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S OFA 6C-0OS TFT fo./' 7% cr i . i . - - : U.S. Department of Justice *~ fe Federal Bureau of Prisons State of the Bureau: 1996 \ccomplishments and Goals G} 48-0070495 Message from the Attorney General ver the past several years, much has obstruct the efficiency and responsiveness of been said about creating a Government Government employees have been cut dramati that is more efficient, effective, and cally in the Federal Bureau of Prisons, Since responsive to the needs of the American people. September of 1993, the Bureau has reduced in- Like all Federal agencies, we in the Department ternal management regulations by 3,650 pages, of Justice have been working very hard to do or 46 percent, just that—and | am happy to report that we have made considerable progress in our endeavors. Even as the Bureau uses strategic planning and The Federal Bureau of Prisons has been very “Reinventing Government” initiatives to prepare diligent in this regard; it began introducing for the 21st century, it must continue to cope management reforms well before the term with the day-to-day operational challenges of “Reinventing Government” was coined. The managing large groups of inmates who are Bureau's success in doing so is an excellent often difficult and sometimes dangerous. Sadly, example of how Government can increase its as this publication was going to press, an inmate efficiency and enhance its responsiveness. at the U.S. Penitentiary in Lompoc, California, went on a rampage, killing Senior Officer The Federal Bureau of Prisons has used the prin- Specialist Scott Williams, and seriously assault- ciples of strategic planning and management for ing four other staff members. We will remember almost 10 years. It was one of the first Govern- Officer Williams, as we remember all staff who ment agencies to recognize that such concepts have lost their lives serving this great Nation. as agency mission, strategic goals, and annual objectives are essential components of day-to- This State of the Bureau report is an accounting day management. Accordingly, it implemented of where the Federal Bureau of Prisons has been and has continually refined a strategic manage- over the past year, as well as an articulation of ment system that I believe is one of the best in where it hopes to go during the next one. I hope Government. Over the past few years, the Bu- you enjoy reading it, and | hope you are as proud reau has undertaken and completed a “review of as | am of our Federal Bureau of Prisons. functions,” a comprehensive review of the tasks the agency performs, with an eye toward streamlining activities and discontinuing practices that are not mission-essential. Similarly, the rules, policies, and procedures that so frequently Janet Reno BLANK PAGE 2) ~~ Message from the Director he State of the Bureau: Accomplish- tution and office have contributed to the accom- ments and Goals provides an opportu- plishments we are proud to highlight in this docu- nity to inform the public about signifi- ment. Most importantly, staff are the ones who, cant events that occurred within the Federal on a daily basis, make it possible for the Bureau Bureau of Prisons during the past year and about to carry out its mission successfully. our goals and objectives for the future. It also provides an overview of each of our correctional In carrying out this vital mission to protect soci- facilities, as well as statistical information about ety, BOP staff place their lives in the balance. our staff and inmates. Tragically, on 22 occasions in our history, Fed- eral correctional workers have been killed by Last year’s State of the Bureau was a stream- inmates in the line of duty. On April 3, 1997, lined document; by simplifying the design and Senior Officer Specialist Scott Williams was deleting the feature article and the staff awards killed by an inmate at the U.S. Penitentiary at sections, we were able to decrease the cost of Lompoc, California; the inmate also seriously the publication while still providing the public injured another officer and assaulted three more with vital information about the Bureau and its staff who rushed in to help their colleagues. In operations. This year, we are streamlining our this issue, we pay tribute to Officer Williams. publications even further by combining two We mourn his loss and extend our deepest con- annual documents—the Goals and Objectives dolences to his family. He died while serving booklet and the State of the Bureau—into one the cause of justice, and our memory of him comprehensive report. To underscore that this strengthens our resolve to uphold our mission report is a combination of two documents, we of public safety. have renamed it State of the Bureau: Accom- plishments and Goals. This consolidation makes Thank you for taking time to review this docu- sense from a financial point of view because it ment. I believe it provides useful and interest- contains costs even further, and it makes sense ing information about one of America’s premier from a conceptual point of view because objec- criminal justice organizations—the Federal tives and accomplishments go hand in hand. Bureau of Prisons. fas Wank This report is a tribute to all of the outstanding staff of the Federal Bureau of Prisons. Staff at every level of the agency participate in our strategic planning process, and staff at every insti- Kathleen M. Hawk Bureau of Prisons Fundamentals Mission Statement SB Promotes Integrity Customer Service Plan The Federal Bureau of Prisons protects The Bureau of Prisons firmly adheres to President Clinton signed Executive Order society by confining offenders in the a set of values that promotes honesty and |2 862 Setting Customer Service Standards” controlled environments of prisons and integrity in the professional efforts of its on September 11, 1993. This order required community-based facilities that are safe, staff to ensure public confidence in the each agency to develop service standards in humane, and appropriately secure, and Bureau's prudent use of its allocated re- order to carry out the principles of the which provide work and other self-im- National Performance Review. sourees, provement opportunities to assist offend- Customer Service Standards ers in becoming law-abiding citizens. B Recognizes the Dignity of All The Federal Bureau of Prisons protects Cultural Anchors/Core Values Recognizing the inherent dignity of ali society by confining offenders in the human, beings and their potential for controlled environments of prisons and B Bureau Family change, the Bureau of Prisons treats in- community-based facilities that are safe, mates fairly and responsively and affords humane, and appropriately secure. Com- The Bureau of Prisons recognizes that them opportunities for self-improvement mitted to maintaining a healthy partner- staff are the most valuable resource in to facilitate their successful re-entry into ship with the community, the BOP will: accomplishing its mission, and is com- the community. The Bureau further rec- @ In the event of an inmate escape from mitted to the personal welfare and pro- ognizes that offenders are incarcerated a Federal institution, notify Federal and fessional development of each em- as punishment, not for punishment. local law enforcement officials immedi- ployee. A concept of “family” is encour- ately and furnish them with the details of aged through healthy, supportive rela- ® Career Service Orientation the escape and the identity of the escapee. tionships among staff and organization responsiveness to staff needs. The ac- The Bureau of Prisons is a career-ori- @ At least 5 days prior to releasing an in- tive participation of staff at all levels is ented service, which has enjoyed a con- mate with prior convictions fo: a drug traf- essential to the development and accom- sistent management philosophy and a ficking crime or a crime of violence, no- plishment of organizational objectives. continuity of leadership, enabling it to tify the State and local law enforcement evolve as a stable, professional leader Officials of jurisdiction. @ Sound Correctional Management in the field of corrections. ® Notify the victim/witness of the fol- The Bureau of Prisons maintains effec- @ Community Relations lowing inmate activities within the specified time frames: tive security and control of its institutions utilizing the least restrictive means The Bureau of Prisons recognizes and > Initial Designation: 30 days. necessary, thus providing the essential facilitates the integral role of the com- foundation for sound correctional man- munity in effectuating the Bureau's mis- => Death: 30 days. agement programs. sion, and works cooperatively with other = Parole Hearing: 60 days prior law enforcement agencies, the courts, to the hearing. ® Correctional Workers First and other components of government. = Release to the community: 60 days prior. All Bureau of Prisons staff share a com- @ High Standards mon role as correctional worker, which & Furlough: as early as possible requires a mutual responsibility for The Bureau of Prisons requires high stan- before the actual furlough maintaining safe and secure institutions dards of safety, security, sanitation, and date (by phone if necessary). and for modeling society’s mainstream discipline, which promote a physically ©> Transfer to a halfway house: values and norms. and emotionally sound environment for upon acceptance at the halfway both staff and inmates. house with the acceptance date. BLANK PAGE FY 1996: The Year in Review Introduction 8 The BOP’s inmate population at the Construction continues at: FCT Beaumont, end of FY 96 was 105,432 (94,695 in its Texas (Low); FCI Beaumont, Texas (Me- The Federal Bureau of Prisons (BOP) own facilities and 10,737 in contract dium); USP Beaumont, Texas (High); FCI uses a strategic planning approach to confinement). This is an increase of Forrest City, Arkansas (Low); FCT Yazoo management. Strategic planning is 4,474 over the FY 95 year-end inmate City, Mississippi (Low); FDC SeaTac, driven by the BOP’s Mission Statement, population of 100,958 (90,159 in BOP Washington (Detention), FCI Elkton, which is supported by six broad correc- facilities and 10,799 in contract confine- Ohio (Low); FMC Butner, North Caro- tional goals that provide the framework ment). At the end of FY 96, the BOP lina (Medical); FDC Brooklyn, New York for its strategic plan. had a rated capacity of 76,442, an in- (Detention); FCI Edgefield, South Caro- crease of 4,403 beds over the rated ca- lina (Medium); and FMC Fort Devens, The agency's mission and six national pacity of 72,039 at the end of FY 1995. Massachusetts (Medical/Low/Medium). goals are reviewed by the Bureau's Ex- ecutive Staff annually at a dedicated By the end of FY 96, Bureau institutions Other projects include FDC Philadel- planning session, and then regularly were operating at 124 percent of capac- phia, Pennsylvania (Detention); FDC throughout each year to ensure that they ity. (This 124 percent figure was the av- Houston, Texas (Detention); USP Pol- continually meet the needs of socicty erage crowding rate: crowding at high- lock, Louisiana (High); FDC Hawaii and reflect the vision and mission of a and medium-security institutions was (Detention); FCI Victorville, California modern correctional agency and the significantly higher, at 154 percent and (Medium); USP Castle AFB, California challenges confronting the Bureau. Spe- 142 percent, respectively.) (High); and two USP’s (High) in the cific objectives, which fall under each Mid-Atlantic Region—one in Lee of the broad goals, are also reviewed and Through its ongoing construction and County, Virginia, and a second in a yet- modified as necessary. expansion program, the BOP added sig- to-be-determined location. nificant prison capacity during FY 96. The BOP’s current strategic plan reflects New activations included: FCI Coleman, @ The BOP has actively encouraged major issues that face the agency today. Florida (Low); FCI Coleman, Florida noncitizen inmates to apply for interna- Particular emphasis is placed on those (Medium); FCI Beckley, West Virginia, tional treaty transfers to their native that are relevant to institutional opera- (Medium) including a satellite camp; countries. This allows foreign national tions and those that impact the safety and FCI Butner, North Carolina (Low). inmates to be nearer their families while, and security of BOP institutions. at the same time, decreasing the U.S. In addition, there were 20 institutions Government's cost of housing nonciti- The following is an overview of the under some phase of development at zen offenders. Bureau's FY 96 accomplishments, ar- year’s end; these will provide an addi- ranged according to the Bureau’s six tional 25,517 beds. During FY 96, the BOP worked with the national goals. Office of Enforcement Operations and the As directed by Congress, the Bureau U.S. Marshals Service to return 472 for- Goal - Population is pursuing a privatization demonstra- eign inmates to 17 different countries. An Management: tion project at a low-security institu- additional 103 American citizens serving tion in Taft, California; the BOP is sentences in foreign countries returned to The BOP will proactively manage its currently in the process of awarding a the United States to complete their sen- offender population to ensure safe and contract for management and opera- tences. In addition, 752 inmates applied secure operations. tion of this facility. for treaty transfers in FY 96. @ The number of inmates in Commu- Goal - Human Resource The Management Selection System par- nity Corrections Centers (CCC's) and Management: allels the current merit promotion plan. home confinement programs grew to It validates and facilitates the staffing of approximately 6,100 inmates by the end The BOP will have a competent and BOP institutions at the highest manage- of FY 96. More than 70 percent of all representative workforce meeting the rial levels by providing a more structured BOP releases (some 18,000 offenders) organization's needs up to and »devond method of evaluating and selecting em- went through community-based transi- the vear 2000. ployees for promotion. It also ensures tional programs; approximately 89 per- that consideration will be given to each cent completed these programs success- B In FY 96, a total of 2,575 joo appli- qualified applicant without regard to fully. In May 1996, the Office of the cants were selected for employment with political, religious, or labor organization Inspector General, Audit Division, issued the BOP, increasing the agency’s total affiliation (or non affiliation), marital its report on the Bureau's CCC's, say- staff complement to 29,207. status, race, color, sex, sexual orientation, ing, CCC’s are “a cost-effective, safe al- age, national origin, or non-disqualifying B In an effort to foster employee de- ternative to incarceration. The BOP ef- physical handicap. velopment, career advancement, and fectively negotiated, awarded, and moni- equal opportunity, the BOP established Goal - Security and Facility tored contracts.” a formal mentoring program in January Management: 1995. The mentoring program allows in- @ During 1996 the BOP also expanded terested employees to enhance their per- the use of Comprehensive Sanctions Cen- The BOP will maintain its facilities in sonal growth and professional develop- ters (CSC’s), which are designed to pro- operationally sound conditions and in ment and to improve their potential for vide enhanced oversight and intensive pro- compliance with security, safety, and upward career mobility. The mentoring gramming for offenders, including those environmental requiremenis. program seeks to increase staff morale, on supervision who have reverted to the career success, and job satisfaction, and use of drugs, as well as inmates returning @ To enhance its ability to deal with to develop the next generation of lead- to the community after extended periods potential internal disruption in its opera- ers within the BOP. More than 1,000 of incarceration. While similar in many tions, the BOP and the Federal Bureau proteges and an equal number of men- ways to traditional CCC’s, CSC's place of Investigation (FBI) held a mock emer- tors participated in the mentoring pro- even greater emphasis on offender ac- gency exercise during the week of Oc- gram during FY 96. Program organizers countability, drug treatment, and programs tober 16, 1995, at a facility that was soon plan to revise and expand the mentoring that assist inmates in successfully reen- to be activated. (The facility, located in program in 1997, tering society. Of the approximately 250 Beckley, West Virginia, was activated on residential community programs overseen January 17, 1996.) This exercise in- s In August 1996, the Director by the BOP, 21 are now CSC’s. The involved the FBI’s Hostage Rescue Team announced the implementation of a creased use of these alternative con- (HRT) and three of the BOP’s Special new selection system for Wardens and finement options helps ease the crowding Operations Response Teams (SORT’s). Associate Wardens. The Management at traditional BOP institutions. The BOP and the FBI also conducted Selection System was endorsed by the the first joint critical incident commana Department of Justice and the Office training session for selected, senior BOP of Personnel Management, and was and FBI officials on January 30-31, implemented in response to litigation 1996, at the FBI Academy in Quantico, and pursuant to extensive study by the Virginia. This session provided both the Executive Staff. BOP and FBI with a cadre of senior of- fires and vandalism to destruction of earlier disturbances in Oakdale, Louisi- ficials who could be called upon to re- buildings and other significant physical ana (1987), Atlanta, Georgia (1987), and spond to a major incident where joint plant damage. Talladega, Alabama (1991), and that crisis resolution efforts may be neces- those lessons were applied effectively in sary. In addition, throughout FY 96, BOP The BOP’s emergency response proce- responding to the October 1995 distur- Regional Directors hosted training ses- dures generally worked well to control bances. Also, the American Federation sions on critical incident response com- disruptive inmate actions as they arose of Government Employees, Council of mand situations for BOP wardens and FBI at multiple sites. While differing strate- Prison Locals, was extremely coopera- Agents-in-Charge in those regions. gies were used—as dictated by physical tive and supportive as its officials worked plant characteristics, staffing, and the with BOP administrators at both the na- Regional SORT maneuvers and training individual situation local command per- tional and local levels. were held in each region during the sonnel encountered—all incidents were spring of 1996, involving all BOP resolved successfully. In many locations, After all of the situations were resolved, SORT's in an intense, one-week pro- this was all the more notable when con- the Director appointed an After Action gram. Also, on October | and 2, 1996, sidering the relative inexperience of Team to study each incident and make the BOP held a training session on joint many new employees who staffed the recommendations for any necessary im- command and control of oper?tions in- institutions involved. provements in BOP operations and poli- volving incidents at BOP facilities where cies. These recommendations included: FBI specialized resources (such as HRT While a number of BOP employees were reemphasizing the BOP’s reliance on its and Engineering Research) might be de- injured, there were no deaths associated unit management system in order to ployed. This training was attended by with these disturbances, and no hostages communicate with inmates, improving selected Wardens, Associate Wardens, were taken. None of these incidents facility design and equipment (particu- and Captains, and was intended to es- resulted in a breach of an institution’s larly in the medium and higher security tablish a core group of personnel that secure perimeter, and in no case was pub- institutions), developing of a number of could be assigned to serve as relief for lic safety jeopardized. This was due to additional training programs to enable on-scene crisis management staff. the appropriate security measures in staff to respond more effectively to emer- place at all BOP facilities and the addi- gency situations, and enhancing tactical @ The Bureau drew on its emergency tional precautions taken at locations response strategies and resources that response capabilities early in FY 96. where the threat level for such activity will further enable the prompt and safe From October 19-26, 1995, the BOP ex- was heightened. restoration of full control to institutions perienced a series of institution distur- undergoing a disturbance. bances that, taken together, constituted Throughout this period, the BOP the most significant period of general received excellent support from the Goal - Correctional Leadership and Effective disruption it had ever experienced Those Department of Justice, other Federal disturbances precipitated the imposition agencies, and many State and local offi- Public Administration: of the first nationwide, precautionary cials. To « large extent, this effective co- facility lockdown in the history of the ordination was the result of prior joint The BOP will manage its operations and BOP. During this 8-day period, numer- emergency training and planning con- resources in a competent and effective ous BOP institutions had problems of ducted with those agencies. It is evident manner which encourages creativity and varying degree—ranging from minor that the BOP learned many lessons from innovation in the development of exem-