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MEMORANDUM

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August 30, 2005

Los Angeles

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To:
From:
Copies to:
Subject:

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Washington, D.C.

John P. Torres, Acting Director, Office of Detention and Removal, Immigration and
Customs Enforcement
American Bar Association Delegation to Ozaukee County Jail1
(b)(6)
Associate Director, ABA Commission on Immigration
Report on Observational Tour of Ozaukee County Jail

This memorandum summarizes and evaluates information gathered at Ozaukee County
Jail (“OCJ”) in Port Washington, Wisconsin, during the Delegation’s August 5, 2005 visit to the
facility. The information was gathered via observation of the facility by the Delegation,
interviews of six detainees, and discussions with OCJ and Immigration and Customs
Enforcement (“ICE”) personnel.
I.

ICE DETENTION STANDARDS

In November 2000, the Immigration and Naturalization Service (INS),2 promulgated the
“INS Detention Standards” (the “Standards”) to ensure the “safe, secure and humane treatment”
of immigration detainees. The thirty-eight standards contained in the Detention Operations
Manual cover a broad spectrum of issues ranging from visitation policies to grievance
procedures and food service. These standards apply to ICE-operated detention centers and other
facilities that house immigration detainees pursuant to a contract or intergovernmental service
agreement (“IGSA”).
The Standards went into effect at ICE-operated detention facilities on January 1, 2001.
ICE intended to phase in the Standards at all of its contract and IGSA facilities by December 31,
2002. The Standards constitute a “floor” rather than a “ceiling” for the treatment of immigration
detainees. In other words, they are designed to establish the minimum requirements to which
ICE must adhere in its facilities. Each Field Office or Officer-in-Charge has discretion to
1

2

The delegation was comprised of attorneys and summer associates from Latham & Watkins LLP, including
the “Delegation”).
(b)(6)

(b)(6)

Effective March 1, 2003, the INS ceased to exist as an agency of the Department of Justice. The INS’ immigration
enforcement functions were transferred to Immigration and Customs Enforcement (“ICE”), a division of the newlycreated Department of Homeland Security (“DHS”).

promulgate polices and practices affording ICE detainees more enhanced rights and protections,
beyond those provided for by the Standards.
II.

INTRODUCTION
A.

The Delegation’s August 5, 2005 Visit to OCJ

On August 5, 2005, the Delegation visited OCJ to conduct an observational tour. The
Delegation was assisted in that effort by ICE Deportation Officer/Jail Liaison Officer
(b)(6), (b)(7)c
as well as several OCJ personnel, particularly Sergeant (b)(6), (b)(7)c and
Deputy (b)(6), (b)(7)c
Officer (b)(6), (b)(7)c and OCJ personnel were cordial and helpful, and the
Delegation sincerely appreciates the accommodation.
The Delegation bases its report on observations of the facility, perusal of the materials
provided to us, discussions with the aforementioned ICE and OCJ personnel and interviews with
six detainees housed in OCJ. In many instances, the detainees’ reports were compatible with
statements made by facility personnel and/or our observations. In such cases, the Delegation was
able to more accurately determine whether OCJ policy and procedures successfully implemented
the Standards. However, in certain instances, the detainees’ reports conflicted with statements
made by facility personnel. Where we were unable to verify the conflicting reports, the
Delegation was unable to conclusively determine Standards implementation.
B.

General Information about OCJ

OCJ is located in Port Washington, Wisconsin, just north of Milwaukee. The facility is
located on the same grounds as other buildings in the Ozaukee County Justice Building complex.
OCJ is a relatively small facility, housing approximately 200-250 individuals at any given time.3
The Delegation did not determine how many detainees were currently being housed at OCJ.
OCJ does not currently house female detainees.4 OCJ houses immigration detainees from all
over the world, but the greatest proportion is from Mexico.5
III.

OBSERVATIONS OF IMPLEMENTATION OF LEGAL ACCESS STANDARDS
A.

Legal Access/Visitation
1.

Visitation By Attorneys

The Standards require facilities to allow detainees to meet privately with their current or
prospective legal representatives and legal assistants and to meet with their consular officials

3

Notes of Delegation member

4

Notes of Delegation member

5

Notes of Delegation member

on conversation with Sergeant
(b)(6)

on conversation with Sergeant
on conversation with Sergeant

2

(b)(6), (b)(7)c

seven days a week, including holidays.6 The Standards also provide that legal visitations should
be permitted for a minimum of eight hours during business days, and a minimum of four hours
on weekends and holidays. Attorney visits are not to be terminated for head counts or meals, and
in such cases where a detainee misses a meal while meeting with his attorney, he shall receive a
meal or snack after the visit.7 In addition, each facility should allow legal service providers to
telephone the facility in advance to determine whether a particular individual is detained at the
facility, but not require attorneys to make appointments to visit with their clients.8
Prior to each visit, all legal service providers and assistants are required to present proper
identification. State bar cards are the preferred form of identification, but attorneys who are
members of state bars that do not provide a bar card will be required to present other available
documentation demonstrating bar membership.9 If standard operating procedures require strip
searches for detainees after every contact visit, the facility must provide detainees an option for
non-contact visits with legal representatives in an environment that allows for confidentiality. 10
OCJ has substantially implemented this section of the Standards. According to the
Ozaukee County Jail Rules & Regulations and Resident Information Booklet (the “OCJ Inmate
Handbook” or the “Handbook”), attorneys are not restricted to the normal hours of visitation.11
Attorneys are allowed to visit daily from 8:30 a.m. to 11:00 a.m., 1:00 p.m. to 4:00 p.m. and 6:00
p.m. to 9:00 p.m.12 Attorneys are allowed to visit during meal times, and if a legal visitation
proceeds through a scheduled meal, detainees receive a tray or a snack meal after the visit, in
accordance with the Standards.13 Attorneys are not allowed to visit when a lock-down is
instituted, which is contrary to the Standards.14 An attorney “may put in a request to override
regular visitation hours,”15 but it is unclear what special circumstances would be required for
such an exception to be made.
In order for an attorney to visit a detainee at OCJ, he or she must present proper
credentials.16 Normally, an attorney is asked to present a bar card and driver’s license, but

6

Detention Operations Manual, Detainee Services, Standard 17, Sections III.I & K.

7

Detention Operations Manual, Detainee Services, Standard 17, Section III.I

8

Detention Operations Manual, Detainee Services, Standard 17, Section III.I

9

Detention Operations Manual, Detainee Services, Standard 17, Section III.I

10

Detention Operations Manual, Detainee Services, Standard 17, Section III.I.

11

OCJ Inmate Handbook, at 9.

12

OCJ Inmate Handbook, at 9. It appears that “daily” includes weekends, but it is not clear from the text of the
Handbook.

13

Notes of Delegation member

14

Notes of Delegation member

on conversation with Sergean
on conversation with Sergean
(b)(6)

(b)(6), (b)(7)c

15

Notes of Delegation member

on conversation with Sergean

16

Notes of Delegation member

on conversation with Deputy

3

exceptions can be made for those lawyers without valid bar cards.17 The attorney may visit a
client without prior notice to the facility (i.e., the attorney need not arrange for the visit in
advance), but an attorney can also call ahead to determine if a detainee is at the facility before
they come to visit. Any person who can prove they work for the law firm (including interpreters
and assistants) can accompany a lawyer during their visit with a detainee.18
There are five attorney visitation booths at the facility. The booths appear to provide for
privacy and confidentiality. However, if a detainee or an attorney hits the panic button in any of
the booths, all conversations in the room will be recorded and an officer will immediately come
to the premises.19
All attorney visitation areas allow for contact visits. Unlike the booths used for family
visits, the attorney booths do not have Plexiglas dividers to separate the detainees from their
attorneys.20 Also, detainees are not subject to strip searches after attorney visits; they are subject
only to “pat down” searches, in accordance with the Standards.21
2.

Visitation by Family and Friends

To maintain detainee morale and family relationships, the Standards encourage visitation
with family and friends.22 To that end, the Standards require that all detention facilities allow
visitation and establish written visitation procedures.23 The Standards require a minimum of 30
minutes per visitation, under normal conditions, and encourage more generous limits when
possible.24 The Standards require that visits be permitted on weekends and holidays.25 To the
extent possible, the Standards encourage establishing visiting hours for each detainee on both
days of the weekend, and to try to accommodate visitors who can only visit on a specific
weekend day. The facility must allow visitation by immediate family members, and other
relatives, friends, and associates.26 Finally, the facility’s visiting area shall be appropriately
furnished and as comfortable and pleasant as practicable.27

17

Notes of Delegation member

on conversation with Deputy

18

Notes of Delegation member

on conversation with Deputy

19

Notes of Delegation member

20

Notes of Delegation member

on observation from tour.

21

Notes of Delegation member

on conversation with Deputy

22

Detention Operations Manual, Detainee Services, Standard 17, Sections I & III.H.1.

23

Detention Operations Manual, Detainee Services, Standard 17, Section III.H.

24

Detention Operations Manual, Detainee Services, Standard 17, Section III.H.1.

25

Detention Operations Manual, Detainee Services, Standard 17, Section III.H.1.

26

Detention Operations Manual, Detainee Services, Standard 17, Section III.H.2.

27

Detention Operations Manual, Detainee Services, Standard 17, Section III.G.

(b)(6)

on observation from tour.

4

(b)(6), (b)(7)c

OCJ partially implements this section of the Standards. OCJ provides for family and
friend visitation, and provides written visitation procedures to the detainees through the OCJ
Inmate Handbook, as well as through posters on the walls near the phones.28 Minors are allowed
to visit the facility, but only if accompanied by a parent or a legal guardian.29 According to the
OCJ Inmate Handbook, all inmates are allowed two visits per week, each lasting up to 30minutes, but the two 30-minute visitations may be combined into a one-hour session. 30
However, one detainee described the structure for arranging visitation as “confusing.”31
He said that, first, the detainee has to provide information about his visitor and then the visitor
must call and request a visit.32 He confirmed that visits can last up to an hour per visitor, but the
visitor can only request a 1/2 hour at a time, so they have to hang up and call back to schedule a
full hour visit.33 Making visitation procedure “confusing” for detainees and their visitors does
not encourage visitation as the Standards suggest.
In addition, general visitation (as opposed to visits by professionals) is restricted to
certain days of the week (Tuesday, Wednesday and Thursday) and visitation times are limited to
9:00-11:00 a.m., 1:00-3:00 p.m. and 7:00-9:00 p.m. 34 The allowable general visitation hours at
OCJ do not implement the Standards as OCJ does not allow visitation on the weekends.
General visits are held in a room adjacent to the lobby which is divided by Plexiglas
partitions into 8-10 visitation booths, with thick walls of Plexiglas separating detainees from
their visitors.35 There is no other furniture. Detainees and visitors may speak to each other only
via the telephone handsets provided in each booth and there are no contact visits allowed.36
The OCJ Inmate Handbook also states that appointments for visits should be made 24
hours in advance.37 Visitors arriving 15 minutes after the beginning of their scheduled visitation
time may not be allowed to visit.38 If a detainee’s visitor does not show for a scheduled visit, the

28

Notes of Delegation member

on conversation with Deputy
(b)(6)

and observation.

(b)(6), (b)(7)c

29

Notes of Delegation member

30

OCJ Inmate Handbook, at 13; Notes of Delegation member

on conversation with Deputy
(b)(6)

31

, on conversation with Deputy(b)(6), (b)(7)c

(b)(6)
Notes of Delegation member
on interview of
According to the five other
(b)(6)
detainees interviewed, none had had any visitors, so they could not corroborate or dispute
(b)(6)

32

Notes of Delegation member

33

Notes of Delegation member

34

OCJ Inmate Handbook, at 13.

35

Notes of Delegation member

on interview of
(b)(6)

(b)(6)

on interview of

n observations during tour.
(b)(6)

36

Notes of Delegation member

37

OCJ Inmate Handbook, at 12.

38

OCJ Inmate Handbook, at 12.

, on observations during tour.

5

detainee loses that visitation appointment for the week.39 In addition, detainees are required to
keep a visitors list of no more than eight names and register all visitors before they arrive.40
Only persons on this list, with the exception of attorneys and clergy, may visit the detainee. 41
Detainees may revise their visitors list to include other individuals but they must first make space
on their list by removing persons already listed.42 Visitors who are not included on the list will
not be admitted to the facility.43 The Delegation is concerned that these restrictive policies may
not reflect the Standards’ goal of “maintaining detainee morale and family relationships” by
“encourag[ing] visits from family and friends.”44
B.

Telephone Access
1.

General Requirements

The Standards require that facilities provide detainees with reasonable and equitable use
of telephones during waking hours.45 The facility must post telephone access rules and detainees
must be given these rules when they arrive.46 Facilities must provide at least one telephone for
every 25 detainees.47
OCJ has apparently partially implemented this section of the Standards. Telephones
are available for use anytime during the non-lockdown hours from 9:00 a.m. to 10:30 p.m.48
According to OCJ personnel, the phones are always available for use during these hours.49 The
phones are located in each OCJ housing unit for immigration detainees.50 Each unit houses no
more than 24 people. At least two phones are available in each housing unit, in accordance with

39

OCJ Inmate Handbook, at 12.

40

(b)(6)
Notes of Delegation member
included in the OCJ Inmate Handbook.)

, on conversation with Deputy

41

Notes of Delegation member

, on conversation with Deputy

42

Notes of Delegation member

43

OCJ Inmate Handbook, at 12.

44

Detention Operations Manual, Detainee Services, Standard 17, Section I.

45

Detention Operations Manual, Detainee Services, Standard 16, Section III.A.

46

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

47

Detention Operations Manual, Detainee Services, Standard 16, Section III.C.

48

Notes of Delegation member

49

Notes of Delegation member

50

Notes of Delegation member

(Note: this information is not

(b)(6), (b)(7)c

(b)(6)

, on conversation with Deputy

on conversation with Deputy
(b)(6)

on conversation with Deputy
on conversation with Deputy

6

(b)(6), (b)(7)c

the Standards.51 According to OCJ personnel, instructions regarding usage of phones are posted
next to the phones in both English and Spanish.52
The Delegation is concerned about the detainees’ opportunities to contact attorneys
and free legal service providers. The Delegation was not permitted inside the housing unit to
verify the existence of the phone usage instructions or whether the phones were in proper
working order. Furthermore, detainees complained that they did not know how to use the
phones.53 Again, because for many detainees the phone is the only way for them to contact their
attorneys, pro-bono organizations, consulates, or family, these issues cause the Delegation
concern.
Even though the Standards state that telephones should be available for use during
waking hours, two detainees stated that phone calls to attorneys are restricted to Tuesdays and
Fridays from the hours of 11 a.m. to 2 p.m.54 Since the delegation was not permitted to view the
phones or telephone instructions, it was unable to determine the source of this restriction or to
verify that legal service providers could be called at these times or any time. The OCJ Inmate
Handbook does not state anything about restricting phone calls to attorneys in any way. Given
the importance of phone access to attorneys by detainees, especially in light of the distance
of OCJ from Chicago and even Milwaukee, the Delegation is very concerned that OCJ is
not implementing this vital section of the Standards.
2.

Direct and Collect Calls

The Standards require that even if telephone service is limited to collect calls, the facility
must permit detainees to make direct calls to a number of organizations, including the local
immigration court, the Board of Immigration Appeals, Federal and State courts, consular
officials, legal service providers, and relevant government offices.55 Detainees must also be able
to make direct calls for personal or family emergencies when a “compelling need (to be
interpreted liberally)” arises.56 The facility shall not require indigent detainees to pay for the
types of calls listed above if they are local calls, nor for non-local calls if there is a compelling
need.57 All detainees must be able to make calls to the ICE-approved list of free legal service
providers and consulates at no charge to the detainee or the receiving party.58

51

Notes of Delegation member

on conversation with Deputy

52

Notes of Delegation member

on conversation with Deputy

53

Notes of Delegation member

(b)(6), (b)(7)c
(b)(6)

on interviews of detainees

54

Notes of Delegation member
on interviews of detainees
detainees do not currently have attorneys.

55

Detention Operations Manual, Detainee Services, Standard 16, Section III.E.

56

Detention Operations Manual, Detainee Services, Standard 16, Section III.E.

57

Detention Operations Manual, Detainee Services, Standard 16, Section III.E.

58

Detention Operations Manual, Detainee Services, Standard 16, Section III.E.

7

(b)(6)

These

The Delegation is concerned about OCJ’s implementation of this section of the
Standards. Due to certain rules and procedures at OCJ, making or receiving phone calls is
difficult.59 OCJ recently implemented a calling card system over the last month.60 While the
detainees are allowed to purchase a calling card, for many the calling cards are prohibitively
expensive.61 For instance, the Delegation was told that a 13-minute call costs $15.00, with the
first minute costing approximately $5.00.62 The high price of calling cards was corroborated by
other detainees.63
As to collect calls, the person receiving the collect call needs to make payment
arrangements before the call can go through (rather than allowing the call to proceed and billing
the recipient of the collect call later).64 Furthermore, detainees cannot call collect from every
phone.65
Finally, detainees cannot receive phone calls since the phones do not accept incoming
calls.66 Coupled with the fact that detainees cannot make international calls, even with a calling
card, this prevents detainees from speaking to family living overseas. 67 Thus, OCJ’s phone
system severely impedes detainees from making and receiving calls. The Delegation, therefore,
is concerned that OCJ has not adequately implemented this section of the Standards.
OCJ has apparently implemented the Standards regarding free and direct calls.
OCJ personnel stated that detainees are able to make free direct calls to consular officials and
legal service providers.68 One detainee confirmed that the phones could be used to make free
direct calls to the consular officials.69 Another detainee stated that he could make free calls to
pro bono attorneys.70 However, the Delegation could not confirm whether detainees could make
free calls to any other individuals or entities listed in the Standards, including Federal, State and
Immigration courts.
59

Notes of Delegation member

60

Notes of Delegation member

61

Notes of Delegation member

62

Notes of Delegation member

63

(b)(6)

, on interview of detainee

(b)(6)

on interview of detainee
on interview of detainee

(b)(6)

(b)(6)

on interview of detainee

Notes of Delegation members
respectively.

, on interviews of detainees

(b)(6)

(b)(6)

(b)(6)

64

Notes of Delegation member

on interview of detainee

65

Notes of Delegation member

66

OCJ Inmate Handbook, at p. 12.

67

Notes of Delegation members
respectively.
(b)(6)

68

Notes of Delegation member
, on interview of detainee

on interview of detainee

70

and

(b)(6)

(b)(6)

(b)(6)

69

(b)(6)

(b)(6)

(b)(6)

on interviews of detainees

(b)(6), (b)(7)c
on conversation with Deputy
Notes of Delegation member
(b)(6)

Notes of Delegation member

on interview of detainee
(b)(6)

Notes of Delegation member

(b)(6)

(b)(6)

, on interview of detaine

8

and
(b)(6)

The Delegation is concerned with the instructions OCJ detainees receive for phone
usage. While OCJ personnel state that directions for telephone usage are posted at each
telephone as required by the Standards,71 several detainees complained that the phone system
was extremely complicated and difficult to use.72 The Delegation was not permitted into the
cells to see if adequate instructions were posted.
3.

Privacy for Telephone Calls on Legal Matters

The Standards require that telephone calls on legal matters be given privacy from other
detainees, officers, staff and from electronic monitoring, absent a court order.73
The Delegation is concerned that OCJ may not have implemented this portion of the
Standards. As a general rule, all calls placed at the facility are monitored and recorded.74 If a
detainee is making a call to his attorney, he may request to have his call not monitored or
recorded.75 However, the request would have to be put in at least 48 hours before the call was
made.76 This option is not in the OCJ Inmate Handbook, and the Delegation was not able to
assess if this policy was communicated on the postings next to the phones. Additionally,
detainees do not always know when they will need to speak to their attorneys.77 Thus, while a
procedure is in place to allow detainees to make unmonitored calls, the number of detainees who
are actually able to take advantage of the procedure is questionable.
4.

Incoming Calls and Messages

The Standards require facilities to take and deliver messages to detainees as promptly as
possible.78 If the facility receives an emergency telephone call for a detainee, the facility is
required to obtain the caller’s name and telephone number and permit the detainee to “return the
emergency call as soon as reasonably possible.”79 Moreover, the facility must enable indigent
detainees to return emergency calls for free.80

71

OCJ Inmate Handbook, at p. 12.

72

Notes of Delegation member
(b)(6)
Delegation member

, on interviews of detainees
on interview of
(b)(6)

(b)(6)

(b)(6)

73

Detention Operations Manual, Detainee Services, Standard 16, Section III.J.

74

OCJ Inmate Handbook, at p.12.

75

Notes of Delegation member

76

Notes of Delegation member

77

Notes of Delegation member

78

Detention Operations Manual, Detainee Services, Standard 16, Section III.I.

79

Detention Operations Manual, Detainee Services, Standard 16, Section III.I.

80

Detention Operations Manual, Detainee Services, Standard 16, Section III.I.

on conversation with Deputy
(b)(6), (b)(7)c
(b)(6)

on conversation with Deputy
on interview of detainee

9

(b)(6)

Notes of

OCJ has substantially implemented this section. As a general matter, OCJ personnel
do not take messages for detainees.81 However, there are two important exceptions to this rule.
If a detainee’s attorney calls the facility, OCJ personnel will take and deliver the message after
they verify that the caller actually is an attorney.82 Also, if a family member calls with an
emergency, a message will be delivered to the detainee after OCJ personnel confirm that an
actual emergency exists.83 It was unclear how OCJ personnel make such a confirmation. One
detainee confirmed that OCJ personnel delivered a message to him when a family member called
with an emergency.84 The Delegation does not know whether OCJ allows indigent detainees to
return these calls free of charge.
C.

Access to Legal Materials
1.

Material Identified in the Standards

The Standards provide that all facilities “shall permit detainees access to a law library,
and provide legal materials, facilities, equipment and document copying privileges, and the
opportunity to prepare legal documents.”85
As detailed below, OCJ has implemented some sections of the Standards regarding
access to legal materials. However, OCJ has not implemented other sections of these
Standards and, on the whole, fails to provide immigration detainees with the requisite
access to legal materials.
2.

Law Library

The Standards provide that all facilities “shall provide a law library in a designated room
with sufficient space to facilitate detainees’ legal research and writing.”86 “The law library shall
be large enough to provide reasonable access to all detainees who request its use.”87 The library
“shall contain a sufficient number of tables and chairs in a well-lit room, reasonably isolated
from noisy areas.”88
OCJ has partially implemented this section of the Standards. While the Delegation
was not allowed to enter the law library because it was in use, a door window allowed the

81

Notes of Delegation member

82

Notes of Delegation member

on conversation with Deputy
on conversation with Deputy

(b)(6), (b)(7)c

(b)(6)

83

Notes of Delegation member

on conversation with Deputy

84

Notes of Delegation member

on interview of detainee

85

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

86

Detention Operations Manual, Detainee Services, Standard 1, Section III.A.

87

Detention Operations Manual, Detainee Services, Standard 1, Section III.A.

88

Detention Operations Manual, Detainee Services, Standard 1, Section III.A.

10

(b)(6)

Delegation to view the facilities.89 OCJ does provide a law library in a designated well-lit room
that is reasonably isolated from noisy areas, in accordance with the Standards.90 The designated
room, however, is very small with only enough space, table and chairs for use by one detainee at
a time.91 OCJ staff also restricts library use to no more than one detainee at a time.92
3.

Equipment

According to the Standards, a law library “shall provide an adequate number of
typewriters and/or computers, writing implements, paper, and office supplies to enable detainees
to prepare documents for legal proceedings.”93
OCJ has partially implemented this section of the Standards. While only the single
computer was visible from the Delegation’s vantage point, detainees are able to request writing
materials.94 OCJ provides indigent detainees with paper and pencils once every thirty days.95
While these items are not free of charge, detainees are allowed to run a negative balance on an
account that does not need to be repaid if the detainee remains indigent.96 Detainees are also
able to request photocopying, though they must pay for it.97 Given the indigent state of many of
the detainees, the Delegation worries that OCJ policies may inhibit the detainees’ ability to
conduct effective legal research.
4.

Holdings, Materials from Outside Persons or Organizations, Updating
Legal Materials and Replacing Materials

The Standards provide that the law library shall contain the materials listed in
Attachment A to the Standards, and “The facility shall post a list of its holdings in the law
library.”98 The Standards also provide that “[o]utside persons and organizations may submit
published or unpublished legal material for inclusion in a facility's law library.”99 The Standards
provide that the ICE Office of General Counsel (OGC) “will be asked to review the contents of

89

Notes of Delegation member

90

Notes of Delegation member

on observations from the tour.
(b)(6)

on observations from the tour.

91

Notes of Delegation member

on conversation with Deputy

92

Notes of Delegation member

on observations from the tour.

93

Detention Operations Manual, Detainee Services, Standard 1, Section III.B.

94

Notes of Delegation member

(b)(6)

, on conversation with Deputy

95

OCJ Inmate Handbook, at 7.

96

OCJ Inmate Handbook, at 7.

97

Notes of Delegation member

98

Detention Operations Manual, Detainee Services, Standard 1, Section III.C.

99

Detention Operations Manual, Detainee Services, Standard 1, Section III.D.

(b)(6)

on interview of detainee

11

(b)(6)

(b)(6), (b)(7)c

(b)(6), (b)(7)c

OCJ Inmate Handbook, at 7.

Attachment A at least annually, and update the list as needed.”100 The Standards provide that
“[d]amaged or stolen materials shall be promptly replaced.”101
OCJ has not implemented this section of the Standards. None of the materials listed
in Attachment A is available in the OCJ library.102 The only books contained in the OCJ library
are five books on state law.103 Detainees are apparently able to do some legal research on the
computer using several programs.104 While the Delegation was not allowed access to confirm,
OCJ claims computer access to all state and federal cases is available.105 Also, a printer did not
appear to be available, greatly limiting the usefulness of electronic research.106
5.

Hours of Access

The Standards provide that the facility “shall devise a flexible schedule to permit all
detainees, regardless of housing or classification, to use the law library on a regular basis.”107
“Each detainee shall be permitted to use the law library for a minimum of five (5) hours per
week” and detainees may not be forced to forgo required recreation time to use the library.108
It is unclear whether OCJ has implemented this section of the Standards. OCJ
personnel told us that detainees may access the library daily and are not limited in the amount of
time they may use the facility.109 Detainees are not required to choose between library time and
recreation time.110 A detainee’s access to the library may, however, still be limited by another
detainee’s use of the single-person facility.111 Also, and more importantly, the Delegation
learned from every detainee interviewed that they had no idea about the procedure regarding
access to the law library and had never been there.112 Coupled with the fact that there is no
information on the law library in the OCJ Inmate Handbook, the Delegation was unable to
determine whether this section is being implemented.

100

Detention Operations Manual, Detainee Services, Standard 1, Section III.E.

101

Detention Operations Manual, Detainee Services, Standard 1, Section III.F.

102

Notes of Delegation member Brandon Anderson, on observations from tour.

103

Notes of Delegation member

104

Notes of Delegation member

, on observations from tour.
, on conversation with Deputy
(b)(6)

105

Notes of Delegation member

, on conversation with Deputy

106

Notes of Delegation member

, on observations from tour.

107

Detention Operations Manual, Detainee Services, Standard 1, Section III.G.

108

Detention Operations Manual, Detainee Services, Standard 1, Section III.G.

109

Notes of Delegation member

110

Notes of Delegation member

111

Notes of Delegation member

112

Notes of all Delegation members, on interviews of all detainees.

(b)(6), (b)(7)c

on conversation with Deputy
(b)(6)

on conversation with Deputy
on conversation with Deputy

12

6.

Assistance from Other Detainees and Assistance to Illiterate and NonEnglish Speaking Detainees

The Standards provide that all facilities “shall permit detainees to assist other detainees
in researching and preparing legal documents upon request, except when such assistance poses a
security risk.”113 The Standards provide that “[u]nrepresented illiterate or non-English speaking
detainees who wish to pursue a legal claim related to their immigration proceedings or detention
and indicate difficulty with the legal materials must be provided with more than access to a set of
English-language law books.”114
OCJ has not implemented this section of the Standards. Implementation of this
standard is greatly hindered by the OCJ policy that only one person may use the law library at a
time, and the only immigration resources that are apparently available are only available on the
computer. This means that detainees are not able to help one another with electronic legal
research.
7.

Personal Legal Materials

The Standards provide that all facilities “shall permit detainees to retain all personal legal
material upon admittance to the general population or segregation, unless such material creates a
safety, security, and-or sanitation hazard.”115
OCJ has substantially implemented this section of the Standards. The detainees are
allowed to keep legal documents with them in their cell.116 However, all personal property kept
in a detainee’s cell, including legal paperwork, must fit completely into a large commissary
bag.117 The ability to keep legal documents was corroborated through detainee interviews.118
8.

Envelopes and Stamps for Legal Documents

The Standards provide that all facilities must “provide indigent detainees with free
envelopes and stamps for mail related to a legal matter, including correspondence to a legal
representative, potential legal representative, or any court.”119

113

Detention Operations Manual, Detainee Services, Standard 1, Section III.K.

114

Detention Operations Manual, Detainee Services, Standard 1, Section III.L.

115

Detention Operations Manual, Detainee Services, Standard 1, Section III.M.

116

OCJ Inmate Handbook, at 11.

117

OCJ Inmate Handbook, at 11.

118

Notes of Delegation member

119

Detention Operations Manual, Detainee Services, Standard 1, Section III.O.

(b)(6)

on interview of detainee

13

(b)(6)

OCJ has implemented this section of the Standards. As discussed in greater detail in
the Correspondence section below, indigent detainees are able to request envelopes and stamps
free of charge.120
9.

Notice to Detainees

The Standards provide that “the detainee handbook or equivalent, shall provide detainees
with the rules and procedures governing access to legal materials, including the following
information: (1) that a law library is available for detainee use; (2) the scheduled hours of access
to the law library; (3) the procedure for requesting access to the law library; (4) the procedure for
requesting additional time in the law library (beyond the 5 hours per week minimum); (5) the
procedure for requesting legal reference materials not maintained in the law library; and (6) the
procedure for notifying a designated employee that library material is missing or damaged.”121
Facilities must post these policies and procedures in the law library along with a list of the law
library’s holdings.122
OCJ has not implemented this section of the Standards. OCJ fails to implement the
Standards because the OCJ Inmate Handbook does not provide detainees with any rules and
procedures governing access to legal materials. The Delegation also did not observe a posted
notice of the rules in the law library.123 To the extent that the library does contain useful
materials, notice is crucial to its utilization by detainees. None of the detainees interviewed had
used the law library, nor did they know the procedure for doing so.124 This indicates that OCJ’s
lack of implementation of the Standards has a substantial impact on detainees’ utilization of
legal materials.
D.

Correspondence and Other Mail

The 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.”125 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.126 Special correspondence—which includes all
written communication to or from attorneys, legal representatives, judges, courts, government
officials, and the news media—is treated differently.127 Incoming special correspondence can be
120

OCJ Inmate Handbook, at 10.

121

Detention Operations Manual, Detainee Services, Standard 1, Section III.Q.

122

Detention Operations Manual, Detainee Services, Standard 1, Section III.Q.

123

Notes of Delegation member

124

Notes of all Delegation members, on interviews with all detainees.

125

Detention Operations Manual, Detainee Services, Standard 3, Section I.

126

Detention Operations Manual, Detainee Services, Standard 3, Sections III.B. & E.

127

Detention Operations Manual, Detainee Services, Standard 3, Sections III.B., E. & F.

(b)(6)

on observations from tour.

14

inspected for contraband only in the presence of the detainee, but it can never be read or
copied.128 Outgoing special correspondence cannot be opened, inspected, or read.129 The
Standards further provide that each detainee will be able to send at least five pieces of special
correspondence and three pieces of general correspondence at the government’s expense each
week.130
OCJ has partially implemented this section of the Standards. The OCJ Inmate
Handbook states that outgoing mail will be collected throughout the day and delivered to the
U.S. Post Office the following day, except Sundays and holidays.131 While there are no limits on
the amount of incoming and outgoing mail, both are inspected for security purposes.132 It
appears that detainees are normally present for the inspection, which is a requirement of the
Standards.133 One detainee, however, noted that he had attempted to send materials to his
attorney which had been inexplicably opened by OCJ personnel and returned to him, a clear
failure by OCJ to implement the Standards as they pertain to special correspondence.134
OCJ provides each indigent detainee with 3 stamps and 3 envelopes for personal use each
week.135 OCJ has revised its policy to implement the Standards since the visit last year when the
facility provided materials for only two letters per week.136 When used for legal correspondence,
the detainee must gain approval from the shift supervisor before additional materials will be
given beyond weekly allotment.137
E.

Group Rights Presentations

According to the Standards, detainee facilities are required to “permit authorized persons
to make presentations to groups of detainees for the purpose of informing them of U.S.
immigration law and procedures.”138 While the facilities are not required to arrange for
presentations,139 those presentations requested in writing140 will be scheduled during normal

128

Detention Operations Manual, Detainee Services, Standard 3, Sections III.B. & E.

129

Detention Operations Manual, Detainee Services, Standard 3, Sections III.B. & F.

130

Detention Operations Manual, Detainee Services, Standard 3, Sections III.I.

131

OCJ Inmate Handbook, at 11.

132

OCJ Inmate Handbook, at 11.

133

Notes of Delegation member

134

Notes of Delegation member

135

OCJ Inmate Handbook, at 10.

(b)(6)
(b)(6)

on interview of detainee
on interview of detainee

(b)(6)
(b)(6)

136

2004 ABA Delegation to OCJ “Report on observations during a general tour of the Ozaukee County Jail facility”
(the “2004 OCJ Report”)
137

OCJ Inmate Handbook, at 10.

138

Detention Operations Manual, Detainee Services, Standard 9, Section I.

139

Detention Operations Manual, Detainee Services, Standard 9, Section III.B.

15

legal visiting hours, excluding weekends and holidays and may be conducted daily.141 Group
rights presentations must be open to all detainees except for those detainees who would pose a
security risk.142 If segregation prevents a detainee from attending such a presentation, alternative
arrangements will be made upon the presenter’s and the detainee’s request.143 In the event that a
detainee facility limits the number of detainees present at a single session, the presenter may
conduct multiple presentations after contacting the facility and determining how many sessions
are needed.144 Lawyers, legal representatives, and legal assistants/paralegals may conduct group
rights presentations.145 All facility entrants are required to present an official form of picture
identification.146 Detainee facilities must provide an “environment conducive to the
presentation” which must last at least one hour, although the facility may grant an extension.147
Following any such presentation, presenters may meet with small groups of detainees for
individual counseling during which no ICE or facility staff is to be present.148 At the request of
outside organizations, the facility must also play ICE-approved videotaped presentations on legal
rights.149
OCJ appears to have implemented this section of the Standards. According to Officer
the Midwest Immigrant and Human Rights Center (“MIHRC”) conducts
presentations on group rights twice a year, once in the summer and once in either January or
February.150 Several detainees corroborated this information.151 The OCJ Inmate Handbook
permits daily “professional visits” including attorney visits from 8:30 a.m. to 11:00 a.m., 1:00
(b)(6), (b)(7)c

140

Detention Operations Manual, Detainee Services, Standard 9, Section III.A.

141

Detention Operations Manual, Detainee Services, Standard 9, Section III.B.

142

Detention Operations Manual, Detainee Services, Standard 9, Section III.C.

143

Detention Operations Manual, Detainee Services, Standard 9, Section III.C.

144

Detention Operations Manual, Detainee Services, Standard 9, Section III.C.

145

Detention Operations Manual, Detainee Services, Standard 9, Section III.A.

146

Detention Operations Manual, Detainee Services, Standard 9, Section III.D.

147

Detention Operations Manual, Detainee Services, Standard 9, Section III.E.

148

Detention Operations Manual, Detainee Services, Standard 9, Section III.G.

149

Detention Operations Manual, Detainee Services, Standard 9, Section III.I.

150

Notes of Delegation member

(b)(6)

on conversation with Officer

151

(b)(6), (b)(7)c

(b)(6)
(b)(6)
Notes of Delegation members
and
, on interviews of
(b)(6)
respectively.
d
attended
a
group
rights
presentation
although
(b)(6)
(b)(6)
(b)(6)
nonprofit org
nducted the presentation.
told the Delegation that
during his stay, one group of attorneys has come to make a presentation. The Delegation believes this presentation
(b)(6)
was made by MIHRC as
had a written copy of his “legal rights” appearing to be from that organization.
Finally, (b)(6)
believed that MIHRC gave the “helpful” group rights presentation that he attended. He read the
booklet given out by MIHRC and also informed us that he filled out paperwork through MIHRC after learning about
a law which may help him fight against his deportation. But Delegation member
noted that another
(b)(6)
detainee,
reported having not seen a group rights presentation.
(b)(6)

16

p.m. to 4:00 p.m., and 6:00 p.m. to 9:00 p.m.152 The number of detainees in each presentation is
limited due to OCJ’s physical structure as it only accommodates a small number of detainees in
each dorm or tier. However, according to Officer (b)(6), (b)(7)c presenters are permitted to visit
each housing unit and come prepared to make multiple presentations.153 Officer (b)(6), (b)(7)c also
informed us that group rights presentations occur during breakfast or during lunch and thus
detainees are not required to miss meals.154 All of these policies implement the Standards.
It appears that OCJ dorms or tiers, which host group rights presentations, are well-lit and
conducive to presentations. Officer (b)(6), (b)(7)c informed us that presenters are permitted to meet
with small groups of detainees to conduct “intake interviews” regarding individual detainees.155
According to OCJ, ICE-approved videotaped presentations are played often at OCJ as
well.156 Specifically, the “Know Your Rights” video plays at least two to three times a week in
Spanish and English. The detainees we interviewed corroborated that the “Know Your Rights”
video plays often, but some had never actually watched it.157 It should be noted, however, that
nothing on Group Rights Presentations or videos is included in the OCJ Inmate Handbook.
However, it is not clear from speaking with OCJ and ICE personnel that presenters will
gain access to detainees in disciplinary segregation. Officer (b)(6), (b)(7)c could not confirm that
OCJ would facilitate alternative arrangements.158 Last year’s ABA delegation to OCJ could not
confirm that OCJ would facilitate alternative arrangements for detainees in disciplinary
segregation, because “they haven’t crossed that bridge yet.”159
IV.

OTHER GENERAL OBSERVATIONS UNRELATED TO THE LEGAL ACCESS
STANDARDS
A.

Medical Treatment

152

OCJ Inmate Handbook, at 8-9, 13.

153

Notes of Delegation member

154

Notes of Delegation member

on conversation with Officer
on conversation with Officer
(b)(6), (b)(7)c

(b)(6)

155

Notes of Delegation member

on conversation with Officer

156

Notes of Delegation member

on conversation with Sergean

157

Notes of Delegation members

(b)(6)
(b)(6)
, on interviews of
and
respectively. Messrs.
had seen the video and
(b)(6)
(b)(6)
reported that it is played often, perhaps daily. Messrs.
, however, had never seen the video.
(b)(6)

158

Notes of Delegation member

159

2004 OCJ Report, at 16.

(b)(6)

on conversation with Officer

17

(b)(6), (b)(7)c

The Standards require that all detainees have “access to medical services that promote
detainee health and general well-being.”160 Each facility is required to have regularly scheduled
times, known as sick call, when medical personnel are available to see detainees who have
requested medical services.161 Facilities must have a written plan dictating 24-hour emergency
medical care procedures when no medical personnel are on duty, or when outside medical
service is required.162
OCJ has not fully implemented this section of the Standards. In some respects, the
medical services provisions in the OCJ Inmate Handbook implement the Standards. For
example, the OCJ Inmate Handbook provides for “medical treatment” for all incarcerated
inmates.163 Under the OCJ Inmate Handbook provisions, detainees must fill out a written
“Medical Request” form with brief descriptions of their medical problems in order to obtain nonemergency health care.164 The nursing staff will review all requests during business hours,
Monday through Friday.165 The Handbook further provides that in the case of a medical
emergency, it is the inmate’s responsibility to notify a deputy immediately.166 However, while
the Standards require regularly scheduled sick call, the OCJ Inmate Handbook provides that
“[s]ick call will be done as needed.”167 OCJ personnel confirmed this deviation from the
Standards, informing the Delegation that medical personnel are available upon request, but not at
regularly scheduled times.168
The Handbook requires small fees for any consultation with medical professionals
(including the nurse),169 but the Delegation was told by OCJ personnel that immigration
detainees are not actually charged for such services.170 According to OCJ, detainees are aware
that they do not have to pay for medical services.171 Detainee interviews corroborated this.172

160

Detention Operations Manual, Health Services, Standard 2, Section I.

161

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

162

Detention Operations Manual, Health Services, Standard 2, Sections III.A., D., & G.

163

OCJ Inmate Handbook, at 15.

164

OCJ Inmate Handbook, at 15.

165

OCJ Inmate Handbook, at 15.

166

OCJ Inmate Handbook, at 15.

167

OCJ Inmate Handbook, at 15.

168

Notes of Delegation member

169

OCJ Inmate Handbook, at 15.

170

Notes of Delegation member

171

Notes of Delegation member

(b)(6)

on conversation with Sergeant
(b)(6), (b)(7)c

on conversation with Sergeant
(b)(6)

on conversation with Sergeant

172

(b)(6)
(b)(6)
Notes of Delegation members
on interviews of
respectively.
said that he was not charged for medical services, that he and other detainees
(b)(6)
(b)(6)
were aware that medical services were free of charge, and that in general, he was able to get whatever he needed for
medical purposes.
said that he received good medical care at OCJ and free medication. Delegation
(b)(6)

18

The OCJ Inmate Handbook does not mention a written plan for 24-hour emergency
medical services, despite the requirement set forth in the Standards. Furthermore, OCJ indicated
that there is no formal plan or procedure in place for emergency medical services. When asked
what, if any, protocol OCJ had in place for these situations, OCJ personnel informed the
Delegation that “[w]e do what anybody would do – we just call 911. That’s our procedure.”173
OCJ has not implemented this portion of the Standards.
It is unclear whether OCJ maintains a formal arrangement with a nearby facility for
services not available at OCJ, but OCJ indicated that a hospital, approximately 10-15 minutes
away, is available for such services and for emergency treatment.174 OCJ maintains two nurses
on call for 16 hours per day (one nurse carries a 24-hour pager), and one doctor comes in once a
week or sooner as needed.175
For mental health issues, the Delegation was informed that psychiatric counselors are
available either upon referral by a nurse or other OCJ personnel, or upon request by detainees.176
OCJ personnel told the Delegation that OCJ officers are always on the lookout for detainees who
appear to be depressed or in need of counseling, and that the officers will take it upon themselves
to request a mental health counselor on behalf of the detainee.177 However, the Delegation is
concerned that there is no qualified mental health counselor on site.178 The Delegation believes
that such a counselor would be very helpful in diagnosing and treating detainees with potential
mental health issues.179
Finally, all detainees are required to be screened at processing for medical and other
health-related issues, including TB and any suicidal tendencies.180 For any inmate or detainee
with TB or any communicable disease, OCJ provides an isolated pressure cell to prevent
spreading.181

(b)(6)
member
, however, notes that detainee
medical attention than he is currently receiving.

(b)(6)

appeared ill to her and seemed to require better

173

Notes of Delegation member

on conversation with Sergeant

174

Notes of Delegation member

on conversations with Deputy

175

Notes of Delegation member

on conversation with Sergeant
(b)(6), (b)(7)c

(b)(6)

176

Notes of Delegation member

on conversation with Sergeant

177

Notes of Delegation member

on conversation with Sergeant

178

Notes of Delegation member

on conversation with Sergeant

179

(b)(6)
Notes of Delegation members
on interviews of a detainee who
(b)(6)
preferred to remain anonymous, detainee
respectively. The
anonymous detainee seemed particularly depressed throughout his interview, but did not discuss any mental health
(b)(6)
resources available to him at OCJ.
told the Delegation that he went through a period of depression, but
(b)(6)
he did not comment further on mental health concerns at OCJ. Finally, as noted above
appeared ill to
the Delegation, but appeared to not currently be receiving appropriate medical attention.

180
181

Notes of Delegation member

, on conversation with Sergeant
(b)(6)

Notes of Delegation member

(b)(6), (b)(7)c

, on conversation with Sergeant

19

B.

Detainee Classification

The Standards require that detention facilities use a classification system and physically
separate detainees into different categories, housing detainees based on their classification
level.182 IGSA facilities, such as OCJ, “may continue using the systems established locally, if
the classification criteria are objective and all procedures meet [ICE] requirements.”183 A
detainee’s initial classification is to be made on “objective” information from the detainee’s file,
including current offenses, past offenses, escapes, institutional disciplinary history, violent
incidents, etc.184 Opinions, unconfirmed and unverified information, physical characteristics and
appearance are not to be taken into account.185 Classification is required in order to separate
detainees with no or small criminal records from inmates with serious criminal records and to
reduce non-criminal and nonviolent detainees’ exposure to physical and psychological
damage.186
Additionally, all facility classification systems shall ensure that classification levels are
predetermined, but that a detainee may be reclassified at any time by appealing his/her
classification level.187 Finally, the detainee handbook’s section on classification must include (1)
an explanation of the classification levels, with the conditions and restrictions applicable to each,
and (2) the procedures by which a detainee may appeal his classification.188
OCJ has not implemented this section of the Standards. OCJ’s detainees are classified
at the initial processing at Broadview (the ICE location used for all Chicagoland detention
facilities).189 There, the detainees are segregated into low risk (level 1), medium risk (level 2)
and high risk (level 3) inmates depending on their criminal record and behavior at the other
facilities where they may have been held prior to arrival at Broadview.190 Once the detainees are
taken to OCJ, they are separated into different living quarters depending on their classification
level. At the current time, it appears as though all immigration detainees at OCJ are being held
together in medium risk living quarters, though not all may fit this classification level.191 One
detainee told a Delegation member that when he first arrived at OCJ he was held with regular
inmates.192 OCJ personnel confirmed to the Delegation that when detainee quarters are full,

182

Detention Operations Manual, Detainee Services, Standard 4, Section III.A.

183

Detention Operations Manual, Detainee Services, Standard 4, Section III.A.

184

Detention Operations Manual, Detainee Services, Standard 4, Section III.D.

185

Detention Operations Manual, Detainee Services, Standard 4, Section III.D.

186

Detention Operations Manual, Detainee Services, Standard 4, Sections III.F.

187

Detention Operations Manual, Detainee Services, Standard 4, Section III.G and III.H.

188

Detention Operations Manual, Detainee Services, Standard 4, Section III.I.

189

Notes of Delegation member

, on conversation with Sergeant

190

Notes of Delegation member

, on conversations with Sergean

191

Notes of Delegation member

, on conversation with Deputy

192

Notes of Delegation member

n interview of

(b)(6), (b)(7)c
(b)(6)

20

(b)(6)

b6,b7c

and observation.

detainees are held with the regular inmates.193 This policy does not implement the Standards, as
detainees are to be held only with other detainees according to their classification level. In
addition, all inmates and detainees are provided with the same orange uniform.
In addition, OCJ fails to allow detainees to appeal their classification level. Once a
detainee has received a particular classification, they have no recourse to appeal, rather “they can
only move up to a greater classification due to poor behavior, but they can never move down in
classification.”194 This practice is contrary to the Standards. Furthermore, OCJ fails to explain
the classification system in the OCJ Inmate Handbook. This has important implications for
detainees who might claim they were improperly classified at Broadview, as they appear to have
no recourse to appeal such action.
C.

Detainee Grievance Procedures

The Standards require that detainee facilities develop and implement procedures to
address detainee grievances designed to process, investigate, and respond to grievances in a
reasonable time limit.195 In addition, there should be a grievance committee to review and
respond to formal complaints as well as procedures applicable to emergency grievances.196 Each
facility must also provide detainees with a procedure for informal resolution of oral grievances
which may be made to “any staff member at any time within five days of the event” causing the
grievance.197 Translation assistance shall also be provided upon request.198
In addition, each facility must permit a detainee to submit a formal, written complaint to
the facility’s grievance committee.199 The detainee may ask for assistance from another detainee
or facility staff in filing a grievance.200 Illiterate, disabled, or non-English speaking detainees
must also receive additional assistance upon request.201 Upon admittance, each detainee should
receive a copy of the detainee handbook or its equivalent in which the grievance section should
provide: 1) notice of opportunity to file a grievance, both informal and formal, 2) procedures for
filing a grievance and appeal, 3) notice of the availability of assistance in preparing a grievance,
4) procedures for resolving a grievance or appeal, and 5) procedures for contacting INS to appeal
the decision of the OIC of an IGSA facility.202
193

Notes of Delegation member

on conversations with Sergeant
(b)(6), (b)(7)c

(b)(6)

194

Notes of Delegation member

195

Detention Operations Manual, Detainee Services, Standard 5, Section I.

196

Detention Operations Manual, Detainee Services, Standard 5, Section I.

197

Detention Operations Manual, Detainee Services, Standard 5, Section III.A.1.

198

Detention Operations Manual, Detainee Services, Standard 5, Section III.A.1.

199

Detention Operations Manual, Detainee Services, Standard 5, Section III.A.2.

200

Detention Operations Manual, Detainee Services, Standard 5, Section III.A.2.

201

Detention Operations Manual, Detainee Services, Standard 5, Section III.A.2.

202

Detention Operations Manual, Detainee Services, Standard 5, Section III.G.

on conversations with Sergeant

21

OCJ has not implemented some portions of this section of the Standards. According
to the OCJ Inmate Handbook, a detainee is encouraged to resolve a grievance informally by
talking to a duty deputy before filing a written grievance.203 If an oral complaint cannot be
accomplished, the Handbook provides minimum instructions for filing a written, formal
complaint or a “Grievance Form.”204 (An example of the grievance form is not included in the
Handbook.) The Handbook implements the Standards by notifying detainees of their rights to
file informal and formal grievances, albeit with the minimum instructions listed in both the
English and Spanish versions. Finally, if translation assistance is needed in filing a grievance,
OCJ personnel mentioned the availability of the AT&T translation services which the Delegation
could not confirm worked properly.205
OCJ fails to implement much of this section, however. First, the OCJ Inmate Handbook
does not list the required grievance and appeal procedures as they pertain to detainees, as
opposed to inmates. For example, the Standards allow for a detainee to make oral, informal
complaints to any staff member and for a detainee to submit a formal, written complaint to a
grievance committee set up to review and respond to such complaints. However, the OCJ
Inmate Handbook only permits oral complaints to the duty deputy on hand. Second, it is also
unclear whether OCJ has a grievance committee in place. Likewise, there are no Handbook
instructions directing detainees to file their formal complaints with a grievance committee and
there are no instructions regarding procedures applicable to emergency grievances. Finally, the
Handbook also fails to notify detainees of the availability of assistance in preparing a grievance,
the process of filing an appeal, and the procedures for contacting ICE to appeal the decision of
the Jail Administrator.
It should be noted that according to Officer (b)(6), (b)(7)c , a detainee can also file a
grievance with ICE by using an ICE request form.20 However, the procedure for filing a
grievance through ICE is not described in the Handbook as the booklet is designed solely for
incarcerated inmates. OCJ personnel informed us that they “sometimes” attach an OCJ
grievance form to the back of an ICE form and then direct the complaint to ICE, but we were not
told under what circumstances they do so.207 Some detainees interviewed by the Delegation
corroborated this information, while others called these representations into question.208

203

OCJ Inmate Handbook, at 6.

204

OCJ Inmate Handbook, at 6.

205

Notes of Delegation member

on conversation with Sergean
(b)(6)

206

Notes of Delegation member
obtain a copy of such a form.
207

Notes of Delegation member

(b)(6), (b)(7)c

on conversation with Officer
(b)(6)

The Delegation did not

on conversation with Sergeant(b)(6), (b)(7)c

208

(b)(6)
(b)(6)
Notes of Delegation members
on interviews of
(b)(6)
and a detainee who preferred to remain anonymous, respectively.
had seen both the OCJ
(b)(6)
(b)(6)
grievance form and the ICE grievance form and
informed us that his questions to ICE were usually
(b)(6)
answered within two to three days. However,
did not know how to file a grievance even though he had

22

D.

Disciplinary Policy

The Standards permit facility staff to “impose disciplinary sanctions on any detainee
whose behavior is not in compliance with facility rules and procedures.”209 However, these
disciplinary actions “may not be capricious or retaliatory.”210 The detainee disciplinary system
must have “progressive levels of reviews, appeals, procedures, and documentation
procedures.”211 Moreover, the detainee handbook or equivalent must notify detainees of the
facility’s rules of conduct, the prohibited acts and disciplinary severity scale, and the procedure
for appealing disciplinary findings.212 In addition, the detainee handbook should advise
detainees of their right “to protection from personal abuse, corporal punishment, unnecessary or
excessive use of force,” right to due process, and right of freedom from discrimination.213
Because OCJ holds detainees under an IGSA, the facility is permitted to adopt
alternatives to the bulk of specific disciplinary requirements laid out for Service Processing
Centers and Contract Detention Facilities.214 Nevertheless, the Standards require the
disciplinary policy and procedures to “clearly define detainee rights and responsibilities”; no
sanctions such as “corporal punishment; deviations from normal food service; deprivation of
clothing, bedding, or items of personal hygiene; deprivation of correspondence privileges; or
deprivation of physical exercise unless such activity creates an unsafe condition” will be
permitted.215
OCJ has not fully implemented this section of the Standards. The OCJ Inmate
Handbook describes a long list of prohibited acts under the heading “Jail Rules and
Regulations.”216 Again, however, the Handbook is not specific to detainees so it is unclear if the
same rules apply to detainees. The section titled “Violation of Jail Rules” suggests that there is a
gradated scale of punishment for minor versus major offenses.217 All violations will result in a
written report of the incident but minor violations will result in a verbal warning, a written
warning (citation) or loss of privileges to include the canteen, telephone use, visitation,

read the Handbook, and the anonymous detainee suggested that OCJ was not responsive to his grievances because
they treated him like a criminal.
209

Detention Operations Manual, Security and Control, Standard 5, Section I.

210

Detention Operations Manual, Security and Control, Standard 5, Section III.A.

211

Detention Operations Manual, Security and Control, Standard 5, Section III.A.

212

Detention Operations Manual, Security and Control, Standard 5, Sections III.A and L.

213

Detention Operations Manual, Security and Control, Standard 5, Section III.A.

214

Detention Operations Manual, Security and Control, Standard 5, Section II.

215

Detention Operations Manual, Security and Control, Standard 5, Section III.A.

216

OCJ Inmate Handbook, at 2-4.

217

OCJ Inmate Handbook, at 5.

23

recreation or disciplinary action of up to 24 hours.218 The following section titled “Due Process
Hearing” suggests that more serious violations, as well as multiple or repeat offenses will be
treated differently than minor violations in that a Conduct Report will be filed.219
Because the Handbook does not distinguish between offenses considered minor and those
considered major, detainees do not have adequate notice of the disciplinary severity scale.
According to OCJ, officer discretion determines whether a verbal assault is more severe than
sitting on a table.220 Officer discretion also determines whether a detainee ends up in lockdown
because a supervisor may simply request such punishment.221 Moreover, the Handbook does not
set forth any time limits on disciplinary action resulting from major offenses. The Handbook
also fails to notify detainees of their rights to be free from physical abuse such as corporal
punishment and from discrimination.222 Consequently, the OCJ Inmate Handbook does not
“clearly define detainee rights and responsibilities” as the Standards require.
However, the Handbook does provide detainees with an opportunity for a disciplinary
hearing in front of an “impartial Supervisor” where the detainee will be entitled to question
material witnesses, albeit without a right to legal counsel.223 The Handbook also notifies
detainees of their “right to appeal any decision for disciplinary action in writing to the Jail
Administrator within 24 hours of the hearing and to the Sheriff within 48 hours of receiving the
Jail Administrator’s Response.”224
In regards to punishment, OCJ personnel informed the Delegation that a serious violation
could result in punishment ranging from a minimum of 24 hours in lockdown to a maximum of
five days.225 Detainees we interviewed were disturbed, however, by the lack of clear rules on
what “offenses” garner what punishment.226
E.

Staff-Detainee Communication

218

OCJ Inmate Handbook, at 5.

219

OCJ Inmate Handbook, at 5.

220

Notes of Delegation member

on conversation with Sergeant
(b)(6)

(b)(6), (b)(7)c

221

Notes of Delegation member

222

Detention Operations Manual, Security and Control, Standard 5, Section III.A.

223

OCJ Inmate Handbook, at 5.

224

OCJ Inmate Handbook, at 5.

225

Notes of Delegation member

on conversation with Sergeant

(b)(6)

on conversation with Sergeant (b)(6), (b)(7)c

226

(b)(6)
(b)(6)
Notes of Delegation members
on interviews of
(b)(6)
respectively.
noted that he received 24 hours in lockdown for swearing at
(b)(6)
(b)(6)
an officer.
observed that a detainee who fights with an officer or someone else, or talks back to an officer,
would receive 24 hours in lockdown, whereas a detainee who sits on a table will get a verbal warning because “the
(b)(6)
guards don’t take such things seriously.”
said, however, that detainees receive 24 hours in lockdown
for doing “nothing” because the guards treated them like dogs.
said he had been placed in lockdown
(b)(6)
twice and bemoaned the fact that detainees have no one to tell or complain to if an officer treats them poorly. Our
interviews revealed that detainees are not clear on what constitutes a minor versus a major offense.

24

The 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 permit detainees to make
written requests to ICE staff and receive an answer in an acceptable time frame.”227 The
Standards require ICE detainees to have the opportunity to have formal and informal access and
interaction with key facility staff members on a regular basis.228 ICE personnel must make
weekly scheduled visits with the detainees.229 The ICE OIC, the Assistant OIC, and designated
department heads must also make “regular unannounced (not scheduled) visits” to the facility’s
living and activity areas to observe living and working conditions.230 The Standards also require
that detainees “have the opportunity to submit written questions, requests, or concerns to ICE
staff.”231 All facilities that house ICE detainees must have “written procedures to route detainee
requests to the appropriate ICE official,” and must deliver them “without reading, altering, or
delay.”232 The facility must assist detainees “who are disabled, illiterate, or know little or no
English.”233 Moreover, the 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.”234
1.

ICE Visits, Generally

OCJ appears to have partially implemented this portion of the Standards. According
to OCJ personnel, an ICE officer visits OCJ once a week.235 The ICE officer’s visits are always
on Fridays.236 During his visit, the ICE official meets with detainees and asks them questions
pertaining to deportation proceedings, housing conditions, and the detainees’ overall wellbeing.237 The ICE official also answers any questions the detainees may have at that time.238
OCJ personnel are always present when the ICE official speaks with the detainees.239 If asked to
leave, however, OCJ personnel will allow the ICE official and the detainee to speak in private.240

227

Detention Operations Manual, Detainee Services, Standard 15, Section I.

228

Detention Operations Manual, Detainee Services, Standard 15, Section III.A.

229

Detention Operations Manual, Detainee Services, Standard 15, Section III.A.

230

Detention Operations Manual, Detainee Services, Standard 15, Section III.A.

231

Detention Operations Manual, Detainee Services, Standard 15, Section III.B.

232

Detention Operations Manual, Detainee Services, Standard 15, Section III.B.

233

Detention Operations Manual, Detainee Services, Standard 15, Section III.B.

234

Detention Operations Manual, Detainee Services, Standard 15, Section III.B.

235

Notes of Delegation member

on conversation with Deputy(b)(6), (b)(7)c

236

Notes of Delegation member

on interview of detainee

237

Notes of Delegation member

on interview of detainee
(b)(6)

238

Notes of Delegation member

239

Notes of Delegation member

on conversation with Deputy

240

Notes of Delegation member

on conversation with Deputy

(b)(6)

on interview of detainee

25

(b)(6), (b)(7)c

The Delegation is concerned that ICE officials do not appear to be making unannounced visits as
required by the Standards.
2.

Detainees’ Access to ICE Officials

OCJ has not implemented this portion of the Standards. Detainees have the option of
submitting written questions, requests, or concerns to ICE staff.241 OCJ personnel read all
request slips before sending the slip to ICE staff.242 According to OCJ personnel, this is done for
security purposes. If necessary, OCJ personnel will assist detainees who have trouble filling out
the slips.243 OCJ personnel sometimes answer the question for the detainee before sending the
slip out to ICE.244 All slips come back within 2 or 3 days.245 However, if the request is time
sensitive, then a response may come sooner.246 While OCJ has a procedure in place for detainees
to communicate with ICE officials, it was unclear to the Delegation exactly how or when this
option is communicated to the detainees.247 Some detainees expressed frustration at the lack of
access to ICE officials. 248 The main complaint was that with the heavy workload of these
officials, it was difficult for detainees, particularly those without attorneys, to stay properly
informed of their immigration status.249
F.

Voluntary Work Programs

The Standards require all facilities with a work program to “provide detainees the
opportunity to work and earn money.”250 Detainees who are physically and mentally able to
work must be provided the opportunity to participate in any voluntary work program.251 The
goal of the voluntary work program is to reduce inactivity-induced idleness and disciplinarycode violations.252 Facilities cannot deny “work opportunities based on non-merit factors, such
as social group, race, religion, sex, physical or mental handicaps, or national origin.”253 If
241

Notes of Delegation member

on conversation with Deputy

242

Notes of Delegation member

on conversation with Deputy

243

Notes of Delegation member

on conversation with Deputy

244

Notes of Delegation member

(b)(6), (b)(7)c

on conversation with Deputy
(b)(6)

245

Notes of Delegation member

on interview of detainee

246

Notes of Delegation member

on conversation with Deputy

247

Notes of Delegation member

on conversation with Deputy

(b)(6)

(b)(6), (b)(7)c

248

Notes of Delegation member
remain anonymous.

, on interviews of

249

Notes of Delegation member
remain anonymous.

and a detainee who preferred to
(b)(6)

(b)(6)

on interviews of

250

Detention Operations Manual, Detainee Services, Standard 18, Section I.

251

Detention Operations Manual, Detainee Services, Standard 18, Section III.A.

252

Detention Operations Manual, Detainee Services, Standard 18, Section III.B.

253

Detention Operations Manual, Detainee Services, Standard 18, Section III.F.

26

and a detainee who preferred to

temporary jobs arise, detainees may volunteer for these positions.254 The Standards state that
detainees must receive monetary compensation for work completed in accordance with the
facility’s standard policy.255
OCJ has not implemented this section of the Standards. OCJ has a voluntary work
program called the “Porter Program.”256 Porters are not paid for their services.257 Instead, they
receive time off their sentences or jail privileges (e.g., more time outside).258 OCJ officials do
not allow immigration detainees to participate in the “Porter Program” or any other type of work
program.259 According to OCJ personnel, detainees may serve as interpreters on a voluntary
basis whenever the need arises.260 Detainees who serve as interpreters are not paid or rewarded
with any privileges.261 The Delegation spoke to no detainees who stated that they had worked as
interpreters.
Some detainees with whom the Delegation spoke expressed a desire to work so that they
could earn privileges and combat boredom.262 OCJ has not implemented this section of the
Standards.
G.

Religious Practices

The Standards provide that detainees shall have the opportunity to engage in essential
practices of their religious faith (including group-activities) that are consistent with the safety,
security, and orderly operation of the facility.263 If requested by a detainee, the chaplain or
designee shall arrange for visits by a clergyperson or representative of the detainee’s faith.264
Furthermore, detainees shall have access to personal religious property, consistent with safety
and security concerns.265 Finally, the food service department will implement all reasonable
procedures for accommodating detainees’ religious dietary requirements.266

254

Detention Operations Manual, Detainee Services, Standard 18, Section III.D.

255

Detention Operations Manual, Detainee Services, Standard 18, Section III.K.

256

OCJ Inmate Handbook, at 19.

257

Notes of Delegation member

on conversation with Deputy

258

Notes of Delegation member

on conversation with Deputy

259

Notes of Delegation member

260

Notes of Delegation member

261

Notes of Delegation member

262

Notes of Delegation member
remain anonymous.

on conversation with Deputy
(b)(6)

(b)(6), (b)(7)c

on conversation with Deputy
on conversation with Deputy
a, on interviews of

(b)(6)

and a detainee who preferred to

263

Detention Operations Manual, Detainee Services, Standard 14, Section III.A. & H.

264

Detention Operations Manual, Detainee Services, Standard 14, Section III.J.

265

Detention Operations Manual, Detainee Services, Standard 14, Section III.K.

266

Detention Operations Manual, Detainee Services, Standard 14, Section III.M.

27

OCJ appears to partially implement this section of the Standards. According to the
OCJ Inmate Handbook, regular religious services are led by a chaplain at OCJ every Sunday
night and are non-denominational.267 Every inmate is allowed to attend, but if space is limited,
the inmate may not be able to attend every week.268 Again, the Handbook is not tailored to
detainees. One detainee commented that he was allowed to attend church once every two
weeks.269 The facility also provides the opportunity to participate in bible study once a week for
four consecutive weeks.270 According to the Handbook, if a detainee wishes a personal visit
from the clergy, OCJ will attempt to honor that request with either a religious leader or lay
person from the community.271
Detainees may keep religious books (e.g., a bible) in their possession.272 However, only
Spanish and English bibles are provided and no other religious materials appear to be
available.273 Further, while the Standards provide that detainees shall be able to engage in the
essential practice of their faith, detainees may not wear any religious apparel, including headcoverings of any form.274
OCJ informed us that they accommodate special diets required by some religions.275 The
OCJ Inmate Handbook provides that: “religious diets will be provided, after the health services
staff obtains verification.”276 This appears to implement the Standards, however, the Delegation
is concerned with OCJ staff skepticism of religious diet requests.277 One OCJ officer
commented that he knew all about the dietary restrictions of other religions and that he was able
to tell if a detainee really required the requested diet.278 This attitude towards special diet
requests does not seem to be in the spirit of the Standards and may be a cause for concern.
H.

Hunger Strikes

267

OCJ Inmate Handbook, at 19.

268

OCJ Inmate Handbook, at 19.

269

Notes of Delegation member

270

OCJ Inmate Handbook, at 20.

271

OCJ Inmate Handbook, at 20.

272

Notes of Delegation member

273

Notes of Delegation member

(b)(6)

on interview of detainee

(b)(6)

on conversation with Sergeant
on conversation with Sergeant
(b)(6)

(b)(6), (b)(7)c

274

Notes of Delegation member

on conversation with Sergeant

275

Notes of Delegation member

on conversation with Sergeant

276

OCJ Inmate Handbook, at 18.

277

Notes of Delegation member

278

on conversation with Sergeant
(b)(6), (b)(7)c

(b)(6)

Notes of Delegation member

on conversation with Sergeant

28

The Standards require that facilities do everything within their means to monitor and
protect the health and welfare of a hunger-striking detainee.279 The Standards further mandate
that procedures for identifying and referring to medical staff a detainee suspected or known to be
on hunger strike shall include an assessment of whether the detainee’s action is reasoned and
deliberate or the manifestation of a mental illness.280 This assessment is to be performed by
qualified medical personnel.281 Medical staff must monitor the health of a hunger-striking
detainee.282 The Standards give medical personnel some degree of discretion in judging how to
best deal with hunger-striking detainees, though this discretion must fall within the ambit of
accepted medical practice.283
The Delegation is concerned that OCJ has not fully implemented this section of the
Standards. The OCJ Inmate Handbook makes no mention of procedures for dealing with
hunger-striking detainees. The Delegation was told that nurses go to see detainees on hunger
strike at least once a day.284 Hunger-striking detainees are kept in isolation at OCJ.285 Upon
entering the facility, the Delegation saw a detainee who, according to OCJ personnel, was on
hunger-strike.286 It appeared from observations of that detainee and conversations with OCJ
personnel that the facility has at least some procedure in place to deal with such situations.287
However, the Delegation was told that this detainee had demanded a Kosher diet in
accordance with his religious beliefs – a requirement OCJ personnel determined was fabricated
or “made up.”288 OCJ personnel told the Delegation that the detainee was Muslim, and therefore
he had no reason to demand a Kosher diet. It was unclear whether this information was the basis
for placing this detainee in isolation, or if the detainee had announced his intention to hungerstrike. In any event, the Delegation is concerned that there was no mention of an assessment of
the detainee’s action by qualified medical personnel, as required by the Standards.289
I.

Dental Treatment

279

Detention Operations Manual, Health Services, Standard 1, Section I.

280

Detention Operations Manual, Health Services, Standard 1, Section III.A.

281

Detention Operations Manual, Health Services, Standard 1, Section III.A.

282

Detention Operations Manual, Health Services, Standard 1, Section III.B.

283

Detention Operations Manual, Health Services, Standard 1, Section III.F.

284

Notes of Delegation member

285

Notes of Delegation member

286

Notes of Delegation member

on conversation with Deputy
(b)(6)

on conversation with Deputy

(b)(6), (b)(7)c

on conversation with Sergean

287

The Delegation saw a hunger-striking detainee in the medical/observation cell at the facility. The cell had a
toilet, a sink and a bed. The outer wall was a glass window so that OCJ personnel could observe the detainee.

288
289

Notes of Delegation member
Notes of Delegation member

on conversation with Sergeant
(b)(6)

on conversation with Sergeant

29

(b)(6), (b)(7)c

The Standards require an initial dental screening exam within 14 days of the detainee’s
arrival and that the facility provide a number of services, including emergency dental treatment
and repair of prosthetic appliances.290 For detainees who are held in detention for over six
months, routine dental treatment may be provided, including “amalgam and composite
restorations, prophylaxis, root canals, extractions, x-rays, the repair and adjustment of prosthetic
appliances and other procedures required to maintain the detainee’s health.”291
OCJ has partially implemented this section of the Standards. The facility now has
dental services available, where no such services were available at the date of last year’s visit.292
OCJ personnel informed the Delegation that the facility has contracted with a new dentist, who
comes in every six weeks.293 The Delegation is concerned that the dentist’s schedule means that
some detainees will not receive the required initial examination within fourteen days of arrival to
OCJ. OCJ personnel informed the Delegation that most of the dental work required and
performed at OCJ consists of extractions, which fall under the category of routine dental
treatment.294 The Delegation was not able to ascertain whether the facility offers routine dental
checkups for long-term detainees.
J.

Special Management Concerns

The Standards require each facility to establish a Special Management Unit (“SMU”) that
will isolate certain detainees from the population.295 The SMU must have two sections – one for
detainees in Administrative Segregation (non-punitive) and the other for detainees who are being
segregated for disciplinary reasons.296 Detainees in administrative segregation are to receive the
same general privileges as detainees in the general population.297 These detainees are allotted
three nutritionally adequate meals per day and they have the opportunity to shower and shave at
least three times per week.298 Security risks notwithstanding, detainees in administrative
segregation generally have the same privileges as other detainees.299
A detainee may be placed in disciplinary segregation only by order of the Institutional
Disciplinary Committee, after a hearing in which the detainee is found to have committed a
290

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

291

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

292

2004 OCJ Report, at 22-23.

293

Notes of Delegation member

294

on conversation with Nurse

Notes of Delegation member
Health Services, Standard 2, Section III.E.

.
(b)(6)

(b)(6)

on conversation with Nurse

; Detention Operation Manual,

295

Detention Operations Manual, Security and Control, Standard 13, Section I.

296

Detention Operations Manual, Security and Control, Standard 13, Section I.

297

Detention Operations Manual, Security and Control, Standard 13, Section III.D.1.

298

Detention Operations Manual, Security and Control, Standard 13, Section III.D.5,6.

299

Detention Operations Manual, Security and Control, Standard 13, Section III.D.1-20.

30

prohibited act.300 Violations associated with a single incident can result in a maximum of 60
days in disciplinary segregation.301 Detainees in disciplinary segregation generally have fewer
privileges than those in administrative segregation, though they are afforded the same meal
schedule and hygiene opportunities as detainees in the general population.302
The Delegation could not observe the extent to which OCJ has implemented these
sections of the Standards. The OCJ Inmate Handbook states that isolation is one available form
of punishment for an inmate who violates jail rules, but provides no further details and nothing
pertaining directly to detainees.303 According to OCJ personnel, the facility provides all
segregated detainees with one hour total per day to eat three meals and tend to their hygienic
needs.304
However, the Delegation made a specific request to OCJ to see one of the isolation cells,
but was denied access. It would have been helpful for the Delegation to have seen the cells
because while some detainees with whom we spoke had been placed in lockdown for various
reasons, we did not obtain from them any information regarding the conditions they faced.305
Thus, we were unable to corroborate whether OCJ implements the Standards with regards to
conditions for detainees.
K.

Recreation

The Standards require that all facilities “provide INS detainees with access to
recreational programs and activities, under conditions of security and supervision that protect
their safety and welfare.”306 Every effort shall be made to place a detainee in a facility that
provides outdoor recreation.307 Such facilities shall permit detainees access to outdoor recreation
“for at least one hour daily, at a reasonable time of day, five days a week, weather permitting.”308
Detainees utilizing the outdoor recreation area shall have “access to drinking water and toilet
facilities.”309 “All facilities shall provide recreational opportunities for detainees with
disabilities.”310 All facilities shall have an individual responsible for “the development and

300

Detention Operations Manual, Security and Control, Standard 14, Section III.A.

301

Detention Operations Manual, Security and Control, Standard 13, Section III.A.

302

Detention Operations Manual, Security and Control, Standard 13, Section III.D.2,10,11.

303

OCJ Inmate Handbook, at 5.

304

Notes of Delegation member

305

See footnote 225, supra.

306

Detention Operations Manual, Detainee Services, Standard 13, Section I.

307

Detention Operations Manual, Detainee Services, Standard 13, Section III.A.1.

308

Detention Operations Manual, Detainee Services, Standard 13, Section III.B.1.

309

Detention Operations Manual, Detainee Services, Standard 13, Section III.G.4.

310

Detention Operations Manual, Detainee Services, Standard 13, Section III.A.4.

(b)(6)

on conversation with Sergeant

31

(b)(6), (b)(7)c

oversight of the recreation program” and for assessing the needs and interests of the detainees.311
The Standards provide a comprehensive list of required program content.312 Detainees housed in
the facility’s special management unit shall “recreate apart from the general population.”313
Such detainees shall be allowed at least one hour of recreation per day, at least five days per
week, and will only lose those privileges for reasons detailed in the Standards.314
OCJ partially implements the Standards regarding recreation. OCJ adequately
implements the Standards for recreation in several areas. First, detainees appear to be given one
hour of outdoor recreation five days a week, weather permitting, though this requirement is not
spelled out in the OCJ Inmate Handbook.315 Second, none of the detainees we interviewed said
that they need to ever forego other rights or privileges in order to have recreation time.316 Third,
the facility meets some of the “program content” requirements, including that each tier has a
Bowflex machine, the indoor recreation area has two old Stairmasters, and television, ping-pong
(for a fee) and other indoor recreation opportunities are available.317 Finally, OCJ personnel told
us that detainees housed in administrative segregation retain the same recreation privileges,
though we were not able to corroborate that through detainee interviews, and there is nothing
relevant contained in the OCJ Inmate Handbook.318
OCJ fails, however, to implement the Standards in other areas. OCJ does not have an
individual to develop and oversee the recreation program and to assess the needs of the
detainees.319 Perhaps as a result, some interviewed detainees complained about the quality of the
recreational offerings, noting that the minimal offerings made them feel like criminal inmates,
rather than ICE detainees.320 Further, while the Standards give the facility discretion to tailor
recreational offerings to suit the particular facility, the quality of the outdoor recreation area is
pretty low. The area is quite small, does not allow for activities of any kind (no balls or other
sporting goods are allowed outside) and is inaccessible for potentially several months out of the
year during winter weather.321 In addition, when outdoor recreation becomes impossible,
311

Detention Operations Manual, Detainee Services, Standard 13, Section III.F.

312

Detention Operations Manual, Detainee Services, Standard 13, Section III.G.

313

Detention Operations Manual, Detainee Services, Standard 13, Section III.H.

314

Detention Operations Manual, Detainee Services, Standard 13, Section III.H.

315

Notes of Delegation member

(b)(6)

on conversation with Deputy(b)(6), (b)(7)c
and interview of detainee

(b)(6)

(b)(6)

316

Notes of Delegation member

on interview of detainee

Notes of Delegation member
of detainee
(b)(6)
318
319

(b)(6), (b)(7)c
on conversation with Deputy
and observation; Notes of interview

Notes of Delegation member

on conversation with Deputy
(b)(6)

Notes of Delegation member

(b)(6), (b)(7)c

on conversation with Deputy

320

(b)(6)
(b)(6)
Notes of Delegation members
and
detainee who preferred to remain anonymous, respectively.

321

(b)(6)

(b)(6)

317

Notes of Delegation member

(b)(6)

and observation

on interviews of detainees

(b)(6), (b)(7)c
on conversation with Deputy
and observation

32

(b)(6)

and a

inmates are limited to use of the indoor recreation room for one hour per day, only three days per
week, in contrast to the Standards’ required five days per week.322
L.

Funds and Personal Property

The Standards require that each facility control and safeguard detainees’ personal
property, including through “the secure storage of funds, valuables, baggage and other personal
property; a procedure for documentation and receipting of surrendered property; and the initial
and regularly scheduled inventories of all funds, valuables and other property.”323 Each facility
is required to have “policies and procedures to account for and safeguard detainee property at
time of admission,” including a “written standard procedure for inventory and receipt of detainee
funds and valuables” and a “written procedure for inventory and receipt of detainee baggage and
personal property (other than funds and valuables).”324 The facility shall also have a “written
procedure for inventory and audit of detainee funds, valuables and personal property,” as well as
a “written procedure for returning funds, valuables, and personal property to a detainee being
transferred or released.”325 Further, each facility shall have a written policy and procedure for
dealing with detainee property abandoned or reported missing or damaged.326 Finally, the
detainee handbook shall notify detainees of the general policies and procedures concerning
personal property, including several enumerated policies and procedures.327
OCJ fails to implement the bulk of the Standards regarding funds and personal
property. The OCJ Inmate Handbook fails to list any of the items required under the Standards.
Under the Standards, a detainee handbook must notify detainees of facility policies and
procedures concerning personal property, including:
•
•
•
•
•

Which items they may retain in their possession;
That, upon request, they will be provided an ICE-certified copy of any identity
document (passport, birth certificate, etc.) placed in their A-files;
The rules for storing or mailing property not allowed in their possession;
The procedure for claiming property upon release, transfer or removal; and
The procedure for filing a claim for lost or damaged property.328

The OCJ Inmate Handbook does not mention any of this. The only mention of personal
property is (a) that all personal property of inmates is secured upon admission and will be

322

OCJ Handbook, at 10; Notes of Delegation membe

323

Detention Operations Manual, Detainee Services, Standard 8, Section I.

324

Detention Operations Manual, Detainee Services, Standard 8, Section III.C & E.

325

Detention Operations Manual, Detainee Services, Standard 8, Section III.F & G.

326

Detention Operations Manual, Detainee Services, Standard 8, Section III.H & I.

327

Detention Operations Manual, Detainee Services, Standard 8, Section III.J.

328

Detention Operations Manual, Detainee Services, Standard 8, Section III.J.

(b)(6)

33

on conversation with Deputy

(b)(6), (b)(7)c

released upon a showing of need and approval by a jail supervisor329 and (b) that books,
magazines and mail kept in a cell is subject to certain restrictions.330 Again, the failure to
provide for a separate detainee handbook means that almost nothing required by the Standards is
touched upon in the OCJ Inmate Handbook, leaving detainees with no written record of OCJ’s
policies and procedures.
OCJ personnel, however, orally advised us that they had adequate measures in place to
safeguard and inventory detainee property. We were told that all personal property is
inventoried upon admission and that the required forms are filled out electronically and saved on
the OCJ hard drive.331 All personal property is properly stored, and cash and other valuables are
kept in a secure storage closet, access to which is limited to certain OCJ personnel.332 In
accordance with the Standards, detainees must verify that their goods have been properly
inventoried and then they receive a copy of their signed receipt.333 Any property abandoned by
transferred or released detainees is shipped daily to the ICE facility at Broadview.334 All of these
policies or procedures appear to implement either the letter or the spirit of the Standards.
Without written policies and procedures it is difficult to verify implementation of the Standards
and impossible for the detainees to be aware of their rights and the facility’s duties.
The detainees told us that between being picked up initially and arriving at OCJ, much,
and in some instances all, of their personal property had been taken or misplaced.335 Since these
detainees arrived at OCJ with no possessions, they do not blame OCJ for the loss of their
personal property. Rather, they believe that OCJ has not properly responded to their requests to
try to obtain their property from the prior facilities at which they were detained.336
M.

Detainee Handbook

The Standards require that every detention facility develop a site-specific handbook to
provide to detainees upon admission to the facility.337 The purpose of the handbook is to provide
an overview of, and guide to, “the detention policies, rules and procedures in effect at the
facility,” as well as “the services, programs, and opportunities available through various sources,

329

OCJ Handbook, at 8.

330

OCJ Handbook, at 11.

331

Notes of Delegation member

on conversation with Deputy

332

Notes of Delegation member

on conversation with Sergean

333

Notes of Delegation member

on conversation with Deputy

334

Notes of Delegation member

(b)(6), (b)(7)c

(b)(6)

on conversation with Deputy

335

Notes of Delegation member
preferred to remain anonymous.

on interviews of detainee

336

on interviews of detainee

Notes of Delegation member
preferred to remain anonymous.
337

and a detainee who
(b)(6)

Detention Operations Manual, Detainee Services, Standard 6, Section I.

34

and a detainee who

including the facility, [ICE], private organizations, etc.”338 The site-specific handbook must
conform to the example provided in the Standards, but should be customized to suit the
particular facility.339 The handbook must be “written in English and translated into Spanish, and,
if appropriate, into the next most-prevalent language(s) among the facility’s detainees.”340 The
facility must provide the handbook along with appropriate training to all detention center
personnel who have contact with the detainees.341 Finally, a facility may show an orientation
video to supplement, but not supplant, the information in its handbook.342
OCJ partially implements the Standards regarding a site-specific handbook. OCJ
implements the Standards on a number of fronts. First, OCJ provides a copy of the OCJ Inmate
Handbook to each detainee upon admission and to all personnel.343 Second, the OCJ Inmate
Handbook is available in both English and Spanish, and there is not another language prevalent
enough at the facility to warrant a separate translation.344 Finally, OCJ shows a brief nondetainee specific orientation video several times a week that purportedly supplements the OCJ
Inmate Handbook, but the Delegation was not offered the opportunity to view the video.345
However, the OCJ Inmate Handbook fails to implement the Standards because it is not
tailored specifically to detainees or even mention ICE detainees. While the specific provisions
of the OCJ Inmate Handbook that fail to implement the Standards are discussed throughout this
Report and will not be repeated here, the OCJ Inmate Handbook also fails to implement the
Standards by omitting, among many other things, the following required information:
•
•
•
•
•
•
•

A detainee-specific introduction or mission/purpose statement to explain to the
detainees why they are receiving the handbook and what it means to them;
A list of detainee-specific rights and responsibilities;
The classification process or appeal procedure in place at OCJ;
Any discussion of any volunteer work program for detainees in place at OCJ,
since OCJ does not allow its detainees to participate in any such program;
The schedule and procedure for the Law Library or the library in general;
The schedule and sign-up procedures for Group Legal Rights Presentations; and
Any discussion of creation or retention of detainee legal files or detention files.346

338

Detention Operations Manual, Detainee Services, Standard 6, Section I.

339

Detention Operations Manual, Detainee Services, Standard 6, Section III.A.

340

Detention Operations Manual, Detainee Services, Standard 6, Section III.E.

341

Detention Operations Manual, Detainee Services, Standard 6, Section III.G.

342

Detention Operations Manual, Detainee Services, Standard 6, Section III.F.

343

Notes of Delegation member

344

Notes of Delegation member

345

Notes of Delegation member

346

OCJ Handbook, at passim.

on conversation with Sergeant
(b)(6)

on conversation with Sergeant(b)(6), (b)(7)c
on conversation with Sergeant

35

The failure to include this information, coupled with the inclusion of numerous policies
and procedures applicable only to inmates and certain sub-classes of inmates, could tend to
confuse detainees.
V.

RECOMMENDATIONS

While OCJ has implemented some sections of the Standards, the Delegation is concerned
that it has not yet implemented others. While all of the sections not yet implemented are
discussed in detail above, the following are recommendations to ensure that the most important
sections of the Standards are fully implemented:
•

OCJ should create a detainee-specific handbook that includes, at a minimum, all of
the information required by the Standards. At the very least, OCJ should revise the
current OCJ Inmate Handbook to contain all of the required detainee-specific
information. One of the oft-repeated concerns expressed by detainees with regards to
all facets of their stay at OCJ was that policies and procedures that affected them
specifically, as opposed to inmates or prison population generally, were contained
neither in the Handbook nor anywhere else in writing;

•

OCJ should ensure that all detainees are given proper instructions on phone usage and
that they are able to purchase affordable calling cards;

•

OCJ should ensure that phone calls to attorneys, the most important phone call a
detainee can make, are not restricted during waking hours, and never recorded or
monitored (absent a court order);

•

OCJ should provide detainees with the same opportunities that inmates have to work;

•

OCJ’s law library should provide access to all of the legal materials listed in the
Standards and ensure that detainees have sufficient access to computers, printers,
functioning typewriters and other equipment and assistance necessary to their legal
matters;

•

OCJ personnel should not read any legal mail sent to or from detainees;

•

OCJ should provide detainees with a clear, written policy regarding filing and
appealing grievances either with OCJ or ICE;

•

OCJ should provide detainees with a clear, written policy, free from officer
discretion, defining what constitutes major, as opposed to minor, offenses, and what
the punishment is to detainees for committing either type of offense;

•

OCJ should publish a formal procedure for assessing and monitoring hunger-striking
detainees. Most importantly, this formal procedure should ensure that qualified
medical personnel assess the actions of a detainee on hunger-strike in order to
determine whether it is reasonable or the result of mental illness;

•

OCJ should hire a mental health counselor. Our observations of detainees showed
that it might not be sufficient to rely on the assessment of jail personnel who are not
trained to assess, diagnose and/or treat such illnesses;

36

•

OCJ should hire or train an individual to develop and oversee a recreation program
that meets the Standards’ requirements for program content and is consistent with the
goals and capacity of the facility;

•

OCJ should provide detainees with a formal, written policy regarding how personal
property is to be catalogued, stored and returned to the detainee, including the
procedure for requesting the return of goods that detainees believe were taken or
misplaced during their journey to OCJ.

37