularly deliver items or provide

other services will also require an orientation both to new procedures and to

the areas they will enter.

What Types of Training and

Orientation Are Needed? 

Training programs should include—

■ Training for trainers, if the department’s training strategy will include

people who have not been taught

training techniques.

■ Facility orientation for staff and

other users.

■ Document/activity training.

■ Post training.

■ Simulation and dry run training.

■ Inmate orientation and training.

Each of these training types will be

discussed in this chapter. Staff should

receive between 2 and 4 weeks of

training. 

What Resources Are Needed for

Training and Orientation?

Training resources come from a variety

of sources:

■ Transition documents. The documents created by the transition

team, particularly policies and procedures and post orders, form the

basis for much of the training that

will occur.

■ Space and equipment. The transition team will need to identify

places where training can occur and

where training equipment, including

computers and audiovisual technology, is available. In many cases,

space is available in the new facility. In any case, trainees will need

access to the facility during the

training.

■ Financial resources. The level of

training needed for transition typically requires more financial

resources than the department’s

budget can absorb. This is particularly true if equipment must be

purchased or if training results in

overtime for staff. The transition

team needs to identify the financial

resources they will need for training

early enough to get them into the

appropriate budget cycle.

■ Existing curriculums. For teaching

the basics of jail procedures, existing curriculums may be a resource,

particularly for new hires. Additional training resources may also be

available from the state and/or other

local jurisdictions.

■ Training for trainers. It is likely

that a number of people who will

have to train others will be unfamiliar with training techniques. A

training-for-trainers program for the

entire training team can enhance the

quality of training that they provide. 

The training coordinator is the key

individual in the training process. The

coordinator develops a training schedule, organizes each of the programs,

identifies needed space and equipment,

and maintains records for all training.

In developing the training schedule, the

coordinator needs to recognize that the

current jail must operate during transition. If overtime is necessary to

provide shift coverage, it must be requested in advance, typically as a part

of the normal budget process, which

may be a year or more before the time

when the dollars will be spent. If you

have missed a budget deadline, consider other options, including supplemental budget requests or potential use of

any available project dollars. The

[Training is]

the most

effective

way for

transition

staff to

reduce

anxiety

about the

change from

the old

facility to

the new.
6–6 Resource Manual for Transition to a New Jail

trainees for each class should be selected carefully, considering the mix of

seasoned and new staff and security

and program/support staff.

Training needs frequently exceed the

training resources of the transition

team. Team members should consider

using other training resources within

the department, including existing

trainers. Supervisors can often be particularly good in areas of training related to the posts they will supervise.

Vendors may also be a resource.

Specifications for equipment should

require some level of training with specific equipment. The transition staff

and/or other departmental trainers can

prepare the curriculums and lesson

plans, make training resources available, conduct some of the training

themselves, and support others in their

training responsibilities.

What Are the Training and

Orientation Management Tasks?

Training and orientation management

tasks include—

■ Selecting a training coordinator. 

■ Establishing a training committee.

■ Collecting and reviewing the current training curriculum. 

■ Developing an overall training

schedule long before training

begins. 

■ Identifying when documents need

to be available for training. 

What Are the Benefits of

Involving Others in Training and

Orientation? 

The delivery of training provides

another opportunity to transfer transition tasks from the transition team to

the operating staff. Because of multiple

training sessions and the many groups

to be trained, you are likely to need

more trainers than you have transition

team members. Training needs also

peak at the same time as other essential

transition activities:

■ Furniture, fixtures, equipment, and

supplies are being delivered and

installed.

■ The construction punchlist process

is underway.

■ Numerous requests for tours are

received.

■ The dedication needs to be planned 

and held. 

How Should Training and

Orientation Be Documented? 

The training coordinator must document all the training that has been conducted. Training documentation should

indicate more than just attendance; it

should describe how the staff did in the

training. The training staff, along with

the jail administration, should establish

competency levels for each training

program. Staff who do not meet those

competency levels will need to be

retrained. If retraining does not result

in the staff member achieving the identified competency level, the administration will need a policy on what further

action should be taken. 

Training documentation tasks

include—

■ Maintaining a class roster for each

class. 

■ Developing a training record for

each employee, if one is not already

available. Automating the recordkeeping will make the flow of

paperwork much easier. 

Training

needs

frequently

exceed the

training

resources of

the transition team.

Team members should

consider

using other

training

resources

within the

department,

including

existing

trainers.
Resource Manual for Transition to a New Jail

CHAPTER SIX

6–7

■ Ensuring that staff have attended

the appropriate training. 

■ Making provisions for makeup sessions for staff who miss training. 

■ Restricting optional leave during

training and initial occupancy 

(with the cooperation of jail 

administration).

Orientation documentation tasks

include—

■ Keeping a list of the groups who

have received orientation.

■ Ensuring that all who need orientation have received it before moving

into the new facility.

Types of Training 

Transition teams commonly offer five

types of training. Depending on the

specific circumstances, additional types

of training needed may include subjects such as training in direct supervision, interpersonal communication, or

training for trainers. This section provides information about the goals and

training process for—

■ Facility orientation—for both staff

and other users.

■ Document/activity training.

■ Post training.

■ Simulation training. 

■ Inmate orientation and training.

Facility Orientation 

Goals

Goals of the facility orientation may be

to—

■ Orient staff and other users to the

layout of the facility.

■ Inform staff and other users about

the processes used to move in and

out of different areas of the facility.

■ Educate staff and other users about

the new facility’s intended philosophy of operations.

Training Process

One of the basic types of training that

will be required is an orientation to the

building and its general systems, such

as intercoms and card access systems.

All staff working in the facility will

need an orientation on how the building is designed to operate. The jail

should also include other individuals

who use the facility in this training or

develop another orientation track for

those users. 

This training should teach people how

the building is organized and the location of and proper terminology for all

spaces; it may also include an indepth

tour of the facility. Training documents

should use room names consistently.

Trainers may test staff’s knowledge of

the new facility by requiring them to

fill in the correct room numbers and

names on a blank floor plan. Another

approach is to engage staff in a scavenger hunt, sending them to different

parts of the building to find particular

items.

Document/Activity Training 

Document/activity training should be

provided to all security and program

staff who work in the jail.

Goals

Goals of document/activity training

may be to—

■ Teach staff the importance and purpose of policies and procedures,

how to use them, and how they

relate to other documents.

■ Formalize facility terminology.
6–8 Resource Manual for Transition to a New Jail

■ Promote consistency between shifts,

between custody and noncustody

staff, and between administrative

and line staff.

■ Create “ownership” in the documents, operations, and facility.

■ Reduce the potential for litigation

through enhanced training and

documentation.

■ Increase staff competence.

■ Provide opportunities for greater

staff awareness, understanding, and

appreciation of the diverse roles

and levels of experience among

staff and the complexity of jail

operations.

■ Promote professionalism.

■ Enhance policies and procedures

by providing feedback.

■ Start the process of transfer of

authority from transition staff to

supervisors and line staff.

■ Become familiar with the facility

operations.

■ Strengthen staff training/

presentation skills.

Training Process 

Policies and procedures are the basis

for jail operational training. This training teaches all aspects of the operation

that relate to a specific function. Using

the policies and procedures drafted by

the team, lesson plans are developed. A

sample lesson plan is provided in

appendix 6–1. This training also serves

as another test for the policies and procedures. It is likely that the policies

and procedures will undergo another

revision/enhancement as a result of this

training. 

Supervisors can provide the majority

of the document/activity training. This

increases ownership of the policies and

procedures, ensures that supervisors

know the operation, and provides an

opportunity to enhance the new trainer’s training and public speaking skills. 

Document/activity training requires a

tremendous amount of resources, particularly printed materials. Every student should have access to a paper or

automated copy of the policies and

procedures manual. Automation can

make the manual available on a departmental intranet, workstations, and/or a

CD–ROM.

Because the policies and procedures

will likely be revised based on what

occurs during each training, the transition team needs to develop a process

for approving changes. During class,

someone needs to take notes, either

by writing them or typing them on a

computer. It is also helpful to have

someone who was involved with the

development of the policies and procedures attend each class to explain why

activities are completed a particular

way. This is especially important if the

new operation has significantly

changed from the current operation. It

is important for staff to know that they

need to make every effort to operate

the facility according to the policies

and procedures in place when the facility opens. However, the administration

also needs to commit to making appropriate revisions in a timely manner if

certain policies and procedures do not

work as intended, or if staff develop

suggestions for more efficient procedures. If significant changes have been

made, policies and procedures should

be updated before the next class—if

not sooner—and then redistributed.

The revised policies and procedures

also must be made available to
Resource Manual for Transition to a New Jail

CHAPTER SIX

6–9

previous and subsequent classes. If

there are multiple classes and/or staggered classes, it is important to make

sure the instructors and all classes have

the current policies and procedures.

Additionally, the document coordinator

will need to review lesson plans to

determine if they are affected by

changes to policies and procedures.

Someone will also need to track the

drafts of both policies and procedures

and lesson plans to ensure that only the

most current are used. Ideally, highspeed copiers with sorting capabilities

or a copy shop should be available during this training. Because the policies

and procedures from which the training

is being done will already have been

approved, the document coordinator

needs to know which changes he or she

can make on his or her own and which

will require reapproval prior to training. The reapproval process should

include a mechanism to ensure that the

final copies of all policies and procedures are signed and approved

appropriately.

Post Training 

Goals

Goals of post training may be to—

■ Ensure staff can carry out post

duties with confidence and as

described in the post order.

■ Make certain that staff understand

the relationship between post orders

and policies and procedures.

■ Improve and update post orders

with staff input.

■ Ensure staff know the names of all

spaces/rooms within the post area

and how to access them.

■ Provide opportunities for staff to

learn where all equipment related to

the post is located, how to operate

it, and how to turn off and reset all

systems.

■ Teach staff which keys operate

which locks in their area and how

each lock works.

■ Teach security staff how to function

independently at a minimum of two

posts.

■ Make sure that all items needed to

operate each post are identified and

obtained.

■ Provide opportunities for staff to

learn how their post relates to the

overall facility operation.

Training Process 

All staff who will work at a post need

training in how posts, such as master

control or housing, will operate in the

new facility. This training uses the post

orders as the principal training curriculum and focuses on all of the activities

that occur at a specific post. It includes

a number of hands-on activities using

equipment and systems at the post.

Ideally, supervisors will be the trainers

for this curriculum and will deliver it

in the areas they supervise. This training will provide another opportunity to

review specific policies, procedures,

and post orders and to check the facility and systems to see that they are

ready for occupancy. Items to be tested

and learned are listed in the training

goals. 

The department needs to determine the

number of posts on which an individual staff member should be trained.

This will depend on the number of

posts in the facility and the jail’s work

schedules. If staff rotate posts infrequently, e.g., every 6 months, then they

The department needs

to determine

the number

of posts on

which an

individual

staff member should

be trained.
6–10 Resource Manual for Transition to a New Jail

might receive an overview of each post

and more intense training on the post

they will be working initially.

Simulation Training 

Goals

Goals of simulation training may be

to—

■ Train staff to perform each major

operation.

■ Review and update policies and

procedures.

■ Use and revise forms and post

orders as necessary.

■ Identify and obtain keys, supplies,

and equipment.

■ Test the facility, operating systems,

and schedules (time allocations) for

accuracy and modify as needed.

■ Improve staff teamwork.

■ Enhance staff confidence.

■ Familiarize staff with normal facility operations, i.e., all doors locked

consistent with policies and

procedures.

Training Process

If document training on policies and

procedures focuses on functions, and

post training focuses on activities at

specific places, simulation training

links the two. Simulation training

entails walking through major activities, especially those that involve significant movement of staff, inmates, or

items. Simulate activities in groups of

related functions with staff available

for each of the roles involved in the

activity, e.g., housing officer, visitor,

and inmate. An evaluator should

observe/critique the simulation. The

simulation training needs to last long

enough—typically several shifts—to

accurately reflect what a period of

operations will be like. It also provides

an opportunity to test equipment and

systems. The sleepover, which is a

community relations event often held

as part of the opening of the new facility where local officials and community

members spend the night as “inmates”

(see chapter eight), may serve as a

simulation. 

Policies and procedures that might be

simulated together are—

■ Group 1—Shift Briefings/Reporting

to Work, Inmate Counts, and

Lockdown/Unlock.

■ Group 2—Housekeeping and Waste

Disposal.

■ Group 3—Personal and

Professional Visits.

■ Group 4—Meal Delivery Service

(multiple housing areas).

■ Group 5—Laundry (multiple

housing areas).

■ Group 6—Inmate Telephone Use

(multiple housing areas).

■ Group 7—Recreation and Showers.

■ Group 8—Inmate Searches.

■ Group 9—Emergency Procedures.

Use the post log to document the simulation. Simulation training should be

provided to all staff who are involved

in the activity being simulated.

Security staff should participate in all

simulations.

Dry run training is a dress rehearsal for

full operations, and might be a 24-hour

simulation of a typical day. This simulation should be made as close to the

real thing as possible, allowing staff to

handle multiple functions and to gain

practical experience before the jail

opens. The dry run may be done using

Dry run

training is a

dress

rehearsal for

full operations, and

might be a

24-hour simulation of a

typical day.
Resource Manual for Transition to a New Jail

CHAPTER SIX

6–11

a variety of individuals (staff, volunteers, and possibly college students) to

play the roles of various types of

inmates. Dry run training should

involve as many staff as possible to

make it as true to life as possible.

Ideally, in a dry run staff should not

have to refer frequently to policies and

procedures or post orders to carry out

their tasks. 

Inmate Orientation and Training 

Transition staff may be so focused on

the tasks they need to accomplish for

facility staff that they lose sight of the

needs of another significant population—inmates. The attention paid to

preparing the inmate population for

transition by providing appropriate

kinds and amounts of information and

by using this opportunity to establish

behavioral expectations can help make

occupancy a positive change.

This change begins with inmate orientation. Inmate orientation represents a

microcosm of the transition process; in

a number of ways, it is similar to the

orientation process for staff. The staff

orientation process includes developing

written materials that are then converted to various forms of training. The

same process applies for inmates,

although there may be less information

to convey.

During transition, staff of the existing

facility who are not involved in preparing for the move frequently have many

questions and concerns about the new

facility; the inmate rumor mill works

just as effectively as the staff’s. As a

result, it is essential to give inmates

information about the new facility that

they need to know, at an appropriate

time. This may create tension within

the transition team as team members

responsible for move logistics weigh

security considerations against the

need to provide accurate information.

General orientation strategies include

using both the new inmate handbook

and an orientation video. Staff can

present the information to inmates in

their housing units individually or in

groups, as appropriate, and respond to

questions about the new facility and

new procedures. Once inmates have

been moved to the new facility, they

will need some form of in-facility orientation. This is particularly true if

inmates will move unescorted in the

new facility and need to know how to

get to the appropriate location. 

Specific orientation needs fall into at

least two categories:

■ Inmate workers will need to know

the locations within the new facility

more thoroughly than other inmates

because they must report to work

and may be responsible for tasks in

various parts of the facility. The

current inmate worker population

may also be used during transition

as the time for occupancy approaches. Inmate workers may help place

furniture, stock supplies, and otherwise assist the transition team. 

■ Inmates and their families also need

orientation and basic information,

such as new addresses and telephone numbers in the new facility,

new visiting procedures and equipment, and changes to visiting hours. 

As the time to occupy the new facility

nears, the transition team needs to consider how to prepare the inmate population for all aspects of the new facility. There is strong evidence that people

respond behaviorally to the physical

environment. Part of the orientation
6–12 Resource Manual for Transition to a New Jail

should deal with specific elements of

the physical environment that will

affect inmates, such as new equipment

and ID cards. In addition, when the

move to a new facility involves philosophical shifts, such as changing from

a traditional linear facility with intermittent surveillance to a podular facility with direct supervision, transition

staff need to plan carefully how to

make the move an opportunity to reinforce the new philosophy.

Some inmates may find change more

difficult than others. Special needs

inmates may require a different type or

level of orientation. In addition, during

both transition and early occupancy, a

variety of special events may occur.

For example, inmates may need to

learn how they are expected to behave

during facility tours. If portions of the

facility are not operational, such as

food service, inmates must be told how

their basic needs will be met during the

transition period. Some facilities use

transition as an opportunity to make a

major operational change, such as from

a smoking to a nonsmoking policy. In

these situations, the transition team

needs to think through how to advise

inmates of this change and when,

where, and how to implement the

change.

Training Challenges 

Training tasks offer a number of critical challenges for the transition team.

Because new staff typically require the

most training and because their salaries

have an impact on the budget, the

desire to complete their training quickly and thoroughly at the time they are

hired conflicts with wanting to save

money by hiring them at the last possible moment. It is also challenging to

figure out how to provide meaningful

training to staff on two or three shifts

while continuing to operate the facility

and with minimal impact on the overtime budget. When potential construction delays and facility startup issues

are factored in, scheduling training can

be challenging. Yet, training is essential

to making staff comfortable with the

new facility and capable of making the

transition successful. 

It is also worth noting that some staff

in the existing facility may not adapt to

the new facility. This is more likely to

be true if major shifts will be made in

inmate supervision strategies. The

department management team will

need to determine how it will deal with

employees who cannot make the transition from the old to the new facility.

Some

inmates may

find change

more difficult than

others. 
Resource Manual for Transition to a New Jail

APPENDIX 6–1

6–13

Time Frame: Total: 0.5 hour

Suggested Schedule:

From: To: 

Target Population: Correctional officers

Number of Participants: Standard class size

Space Requirements: Access to a housing unit. Students practice a minimum of one 

count in a housing unit.

Performance Objectives:

At the end of this session, the students will be able to—

1. Identify the three reasons why inmates are counted at designated intervals.

2. Specify how the oncoming Housing Officer compares his count to account for all 

inmates present.

3. Identify whom the Housing Officer notifies when there is a count discrepancy that he 

or she cannot rectify by recounting the inmates or checking the Movement Log.

4. State where the Housing Officer directs all inmates to move for an emergency 

count.

5. Describe how the Control Officer verifies during offsite counts the number and 

identification of all inmates in the Escorting Officer’s custody.

Evaluation Procedures: All students will take a multiple-choice examination. 

The examination is scored; 80% is a passing score.

LESSON PLAN COVER SHEET

Course Title: Document/Activity Training Instructor(s):

Lesson Title: Inmate Counts (3.1.6) Prepared by:

Date:

Appendix 6–1.

SAMPLE LESSON PLAN
6–14 Resource Manual for Transition to a New Jail APPENDIX 6–1

Instructor Materials:

Inmate Counts Policy and Procedure

References:

Equipment and Supplies Needed:

______Easel pads and stands—how many _____

markers______ masking tape______ # colors______

______Chalkboard

______16mm projector—film length______minutes

______Slide projector—type: carousel______ tray______ sound-on-slide______

______Videotape player—type: 3/4” cassette______ Betamax______ VHS______

tape length______minutes

______Videotape recorder and camera

______Public address system

______Overhead projector

______Screen

______Other:

Participant Materials # Needed When Distributed Comments

Inmate Count Policy 1/student Day prior to class Students are 

and Procedure advised to review 

the policy and 

procedure prior 

to coming to class.

Methods and Techniques:

The module uses a combination of lecture, structured review and study time, and small 

group activity.

SAMPLE LESSON PLAN (continued)
Resource Manual for Transition to a New Jail 6–15

Trainer Note Presentation Guide

APPENDIX 7–1 APPENDIX 6–1

Trainer advises students that they Anticipatory Set: Accurate and timely counts are a

have 5 minutes to review the policy critical element of the facility security system.

and procedure before they will Although you may have counted inmates many times

simulate a count. in the old facility, counts in the new one may occur 

differently because of a variety of policy changes

and new technology. 

Trainer will determine which type Instructional Input—Structured Group Exercise:

of count will be done. Type of Students move into the Housing Unit. At the door, 

count should vary from class to each student draws a piece of paper from a container,

class. identifying his or her role in the group exercise. 

Trainer note: These roles will include Housing Unit

Officer, Central Control Officer, supervisor(s), and

inmates. 

Supervisor calls out the type of count and the 

simulation begins. 

Trainer note: You do not need to post someone in

Central Control for this training event although in a

full simulation, of which counts will be a part, staff

would operate control.

Trainer allows up to 5 minutes for the count. At 

the end of that time, the trainer calls the exercise.

Trainer assists in processing Trainer must observe the exercise completely

the exercise. and know how the procedure should occur. 

Trainer asks “supervisors” to critique the count,

identifying areas of compliance/noncompliance

with the new procedure. After the “supervisors”

offer their critique, the trainer opens the floor to

other participants.

Trainer asks students to Trainer posts information on an easel pad.

identify what was important 

to them about the count, 

identifying how it may differ 

from current procedures.

Trainer distributes examination. The trainer must provide the examination at some 

point before the end of the training period.

It may be desirable to combine this examination

with related exams, or time constraints may require

that it be given immediately.

SAMPLE LESSON PLAN (continued)
6–16 Resource Manual for Transition to a New Jail APPENDIX 6–1

EXAMINATION

Performance Objectives: Related Question:

1. Identify the three reasons inmates 1. Identify the three reasons inmates are 

are counted at designated intervals. counted at designated intervals.

Answer:

A. To confirm their presence and well-being.

B. To maintain the safety and security of 

the facility.

C. To maintain control of inmates during 

regular operations and emergency situations.

2. Specify how the oncoming Housing 2. True or False:

Officer compares his or her count to The oncoming Housing Officer compares

account for all inmates present and his or her count with the Unit Roster

out-count. and the Movement Log to account for all

inmates present and out-count.

Answer: True

3. Identify whom the Housing Officer 3. Identify whom the Housing Officer notifies

notifies when there is a count when there is a count discrepancy that he or 

discrepancy that he or she cannot she cannot rectify by recounting the inmates

rectify by recounting the inmates or checking the Movement Log.

or checking the Movement Log. A. Police

B. Corrections Director

C. On-Duty Supervisor

D. None of the above

Answer: C

4. State where the Housing Officer 4. State where the Housing Officer

directs all inmates to move for an directs all inmates to move for an

emergency count. emergency count.

A. To enter their cell and stand at the door 

or foot of their dorm bed.

B. To the north side of the Adult 

Detention Center.

C. To the closest restricted area.

D.To the Dayroom.

Answer: A

5. Describe, how the Control/Dispatch 5. True or False:

Officer verifies during offsite counts The Control/Dispatch Officer contacts the 

the number and identification Escorting Officer via radio/telephone to verify 

of all inmates in the Escorting Officer’s the number and identification of all inmates in 

custody. the Escorting Officer’s custody.

Answer: True

SAMPLE LESSON PLAN (continued)
Furniture,

Fixtures,

Equipment,

and Supplies

CHAPTER SEVEN
7–2

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–3

Who Is Responsible for Purchasing FF&E? . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–3

How Can This Task Be Organized? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–4

Defining FF&E Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–4

FF&E Selection Parameters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–5

FF&E Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–5

Supply Ordering . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–8

Bidding and Acquiring the Items . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–8

Bid Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–8

Direct Purchase of FF&E . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–8

Acquisition and Recommendation of FF&E . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–9

Receipt and Placement of FF&E . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–9

Final Thoughts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–9

Appendix 7–1. Sample List of FF&E . . . . . . . . . . . . . . . . . . . . . . . . . . . .7–11
Resource Manual for Transition to a New Jail 7–3

Overview 

People often assume that all of the items that are required in the new building

will be provided by the contractor. In reality, except in a few specialized circumstances in which the contractor has been asked to purchase furniture,

fixtures, and equipment (FF&E), the jurisdiction is responsible for acquiring

these items. The jurisdiction will always be responsible for acquiring supplies.

The goal of this phase is to identify, purchase, place, and inventory the FF&E

needed for new jail operations. For the purposes of this chapter, FF&E will

also include supplies.

Who Is Responsible for Purchasing FF&E? 

As with many tasks necessary to occupy the jail successfully, the responsibility

for purchasing FF&E may be spread among a number of individuals. Some

items, such as the brackets for dayroom television sets, may even be included

in the construction contract. Other items may be under a general open contract,

e.g., telephone services, copiers, and computers, while still others may be the

direct responsibility of the jail. Although this chapter uses the term “furniture,

fixtures, equipment, and supplies,” you should identify and use the terminology

familiar to your project, purchasing personnel, budgeting process, and

department.

Who within the jurisdiction actually acquires these items may also vary. In

some cases, the jurisdiction may have a purchasing department that manages

the process; in other cases, it may be done by the department or the transition

team. Regardless of who acquires the items, transition team members need to

be represented in the process and to be familiar with the jurisdiction’s procurement procedures. 

FURNITURE, FIXTURES, EQUIPMENT, AND SUPPLIES

CHAPTER SEVEN

Action plans for

the acquisition of

furniture, fixtures,

equipment, and

supplies may

include—

• Furniture and 

equipment. 

• Supplies.

• Telephones (inmate,

staff, public).

• Signage.

• Computers, information management

system, and software.

ACTION

PLANS
7–4 Resource Manual for Transition to a New Jail

How Can This Task Be

Organized? 

Exhibit 7–1 illustrates the major elements in the acquisition of FF&E as

they relate to transition.

This task occurs in several distinct

phases—one group of activities takes

place relatively early in transition and

a second considerably closer to occupancy. Early tasks include—

■ Developing a list of FF&E items.

■ Developing a list of supplies.

■ Establishing/checking/acquiring the

budget.

■ Researching and evaluating the

items.

Later tasks include—

■ Bidding or purchasing the items.

■ Receiving the items.

■ Storing the items, if the facility is

not ready and the contractor is not

responsible for this.

■ Placing or observing the placement

of items.

■ Inventorying the items.

These tasks may be spaced at different

times during the transition process,

based on the amount of lead time

required from the time that the items

are ordered until they are available. 

The transition team should designate

one team member as the FF&E coordinator. Like many transition tasks, this

may be a collateral duty, especially

because this work tends to occur in

phases.

At the outset, a representative of the

transition team should consult with the

architect and contractor to learn what

already has been done and what still

needs to be done. The FF&E coordinator will focus on ensuring that the

items to be purchased meet security

requirements. Before proceeding,

because they will not have had previous experience purchasing items, many

team members will need to familiarize

themselves with normal purchasing

procedures to ensure that they comply

with the legal requirements in their

area. Acquiring a number of new

products and purchasing additional

products currently being used may

overwhelm the capability of the department’s and jurisdiction’s purchasing

staff. The transition team should meet

with purchasing staff inside and outside the department early in the transition period to explain the project

scope, its impact on the purchasing

operation, what resources may be

needed, and how those resources will

be obtained. You might be fortunate

and learn that a number of items are on

existing government contracts and will

not need to be bid.

Defining FF&E Needs 

The FF&E coordinator should begin by

clarifying what items are the responsibility of the contractor; plans and specifications are the best sources for this

information. Next, review the prearchitectural program, the design minutes, and the equipment list sections of

the scenarios, policies, and procedures

to determine what other items are referenced. Finally, look at the plans,

make certain how each room will be

used, and consider what items will be

required for that function. 

This exercise should result in a list of

required FF&E organized by—

■ Building component, e.g., intake.
Resource Manual for Transition to a New Jail

CHAPTER SEVEN

7–5

■ Room name and number.

■ Item, including specialty items for

functions such as seating, meetings,

and special equipment, with a

description of the item, supplier/

vendor name(s), estimated cost,

and estimated delivery time.

Although this can be done in various

ways, a database application may be

the easiest because it allows a single

list to be grouped, sorted, and printed

in multiple ways.

A sample list of possible FF&E needs

is shown in appendix 7–1.

FF&E Selection Parameters 

Budget constraints should be reviewed

to establish a preliminary budget. You

will need to determine if the project

budget has allocated funds for FF&E

and what may already have been spent

out of that account. Next, determine

which products and finishes are preferred, such as brushed stainless versus

solid polymer tabletops. Even if the

item has been specified as part of the

construction contract, you may still

have some choices. For items you are

purchasing, consider your preferred

finishes, durability, and security issues.

Check catalog cut sheets, specifications, and vendor references, but also

consider your experience with existing

items. Next, find out about any issues

associated with production and delivery of the item within the time you

have available. Be sure to review fire

safety standards to ensure that the

item can be used in a correctional

environment.

Determine if any existing FF&E will

be used. Take an inventory of all existing items to ensure that they are serviceable and will fit—both literally and

figuratively—in the new facility. Make

recommendations for future use of all

items that will not remain in service.

Consider the amount of time between

your inventory date and the occupancy

date and determine whether the item

will still be in good condition at the

time it will be needed. As you review

FF&E, consider the dimensions of the

item you are acquiring. Will it fit

through the doorways into the room?

Is the size appropriate for the room?

If the item moves through the facility,

e.g., a service cart, will its dimensions

allow navigation through hallways,

doorways, and around corners? Finally,

consider if you had to replace the item,

would you be able to get it in and out

of the facility?

FF&E Plan 

After the budget, functional needs, and

available products have been assessed,

develop a descriptive list of all types of

FF&E from which choices can be

made. This list is the start of your

FF&E plan; when complete, the plan

will identify the FF&E required in

each room. For each item, use catalog

photos, written descriptions, and fabric

and finish examples to develop and

present your recommendations. Check

references of vendors specifically by

consulting other jails. Before finalizing

the plan, test your preferred items. You

might place the item in inmate areas in

the old jail to see how it works and if it

presents any safety or security issues.

Because others may write the specifications and/or bid the items, transition

team members need to provide clear

descriptions of the items they have

chosen. Finalize the catalog cuts and

develop the budget estimate. Once the

budget and the list of items are

approved, proceed. 

If you had to

replace the

item, would

you be able

to get it in

and out of

the facility?
7–6 Resource Manual for Transition to a New Jail

Exhibit 7–1. Furniture, Fixtures, Equipment, and Supplies Flowchart

Receive/

Place Items

Review

Program/

Design Notes

Review

Standards/

Codes

Develop

Room-byRoom Lists

= Task is part of another chapter, but is critical to completion of this flowchart.

START

Select

FF&E

Coordinator Develop

FF&E Descriptive

Choices/

Catalog Cuts

Determine

What Is on

Government

Contract

Identify

Government

Guidelines

Identify

Budget

Review

Plans and

Specifications

Develop Initial

Schedule by

Product

Develop

Master List

Receive

Bids

Advertise

Project/Bid

Period

Award

Purchase

Orders

Evaluate

Bids C

B

Monitor

Status
Resource Manual for Transition to a New Jail

CHAPTER SEVEN

7–7

Approve

Invoices for

Payment

Add to

Inventory

Test Samples

Conduct

Fire Code

Review

Evaluate

Market

OK?

Yes

No

Obtain

Samples

Check

References

Develop/

Approve

Catalog Cuts

Develop/

Approve Budget

Estimate

Revise

Master List

A Draft

Specifications

Determine

What Is on

Government

Contract

Determine

What Is To

Be Bid

Identify

Bidding

“Boilerplate”

Identify

Products

Finalize

Specifications

Place

Order

Develop

Bid

Package

B

C

Receive

Warranty

A

Issue

Payment

Start

Operation

Monitor

Warranty

Use Items END
7–8 Resource Manual for Transition to a New Jail

Develop a master schedule by product

to identify quantities needed and to

flag items that have long lead times.

Prioritize items by their importance

and when they are needed. You will

also need to ensure that there is a plan

to coordinate the placement of furniture with the locations of lights, power,

phones, and other utilities. 

Supply Ordering 

Supplies are items that do not go in the

department inventory, but are still necessary. The existing facility may have

many of these items, such as uniforms

and bedding for inmates, but not in the

quantity needed for the new facility. It

is also important to think about items

you don’t automatically purchase every

year, like vacuum cleaners and wastebaskets. These items might go into the

startup budget. Develop and price this

list of supplies. You will need to work

with jail and department administrations to ensure that these items are

approved and included in the appropriate operating budget. 

Bidding and Acquiring the

Items 

The acquisition process consists of

bidding, award recommendation, and

observation of the installation. The

process you will use to acquire the

FF&E items will vary based on the

legal requirements in your jurisdiction.

However, FF&E generally falls into

two types:

■ Items you can purchase outright.

■ Items you must bid. 

At least two things can determine this:

the price of the item and the availability of open contracts or purchase orders,

which may include lists of government

contracts maintained by other jurisdictions. If you are going to bid items as

part of the construction project, you

will need to ensure that they are in fact

included in the bid package. Check the

final plans and bidding specifications.

The plans will indicate the size and

placement of each item. Plans will also

include a condensed summary list of

items by number, along with a brief

description.

Bid Process

The bid package/specifications consist

of a bid form, instructions to bidders,

project work descriptions and responsibilities, and technical specifications for

each item. Be sure that the specifications include vendor requirements, such

as the following:

■ The vendor must place and unpack

the items.

■ The vendor must remove packaging

materials.

■ The vendor must install the items,

including a description of how the

item is to be installed and any code

requirements. 

■ Alternate delivery dates and/or

storage options if the facility is

delayed. 

The final bid documents will likely

have to be approved by the county or

agency purchasing officials. They will

prepare, publish, and advertise the bid

documents. During the bidding phase,

someone will need to be designated to

answer bidder questions. These may

result in addenda to bidding documents

that must be issued to bidders.

Direct Purchase of FF&E 

Review any existing government purchasing contracts to identify what can
Resource Manual for Transition to a New Jail

CHAPTER SEVEN

7–9

be purchased using these established

processes. Next, develop a list of all

items to be purchased using the existing contracts and, at the appropriate

time, place orders for these items.

Acquisition and Recommendation 

of FF&E 

Once the bids have been developed,

more transition tasks must be done.

Although others may manage the bid

process, the transition team should

have an opportunity to review and evaluate the bids and recommend contract

awards. The team must continue to

monitor product availability and delivery requirements. Finally, the transition

team will be responsible for observing

the installation process to ensure that

FF&E items, particularly those used in

secure areas of the facility, are installed

properly. 

Receipt and Placement of FF&E 

The transition team has a number of

responsibilities related to receipt and

placement of FF&E, including—

■ Delivery coordination. Coordinate

deliveries with the construction

schedule to ensure that no conflicts

occur.

■ Observation/inspection. Check

each item for defects in manufacturing and/or installation.

■ Compliance. Check each item to

ensure that it complies with the

purchase order or contract. 

■ Approval of invoices. This task

may be designated to transition

team members, depending on jurisdiction policy.

■ Placement of items. Ideally, vendors will place the items where they

are required, but lack of facility

availability/accessibility may make

this impossible. Staff may be

required to place items if vendors

cannot. It is important that the jail

be secure before items are placed

because your jurisdiction becomes

responsible for these items when

they are no longer in either the contractor’s or vendor’s control.

Security is particularly important

for valuable items such as televisions and computers.

■ Inventory. All new FF&E must be

added to the department’s inventory.

Be sure to determine how this

process is currently done. You may

be able to acquire computer software to assist with this; many jurisdictions use barcodes and barcode

readers to manage inventory.

■ Warranties. Make sure that you

have warranties on all equipment.

Determine the start and end dates of

all warranties. If you receive the

item some time before it is actually

installed, make certain that the warranty begins following installation.

Finally, ensure that you have a plan

for continuing service of the FF&E

item once the warranty expires. 

Final Thoughts 

The detail associated with FF&E tasks

is significant and highly technical. The

team member who is responsible for

them will acquire a great deal of

knowledge that will be useful in the

future. It is also worth noting that

acquiring FF&E presents a unique

opportunity to improve the department’s inventory process. FF&E tasks

also relate to a number of activities that

often occur after the formal move, as

described in chapter eight, Move

Logistics. 

Check each

item for

defects in

manufacturing and/or

installation.
Resource Manual for Transition to a New Jail

APPENDIX 7–1

7–11

Belly chains

Bibles

Blankets

Body fluid cleanup kits

Bookshelves—all offices

Bookshelves—program rooms

Breakroom chairs

Breakroom coffee maker

Breakroom microwave oven

Breakroom refrigerator/freezer

Breakroom tables

Breakroom TV/VCR/DVD (to watch training

tapes)

Brooms—kitchen style

Brooms—push style

Cell extraction shield

Chairs—dayroom

Cigarette receptacle—outside front door

Cigarette receptacle—outside visiting door

Cleaning buckets

Cleaning carts

Cleaning rags

Cleaning sponges

Clipboards

Clock—lobby

Clock—public side of visiting area

Clocks—visible to inmates

Closed circuit TV (CCTV)—all components if 

not included in contractor’s bid

CCTV—digital recording system

Computer printers

Computer terminals

Computers—paper

Copier

Copier supplies—toner, paper

CPR masks

Credenzas

Crutches

Desk chairs

Desk side chairs

Desks

Dustpans

File cabinets—all offices

Fingerprint equipment

Fire extinguisher cabinets

Fire extinguishers

First aid kits

Flagpole

Flags

Flashlights

Floor cleaning chemicals

Floor polisher

Appendix 7–1.

SAMPLE LIST OF FF&E 
7–12 Resource Manual for Transition to a New Jail APPENDIX 7–1

Floor wax

Forms—booking, medical, request, etc.

Games—recreation yard or gym

Games—table top

Garbage bags—various sizes

Garbage cans—all offices

Garbage cans—vehicle sallyport, kitchen, 

dayrooms, cells

Garbage dumpster or compactor

Garbage receptacles—outside front door and 

visitor door

GED materials

Gunlockers—vehicle sallyport, lobby

Hair clippers

Handcuffs—cuffs, cases, keys

Inmate envelopes

Inmate pencils

Inmate property bags

Inmate razors

Inmate shampoo

Inmate shoes

Inmate soap

Inmate socks

Inmate towels

Inmate t-shirts

Inmate underwear

Inmate uniforms

Inmate writing paper

Key control lockbox—in central control

Key rings

Key tags

Keys

Kitchen supplies—cutlery, serving pieces, pots, 

pans, etc.

Kitchen supplies—food trays for inmate meals,

cups, glasses, utensils

Kitchen supplies—hot food carts

Latex gloves

Laundry carts

Laundry soaps/bleach

Laundry tables

Law library—books, materials, computers

Law library—tables, chairs, shelves

Leg irons

Legal pads

Library books

Light bulbs

Mattress covers

Mattress storage shelves

Mattresses

Medical exam room furnishings

Medication cabinet

Medication distribution cart

Mop buckets/wringers

Mop handles

Mop heads

Mop hooks in janitor closets

Mug shot equipment

Paper shredder

Paper towel dispensers at sinks

Paper towels

Pillowcases

Pillows

Plastic storage tubs for under bunks

SAMPLE LIST OF FF&E (continued)
Resource Manual for Transition to a New Jail 7–13APPENDIX 7–1

Playing cards

Records storage boxes

Restraint chair

Sanitary hygiene supplies

Sheets

Shelving—archived records storage, janitor 

closets, supply storage

Shower mats

Shower sandals

Signs—inside and outside

Soap dispensers

Spray bottles

Storage cabinets

Telephones—inmates

Telephones—staff

Television wall brackets

Televisions

Three-ring binders for policies and procedures

Toilet bowl brushes

Toilet bowl cleaner

Toilet paper

Toothbrushes

Toothpaste

Uniforms—staff and inmates

Vacuum cleaner bags

Vacuum cleaners

Wheelchairs

Window cleaner

Sample List of FF&E (continued)
Move

Logistics

CHAPTER EIGHT
8–2

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–3

Pre-Move Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–3

Equipment and System Shakedowns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–4

Public Events . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–4

Searches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–6

Service Startup . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–6

Notifications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–7

The Move . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–7

Moving Staff . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–7

Moving Inmates . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–8

Post-Move Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–9

What Will Happen to the Old Facility? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–9

Post-Move Transition Tasks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–10

Closing the Transition Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–10

Post-Occupancy Evaluation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–11

And Everything Else . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8–12

Appendix 8–1. Sample Inmate Move Plan . . . . . . . . . . . . . . . . . . . . . .8–13

Appendix 8–2. Sample Inmate Move Checklist . . . . . . . . . . . . . . . . . . .8–19
Resource Manual for Transition to a New Jail 8–3

Overview 

Conventional wisdom used to say that the logistics of the move were not much

more complicated than getting everyone on a bus and driving to the new jail.

In reality, move logistics are the culmination of all of the previous transition

activities. When well planned and executed, the move seems easy; when poorly

planned and executed, it may embarrass your department.

The move must be carefully coordinated with the completion of the construction project; acquisition of fixtures, furniture, equipment, and supplies; and

implementation of staff training. Ideally, all the construction will be complete,

the punchlist items will all be resolved, and the move date will be scheduled

after the facility dedication and open houses. However, sometimes you need to

move while work is still occurring in parts of the new facility. It is imperative

that the essential systems—security systems, building systems, phone systems,

and computers—be up, running, and fully tested before inmates occupy the

facility.

Move logistics activities can be divided into three groups:

■ Activities that happen before the move.

■ The move itself.

■ Activities that happen after the move.

Pre-Move Activities

The following basic activities occur before the move:

■ Equipment and system shakedowns.

■ Public events. 

■ Searches.

■ Service startup.

■ Notifications.

MOVE LOGISTICS

CHAPTER EIGHT

Action plans for

move logistics may

include—

• Overall strategy.

• Building shakedown.

• Dedication.

• Tours.

• Open house or 

sleepover.

• Move of supplies.

• Move of staff 

operations.

• Move of inmates.

ACTION

PLANS
8–4 Resource Manual for Transition to a New Jail

Equipment and System

Shakedowns 

Shakedowns are a process for achieving, validating, and documenting that

the completed building and its systems

meet the design requirements and

needs of the owner. The term “commissioning” generally refers to the

process of testing and balancing the

building’s heating, ventilation, and airconditioning systems according to

established standards before the owner

accepts the building, although it is

more frequently used to describe the

testing of all systems. However, for the

purpose of this document, shakedown

is the more common term and is more

inclusive. Agencies that hire a consultant to provide commissioning services

for various systems in the new building

must still provide input to the testing

process for crucial systems such as

security electronics and fire systems.

One or more members of the transition

team must be involved in the commissioning of those systems. Once commissioning is complete, the transition

team will continue to work on testing

specific systems. Agencies must never

allow consultants who provide commissioning services to sign off on crucial systems without approval from the

transition team leader.

During the shakedown process, it is

important to test the systems as they

will be used, not just one element at a

time. The transition team should ensure

that—

■ The security system is tested with

all components operating and performing multiple activities, e.g.,

multiple doors being opened, under

both normal and emergency

conditions.

■ The plumbing is tested with multiple demands on water flow.

The transition team should also test all

areas of the facility, e.g., each housing

unit, by simulating a period of operations. Once each area has been tested,

the transition team should conduct a

full-scale simulation in which the facility is operated for an extended time,

perhaps 48 hours, to ensure that the

systems function correctly over time

and with reasonable levels of activity.

This will require enough personnel to

fully staff the facility. Some agencies

use volunteers and family members for

some tasks, such as opening and closing doors and setting off alarms, to

offset the cost of staff. The test of the

facility under a full-scale simulation is

probably one of the most important

facets of move logistics. Failure to test

the systems fully can lead to later

problems such as security failures and

facility damage due to flooding. The

test should be fully documented; agencies may even want to videotape the

activities in some areas.

Many jurisdictions follow up the simulation with other functions, such as

training or an event, e.g., a sleepover,

in which officials and citizens play the

roles of inmates. 

Public Events

As the facility nears completion, a

number of public events occur. These

are unique opportunities to showcase

the facility, the department, and the

transition team’s achievements;

enhance public relations; and increase

the public’s knowledge of the jail and

its operations. These activities typically

involve the media, so be sure that the

information provided—both written

and oral—is consistent and accurate. 

Agencies

must never

allow consultants who

provide commissioning

services to

sign off on

crucial systems without approval

from the

transition

team leader.
Resource Manual for Transition to a New Jail

CHAPTER EIGHT

8–5

Although the contractor will have a

contractual obligation to clean the

facility when it is completed, it is

important to make sure that the facility’s level of order and cleanliness is up

to your department’s standards. Contractors may have the floors swept, but

they will not mop the floors or wash

concrete dust off the walls. Be prepared to clean the facility after the contractor has finished and before public

events.

Tours and Open Houses 

Because the jail represents a substantial investment of public dollars, it

should be open to the public for tours.

Tours and an open house are opportunities to promote pride in corrections,

provide an understanding of the jail’s

mission, and introduce corrections as a

career. They provide another opportunity for staff to enhance and demonstrate their knowledge of the building

and jail operations. Plan special events

for staff and their families as well as

others who are close to the department

and its jail operation. These events are

a great opportunity to show staff and

their families the new facility before

the public tours. For tours, the transition team should—

■ Develop a tour route, script, and

possible questions and answers in

advance of the open houses. 

■ Prepare and practice for these

events. 

■ Provide brief fact sheets about the

jail.

■ Gear the information provided to

the audience. Not everyone needs

the same level of detail about the

facility. 

Dedication 

The dedication is an official ceremony

to open the facility. Typically, it

involves recognition of those who were

involved in the planning, design, and

construction process. Local officials,

representatives of key user groups, and

the media will also be attending. 

Sleepover 

A sleepover in which officials and citizens play the role of inmates can be

used as a fundraiser (“inmates” might

pay for the privilege of staying the

night in the new facility), as an opportunity to inform key people about the

facility, and as another chance for staff

to operate the facility and its systems.

Sleepovers are often accompanied by

pre-event festivities, which can range

from dinner and dancing to “arrests” of

various dignitaries who then “make

bond” by making a contribution to an

appropriate charity. The sleepover

should not occur until after a successful simulation and/or dry run training

(see chapter 6, Training and Orientation). “Inmates” are booked into the

facility, spend a typical day, and are

released—typically with souvenirs—

at the end of the event. Conduct a

debriefing to outline what was learned,

what items are still needed, what

changes to the documents are needed,

and where improvement or additional

training is needed. As many staff as

possible should participate in the sleepover to make it as real as possible and

because it provides another opportunity

for staff to practice the new operations. 

Because the

jail represents a

substantial

investment

of public

dollars, it

should be

open to the

public for

tours. 
8–6 Resource Manual for Transition to a New Jail

Searches 

Although the activities carried out in a

facility search overlap with the shakedown of equipment and systems, their

timing and intent are different. After

the public activities have been completed and the contractor has left the

facility, transition team members (or

other staff familiar with the facility and

with clear direction) should conduct a

final shakedown of the building. Individuals who have been involved in the

punchlist may be helpful in this

process. 

As in typical searches, team members

need to search for items that are where

they should not be and for damage.

However, they will also need to search

for atypical items, i.e., contractor tools,

debris, and other items that workmen

or the public may have left behind. In

addition to all the typical places that

are searched during a shakedown, team

members should consider searching

atypical places such as inside vents and

behind security plates. All areas of the

facility need to be searched—at least

twice. Give the teams conducting the

search small sets of floor plans so they

can identify the areas that have been

searched. This will ensure that areas

are not overlooked. Because this

shakedown is likely to uncover an

unusual amount of material, team

members will need supplies such as

garbage bags, flashlights, gloves, ladders, and tools, and a dumpster should

be available. After the final search, seal

the building before moving inmates in.

Service Startup

Regardless of whether you move all at

one time or in phases, you almost certainly will be operating some services,

such as food service and health care, in

both facilities for a period of time. This

is particularly true if the old facility

will stay in operation. Other services,

such as booking, are likely to move

from one facility to the other at a specific time. Some activities, such as

recreation, may not begin immediately

after moving inmates to the new facility.

Transition team members need to

develop a strategy for each of the programs and services to be delivered.

These may include—

■ Parallel operation in both facilities,

i.e., food service operates in both

facilities.

■ Phased operation in which programs move their operations into

the new facility according to a

schedule while providing satellite

services in the old facility, e.g.,

meals are prepared in the new facility and transported to the old facility.

■ A clear turnover and shutdown in

which service begins in the new

location and stops in the old with

only a brief overlap.

Each of these options has implications

for staffing requirements and logistics.

The decision that you ultimately make

will depend on whether you will continue operating the old jail, the size of

your inmate population, the distance

between the two facilities, and your

staffing levels, including your ability to

use overtime. Regardless of how the

move occurs, determine what services

will be available the first day of operation and a schedule for the startup of

subsequent services. It is better to start

slowly but correctly than to rush into

everything at once. The acceleration

of services should be a joint decision

between transition staff and jail

administration.

All areas of

the facility

need to be

searched—at

least twice.
Resource Manual for Transition to a New Jail

CHAPTER EIGHT

8–7

As services are implemented, noncorrectional staff and other facility

users, such as visitors and other agencies, may encounter difficulties. The

team needs to develop a formal process

for identifying and resolving these difficulties and publishing responses to

them. This process must be an established procedure and made available in

areas where users, including those who

may not stay in the facility for long

periods, can let staff know about these

issues. This process could be as simple

as a suggestion box.

Notifications 

Jail administration must always face

the question, “Should we tell the media

and others of the move in advance?”

There is no one answer to this question—the right answer will depend on

the specific set of circumstances each

jurisdiction faces. The transition team,

jail administrator, and chief executive

officer should discuss the pros and

cons of making the move public and

make the decision that is right for

them. 

Regardless of this decision, selected

agencies should be notified of the

move just before it begins. At a minimum, these agencies should include all

law enforcement agencies that book

into the jail, courts, fire departments,

ambulance services, and suppliers such

as food vendors. Inmates can notify

their family members after they are in

the new facility. To provide for appropriate security during the move, one

approach is to suspend visiting during

a range of dates even if the actual

move-in date is not made public.

The Move

Now that the necessary preparations

for the move have been completed, it is

time to physically move jail operations

and personnel from the old to the new

facility. Two groups of people and their

belongings will have to be moved: staff

(who are there voluntarily) and inmates

(who are not). As noted in the first

chapter, moving a jail facility is unique

in that you have to deal with people

who are confined and therefore may

have little inclination to cooperate with

the move and may see an incentive to

disrupt the move for their own ends.

However, the move also creates an

opportunity to institute changes in classification of inmates and rules for

inmate behavior. 

Moving Staff

All of us have moved in our lives and

know how disruptive it can be.

Consider the impact the move will

have on your staff and the operation.

Answer the following questions:

■ Will staff move their own items?

■ Can inmates help with packing and

the move?

■ Will the move occur during business hours?

■ Who will carry all of the boxes?

■ Who will unpack and place items?

Establish a schedule for the staff move.

This should include determining the

dates when—

■ Staff will remove all personal items

from their offices.

■ Old files will be reviewed, sent to

the appropriate location in the new

building or a storage facility, or disposed of.

Jail administration must

always face

the question,

“Should we

tell the

media and

others of the

move in

advance?”
8–8 Resource Manual for Transition to a New Jail

■ Storerooms will be cleaned out and

items either marked for placement

in the appropriate location in the

new facility or removed from the

inventory and disposed of

appropriately.

Office assignments usually are made

during design, but have been known to

switch after administrators see their

office size and/or location. Before the

move, confirm office locations, write

names on the floor plan, and post the

plan in several locations. In the new

facility, make sure that each office has

an appropriate sign or room number.

Staff who pack should ensure that cartons are marked with the same name or

room number. Consider establishing a

protocol for how offices can be decorated in the new facility if this has been

an issue in the past.

Files that are required for ongoing

operation, such as active health records

and inmate files, present specific problems, particularly if all of the information is located in the paper file. These

files need to be maintained securely

and access restricted consistent with

legal requirements. Coordinate moving

these files with the plan for implementing services and, potentially, the plan

for moving specific inmates.

The transition team must have a formal

process for identifying and resolving

issues and publishing answers. Even if

you do not usually have shift briefings,

consider implementing them for the

period immediately before and after

the move. They will provide an

opportunity to exchange information,

troubleshoot, and identify issues.

Remember to plan for these briefings

as you develop and monitor the transition and operating budgets. 

Moving Inmates

The actual inmate move provides a

unique opportunity to set expectations

for inmate behavior in the new facility;

it also needs to be coordinated with

inmate orientation. Some facilities

make significant changes in policies at

the time of the move. If some of these

changes are going to be unpopular with

the inmate population, such as changing to a smoke-free facility or reducing

commissary items, it might be a good

idea to implement the negative change

gradually over several months before

the move. 

Many facilities consider moving

inmates according to their jail classification. Generally, new facilities have

more inmate classification options than

the current jail and often adopt new

policies and procedures for classification in the new facility. Months before

the move, develop a practice roster for

moving day that indicates where the

current inmates will be housed in the

new jail, following the new classification policies and procedures. The jail

management team should review this

practice roster to see if it meets their

expectations. If it does not, the classification policies and procedures may

need to be revised. Develop the final

move roster the day before the move

and update it on moving day. 

You should suspend nonessential services during the changeover of essential

services so staff can concentrate on the

critical elements of ongoing operations

as well as the move. Several items

require specific attention.

There likely will be procedural questions and suggestions, a certain amount

of unfamiliarity with the layout of the

new facility, and possible equipment

The actual

inmate

move

provides

a unique

opportunity

to set expectations for

inmate

behavior in

the new

facility. 
Resource Manual for Transition to a New Jail

CHAPTER EIGHT

8–9

failures that will require contact with

the contractor. Consider having transition team members on duty 24 hours a

day for the first few days of operation.

At the very least, provide staff with

contact information for transition team

members so they will know whom to

call for certain issues.

Inmate Personal Property 

Inmates should not be allowed access

to their property held by the jail.

Movement of inmate property should

be carefully controlled and may occur

at a different time from the inmate

move. The move provides an easy way

to implement any changes you are

making in what inmates can have in

their cells or what property will be

kept in the new facility. Notify inmates

weeks in advance of any change and

develop a mechanism for them to dispose of property that they cannot move.

This should include a method to release

inmates’ personal property to family

members. Team members must determine how to deal with the period when

property is in one facility while the

inmate is in another, particularly as it

relates to release. 

Inmate Cell Property

The team must determine how items

inmates have in their cells will be

moved. If inmates will not take this

property with them during the move,

they will need a means to package it so

that it can be labeled and moved efficiently. Thought will need to be given

to their bedding and uniforms. Team

members should determine if inmates

will carry their bedding and if these

items will be processed into the facility

(along with a search and issuance of a

new uniform). Consider having the

inmate cells in the new facility set up

with new linens, blankets, and mattresses so inmates will not need to

carry them to the new facility. This will

allow the linens to be laundered and

the mattresses to be thoroughly

searched before being taken to the new

facility. In either case, searches will be

required to minimize the opportunity to

move contraband from the old facility

to the new. 

Inmates will also encounter problems

during the move that should be

addressed. The transition team needs to

develop a formal process to identify

and resolve these issues and publish

the answers. 

A detailed example of an Inmate Move

Plan is included as appendix 8–1. An

example of an Inmate Move Checklist

is included as appendix 8–2.

Post-Move Activities 

For all staff, transition is a temporary

assignment. Depending on the nature

of individual team members, that may

be either a great relief or a great disappointment. During the hectic days

immediately preceding and following

the move, transition team members

may not have a great deal of time to

think about what’s coming, but soon

transition will be over. Team members

need to plan for life beyond transition.

What Will Happen to the Old

Facility? 

One of the big questions throughout

this manual’s entire facility planning

process has been, “What happens to

the old jail?” The tasks of the transition team will vary based on the plans

for the old jail. Those plans could

include—

Inmates

should not

be allowed

access to

their property held by

the jail.
8–10 Resource Manual for Transition to a New Jail

■ Continued operation with no

changes.

■ Continued operation with policy

and procedure changes consistent

with those in the new facility.

■ Renovation with continued operation as a correctional facility.

■ Renovation for another purpose.

■ Closure.

■ Demolition.

If the facility is being renovated with

no continuing operations, closed, or

demolished, consider the following:

■ Shutting off utilities.

■ Removing all items that will be

used in the new facility and appropriately disposing of all others.

■ Documenting the facility as part of

the department’s historical record

with potential special activities such

as a family day.

■ Posting signs at all entrances to

direct the public to the new facility

and provide location and contact

information.

■ Disposing of keys appropriately,

which could include turning them

over to the new facility owners and

disposing of security locks (with

potential replacement with commercial locks).

■ Securing the building.

Post-Move Transition Tasks

Transition does not end as soon as the

inmates are moved. Various tasks must

be completed as the new facility begins

to operate full time:

■ No matter how well the documents

have been prepared, unanticipated

situations will occur that may

require modifying some documents.

If it was necessary to prioritize

which policies and procedures and

post orders to complete prior to the

move, additional documents will

need to be finished.

■ Team members and maintenance

staff must monitor the status of

equipment warranties to ensure that

all items that require repair or

replacement are identified and

attended to before the expiration

date.

■ Ongoing and preventive maintenance activities must begin.

Although the facility is new, some

equipment may require a break-in

period, and good maintenance from

the start will extend the useful life

of building systems and equipment.

■ If the old jail is being closed, a

number of activities will be

required to close up the building

and/or prepare it for renovation.

Each department will need to determine the level of effort required for

post-move tasks and how long the transition team will need to stay in place to

complete these tasks. Typically, the

number of people assigned to the transition team increases as occupancy

approaches. It is common to see a

reduction in force after occupancy.

Closing the Transition Office

It should be no surprise to transition

staff that, in conjunction with department and jail administrations, they

need to develop a plan for closing their

office. 

Personnel Assignments 

Staff allocated to the transition effort

will require new assignments. The

Transition

does not end

as soon as

the inmates

are moved.
Resource Manual for Transition to a New Jail

CHAPTER EIGHT

8–11

nature of those assignments may determine when staff members need to

move away from most transition tasks,

although staff may keep some transition activities as collateral duties. As

part of long-term personnel planning,

the department may want to consider

the potential benefits of personnel from

the transition team. These individuals

will have a high level of knowledge of

the facility and experience in document

development, training, and planning.

As a result, they may be strong contenders for specialized and supervisory

positions. In addition, the department

is likely to find these individuals useful

in any accreditation effort and in carrying out quality assurance functions in

general. 

Transition Equipment and Supplies

The transition team typically has an

office with associated office equipment, such as computers, telephones,

fax machines, and copiers. If these are

new, the team needs to determine

where this equipment will go in the

new facility as part of their FF&E

planning. If the equipment is old, the

team needs to plan for its reassignment

or removal from inventory. 

Documents and Plans

The transition team has the master

copies of the new policies and procedures manual, the post orders, the

inmate handbook, and a broad spectrum of automated and paper files that

will have varying degrees of usefulness

to the department in the future. Some

of these materials must be maintained

as operations continue; others that

relate only to transition may be

required for documentation only; still

others may no longer serve any purpose. It may be helpful to develop a

list of files that are going to be stored

and saved for future reference. The

team needs to sort the materials to

determine—

■ Which will be inventoried, boxed,

and stored.

■ Which will be destroyed and

whether they can simply be thrown

away or must be shredded.

■ Which must be archived consistent

with legal requirements.

■ Which will be moved to another

location, and the person/office who

will be responsible for these items. 

Recognition 

Transition requires a significant commitment of time and effort for the personnel involved. It is an activity that is

clearly beyond normal operations.

When transition team members take on

this responsibility, the task is less certain and, therefore, more challenging

than most other activities they do. The

team needs to be recognized for the

work it has done to make the switch to

the new facility.

Post-Occupancy Evaluation 

Post-occupancy evaluations typically

occur 6 months to 1 year after the

facility is occupied. Personnel involved

may include the planner, architect, contractor, and key personnel within the

department, such as the transition

team. 

Typical post-occupancy evaluations

focus on the facility to determine if it

is operating as intended. Two areas

receive most of the attention: how

space is allocated within the building

and whether it is being used for the

function for which it was originally

intended. These activities also may

The team

needs to be

recognized

for the work

it has done

to make the

switch to

the new

facility.
8–12 Resource Manual for Transition to a New Jail

consider the interface between

equipment—often security equipment—

and the facility to determine if they are

working together as intended. This is an

excellent time to pull members of the

transition team together to determine if

the operations that they planned are, in

fact, working as they intended. This

may take the form of a relatively informal walkthrough and discussion or a

more formal internal audit.

Regardless of how much time passes

between transition closeout and the

post-occupancy evaluation, team members need to conduct a debriefing of

the transition process to determine

what they learned in the process, what

worked well, and what did not go as

planned. This activity should also focus

on the interaction of team members and

bring closure to any outstanding issues.

This information should be documented, not only as a record for this team,

but as a resource for other transition

teams who will face similar issues. 

And Everything Else 

Before you get too far into transition,

it’s a good idea to consider two themes

that recur many times during a transition project. First, the transition team is

likely to have a number of opportunities to interact with the public. These

interactions provide a unique opportunity to shape the relationship between

the jail and the community. Second,

there are likely to be a number of

strange reactions from staff inside the

department both to transition and to the

transition team members. Some of

these reactions relate to how people

respond to change. Chapter 9 prepares

transition team members for the unique

challenges of public relations and managing change. 
Resource Manual for Transition to a New Jail

APPENDIX 8–1

8–13

Abbreviations

BO—Booking Officer

BS—Booking Supervisor

BT—Booking Team

FO—Floor Officer

HO—Housing Officer

MC—Move Coordinator

MT—Move Team

TO—Transporting Officer (officer from sheriff’s department or other agency responsible for the 

move from the old to the new facility)

Before the Move

1. Develop a Move Team.

2. Prepare a Move Roster showing each inmate’s name, number, current housing location, and new

jail housing location. Organize the move roster in three ways: old location, new location, and

alphabetically by inmate’s last name.

3. Set a date for the Classification Coordinator to consolidate (number of) inmates into one

Housing Unit. 

4. Notify the Commissary provider in advance which inmates will move on which days so the

Commissary can be delivered to the new facility.

5. Tell inmates in advance what items will be allowed in the new jail and that no open Commissary

items will be moved.

6. Provide the Move Roster to all involved staff.

7. Prepare for any inmate releases that may occur during the move.

8. Prepare photos of inmates in advance, and develop wristbands or another comparable type of 

inmate identification.

9. Decide whether to give inmates clear plastic bags with their names on them to move their cell

property. 

First Day of Move

1. MT reports to each existing Housing Unit.

2. HO wakes inmates at 4:30 a.m.

Appendix 8–1.

SAMPLE INMATE MOVE PLAN
8–14 Resource Manual for Transition to a New Jail APPENDIX 8–1

SAMPLE INMATE MOVE PLAN (continued)

3. HO notifies inmates of their move and tells them to come out for an early breakfast.

• Feeds the inmates to be moved.

• Keeps phones off.

4. HO announces which inmates will be moved today.

5. HO tells the inmates to gather jail-issued items and their personal items, and that all inmates 

will lock in.

6. Provide inmates with clear bags with their names on them to hold their cell property. 

7. MT and HO go to each cell.

8. HO inspects the cell and documents problems.

9. MT verifies the inmate’s identity using inmate’s wristband or ID.

10. MT takes property bag, puts it aside, and pat searches the inmate.

11. HO takes jail-issued items, inspects them, and puts them in a laundry cart.

• Inventories issued items.

• Documents problems.

12. After all inmates have moved out for the day and prior to unlock, the HO has the laundry 

cart moved to laundry. 

13. MT pulls and searches property bag in the Property Room.

• Checks against policy.

• Disposes of excess and disallowed property.

• Keeps property bag.

14. MT escorts inmates to current jail booking.

• Briefs inmates as to what will happen.

• Allocates one staff member per four inmates per movement.

• Has staff carry inmate’s cell property in cell property bag.

• Puts inmates into holding cells according to their new jail housing assignments.

• Carries property bags to van.

15. MT turns inmate over to TO, checking off names on the Move Roster to keep track of who 

has custody of which inmates.

16. TO takes custody of inmates.

• Searches inmates.

• Shackles inmates.

17. TO leaves current facility.

18. MT calls new jail with estimated time of arrival.

19. MT leaves with property.

20. TO and MT drive to new jail and announce arrival at intercom, giving van numbers.
Resource Manual for Transition to a New Jail 8–15APPENDIX 8–1

SAMPLE INMATE MOVE PLAN (continued)

21. TO and MT pull vans into parking spot.

22. TO puts weapons into gunlocker and takes key.

• Jail staff are present to observe and provide assistance, i.e., to point out gunlocker

locations to the TO.

23. TO escorts all (number of) inmates out of the vehicle at the same time.

24. TO escorts inmates to Booking.

25. TO delivers inmates to BOs who are in the Booking vestibule. 

26. MT delivers property to BT.

27. BO compares inmates to the Move Roster, inmate cards, and their wristbands.

28. BO tells TO they accept the inmates.

29. TO unshackles the (number of) inmates.

30. BO moves inmates to holding cell designated by the Housing Unit.

31. TO leaves the booking vestibule and goes to the vehicle sallyport.

32. BO takes inmates one at a time to the fit-for-confinement area for their medical screening 

or to the other rooms used for this purpose.

• Allocates one medical staff member to each screening room.

33. BT escorts inmates to the Booking desk, a holding cell, or to open seating if BOs are busy.

34. BO verifies the inmate’s information in the computer system and transfers inmates from the old

location to the new jail location on the system.

35. BO escorts inmates to shower area.

• Searches personal property bag.

• Reinventories jail-held property.

• Moves inmate personal property separately.

36. BT supervises inmates.

• Issues new inmate property.

– Issues uniforms, linens, etc.

– Provides boxes for inmates to store property?

– Issues Inmate Handbook.

• Inmates undress (need laundry carts).

• Inmates shower (need soap/towels).

• Inmates dress.

37. BT escorts inmates to Classification.

• Provides interview rooms.

• Makes two staff available all day.

• Performs inmate briefing and verifies classification assignment.
8–16 Resource Manual for Transition to a New Jail APPENDIX 8–1

SAMPLE INMATE MOVE PLAN (continued)

38. FO escorts inmates to Housing Unit.

• Escorts inmates in groups of four.

• Introduces inmates to HO by established protocol.

• Waits while HO checks inmates in, assists if needed.

39. HO assumes control of the inmates.

40. HO orients inmates per orientation policies and procedures.

• Gives inmates a tour of the Housing Unit.

• Reviews typical daily schedule. 

• Explains rules or expectations specific to the Housing Unit.

41. HO shows inmates a cell and explains how inmates are to make their beds.

• Selects a cell in each unit for the demonstration.

• Has inmate make up the bed in that cell per HO’s instructions. 

42. HO escorts each inmate to his or her cell and tells inmate to make his or her bed and to read

his or her inmate handbook.

• Inspects cell and documents condition. 

• Locks inmate in.

43. Process continues until all inmates are received.

44. HO walks around to see that inmates are getting settled.

45. HO unlocks cells and tells inmates via intercom to bring their Inmate Handbooks, come out of

their cells dressed, close their cell doors, and report to the Dayroom.

46. HO conducts inmate orientation per orientation policies and procedures.

• Reviews entire Inmate Handbook.

• Has inmates read sections of the Handbook out loud, reads the Handbook to the inmates or

goes over important elements of the Handbook with the inmates. It is essential that inmates

have a full and complete understanding of the Handbook’s contents.

• Answers questions.

• Tells inmates when the following services will start:

– Visiting.

– Commissary.

– Sick call.

– Telephones.

– Recreation.

47. HO turns on phone.

48. HO turns on TV.
Resource Manual for Transition to a New Jail 8–17APPENDIX 8–1

SAMPLE INMATE MOVE PLAN (continued)

49. HO implements daily schedule.

50. HO has inmates do a thorough cleaning of the unit.

51. Food Service Staff will call for inmate workers to visit the Food Service area later today or

tomorrow.

After the Move

1. After the old jail Housing Unit is vacated, staff search the unit and then inmate workers from 

other units clean cells, Dayrooms, and common areas.

2. Staff vacate workstations and Housing common areas.

3. Current jail Housing Unit staff are reassigned to the new facility.
Resource Manual for Transition to a New Jail

APPENDIX 8–2

8–19

Appendix 8–2.

SAMPLE INMATE MOVE CHECKLIST

____ 1. Determine potential move date.

____ 2. Develop an estimate of the size of the inmate population, by classification, to be moved.

____ 3. Determine the mode and route of transportation, both internal and external, for moving 

the inmate population.

____ 4. Determine the number of personnel required, transportation vehicles needed, and moving 

equipment needed.

____ 5. Determine whether it is necessary to use personnel from state/local law enforcement

agencies to augment facility staff during the move.

____ 6. Identify available personnel, transportation, and moving equipment resources for the

inmate move (item 4 deals with establishing minimum staffing levels and equipment

needs).

____ 7. Where necessary, develop written agreements/contracts for the provision of resources.

____ 8. Prepare agreements/contracts for the movement of equipment and supplies.

____ 9. Develop a plan for reclassifying inmates before the move to the new facility. Concurrent 

classification will need to be done for at least 1 month before the move.

____10. Develop a plan for determining each inmate’s living unit in the new facility.

____11. Determine the types of cell property inmates will be allowed to take from the old to the 

new facility.

____12. Develop a plan for disposing of the cell property that inmates will not be allowed to take 

to the new facility.

____13. Develop a plan for searching all inmates before and after the move.

____14. Develop a plan for handling new inmates who are being admitted during the actual

move.

____15. Develop a plan for handling inmates who may be released during the actual move 

(where is their property, files, etc.?).

____16. Determine what information will be provided to inmates regarding the move.

____17. Develop a plan for handling escape attempts, riots, or other security threats that may 

occur during the move.

____18. Develop a plan for emergency medical services during the move.
8–20 Resource Manual for Transition to a New Jail APPENDIX 8–2

SAMPLE INMATE MOVE CHECKLIST (continued)

____19. Develop a plan for the repair and/or replacement of equipment critical to the move that 

stops working during the move.

____20. Develop a meal service schedule for the move days.

____21. Establish a move command center communication network.

____22. Develop a plan for handling vehicle traffic and crowd control along the transportation 

route, if necessary.

____23. Identify all costs involved in moving the inmate population.

____24. Establish criteria for handling staff requests for vacations and sick leave during the move.

____25. Develop a written scenario with detailed instructions for moving all inmates, including 

descriptions of staff roles.

____26. Establish staffing levels for both facilities during the move.

____27. Schedule briefings of all staff, especially the Move Team, to update them on plans and 

changes made.

____28. Establish a communication system with other criminal justice agencies affected by the 

move to keep them updated.

____29. Develop a plan for handling vendors, deliveries, mail service, and other services provided 

by outsiders before, during, and after the move.

____30. Determine what information about the move will be released to the families of inmates 

and the general public.

____31. Orient inmates to the new facility and the move procedures.

____32. Develop a plan for any visits by attorneys, parole officers, or other justice system 

representatives or any other court-related activities that may arise during the move.

[Add additional steps as needed.]

____33. ______________________________________________________________

____34. ______________________________________________________________

____35. ______________________________________________________________

____36. ______________________________________________________________

____37. ______________________________________________________________

____38. ______________________________________________________________

____39. ______________________________________________________________

____40. ______________________________________________________________
Transition

Themes

CHAPTER NINE
9–2

Managing Change . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–3

What Are the Differences Between “Change” and “Managed Change”? . . . . .9–3

What Are the Principles of Change? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–4

How Is Change in Government Different? . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–5

What Are the Implications for Transition Teams? . . . . . . . . . . . . . . . . . . . . . . .9–5

Community Relations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–6

Who Is the Community? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–6

Why Is “the Community” an Issue? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–7

What Strategies Can Improve Community Relations? . . . . . . . . . . . . . . . . . . . .9–7

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9–8
Resource Manual for Transition to a New Jail 9–3

Throughout transition, regardless of the length of the process, several recurring

themes present significant challenges and opportunities. This section of the

manual focuses on two: managing change and community relations.

Managing Change 

As transition teams confront the many tasks before them, it is easy to forget

that transition implies movement from one situation to another. Transition

implies change. This is important because change sets in motion many of the

behaviors that the transition team will experience. It is essential that transition

team members know a bit about people’s reactions to change so that they can

understand and respond to them appropriately. This will enable team members

to shape the results of transition by being positive agents of that change. 

What Are the Differences Between “Change” and 

“Managed Change”? 

There is nothing unusual about change—nothing is so constant as change

itself. But there is a significant difference between change and managed

change. Change often seems random, and it occurs constantly. In an organizational context, it often comes from outside the organization or the group affected. Laws change, judges change—and the department responds. Policies

change, procedures change—and line staff respond. 

Managed change is deliberate and is set in motion from inside the organization. Someone makes the change occur, and the movement of the change is

toward a specific goal. By becoming part of the transition team, members step

from “outside” the change—where many departmental personnel continue to

be—to “inside” the change. They help shape the direction and quality of the

change. This may seem like a subtle difference, but it helps to explain some of

the dynamics transition team members may encounter as they do their work. 

TRANSITION THEMES

CHAPTER NINE

Transition

implies

change.
9–4 Resource Manual for Transition to a New Jail

What Are the Principles of

Change?

Organizational development recognizes

several principles of change:

■ Some factors increase resistance to

change.

■ Other factors decrease resistance to

change.

■ Resistance to change has

consequences.

Because transition team members will

be change agents, they must understand the dynamics of change. First,

resistance to change is the normal state

of affairs. One of the laws of physics

says, “bodies in motion tend to stay in

motion, and bodies at rest tend to stay

at rest.” Even in nature, there is resistance to change. People in organizations

and the organizations themselves are

no different. But this resistance to

change has consequences, and specific

actions can either increase or decrease

this resistance. As team members think

about rewriting policies and procedures, about changing how operations

occur, they need to go about the

change in a way that will minimize

resistance. 

A number of factors can increase

resistance to change:

■ If the change is perceived as threatening, rather than helpful, resistance will increase. 

■ Changes that are imposed on a

group of people—supervisors, line

staff, support staff—are more likely

to be resisted. Do not assume that

because people have wanted a new

(or improved) jail they will automatically like the new facility. A

good example of this kind of resistance occurs in some line staff in

facilities that change from an

inmate management philosophy of

intermittent surveillance to one of

direct supervision.

■ The magnitude of the change

determines the magnitude of the

resistance. 

Resistance to change can be overt or

implicit, immediate or deferred. How

strong the overt resistance is depends

on how strongly top management and

other key individuals support the

change. Consider the influence that a

single shift supervisor has on his or her

shift. If these supervisors support the

change, staff are less likely to resist it.

It is also important to note that overt

signs of resistance may not have a 

one-to-one relationship to the actual

opposition that exists. In the direct

supervision example noted, staff may

not gripe about or overtly resist the

change, but you may see more passive

forms of resistance or increases in

resignations.

Passive resistance often comes out as

efforts to maintain the status quo and

in defensive behavior. It may be

expressed as “officer safety” concerns.

What it is often about, however, is

resistance to change and the fear of the

unknown. 

A variety of factors can decrease resistance to change:

■ If individuals see some personal

benefit to the change, they are more

likely to support it.

■ If strong individuals with prestige

and influence (formal or informal)

in the organization support the

change, resistance will decrease.
Resource Manual for Transition to a New Jail

CHAPTER NINE

9–5

■ If groups that are meaningful to an

individual support the change, that

individual is more likely to support

it.

■ Responding to specific questions

that a group has about the change

can reduce its resistance.

■ Shared perceptions about the need

for a change decrease resistance.

■ Shared perceptions that those

who experience the change and

those who direct it belong to the

same group—“we’re all in this

together”—decrease resistance.

■ Those who have access to information relating to the need for change,

the plans for the change, and the

consequences of the change are less

likely to resist it.

In short, people tend to support what

they help create. The degree to which

transition team members can find a

way to involve others in the organization will influence how much resistance they encounter. 

How Is Change in Government

Different?

Change is often more challenging in

government agencies than in other arenas. Many government agencies have

their roles and responsibilities defined

by statute. Each organization has many

layers, and change often occurs in a

political context. These increase the

challenges in creating and managing

change.

Government agencies by their very

nature involve diverse groups; these

groups may have competing interests

that make it more difficult to build on

the unifying factors that decrease

resistance to change. In addition,

statutes often require that planning be

done in public. Don’t discount the

potential impact of politics on the transition process. When the arena is

politicized, it makes managing the

change process more challenging.

Although transition team members

may be insulated from politics to some

degree, what they are doing has the

potential to be politicized.

What Are the Implications for

Transition Teams? 

The information in this manual is presented not only to provide a theoretical

basis for the change. It also has direct

and powerful implications for the transition team. Within the department,

team members may be seen as agents

of the change, and they need to be prepared for how they may be perceived.

The following strategies can help the

transition team to build and maintain a

positive image:

■ Consider the groups whose support

you need during transition as you

determine team membership.

■ Create opportunities to solicit input

from others—and listen to it.

■ Share information about transition

activities and the facility.

■ Have a positive attitude and convey

that in your interactions within the

department.

■ Stay aware of what is happening in

the department and the jail. 

■ Expect staff to forget that you have

an operational background, and

don’t pay attention to comments

like, “You don’t know what these

inmates are like . . . .” They are

about anxiety and resistance to

change. They aren’t personal.

The degree

to which

transition

team members can find

a way to

involve others in the

organization

will influence how

much resistance they

encounter. 
9–6 Resource Manual for Transition to a New Jail

■ Be prepared for envy, concern, and

sometimes hostility from other staff

members.

■ Be prepared for team members who

have been forced into service and

don’t want to be there.

■ Be prepared to respond to questions and concerns with accurate

information.

Changing the physical environment in

which people work is one of the most

profound changes in organizational

life. It creates considerable anxiety, but

it is also one of the most effective ways

to increase morale, professionalism,

and pride. Use this opportunity to take

your operations to a new level of

excellence.

Community Relations 

When the facility planning process

began, it’s likely that there was a flurry

of activity associated with community

relations. Jurisdictions often identify

advisory groups, composed of community members, to assist in the planning

process. They also hold informational

and neighborhood meetings about the

facility and its building site, conduct

public education campaigns, and seek

lots of media coverage. A lot of this

activity stops once the decision to build

is made and/or authorization to build is

received. However, as the construction

project begins and the building takes

shape, community interest peaks again. 

The transition team has two responsibilities with regard to community

relations:

■ Remembering supporters who were

involved during the beginning of

the planning process.

■ Shaping the relationship that the

facility will have with the community in the future.

Who Is the Community? 

The community includes diverse

groups:

■ Staff and families.

■ Contractors and families.

■ Outside law enforcement agencies.

■ Other criminal justice agencies.

■ Civic groups.

■ Media.

■ The neighborhood.

Each of these stakeholder groups has

different interests and concerns about

the facility. Each group wants to know

different things and is interested in seeing different aspects of the facility.

Each group also has very different

needs in terms of information about

and familiarity with the facility and its

operations. The transition team needs

to consider how they will tailor their

public information based on the audience to whom they are speaking. 

Some of these groups will require special attention:

■ The neighborhood, particularly

businesses and homes around the

facility, will be living through a

construction project. Projects of the

size and scope of the jail can be

very disruptive, and they often last

long enough to require a structured,

regular response to the community.

Although the contractor and the

project manager will be responsible

for resolving construction-related

issues, the transition team may need

to address specific neighborhood

concerns about future operations. 

Changing

the physical

environment

in which

people work

is one of

the most

profound

changes in

organizational life.
Resource Manual for Transition to a New Jail

CHAPTER NINE

9–7

■ Other criminal justice agencies,

including law enforcement agencies, will need structured briefings

and training about the facility. You

may also need the police department in whose jurisdiction the new

jail is located to assist in security

around the site. 

■ The media are likely to be particularly interested in the political

aspects of the planning process.

However, the media can be a

tremendous asset if their portrayal

of the new jail is accurate and

addresses community concerns.

Why Is “the Community” an

Issue?

Transition team members don’t get a

clean slate when it comes to community relations. All jail projects share the

same baggage: the public’s concern

about how much money is being spent

on the building and questions about

why it should be spent on inmates. The

project probably has a history with the

community and neighborhood in which

it is being located, as does the current

jail. The people who live or work near

both locations have legitimate concerns

about the kind of neighbor you will be

as you move into your new facility.

This is your opportunity to make a

good first impression. If the existing

jail will be closed, those who live nearby may be particularly concerned that

the facility will become an eyesore if

it is abandoned. The transition period

is an opportunity to address their

concerns.

Transition also offers a unique opportunity to influence people and agencies

who will be frequent users of the new

facility—to get them started on the

right foot. By introducing them to the

new facility and the new procedures

that come with it, the transition team

can reduce users’ concerns and begin

to shape the behavior that they expect

from these groups. 

To address concerns, you need to know

what the concerns are. Because the

facility is going to be a long-term

addition to the surrounding community,

your department has a compelling need

to build strong collaborative relationships. Transition team members are

some of the first faces that the jail’s

new neighbors will see. Making a good

first impression will be an important

step.

What Strategies Can Improve

Community Relations?

Accurate information and the willingness to listen to concerns are two of

the best things the transition team can

provide the public. In the absence of a

strategy to exchange information, the

rumor mill will take over—inside and

outside your department. Who releases

what information and how that information is released must be carefully

defined. If the department has a public

information officer, team members

should start there. 

In addition, the following materials,

products, and services can help establish and maintain good community

relations:

■ Brochures can provide consistent

factual information about the facility, particularly during tours and

open houses.

■ Newsletters, both inside and outside

the department, can focus on transition activities and the status of the

project. Team members also could

consider brief articles for neighborhood papers.

The people

who live or

work near

both locations have

legitimate

concerns

about the

kind of

neighbor

you will be

as you move

into your

new facility.
9–8 Resource Manual for Transition to a New Jail

■ A good Web site offers an opportunity to provide information and

solicit questions through e-mail and

other interactive activities.

■ A drop-in center may provide information in various media—particularly larger pieces such as architectural

renderings or models of the new

facility—in one place. Many agencies can use their existing public

lobby for such a center.

■ Neighborhood meetings offer an

opportunity to find out about and

address specific issues. 

■ Agency briefings can introduce key

user agencies to the changes that

will be occurring in the new facility

and the new procedures that may be

put in place.

■ Public events, such as tours, open

houses, and sleepovers, can help

introduce the facility to the community (see chapter eight, Move

Logistics, for more information

about these activities).

Conclusion 

By now, it should be clear that transition is much more than just moving

from one facility to another. It is a

process used to develop and transfer a

new method of operation, and it is a

time that will make a difference for all

jail stakeholders. It is worth doing to

the best of your organization’s ability. 

[Transition]

is a process

used to

develop a

new method

of operation,

and it is a

time that

will make a

difference

for all jail

stakeholders.
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