HomeMy WebLinkAboutAgenda - 11-19-2024; 7-a - Report on Detention Center Operational and Staffing Assessment 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: November 19, 2024
Action Agenda
Item No. 7-a
SUBJECT: Report on Detention Center Operational and Staffing Assessment
DEPARTMENT: County Manager and Sheriff's
Office
ATTACHMENT(S): INFORMATION CONTACT:
Operational and Staffing Assessment Travis Myren, 919-245-2308
Consultant Presentation Sheriff Charles Blackwood, 919-245-2922
PURPOSE: To receive the findings and recommendations from the Detention Center Operational
and Staffing Assessment.
BACKGROUND: In response to a petition from Commissioner Anna Richards, the County
retained Matrix Consulting Group to conduct an independent, objective, and comprehensive
staffing and efficiency analysis of the Orange County Detention Center.
The scope of the assessment included:
• an analysis of current detention operations, including workload and service level objectives,
• a review of the intake and release processes,
• a comparison of current service levels to emergent best practices,
• a review of the fixed post staffing plan, and
• an analysis of current staffing needs based on the current Detention Center population.
The study noted six (6) key findings following the analysis:
• The Sheriff's Office should continue the transition to an operational model that conforms to
a podular remote designed facility rather than the linear indirect supervision module used
in the prior facility.
• Robust policies and procedures are in place, but staff lack staff awareness and
understanding of those policies and procedures.
• No detainee programs/services or in-person visitation is currently provided.
• Detainees are able to use tablets to increase video visitation opportunities.
• The facility lacks formalized minimum staffing levels.
• Staff have a limited understanding of booking and release functions and processes.
2
The report contains 38 recommendations to help address the key findings and other potential
issues identified by the consultant. In total, the staffing analysis recommends that one (1)
additional position be added to the Detention Center. The study recommends adding an
administrative position or Business Officer to perform administrative functions such as purchasing,
accounting, and budgeting, which would allow command staff to focus on Detention Center
operations rather than administrative duties. This addition would increase the total authorized full
time equivalent employees in the Detention Center from 58 to 59. This additional position can be
accommodated using vacant position authority in other areas of the Sheriff's Office.
Recommended Staffing Summary
Current
Classification Budgeted Recommended Change
Major 1 1 0
Captain 1 1 0
Lieutenant 1 1 0
Sergeant 4 4 0
Corporal 4 5 1
Detention Officer 36 34 -2
Transport Officer 4 5 1
Maintenance Tech (Laundry) 1 1 0
Administrative Assistant 1 1 0
Jail Cook Supervisor 1 1 0
Jail Cook 4 4 0
Business Officer 0 1 1
Total 58 59 1
The report also recommends:
• Creating a distinct budget for the Detention Center. Detention Center operational costs
are currently grouped with the rest of the Sheriff's Office operations. The Budget Office is
working with the Sheriff's Office to create a discrete Detention Center division for the FY
2025-26 Budget.
• Implementing in-person visitation. The Sheriff's Office indicates that in-person visition will
begin in December on Sundays from 1:00 PM to 4:00 PM.
• Implementing detainee programming in partnership with the Criminal Justice Resource
Department.
• Creating a station for two (2) housing officer posts in the housing area to supervise the
housing units, conduct well being checks, and facilitate detainee movement from housing.
This will require the installation of detention appropriate furniture and fixtures. A budget
for these improvements is under development.
• Authorizing a total of 39 Detention Officer positions for Detention Center and Transport
Team. The current budget includes sufficient position authority to accommodate this
recommendation.
FINANCIAL IMPACT: The cost of the Operational and Staffing Assessment was $57,720.
3
ALIGNMENT WITH STRATEGIC PLAN: This item supports:
• GOAL 2: HEALTHY COMMUNITY
OBJECTIVE 5. Invest in, support, train, and retain our community safety, health, and
emergency services employees and direct care workforce.
OBJECTIVE 6. Provide sustainable, equitable, and high-quality community safety and
emergency services to meet the community's evolving needs.
RECOMMENDATION(S): The Manager recommends that the Board receive the findings and
recommendations from the Detention Center Operational and Staffing Assessment.
4
Detention Center Operational
and Staffing Assessment
ORANGE COUNTY, NORTH CAROLINA
FINAL REPORT
November 7, 2024
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onu t 'ing group
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Table of Contents
1 . Project Overview and Executive Summary 1
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2. Operational Assessment 7
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3. Staffing Analysis 43
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4. Intake and Release Processes 55
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Appendix A: Descriptive Profile 59
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Detention Center Staffing Analysis Orange County, NC
1 . Project Overview and Executive Summary
Orange County retained the Matrix Consulting Group to conduct a comprehensive
operational and staffing assessment of the Sheriff's Office Detention Center This report
provides the analysis and findings of that effort.
1. Background and Scope of the Study
This study was initiated in May 2024 to provide an independent and objective assessment
of the operations and staffing needs of the Detention Center. The project team examined
current operational and staffing approaches to identify the staffing needs to provide
efficient and effective detention operations and to identify the staffing needs to provide
enhanced detainee programs and services.
The scope of the study encompassed the following:
• Assessment of current detention operations, including workload and service level
objectives.
• Outline the intake and release, processes.
• Comparison of current service levels to emergent best practices in order to identify
areas of unmet needs and opportunities to create greater efficiencies.
• Review the fixed post staffing plan and identify any improvement opportunities.
• Analysis of current staffing needs by incorporating net annual work hours into the
fixed post staffing plan.
In summary, this study, through the various steps undertaken, is designed to be a
comprehensive staffing and operations assessment of the Orange County Sheriff's Office
Detention Center.
Methodology Used to Conduct the Study
The project team utilized a number of approaches in order to fully understand the service
environment and issues relevant to the study, including the following:
• Interviews with the leadership, supervisors, and line level staff throughout the
organization. Interviews were conducted using a mixture of both virtual and in-
person meetings.
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• Observations of the operations at the Detention Center. The project team was
onsite on May 21 — 23 observing operations and shadowing staff.
• Data Collection across various functional areas in order to enable objective
analysis.
• Iterative and interactive processes in which the project team first developed an
understanding of the current organization and service delivery system, identified
issues, and assessed staffing, operational, and scheduling needs.
Throughout the process, findings and interim deliverables were reviewed with the
County and Sheriff's Office leadership.
Key Findings
As part of the analysis, there were several key findings that impact the current and future
operations of the Detention Center. Key findings and observations include:
• The Detention Center has been in operation less than three years. The transition
from a linear indirect supervision module to a podular remote designed facility
requires a different operational model. Some staff indicated concerns over this
new operational approach.
• Robust policies and procedures are in place for the Detention Center. However,
detention staff indicated during interviews they did not know that these policies
were in place or where to find them.
• Currently, there are no detainee programs/services, or in-person visitation
provided.
• Detainees have been provided tablets and these have increased video visitation
opportunities.
• There are no formalized minimum staffing levels in the facility.
• Booking and release functions are primarily handled by the Corporal and Sergeant
classifications. All staff have a limited understanding of these functions and
formalized processes.
These key findings and other analyses are provided in the body of this report.
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Detention Center Staffing Analysis Orange County, NC
Summary of Recommendations
This report represents the culmination of the study process, presenting the results of our
analysis and recommendations. The following table provides a comprehensive list of all
the recommendations made in the report. Recommendations are provided in the order
they are presented in the report.
Recommendation Summary
# Recommendation
"VENNErw- Operational Assessment
1 Continue maintaining exceptional OCSO Detention Center documentation and
promptly address the noted areas for improvement. Policies and procedures
were updated in October 2021 and, according to best practices (every three to
five years), an audit of such policies should be conducted in the near term.
2 While overtime utilization in the Detention Center is not problematic, there are
opportunities to further refine overtime budgeting, tracking, and management to
enhance OCSO operations. This includes improved overtime trend budgeting, a
discreet Detention Center budget, and "reasons for overtime" account coding.
3 Maintain the 12-hour Pitman schedule but expand the staff rotation from days to
nights from every two weeks to a six or eight-week period.
4 It would be advantageous to publicize the 12-hour rotating Pitman schedule as
part of OCSO's recruitment efforts.
5 Refine the duties and responsibilities of the Detention Center Captain and
Lieutenant position to better reflect the important managerial and operational
efforts consistent with these ranks.
6 Develop Desk Manuals outlining key duties and responsibilities for all ranks
and/or key positions in the Detention Center, beginning with the Captain and
Lieutenant positions.
7 Authorize and hire one new Administrative Assistant III or Business Officer I
position assigned to the Detention Center to help facilitate the noted
administrative changes. This position should report to the Captain.
8 Maintain one Lieutenant position in OCDC.
9 Maintain one Captain position in OCDC.
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Detention Center Staffing Analysis Orange County, NC
# Recommendation
10 Revise and refine the Detention Center Sergeant and Corporal positions to better
distinguish the critical roles, duties, and responsibilities to be performed by each
of these ranks.
11 Develop updated Human Resources job descriptions for the Detention Corporal
(currently listed as Correction Officer II) and Detention Sergeant (presently
missing). This is in addition to the aforementioned Desk Manuals outlining key
duties and responsibilities for all ranks and/or key positions in the Detention
Center.
12 In order to have appropriate daily supervision, develop an updated scheduling
policy that prohibits same-shift Sergeants and Corporals from having same-day
scheduled leave time.
13 Maintain four shift Sergeant positions in OCDC on the 12-hour rotating schedule.
14 Maintain four shift Corporal positions in OCDC on the 12-hour rotating schedule.
15 The current Transportation Corporal is not yet authorized for the Detention Center
and should be a full-time equivalent certified (deputy) Corporal position
permanently assigned to OCDC.
16 Increase transport officer staffing levels from 4 to 5 positions.
17 Capture additional transportation data as discussed in this report.
18 Maintain authorized Jail Cook staffing of four positions consistent with the
current staffing pattern. Maintain one Jail Cook Supervisor.
19 Fully authorize one sworn Corporal (as opposed to light duty) to oversee four
Detention Officers in the Transportation operation. Better capture transportation
data to better refine these staffing requirements in the future.
20 Maintain one Administrative Assistant to serve the front counter/reception area.
As practical, this can be converted to a permanent OCSO light duty assignment if
sufficient light duty is experienced by the Sheriff's Office on a consistent basis.
21 Maintain contracted medical services.
22 Ensure full and productive utilization of Detention Officers to facilitate
progressive Detention Center operations consistent with prevailing practice. This
should help mitigate future violations of North Carolina's SUBCHAPTER 14J —
JAILS, LOCAL CONFINEMENT FACILITIES.
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Detention Center Staffing Analysis Orange County, NC
# Recommendation
23 In addition to remote video visitation, implement an in-person visitation program
(public and professional) for detainees. This includes devising an appropriate
schedule that will also accommodate the Public Defender and private attorneys.
Recommended staff resources will allow this to occur if properly scheduled with
potentially concurrent detainee program efforts and attorney visits.
24 Implement detainee programs in partnership with the County's Criminal Justice
Resource Department. This should begin with up to ten hours weekly.
Recommended staff resources will allow this to occur if properly scheduled with
potentially concurrent detainee in-person visitations and attorney visits.
25 Increase the number of hours available for outdoor recreation.
26 Take full advantage of any Detention Officer work capacity by implementing
various direct supervision protocols as discussed in this report. These activities
should be memorialized in Detention Center policies and procedures and become
part of the recommended D.O. Desk Manual.
27 Revise current operations regarding deputy lateral transfers and authorized D.O.
positions held vacant as described in this report.
28 Develop a formal policy focused on reducing the operational and staffing impacts
of staff who are going through the state's correctional officer or basic law
enforcement academies. Include an approach that provides a safety net for
individuals who are unsuccessful at the law enforcement academy or field
training program.
29 Purchase a full body scanner and locate in the arrestee vestibule.
Staffing Analysis
30 Establish two housing officer posts that are physically stationed in the housing
vestibule to supervise the housing units, conduct standard and irregular well-
being checks, and facilitate detainee movement from housing.
31 Create the Programs and Visitation Rover post that will supervise the detainee
program area and in-person visitation. This post should be covered seven days
a week and consideration of post hours should be between 0800 and 2000 hours
or similar times.
32 Create a Relief Post to provide post relief and additional operational flexibility.
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# Recommendation
33 A total of two officer posts should be assigned to the booking and release area
of the Detention Center.
34 The Control Tower should be a single post as a result of other staffing and
operational changes noted in this report.
35 A minimum of one corporal or sergeant should be working each shift.
36 The recommended staffing level for the Day Shift is 7 Officers and 1 Supervisor.
The minimum staffing level for the Day Shift is 6 Officers and 1 Supervisor.
37 The recommended staffing level for the Night Shift is 6 Officers and 1 Supervisor.
The minimum staffing level for the Night Shift is 4 Officers and 1 Supervisor.
38 A total of 39 detention officer positions are recommended to operate the
Detention Center and Transport team. This accounts for an overhire of three
positions.
The following table summarizes the staffing needs by employee classification and
compares the numbers to the current budget allocation.
Recommended Staffing Summary
%�ui'rent
Classification Budgeted Recommended Change
Major 1 1 0
Captain 1 1 0
Lieutenant 1 1 0
Sergeant 4 4 0
Corporal 4 5 1
Detention Officer 36 34 -2
Transport Officer 4 5 1
Maintenance Tech (Laundry) 1 1 0
Administrative Assistant 1 1 0
Jail Cook Supervisor 1 1 0
Jail Cook 4 4 0
Business Officer 0 1 1
Total 58 59 1
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Overall, a total of 59 positions are recommended. It is a one additional position
recommended than what is currently budgeted to the Detention Center.
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2. Operational Assessment of the Detention Center
The following chapter provides an assessment of various operational aspects of the
Orange County Sheriff's Office Detention Center. This chapter's key areas of focus include
policies and procedures, roles and responsibilities, staff resource utilization, data
collection, scheduling, overtime, and other areas described in later sections of this report.
Detention Center Policies and Procedures
While a comprehensive review of the Detention Center's policies and procedures is
beyond the scope of this report, a discussion of best practices surrounding policies or
procedures is valuable.
(1.1) BeSL Practice in Policy and Procedure Development and Review
Best practices suggest a foundational approach to policy and procedure development as
well as a seven-point checklist to evaluate and audit existing policies and procedures. In
brief, policies and procedures should be developed under the following strict best
management practice principle: Only organizational policies and procedures required by
standards, regulations, or definitive operational strategy must be developed. The
Commission on Accreditation for Law Enforcement Agencies (CALEA) offers the
following guidelines to assess the need for a law enforcement policy or procedure. A
positive answer to any one of the following questions justifies inclusion into a policy or
procedure. Four "no's" and the policy or procedure should be eliminated.
• Is it required by federal laws, state statutes, local administrative rules and regulations,
or professional standards?
• Is it specified by contract?
• Is it necessary for effective operations of the organization?
• Would any harm come to the agency or its employees if it were eliminated?
These guidelines should be formally adopted concerning the development, revision, or
elimination of any of OCSO's Detention Center policies and procedures.
The following seven review protocols are also provided for consideration. Using these
guidelines as criteria for rating the adequacy of policies and procedures is generally
considered a best practice.
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• Policy & Procedure Completeness: There must be no information, logic, or design
gaps. Documents should exhibit that they have been reviewed and/or updated at
least once every three years.
• Policy & Procedure Control: The document and its described actions provide
sufficient "internal controls"' such that they result in intended and expected
outputs and outcomes.
• Policy& Procedure Clarity: Documents must be easy to read and understandable.
• Policy & Procedure Correctness: Documents must be grammatically correct and
without spelling errors.
• Procedure Context: Procedural actions must properly describe the activity to be
performed.
• Procedure Consistency: All references and terms are used the same way, and the
procedure must ensure consistent results.
• Procedure Compliance: A sufficient number of actions are detailed to ensure the
procedure(s) achieve compliance.
(1.2) Assessment of Detention Center Policies and Procedures
As noted, a comprehensive review of the Detention Center's policies and procedures is
beyond the scope of this report. However, an assessment of the documentation provided
is summarized with the following observations:
• In general, the OCSO Detention Center policies and procedures are exceptional. An
examination of the 30 sections provided reveals consistent and well-written
documentation with common headers to include: Chapter; Title; Effective Date;
Policy No.; Page No.; Amends; Rescinds; Revision Dates; Related State
Standards/Statues/Case Law; Related PREA Standards; and a Notes section. This
documentation is consistent with best practices.
• Policies and procedures are up to date with products being developed in the latter
half of calendar 2021. This aligns with best practices that suggest that
documentation be re-evaluated for updates every three to five years.
Internal controls refer to the actions taken to achieve a specific objective (e.g., recordings of transports with details
surrounding each detainee movement.)
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• The Detention Center has an 18-page Inmate Guide for detainees recently
published in August 2021.
• There are some minor opportunities for improvement based on the project team's
observations:
- Existing document control procedures should be regularly practiced and
enforced. The project team noted that, despite having formal signoffs
incorporated into each document, the Sheriff had often omitted their
signature on implemented policies and procedures. Documentation should
be provided to any party in a signed/dated format to ensure policy and
procedure approval and authorization at the highest level of the
organization.
- Protocols related to the utilization of body cameras by Detention Officers
(D.O.) should be incorporated into policies and procedures. This protocol is
relatively new at OCSO Detention Center but not yet memorialized in formal
documentation. The use of vehicle (transport) cameras has been
documented in policy 1001 Supervision and Handling of Detainees
Designated as Suicide Risk.
- Documentation regularly refers to an Operations Lieutenant, Administrative
Lieutenant, Transportation Sergeant, and Jail Administrator (as opposed to
a Major). There is no longer two separate Lieutenants in the Detention
Center, nor the other positions listed. Current ranks should be clarified in a
new (brief) policy to ensure clarity as to roles and responsibilities (e.g., a
single lieutenant is now responsible for all noted lieutenant
responsibilities). Alternatively, policies should be revised to match the
current organizational structure.
- The Detention Center Lieutenant has created several operational directives
that lack a consistent format and messaging approach compared to
existing policies and procedures. Directives included:
=> Jail Guidelines for Detainees
=> Shift Supervisor Checklist
=> Property Bag Processing
=> Detainee Personal Hygiene Item Distribution
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=> Detainee Meal Requirements
=> Dayroom Rotation and Recreation Usage
=> Laundry Schedule
=> Medical Pass Procedure
=> Night Shift Cleaning
=> Cell Search Detail
=> Lock-back Procedures
These important directives have not been formally published as policies and
procedures and lack the level of consistency and professionalism found in
previously mentioned policies and procedures and the Inmate Guide. This
should be rectified as soon as possible.
In summary, a review of the Detention Center's policies and procedures documentation
provided indicates that, in most instances, much effort has been put into devising well-
designed and professional policy and procedure documentation. Nevertheless, there are
a few opportunities for improvement, as discussed herein, that should be addressed.
Recommendation:
#1: Continue maintaining exceptional OCSO Detention Center documentation and
promptly address the noted areas for improvement. Policies and procedures were
updated in October 2021 and, according to best practices (every three to five years), an
audit of such policies should be conducted in the near term.
JCLC11L1V11 LiC11lC1 V. --
Records indicate that OCSO staff logged a total of 42,007 hours of overtime in fiscal year
2023/24, 11,612 hours (28%) of which were accumulated by the Detention Center. This
data serves as the baseline for a discussion of the Detention Center's use of overtime
and its related operational impacts.
(2.1) Overtime Usage and Staff Operations Impact
The following table summarizes the overtime use by Detention Center job classification.
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FY 2023/24 Overtime by Classification
4 Average
Job Classification Personnel Overtime Hrs. Per
Earned Hours Person
Detention Officer Trainee 5 253 In D.O.
Detention Officer 432 9,386 224
Detention Officer II 4 721 180
Detention Sergeant 4 975 244
Jail Cook 2 159 79
Jail Cook Supervisor 1 115 115
Lieutenant 1 3 3
Annual Total 11,612
Several studies have documented the negative effects that excessive overtime use can
have on employee health and wellness, one of the most significant being physical
exhaustion. Working excessive overtime can lead to physical fatigue, which can increase
the risk of accidents and injuries on the job. A study conducted by the National Institute
for Occupational Safety and Health found that correctional staff who worked more than
50 hours per week had a higher risk of work-related injuries compared to those who
worked fewer hours. A study published in the Journal of Occupational Health Psychology
found that staff who worked excessive overtime had higher levels of emotional
exhaustion, depersonalization, and reduced personal accomplishment. Various studies
suggest significant risks with working more than 14 hours per week in overtime.3 These
factors can lead to burnout, which can impact job performance and overall well-being. In
sum:
• Excessive overtime leads to more health problems.
• Excessive overtime leads to more workplace accidents.
• Excessive overtime decreases productivity.
• Excessive overtime leads to more absences and higher turnover.
2 Five of these D.O.are also included in the Detention Officer Trainee category.
3 https://www.inc.com/tom-popomaronis/science-says-you-shouldnt-work-more-than-this-number-of-hours-a-
day.html;https://www.bbc.com/worklife/article/20210518-how-overwork-is-literally-killing-us
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The following table shows the average overtime used per week by each position type and
compares it to the recommended maximum overtime use of 14 hours per week:
FY 2023/24 Overtime by Week
Average Average
Job Classification OT Hrs. / OT Hrs.
Person / Week
Detention Officer/Trainee 224 4.3
Detention Officer II 180 3.5
Detention Sergeant 244 4.7
Jail Cook 79 1.5
Jail Cook Supervisor 115 2.2
Lieutenant 3 0.1
The table shows that average weekly overtime is highest for Detention Sergeants (4.7
hours) and lowest for the Detention Center's Lieutenant. Based on studies available, this
level of overtime should not be considered problematic from a health and welfare
standpoint. Furthermore, in the project team's experience with agencies across the
country, this is one of the more reasonable overtime patterns seen in recent years.
Analysis of overtime usage on a per-employee level (as opposed to per position type)
shows there is no individual Detention Officer or other Detention Center personnel that
exceeds the 14-hour weekly overtime benchmark. The highest individual overtime earner
averaged 9.4 hours each week.
However, there is a disparity in overtime usage between various personnel. Among
Detention Officers, the lowest five overtime earners4 averaged from two to three hours
weekly, while the highest five overtime earners averaged eight to nine hours. While
voluntary overtime typically results in a proportion of personnel who strive to maximize
overtime, it is important to ensure protocols are in place to distribute overtime as
equitably as possible to avoid perceived imbalance among staff in overtime earning
opportunities.
Another metric used in overtime analysis relates to personnel expenditures, specifically
if the overtime budget (planned or actual) exceeds 10% of the total salary. While data was
not provided with respect to specific Detention Center annual budget operations, budget
data for the OCSO was available. The following chart shows the change in overtime as a
percent of salary:
4 Personnel working the full fiscal year.
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OCSO Overtime Change as a % (2019-23)
100% '
98%
96%
94%
92%
90%
88%
2019 2020 2021 2022 2023
■Salary ■Overtime
As noted by the bar chart above, the proportion of budgeted overtime is notably less than
that which is allocated to salaries. However, overtime as a percentage of salary has
gradually increased since FY2021, reaching 7.6% in FY2023. In sum, overtime based on
this 10% benchmark is presently not an issue, particularly since staff frequently take four
hours of overtime pay automatically every two-week pay period as a consequence of the
12-hour work schedule for Detention Officers.
(2.2) Overtime Budgeting and Trackin,
Despite the lack of overtime operational issues in the Detention Center, there are some
strengths and opportunities for improvement related to overtime budgeting,tracking, and
management. The following points are noted for consideration:
• Consistent with best practice, the OCSO has a separate budgetary line item for
overtime thereby allowing overtime budget and expense tracking.
• Historical evidence suggests that the development of the overtime budget for the
Sheriff's Office is generally not predicated on any historical metrics or advanced
budgeting practices. From 2019 to 2024, the original OCSO overtime budget was
$130,000 for each fiscal year. Overtime was exceeded in four out of the last five
years, with 2023 having $710,010 in overtime expenses. There are difficulties
associated with this budgetary approach as it is not based on sound financial
fundamentals. One approach to overtime budgeting is trend analysis, which often
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results in more reasonable budget estimates for which management can be held
accountable.
• As noted previously, there is no individual budget for the Detention Center and
therefore no budgetary or overtime management capability. The Detention Center
should have its own detailed operating budget as a subset of the OCSO budget
that includes its own independent overtime line item.
• There is no method by which overtime can be coded based on the reason for its
use. This lack of overtime coding results in less than informative overtime
expenses and a restricted ability to control overtime outcomes. Major reasons for
overtime typically include: 12-hour schedule OT, absentee shift coverage, special
assignment, or shift holdover. Without such coding, an organization cannot fully
address the underlying and fundamental problems that might be creating overtime
expenses (e.g. short staffing or excessive absenteeism). The inclusion of overtime
coding would prove valuable for Orange County.
In summary, overtime usage in the Detention Center is not problematic, but there are
opportunities to further refine overtime budgeting,tracking, and management to enhance
OCSO operations.
Recommendation:
#2: While overtime utilization in the Detention Center is not problematic, there are
opportunities to further refine overtime budgeting,tracking, and management to enhance
OCSO operations. This includes improved overtime trend budgeting, a discreet Detention
Center budget, and "reasons for overtime" account coding.
3. Detention Center Scheduling
The Detention Center has implemented one of the most successful work shifts in the 12-
hour Pitman schedule as this generally facilitates work/life balance and is cost-effective.
The Pitman schedule provides all staff with a scheduled three-day weekend every other
weekend.5 Our work with other corrections facilities who have implemented such
schedules have stated anecdotally that benefits of this schedule include minimizing
mandated overtime and double shifts, providing additional family time for staff, reducing
5 https://www.timedoctor.com/blogLpitman-schedule/
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attrition, and enhancing teamwork between Sergeants and line staff (as they are on a
consistent team).
There is, however, an issue with this schedule implementation that should be revisited by
OCSO. Staff rotate every pay period (two weeks) between Day and Night shifts. There is
strong evidence that rotational schedules' disadvantages far outweigh the benefits as
summarized in the following research:
Although there are a few advantages of rotating shifts over constant night
shift, including more stable circadian rhythms and longer sleep times, it has
been shown to impact on a range of health and safety outcomes, including
an increased risk of fatigue, accidents, stress, depression, and chronic
ailments compared to day shift workers. For example, rotating shift workers
reported significantly higher insomnia and excessive daytime sleepiness
compared to standard day workers. Furthermore, nurses working rotating
rosters reported more stress as compared to nurses worked in fixed rosters,
and engineers working the same shift reported poor sleep quality and
significant levels of fatigue. Another study reported a strong relationship
between a rotating roster and fatigue and sleep problems. In addition, shift
rotation has also been strongly linked to poorer mental health, particularly
depression and anxiety. The majority of these reported the possible
consequences of a rotating shift in cross-sectional studies from a chronic
point of view. Little is known about the immediate or acute effects of a
rotating shift on workers, especially those working in the emergency(fields)6
Admittedly, there are some important advantages of rotational work beyond those noted
above. This method appears more equitable in nature, as staff with seniority do not get
the more desirable "Day" schedules, and it provides staff with an equal opportunity to
have a portion of a work schedule that facilitates interaction with family and friends.
These benefits typically encourage recruitment and retention in an organization if
appropriately advertised.
In order to achieve the above benefits while mitigating hazards associated with rotational
schedules, the Detention Center should move to a shift rotation practice with lengthier
time frames than the current two-week period. It is strongly advised that this be a
minimum of six- or eight-week rotation to achieve rotational benefits and help minimize
6 https://www.nature.com/articles/s4l598-020-79093-5
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health risks. There is material published by the National Safety Council that addresses
many of these issues.' It is noted that it is common practice within law enforcement
agencies in Orange County and regionally they rotate between days and nights every two
weeks.
Recommendations:
#3: Maintain the 12-hour Pitman schedule but expand the staff rotation from days to
nights from every two weeks to a six- or eight-week period.
#4: It would be advantageous to publicize the 12-hour rotating Pitman schedule as part
of OCSO's recruitment efforts.
Utilization of Detention Center Staff Resources
The utilization of existing Detention Center staff resources is a more qualitative
assessment based on data gathered through observations and interviews and, where
applicable, juxtaposes this information against the Detention Center's policies and
procedures.
These observations are designed to assess the best use of current personnel and provide
possible options for revised operational approaches. This analysis does not focus on the
actual personnel assigned to the position and is certainly not intended to provide
accolades or disparage individuals. Recommendations developed as an outcome of this
analysis are to impact the broader classification (i.e., job description) for each of the
positions included in the assessment.
(4.1) Detention Center Captain and Lieutenant Positions
As discussed in the original Profile deliverable reviewed and corrected by OCSO staff, the
following summarizes the key duties and responsibilities of these two positions.
Detention Captain Serves as the senior manager dedicated exclusively to the Orange
County Detention Center. Beyond assisting the Major in daily
operations, the Captain performs numerous administrative
operations including external contact with hospitals and health
facilities; billings and financial services, grants management; audits
and reconciles various systems.
7 www.nsc.org/getmedia/606abdbb-ldfb-4192-9707-23e8399b956d/fact-sheet-shift-work.pdf.aspx
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Detention Center Staffing Analysis Orange County, NC
• Prepares various monthly reports; prepares 4-week work schedule;
addresses detainee and personnel issues; directly supervises
Transportation, and performs several other duties, as assigned.
Lieutenant • Responsible for varied generalist duties and special projects to
include development and update of policies and procedures,
scheduling of housing searches and canine inspections.
• Monitors HomeWAV$ (video visitation) video feeds; responds to
detainee issues regarding jail issues;manages all vendors(excluding
Kitchen), detainee hygiene program, and jail ministry program.
• Oversees kitchen supervisor; begins investigation of any official
complaints; supports detention staff, as needed; and performs other
duties, as assigned.
(4.1.1) Detention Center Captain Assessment
Beyond the summary description noted above, a review of Detention Center policies and
procedures provided additional clarity on the Captain's duties and responsibilities.
• Policy 101.0 Chain of Command/Organizational Chart — Under Section 5A of the
policy the following was noted: "Booking officers report directly to the Operations
Captain and are responsible for all admission reports and initial inmate
classification" During interviews, this distinct supervisory responsibility was not
noted by the Captain.
• Policy 205.0 Prison Rape Elimination Act Intake Screening — Under Section 3D of
the policy the following was noted: "Booking staff will ensure that all
reassessments are documented in each case in which an inmate is recommended
for a new housing unit or custody level assignment, the Operations
Captain/designee must approve inmate's movement"
• Policy 209.0 Processing Inmate Personal Property and Storage/Release of Personal
Property — Under Section 2E of the policy the following was noted: "Offenders
presenting with a home monitoring device will have the device removed. The
monitoring device will be provided to the Operations Captain/designee who will
provide it to the Administrator/designee for necessary return to the monitoring
agency."
8 https://www.homeway.com/
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• Policy 711.0 Inmate Visitation - The Captain was referenced nine times throughout
the various sections of this policy, reflecting an important role in managing the
inmate visitation program. During the interview,this distinct responsibility was not
noted by the Captain, likely due to the cessation of in-person visitations for several
years.
• Policy 807.0 Inmate Counts - Under Section 4 of the policy the following was
noted: "Daily count records will be made accessible to Shift Sergeants, the
Operations Captain, and the Jail Administrator. A record of all counts will be
maintained by the Operations Captain/designee and will be used for statistical and
other purposes"
• Policy 1001.0 Supervision and Handling of Inmates Designated as Suicide Risk -
The Captain was referenced five times throughout the various sections of this
policy, reflecting an important role in overseeing suicide risk detainees.
• Policy 1002.0 Inmate Deaths and Investigations - Under Section 3B of the policy
the following was noted: "The completed Incident Report will be submitted through
the Operations Captain to the Administrator and to investigative authorities"
As shown above, the Captain currently has a very wide array of duties assigned to the
position. The project team assesses that this position's roles and responsibilities are far
too varied and often cumbersome given its position's rank. In effect, the Captain should
be the key operations manager for the Detention Center, given that the Major is an
executive position with responsibilities well beyond the oversight of the Detention Center.
According to our interviews and based on our observations, the Captain is engaged in an
inordinate number of administrative and technical duties, many of which involve
monetary transactions. These duties were transferred to the Captain following the
retirement of financial personnel from the Sheriff's Office. These inherited duties restrict
the Captain's ability to perform core managerial services overseeing day-to-day
operations of the Detention Center and consistently undertaking the role of 'Operations
Captain' as referred to throughout policies and procedures documentation.
A civilian position should be assigned directly to the Captain to provide key support
services and absorb primary or secondary responsibility for the administrative duties
currently performed by the Captain. This position should be assigned to the Detention
Center's Administration and also provide secondary support to the Lieutenant and Major
as needed. Based on our review of potential job classifications currently assigned to the
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Sheriff, this civilian position would be suitable as an Administrative Assistant III or
Business Officer I job classification.
(4.1.2) Detention Center Lieutenant Assessment
A review of Detention Center policies and procedures provided additional clarity
concerning the duties and responsibilities assigned to Lieutenants. Note that the sections
below reference both Administrative and Operation Lieutenants which are no longer part
of the current Detention Center organizational structure.
• Policy 101.0 Chain of Command/Organizational Chart — Under Section 5A of the
policy the following was noted: "The Transportation Sergeant reports to the
Administrative Lieutenant. Shift Sergeants report through the Operations
Lieutenant to the Jail Administrator." During interviews, this distinct supervisory
responsibility was not noted by the Lieutenant.
• Policy 110.0 Prison Rape Elimination Act 2003/Zero Tolerance — The Lieutenant
was referenced three times throughout the various sections of this policy,
reflecting an important role in managing PREA compliance. During interviews, this
distinct role and responsibility was not noted by the Lieutenant.
• Policy 205.0 Prison Rape Elimination Act Intake Screening — Under sections 2D and
3A of the policy the following was noted: "All (initial classification) overrides must
be approved by the Operations Lieutenant/designee, as indicated on the form. All
reassessments that may require an inmate/detainee to be moved to another
housing assignment or custody level due to his/her perceived risk of being sexually
abused or abusive will be referred to the Operations Lieutenant or his/her designee
for final approval" During interviews, this distinct role and responsibility was not
noted by the Lieutenant.
• Policy 601.0 Special/Prescribed Inmate Diets and Modified Meal Schedules — The
Lieutenant was referenced nine times throughout the various sections of this
policy, reflecting an important role in managing this issue. During interviews, this
responsibility was referenced when discussing oversight of the Kitchen
Supervisor.
• Policy 700.0 Commissary Services and Indigent Inmates — Under Section 3B of the
policy the following was noted: "If an inmate requires additional supplies to mail
legal mail due to a legitimate and verifiable court deadline, he/she can submit a
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request through the kiosk messaging system to Administrative
Lieutenant/designee for this purpose"
• Policy 705.0 Inmate Grievances - The Lieutenant was referenced 27 times
throughout the various sections of this policy, reflecting a critical role in managing
inmate grievances. The Lieutenant, during interviews, indicated that they are
responsible for initiating investigations of formal complaints, but did not elaborate
further. Moreover, the Detention Center was unable to provide any
grievance/complaint data requested by the project team for this important
process.
• Policy 707.0 Educational and Programming Tablets - Under Section 6 of the policy
the following was noted: "Inmate complaints regarding the operation of any tablet
must be submitted in the form of a request to the Administrative
Lieutenant/designee. The Administrative Lieutenant/designee will serve as a
liaison between the facility and the tablet provider and will notify the provider of
the complaint" During interviews,the Lieutenant stated that they were in charge of
vendors, excluding the kitchen.
• Policy 709.0 Inmate Access to Courts - Under Section 4C of the policy the following
was noted: "The original copy of the Copy Request for Self-Generated Legal
Documents Form will be forwarded to the Administrative Lieutenant/designee who
will be responsible for ensuring the necessary deductions are made from the
inmates account for the copies"
• Policy 711.0 Inmate Visitation - Under Section 2B of the policy the following was
noted: "Completed Visitation Lists are forwarded to officers designated by the
Operations Lieutenant for initial approval"
• Policy 803.0 Tool Control - The Lieutenant was referenced five times throughout
the various sections of this policy, reflecting an important role in
tracking/managing tools to prevent the introduction and unauthorized distribution
of contraband or other unauthorized materials throughout the Detention Center.
This was not discussed in interviews.
• Policy 804.0 Key Control - Under Section 6B of the policy the following was noted:
"If it is suspected that a security key is lost, misplaced, stolen or compromised,the
Shift Sergeant/designee will immediately inform the Operations Lieutenant"
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• Policy 807.0 Inmate Counts - Under Section 1 H of the policy the following was
noted: "If after a search of the facility the inmate is still not accounted for,the Shift
Sergeant/designee will contact the Operations Lieutenant, and the procedures
outlined in Policy 1000.0 - Escape Plan will be implemented"
• Policy 1000.0 Escape Plan - The Lieutenant was referenced four times throughout
the various sections of this policy, reflecting an important role in this rare
occurrence.
The Lieutenant position is responsible for many duties and responsibilities, especially
since the Administrative and Operations Lieutenants have been combined into one
position. Some of these functions are memorialized in policy, and others as part of
existing practice. Many policy-related duties will not take much time overall given their
relative infrequency,while others,such as Inmate Grievances and Prison Rape Elimination
Act (PREA) workload, should be prioritized (the project team is uncertain if this is the
case).
Based on data collected via interviews and observations of the Lieutenant position, there
is a strong effort dedicated to HomeWAV video visitation review (investigative effort) and
floor support of detention staff. Other key duties such as policy and procedure
development are treated as directives and have not been formally updated.
Like the Captain, the Lieutenant position duties are not used consistent with the those
generally associated with such a rank. Duties and responsibilities should be revisited, and
major shifts should occur, including the following:
• The Lieutenant should be responsible for new employee onboarding, training
oversight, and the "Field Training Officer" (FTO) program.
• The Lieutenant position should be responsible for the scheduling of staff, taking
this responsibility from the Captain.
• The Lieutenant position should transfer the responsibility of HomeWAV video
review to shift Sergeants.
• The Lieutenant should be responsible for in-person visitation management and be
the key contact for executing and overseeing programming options facilitated by
the County's Criminal Justice Resource Department.
• Given the desires of the OCSO Executive Team, the Lieutenant position should be
the key facilitator responsible for including the OCDC in North Carolina's
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Detention Center Staffing Analysis Orange County,
membership for accredited facilities by the American Correctional Association
(ACA)9 as well as for obtaining accreditation from the National Commission on
Correctional Health Care (NCCHC).10
Based on the suggested number of changes to the duties and responsibilities of the
Captain and Lieutenant positions, a formalized document should be developed for each
position that is consistent with policies and procedures. This documentation should be
published and available for all existing and new positions working in the Detention Center.
Recommendations:
#5: Refine the duties and responsibilities of the Detention Center Captain and Lieutenant
position to better reflect the important managerial and operational efforts consistent with
these ranks.
#6: Develop Desk Manuals outlining key duties and responsibilities for all ranks and/or
key positions in the Detention Center, beginning with the Captain and Lieutenant
positions.
#7: Authorize and hire one new Administrative Assistant III or Business Officer I position
assigned to the Detention Center to help facilitate the noted administrative changes. This
position should report to the Captain.
#8: Maintain one Lieutenant position in OCDC.
#9: Maintain one Captain position in OCDC.
(4.2) Detention Center Sergeant and Corporal Positions
As discussed in the aforementioned Profile deliverable, the following summarizes the
respective duties and responsibilities of the Sergeant and Corporal positions.
• Detention Sergeants are first-line supervisors within the OCDC. Beyond staff
supervision, Sergeants are responsible for shift-related administrative work,
9
https://www.aca.ora/ACA M ern ber/ACA/ACA_Member/Standards_and_Accreditation/Accredited_FaciIity_Directory.
a
10 https://www.ncchc.ora/accreditation/
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Detention Center Staffing Analysis Orange County, NC
performing booking tasks in the Jail Management System (JMS), detainee release
support, and resolution of day-to-day issues.
• Detention Corporals provide intake and release support, perform booking-related
duties, provide work direction and support to Detention Officers, and complete
other duties as assigned. Corporals will also serve as supervisors in the Sergeant's
absence. One Corporal is also assigned to oversee the Transportation function.
The differences between Sergeant and Corporal positions are largely unclear. Interviews
with management positions did not help the project team establish any clear differences
in functions. One manager noted that "Corporals supervise staff while Sergeants perform
paperwork," and another stated that, "Detention Officers report to both/either Sergeants
and Corporals regarding inmate problems"
Additionally, field observations further compounded the lack of clarity surrounding these
positions. It was found that a Sergeant was training a new Corporal to do JMS booking
procedures despite the understanding that this was primarily a Detention Officer's
responsibility when the D.O. was assigned to Booking.
A review of Orange County job descriptions does not provide any additional clarification.
As shown below, a review of the following abstracts for Detention Officer II (Corporal),
Sergeant, and for comparison Detention Officer, is informative.
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Detention Center Staffing Analysis Orange County, NC
8/26124,11:01 AM Orange County Government-Class Specification Bulletin
�M1e 'roo
Orange County Government
z Detention Sergeant I
.�+rh L�[F4ygtr
CLASS CODE 1992 SALARY $25.07-$43.59 Hourly
$52,137.00-$90,660.00 Annually
ESTABLISHED DATE July 15,2022 REVISION DATE December 08,2022
General Description
see DS/Sergeant I.This position is not a Sworn position.
https://www.govemmentjobs.com/careers/orangecountyne/classspecs/newprint/1519320 1/1
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Detention Center Staffing Analysis Orange County, NC
8/26/24,11:01 AM Orange County Government-Class Specification Bulletin
�e� t yAo
Orange County Government
Detention Officer II
..rr8 4-,31b a
CLASS CODE 1861 SALARY $23.86-$41.49 Hourly
$49,623.00-$86,290.00 Annually
ESTABLISHED DATE July 05,2022 REVISION DATE December 08,2022
General Description
General Description
Responsible for the care and security of inmates at the jail.
Examples of Essential Functions
Examples of Essential FunctionsA position may not include all the work examples given,nor does the list
include all that may be assigned.
Maintains the security of the facility by conducting security checks,head counts,and performing cell searches and
inspections.
Performs all inmate booking functions,including searching,fingerprinting and photographing inmates,and
documenting personal property.
Maintains and updates records,logs,and reports ofjail and inmate activities,including documenting any incidents
and offenses.
Supervises inmates performing assignments,such as cleaning and maintaining the jail facility.
Assists with the cleaning and maintenance of the facility,as needed.
Identifies maintenance problems.Issues meals,clothing,linens,money,and personal items to inmates.
Dispenses medication.
Maintains canteen inventory.
Full Performance of Knowledge,Skills,Abilities
Knowledge,Skills,Abilities
Knowledge of law enforcement and corrections processes,including bonding procedures.
Knowledge of applicable state and federal laws and county and department policies and procedures.
Knowledge of basic bookkeeping practices.Knowledge of first-aid and CPR techniques.
Knowledge of modern office practices and procedures,including modern office technology.
Skill in performing basic mathematical calculations.
Skill in record keeping.
Skill in interpersonal communication.
Skill in the use of physical restraint methods and equipment.
Skill in the use of firearms,intoximeters,photographic equipment,and other standard and specialized equipment.
Skill in oral and written communication.
Supervision
Assignments are accompanied by clear,detailed and specific instructions. This classification typically does not
supervise.
https://www.govemmentjobs.con/careers/orangecountync/classspecs/newprint/l519314 1/2
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8/26/24,10:59 AM Orange County Government-Class Specification Bulletin
Orange County Government
I- N
Detention Officer
4
CLASS CODE 1445 SALARY $19.58-$34.05 Hourly
$40,731.00-$70,822.00 Annually
ESTABLISHED DATE July 27,2019 REVISION DATE January 08,2024
General Description
General Description
Work involves the responsibility of maintaining the security of the facility by conducting security checks,head
counts,and performing cell searches and inspections. The work includes performing all inmate booking functions,
including searching,fingerprinting and photographing inmates,and documenting personal property. Maintaining
and updating records,logs,and reports of jail and inmate activities,including documenting any incidents and
offenses.
Work is performed under the general supervision of the Detention Sergeant with limited leeway to exercise
independent judgment in performing assignments within strict guidelines and within the framework of applicable
rules,regulations,policies,and procedures in the performance of duties,both in terms of planning and
accomplishing work. Assignments are provided by defining objectives,priorities,and deadlines.Additional
assistance is provided for unusual situations that do not have clear precedents.Supervision over others is not
required of this position. Does related work as required.
Examples of Essential Functions
Examples of Essential Functions
The following are examples of typical work activities and responsibilities. The incumbent may be responsible for
performing other related duties and responsibilities as required or assigned. A position maynot include all the
work examples given,nor does the list include all that may be assigned.
Supervise inmates performing assignments,such as cleaning and maintaining the jail facility.
Assist with the cleaning and maintenance of the facility,as needed.
Identify maintenance problems.
Issue meals,clothing,linens,money,and personal items to inmates.
Dispense medication.
Maintain canteen inventory.
Adhere to the department's safety rules and regulations.
https://www.govemmentjobs.conVcareers/orangecountync/classspecs/newprint/1298537 1/3
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Based on a review of the job descriptions, and other information available, the following
key observations are noted:
• According to the job description, Corporals primarily function as booking officers,
as established by the following - "Performs all inmate booking functions, including
searching, fingerprinting and photographing inmates and documenting personal
property."
• Corporals do not possess supervisory duties, which was also alluded to in
interviews.
• There is no job description specific to the Detention Sergeant. Instead,the position
references the description for the Deputy Sheriff (DS) /Sergeant I. This is not
consistent with best practice as these two Sergeant positions should be very
different.
• At the time when interviews were being conducted, one of the four shift Corporals
had been vacant for nine months. No acting position had been identified, which
demonstrates the vacancy may not be critical given the current allocation strategy
of duties and responsibilities between ranks.
A review of job descriptions, paired with data collected through interviews and field
observation, shows a lack of clarity between the key roles of the Sergeant versus Corporal
position (with the exception of the Transportation Corporal).
Additionally, an internet search of job descriptions found that the Corporal position is not
a rank commonly found in a detention services environment. The limited results that were
found did, however, provide the project team with key responsibilities commonly assigned
to Detention Corporals in similar agencies:
• Corporals report to a Sergeant and provide supervisory backup, as necessary.
• Corporals serve as a training officer and/or lead, provide work directions to
subordinates, and resolve issues.
• Corporals often serve in a specialist capacity. Examples include operating in
treatment programs, administrative support, disciplinary hearings, oversight of
visiting areas, and transportation services.
The Corporal is an "advanced level" Correction Officer with supervisory capability and
specialized skill sets. Based on this overarching profile, the job descriptions for the
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Detention Center Staffing Analysis Orange County, NC
Corporal and Sergeant positions should be refined to reflect specific and differentiated
key duties and responsibilities.
The job description for the Corporal position should be refined to include, but not be
limited to, the following key duties:
• Oversight and performance of the Detention Center's booking function to include
executing intake and release consistent with policy and procedure.
• Oversight and performance of in-person visitation services.
• Oversight and performance of detainee program services provided by the County's
Criminal Justice Resource Department or other entity.
• Providing supervisory back-up in the Sergeant's absence.
Further information concerning in-person visitations and detainee program services is
provided elsewhere in this report.
The job description for the Sergeant position should be refined to include, but not be
limited to, the following key duties:
• Supervision of all shift staff of rank Corporal and Detention Officer. They would
serve as the shift supervisor.
• Maintenance and updating of all detainee records, logs, and reports.
• Documentation and resolution of any detainee incidents and offenses for final
approval by management.
• Selected HomeWAV video review for identified detainees.
• Other special projects and duties, as assigned.
Ultimately, the agency should aim to ensure that the Detention Center's Corporal and
Sergeant position's roles, duties, and responsibilities are better defined and memorialized
in appropriate County/OCSO documentation.
Recommendations:
#10: Revise and refine the Detention Center Sergeants and Corporal positions to better
distinguish the critical roles, duties, and responsibilities to be performed by each of these
ranks.
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#11: Develop updated Human Resources job descriptions for the Detention Corporal
(currently listed as Correction Officer II) and Detention Sergeant (presently missing). This
is in addition to the aforementioned Desk Manuals outlining key duties and
responsibilities for all ranks and/or key positions in the Detention Center.
#12: In order to have appropriate daily supervision, develop an updated scheduling policy
that prohibits same-shift Sergeants and Corporals from having same-day scheduled leave
time.
#13: Maintain four shift Sergeant positions in OCDC on the 12-hour rotating schedule.
#14: Maintain four shift Corporal positions in OCDC on the 12-hour rotating schedule.
(4.3) Detention Center Supporting Position:
Detention Center Supporting Positions include the following personnel:
• Laundry Services / Janitorial Support - one Maintenance Technician
• Front Counter/ Receptionist - Administrative Assistant
• Kitchen - one Jail Cook Supervisor, three Jail Cooks
• Transportation Operations - one Corporal, four Detention Officers
• Medical - Contracted
(4.3.1) Laundry, Front Counter and Kitchen
With respect to Laundry, Front Counter, and Kitchen operations, the following is noted:
• The laundry's Maintenance Technician is currently assigned detainee laundry
duties and responsibilities including linen retrieval, washing, and return.
Additionally,this position performs janitorial duties such as managing the supplies
used for detainee cleaning of personal cells. This position is currently filled by a
certified detention officer without holding that job classification. Given how the
Detention Center operates, this is the best approach to providing laundry and
detainee janitorial services. This position should be maintained at one full-time
equivalent (FTE).
• The front counter/receptionist position is assigned to the Detention Center public
lobby to answer telephones, manage attorney and social worker traffic, respond to
lobby inquiries, support the Transportation Corporal as necessary, and perform
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other duties as assigned. This position, at the time of this report, was in transition
to an Administrative Assistant from a light-duty Detention Officer. There are two
options associated with this position:
- Given the described roles and responsibilities, a permanent assignment of
an Administrative Assistant job classification would be appropriate.
Alternatively, the position could serve as a permanent assignment for any
Sheriff Office personnel currently assigned light duty, given that the job
responsibilities are not particularly complicated. To implement this
approach effectively, there must be an adequate number of light-duty
incidents (and therefore staff on light duty)to ensure this position is always
staffed.
• The kitchen's Jail Cook Supervisor and Jail Cooks begin a staggered eight-hour
schedule that begins at 4 a.m. Staff order food and supplies and oversee the
preparation of two hot and one cold meal each day for detainees (consistent with
State standards). Staff are also responsible for maintaining kitchen cleanliness.
All four authorized Jail Cook positions are currently filled after one vacancy which
was augmented with overtime or by a Detention Officer assisting in non-food
preparation activities. An examination of overtime by kitchen staff as previously
described in this report shows that the Jail Cook Supervisor had 115 hours
annually while each Jail Cook averaged 79 hours. While this level of overtime is
not significant, in order to maintain food quality and avoid any diversion of
detention staff, the current staffing contingent of 1 supervisor and 4 jail cooks
should be retained.
(4.3.2) Transportation
A Deputy Sheriff II (Corporal) is assigned oversight of intra/inter-county transportation
duties and responsibilities. Tasks include managing detainee transport schedules, billing
out-of-county transport services, facilitating involuntary commitment (IVC) transport to
hospitals, transporting to long-term facilities and detention centers, performing transport
coordination, processing Writ-related transport, serving new warrants to in-house
detainees, and providing work direction to transport officers. This team is not responsible
for transports between the Jail and the Orange County Courthouse, which is the
responsibility of the Courthouse Deputies.
Detention Officers are assigned to Transportation work in two teams of two personnel
operating from 6 a.m. — 6 p.m. Transportation personnel perform all manner of in-county
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(and some out-of-county) transport services for detainees, excluding to and from local
court (this is conducted by another unit overseen by the Major).
Transportation has maintained various records related to services that prove somewhat
informative but also lack some specificity/accuracy. The following table shows transport
data provided by code, with code definitions as follows:
• Code 36- An IVC transport when detainee is an Orange County (OC) Resident
transported from OC address to University of North Carolina (Medical).
• Code 36A-An IVC transport when detainee is not an OC Resident transported from
OC address to UNC Medical.
• Code 361- An IVC transport when detainee is OC Resident transported from UNC
Medical to another facility in North Carolina.
• Code 360- An IVC transport when detainee is not an OC Resident transported from
UNC Medical to another facility in North Carolina. These detainees in Orange
County custody result in charges to the detainees' home County for transport
service reimbursement.
Transport Data — 2019-2023
Calendar Year Code 36 Code 36A Code 361 Code 360 TOTAL
2019 141 1 228 453 823
2020 154 9 308 480 951
2021 168 5 347 563 1,083
2022 146 13 347 359 865
2023 139 21 331 415 906
Average Total 150 10 312 454 926
The data indicate that over the five year period, IVC transports averaged 926 per year or
an average of 2.54 per day, of which nearly half(49%) receive other-county reimbursement
to Orange County for services provided.
Current authorized staffing levels are 4 transport personnel of which 3 are Detention
Officers and 1 Deputy who operate 6 a.m. — 6 p.m. There is a part-time position that
provides seasonal support. This typically allows 2 officers to transport detainees but
dependent upon risk assessment, potential absenteeism, etc. 1-2 may be deployed for
each transport.
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As discussed in a separate chapter, Net Annual Work Hours (NAWH) should be
considered in fixed post deployments. Excluding the part-time position, NAWH of 1,862
per year translates into an average staffing contingent of 3.4 transport officers instead of
the authorized 4 positions. To ensure a very high likelihood of 2 officers always being
available, a fifth position should be authorized. Transportation D.O. positions, when not
providing transport services, should augment security in the OCDC facility to include
visitation areas, program areas, rover position, etc.
As it relates to addressing other potential staffing issues in transportation, current data
does facilitate deeper analysis. Present data only shows number of IVC trips, whereby
averages show 2.54 trips per day with a potential average trip length in a 12-hour shift
period of 4.73 hours. These metrics point to current adequate staffing levels; however, if
further staffing refinement is desired, the following data should be captured:
• Transports performed beyond IVC.
• Number of detainees transported per trip by (risk) classification.
• Number of miles per transport and total hours per transport.
• Number of transport officers assigned per transport.
• Percentage of IVC reimbursements collected to determine cost effectiveness of
transport services.
With these data, as number of transports change from year-to-year a more informed
decision can be made with respect to Transportation staffing levels.
Recommendations:
#15: The current Transportation Corporal is not yet authorized for the Detention Center
and should be a full-time equivalent certified (deputy) Corporal position permanently
assigned to OCDC.
#16: Increase transport officer staffing levels from 4 to 5 positions.
#17: Capture additional transportation data as discussed in this report.
#18: Maintain authorized Jail Cook staffing of four positions consistent with the current
staffing pattern. Maintain one Jail Cook Supervisor.
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#19: Fully authorize one sworn Corporal (as opposed to light duty) to oversee four
Detention Officers in the Transportation operation. Better capture transportation data to
better refine these staffing requirements in the future.
#20: Maintain one Administrative Assistant to serve the front counter/reception area. As
practical, this can be converted to a permanent OCSO light duty assignment if sufficient
light duty is experienced by the Sheriff's Office on a consistent basis.
#21: Maintain contracted medical services.
(4.4) Detention Center Detention Officer Usage
One of the key issues noted during this study was a need to identify the level of staff
necessary to operate the Detention Center effectively. Ultimately the number of staff
resources necessary is dependent on the number of fixed-post and other positions
needed compared to the amount of capacity (i.e., available time) personnel have to
perform required and desired work.
Information on the fixed post staffing plan is provided in a separate chapter of this report,
while the utilization of other positions (e.g., Captain) has been previously described in the
prior sections of this chapter. The following observations concern Detention Officer
utilization:
• The current (new) Detention Center was designed and constructed with an indirect
supervision philosophy as opposed to direct supervision. In a jail setting, direct
supervision requires that jail staff are located within the housing and maintain
direct personal contact with inmates (except when secure in their cell). Indirect
supervision in jail requires that officers supervise inmates from various (enclosed)
posts. Current operations align with the indirect supervision philosophy, as
Detention Officers are assigned to the observational Control Tower while other
Detention Officers perform mandatory rounds and related duties.
• The indirect supervision model, if not closely managed, can result in Detention
Officer downtime and subsequent capacity to perform various additional duties.
Interviews indicated that one Detention Officer position could conduct a facility
housing round in 20 minutes, while three operating concurrently could perform the
inspection in five minutes. Given that two rounds must be completed every hour,
the following additional capacity for additional duties can be estimated:
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A scenario in which one D.O. position performs a housing round results in
an estimated low capacity extra availability of 33% (20 minutes/60
minutes).
- A scenario in which three D.O. positions perform a housing round results in
an estimated high capacity availability of 83% (10 minutes/60 minutes).
• Field observations identified that Detention Officers were not taking full advantage
of this extra capacity. In fact, those assigned to housing rounds returned to the
booking area for apparent staging, performing very limited, if any, additional duties
and responsibilities. These observations were corroborated by independent (and
confidential) interviews that identified that this was not a one-off occurrence but
rather a pattern consistent with current operations.
• A comprehensive fixed post staffing plan, in conjunction with other supporting
personnel requirements, will provide the appropriate staff capacity to perform the
variety of required and desired functions of a Detention Center operation
consistent with prevailing practices. This will include the opportunity to:
- Provide consistent housing supervision rounds as promulgated by North
Carolina NCAC 14J 061(a). Two recent jail inspections performed by the
North Carolina Division of Health Regulations found that the Detention
Center was not performing consistent rounds of detainees twice every 60
minutes. This is a fundamental role of Detention Officers and failure to
perform, particularly when Officer time is available, is a significant oversight
in operational protocol.
Provide programmatic services to the detainees as well as opportunities for
in-person visitations. As discussed in more detail in the next section, these
services are important to facilitate positive detainee behavior and operate
the Detention Center in a manner consistent with progressive standards. It
is recommended this responsibility largely be overseen by Corporals with
Detention Officer support, as necessary.
• Execute direct supervision protocols and operational philosophies despite the
current indirect supervision Detention Center facility design. Given the capacity
available for Detention Officers, this time should be used wisely. Extensive
research has been performed regarding the benefits of direct supervision of
detainees and the regular interaction of Detention Officers with the jail inmate
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population. This should be considered a vital activity performed regularly by
certified personnel of the Detention Center.
In summary, there are opportunities to improve the utilization of the OCSO Detention
Officers when staffed appropriately.
Recommendations:
#22: Ensure full and productive utilization of Detention Officers to facilitate progressive
Detention Center operations consistent with prevailing practice. This should help mitigate
future violations of North Carolina's SUBCHAPTER 14J — JAILS, LOCAL CONFINEMENT
FACILITIES.
Revision of Key Operational Protocols
Similar to the utilization of staff resources, revising operations that are perceived to be
opportunities for improvement is a more qualitative assessment based on limited
observations, interviews, and recent research on effective jail operations. It is recognized
that oftentimes effectiveness, and ultimately best-practice operations, can be impacted
by the lack of staffing resources. Given this report is designed to provide staffing
requirements based on the project team's analyses, these key operational changes are
outlined.
(5.1) In-person Detainee Visitation
At the time of this report, detainee visitations are virtual and accomplished exclusively via
video feed. Since construction of the facility was completed, in-person visitations have
not yet been performed at the Detention Center despite the Lieutenant proposing an in-
person program scheduled Tuesday — Friday from 8 a.m. to 11 a.m. and 1 p.m. to 4 p.m.
This was not implemented due to perceived staffing shortages.
According to research on the topic, in-person visits are a critical component of detainee
health and wellness. According to research performed by the Prison Policy Initiative:
With few exceptions,jail video visitation is a step backward for correctional
policy because it eliminates the in-person visits that are unquestionably
important to rehabilitation while simultaneously making money off of
families desperate to stay in touch. In fact, banning in-person visits runs
contrary to both the letter and the spirit of correctional best practices as
defined by the American Correctional Association (ACA), the nation's leading
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professional organization for correctional officials and the accreditation
agency for U.S. correctional facilities."
Further research establishes the benefits of in-person contact:
Research has also found that visitation is linked to better mental health,
including reduced depressive symptoms - an important intervention for
the isolated, stressful experience of incarceration. Yet even before the
pandemic halted visitation, and despite these known benefits, correctional
facilities have made visitation hard due to remote locations, harsh policies,
and the financial incentives to replace visits with inferior video calls.12
Finally, according to Corrections1 website:
Research reflects a reduction in recidivism with inmates receiving regular
visitation from family, loved ones, clergy and mentors. Studies also illustrate
a reduction in the likelihood of repeated incarceration for those who are able
to maintain contact with family, friends and other loved ones while in jail.
Overall, results clearly illustrate that offenders with supportive social
networks were less likely to re-offend.13
The information herein does not suggest that video visitations should be terminated.
Rather, these two visitation approaches should supplement each other. Re-instituting in-
person visitations should be considered a high priority and is a desire of the current
Sheriff and other departments in the County that support detainees. Note: In-person
visitation is scheduled to start on December 1, 2024, from 1:00 - 4:00 p.m. on Sundays.
Sufficient staffing resources have been provided in this report to execute an in-person
visitation program. At issue will be devising a schedule that accommodates Detention
Center staff availability who will also be responsible for overseeing potentially concurrent
programmatic efforts for detainees. The program initiative is discussed in the next
section.
" https://static.prisonpolicy.ora/visitation/ScreeninciOutFamilyTime_January2015.pdf. Page 21-22.
12 https://www.prisonpoIicy.org/blog/2021/12/21/family_contact/
13 https://www.corrections 1.corn/prod ucts/fadIityproducts/inmate-visitation/articles/understanding-the-pros-and-
cons-of-video-visitation-systems-in-corrections-ppCagR6HnVXV5hWV/
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Moreover, in-person visitations should accommodate the needs of the Public Defender
and private attorneys during the afternoon time period when court is not in session so
they can meet with their clients to discuss plea deals and other critical items of
importance. Since the new Detention Center is no longer adjacent to the courthouse, in-
person and video conferencing needs to be instituted appropriately. However, the timing
of courts generally being out of sessions from 12:00 — 2:00 p.m. overlaps with the feeding
schedule of the jail, which has necessitated the need to halt professional visitation from
11:30 — 1:00 p.m. to ensure that detainees are provided a hot lunch and it does not
become cold while they are meeting with counsel. Opportunities may exist to modify the
timeframes for professional visitations to better accommodate the court calendars.
(5.2) Detainee Programs
Similar to in-person visitations, the provision of robust program services for detainees at
the Detention Center has not been implemented due to purported staffing issues limiting
the consistent supervision of detainees outside of the housing area. Interviews with staff
from the Criminal Justice Resource Department indicated any program services currently
being provided are provided one-on-one and not in a group or classroom setting, and
these are limited primarily to assessment interviews. The Detention Center has been well-
designed for the facilitation of classroom participation (two multi-purpose rooms
between booking and visitation booths) but lacks the staff assigned to provide oversight
and security for participating detainees and instructors.
Research is clear regarding the benefits of providing programmatic functions to inmates.
According to an in-depth research report provided by the National Institute of Justice14
the following is summarized:
First, Cognitive Behavior Therapy(CBT)programs have proven to be the most
effective in reducing prison misconduct. Moreover, these programs,
including substance abuse treatment and sex offender treatment, have
consistently demonstrated success in decreasing recidivism. Second, social
support interventions have also shown success in decreasing misconduct,
reducing recidivism, and producing cost-avoidance benefits but have
arguably been underused in U.S. correctional systems. Third, education and
14
https://www.o*p.aov/pdffilesl/nij/250476.pdf#:-:text=The°/o20objective°/o20of°/o20providina°/o20prisoners°/o20with°/o2
Oprogrammina%20is.promote%20greater%20safety%20within%20prisons%20by%20reducina%20misconduct Page
21-22.
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employment programs have, on the whole, produced favorable outcomes for
post-release employment and cost avoidance. The results for prison
misconduct and recidivism are more modest and inconsistent, although still
generally positive. Fourth, evidence indicates that it may be unreasonable to
expect interventions designed to treat mental illness to reduce prison
misconduct or recidivism. Rather,programs that address criminogenic needs
and deliver a continuum of care have shown promise in producing favorable
outcomes for offenders with mental disorders. Similarly, unless DV
interventions begin to consistently deliver programming that targets known
criminogenic needs (e.g., criminal thinking, substance abuse, and antisocial
peers), this type of programming may continue to yield disappointing results.
The County's Criminal Justice Resource Department has been regularly requesting the
opportunity to provide detainee programming, even as little as one hour per week, and the
sees the future feasibility of 10 hours of weekly programming. This request is more than
reasonable, and the implementation of program functions for Detention Center detainees
should move forward given the staffing resources outlined in this report. A schedule that
accommodates Detention Center staff availability who will also be responsible for
overseeing potentially concurrent in-person visitation efforts for detainees should also be
devised as part of this implementation.
(5.3) Detainee Outdoor Recreation
Currently, outdoor recreation opportunities are limited to one hour per week. This occurs
over a two day period where half of the housing unit (bottom or top tier) is provided
access to outdoor recreation. One of the primary reasons that more frequent outdoor
recreation is not provided is due to safety concerns and design of the detention center.
The outdoor recreation areas are located on the exterior of the facility and there is no
security zone between the building and accessible areas. As such, the current facility
design requires detention officers to conduct security sweeps of the outdoor recreation
yard and adjacent unsecure areas prior to allowing inmates into the outdoor recreation
area. With the current consistent schedule this increases the likelihood of security
breaches and introduction of contraband from outside the facility.
While one hour of outdoor recreation per week meets the minimum state requirement, it
should be increased. There are many advantages to increased outdoor recreation
opportunities for detainees, including improved morale, behavior, medical, and mental
health benefits. For these impacts to be realized, the OCSO needs to provide more
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outdoor recreation opportunities. This can be accomplished by implementing the
following changes:
• Ensure that the outdoor recreation yard and adjacent unsecure exterior areas are
searched during each shift and throughout the shift, on variable schedules.
• The recreation schedule should be sporadic so that it is not publicly known when
recreation will occur.
• With the recommendation to redeploy staff throughout the facility, increase the
frequency of detention officers coming through the housing units and recreation
yards while detainees are utilizing the recreation yard.
The implementation of these operational changes will give the OCDC the ability to expand
outdoor recreation opportunities.
(5.4) Detainee Direct Supervision
While there are benefits and disadvantages to the direct and indirect supervision of
inmates in a jail facility, the predominant and progressive thinking is that direct
supervision advantages outweigh the detriments. According to Lexipol co-founder
Gordon Graham, "Direct supervision jails are not new, but some people still don't get the
concept, which is about modifying inmate behavior and staff being in control"15
However, the design of a correctional facility can impact its ability to execute these
supervisory models. The Sheriff's recently constructed Detention Center was built on a
philosophy of indirect supervision, whereby a secure 'Control Tower' oversees, through
windows, the detainee housing units. This does not suggest, however, that various direct
supervision protocols cannot be regularly and effectively executed, particularly if
Detention Officer personnel have available time. According to an important article written
for Correctionsl, the following was noted.-
At the county jail I work in, we made a drastic switch from direct supervision
to indirect housing units. The effects were actually profound if one pays
attention to all the idiosyncratic tenants of psychology. With direct
supervision, the inmates had a 24-hour-a-day view of the corrections deputy.
There was no mistake or misinterpretation that the housing unit belonged to
15 https://www.corrections1.corn/facility-design-and-operation/videos/consider-direct-supervision-in-your-jail-
6zclgZsuQcStfXV/
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the deputy and that the inmate population was subservient to the whims of
the deputy. I noticed that with this style of supervision destruction of property
was a rare occurrence, PREA violations were very well constrained, and
incidents of deputies having to use force were generally low. As we made the
switch to indirect supervision 1 noticed a general change among the inmates.
This new style required deputies to conduct watch tours on an hourly basis
and be in the housing units for laundry pass, med-pass, and other operational
requirements. The change was subtle at first, but it become very clear after
several months. The inmates no longer viewed the jail as belonging to the
deputy, they perceived it as the inmates'domain.
(To mitigate this) our department implemented a direct/indirect style of
supervision in which deputies were constantly in and out of all the housing
units showing officer presence, making erratic watch tours, conducting
thorough cell inspections, and utilizing order-maintenance policing to deter
even the most minor of violations. With this style, we have made great
progress to take back control....16
Current Detention Center protocols were developed around the design of the facility,
resulting in infrequent direct interaction. These methods are less preferable compared to
the regular supervision of detainees by a Detention Officer. These types of direct
supervision benefits are widely discussed in another Corrections1 blog.17
The OCDC should devise Detention Officer procedures (in part, included in the
recommended D.O. Desk Manual) that implement regular direct supervision activities in
the detainee housing units. Ideally,this should include more than the state minimum one-
hour weekly for recreation yard hours as it is a noted benefit to improve inmate well-being
(and thus behavior).18 This will take full advantage of any work capacity that current and
future Detention Officers have that is not occupied by State-required duties and
responsibilities.
16 https://www.correctionsl.com/corrections/articles/whats-the-difference-between-direct-and-indirect-supervision-
P6m8DgdC1 KpYgioR/
17 https://www.correctionsl.com/officer-safety/articles/opinion-why-direct-supervision-is-needed-in-jails-
8DPMg5lvQB1AHU09/
18 https://iaapl.ora/content/51/l/103
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(5.5) Assignment Strategies of Sheriff Personnel
The OCSO and County have adopted a few personnel strategies that do not facilitate
effective Detention Center staffing. These include:
• Lateral transfers from other law enforcement agencies to the OCSO deputy ranks
are frequently assigned to the Detention Center as an interim step for several days
extending possibly beyond a month to learn jail operations and interface with
detainees to gain experience communicating with an arrestee population. This is
not a practical use of deputized lateral staff as:
- Laterals are not sufficiently trained in detention operations to be of
significant value to Detention Officers.
- Given the short stay of laterals before deploying to Patrol, there is really no
formal jail FTO training or particular assignment strategy for them.
- Lack of training, therefore, increases Detention Center operational risk.
Current indirect supervision operations do not facilitate frequent contact with detainees
to facilitate better communication and other soft skills. Laterals must work adjacent to
detention officers as they generally do not lack correction officer certification and cannot
be counted against minimum staffing levels.
Another challenge noted with current operational approaches in the jail includes:
• Authorized Detention Officer positions that are approved for transition to a OCSO
field deputy position are left vacant during the period from BLET (academy)
training through the FTO program. This allows the employee to return to the
Detention Center in the event becoming a Deputy is not practical (due to desire,
program failure, etc.). This results in a long-standing several month D.O. vacancy
that impacts Detention Center staffing operations.
While this approach may be perceived as employee-friendly and progressive, it
typically is only effective in larger jails that have the capacity to absorb a staffing
loss. In smaller jails, such as OCDC, the margins between minimum staffing and
desired staffing levels are too narrow to effectively implement this kind of"position
held open" strategy. Because of the important staffing impact on the Detention
Center, this protocol should be discontinued. In sum, if Detention Officers wish to
become OCSO deputies and fail regardless of reason, they will need to re-apply to
Orange County for any vacant Detention Officer position.
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There are two opportunities for improvement related to lateral transfers and the impacts
of staff who are the corrections or law enforcement academy. These include:
• The OCSO and the Detention Center need to create a formalized field training
program for lateral transfers. This training program would be required for all lateral
transfers and include a minimum timeframe that all transfers must work at the
Detention Center. The training program would be similar to the training program
for new hires and would equip staff with the necessary skill sets to support
operations in the Jail. Also, this approach would require a minimum number of
shifts that must be worked in the facility prior to being eligible to transfer to another
Sheriff's Office function. Lateral transfers should be assigned specific duties (as
appropriate) to support the operational and security needs of the Detention Center.
• OCSO should collaborate with the County's Human Resources Department to
develop a strategy to address the vacancy challenges associated with detention
staff in the correction officer or law enforcement academy. While the current
approach provides the ability to retain staff in the event they washout of the law
enforcement academy, it negatively impacts the staffing and operations of the
detention center. This issue may be addressed through an overhire practice to
have more detention officers position budgeted to account for academy vacancies,
revision of the policy to not hold positions for the officer if they washout of the
academy or Deputy FTO program and instead provide them with
preferred/prioritized candidacy in the next detention officer hiring process or limit
the number of officers going through the law enforcement academy to one
individual per class, etc. The County should explore creative and flexible ways to
ensure that staff who take the initiative to pursue law enforcement certification but
maintain a safety net if it does not work out. It is recommended to resolve this
issue through an overhire practice in the staffing recommendation.
(5.6) Arrestee Screening Equipment Need!
To ensure optimal security of the facility and the wellbeing of the arrestee (and others),
the Detention Center should purchase and use a full body scanner. A full body scanner
will allow staff to image the arrestee or individual returning to the facility for contraband
items. Full body scanners allow staff to search the inmate without having to perform a
strip or full body search. This is especially helpful in the event that when a same sex
officer is not immediately available for a search. Full body scanners are extremely
successful in finding small quantities of drugs on the arrestee, which reduces the
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likelihood of narcotics being introduced into the facility. The cost and positive benefit of
a full body scanner outweighs the initial purchase cost.
Recommendations:
#23: In addition to remote video visitation, implement an in-person visitation program
(public and professional) for detainees. This includes devising an appropriate schedule
that will also accommodate the Public Defender and private attorneys. Recommended
staff resources will allow this to occur if properly scheduled with potentially concurrent
detainee program efforts and attorney visits.
#24: Implement detainee programs in partnership with the County's Criminal Justice
Resource Department. This should begin with up to ten hours weekly. Recommended
staff resources will allow this to occur if properly scheduled with potentially concurrent
detainee in-person visitations and attorney visits.
#25: Increase the number of hours available for outdoor recreation.
#26: Take full advantage of any Detention Officer work capacity by implementing various
direct supervision protocols as discussed in this report. These activities should be
memorialized in Detention Center policies and procedures and become part of the
recommended D.O. Desk Manual.
#27: Revise current operations regarding deputy lateral transfers and authorized D.O.
positions held vacant as described in this report.
#28: Develop a formal policy focused on reducing the operational and staffing impacts of
staff who are going through the state's correctional officer or basic law enforcement
academies. Include an approach that provides a safety net for individuals who are
unsuccessful at the law enforcement academy or field training program.
#29: Purchase a full body scanner and locate in the arrestee vestibule.
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3. Staffing Analysis
This chapter will analyze the fixed post staffing plan for the Orange County Detention
Center (OCDC). This will include an overview of each post, hours of operation, and
identification of total staffing need based on officer net annual work hours.
Fixed Post Staffing Plan
This section will provide an overview of the recommended fixed post staffing plan. A
fixed post staffing plan identifies each of the posts (positions) in the jail and the hours of
operating. The analysis, findings, and conclusions present a significantly different
recommended staffing and operational approach than current deployed in the Detention
Center.
(m) Station the Housing Officer in the Housing Vestibule
The design of the Detention Center is an indirect supervision model where the housing
officer is not stationed in the housing unit and directly supervising detainees. Officers
conduct standard and irregular housing unit and detainee checks and meet minimum
visual checks per statue. When officers are not directly present in the housing unit,
supervision of the unit is remotely via cameras through observational Control Tower
(which also has a direct line of site from the control tower into the unit) and by staff in
booking who have direct video feeds from the housing unit cameras. When officers are
not in the housing unit, they were observed to primarily remain in the booking area or
records area behind the booking desk. Officers are generally only in the housing units
when they are making their required rounds, detainee counts, pill pass, meal distribution,
or when they escort an individual to/from the unit. The current approach is not ideal and
should be modified.
At current population levels, it is recommended to station two officers in the housing
vestibule that is immediately adjacent to the housing units. This will require the creation
of two workstations in this space. In the event that average daily population levels
increase and remain greater than 100, then three staff should be posted in this area.
Officers should be located in close proximity to the housing units they are tasked with
supervising. By moving officers to this physical location, it will improve security of the
facility, improve proactive communication with detainees, and improve response times
during critical incidences. Also, this modification will help stagger housing unit checks
and create more irregular checks. This irregular schedule is important to maintain
security and will also reduce the need for officers to say they will have to get back to a
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detainee when they have a question. Officers tend to conduct their housing unit checks
more in a perfunctory fashion and may be rushed if they have not completed their checks
within the mandated timeframes.
Housing Officers should be conducting random and mandatory detainee safety and
wellbeing checks more frequently, and less based on meeting minimum standards.
Challenges with conducting detainee wellbeing checks within the prescribed thresholds
was noted as a deficiency in the past two State annual inspections. Positioning two
officers in the housing vestibule and requiring more frequent checks, will have a
significant positive impact on detainee well-being and facility safety. Two officers will
also provide additional support in the A Pod when a challenging detainee is out of their
cell.
This operational and staffing modification will also prevent officers from congregating in
the booking area and being physically removed from the housing unit. As detainee
programs and services are added, it is critical to position staff in the housing vestibule to
facilitate detainee movement to and from the housing unit. These two posts would be
operated continuously. If the population is greater than 100 detainees, then a third post
should be added during the day shift and drop to two posts on the night shift.
To accommodate this change, the vestibule area will need to be modified. This will
require the purchase (or construction) of detention grade officer workstations,
computers, desk chairs, equipment, etc. for staff to be stationed in the vestibule.
RorrnmmondatlnrT
#30: Establish two housing officer posts that are physically stationed in the housing
vestibule to supervise the housing units, conduct standard and irregular well-being
checks, and facilitate detainee movement from housing.
(1.2) Create the Program and Visitation Rover Post
As recommended in the Operations Chapter, there is a strong emphasis in the County to
expand detainee programming and in-person visitation at the Detention Center. Currently,
neither of these activities are occurring. To accommodate these desired activities, it is
recommended to create the post of Program and Visitation Rover.
The Program and Visitation Rover post is responsible for supervising the inmate program
and visitation areas. They may also help facilitate supervision of in-custody video court
proceedings when programs and visitation are not occurring. Both programming and in-
person visitation would be allowed for detainees who are properly classified and thus do
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not require constant supervision. The Program and Visitation Officer would float between
the program and visitation areas of the Detention Center which are adjacent to each other.
This post would also assist with detainee movement and escort supervision between the
housing unit, program/visitation, and video court areas. As noted in the Operations
Chapter, the Corporal position would facilitate these services and could periodically
provide direct support to this rover post. The rover post would be within hearing distance
of both visitation and programs.
The Program and Visitation Rover post would be staffed on the day shift. Consideration
may be given to flexing the hours of the posts to start later (e.g., 0800 or 0900 hours) so
that programming and visitation may extend into the early evening hours. Volunteers may
provide detainee programs and thus coverage is warranted outside of typical business
hours and on the weekend.
Recommendation:
#31: Create the Programs and Visitation Rover post that will supervise the detainee
program area and in-person visitation. This post should be covered seven days a week
and consideration of post hours should be between 0800 and 2000 hours or similar times.
(1.3) Add a Relief Rover
A corrections, detention or jail facility requires certain posts to be filled continuously to
maintain a safe and secure operation. Some posts have greater operational flexibility
based on workload and primary work tasks, but some posts cannot be vacated at all. To
accommodate the relief of all posts within the facility, it is important to establish a relief
post. The relief post will have the following primary responsibilities.
• Provide relief for all officer posts throughout the facility.
• Assist with detainee movement/escorts.
• Assist with in-custody video court proceedings.
• Accompany detainees on emergency medical transports.
• Receive shipments outside of normal business hours.
• Provide additional support during peak volumes in booking and release or assist
with non-cooperative inmates.
• Conduct perimeter checks of the facility and property.
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• Assist with outdoor recreation supervision.
These are just a few of the duties that the Relief Rover may complete on their shift. Their
primary responsibility will be to relieve other posts so officers may take a break,
participate in training, or other related duties. The Relief Post will provide additional
operational flexibility as needs arise.
Kecommenaation
#32: Create a Relief Post to provide post relief and additional operational flexibility.
(1.4) Booking and Release Posts
The booking area is often one of the most volatile areas in a detention center. The
processing of arrestees can be an emotional time for the individual, they may also be
under the influence of various substances (e.g., alcohol, narcotics, prescription
medications, etc.) and this can pose both safety and security issues, and occasionally
they may have weapons or drugs on them that were not found by the arresting officer.
The combination of these potential issues creates the greatest safety concern for the
facility. These potential challenges may also be expanded when individuals return to the
facility from court, medical appointments, or other agencies. Throughout the booking
process and prior to moving to a housing unit, booking officers must also supervise
individuals in the booking area. This includes individuals who may be in single or group
holding cells, open booking seating, the video courtroom, or being booked or released.
Individuals who require enhanced or direct supervision may also be periodically housed
in Booking. There is significant detainee movement in the booking area. Adequate
staffing levels are imperative to ensure the safety of all individuals in this area.
The following table summarizes the historic number of bookings.
Historic Bookings (2019 — 2023)
2019 2020 2021 2022 2023
Total Bookings 2,446 1,107 1,442 1,647 1,917
Daily Average 6.7 3.0 4.0 4.5 5.3
With an average number of bookings ranging from 3.0 in 2020 to a high of 6.7 in 2019,
there is not a significant workload associated with the processing of new arrestees. The
number of releases would align similarly per day but may fluctuate depending on court
schedules and be slightly higher Monday through Friday.
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With this level of workload, it is recommended to maintain two posts in the booking and
release area. One post will focus on the intake and processing of arrestees and the other
will focus on releases and transfer. However, both posts should be cross trained to
support each other. The Corporal and Sergeant posts should also assist in the booking
and release functions during peak times.
Recommendation:
#33: A total of two officer posts should be assigned to the booking and release area of
the Detention Center.
(i.*) Controi Towei
There is currently one or two posts assigned to the Control Tower,which is central control
for the facility. This post is responsible for operating all doors within the secure building
perimeter, along with operating the vehicle sallyport doors. The only door that is not
consistently operated by the Control Tower is the door between the arresting officer
processing area and intake/release, which is controlled by booking and release staff.
The Control Tower is staffed 24/7 and should continue to be a single post. While the
workload of this position will increase with more detainee movement with the addition of
programs and in-person visitation and housing officers entering the housing units more
frequently, the workload is manageable for a single post.
Recommendation
#34: The Control Tower should be a single post as a result of other staffing and
operational changes noted in this report.
(1.6) Corporals and Sergeants
As discussed in the Operations Chapter, the roles of Corporals and Sergeants should be
modified and encompass more duties. As the roles and responsibilities evolve, their
primary duty should be the supervision of the detention center operations. This will
include the assisting of all posts, regular and irregular movement throughout the facility,
and addressing operational issues. Due to the current schedule configuration of four
squads with both a corporal and sergeant assigned to each squad, a minimum of one
corporal or sergeant should work each shift. If only one is working, they will serve as the
shift supervisor and the sergeant will serve as the shift supervisor if both are working.
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Recommendation:
#35: A minimum of one corporal or sergeant should be working each shift.
(1.7) Desired and Minimum Staffing Levels
For the safety and security of detainees and staff,there should be a minimum number of
staff to operate the facility at all times. There is no policy in place by the Sheriff's Office
that outlines the minimum staffing level of the detention center. The following table
outlines the desired and minimum staffing level for the detention center for both the day
and night shifts.
Desired and Minimum Staffing Posts
Desired Minimum Desired Minimum
Post Day Shift Day Shift Night Shift Night Shift
Control Tower ✓ ✓ ✓ ✓
Housing Officer #1 ✓ ✓ ✓ ✓
Housing Officer #2 ✓ ✓ ✓
Booking ✓ ✓ ✓ ✓
Release ✓ ✓ ✓ ✓
Programs Rover ✓ ✓
Relief Rover ✓ ✓
Corporal / Sergeant ✓ ✓ ✓ ✓
Total 8 7 7 5
The desired staffing level for the Day Shift is 8 (7 officers plus one supervisor). The
minimum staffing level of the Day Shift is 6 officers and one supervisor for a total of 7
posts. On the Night Shift, the desired staffing level is 6 officers plus a supervisor. A
minimum of 4 officers and one supervisor is recommended for the Night Shift.
Recommendation:
#36: The recommended staffing level for the Day Shift is 7 Officers and 1 Supervisor. The
minimum staffing level for the Day Shift is 6 Officers and 1 Supervisor.
#37: The recommended staffing level for the Night Shift is 6 Officers and 1 Supervisor.
The minimum staffing level for the Night Shift is 4 Officers and 1 Supervisor.
2. 1 otal Staffing Neeas
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The following sections will outline the total staffing needs to operate the Orange County
Detention Center.
(2.1) Calculating the Net Annual Work Hours (NAWH)
When analyzing the staffing needs for detention operations, it is important to calculate
the availability of staff throughout the year. A single person is not available to provide
coverage for their post for the total number of hours scheduled to work. Staff have to
complete training to maintain their certifications and will take paid and unpaid leave time
throughout the year. Consequently, it is important to calculate net availability for
variables such as time off for vacation, sick leave, training, light duty, and other hours
when staff are not available.
To calculate net annual work hours, the project team used a baseline of 2,190 hours per
year. The baseline of 2,190 hours annually encapsulates the current 12-hour shift
schedule and an 84-hour bi-weekly pay cycle. This results in an additional 110 hours per
year when compared to a traditional 40-hour per week schedule.
The following factors are considered in these net availability calculations:
• Work Hours per Year - Total number of scheduled work hours for officers, without
factoring in leave,training, or anything else that takes detention officers away from
normal on-duty work. This forms the 'base number' from which other availability
factors are subtracted from. Based on a two week pay period.
Base number (12 — hour shift schedule): 2,190 scheduled work hours per year
• T^+al vacation, Sick, and Holiday Leave Heir, (subtracted from total work
hours per year) Includes vacation, sick, and holiday leave — anything that would
cause an officer normally scheduled to work on a specific day to be absent. As a
result, this category excludes on-duty training. Also, this category includes the
total number of hours per year spent completing other tasks that may be
identified as unpaid leave, bereavement leave, military leave, and time not
captured in other areas.
Calculated from Orange County data: 164 hours of leave per year
• Light Duty Hours (subtracted from total work hours per year) The total number
of hours spent per year for staff that were on lost duty. Classified as total lost days.
This does not include restrictive injury classification as staff are able to work in
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the Control Tower.
Calculated from data: 14 hours of leave per year
• On-Duty Training Tirim - (subtracted from total work hours per year) The total
number of hours spent per year while completing training. The number is based on
the desired average of 40 hours of training annually per year. This assumes that
all training will occur on shift.
Goal: 40 hours of on-duty training time per year
• 12 — Hour Shift Differential Comp Time Due to the 12-hour shift schedule,
there are 110 hours of overtime built into the schedule each year. Orange County
prefers to not pay overtime or provide compensatory time at time and a half for
the hours above 40 hours per week, additional hours must be provided to staff to
take time off.
Estimated: 110 hours of additional time off for shift differential
• Net Availability - Given the total number of hours in which officers are actually
available to work after accounting for all leave, as well as on-duty training, in
addition to other time. This is calculated by beginning with the total number of
scheduled work hours and subtracting each of these factors.
Calculated from previously listed factors: 1,862 net available hours per Officer.
The result of the calculation of these factors is the net availability of officers — the
average number of hours in which a detention officer is available to work a post after all
types of leave,vacation, sick time, on-duty training, and other tasks have been considered.
The following table outlines this calculation process.
Net Annual Work Hours Calculation
12 - Holir.Rhift
Base Annual Work Hours 2,190
Average Leave Hours - 164
Light Duty Hours - 14
Shift Differential Time Off - 110
On-Duty Training Hours - 40
Net Available Hours Per Officer = 1,862
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The result of the calculation of these factors is the net availability of detention officers —
the average number of hours in which an officer is available to work a post after all types
of leave, vacation, sick time, on-duty training, and other tasks have been considered.
Detention officers are available on average 1,862 hours per year to work their assigned
post.
(2.2) Applying NAWH to the Recommended Fixed Post Staffing Plan
The net annual work hour calculation was applied to the recommended fixed post staffing
plan to determine the total staff needed to operate the Detention Center. This calculation
was completed for the current 12 — hour shift configuration to determine the total security
staffing need.
The following tables summarize the security staffing needs.
#of #of # Total
Relief Day Night Days/ Hours/ Hours FTE's
Post Req? Shift Shift Week Week /Year NAWH Required
Control Tower Yes 12 12 7 168 8,760 1,876 4.7
Housing Officer #1 Yes 12 12 7 168 8,760 1,876 4.7
Housing Officer#2 Yes 12 12 7 168 8,760 1,876 4.7
Booking Yes 12 12 7 168 8,760 1,876 4.7
Release Yes 12 12 7 168 8,760 1,876 4.7
Programs Rover Yes 12 7 84 4,380 1,876 2.3
Relief Rover Yes 12 12 7 168 8,760 1,876 4.7
Total Detention Officer 30.6
Corporal No 12 12 4
Sergeant No 4
Total Supervisors 8
A total of 31 detention officers are needed based on the recommended fixed post staffing
plan and the net annual work hours.
(2.3) 11 RIVI NV1,.....y Staff -k ,....,,., r into the Staffing Needs
The previous staffing calculations do not account for staff turnover. To determine the
total number of staff to be authorized for the Detention Center, an overhire component is
consistent with best practice. It is important to consider the number of vacancies that
currently exist, as well as the rate of turnover.
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An agency is rarely fully staffed, as there are vacancies that occur as a result of
retirement, termination, promotion, reassignment, and other factors. When these events
occur, it takes a significant amount of time to recruit a new position, complete the hiring
process, for the new hire to be trained to be a Detention Officer, and complete the FTO
program before the individual can independently work. Given this consideration,
agencies must always hire above the number needed to provide adequate staffing
resources (overhire).
Overhire, as noted, is consistent with best practice and is considered progressive as it
allows for continuous hiring in order to help avoid the disadvantages associated with
short staffing. There are, however,two particular elements associated with overhire that
need to be considered: authorized overhires versus authorized and funded overhires.
• Authorized overhire positions are those requested by the associated department
and confirmed by the governing body in a position control or other document. They
are, however, not funded positions, thereby requiring subsequent confirmation by
the governing body if these are ultimately occupied by personnel. This approach
allows for the department in question to engage in continuous hiring, but also
requires a subsequent (expected) approval from the governing body for funds to
expend monies on these overhire position types. Authorized but not funded
overhires are considered an additional, but onerous, internal budgetary control.
• Authorized and funded overhire positions confirm by the governing body in the
annual budget both the approval of positions but also that funds are immediately
available to fill them. Monies for these positions are "front-loaded" into the
department budget and are therefore managed over the year accordingly. This
overhire approach is less constricting than the former but may be perceived as
providing excessive budgetary flexibility (unless certain budget restrictions are
applied) as these funds could potentially be used for other needs through inter-
fund transfers. Authorized and funded overhires can result in end-of-year
budgetary surplus for a department.
In sum, a selection needs to be made with respect to authorized versus authorized and
funded overhire positions. Generally, for local governments that deploy this progressive
approach, the authorized and budgeted overhire is somewhat more common, but both
approaches are in use nationally.
The overhire practice should become a permanent component of the Detention Center
staffing plan. The amount of `buffer' the Jail requires should be based on the historical
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rate of attrition. To determine this buffer,the project team evaluated the historic turnover
rate for detention certified staff assigned to the Detention Center.
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Detention Center Turnover (FY 19/20 - FY 22/23)
Promoted to
Deputy Sheriff
FY 19/20 5 0
FY 20/21 3 0
FY 21/22 5 0
FY 22/23 4 4
Average 4.3 1.0
On average over the past four fiscal years, an average of 4.3 detention staff have left the
Detention Center. Based on the current budgeted position count of 51 detention staff,this
is an average turnover rate of 8.4%. Additionally, the Detention Center has averaged one
individual promoting from a detention officer, corporal, or sergeant to a deputy sheriff.
However, this is skewed by a total of individuals transitioning to law enforcement during
the last fiscal year and this is expected to continue this and next fiscal years.
To account for the impact of turnover in the organization, additional staff positions should
be budgeted. This approach provides a staffing buffer to reduce the time between when
a vacancy occurs and is filled. Typically, we utilize half the historic turnover rate to
determine the additional staffing needs to account for turnover. Therefore, 3 additional
detention officer positions should be authorized to account for turnover and staff who are
in the corrections or law enforcement academies.
A total of 39 detention officer positions (authorized) are recommended. This includes a
total of 31 detention officer positions for the detention center fixed post staffing plan,five
officers for Transport, and three overhire detention officer positions.
Recommendation:
#38: A total of 39 detention officer positions are recommended to operate the Detention
Center and Transport team. This accounts for an overhire of three positions.
(2.4) Summary of Staffing Needs
The following table summarizes the total staffing needs for the Detention Center based
on the operational and staffing recommendations previously presented in this report.
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Staffing Summary
Current
Classification Budgeted Recommended Change
Major 1 1 0
Captain 1 1 0
Lieutenant 1 1 0
Sergeant 4 4 0
Corporal 4 5 1
Detention Officer 36 34 -2
Transport Officer 4 5 1
Maintenance Tech (Laundry) 1 1 0
Administrative Assistant 1 1 0
Jail Cook Supervisor 1 1 0
Jail Cook 4 4 0
Business Officer 0 1 1
Total 58 59 1
Overall, a total of 59 positions are recommended. It is a one additional position
recommended than what is currently budgeted to the Detention Center.
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4. Intake and Release Processes
As part of this engagement, the project team committed to process diagramming the
intake and release processes of the Detention Center. As part of the onsite visit and staff
interviews, the project team interviewed several staff (Detention Officers, Corporals, and
Sergeants) about these two processes. Staff were asked to walk through the sequential
steps of both processes. Based on several conversations it was clear that there was no
formal approach and steps for these processes. Corporals and Sergeants had varying
degrees of understanding of the respective processes and did not identify key
components in the process. Examples that were left out of the process included finger
printing and photographing the arrestee during intake and verifying the court
documentation for release. Due to these challenges, the project team was unable to
capture the current processes to the degree needed to outline them. The following
sections provide an overview of general intake and release processes that can be used
by the County for future policy and procedure documentation development.
,iecommenueu intake r�rocess
The following steps should be used as an outline for the intake process for the OCDC.
This process starts once the arresting officer is ready to transfer custody of the arrestee
to the Jail.
1 . Upon entering the facility from the vehicle sallyport, the arresting officer will
conduct a full body scan of the arrestee.
2. Arresting officer completes all arresting and magistration documentation and
submits to Detention staff through the documentation window.
3. Intake staff (staff) review the arresting documentation for completion. If deemed
complete then move forward, if not complete reject and have arresting officer to
revise and resubmit.
4. Staff open the door into the booking area.
5. Arresting officer escorts arrestee into booking area.
6. Staff conducts a pat down of the arrestee.
7. Staff removes all valuables from arrestee (or arresting officer hands over).
8. Staff will wand the arrestee with the handheld metal detector.
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9. Staff conducts strip search (optional).
10. Staff completes property inventory in front of the arrestee (if compliant).
11 . Arrestee signs the property inventory sheet.
12. Arrestee is screened by medical staff for acceptance. If medical staff approve,
custody of arrestee is transitioned to the Detention Center. Arresting Officer is free
to leave.
13. Arrestee is escorted to clothing change out area.
14. Arrestee changes clothing and hands personal clothing to Staff.
15. Staff will go through clothing to ensure no additional items are included and add
to property bag.
16. Arrestee is patted down and wanded.
17. Arrestee is escorted to the booking area. Goes to booking counter, cell, or bench.
18. Staff begin booking arrestee into Jail Management System (JMS).
19. Staff obtain relevant demographic information from arrestee.
20. Staff fingerprint the arrestee.
21 . Staff photograph the arrestee (may alternate order with fingerprinting).
22. Staff attach fingerprint and photograph to the arrestee record.
23. Staff verify the identity of the arrestee (if not known or previously determined).
24. Prisoner ID# is assigned.
25. Preliminary classification screening is conducted by Staff.
26. Classification status is determined by Staff.
27. PREA overview is provided to the arrestee and PREA compliance form is signed by
the arrestee.
28. Housing assignment is determined by staff and added to JMS and housing
whiteboard.
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29. Arrestee is provided with Inmate Handbook, towel, sheets, etc.
30. Arrestee is escorted to Housing and supervision is handed over to Housing Officer
to take arrestee to their assigned housing unit.
31 . Staff close out the arrestee booking record and transition to in-custody inmate.
Some of the above steps may be conducted in a different sequence based on the
individual, their cooperation, and other activities in the booking area. The above is the
recommended, ideal process for a cooperative arrestee. These steps should be used as
an outline and tailored to meet the operational needs of Orange County.
Recommended Release Process
The following steps outline the recommended release process for detainees who in the
custody of the Orange County Sheriff's Office at the Detention Center. This process
should generally be followed for individuals who are released on bond, own recognizance,
judicial order, or after they have completed their time served.
1 . Release request is received from appropriate authority (e.g., bond receipt, judicial
order, etc.).
2. Release Staff review the documentation to ensure that the documentation is
complete and that a release should occur.
3. Staff call the Housing Officer and indicates who is being released.
4. Housing Officer goes into housing unit and informs detainee they are being
released.
5. Detainee gathers their personal affects and institutional issued items.
6. Housing Officer escorts the detainee out of the housing unit and to the release
area.
7. Release staff receive the detainee in the booking/release area.
8. Detainee is escorted to the inmate property area.
9. Staff will catalog the institutional supplies and confirms that all items have been
received and in appropriate condition.
10. Staff will place institutional supplies in appropriate bins.
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11. Staff will retrieve the detainee's property bag.
12. Detainee will go into the changing room and change into their personal clothes.
13. Detainee will return institutional clothing to Staff.
14. Staff will escort the detainee to the release counter (staff workstation).
15. Supervisor and Staff will verify the identity of the detainee and confirm they are to
be released.
16. Supervisor and staff will verify with the detainee that all personal property is being
returned.
17. Detainee will sign the property inventory sheet.
18. Staff will review medical information and determine if they are on any prescription
medication. If the detainee is on any prescription medication, the officer will
request a three to seven doses from medical staff.
19. Staff will escort the detainee to the exit.
20. Upon opening the door to exit the facility. Staff will hand all property and
prescriptions (if necessary) to the detainee as they exit the building.
21. Staff will update the detainee record in JMS that they were released and at what
time.
These are the recommended steps to release an individual from the custody of the
Detention Center.
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Appendix A: Descriptive Profile
1 . Introduction
The following descriptive profile outlines the organization, structure, and staffing of the
Orange County Detention Center (OCDC). The information contained in the profile has
been developed through interviews conducted OCDC staff as well as preliminary data
collection information.
It is important to note that the primary objective of this profile is to review and confirm
our current understanding of the staffing and key operations of the OCDC and gain
confirmation of our understanding through a review of this interim deliverable which is
one of the precursors to a Draft Report. The profile includes:
• The organizational structure of the Detention Center.
• Summary descriptions of staff authorized positions by type, key duties and
responsibilities, and authorized and actual staffing levels based on budgetary and
other documents.
• A listing of functional work areas in the jail.
• Other descriptive data, as appropriate, that help frame the existing staffing and
operations of the OCDC.
The profile serves as the first deliverable of this project and should be considered a
document that will be developed further and be updated as the project progresses. The
profile is the foundation for our assumptions regarding staffing and current organizational
characteristics of the functional areas included in the scope of the study. As such, it is
critical this product be reviewed and corrected for accuracy and completeness by
appropriate OCDC staff and the project's Steering Committee.
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2. Organization and Functionality of the Detention Center
The Orange County Detention Center is a part of a Division of the Orange County Sheriff's
Office and is located within the Detention, Courts and Transportation Division. OCDC is
staffed by various detention officer positions operating a 144-bed, 48,900 square foot
facility located at 1200 US Highway 70 West in Hillsborough. The facility was opened in
2022 and currently operates with an average daily population of 91.26 adults.
The following chart shows the basic organizational structure of OCDC, with the Major
reporting to an OCSO Chief Deputy position.
Lieutenant
Squad A Squad B Squad C Squad D
Detention Detention Detention Detention
Services Services Services Services
Transport Transport Transport Transport
Kitchen Kitchen Kitchen Kitchen
Staffing and Functional Descriptions
The following table provides an overview of the assigned personnel and major tasks of
each functional group within the Detention Center.
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Functional Group Auth. Act. Position Description
Administration 1 1 Major The Major of Courts, Detention and
Transportation is responsible for the daily
operation and security of three courthouses,
one operational detention facility and
detainee transport services which serves
both the court and detention facilities.
Serves on the Sheriff's Command Staff and
provides management oversight of the
Captain, Lieutenant and staff. The Major
reports from the Detention Center location.
1 1 Detention Serves as the senior manager dedicated
Captain exclusively to OCDC. Beyond assisting the
Major in daily operations,the Captain
performs numerous administrative
operations including external contact with
hospitals and health facilities; billings and
financial services, grants management;
audits and reconciles various systems.
• Prepares various monthly reports; prepares
4-week work schedule; addresses detainee
and personnel issues; directly supervises
Transportation,and performs several other
duties, as assigned.
1 1 Lieutenant • Responsible for varied generalist duties and
special projects to include development and
update of policies and procedures,
scheduling of housing searches and canine
inspections.
• Monitors Homewav (video visitation)video
feeds; responds to detainee issues regarding
jail issues; manages all vendors (excluding
Kitchen),detainee hygiene program, and jail
ministry program.
• Oversees kitchen supervisor; begins
investigation of any official complaints;
supports detention staff, as needed; and
performs other duties,as assigned.
Detention 4 4 Det. • Detention Sergeants perform as first-line
Services Sergeants supervisors within the OCDC. Beyond staff
supervision, sergeants are primarily
responsible for shift-related administrative
work, performing booking tasks in the JMS,
detainee release support,and resolution of
4 4 Det. Corporals day-to-day issues.
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Functional Group Auth. Act. Position Description
• Detention corporals provide intake and
release support, primarily perform booking-
related duties, provide work direction and
support to Detention Officers, and complete
other duties as assigned. Serves specifically
36 32 Detention as Supervisor in sergeant's absence.
Officers • Detention Officers are line-level certified
specialists responsible for detainee
2 Trainees movement, housing, management,
supervision, escort and other support
services. DOs provide support from the
intake to release process, perform regular
detainee interface, serve meals, perform
regular housing rounds, staff the Watch
Tower to control facility doors/cells/inmate
movement, perform facility janitorial service
in common areas, and other duties as
assigned.
• DOs work a 12-hour shift schedule, 5am-
5pm, and 5pm-5am on a 4-team deployment
approach.
Detention 1 1 Maintenance • Assigned detainee laundry duties and
Services Technician responsibilities including linen retrieval,
(Laundry) washing, and return. Performs janitorial
duties to include managing supplies for
detainee cleaning of personal cells.
Performs other duties, as assigned.
• Position works Monday — Friday from 8am
to 5 pm. and is currently filled by individual
certified as a detention officer.
Detention 1 1 Administrative • Assigned to the Detention Center public
Services Assistant lobby to answer telephones, manage
(Reception) attorney and social worker traffic, responds
to lobby inquires, supports transportation as
necessary, and performs other duties, as
assigned.
• Position works Monday — Friday from 8am
to 5 pm. and is currently filled by light duty
detention officer.
Transportation 1 1 Corporal (IDS • A Deputy Sheriff II (Corporal) is assigned
ll) oversight of intra/inter-county transportation
duties and responsibilities. Tasks include
managing detainee transport schedules;
billing out-of-county transport services;
regular contact with IVC and other hospitals,
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Functional Group Auth. Act. Position Description
long-term,detention centers, etc. for
detainee transport coordination; processing
Writ-related transport; serving new warrants
to in-house detainees and providing work
direction to transport officers. Work Mon-Fri
8am-5pm.
• Detention Officers assigned to
4 4 Detention Transportation work two teams of 2
Officer (1 is personnel operating from Gam — 6pm.
certified Performs all manner of in-county (and some
deputy) out-of-county)transport services for
detainees, excluding to/from local court.
0.5 0.5 Part-time
Transport
Kitchen 1 1 Jail Cook • A Jail Cook Supervisor oversees the OCDC
Supervisor Kitchen. Provides staff work direction,
orders food and supplies,oversees meal
preparation, develops schedules, and
completes other duties, as assigned. Reports
to Lieutenant.
4 4 Jail Cook • Jail Cooks work 8-hour schedules with staff
beginning at 4 a.m. Prepare 2 hot and 1 cold
meal daily for detainees consistent with
State Standards. Maintains kitchen
cleanliness. Performs other duties, as
assigned.
Medical Cont. Cont. Nursing Staff • Operates 6am-6pm providing detainee
(Contracted) medical examination and a variety of support
services including medical passes of
prescriptions with escorted DO.
Housing Unit Overview
The OCDC facility is equipped with eight housing units with various modular designs
situated in a spoke-wheel layout with a central Control Tower. The 144-bed facility was
recently constructed and opened in 2022 with housing facilities modernized to today's
standards including common day-room area, secured outdoor recreation area for each
pod, and a variety of security features to help facilitate the health and welfare of detainees
in custody.
The following table summarizes the bed allocation by housing unit.
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Housing Unit # of Beds
A 8 (Single)
B 24 (Dorm)
C 23 (Double Bunked)
D 12 (Single)
E 23 (Double Bunked)
F 23 (Double Bunked)
G 23 (Double Bunked)
H (Female) 8 (Single)
Fixed Post Staffing Plan
There is no formalized fixed-post or minimum staffing plan for the OCDC. Typically,
Detention Officer and supervisory staff are currently deployed in a format similar to below:
• 2 Housing Officers.
• 1-2 Watch Tower Officers.
• 1-3 Officers in Intake/Booking.
• 1 Sergeant in Booking.
• 1 Corporal in Booking and moving throughout facility.
As noted, while there is no minimum staffing level it was indicated that operating OCDC
can be "manageable" with 5 "line" personnel (Sergeant rank and below), if required.
Staffing levels below this have occurred, but infrequently.
Hveraye Leave Hours
The following table summarizes the leave hour averages for detention staff assigned to
OCDC functions for 2023.
Category Avg Leave Hours
Annual Leave 99.5
Military Time 6.3
Sick Leave 57.6
Total Leave 163.3
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M
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Detention Center Assessment .
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ORANGE COUNTY, NORTH CAROLINA 1 . Goals of the Study
2. Approach
AGENDA
Detention Center Staffing 3. Key Findings
and Operational Analysis
4. Key Recommendations
5. Discussion
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Study Goals
Assessment of detention center 4 Revise the fixed post staffing plan
operations. and incorporate net annual work
hours.
2 Review intake, transfer, and release 5 Draft and final reports that included
processes. analysis, findings, and
recommendations.
3 Identified staffing needs to increase
programming and inmate services.
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Evaluation Approach
Interviewed staff from Sheriff's Office, 3 Identified chokepoints and issues
Criminal Justice Resource Department, with current operations, processes,
and the County. and approaches.
2 Observed operations in the detention 4 Iterative and interactive process with
center. interim deliverables prior to the draft
and final report.
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Key Findings
Opening of a new detention center has necessitated new
operational philosophy.
Robust policy/procedures in place in the S.O. but limited training
and implementation.
Limited detainee program/services and no in-person visitation.
Successful implementation of detainee tablet program.
Booking and release functions are the primary role of the Sergeant.
Overtime utilization is limited.
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Recommendations - Operational (1 )
Implement policy/procedure training program.
Refine roles of Captain and Lieutenant classifications.
Develop desk manuals for all positions/posts.
• Refine approaches to overtime budgeting, tracking, and
management.
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Recommendations - Operational (2)
Create the position of Administrative Assistant III or Business
Officer I.
Revise and refine Detention Center Sergeant and Corporal
classification roles, responsibilities, and create job description.
Maintain 12-hour shift schedule and modify to reduce frequency of
switching between nights and days.
Establish a minimum staffing level.
matrix
consulting group
81
Recommendations - Programs/Services
Implement in-person visitation program (scheduled for 12/1 ).
Provide detainee programs, with an initial goal of 10-hours of
weekly programming.
Expand outdoor recreation programming.
matrix
consulting group
82
Recommendations - Fixed Post Staffing Plan
Implement the following fixed posts (ideal staffing).
D .
Control Tower J J
Housing Officer (2) J J
Booking J J
Release J J
Programs Rover J
Relief Rover J J
Corporal/Sergeant J J
matrix
consulting group
83
Recommendations -Staffing
Minimum staffing is 7 on days and 5 on nights and includes either
a Sergeant or Corporal.
Increase Transport Team to 5 staff to include relief.
Incorporate overhire policy to account for staff turnover.
Total of 39 officers needed for Jail and Transport operations.
Maintain current allocation of 4 Corporals and 4 Sergeants.
matrix
10 consulting group
84
Discussion
matrix
11 consulting group