Adult Community Residential Handbook
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Under the authority provided by 25 CFR §2802, which implements Public Law 101-379, the Indian Law Enforcement Reform Act, the Bureau of Indian Affairs, Office of Law Enforcement Services has the responsibility to provide criminal justice remedial actions,
correctional and detention services, and rehabilitation in Indian Country. Under the
authority indicated in the Bureau of Indian Affairs Manual System, (0 BIAM, Supplement
2), central office directors have the responsibility to direct their subordinates to prepare and
publish appropriate directives in accordance with BIAM.
The Adult Community Residential Handbook and 69 BIAM replace Section 7
of 68 BIAM Supplement 3, which was last modified significantly nearly 25 years ago. In
the intervening period, adult community residential programs and facilities have become
larger, more sophisticated, and far more complex. As a result, the Adult Community
Residential Handbook addresses adult community residential operations in greater detail
than previous releases.
The Adult Community Residential Handbook is based on the policies provided
in 69 BIAM. Most of these require written procedures to implement a detention policy or
practice. Some procedures also require the development of written plans for significant
detention services, such as health care, or significant events, such as escapes.
Purpose of the Adult Community Residential Handbook
In both its own and contractual detention operations, through its chain of command
and line authority, the Bureau of Indian Affairs (BIA) has management and oversight
responsibility for adult community residential operations. As a result, the BIA, through the
Office of Law Enforcement Services, has the obligation to provide direction to those who
operate facilities. The failure to provide direction results in an unacceptable level of risk
and associated liability for inmates, staff, administrators, and managers. Together with 69
BIAM (Indian Country Detention Programs and Facilities), this Adult Community
Residential Handbook provides a statement of the Bureau's position in many specific
areas of adult community residential operations, and in many cases provides direction
about how specific activities will be carried out. It is a tool for managers, administrators,
supervisors, and line officers who work in facilities.
How the Handbook was Developed
A multi-agency task force was assembled to develop the first draft of the standards
which are included in the Handbook and to develop the content of the Handbook itself. The
agencies represented included representatives from the Office of Law Enforcement
Services central office, Area Office supervisory criminal investigators, unit criminal
investigators, detention staff, and Indian Health Service programs. The task force also
included a member with prior experience in tribal detention programs. Additional internal
reviews were conducted at the Area and Agency level.
How to Use the Handbook
It is important to clarify at the outset that the Adult Community Residential
Handbook is not, in its present form, a final product. Nor can it be. No handbook is ever
truly finished, because it has to be a "living document," which can respond to changing
conditions, changes in law, and changes in philosophy. Update and modification of the
handbook is to be expected. The structure and numbering system of the handbook allows
for a minimum of duplication when changes are made. Sections can be inserted in each
chapter, and, if necessary, additional chapters and volumes on topics that are not now part
of detention programs can be added in the future.
Although there are a number of topics have been developed for all detention
facilities operated by the Bureau of Indian Affairs, there are areas of the Adult Community
Residential Handbook, which will require tailoring to specific local conditions. Nowhere
is the need to tailor policies more obvious than in those which depend strongly upon the
physical facility. As a result, this handbook is viewed as a tool which will require some
additional work, not an end product which can be used without any consideration of local
It is the Bureau's intent to provide a tool which can be sanctioned by the Office of
Law Enforcement Services at the central office level, while providing some ability to modify
elements of the Handbook to respond to local conditions. Modifications are required only
in the general information and procedure sections.
To make it easier to modify the areas of the Adult Community Residential
Handbook which require local tailoring, complete copies of the handbook are available
from the Office of Law Enforcement Services, Indian Police Academy, Artesia, New Mexico
on computer discs. Disks are available in Word Perfect 5.1for DOS and 6.0/6.1 for
Windows. This allows each facility to modify the base document by:
For additional information regarding obtaining the handbook on disc, contact the
Office of Law Enforcement Services.
- Replacing generic terms, such as Facility Administrator, with the position
which has that responsibility at that site,
- Inserting the lists and additional information identified in the General
Information Section, and
- Inserting the procedures which must be tailored for each facility.
Structure of the Adult Community Residential Handbook
The Adult Community Residential Handbook is organized into volumes, chapters
and sections. There are four volumes:
Each chapter in the volume
addresses a specific topic related to the overall topic
presented in the volume. The first section in each chapter provides the standards that
direct the specific procedural sections which follow. The sections which follow in that
chapter provide procedures to implement the standards in that preceding section.
- Administration and Management,
- Physical Plant,
- Institutional Operations, and
- Programs and Services.
Each section is also written in a consistent format to make it easier for users to
locate information. Each section includes:
- Statement of Purpose, which describes the position of the Bureau on a
particular issue or topic and the reason why it has taken this position. The
Statement of Purpose guides and directs behavior.
- General Information, which lists information such as administrative rules
which have to be specific to each facility, schedules, the names of contact
persons which would be helpful to officers using the policy, and other miscellaneous information; many of these items must be added by each
- Definitions, which explains all terms (including forms) used in the policy
- Documentation, which lists all forms and reports which are required and/or
are likely to be used in carrying out the procedures; it is important to
understand that the facility be able to document that it has in fact followed
- Procedures, which describe, in order, the actions which are carried out to
implement policy which has been presented in 69 BIAM and the directions
provided in the standards. It is not possible to develop all of these
procedures that are required in each facility, because a number of them must
be specifically tailored to meet the conditions and physical plant in which a
specific program operates. In those cases, the procedure section includes
all of the topics which must be addressed. Approximately one-third of the
procedures require modification to address local conditions.
The systematic approach used to separate the parts of the topic is especially
appropriate for a situation in which multiple facilities are operated by the same agency,
since it will allow each facility to modify the procedures to fit the needs of their facility and
preferred method of operations, while retaining a logical and consistent approach for the
entire organization. It also has substantial benefits in making it easier for staff to use as
procedures are implemented. With minimal training regarding the structure of the Adult
Community Residential Handbook, staff will learn how to find and use specific materials
without having to review an entire chapter each time they need to refer to the handbook.
From a computer perspective, the entire Handbook is a master document. You will
find the master document in a file named, MASTER.ACR. The subdocuments include
entire chapters. The table of contents is part of the master document. You can generate
the table of contents if you make changes by expanding the master document. This will
automatically pull in all the chapters. By using the master document, it will also be easier
to make the global changes, such as changing the term "facility administrator" to "Captain
The Master Document is a little over 1 mb when it is expanded (all the
subdocuments have been read into it). The advantage to using master documents is that
if you want to edit something you can edit the subdocument (which will take less memory
and be faster). You can print from the subdocument (our page numbering commands are
in the subdocuments, not just the master document). You really only need to use the
Master Document when you want to generate the Table of Contents or you want to print
the entire Handbook. For additional information about Master Documents and
Subdocuments, consult the Word Perfect Manual.
The files are named to make it easy for users to find the chapter they need to edit.
The first two digits of the name identify the volume and volume number. The next two digits
of the name identify the chapter and chapter number. The remaining digits provide a clue
of the topic. The suffix identifies the type of handbook. ADF means Adult Detention
Facility. JDF means Juvenile Detention Facility. So, for example,
V3C3RULE.ADF can be translated as Volume 3, Chapter 3, Rules and Discipline. Adult Detention Facility
This Handbook is part of an on-going process to provide tools for detention facilities.
This effort includes a number of materials which support the handbook including, a Forms
Manual of suggested forms, an Inmate Handbook, and model rules referenced in the
Use of Language
Because the person(s) responsible for specific detention functions at the local level
may vary, the Adult Community Residential Handbook refers to these positions
generically. For example, the term, "Facility Administrator," is used to refer to the person
who has responsibility for day-to-day operations of the detention facility. In one location,
this may be the Chief of Police, while in others the Agency Superintendent, a Police
Captain, or a civilian administrator may serve as the facility administrator. Similarly, the
term, "Health Care Provider," is used to refer to the health care professional who has
responsibility for detention health care. This may be the Service Unit Director at the Indian
Health Service, the head of a Tribal Health Program, or a private contractor. It is
recommended that each program modify the Handbook to reflect the language that applies
to their specific situation.
All of the text of the handbook is written using masculine pronouns. That choice in
no way implies that only males work in these facilities. The terms, "he" and "his," in this
document, include both genders.
The accreditation process is incremental and, in most areas, offers individual
programs options and choices as to how they can move into compliance and become an
accredited facility. The compliance process is structured around the standards which are
included in the Handbook and the system of program reviews the Office of Law
Enforcement Services uses.
Types of Standards
The standards have been divided into five sets, based on facility type, to make their
use clearer. The appropriate set of standards has been made a part of each Handbook.
There are standards for adult detention facilities, juvenile detention facilities, adult community residential facilities, juvenile community residential facilities, and adult holding facilities.
A Standards Supplement, which includes all the standards, is available through the Office
of Law Enforcement Services. For information about the these terms, refer to the definition
section of the Handbook.
Each site may determine which type detention program they wish to operate and
select that set of standards. Each facility may elect to operate more than one program type
on a single site or within a single structure, provided that the requirements for programs
located on the same site are met. This approach provides maximum flexibility to each
locality in determining the type of detention program(s) it wishes to operate.
There are two types of standards, mandatory and non-mandatory. Each set of
standards includes both standards for operations and standards for physical plants. If
appropriate, physical plant standards are divided into two categories:
- New construction, renovation and expansion, and
- Existing facilities.
The following table shows the number of mandatory and non-mandatory standards
by facility type for new and existing construction.
Mandatory and Non-Mandatory Standards by Facility Type
| Type of Facility|| Total
Standards|| Mandatory|| Non- Mandatory|
| Adult Detention|| 245 || 48 || 197 |
| Adult Detention (existing)|| 249 || 48 || 201 |
| Juvenile Detention|| 262 || 47 || 215 |
| Juvenile Detention (existing)|| 266 || 47 || 219 |
| Adult Community Residential|| 223 || 45 || 178 |
| Juvenile Community Residential|| 228 || 45 || 183 |
| Adult Holding Facilities|| 207 || 47 || 160 |
| Adult Holding Facilities (existing)|| 208 || 47 || 161 |
Mandatory standards deal with areas in which there is potential danger to the life,
health, and safety of inmates, staff, and/or the community and those areas in which
there are other statutes, regulations, or directives which mandate compliance.
Without exception, facilities must comply with all mandatory standards. Non-Mandatory
Standards deal with all other areas of administration, program operation and facilities.
Based on a system of progressive compliance, all facilities must comply with a percentage
non-mandatory standards that increases over time. The following table lists the mandatory
| Detention|| Community Residential|| Holding|
| Adult|| Juvenile|| Adult|| Juvenile|| Adult|
| Separation of Adults
& Juveniles|| ADF-1-1-13|| |
| Prohibited Uses of
Detention|| N/A|| JDF-1-1-14|| N/A|| N/A|| N/A|
| Budgetary Compliance|| ADF-1-2-1|| JDF-1-2-1|| ACRF-1-2-1|| JCRF-1-2-1|| AHF-1-2-1|
| Accounting Compliance|| ADF-1-2-2|| JDF-1-2-2|| ACRF-1-2-2|| JCRF-1-2-2|| AHF-1-2-2|
| Personnel Policy|| ADF-1-3-1|| JDF-1-3-1|| ACRF-1-3-1|| JCRF-1-3-1|| AHF-1-3-1|
| Training Curriculum
Approval|| ADF-1-4-2|| JDF-1-4-2|| ACRF-1-4-2|| JCRF-1-4-2|| AHF-1-4-2|
| Orientation Training|| ADF-1-4-6|| JDF-1-4-6|| ACRF-1-4-6|| JCRF-1-4-6|| AHF-1-4-5|
| Records Compliance|| ADF-1-5-1|| JDF-1-5-1|| ACRF-1-5-1|| JCRF-1-5-1|| AHF-1-5-1|
| Building and Safety
Code Compliance|| ADF-2-1-1|| JDF-2-1-1|| ACRF-2-1-1|| JCRF-2-1-1|| AHF-2-1-1|
| Accessibility|| ADF-2-1-3|| JDF-2-1-3|| ACRF-2-1-3|| JCRF-2-1-3|| AHF-2-1-3|
| OSHA Compliance|| ADF-2-1-4|| JDF-2-1-4|| ACRF-2-1-4|| JCRF-2-1-4|| AHF-2-1-4|
| Health and Safety Inspection|| ADF-2-1-5|| JDF-2-1-5|| ACRF-2-1-5|| JCRF-2-1-5|| AHF-2-1-5|
| Furnishings and
Compliance|| ADF-2-1-6|| JDF-2-1-6|| ACRF-2-1-6|| JCRF-2-1-6|| AHF-2-1-6|
| Separation of Adults
& Juveniles|| ADF-2-2-2|| N/A|| N/A|| N/A|| AHF-2-2-1|
| Emergency Exits|| ADF-2-4-4|| JDF-2-4-4|| ACRF-2-4-1|| JCRF-2-4-1|| AHF-2-4-2|
| New Facility Planning Requirement|| ADF-2-5-1|| JDF-2-5-1|| ACRF-2-5-1|| JCRF-2-5-1|| AHF-2-5-1|
| Safety Management
Review|| ADF-2-5-2|| JDF-2-5-2|| ACRF-2-5-2|| JCRF-2-5-2|| AHF-2-5-2|
| Full Coverage of
Posts|| ADF-3-1-3|| JDF-3-1-4|| ACRF-3-1-1|| JCRF-3-1-1|| AHF-3-1-3|
| Male and Female
Staff Requirement|| ADF-3-1-6|| JDF-3-1-7|| ACRF-3-1-3|| JCRF-3-1-3|| AHF-3-1-6|
| Weekly Inspection|| ADF-3-1-14|| JDF-3-1-15|| ACRF-3-1-10|| JCRF-3-1-10|| AHF-3-1-14|
| Monthly Inspection|| ADF-3-1-15|| JDF-3-1-16|| ACRF-3-1-11|| JCRF-3-1-11|| AHF-3-1-15|
| Fire Safety Inspection|| ADF-3-1-16|| JDF-3-1-17|| ACRF-3-1-12|| JCRF-3-1-12|| AHF-3-1-16|
| Use of Force and
Firearms|| ADF-3-1-22|| JDF-3-1-23|| ACRF-3-1-17|| JCRF-3-1-17|| AHF-3-1-22|
| Fire Prevention|| ADF-3-2-1|| JDF-3-2-1|| ACRF-3-2-1|| JCRF-3-2-1|| AHF-3-2-1|
| Evacuation Plan|| ADF-3-2-4|| JDF-3-2-4|| ACRF-3-2-3|| JCRF-3-2-3|| AHF-3-2-4|
| Emergency Plans|| ADF-3-2-5|| JDF-3-2-5|| ACRF-3-2-4|| JCRF-3-2-4|| AHF-3-2-5|
| Medical Treatment
(Incident)|| ADF-3-2-7|| JDF-3-2-7|| ACRF-3-2-6|| JCRF-3-2-6|| AHF-3-2-7|
| Suicide Screening|| ADF-3-6-3|| JDF-3-7-3|| ACRF-3-5-6|| JCRF-3-5-6|| AHF-3-6-3|
| Dietary Allowances|| ADF-3-9-2|| JDF-3-10-2|| ACRF-3-8-2|| JCRF-3-8-2|| AHF-3-9-2|
| Medical Special
Diets|| ADF-3-9-4|| JDF-3-10-4|| ACRF-3-8-4|| JCRF-3-8-4|| AHF-3-9-4|
| Health Protection|| ADF-3-9-7|| JDF-3-10-7|| ACRF-3-8-7|| JCRF-3-8-7|| AHF-3-9-7|
| Inspection of Food
Service Area|| ADF-3-9-9|| JDF-3-10-9|| ACRF-3-8-9|| JCRF-3-8-9|| AHF-3-9-9|
| Water Supply|| ADF-3-10-1|| JDF-3-11-1|| ACRF-3-9-1|| JCRF-3-9-1|| AHF-3-10-1|
| Sewage System|| ADF-3-10-2|| JDF-3-11-2|| ACRF-3-9-2|| JCRF-3-9-2|| AHF-3-10-2|
| Sanitation Plan|| ADF-3-10-3|| JDF-3-11-3|| ACRF-3-9-3|| JCRF-3-9-3|| AHF-3-10-3|
| Written Health Care
Plan|| ADF-3-11-1|| JDF-3-12-1|| ACRF-3-10-1|| JCRF-3-10-1|| AHF-3-11-1|
Health Judgment|| ADF-3-11-4|| JDF-3-12-4|| ACRF-3-10-4|| JCRF-3-10-4|| AHF-3-11-4|
| Meetings with Provider|| ADF-3-11-6|| JDF-3-12-6|| ACRF-3-10-6|| JCRF-3-10-6|| AHF-3-11-6|
| Review of Health
Care Policies|| ADF-3-11-7|| JDF-3-12-7|| ACRF-3-10-7|| JCRF-3-10-7|| AHF-3-11-7|
| Health Training
Program|| ADF-3-11-8|| JDF-3-12-8|| ACRF-3-10-8|| JCRF-3-10-8|| AHF-3-11-8|
| 24-hour Emergency
Care|| ADF-3-11-10|| JDF-3-12-10|| ACRF-3-10-10|| JCRF-3-10-10|| AHF-3-11-10|
| Health Care Treatment|| ADF-3-11-11|| JDF-3-12-11|| ACRF-3-10-11|| JCRF-3-10-11|| AHF-3-11-11|
| Licensure Requirements|| ADF-3-11-13|| JDF-3-12-13|| ACRF-3-10-12|| JCRF-3-10-12|| AHF-3-11-13|
| Management of
Medications|| ADF-3-11-16|| JDF-3-12-16|| ACRF-3-10-15|| JCRF-3-10-15|| AHF-3-11-16|
| Preliminary Health
Screening|| ADF-3-11-18|| JDF-3-12-18|| ACRF-3-10-17|| JCRF-3-10-17|| AHF-3-11-18|
| Serious and Infectious Disease|| ADF-3-11-23|| JDF-3-12-23|| N/A|| N/A|| AHF-3-11-20|
| Participation in Research|| ADF-3-11-27|| JDF-3-12-27|| ACRF-3-10-25|| JCRF-3-10-25|| AHF-3-11-23|
| Confidentiality of
Health Records|| ADF-3-11-28|| JDF-3-12-28|| ACRF-3-10-26|| JCRF-3-10-26|| AHF-3-11-24|
| Regulation of Work
Programs|| ADF-4-4-2|| JDF-4-4-2|| ACRF-4-5-2|| JCRF-4-5-2|| N/A|
There are two categories of standards which deal with facilities: standards for existing construction and standards for new construction, additions and renovations.
If there are no existing
facilities of the type, standards for existing construction are omitted.
Compliance with the Accreditation Process
Facilities that comply with the standards are automatically accredited when they have
completed the field audit portion of the accreditation process. Accredited facilities will receive
certification of the accreditation from the Bureau of Indian Affairs, Office of Law Enforcement
Services. For additional information regarding the accreditation process, contact the Office of Law
The accreditation process is incremental. It does not require that facilities comply with all
standards as soon as they are published. The following schedule is established for compliance:
- First Year Following Publication.
By the end of the first year following publication, all
detention facilities must have identified their deficiencies and developed an action plan that
identifies the actions and resources necessary to correct deficiencies and a schedule for
these remedies. Self-audit and action plan materials are available from the Office of Law
- Second Year Following Publication.
By the end of the second year following publication
and thereafter, all facilities must be one hundred percent compliant with the mandatory
standards. For example, an existing adult detention facility would have to comply with the
48 mandatory standards of the 249 total standards applicable to this facility type.
- Fourth Year Following Publication.
By the end of the fourth year following publication and
thereafter, all facilities must be 50 percent compliant with the non-mandatory standards. For
example, an existing adult detention facility would have to remain compliant with the 48
mandatory standards and also comply with 101 (50%) of the 201 non-mandatory standards
for this facility type.
- Fifth Year Following Publication.
By the end of the fifth year following publication and
thereafter, all facilities must be 60 percent compliant with the non-mandatory standards. For
example, an existing adult detention facility would have to remain compliant with the 48
mandatory standards and also comply with 121 (60%) of the non-mandatory standards for
this facility type.
- Sixth Year Following Publication.
By the end of the sixth year following publication and
thereafter, all facilities must be 70 percent compliant with the non-mandatory standards.
- Seventh Year Following Publication.
By the end of the seventh year following publication
and thereafter, all facilities must be 80 percent compliant with the non-mandatory standards.
- Eighth Year Following Publication.
By the end of the eighth year following publication and
thereafter, all facilities must be 90 percent compliant with the non-mandatory standards.
The BIA, Office of Law Enforcement Services provides a format for self-accreditation of
programs with provision for program audits.
Actions on Non-Compliance
The Office of Law Enforcement Services has initiated the process of compliance with
standards in a positive way. The accreditation process offers programs many options to improve
their detention operations and to choose those areas in which they will comply with standards. It is
our hope that programs will use this process voluntarily and be active partners working to improve
conditions in detention facilities in Indian country. However, if programs do not elect to move forward
in this process, the Office of Law Enforcement Services has the obligation to act as specified in 25
CFR § 10.4.
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