Clatsop County, Oregon Sheriff s Office

Transcription

1 Clatsop County, Oregon Sheriff s Office Jail Staffing Analysis Consultant Dr. Paul Katsampes

2 Page 1 Table of Contents Executive Summary 2 Findings 2 Recommendations 3 Introduction 8 Study Purpose and Rationale 8 Clatsop County Detention Facility Existing Situation 8 Staffing Analysis 11 Overview 11 Shift Relief Factor 14 Position Chart and Narrative 14 Position Chart 15 Post Descriptions 17 Relief Factor Calculations 24 Conclusions 30 Mission, Policies and Procedures 30 Facility Schedule Related Policies and Procedures 33 Overtime Analysis 34 Inmate Incidents 36 Appendix A - Overtime Hours by Month July 2004 through June B - CRT v. Corrections Deputy Salary Comparison 39 C - Materials Requested & Examined 40 D - Consultant Qualifications 43 Tables Table 1 - Staffing Position Table 15 Table 2 - Summary Staffing Position Table - Proposed 16 Table 3 - Present Staffing Position Table 16 Table 4 - Shift Relief Factor Table 28 Table 5 - Overtime Hours July June Table 6 - Overtime Cost Summary 35 Table 7 - Inmate Incidents

3 Page 2 Executive Summary Findings Clatsop County operates a 65-bed detention facility at a capacity of 60 inmates. The County has maintained the facility at it s capacity by regularly holding approximately 20 prisoners in the Tillamook County Jail, by operating county-level community corrections programs and by funding the Sheriff s Office offender work program. Presently, the Clatsop County Sheriff s Office Corrections Division is staffed by a Jail Administrator, six supervisors, and 14 corrections deputies. One additional deputy is permanently assigned to the court for the security of court spaces and court employees and is not included in the full complement of 21 deputy listed in this report. The staff primarily works in three eight-hour shift teams with two supervisors and four deputies on each team. There are two work crew deputies who are assigned to 4-ten hour shifts per week covering seven days of the week with one overlapping day. The jail administrator works in an administrative position five days a week. Each shift is assigned to staff a minimum of four posts master control room, intake room, and two inmate housing area posts. The supervisor is required to assume a working post and deputies are required to conduct local transports of inmates to medical and dental appointments and court hearings. Detention facility deputies are also required to guard prisoners during court proceedings. Because of days off, sick time, vacations and personal times and other off-duty times there are rarely enough deputies available to staff the four detention facility positions. The supervisors arrange for overtime when there are less than four persons available for a shift. The work crew deputies arrange for their own relief or cancel a shift if one of them is absent. The patrol division assigns one deputy

4 Page 3 to long distance corrections transports and other patrol deputies perform this service when necessary. The inmates are housed in close quarters, cells and dayrooms, with little opportunity for exercise or activities. There is a multipurpose room and a rooftop exercise area but a lack of staffing inhibits the regular use of these spaces. There is a contract with the county health department for nursing services - for an 8-hour shift, 5 days a week and on-call on weekends. Prisoner meal preparation and commissary are also contracted with little involvement by staff in these services. Recommendations 1. The corrections staff should be increased from 21 to 32 persons with the addition of five corrections deputies, five control room technicians and one clerical support person. The seven day 365 days a year posts should be increased from 4 facility posts per shift to five posts. These posts include, at a minimum, one supervisor post, one master control post, one Intake post, and two inmate housing/direct supervision posts. There should also be the addition, for five days a week, of two prisoner court security deputies, two work crew deputies and one clerical support person. 2. The supervisor position should be a separate post allowing the on-duty sergeant or corporal to be free to move around the facility observing deputies performing their functions and assisting them solving problems. The sergeants and corporals should be scheduled to ensure that a supervisor is on duty at all times reducing the use of senior deputies as designated supervisors.

5 Page 4 3. The inmate housing posts should be maintained at all times two posts on the day and afternoon shifts and one post on the night shift. These deputies may assist the booking deputy during certain situations but they should not be sent to court for security of prisoners or sent on local transportations outside the facility. In conjunction with locating these deputies in the facility, every effort should be made to increase activities for inmates. The multipurpose room should be used for library time, addiction program groups or individual education sessions. The outdoor exercise area should be renovated to allow inmates an hour a day exercise every day of the week regardless of the weather. 4. The booking post should be designated as a full-time position managing the intake area and assisting the master control post. The master control post is often much more than a one-person position. The booking deputy should be available to assist the deputy or control room technician in master control with visiting, walk-up traffic, high call periods and report processing. 5. The work crew deputies should be scheduled eight hours a day, five days a week. This would allow them more overlap to relieve each other, but, at the same time, other deputies should be used for relief during long absences by the designated work crew deputies. 6. A clerical support person should be assigned to the Corrections Division on a permanent basis to assist the jail administrator, the master control deputy and the booking deputy with report processing, maintaining inmate records, calculating inmate fund accounts, conducting property inventories and other data collection.

6 Page 5 7. There should be two new posts designated for the security of prisoners in court hearings. These deputies should be assigned to work five days a week, eight hours per day with no relief for weekends. These deputies could also be used for the relief of the work crew deputies and other day posts and local transports ensuring that in-house facility deputies are not used for court security. Presently, the in-house facility deputies leave the jail housing area to perform this function which exposes the agency to safety and security problems. 8. The major causes for the recommended increase in staff are (1) the relief factor calculation, (2) the requirement of keeping the inmate housing/direct supervision deputies in the cell block area and not allowing them to be assigned temporarily outside the facility on local transports or court security and (3) freeing the supervisor from an operational post. The present relief factor is approximately 1.5 for seven day a week posts (6 deputies on a team for a minimum of 4 posts) compared to the relief factor of 1.88 that is calculated in this report (4 posts would require 7.5 deputies per shift with this relief factor). By staffing the recommended posts using the new relief factor the number of deputies required would increase but the amount of overtime allocated should significantly decrease. Managers should ensure that posts are covered with a minimum use of overtime. The union contract should be adhered to and the relief factor considered in negotiations. Although the number of posts for the inmate housing area in the recommendations has not increased, the recommendation to keep those deputies in the facility at all times, for the purpose of reducing

7 Page 6 incidents and increasing communications, activities and exercise, requires the addition of court security and local transport of prisoners posts. This recommendation also requires that the exercise area of the facility is renovated to allow its use during inclement weather. The supervisor of the shift is the primary decision-maker over all the Corrections Division functions during that time period. He or she should be able to move through out the facility, free from operational assignments, while observing staff conduct, assessing inmate behavior and solving problems. 9. It should be considered that the Control Room Position be converted from a Corrections Deputy to a Control Room Technician assignment. The conversion from a commissioned deputy to a civilian position has the following advantages and disadvantages: Advantages Approximately 25%- 40% less salary per person 1 Easier to recruit and selection larger labor force Lower training time and costs Disadvantages Cannot be interchanged with other jail positions Do not have the basic law enforcement experience and philosophy reducing their effectiveness and increasing training requirements and time. 1 See appendix B for a comparison of salaries of deputy positions 16, 17, 17II with CRT 11.

8 Page The addition of new staff should be on a graduated schedule. First, the control room technicians (5) should be added to the staffing component. As the CRTs assume responsibility for the control room the supervisors will be free from working designated correction deputy posts. Allowing supervisors to move throughout the facility, observing workers behavior and ensuring that policies and procedures are followed, reduces the Sheriff s Office risk of violating vicarious liability requirements and it ensures that facility operations are constitutionally maintained. Overall, this change greatly enhances the effectiveness of the detention facility operations and supports the mission of the organization. Second, three corrections deputies should be added to reduce the use of excessive overtime needed to meet minimum post requirements. The correction deputy relief factor shows that there are not enough deputies to staff the required posts, especially on the day shift. The addition of the deputies should significantly reduce overtime and the use of compensation time that also can convert to overtime costs. Third, two corrections deputies should be hired to assume the court security and local transport positions. This action would ensure that the housing deputies would be stationed in the facility in direct contact with inmates without being removed for duties outside the facility. This strategy is critical to the safety and security of the inmates and staff in the detention facility. Fourth, a clerical support person should be added to assist the CRTs.

9 Page 8 Introduction Study Purpose and Rationale This report, initiated through a contract between Clatsop County and the, has been written for the following purposes: Assessing the present staffing levels and operational practices, Reviewing the processes and staffing for prisoner medical transports, prisoner transports to court and in-court security, Analyzing the facility layout, flow of operations, deployment of staff, and associated matters. The consultant (see appendices for a list of the consultant s qualifications) has reviewed numerous documents and data sources (see appendices for a list of requested materials), interviewed managers, supervisors, and deputies, and observed operations in the facility. The primary focus of this report is to determine the appropriate staffing allocations for the Corrections Division based on present operational requirements. Clatsop County Detention Facility Existing Situation Clatsop County, with a stable population of approximately 36,340 people 2, maintains a detention facility that is operating at a capacity daily total of 60 inmates. The County has maintained the facility at it s capacity by regularly holding approximately 20 prisoners in the Tillamook County Jail, by operating county-level community corrections programs and by funding the Sheriff s Office offender work program. The detention facility, constructed in 1978, is located above the Sheriff s Office spaces and adjacent to the County courts in the City of Astoria, Oregon. Entry to the jail is though a vehicular sallyport that is adjacent to the 2

10 Page 9 master control center and intake/release area. The master control center has audio and direct visual connection with the inmate side of visiting and the visitor s side of the visiting booth area, the sallyport and the outside walk-up window. The intake area connects to the inmate housing spaces that include all inmate cells, the nurse s office and examination room, the multipurpose room and storage rooms. An elevator connects the housing area with the rooftop exercise area and connects to the basement that houses the jail kitchen. Presently, the Clatsop County Sheriff s Office Corrections Division is managed by a Jail Administrator who supervises three sergeants, three corporals, three senior deputies, two work crew deputies and 10 facility corrections deputies. One of the deputies assigned to the Corrections Division is actually permanently assigned to the court for the security of court spaces and employees and is paid by the court. The full complement of staff operating the detention facility, not including the court security deputy, is 21 deputies. The staff primarily works in three eight-hour shift teams with two supervisors and four deputies on each team. The two work crew deputies are assigned to 4-ten hour shifts per week covering seven days of the week and overlapping on Wednesday. There are two deputies and supervisors assigned to each work team to staff a minimum of four posts master control room, intake room, two inmate housing area posts. The supervisor is required to assume a working post and facility deputies are required to conduct local transports of inmates to medical and dental appointments and court hearings. Detention facility deputies are also required to guard prisoners in court during proceedings. The supervisors arrange for overtime when there are less than four persons available for a shift. In addition, because the dayshift deputies are faced with

11 Page 10 a workload that includes numerous tasks and responsibilities they are not able to complete, supervisors are required to transfer deputies from both the swing and graveyard shifts to the dayshift. This causes those shifts to operate with a minimum number of deputies and requires that any leave on either the swing or graveyard shifts to be covered by overtime. The work crew deputies arrange for their own relief or cancel a shift if a deputy is absent. The patrol division assigns one deputy to long distance corrections transports and other deputies perform this service when necessary.

12 Page 11 Staffing Analysis Overview This report contains sections when combined result in determining the number of staff required operating the jail, constitutionally and securely, 365 days a year and 24 hours per day. A staffing analysis is a process by which the manpower needs of an organization are determined through examining the requirements of each position, listing the schedule of each post and determining the relief factor for necessary positions. The sections are summarized as follows: Shift Relief Factor - these factoring results in the number of persons required to attend different time controlled posts. Position Chart and Narrative - The chart and corresponding narrative describes the posts, shifts and total number of deputies required to cover the posts. Post Description - These are brief descriptions of the positions in the jail. Listing the tasks that are organizationally and constitutionally required in conjunction with the facility design determine jail deputy duties. Each jail facility is designed in a unique fashion. These differences require that, organizationally, each operating agency must create policies and procedures that correspond with the uniqueness of the building design. In addition, the jail policies and procedures must meet the correctional constitutional guarantees. The general jail deputy duties have been determined through verified jail deputy task analyses conducted for the states of Wyoming, Maine and Iowa. The critical areas that administrators must be attentive to are building and personal security, inmate supervision, deputy supervision and inmate services. There must be enough staff scheduled to ensure that inmates are

13 Page 12 observed, controlled and attended to on a continuous basis. Specifically, there should be available staff to operate the control rooms during the required hours, to do health and welfare checks each 20 minutes to one hour, to check the inmates and the building for security problems, to securely and accurately admit and release prisoners to and from the facility, and to supervise inmate service delivery. Control rooms are necessary to the secure functioning of a jail facility. Security is ensured in a detention institution by a strict secure perimeter. The control room functions allow the secure perimeter to exist in conjunction with the regular operations of the jail. These functions include monitoring living units, intake areas, service, and program areas and controlling security doors. The control room deputy is the security back up for the regular jail deputies and their connection to the "outside" in case of emergency. Health and welfare checks are the main concern of jail deputies who have direct contact with inmates. These checks of inmates ensure that each inmate is physically and mentally safe, that each inmate is in his or her proper location and they establish the deputy as the person in control of the environment. The health and welfare check is well documented as a basic constitutional requirement included in the appropriate supervision of inmates. Deputies are required to perform intake and releasing functions on a continuous basis depending on the arrest activity in the jurisdiction. Intake activities include controlling violent prone persons, health screening, property control, financial processing and bail release. Releasing requires the accurate processing of the inmate and his or her personal property. The intake area is usually a busy and active area where outside agencies direct their jail related inquiries concerning the status and location of inmates.

14 Page 13 Inmate services and programs that are organizationally and constitutionally required include medical services, health screening at intake, food services, laundry, passive and active recreation, visiting, access to attorneys, library services, mail and telephone access and educational opportunities. Deputies are needed to conduct and supervise these activities. Deputies, in some cases, actually deliver the services, as with intake health screening, recreation, visiting, mail, etc.; and in other instances the deputies monitor service or program activities. Medical service, food service, attorney visiting and laundry are activities that require a deputy's presence to ensure that personal and environmental security is maintained. A presence of management and agency supervision is essential to the proper and legal functioning of a jail operation. The major vulnerable areas of legal liability for managers include negligent hiring, failure to direct, failure to supervise, negligent retention, and failure to train. Management is able to protect against these "vicarious" liability areas through continuous and direct supervision of deputies. The supervisor observing and documenting inappropriate behavior overcomes negligent hiring and negligent retention issues by employees. Protection against failure to direct is a policy and procedure manual that reflects current jail practices and is used by supervisors in keeping employees accountable. Failure to supervise and failure to train are results of not having a line supervisor available to line deputies. The professionally operated jails have line supervisors assigned to every shift of the day. There is no doubt that the jail is in the unusual position of being an "around the clock" public agency with fixed posts that must be maintained. While this does not typify the operations of other agencies, the funding sources, usually the County Commissioners, are not accustomed to these problems. Because

15 Page 14 other agencies work a 40-hour week or, like some police agencies, they can adjust for missing employees; the funding people need to understand the special staffing problems of jail management. Shift Relief Factor The shift relief factor is necessary to determine the number of deputies required to staff the assigned posts for the number of hours the post is to be operated. It must be remembered that inmates are in jail 24 hours per day, seven days per week, 365 days per year. There are many jail posts that are maintained all those times. The relief factor is determined by subtracting the number of days a deputy is not on duty from 365 days and dividing that remaining figure into 365 to discover the number of deputies it would require to staff one post every day of the year. The Clatsop County Jail will require 1.88 corrections deputies and 1.73 CRT (Control Room Technicians) to cover a post that is to be manned 365 days per year. For positions not requiring a relief, the factor is 1.0 and for five day a week posts where a relief is required the relief factor is 1.35 deputies. The relief factor for the five-day a week clerical support position is Position Chart and Narrative The position chart includes the data needed to determine the number of deputies and other staff necessary to properly staff all positions. The position section lists the position or post title of the deputy assigned. The reference column contains the reference letter that identifies the post in the narrative or post description section of the report. The shift columns refer to shift 1 or day shift, shift 2 or evening shift and shift 3 or night shift. The total positions column shows the total number of posts to be staffed in a 24-hour period.

16 Page 15 The relief factor column contains the appropriate relief factor for the related post. The total posts or positions multiplied by the relief factor equals, in the last column, the number of deputies required to staff the assigned posts for the designated period of time. The posts are described and supported in the description section. Position Chart The Staffing Position Table shows the number of posts and the number of staff for a 65-bed facility with 60 inmates. The proposed staffing includes one jail administrator, six supervisors, 17 deputies, two work crew deputies, 5 CRTs and one clerical support staff. The nurses and the cook are contract positions and are not included in the analysis. Staffing Position Table Reference Position Shift 1 Shift 2 Shift 3 Post Total Relief Factor Total Staff A Jail Administrator B Sergeant/Corporal C Booking Officer D Control Room Officer E Inmate Housing/Supervision F Work Crew Officer G Court/Inmate Security Officer H Clerical Support Total

17 Page 16 Summary Staffing Position Table - Proposed Position Total Staff Jail Administrator 1 Sergeants/ Corporals 6 Correction Deputies 17 Control Room Techs 5 Work Crew Deputies 2 Clerical Support 1 Total 32 Present Staffing Position Table Position Total Staff Jail Administrator 1 Sergeants/ Corporals 6 Correction Deputies* 12 Work Crew Deputies 2 Clerical Support 0 Total 21 *This category includes the senior deputies but does not include the permanently assigned court security deputy or the long distance transportation deputy assigned from the Patrol Division. The tables show, as a result of calculations - an analysis of the detention facility workload, the design of the facility, and the relief factor - that there is a proposed increase of 5 correction deputies, 5 control room technicians and one clerical staff.

18 Page 17 Post Descriptions A Jail Administrator The administrator of this division is responsible for overseeing the functioning of the jail; scheduling staff, developing policies and procedures, budgeting, managing food and medical services, maintaining contact with outside agencies, developing agreements with service delivery organizations, training, scheduling extraditions, monitoring classification decisions and serving as the final appeal for the inmate disciplinary process. B Sergeant/Corporal - Shift Supervisor Shift Supervisor Function - The first line supervisor directs and oversees the jail operations at all times. There should be a supervisor in the jail on a 24 hour, 365-day a year basis who is directly aware of the current status of inmates and the jail situation and who is not assigned a deputy post. The schedule should be designed to ensure that there is a supervisor on duty at all times in the jail. C Booking Deputy This position, especially during the day shift, is the operational center of the jail. Law enforcement agencies, social service agencies, judicial personnel and prisoners' friends and family will continually contact the jail operations Deputies to determine inmate information. This deputy should also keep operations documentation. The admission and release functions of the Clatsop County Jail require that the assigned deputies appropriately process prisoners and accurately maintain jail records. The position includes completing booking forms, searching prisoners, issuing jail clothing and bedding, maintaining the status board and court schedule, providing bonding information and maintaining logs, and monitoring the holding cell in the intake area. Often prisoners who are dangerous or mentally ill or intoxicated are held in these areas so surveillance must be more intense as compared to

19 Page 18 the regular health and welfare checks. Presently, this position is staffed by floor deputies who leave the jail housing area to do the booking duties. Because of the design of the facility the outside contacts, the paperwork and other booking responsibilities are performed by the master control deputy putting a burden on that position. This booking post deputy should serve as a back-up to the control room deputy during the day and afternoon shifts and, additionally, as a back-up to the housing rovers on the night shift. D Control Room Deputy This deputy maintains the control room, which is the central security function of the jail, and maintains surveillance of the visiting function. This position requires that at least one deputy be assigned in the control room with the assistance of the booking deputy to operate the security equipment and maintain surveillance, 24 hours per day, 365 days per year. This post may never be left un-staffed. The deputies in these positions will monitor all surveillance equipment, monitor fire and smoke detection equipment, monitor radio transmissions, monitor all persons entering and exiting the secure area of the jail facility and serve as the visiting function security. E Inmate Direct Supervision /Housing Deputy The Inmate Direct Supervision /Housing Deputy position should be staffed by one deputy 24 hours per day, 365 days per year and by two deputies 2 shifts per day. These deputies are positioned adjacent to the inmate living unit areas of the jail, patrolling the corridors, visiting stalls and interview rooms. The patrolling is done on a continuous basis throughout the day, evening and night shifts. The primary functions of these deputies is to maintain order among inmates, search for security problems, monitor visiting, assist with the delivery of the

20 Page 19 food service, deliver the library materials, monitor the legal library materials, supervise exercise areas, initiate or create passive and active recreation activities and to conduct the necessary health and welfare checks of inmates. The health and welfare check is a vital function of the jail procedure. The deputies must observe and contact minimum and medium security inmates every 60 minutes and every high-risk inmate every minutes. The purpose of the checks is to ensure that the inmate is safe physically and emotionally. The deputies look for potentially dangerous or harmful situations. These deputies must not leave the housing areas of the jail during the shifts to do other jail or court duties other than backing-up the booking deputy. F Work Crew Deputies The work crew position should be staffed by two deputies 8 hours per day, 365 days per year. The primary function of these deputies is to maintain order among inmates, to search for security problems, to supervise activities and to conduct the necessary checks of inmates. In addition, the work crew deputy manages the work program and other community corrections programs initiated by the jail. These deputies may adjust the work schedule to cover their relief needs but jail staff may be assigned for relief in some circumstances. G Court Inmate Security Deputies Two deputies are assigned to conduct courtroom security by managing inmate behavior and to transport prisoners to court and other local functions outside the facility. These deputies work five days per week during the day shift. These deputies may provide relief for the work crew deputies and may assist with other jail duties.

21 Page 20 Every effort should be made not to use other jail deputies who are assigned posts in the facility for outside transport or court security. The long distance transports are the function of the patrol division and it has a designated deputy for that purpose. There is another deputy not included in the jail staffing who is permanently assigned to the court for staff and facility security and who has no jail responsibilities. The Court Inmate Security Deputies positions do not include the permanent court position nor do they include the long distance transport functions assumed by the patrol division. H Clerical Support The clerical position has been maintained by another division but as a result of this study one five-day a week position is included in this staffing analysis. This person should be located adjacent to the master control post and the booking post and should provide clerical support to those positions. Other jail related staff Cook The cook prepares the meals and supervises the inmate workers that are assigned to the food service support jobs. This is a contract position and is not included in the jail staffing analysis. Nurse The Nurse position is a 5 day a week post (on-call during weekends) and the staff person and the relief person are assigned through a contract with the county health department. These are contract positions and are not included in the jail staffing analysis.