Detention Standards Implementation Initiative

ABA Commission on Immigration

Facility Name: Montgomery County Correctional Facility, Norristown, PA
Date of Tour:
2004
Tour

•

.IlI.l.2 "On regular business days,
legal visitation may proceed through a
scheduled meal period" and llI.1.9
"Routine official counts shall not
terminate
visits"
Access to Legal .
IlI.N "The facility will provide
indigent detainees with free envelopes
and stamps for mail related to a legal
matter"

•

•

III.! "The facility shall provide regular
opportunities for detainees in the
regular population to view the [Know
Your Rights] videotape"

•

III.A.2.b "The ICE FOD shall devise a
written schedule and procedure for
weekly detainee visits"

•

III.B.l.b "The
requests ... shall be answered ... but not
later than within 72 hours from
receiving the request"

& Watkins LLP)

Legal visits may not continue
through meals or facility counts (P6,
line 14)

•

•

Indigent detainees may not be
receiving free stamps and envelopes
for legal correspondence (p20, line
10)

•

Notes from detainee
interview

•

Officials do not air the "Know Your
Rights" video - while they stated to
the delegation that the video is
available upon request, it is unclear
how detainees are made aware of the
existence of the
line 3
stated that there is not a
weekly
presence at the facility
(p34, line 9) and has no plans to have
ICE officers visit the facility weekly
line
The detainee interviewed by the
delegation has not been seen by an
ICE officer for 3 months as of the
time of the delegation, despite his
line

•

Delegation notes
according to
conversations with facility
staff and a detainee
interview

•

Statements made by

Not indicated in 2004
review.

•

Detainee interview notes

indicated in 2004
review.

•

•

•

As stated in the facility's
"Inmate Guidelines" page
15, Section 10.G

SDD~

visitation is not
covered in the
detainee handbook.
The 2004 report
indicates that the law
library does not
contain all materials
listed in Attachment
A of the "Access to
Ma terials. "
Not indicated in 2004
review.

MEMORANDUM
August 16, 2004

Acting Director, Office of Detention and Removal, Immigration and

To:
From:
Copies to:
Subject:

American Bar Association Delegation to the Montgomery County Correctional
.
Facility!
Andrea Siemens, ABA Commission on Immigration
Report on Observational Visit to the Montgomerv County Correctional Facility,
Norristown, Pennsylvania

This memorandum summarizes and evaluates information gathered at the
Montgomery County Correctional Facility ("MCCF") in Norristown, Pennsylvania, during our
delegation's July 21, 2004 observational visit. The infonnation was gathered through the
delegation's observations, interviews with Immigration and Customs Enforcement ("ICE") and
MCCF personnel, an interview with a detainee and review of MCCF's Inmate Guidelines (the

"Inmate Guidelines"),

I.

INTRODUCTION
A.

The Delegation's July 21st Visit
On July 21,2004, the members of our delegation met MCCF and ICE officials

and spent approximately 3V, hours on-site at the MCCF making observations and conducting a
detaInee interview. The MCCF officials that we toured the facility with were
our visit was
Supervisory Detention and Deportation

the Berks

County, Pennsylvania ICE office in Leesport, Pennsylvania The detainee we interviewed was
Hugh Byfield, a Jamaican, who had been at the facility for three years. 2 The delegation
appreciates the cooperation of these individuals. They were direct and accommodating during

r •

delegation was comprised of Latham
1Wl~_and Latham & WatkinsLLP summer
Umversi,.. Law Schoo!) a n d ' " (Nonhweste

Notes of delegation mernbe

NY\940075.1

lol(S)

our tour of the facility and in answering our questions and promptly furnished us with all of the
information and materials we requested.

conducted a telephone interview with

but note that we are unable to verify that these measures are indeed in place. For this reason, it
may be advisable to send another delegation to the facility sooner than is the general practice in
order to observe the implementation of these new measures.

B.

General Information About the Montgomery Countv Jail Facility
The MCCF houses immigration detainees through an intergovernmental service

agreement ("IGSA") with ICE. According to MCCF personnel, the facility currently holds
approximately 1450 inmates and detainees, approximately 140 of which are women. 3 At the
time of our visit, the MCCF contained 15 ICE detainees (none of the ICE detainees are women),
down from what we were told was abighpoint of up to 90 detainees in recentyears. 4 All of the
ICE detainees at the MCCF have criminal records. s Although we were not given a specific
breakdown of the countries of origin of the detainees, we were told that Latin Americans and
people from the Caribbean are in the majority, with the rest coming from Asia, Africa and the
Middle East. 6 The detainee we interviewed, who is Jamaican, confirmed that most detainees are
from Latin America and the Caribbean.? The majority of the detainees were previously
incarcerated in New York State before being transferred to the MCCF. 8 The MCCF receives
approximately $55.00 per day from ICE for each detainee housed at the facility.9

Notes

Notes

telephone interview SDD<fIIiII

2
NY\94007S.1

Detainees are given the Inmate Guidelines upon arrival, which outline the
procedures of the facility and a copy of which we attach as Exhibit A hereto. I 0 Obtaining the

Inmate Guidelines was not reported to be a problem for detainees. I I The Inmate Guidelines are
not available in foreign languages, which presents a problem for non-English speakers,
especially considering the ad hoc nature of the foreign translation services available. 12 Further,
the Inmate Guidelines are applicable to the general inmate population and it is unclear which
procedures in the Inmate Guidelines apply to detainees and which do not; this liinits the Inmate

Guidelines' usefulness to ICE detainees.
Overall, our delegation found the MCCF to be a well run facility. The staffwas
courteous, the facility was clean and the overall impression was One of order.

ll.

IMPLEMENTATION OF THE LEGAL ACCESS STANDARDS
A.

Visitation
1.

General

The Detention Standards provide that facilities holding ICE detainees shall allow
authorized persons, including family, friends, current or prospective legal representatives and
legal assistants, and consular officials to visit the detainees.

13

The facilities shall also allow

representatives ·of the news media, non-governmental organizations, and community service
organizations to access non-classified and non-confidential information, tour the facility with
advance notice, and interview individual detainees with permission from ICE and the detainees. 14
To that end, the Detention Standards set forth several general guidelines that govern different
types of visitations. All facilities shall adhere to these general guidelines.
The MCCF, to a large extent, applies the general-population visitation procedures
to the ICE detainee population, without modifications to accommodate the special needs and

-11

The MCCF Guidelines we obtained were mostrecen~y revised in March 2003.
Notes of delegation members• • • • • • • • • • • • • • • • •'rom interview with detaineellllll

.
to the delegation thattbe non-English speaking detainees receive their translations of written
documents from
method that is problematic because it is not monitored for quality and translation services may be offered
or withheld on an ad hoc basis. Notes of delegation member.!
ibii.j
II

Detention Operations Manual, Detainee Services, Standard 16, Section 1
Detention OperationsManual, Detainee Services, Standard 16, Section 1

3
NY\940075.1

rights of the ICE detainees. As a result, the MCCF has adhered to some of the Detention

Standards, but not others.
a.

Notification

According to the Detention Standards, facilities shall provide written notification
of visitation rules and hours in the detainee handbooks, or equivalent, given to the detainees
upon admission. ls Moreover, the facilities shall post the procedures where the detainees can
easily see them. 16
The MCCF has implemented the notification requirements for family and
friend visitations but has failed to satisfy these requirements for other visitations. The
MCCF provides every detainee with a booklet titled Inmate Guidelines upon admission, which
provides details or notifications of the rules and hours for family and friend visitations. 17 The
MCCFalso posts family and friend visitation schedules on the bulletin boards in the housing
units, referred to by MCCF personnel as "podS.,,18 However, other than the legal visitation
hours, the MCCF does not provide the detainees with any written rules for the legal, consular,
news media, social service organization, or non-governmental organization visitations. 19 For
instance, the delegation did not find any written procedures for consular visitations. Although
the MCCF provides phone access with direct dial capability to various embassies and consulates
free of charge, it is unclear whether the ICE detainees are aware of their right to contact and
receive visits from their consular officials, as it is not written in the Inmate Guidelines or in any
other forrns. 2o
Additionally, according to the Detention StaruJards, the facilities shall make the
schedule and procedures available to the public both in writing and viatelephone. 21 The MCCF
has only ,partially satisfied this part of the Detention Standards. The MCCF has posted the

"
"

Detention Operations Manual, Detainee Services, Standard 16, Section m.B.

11

Observations of delegation

Detention Operations Manual, Detainee Services, Standard 16, Section m.B.
Observations of delegation

19
The delegation requ.ested from the MCCF all the documentations given to the detainees that contain rules of visitations. The only
documentation that the MCCF identified was the Inmate Guidelines.
.

Detention OperatiQns Manual, Detainee Services., Standard 16, Section m.K.
Detention Operations Manual, Detainee Services, Standard 16, Section m.B.

4
NY\940075J

schedules and rules on the walls of the visitors' waiting area 22 The MCCF has also made
available its official Visitor Guidelines that specify the family and friend visitation rules, dress
code, hours, and other regulations for distribution upon request. 23 According to MCCF
personnel, however, the Visitor Guidelines can only be obtained' in person on the site and not by
telephone?4 Moreover, the Visitor Guidelines only provide rules and hours for the family and
2s

friend visitations.

b.

. Visiting Room Conditions

The MCCF has adhered to the Detention Standards in ensuring that the
visiting rooms have reasonable conditions. The Detention Standards require that a facility's
visiting areas shall be appropriately furnished and arranged, and as comfortable as practicable?6
The Detention Standards further require that the officer shall ensure that all visits are conducted
quietly and in an orderly manner?7 Each of the MCCF's visiting rooms can contain about 6-10
visits at the same time. 28 The delegation interviewed_in the visiting room partially
during visitation hours towards the end of the interview when visitors started to enter the room.

It was noted by the delegation that the room became quite noisy when mUltiple visits were
conducted concurrently.29 However, overall, the room provides reasonable meeting areas for the
detainee families, given the limitation of the MCCF's space and resources.

2.

Visitation by Attorneys

The Detention Standards provide that facilities should allow detainees to meet
privately with their current or prospective legal representatives and legal assistants. 3o

Observations of delegation membe _ _
The delegation requested from. the MCCF all the documentations given to the public that contain rules of visitations. The only
documentation that the MCCF identified was the Montgomery County Correctional Facility Visitor Guidelines ("Visitor Guidelines"), revised on
April 4, 2003.

13M

Notes of delegation m,embeJ
Visitor Guidelines.
Detention Operations Manual,

Delainee

Services, Standard 16, Section mG.

Detention Operations Manual, Detainee Servi~ Standard 16, Section mG.

"

observatiOnSOfde1egatiOnl!m;e;m;be~===================.

Notes of delegation member

Detention Operations lv.Ianua4 Detainee Services, Standard 16, Section 1.

5
NY\94007S.l

The MCCF has only partially implemented this section of the Detention

Standards. As required by the Detention Standards, to visit a detainee at theMCCF, an attorney
must have and present a bar card. 3 / Also, according the MCCF personnel, it is acceptable for an
32

attorney to present other fonns of identificafion.

The attorney may visit a client withoilt prior

notice to the facility.33 According to the MCCF personnel, legal assistants, interpreters, and law
students are also allowed to visit detainees as long as they seek pre-approval from the facility.34
Each MCCF visiting room contains two attorney visitation sections,35 allowing
two attorney visits to occur simultaneously. All attorney visitations are contact visits. 36 There
are no Plexiglas dividers separating the detainees from their attorneys.37 The attorney visitation
sections are enclosed with transparent material, through which the officers can observe but not
hear?8
According to the Inmate Guidelines, attorneys are not restricted to the normal
hours of visitation, satisfying the requirement of the Detention Standards.

39

Attorneys and legal

assistants are allowed to visit ICE detainees seven days a week, including holidays.40 However,
the Inmate Guidelines state that visitors are only allowed to visit during certain 1.5-to~2.5-hour
. time blocks when the detainees are not locked up for regular counts and meals. 41 The time slots
add up to 10 hours, exceeding the minimum four hours per day standard set forth by the

Detention Standards. 42 However, this restriction appears to conflict with the Detention
Standards' provisions that during regular business days, legal visitations may proceed
43
The Detention Standards further require that in such cases,

through a scheduled meal period.

Detention Operations Manual, Detainee Services, Standard 16, Section ill1.4.

Notes

"
"
"

Detention Operations Manual, Detainee Services, Standard 16, Section ID.I.2.
InmateGuidelines)p.lS~

Section 10.G.

Inmate Guidelines, p. 15, Se<;tion 10.G.

Detention Operations Manual. Detainee Services. Standard 16, Section In.1.2.
43

Detention Operations Manual, Detainee Services, Standard 16, $e<;tion ill.1.2.

6
NY\940075.!

the detainee shall receive a tray or sack meal after the visit. 44 The Detention Standards
specifically state that "routine official counts shall not terminate attorney visits.,,45

MCCF's

limiting of legal visitations to non-lock-up time blocks only is therefore inconsistent with and
more restrictive than the Standards' provision cited above.
The Detention Standards require that the facility provide upon request written
legal visitation rules, which should include at least the following information: the telephone
inquiries, dress code, legal assistants, pre-representational meetings, Form G-28 requirements,
identification and search of legal representatives, identification of visitors, materials provided to
detainees by legal representatives, confidential group legal meetings; and detainee sign_up.46
The MCCF does not provide any written legal visitation policy other than the hours specified in
the Inmate Guidelines.
It is unclear whether the ICE detainees held at the MCCF are subject to strip
searches after their legal visitations. The Detention Standards require that the facilities shall
have written procedures governing detainee searches after legal visitations and that an IGSA
facility's general-population search procedure will also apply to ICE detainees.47 There are no
specific rules in either the Inmate Guidelines or the Visitors Guidelines regarding detainee
searches after legal visitations. However, the general detainee search rule under the Inmate
48
Guidelines requires all inmates to be strip searched after all contact visits. All legal visitations
at MCCF are contact visits, so according to the Inmate Guidelines, all ICE detainees would be
subject to strip searches following these visits. The MCCF personnel, however, contended that
the ICE detainees.are not subject to strip searches after legal visitations unless the visiting room
officer has reason to suspect the existence of illegal contraband.

49

If all detainees are in fact subject to strip searches ·after all legal visitations
because they are contact visits, and not based on any specific reason, the MCCF facility has

Detention Operations Manual. Detainee Services, Standard 16, Section IIT.1.2.
Detention Operations Manual, Detainee Services, Standard 16. Section 1II.1.9.
Detention Operations Manual, Detainee Services, Standard 16, Section m,1.16.
Detention Operations Manual, Detainee Services. Standard 16, Section m.I.II.

.

Inmate Guidelines, p 10. Section 7.5.(2).
Notes ofdelegationmembe. . . . . . . . . . . ..

7
NY\940075.i

failed to implement the relevant section of the Detention Standards, which states that if
standard operating procedures require strip searches after every contact visit with a legal
representative, the facility must provide an option for non-contact visits with legal
representatives in an environment that allows confidentiality. In that case; the OIC will
establish a mechanism for the detainee and his/her representative to exchange documents. 5o
The MCCF facilities have no written procedures that provide an option for noncontact visits. The MCCF personnel clearly told the delegation that there are no alternatives if
the detainees would prefer non-contact visitations. 51

3.

Visitation by Family and Friends

To maintain detainee morale and family relationships, the Detention Standards
encourage visitation with family and friends. 52 The facility must allow visitation by immediate
family members, other relatives, friends, and associates. 53 The Detention Standards require that
the facilities should accommodate the scheduling needs of visitors for whom weekends and
holidays pose a hardship.54 The Detention Standards recommend that the facilities
accommodate these needs by allowing evening hours and special visits. 55 The Detention
Standards require a minimum 0f30 minutes per visitation, under normal conditions, and
56
encourage more generous limits ifpossible.
The MCCF implements some parts ofthis section ofthe Standards, but not
others. At the MCCF, the ICE detainees are given four hours of visitation every week. 57 The
detainees can arrange the visitation during two time blocks totaling five hours spread between
one weekday and one day on the weekend. 58 Each visitation can last up to 60 minutes,59

Detention Operations Manual, Detainee Services~ Standard 16, Section mll1.
Notes

ofde1egationmembelllllllll

Detention Opemtions Manual, Detainee Services, Standard 16, Seetion 1
Detention Operations Manual, Detainee Services, Standard 16, Seetion m.H.2.

"
"

Detention Operations Manual, Detainee Services, Standard 16, Seetion ill.H.1.

"

Visiting Hours, provided by the MCCF facility.

Detention Operations Manual, Detainee Services, Standard 16, Section ill.H.1,
Detention Operations Manual, Detainee Services, Standard 16, Section mIL I.

Visiting Hours, provided by the MCCF during the delegation visit.
Inmate Guidelines, p. 10, Section 7.R

8
NYI940075.1

exceeding the 30-minute minimum required under the Detention Standards. 60 The detainees can
have up to four concurrent visitors. 61 Visitation with minors is accommodated. 62
The delegation is concerned that the MCCFhas not provided the flexibility
to accommodate family and friends to whom visiting during the scheduled hours imposes
undue hardship. This is especially critical for the ICE detainees because their families usually
need to travel greater distances to visit compared to Montgomery County inmates, who were

4._

arrested in Montgomery County and are therefore likely to be locals. In contrast, most detainees
were transferred from New York State correctional facilities, their visitors are also likely to be
coming form New York State. For example, detaine

family members live in upstate

New York and have to travel for hours before arriving at the MCCF. On at least one occasion,
they arrived late and were denied the right to visit despite their 10ngjourney.63 According to
MCCF personnel, arrangements can be made if normal visiting schedules impose an undue
hardship for out of state visitors.

64

It is unclear, however, what such arrangements consist of and

whether immigration detainees know of such possibilities when they are not specifically
mentioned in the Inmate Guidelines. While the Inmate Guidelines mention special exceptions
for visitors who have traveled long distances and other unusual circumstances;65 no mention was
made for scheduling ·difficulties. Moreover, no details of any special arrangements were
articulated.
In the alternative, the MCCF personnel told the delegation that the facility will

reJ.~~a.~.t/.l~ ~~!a.i!1C::C::!0 an()!l!erY.o.<! ~1:h. ~ _difI~~c::nt_~i~i!~tio~ ?~1lC::~\lle,6~ _!t)~ _11.oLcJc::a.r, ..
however, whether the detainees are aware of such an option because it is not meritioned in the

Inmate Guidelines. Moreover, this option works only if there are enough detainees to occupy at

Detention Operations Manual. Detainee Services, Standard 16, Section mH.].

"

Inmate Guidelines, p. 10, Section 7.R(4).
Inmate Guidelines, p. 9, Section 7.B-D.

..

Notes of delegation
Notes of delegation
Inmate Guidelines, p.

"

Notes of delegation

11, Section 7.W.

membeJ~• • • • • • •mW!lI!tl
••••••••

9
NY\940075.1

Deleted: aI
.' ..('c.::...:::..=:.::...::'--_
____

~

least two pods. This is not the case now.

67

Lastly, the problem still exists if the visiting hours in

the new pod also impose undue hardship on the family and friends.
Finally, requiring that the ICE detainees keep a visitors' list may discourage
visitation. The procedures of maintaining a visitor's list are complicated. Upon admission, the
detainees are required to provide a list of eight individuals as potential visitors, subject to the
Warden or his designee's approval. 68 Only persons on this list, with the exception of attorneys
and clergy, may visit the detainee. 69 Detainees may request to review the visiting iist by
submitting a change request once every 30 days.70 Changes and additions to the visiting list will
be on Friday only.71 Changes to the visitor's list also take some time to go into effect. 72 The
detainee cannot remove a name until after the name has stayed on the list for more than one
month.73 These complicated and inefficient procedures may discourage visitations.
ID.

TELEPHONE ACCESS.

A.

General Requirements

The Detention Standards require IGSA Facilities like the MCCF to provide
74
detainees with reasonable and equitable access to telephones. To meet the Detention

Standards' requirements, a facility must provide at least one telephone for every 25 detainees.
and written access rules to each detainee?5
The MCCF has fully implemented this section of the Detention Standards.
Each pod, has three telephones. These three phones are shared by 35 detainees if the pod is at full
capacity. Detaine4iW however, expressed that one or more of the phones are often out of
service. 76 Detainees may use the telephones for a total of two hours per day between 7:00 a.m.
and 10:00 p.m. except during the times detainees are locked in their cells for meals or head
Notes
Inmate Guidelines, p. 9. Seotion 7A·

10. Section 7.Q.
10. Section 7.L.
Inmate Guidelines, p. 10. Section 7.N.
Inmate Guidelines, p.
Inmate Guidelines, p.

71

Notes of delegation memb
."

Inmate Guidelines, p.

10. Section 7M.

Detention Operations Manual, Detain.. Services, Standard IS, Sections 1 & lllA

"
"

Detention Operations Manual, Detainee Services, Standard IS, Sections ill.B & C.

Notes ofde1egation membeI

~

(0)(6)

10
NY\940075.1

COlUlts.

77

Telephone. access is considered a "privilege" and can be suspended for violation of

rules and regulations, including abuse, damage, ortarnpering with telephones. 78
A list of available pro bono legal agencies are posted on the pod bulletin board. 79
Instructions for telephone use and access are contained ill the Inmate Guidelines, but they are
only given in English. 8o Therefore, written translations of the telephone access rules and
procedures would enable all detainees, including non-English speakers to have meaningful
access to the telephone~ ..
B.

Direct vs. Collect Calls
The Detention Standards allow a facility to restrict telephone service to collect

calls, provided that detainees are able to make free, direct calls through pre-programmed
technology, or upon request, to consular offices, freeJegai service providers, local courts and
government offices, and, in personal emergencies, to family !)lembers. To make a free call
without pre-programmed technology, a detainee may ask a correction officer for assistance and
access should be provided within eight waking hourS.

81

The delegation is concerned about the MCCF's implementation of this
section of the Detention Standards. At the MCCF, detainees may make domestic collect calls
through the pod telephones. 82 MCCFPersonnel83 report that the service provider is Inmate
Telephone, Inc., "lIT', and the cost for a call is "competitive."84 DetaineeBIreported that
he has successfully called his Jamaican consulate office directiyfrom a pod telephone using the
access number he previously found listed on the pod bulletin board. 85 The delegation, however,
did not find a list of consulate nwnbers posted in the pod during a recent visit to the facility.

71

"
8J

Notes of delegation

"

Notes of delegation

11
NY\940075.1

... ~eted,.

Also, other direct calls to the ICE-approved list can only be made through a
request to an officer or a caseworker. Caseworkers place the call for the detainees from their
that placing a non-local call is often up to the discretion of

offices, but

the caseworker and that both he and other detainees found it impossible to make interstate or
international calls through the caseworkers.

s6

The delegations observed a lack of a reliable,

independent procedure for detainees, many of them relocated from out-of-state facilities, to make
non-local and international calls. Implementation of a system for detainees to purchase pre-paid
calling cards through the commissary would be helpful.

C.

Privacy and Usage Restrictions for Legal Phone Calls
The Detention Standards require that detainee legal calls not be electronically

monitored without a court order.
phone calls.

sS

S
?

The facility must also ensure privacy for all detainees legal

Furthermore, detainees should be able to discuss legal cases over the phone in an

environment without interruption or cut-offs. In county jails with a time limit on phone calls, the
time limit should not be less than 20 minutes.

s9

The MCCF has not fully implemented this section of the Detention Standards.
According to personnel

90

and the Inmate Guidelines, legal calls are not recorded or monitored.

Each detainee is required to include and clearly mark their attomeyon his np.'Tnilrt"tl
that MCCF can ensure that calls to that number are not monitored. 91
pointed out that calls to attorneys are placed from phones where a sign states that calls may be
monitored or recorded. 92 Also, the notice does not outline the procedure for obtaining an
unmonitored call for legal purposes. This may be a source of confusion for detainees and
therefore may conflict with attorney-client relationships.

Notes ofdeJega-uon memberll• • • • • • • • • • • • •
Detention Operations Manual, Delainee Services, Standanl 15, Sections m.J.
Detention Opemtions Manual, Detainee S.ervices, Standard 15, Sections m.J.
Detention Op...tion. Manual, Detainee Services, Standanl 15, Sections m.F.
Capt

"
"

Wi.';

Jrunate Guidelines, p. S, Section 5&.(6)(L); notes of delegation member
. . . . . . . . . . ..
. Notes of delegation

12
NY\9400?5.1

MCCF fails to meet the Detention Standards requirements for privacy for legal
calls. Although each phone has privacy panels measuring approximately 18 inches, the phones
are clustered in a common, open area~93 It is very likely that phone calls can be overheard or
interrupted by personnel and other detainees in the same pod. Noise in the common area may
distract callers and limit conversations. The lack of privacy for legal phone calls at MCCF likely
interferes with detainees' ability to address legal and personal issues with their legal counsel.
The procedures for legal phone calls, however, do not seem to pose an issue for
unreasonable cut-offs. All calls placed terminate in thirty minutes. 94 Furthermore, up to 4
successive thirty-minute calls, a total of tWo hours, may be placed in one day.9s
D.

Privacy and Usage Restrictions for Other Calls

Non-legal telephone calls may be restricted in number and duration for
availability, orderly operation of the facility, and emergencies reasons. 96 The Detention
Standards allow non-legal calls to be monitored as long as detainees are notified of this upon

admission and a notice is placed next to each monitored phone. The notice must also provide the
procedure for obtaining an unrnonitored call for legal purposes. 97
The MCCF meets the requirements of this section of the Detention Standards.

MCCF's limits on phone usage are permitted by the Detention Standards. MCCF restricts each
detainee's outgoing collect calls to ten phone numbers, which each detainee chooses upon
entering the facility. This lO-number limit for collect calls98 and the duration limit to four thirtyminute calls,99 seem to be reasonable and designed to ensure availability and regulate orderly
operation of the facility. The only other interruptions to or restrictions on calls are the times
when the detainees are locked doWn for head counts, meals, or to sleeploo and in emergencies

Inmate Guidelines, p. 8, Section Sb(I).
Inmate Guidelines, p. 8, Section 5b(4).
Detention Openllions Manual, DetlJinee Servioes, Standard IS, Sectioos ill.F.
Detention OpenIlions Manual, DetlJioee Services, Standard IS, sectioos m.K.

"

inmate Guidelines, p. 6, Section 5a(3).

Noles of delegation

13
NY\94007S.!

and/or when maximum security level is ordered;lol However, limited privacy at the housing unit
phones, as discussed above, may unreasonably interrupt or restrict a detainee's phone calls;
E.

Incoming Calls and Messages
The Detention Standards require facilities to take and deliver messages from

incoming emergency and non-emergency legal telephone calls to detainees as promptly as
possible. If the facility receives an emergency call for a detainee, the facility is required to
permit the detainee to return the call as soon as reasonably possible. Indigent detainees must be
allowed to make free return emergency calls.

102

The MCCF appears to be have implemented this section of the Detention
Standards. Personnel 103 report that messages are taken and promptly delivered to detainees for
emergency and non-emergency legal calls once personnel have verified the call. 104 The Inmate
Guidelines state a stricter procedure that detainees may not receive incOlning messages unless
specifically authorized by the
director of social services. 105

assistant wardens, major, captain, or
however, reports that messages from attorneys

and family emergencies are delivered promptly, confirming statements by personnel. 106
Detainees can return the calls by making a request to the guard of caseworker, or, if the call was
placed from one of the ten numbers on the detainee's permitted phone list, detainees can return
the call from the housing unit phones by making a collect call. 107 The delegation does not know
if the facility allows indigent detainees toretum these calls free of charge.
IV.

ACCESS TO LEGAL MATERIALS
The Detention Standards require that detention facilities permit detainees

sufficient access to a law library. Detainees are also to be provided with legal materials,

Inmate"Guidelines. p. 6~ Section 5.F.
102

Detention Operations Manual, Detainee Services. Standard 15, Sections m.l

103

10'1

14
NY\94007S.1

facilities, equipment, document copying privileges, and the opportunity to prepare legal
documents. I 08
The MCCF has implemented some aspects of this section ofthe Detention
Standards but fails, on the whole, to provide ICE detainees with updated and meaningful

access to legal materials.
A.

Access to the Library
The Detention Standards state that a correctional facility ought to devise a

flexible schedule to permit all detainees, regardless of housing or classification, to use the law
library on a regular basis for a minimum of five hours a week. 109 The allocated library time
should not cause a detainee to miss a meal, recreation time, or any other planned activity. ilo
The MCCF has implemented this section of the Detention Standards. The.
MCCF permits detainees to use the law library on Monday and Tuesday mornings from 8:00
AM. to 10:30 A.M. for general population and intake sections. III Additional hours are
available for the law library on Fridays from 8:00 AM. to 10:30 AM., 11:30 AM. to 1:30
P.M.ll2 According to MCCF personnel, the library times for ICE detainees are more flexible and
access can be granted upon request. l13 Recreational time will, however, have to be sacrificed in
order to spend additional time in the law library. I 14
B.

Library Conditions
The Detention Standards provide that each facility shall provide a law library in a

designated room with sufficient space to facilitate detainees' legal research and writing. The

Detention Operations Manual, Detainee Services, Standard I, Section 1

Detention Operation Manual, Detainee Services, Standard I, Section m.(.T.
Detention Operation Manual. Detainee Services. Standard I, Section mG.
III

Inmate Guideline~ p. 21, Section 18.

III

Notes of delegation

'14

NOles of delegation

Inmate Guidelines, p.21, Section 18 C.

15
NY\940075.1

library shall contain a sufficient number of tables and chairs in a well-lit room, reasonably
isolated from noisy areas. I I 5

Tbe MCCF bas partly implemented tbis section oftbe Detention Standards.
The MCCF library is sufficiently illuminated and isolated from high-traffic or noisy areas that
might interfere with research and writing. Library, however, only provides four large tables for
legal research and writing and cannot accommodate more than 20 inmates. 116

C.

Materials Identified intbe Detention Standards
The Detention Standards require all law libraries to contain the materials listed in

Attachment A to the chapter on Access to Legal Material. 111 These materials must be updated
regularly and information must be added on significant regulatory and statutory changes
regarding detention and deportation of legal aliens in a timely manner. I 18 Damaged or stolen
materials must be promptly replaced. 119 The Detention Standards demand additionally that the
facility post a list of holdings in the library and designate an employee with responsibility for
updating materials, inspecting them weekly, and maintaining them in good working order. 120

Tbe MCCF has not fully implemented this section of the Detention Standards.
The delegation's observation of the law library at the MCCF revealed that many required
materials were outdated or entirely missing from the library. For example,..¢<;:)iJ~l!l!Y ~!lly __ _
provided limited sources for immigration statues and regulations, the very legal provisions that
control the detention and removal ofICE detainees at MCCF. The immigration case law that is
provided in hardcopy at the law library at MCCF is outdated and the library personnel at MCCF
no longer update it 121 Although the law library at MCCF has online access to Westlaw and

Detention Operations

Notes elf del"gation mee
Detention Operations Manual, Detainee Services, Standard I, Section ill.C.
lIS

iI'

Detention Operations Manual. Detainee Services. Standard I, Section ill. D. -F.
Detention Operations Manual~ Detainee Servi~ Standard 1, Section F.

Detention Operations Manual, Detainee Services, Standard I, Section mE.
Notes of delegation

16
NY\94007S.1

. {Deleted:

LexisNexis, two legal databases, the ICE detainees are not pennitted to do online research
themselves. 122
The library did provide some required materials, among those texts on
immigration law and defense, guides for immigration advocates, and other asylum and refugee
materials. 123 The material provided, however, was clearly outdated, which was confinned by
. SDDoIIIinfonned the delegation that ICE officials would provide the
required updated and adequate legal materials to MCCF at some point in the future.125
that ICE detainees never received an orientation or
tour of the law library .126 He also infonned the delegation that as long as the detainee provides
the appropriate case citation, requested cases can be located and printed from Westlaw and
LexisNexis. 127 Considering that there is no access to current legal materials, detainees are not
allowed to do online research themselves, it is unclear how the detainee can retrieve a case
citation, much less become familiar with cases relevant to his or her case.
It must be pointed out, however, that different interviewees at MCCF provided the
delegation with contradictory infonnation regarding access to electronic research capabilities.
The MCCF librarian indicated that online research was possible for detainees, as he would run
searches if requested by inmates.

l2S

on the other hand, indicated that this was

not his understanding and that a citation to a specific case was required in order for a detainee to
have access to recent developments in immigration law.

l29

According to

are two librarians and each has their own practices in deciding how to dole out library
privileges. 130

Notes of delegation
Notes of delegation
Notes of delegation
Notes of delegation

".
,,,'"

Notes of delegation
Notes of delegation
Notes of delegation

Notes of delegation

"'

Notes of delegation

17
NY\94007S.1

Considering the current extent of outdated and missing materials and the lack of
access to online materials, the delegation believes that an immigration detainee with a valid
defense to removal or a valid claim to asylum would find it extremely difficult, if not impossible,
to prepare his or her case without the aid of an attorney.
In the telephone interview following up the delegation's visit to MCCF, SDDO
Pepe stated that a CD-ROM with all ofthe required legal materials is now available in the library
and that detainees are allowed to use the compute to navigate this CD-ROM.13l
D.

Computer Access. Equipment and Holdings
The Detention Standards require that the law library provide an adequate number

of typewriters and/or computers, writing implements, paper, and office supplies to enable
detainees to prepare documents for legal proceedings. J32
The delegation is concerned about the MCCF implementation oftbis section
ofthe Standards. The law library at MCCF does provide two operational computers and s~veral
typewriters. Computer access, however, is not always granted and detainees have no ability to
electronically store and print legal documents, much less do online research on legal
databases.133 According to

are sometimes inoperative when typing
13

ribbons are exhausted and not immediately replaced. _ a l s o reported that the
typewriters are not equipped with correction tape and correction fluid
the difficulties associated with using typewriters,

i~ unavailable. 135 Due to
that most detainees

write their legal and court documents in long hand. 136
E.

Photocopies
The Detention Standimis provide that each facility shall ensure that detainees can

obtain photocopies oflega! materials, when such copies are reasonable and necessary for legal
Notes

atWi_rom August" 12, 2004 telephone interview with

SDDm

Detention Operations Manual, Detainee Services, Standard 1, Section illa.

o.
Notes ofoetegau')D memDers

'"

Notes ofo'"elJllu,m memoe"

18
NYI940075.1

proceedings involving the detainee. m Enough copies must be provided to ensure that a detainee
can fulfill court procedural rules and retain a copy for his or her records. 138
The MCCF has partially implemented this section of the Standards. All
requests for legal materials must be put on a request slip addressed to the attention of the
librarian. 139 Upon receipt of the request for legal materials by the librarian, the materials will be
delivered to the cell in the late afternoon and will be retrieved the following morning. 140 The

Inmate Guidelines do not provide for copying of legal materials. According to
photocopies are provided and are free of charge as long as the request for photocopying is
reasonable and not fdvolouS. 141 Requests for photocopies of legal materials are, however, only
granted on a case-by-case basis.142
F.

Correspondence and Other Mail'
The Detention Standards require that detainees be allowed to send and receive

correspondence in a timely manner, subject to limitations required for safety, security, and
orderly operation of the facility.143 General correspondence shall normally be opened and
inspected for contraband in the presence of the detainee, but may be opened and even read
outside the presence of the detainee if security reasons exist for doing SO.I44 Special
correspondence, which includes all written communication to or from attorneys, legal
representatives,judges, courts, government officials, and the news media, is treated
differently.14S Incoming special correspondence can be inspected for contraband only in the
presence of the detainee, but it can never be read or copied. 146 Outgoing special correspondence

Detention Operations Manual, Detainee Services,. Standard 1, Section ITlJ.

'"
'"
I",

U2

"'

Detention Operations Manual, Detainee Services, Standard 1, Section m.J.
Inmate Guidelines, Section 19, A
Inmate Guidelines, Section 19, A

. Notes
Detention Operati ons Manual, Detainee Services, Standard 4, Section 1
Detention Operati ODS Manual, Detainee Services. Standard 4, Sections m.B., E.

'"

Detention Operations Manual, Detainee Services, Standard 4, Sections m.B., E., F.

'"

Detention Operations Manual, DeWnee Services, Standard 4, Sections llI.B., E.

19
NY\940015.1

cannot be opened, inspected, or read.

147

The Detention Standards also require that detention

facilities provide indigent detainees with free envelopes and stamps for mail related to a legal
matter, including correspondence to a legal representative, potential representative, or any
court. 148
Provided that allegations of U"'LallJ""

true, the MCCF only partly

fulfills the requirements of this section of the Detention Standards. The Inmate Guidelines
stipulate that employees ofMCCF will open and examine for contraband all incoming "legal
mail" in the presence of the addressee.

149

According to detainee Byfield, however, MCCF

employees frequently read incoming legal mail outside of the presence of the addressee. 150
Moreover,

claims that charges for legal mail including envelopes are generally

deducted from detainee income.

V.

151

GROUP RIGHTS PRESENTATIONS
The Detention Standards provide that facilities shall permit authorized persons to

make presentations to groups of detainees for the purpose ofinforming them of U. S. immigration
law and procedures consistent with the security and orderly operation of the ICE facility. 152
The MCCF has not fully implemented certain aspects of this section of the

Detention Standards. According to MCCF personnel, there are no restrictions on group
presentations. IS3 However, MCCF officials and detainee_informed the delegation that
aside from a professor from the Villanova University Law School approximately two years ago,
no other groups or individual presenters seek to provide group presentations to detainees.

l54

According to MCCF personnel and detainees, detainees were made aware of the opportunity to

Detention Operations Manual, Detainee Services. Standard 4. Sections mB., F.
Detention Operations Manu~, Detain.. Services, .Standard 4, Sections mN.
Inmate Guidelines, p. 13, Section 9, N.
Notes of delegation

NOles of delegation
Detention Op'1aticms ~.!an"al,

IS'

Notes of delegation

'"

NOles of delegation

20
NY\940075.1

hear about their legal rights through bulletin boards two weeks before the presentation. 155 The
delegation also inquired if the facility aired the "Know Your Rights" video created by the
Florence Project and distributed by the ICE. MCCF officials and detainees stated that the video
had not been aired. 156 MCCF officials stated that ICE detainees were made aware of the
opportunity to request presentations. However, no postings on the bulletin board indicated that
not aware of such

the detainees had such opportunities, and
opportunities. 157
VL

OTHER CONDITIONS ISSUES

A.

Recreation
The Detention Standards state that detainees should be placed in facilities that

provide outdoor recreation. 158 If the facility does not have an outdoor area, a large recreation
room with exercise equipment and access to sunlight will be provided. 159 Each detainee shall
have access to outdoor or indoor recreation for at least one hour daily, five days a week. 160 All
facilities shall have an individual responsible for the direction and oversight of the recreation
prograrn. 161 According to the Detention Standards, exercise areas are to offer a variety of fixed
and moveable equipment; cardiovascular exercise shall be available to detainees for whom
recreation is unavailable; recreational activities may include limited-contact sports; and
dayrooms will offer board garnes, television and other sedentary activities. 162 Detainees will not
be forced to miss basic law library privileges for recreation privileges. 163 Detainees in

segregation for either administrative or disciplinary purposes should receive recreation separate

Notes

",

Notes
Notes

'"
'"
".

Detention Operations Manual, Detainee Services, Standard 13, Section mAo
Detention Operations Manual, Detrunee Services, Standard 13, Section ill.A.
Detention Opemtions Manual, Detainee Services,. Standard 13, Section Ill.B.
Detention Opaations Manual, Detainee Service~ Standard 13, Section m. F.
Detention Operations Manual, Detainee Services, Standard 13, Section m.G.

'"

Detention Operations Manual, Detainee Services, Standard 13, Section ill.B.

21
NY\940075.1

from the general population for one-hour each day, but may be denied access to recreation for
safety or security purposes. 164

The delegation found the MCCF to provide adequate recreation for
detainees. The detainees are allowed to have recreation seven days a week for around two hours
a day. 165 In good weather, an outdoor exercise period will be held. l66 MCCF has a large,
walled-in, outdoor area that allows for outdoor recreation, although the only recreation allowed
is walking around the outdoor area. 167 Gymnasiums and weight rooms are available on a
scheduled basis. 168 The delegation witness basketball being played in the gymnasium, and in
addition, viewed a weight room containing free weights, weight machines and a stationary
bicycle. 169 Television privileges are provided in the day rooms. 170 The Recreation Supervisor
plans and conducts sporting events and instructs inmates on the use of recreation equipment. 171
Detainee_noted that detainees are not forced to choose between law library privileges and
recreation time, but that a detainee could sacrifice part of his recreation time to spend more time
in the law library.l72 If a detainee is in administrative segregation, he/she is escorted by officers
during the scheduled recreation period; if a detainee is in disciplinary segregation, he/she is
allowed the ~inimum recreation allowed by law - one hour daily, five days a week. 173

B.

Educational Opportunities
The Detention Standards do not appear to include any language regarding

educational opportunities for detainees.

Detention Operations Manual. Detainee Services, Standard 13, Section m.H.
Notes of delegation
the outdoor area.

that handball was allowed in

16,

IrunateGuidelines, p. 23~ secu_,·o.n.21•.A.
•••••••••••
Notes of delegation membetl

".

Inmate GuidelinO!'. p. 23, Section 21 B.

Notes Ofdelegationmem~
Inmate Guidelines, p. 23, Section 21.C.
Inmate Guidelines, p.23, Section 21.G.-H.

Notes of delegation

'"

Notes of delegation

22
NY\940075.1

The delegation found that few educational opportunities exist for detainees at
MCCF. Education programming, available for inmates twenty-one years of age and under,
consists of three levels: a literacy program, adult basic education, and preparation for the
Graduate Equivalency Diploma ("GED") test.
available in English. 17;

174

Detainee

MCCF personnel noted to the delegation that some inmates (though not

detainees) participate in correspondence education courses.

C

that courses are only
176

Access to Medical Care

1.

Access to Medical Treatment

The Detention Standards state that each facility should maintain current
accreditation by the National Commission on Correctional Health Care.177 Facilities should
provide each detainee with an initial medical screening within 14 days ofarrival. 178 The facility
should also provide primary medical care, routine dental check-ups, and emergency care. 179
Each facility should have an arrangement with a nearby facility to provide health care services
not provided at the detention facility.180 A physician or qualified medical officer should be
available to examine detainees on days know as sick calls. lSI At a minimum, the sick calls for a
facility with 50 or fewer detainees should be one day per week and a facility with 50-200
detainees should have sick calls three days per week. 182 If the facility has more than 200
detainee, then sick calls should be held five days per week. IS3 Appropriate medical treatment for
a detainee should be determined by a health care specialist. 184

Inmate Guidelines. p.32. Section 41.B.
Notes of Delegation

."

Notes of Delegation

Detention Operations Manual, Health Services, Standard 2, Section 1
Detention Operations Manual, Health Services,. Standard 2, Section m.D .
•79

..s."

Detention Operations Manual, Health Services. Standard 2, Section m.A.
Detention Operations Manual, Health Services, Standard 2, Section m.A

Detention Operations Manual, Health Services, Standard 2, Section ill.F.
Detention Operations Manual, Health Services, Standard 2, Section ill.F.
Detention Operations Manual, Health Services, Standard 2, Section ill.F.

.84

Detention Op....tions Manual, Health Services, Standard 2, Section ill.A

23
NY\94007S.1

The delegation has found MCCF appears to have implemented tbeDetention

Standards with regard to access to medical treatment.
The medical department provides coverage to all inmates seven days a week. 18s
The medical center has one medical doctor and one dentist that are available to see detainees
186
On the weekends, the medical center is staffed with a
Monday to Friday from 9 am. to 5 p.m.
physician's assistant and two nurses. 187 The medical center is ~taffed 24 hours a day with a
rotating group of nurses, at least two of which are on duty at all times. 188 If specialists are
required to attend to detainees, they are brought to the medical center, but if circumstances
require it, a detainee may be taken to a local hospital for treatment. 189 Psychological counseling
is provided by a psychologist and case workers during the week. 190 Sick calls are only·
administered Monday through Friday. 191 Inmates may request sick calls by placing a request slip
in a designated box and the nursing staff are to review the request slips daily.192 Priority during
sick calls is based on need and emergencies are to be handled immediately.l93
The delegation was uncertain as to whether detainees at the MCCF were provided an
initial medical screening within 14 days of arrival, as required by the Detention Standards.
Though there is mention in the Inmate Guidelines of an initial screening in Section 14 ("Inmate
Medical Financial Responsibility Program"), no mention of an initial screening is made in
Section 3 ("Processing"). The delegation is unsure whether this initial screening is standard
practice for processing detainees arriving at the MCCF, and furthermore, the delegation is unsure
as to whether the initial screening is as detailed as that which is proposed by the Detention

Standards .194

lIS

Inmate Guidelines. p. 17. Section 41.A

Notes
Notes

'91

Inmate Guidelines, p. 17, Section 41.B.
Inmate Guidelines, p.

17, Section 41.C.

Inmate Guidelines, p. 17, Section 41 D.
194
TheDetenllon Standards require a fUJI physical examination. screening fortuberc;ulosis and evaluation for drug dependence.
Detention Operations Manual, Health Services, Standard 2, Section D1D.

24
NY\94007S.I

2.

Access tG Dental Treatment

The Detention Standards state that an initial dental screening exam should be
19S
Detainees should be provided with

perfonned within 14 days of the detainee's arrival.

emergency dental treatment, which includes procedures directed toward the immediate relief of
pain, trauma, and acute oral infection that endangers the health of the detainee.

l96

Routine dental

treatment is to be provided for detainees in long-tenn detention (detained for over six months). 197
The delegation has found the MCCF has not implemented the Detention

Standards with regard to dental treatment. The procedures for obtaining dental treatment are
the same as the procedures for obtaining medical treatment; dental services may be requested by
filling out a sick call request slip and placing it in the designated box and emergencies are to be
treated immediately.198
pre:sented the delegation with his personal ext)erJ.en(:e
dental treatment at the MCCF. During the early part of this year,

sharp

pains caused by impacted wisdom teeth on the right side of his jaw. 199 He submitted a request
slip to see a dentist and was eventually seen a week after submitting the request despite his
request for immediate attention,zoo

attended to by an oral surgeon who
201

operated to extract the impacted wisdom teeth.
DUring the procedure, the oral sUrgeon broke
202
on the right side.
The oral surgeon did not attend to the break and
during the two-week period following the procedure an abscess fonned in
jaw. 203 He was brought to a local hospital where the abscess was treated and aplate was

Detention Operations Manual. Health Services, Standard 2. Section III.E.

'"

Detention Operations Manual, Health SeIVices, Standard 2. Section III.E.

".

Inmate Guiddines, p.

Detention Operations Manual, Health Services, Standard 2, Section m.E.

17, Section 41.C.-D.

Notes of delegation
Notes of delegstion
Notes of delegstion
Notes of delegation

,»

Notes of delegation

25
NY\94007S.1

installed in his jaw?04

to the delegation that he was still in constant pain,

had limited movement of his jaw. 205
The delegation found areas of particular concern. First, it was unclear whether
detainees received an initial dental examination within 14. days ofhislher arrival to the MCCF.
Second, it was unclear whether long-term detainees at the MCCF received the right to routine
dental treatment. Generally, it appeared to the delegation that the burden of dental health was
placed on the detainees?06 Third, if detaineMiI.'• •ersonal experience with the MCCF's
dental services is characteristic of the way the MCCF handles dental emergencies, then MCCF's
procedures for aiding detainees who request emergency dental care are 'inadequate.
D.

Religious Issues
The Detention Standards require broad protection and respect of a detainee's

religion and religious practices. Chaplains are required to make arrangements to provide pastoral
care and counseling even ifreligious service providers from outside the facility are requested?07
Facilities are encouraged to bring to the facility representatives and volunteers from faith groups
in the community.208 Detainees have the right to engage in group religious activities, and each
facility should designate a space for religious services without regard to whether such services
are mainstream or non-mainstream,z09 Schedules for various services shall be clearly posted in
all dorms and on bulletin boards. 210 Religious headwear is permitted?l1 Detainees shall be
allowed to have the following items in their personal property: prayer beads, rosaries, oils, prayer

Notes at aelC:l!~uon m,omoer:

Observation of delegation
Detention Operations Manual, Detainee Servic~ Standard 14, Section m.F.

".

Detention Operations Manual, Detainee Services, Standard 14, Seetionill.l.
Detention Operations Manual, Detainee Services, Standard 14, Section mG.-H.
Detention Operations Manual, Detainee Services,. Standard 14, Section III.E.
Detention Operations Manual, Detainee Services, Standard 14, Section IILK.

NY\940075.1

26

rugs, phylacteries, medicine pouches, and religious medallions.212 Religious books and literature
shall be permitted in accordance with the facility's policies on incoming pUblications.213
In addition, the Detention Standards state that each facility is required to
accommodate religious and dietary requirements of each detainee including fasting, restricted
diets and specific holy daYS?14 Facilities are to provide detainees requesting a religious diet with
a reasonable and equitable opportunity to observe their religious dietary practice. 2ls The
detainee shall provide a written statement articulating the religious motivation for participation in
a religious diet, and, after verifying the religious dietary requirement, the Chaplain will issue
specific written instructions regarding the dietary requirements. 216 Facilities shall accommodate
detainees abstaining from particular foods or fasting for religious purposes at prescribed times of
year (e.g., Ramadan, Passover, Lent).217
The delegation found the MCCF appears to have implemented the Detention
Standards with regard to religious issues. Religious services for a variety of faith traditions are

held in the Chapel, and a schedule of services is available on notice boards.218 Religious
activities are scheduled and that an inmate is allowed to sign up for one religious service of the
inmate's choice at the time of his intake interview. 219 An inmate is also allowed to attend other
religious activities (e.g., studies, prayer meetings) if the inmate signs up for such activities at the
time of his intake interview. 220 Changes of these preferences can be made by request to the
Chaplain.22I Ecclesiastically endorsed visitors (ministers, priests, rabbis, imams, etc.) are
permitted to visit inmates for personal religious interview from 9:00 AM until 10:00 PM except
during mealtimes and head counts?22 The Chaplain is also available for personal religious

Detention Operations Manual, Detainee Services, Standard 14, Section m.K.
Detention Operations Marrual, Detainee Services, Standard 14, Section ill.K.
Detention Operations Manual, Detainee Services, Standard

14, Section 1Il.M.

,"

Detention Operntions ManuaJ, Detainee Services. Standard 7, Section mE.

".

Detention Operations Manual. Detainee Services, Standard 7, Section mE.
Detention Operations Manu~. Detainee Services, Standard 7. Section m.E.
Inmate Guidelines, p. '22, Section 20A

'"

hunate Guidelines. p. 22, Section 2O..B.

Inmate Guidelines, p. 22, Section 2O.C.
Inmate Guidelines, p. 22, Section 2O.B·C.
Inmate Guidelines, p. 22, Section 2O.E.

NY\94007S.1

27

counseling}23 MCCF personnel stated that the Chaplain has been known to reach out to the
surrounding communities for religious leaders, including those of non-traditional faiths, that
could .assist inmates and detainees in the worship of and counseling in their faiths. 224 Inmates
are allowed to have the following religious items in their personal property, subject to certain
restrictions: a religious medallion (allowed one medallion smaller than a 50-cent coin and on a
jewelry chain 24 inches or shorter); religious head coverings (permitted two at a time); prayer
rugs (allowed one); religious beads (allowed one set that is lf4" bead diameter); and religious
books.225 MCCF personnel also noted that inmates and detainees who have religious dietary
226

restrictions are provided with meals that comply with such restrictions.

The delegation, however, is uncertain as to whether the Detention Standards
guidelines for approval of religious diets are being followed by the MCCF. It is unclear
from review of the Inmate Guidelines how a detainee would be able to gain approval of his
religious dietary restrictions. Section 21 of the Inmate Guidelines ("Religious Services, Chaplain
and Religious Counseling") does not set forth the procedure a detainee would have to follow to
ensure his meals complied with his religious dietary restrictions. The only mention of
accommodations for "special diets" is found in Section 6 ("Meal Procedures") where it is noted
that such meals are only to
MCCF personnel and

by the Medical Department of the MCCF. Despite this,
both stated to the delegation that the religious dietary

restrictions of detainees are respected at the MCCF. The delegation did not ask how approval of
these special diets ~as made. The process of dietary approval should follow the Detention
Standards.

One IDcomlisten(:y

Inmate Guidelines.

the
stated that detainees whose religion requires that a head

covering be worn are told not to do so by MCCF personnel. 227 Religious head coverings, subject
to some regulations, are allowed according to the Inmate Guidelines.

28
NY\94D07S.1

E.

Detainee Classification
The Detention Standards state that facilities must have appropriate classification

systems that ensure that each detainee is placed in the appropriate risk category and is physically
separated from detainees in other categories?28 ISGA facilities such as the MCCF can use the
classification systems developed locally if the classification criteria are objective and all
procedures meet ICE requirements?29 Detainees are to. be initially classified at intake, and
classification will take into consideration objective information regarding the detainee, such as
current offenses, past offenses, escapes, ipstitutional disciplinary history, violent
episodes/incidents, etc. 230 In ISGA such as the MCCF, ICE officials shall provide non-ICE
officials with materials through which the proper classification may be made.231 Detainees shall
be housed according to their classification level. 232
The delegation found the MCCF to have implemeted the Detention Standards
with regard to detainee classification. MCCF personnel explained to the delegation that
detainees were categorized according to the risk classification system used 10cally.233 This risk
category system categorized the. detainees and inmates by jumpsuits in different colors. 234
According to the local system, an inmate's risk category is determined by the objective standard
of an inmate's bail amount. 235 Detainees were classified according to objective information
provided to the MCCF by ICE.

236

MCCF personnel explained to the delegation that the

detainees held in the pod visited were grouped with inmates of the lowest risk category.237
when interviewed by the delegation, was wearing a blue jumpsuit, indicating
his classification in the lowest risk category.238

Detention Operations Manual, Detainee Serviccs,.Standard 4, Section 1

'"

Detention Operations Manual, Detainee Services" Standard 4. Section mA.
Detention Operations Manual, Detainee Services, Standard 4, Section mB.-D.

,n

Detention Operations Manual, Detainee Services, Standard 4, Section lllD.
Detention Operations Manual, Detainee Services, Standard 4, Section mE.
Notes of delegation
Notes of ddegation

'"

Notes of delegation
Notes of delegation
Notes of delegstion
Notes of delegstion

29
NY\940075.1

F.

Legal Material Retention
The Detention Standards state that, among other items of personal property,

detainees shall be allowed to keep reasonable quantities of legal doc~ments and papers.239
The delegation found the MCCF to have implemented the Detention

Standards with regard to the retention of legal materials. The Inmate Guidelines note that
inrriates are allowed to have legal documents and papers in their personal property.240
G.

Work Programs
The Detention Standards state that every facility with a work program shall

provide detainees who are physically and mentally able to work the opportunity to work and eam
money?41 Work assignments will depend on the detainee's classification level. 242 Detainees
shall not be pennitted to work more than 8 hours a day, 40 hours weekly. 243 Work assignments

are voluntary and detainees may be removed from work programs for unsatisfactory
perfonnance, disruptive behavior, infractions of rules, or physical inability to perfonn the job?44
The delegation found MCCF to provide work programs to detainees. The

Inmate Guidelines, which do not differentiate between detainees and inmates, only provides
details on how the Facility's Work Release program operates. According to
245
detainees are not eligible for the Work Release program.
Detaine_does, however,
work as a meal tray porter inside ·the pod containing the detainees; he noted that other detainees
246
also workedjobs.

H.

Grievance and Disciplina:ry Procedures

1.

Grievance Procedures

Detention Operations Manual, Detainee Services, Standard 8, Section I1IB.
Inmate Guidelines, p. 5; Section 31..
2<1

Detention Operations Manual, Detainee Services. Standard 18, Section m.A.
Detention Operations Manual, Detain.. Services, Standard 18, Section I1I.A.

243

Detention Operations Manual, Detainee Services, Standard

18~

Section ill.H.

Detention Operations Manual. Detainee Services. Standard 18~ Section ill.c .. L.
Nores of delegation

24'

Notes of delegation

30
NY\94()075.1

The Detention Standards state that each facility must develop standard operating
procedures that address detainee grievances including emergency grievances and must guarantee
against any reprisals. 247 An informal procedure should be in place for a detainee to present
orally his or her co~cem to any staff member at any time within five days of the event. 248 Each
facility must allow detainees to submit a formal, written grievance in place of or in appeal of an
informal grievance filing?49 Each facility should make provisions to provide translation
25o
assistance when requested by a detainee.
Illiterate, disabled, or non-English speaking
detainees should be given the opportunity to receive assistance in filing formal grievance. 251
The delegation found the MCCF to have partially implemented the Detention

Standards with regard to grievance procedures. If an inmate has a complaint/request or
252
If immediate assistance is required, an
grievance, the inmate should consult a staff member.
253
officer can be called to the inmate's cell.
Supervisors and Social Service Counselors are
.assigned to answer request/complaints or grievances?54 If the inmate does not agree with the
answer given, the inmate may direct his/her request/complaint or grievance to various MCCF
staff. 255 Request/complaints or grievances can be made to the Warden or his staff either in
person or by SUbmitting a Request Slip.256 Requests/complaints or grievances also can be made
to the Board of Prison Inspectors during their monthly inspection tours.257
A formalized process for translation and assistance detailed in the Inmate Guidelines
would ensure clear communication between MCCF staff and detainees in grievance (and other)
situations and would avoid the uncertainty of ad hoc translations.

2.

Disciplinary Procedures

Detention Operations Manual. Detainee Services, Standard 5, Section lllA, B., D.
Detention Operations Manual. Detainee Servi~ Standard 5. Section mA
Detention Operations Manual. Detainee Services. Standard 5, Section Ill.A

Detention Operations Manual, Detainee Services, Standard 5, Section mA
Detention Operations Manual, Det<inee Serviel'S, Standard 5, Section llA.

'"
'"
'l4

Inmate Guidelines, p. 24, Section 25.A.
Inmate Guidelines,. p. 24, Section 25B.

Inmate Guidelines, p. 24, Section 25D.
Inmate Guidelines, p. 24, Section 25.£.
Inmate Guidelines, p. 24, Section 25.F.

'l7

Inmate Guidelines,. p. 24, Section 2S.G.

31
NY\940075.1

The Detention Standards state that rules of conduct and disciplinary sanctions shall be
posted in English, Spanish, and lor other languages spoken by significant numbers of
detainees.2S8 Disciplinary action shall not be capricious or retalilitory.259 Afacility disciplinary
system should not allow for corporal punishment, deviation from normal food, or deprivation of:
clothing, bedding, personal hygiene products, physical exercise, access to legal and family
visitation, telephone access, correspondence or access to law libraries. 26O Punishments shall
range from the withholding of privileges to segregation. 261 Time in segregation generally shall
not exceed 60 days.262 Facilities shall have graduated scales of offenses and disciplinary
consequences. 263 The facility shall not hold a detainee accouritable for hislher conduct if medical
authority finds himlher mentally incompetent. 264
Officers who witness a prohibited act or have reason to suspect one has been committed
shall prepare and submit a detailed incident report. 26S All incident reports should be investigated
within 24 hours of the incident?66 The investigating officer shall have supervisory rank and shall
have had no involvement in the incident.267 Detainees will receive a copy of the incident report

or notice of charges at least 24 hours before the start of disciplinary proceedings, and have the
right to an initial hearing before the Unit Disciplinary Committee, if applicable. 268 Detainees
have the right to: remain silent at any stage of the disciplinary process, atterid the entire Unit
Disciplinary Committee hearing, waive the right to appear at the hearing, present statements on
his/her own behalf, appeal the committee's decision through the detainee appeal process, and
have a staff representative assist in helping prepare a defense?69

Detention Operations Manual, Security and Control, Standard 3, Section m.AS.

Detention Operations Manual, Security and Control, Standard 3, Section mA2.

,,.,

Detention Operations Manual, Security and Control, Standard 3, Section mA3.
Detention OperationsManual, Security and Control, Standard 3, Disciplinary Severity Scale and Prohibited Acts.

Detention Operations Manual, Security and Control, Standard 3, Section m.K
Detention Operations Manual, Security and

Contro~

Standard 3, SeeDon m.I.

Detention Operations Manuw, Security and Control, Standard 3, Section 1D.A.4.

'"

Detention Operations Manual, Security and Control, Standard 3, SeeDon'm.C.
Detention Operations ManuaJ, Security and Control, Standard j, Section me.

Detention Operations Manual, Security and Control, StaOdard 3, Section m.c.
Detention Operations Manual, Security and Control, Standard 3, SeeDOD m.c.

'"

Detention Operations Manual, Security and Control, Standard 3, Section m.c,

NY\940075.1

32

The delegation found the MCCF to be lacking with regard to implementation
ofthe Detention Standards relating to disciplinary procedures. The Inmate Guidelines
provide a detailed list of disciplinary violations that are divided into two categories: "major
misconducts" and "minor misconducts.,,270 All inmates accused of misconducts have the right to
a hearing before the Disciplinary Hearing Board before any punishment is imposed.

271

The

elements of a hearing provided in the Inmate Guidelines closely tracks those outlined in the
Detention Standards. Depending on the seriousness of the misconduct, the Disciplinary Hearing
Board can punish an inmate with sanctions such as: disciplinary segregation up to 30 days
maximum; loss of privileges; loss of "good time"; reprimand or warning; prosecution in a local
court; payment of restitution; suspended sentences; and delay of release date.272
The delegation found several areas of particular concern. First, the copies of
the Inmate Guidelines' rules of conduct and disciplinary sanctions are not made available to
detainees in languages other than English. Second, it does not appear that MCCF's investigative
process for detainee disciplinary hearings conforms to the Detention Standards~ IfMCCF does
have a process in place, it is not properly illustrated in the Inmate Guidelines. Third, the Inmate
Guidelines make no mention of assistance to detainees in preparation of a defense for a
disciplinary hearing.

VIT.

ICEPRESENCEATTHEFACILITY
The Detention Standards require procedures to be in place "to allow for formal

and informal contact between key facility staff and ICE staff and ICE detainees and to pennit
detainees to make written requests to ICE staff and receive an answer in an acceptable time
frame."m The Detention Standards require that both weekly visits be conducted by ICE
personnel and that "regular unannounced (not scheduled) visits" be conducted by the ICE

orc,

the Assistant orc, and designated department heads. 274 The purpose of such visits is to monitor
housing conditions, interview detainees, review records, and answer questions for detainees who
Inmate Guidelines, p. 29-30, Section 36.
:m

Inmate Guidelines, p. 31, Section 3&A
Inmate Guidelines, p. 30, Section 36.D.
Detention Operations Manual, Staff-Detainee Communication, Section I.
Detention Operations Manual. Staff-Detainee Communication, Section In.A.

33
NY\940075.1

do not comprehend the immigration removal process?75 The Detention Standards also require
that detainees "have the opportunity to submit written questions, requests, or concerns to ICE
staff."z76 All facilities that house ICE detainees must have "written procedures to route detainee
requests to the appropriate ICE officilil" and must assist detainees "who are disabled, illiterate, or
know little or no English.',277 Moreover, the Detention Standards require that detainee requests
be forwarded to the appropriate ICE office within 72 hours and "answered as soon as possible or
practicable, but not later than 72 hours from receiving the request.,,278
As of the date ofthe delegation's visit, ICE had not implemented this section
of the Detention Standards at MCCF. Although SDD~was present at the facility on the
day of the delegation's visit, she made it clear that there is no weekly ICE presence at the
facility; rather, visits are less frequent,z79 There is no notice giving detainees infonnation about
how to contact ICE officials and there are no written procedures in place for dealing with such
requests. Z80 SDDcllaindicated that she was just assigned to the facility and that she was well
aware that these requirements are not being met at the present time.
281
to implement the standards.

eager

ICE detainee at the MCCF for three years, reported feeling
Z82
He reported that he has rarely seen ICE officials
isolated because of the lack ofICE contact.
at the facility and that when he tried to make contact with ICE officials, they did not
acknowledge him.283 The last visit he reported was three months prior to our visit with him and
284
he still has not been able to get an update on the status of his case.
In a telephone interview after the delegation's visit to the MCCF,
indicated that ICE had instituted a written policy for ICE detainees and that they had begun
Detention Operations Manual, Staff·Detainee Communication, Section mA.
Detention Operations Manual, Staff-Detainee Communication, Section ma.
Detention Operations Manual,

Staff~Detainee

Communication, Section m.B.

Detention Operations Manual,

StafT~Detainee

Communication, Section m.B.I.

.

,

Notes at d.eteg~nol' m.:mDe
Notes

Notes

34
NYl940075.1

advertising their presence. There are no plans, however, to make ICE visits weekly and
implement this section of the standards.

285

that the reason they do not

meet this standard is the low number of detainees at the facility; she indicated that there were
generally approximately 6-7 long term detainees and that given such a low number of users of
their services, they did not have the resources to visit the facility that frequently.286

Vill. CONCLUSION
The delegation is concerned that the MCCF is generaliy deficient in providing adequate
translation services for detainees.

Overall, the delegation believed that the MCCF is

adequate for short-term detention stays, but not adequate for long-term detention. The
procedures and policies for long-term detention in accordance with the Detention

Standards are simply not in place.

,.,

Notes of delegation
Notes of delegation

35
NY\940075.1