96-16042. Indian Country Detention Facilities and Programs  

  • [Federal Register Volume 61, Number 128 (Tuesday, July 2, 1996)]
    [Rules and Regulations]
    [Pages 34371-34375]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 96-16042]
    
    
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    DEPARTMENT OF THE INTERIOR
    
    Bureau of Indian Affairs
    
    25 CFR Part 10
    
    RIN 1076-AD77
    
    
    Indian Country Detention Facilities and Programs
    
    AGENCY: Bureau of Indian Affairs, Interior.
    
    ACTION: Final rule.
    
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    SUMMARY: The Bureau of Indian Affairs (Bureau) is establishing 
    regulations to ensure that all Bureau and tribal entities that receive 
    Federal funding for the operation, maintenance, design and 
    construction, or renovation of detention facilities are operated and 
    maintained in a constitutionally sound manner and comply with the 
    Indian Law Enforcement Reform Act of 1990, Public Law 101-379 (25 
    U.S.C. 2801 et seq.). These regulations define the policies, standards 
    and guidelines for detention and rehabilitation programs within Indian 
    country.
    
    EFFECTIVE DATE: These regulations take effect on August 1, 1996.
    
    FOR FURTHER INFORMATION CONTACT: Theodore R. Quasula, 202-208-5786.
    
    SUPPLEMENTARY INFORMATION:
    
    Background
    
        The authority to issue rules and regulations is vested in the 
    Secretary of the Interior by 5 U.S.C. 301 and sections 463 and 465 of 
    the Revised Statutes, 25 U.S.C. 2 and 9. The proposed rule was 
    published August 5, 1994, (59 FR 40086). Comments received during the 
    comment period ending November 3, 1994, were considered in the drafting 
    this final rule.
        What is the purpose of this rule? The purpose of this rule is to 
    provide standards and procedures for the operation of detention 
    facilities funded under the Indian Alcohol and Substance Abuse 
    Prevention and Treatment Act, Pub. L. 99-570, (25 U.S.C. Sec. 2453).
        Who must follow these regulations? Every BIA and tribal law 
    enforcement program receiving Federal funding or performing duties 
    during the operation of detention or rehabilitation facilities or 
    functions must follow these minimum standards. These programs and 
    functions are high risk activities that subject the Federal Government 
    to the risk of liability for tort claims. Self-governance tribes and 
    tribes with limited jurisdiction are encouraged to use this rule, 
    Chapter 69 Bureau of Indian Affairs Manual (BIAM), and handbooks for 
    detention and rehabilitation programs under their administration.
        How will these regulations be enforced? All programs will be 
    subject to periodic inspections or evaluations during which the BIA 
    will provide technical assistance, will ensure compliance with the 
    standards and procedures contained in this rule, and will identify 
    necessary corrective actions or improvements to policies and 
    procedures. The Bureau adopted a voluntary accreditation process with 
    an audit and evaluation system.
        Why were regulations rewritten and moved? Detention standards were 
    published in 25 CFR Sec. 11.305 and later moved to Section 12.104. The 
    regulations had not been modified for sixteen years. They did not 
    address current detention problems and were inconsistent with current 
    acceptable detention practices and procedures. The regulations also 
    failed to address code compliance and related physical plant issues, 
    and lacked options to allow for alternative types of detention 
    programs. The need for more detailed and contemporary standards was 
    intensified by the provision of funding for detention programs under 
    Indian Alcohol and Substance Abuse Prevention and Treatment Act.
        Are all the standards and procedures applicable to adult and 
    juvenile detention facilities, Inmate Handbook
    
    [[Page 34372]]
    
    facilities, and holding facilities and programs published in this rule? 
    No. Although Part 10 is reserved entirely for Indian country detention 
    and rehabilitation programs, Chapter 69 BIAM, and handbooks for 
    detention and rehabilitation programs detail the standards and 
    procedures.
        How were the rules or regulations revised and updated? A multi-
    agency task force was assembled to develop the first draft of these 
    standards. The task force included representatives from the Office of 
    Law Enforcement Services, Area Office Supervisory Criminal 
    Investigators, Agency Criminal Investigators, detention staff, and 
    Indian Health Service program specialists. The task force also included 
    individuals with experience working in tribal detention programs. 
    Additional internal reviews were conducted at the Bureau area and 
    agency level. Interested parties and professionals submitted written 
    comments, suggestions or objections to the proposed rules.
    
    Review of Public Comments
    
    Building and Safety Code Compliance.
    
        The Bureau of Indian Affairs, Facilities Management & Construction 
    Center recommended the standards relating to building and safety code 
    compliance be revised to reflect current requirements. If the facility 
    is owned by the BIA, it must comply with the codes and standards 
    adopted by the BIA in the Chapter 25 Bureau of Indian Affairs Manual 
    (BIAM) Supplements 18 and 19. If the facility is owned by a tribe, it 
    must comply with either tribally adopted building codes, tribally 
    adopted state or municipal building codes, or the Chapter 25 BIAM 
    Supplements 18 and 19. This change has been incorporated into each 
    applicable standard.
    
    Mississippi Band of Choctaw Indians
    
        The Mississippi Band of Choctaw Indians expressed numerous concerns 
    and recommendations. Each of the Tribe's concerns has been addressed:
        (1) Development of requirements that are applicable to all facility 
    types. As directed of the Department of the Interior, Office of 
    Regulatory Affairs, the format for the rule must be general in nature. 
    Specific requirements are published in the policy and standards 
    manuals, rather than as rules. The recommendation will not be 
    incorporated in this rule.
        (2) Publication of an accreditation process prior to the approval 
    of the final rule. An accreditation process has been drafted. A 
    standards compliance information packet, corrective action plan 
    workbook, self-audit workbook, and standard accreditation workbook have 
    been developed. This process will be field tested and adopted by the 
    BIA.
        (3) Reduction of the levels of Bureau approval required for 
    standard compliance--operational descriptions. Standards have been 
    developed for Bureau operated detention/correctional facilities and 
    programs. Through the contracting programs of the Indian Self-
    Determination and Education Assistance Act, The tribe can develop a 
    facility specific line of authority and approval process of their own 
    when contracting detention/correction programs under the Indian Self-
    Determination and Education Assistance Act.
        (4) Involvement of the Indian Health Service and tribes in the 
    drafting of these standards. The Bureau established a task force to 
    draft these standards. The task force was comprised of representatives 
    from the Office of Law Enforcement Services, Area Office Supervisory 
    Criminal Investigators, Agency Criminal Investigators, detention staff, 
    and Indian Health Service program specialists and tribes. They provided 
    Indian Health Services and the tribes many opportunities to review the 
    standards, including the publication of the proposed rule in the 
    Federal Register on August 5, 1994.
        (5) Incorporation of the numbering changes for various tables and 
    charts for Mandatory Standards, Separation of Adults and Juveniles, and 
    Suicide Screening. This has been done.
        (6) Modification of accreditation requirements and the minimum 
    qualifications for new recruits. The minimum standards are critical to 
    a quantified accreditation process in order to evaluate compliance and 
    performance. The recommendation will not be incorporated in this rule.
        (7) Addition of Detention Officer to the definitions section. The 
    definition section for this rule and the definition has been added.
        (8) Provision of funds to train detention staff in the operation of 
    new generation jails. The BIA Indian Police Academy offers detention 
    officer training and is revamping its detention officers' curriculum to 
    incorporate direct supervision methodologies and philosophies.
        (9) Incorporation of the rate of facility capacity as a mandatory 
    standard. During drafting of the rule, BIA agreed that mandatory 
    standards would be limited to those areas that create a 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 that mandate compliance. The recommendation 
    will not be incorporated in this rule.
        (10) Inclusion and/or clarification of the following definitions: 
    (a) Protective Holding Cell--a specialized cell or room that is 
    utilized to detain or isolate an incapacitated or combative 
    individual(s) for a short period of time, in the standards. The 
    protective holding cell may be equipped with specialized security and/
    or medical equipment to control and manage individuals detained in 
    these areas in a safe, secure, and humane environment. (b) Special 
    Management--confinement of a detainee in an individual cell that is 
    separated from the remainder of the population for the purpose of 
    disciplinary, administrative segregation, protective custody, or 
    medical segregation, in standards. The exceptions to house an inmate in 
    special management must coincide with this criteria. (c) Multiple 
    Occupancy Cells or Rooms--an area, room or cell housing more than two 
    and less than fifty persons. These recommendations were incorporated in 
    the standards or rule.
        (11) Addition of Designated Security Post to clarify staffing 
    requirements.
        (12) Addition of Adult Holding Facility and Mass Arrest to the 
    definitions for this rule. The Department of the Interior, Office of 
    Regulatory Affairs established the definitions section for this rule. 
    The recommendation will not be incorporated in this rule.
        (13) Inclusion of square footage requirements as a mandatory 
    standard. During drafting of the rule, BIA agreed that mandatory 
    standards would be limited to those areas that create a 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 that mandate compliance. The recommendation 
    will not be incorporated in this rule.
        (14) Addition of a transition program for accepting, moving into, 
    and operating a new facility beginning one year prior to the completion 
    of a facility. The Planning of New Institutions (PONI) is the Bureau's 
    process for constructing and operating new facilities in Indian 
    country. The Bureau has determined that this transition must begin when 
    the construction phase starts. The recommendation will not be 
    incorporated in this rule.
        (15) Consolidation of limitations on inmate correspondence and 
    inspection of letters and packages. Upon review, it was decided that no 
    change would be made. The limitations on inmate correspondence 
    addresses the volume of lawful correspondence an inmate may
    
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    send or receive. The standard dealing with the inspection of letters 
    and packages addresses the search of inmate mail for contraband. The 
    recommendation will not be incorporated in this rule.
        (16) Removal of the requirement that a governing board or advisory 
    committee oversee the operation of a residential facility. The 
    structure of these programs will be the responsibility of the tribe. 
    Oversight of these facilities should include representation from the 
    community and the overall Tribal government. The recommendation will 
    not be incorporated in this rule.
        (17) Removal of the designated staff position for recreational and 
    leisure activities, would not be realistic due to the limited staff 
    resources. A position must be specified for accountability purposes, 
    however, the administrator will have the latitude to designate 
    collateral duties where staff is limited. The recommendation will not 
    be incorporated in this rule.
        (18) Amendment of Staffing Requirements to Administrative Review of 
    Staff Requirement to include institutional operations dealing with 
    staff requirements. The staffing requirement in the Administration and 
    Management section is an institutional requirement that staff be on 
    board at all times to operate the facility, rather than the 
    administrative process to review staffing patterns within the 
    institution. The recommendation will not be incorporated in this rule.
        (19) Inclusion of comparable tribal regulations in the standards. 
    The standards indicate that non-regulatory documents will not be 
    incorporated into the rule. The standards were developed for BIA 
    operated detention/correctional facilities and programs, but permit 
    tribes to operate under comparable tribal regulations when the program 
    is contracted under the Indian Self-Determination and Education 
    Assistance Act. The recommendation will not be incorporated in this 
    rule.
    
    National Commission on Correctional Health Care and the American 
    Psychiatric Association
    
        The recommendation by the National Commission on Correctional 
    Health Care (NCOCHC) and American Psychiatric Association suggested 
    replacing the drafted health care standards developed in association 
    with the Indian Health Service with the NCOCHC's standards for health 
    services in jails. Indian country detention and holding facilities, in 
    general, are smaller than the facilities referenced in NCOCHC 
    standards. The NCOCHC standards are unrealistic for reservation 
    facilities. The Indian Health Service has a legal obligation to provide 
    health services to Indian people and to mandate NCOCHC's standards is 
    duplicative. The Bureau standards are equal to or exceed the American 
    Correctional Association standards. These standards are consistent with 
    national professional standards. The recommendation will not be 
    incorporated in this rule.
    
    Changes Reflecting Department of the Interior Policy
    
        The Office of Regulatory Affairs and the Office of the Solicitor, 
    Department of the Interior, indicated that the proposed rule was 
    predominately standards and procedures for the operation of detention 
    or holding facilities in Indian country; as such they should not be 
    published in the Code of Federal Regulations. This is consistent with 
    Executive Order 12866 that mandates that agencies streamline the 
    regulatory process and enhance the planning and coordination of new and 
    existing regulations.
        The Bureau has separated the operational standards and day-to-day 
    guidance from the rulemaking process. The operational standards are now 
    included in easy-to-read reference handbooks and guides. These 
    handbooks and guides are specific to Indian country detention and 
    holding facilities. They are now part of the Bureau's operations 
    management handbook and are available to the public, tribal programs, 
    and BIA employees upon request. Inmates will receive written guidelines 
    at the time of booking into a facility detailing what behavior will be 
    expected of them, their rights and privileges, and the nutritional/
    medical/emergency treatment to be provided.
        Public comments have been incorporated in the ``Indian Country 
    Detention Facilities and Programs 69'' (Chapter 69 Bureau of Indian 
    Affairs Manual) and accompanying handbooks. The Inmate Handbook ensures 
    that all persons incarcerated in Indian country detention or holding 
    facilities understand their rights, privileges, safety procedures, 
    detainee treatment during incarceration, and the behavior expected of 
    detainees.
    
    Evaluation and Certification
    
    Executive Order 12988
    
        The Department has determined that these regulations meet the 
    applicable standards provided in sections 3(a) and 3(b)(2) of Executive 
    Order 12988.
    
    Executive Order 12866
    
        This rule is not a significant regulatory action under Executive 
    Order 12866.
    
    Regulatory Flexibility Act
    
        This rule will not have a significant economic impact on a 
    substantial number of small entities under the Regulatory Flexibility 
    Act (5 U.S.C. Sec. 601 et seq.)
    
    Executive Order 12630
    
        The Department has determined that this rule does not have 
    ``significant'' takings implications. The rule does not pertain to 
    ``taking'' of private property interests, nor does it impact private 
    property.
    
    Executive Order 12612
    
        The Department has determined that this rule does not have 
    significant federalism effects because it pertains solely to Federal-
    tribal relations and will not interfere with the roles, rights and 
    responsibilities of states.
    
    NEPA Statement
    
        The Department has determined that this rule does not constitute a 
    major Federal action significantly affecting the quality of the human 
    environment and that no detailed statement is required pursuant to the 
    National Environmental Policy Act of 1969.
    
    Unfunded Mandates Act of 1995
    
        This proposed rule imposes no unfunded mandates on any governmental 
    or private entity and is in compliance with the provisions of the 
    Unfunded Mandates Act of 1995.
    
    Paperwork Reduction Act of 1995
    
        This rule has been examined under the Paperwork Reduction Act of 
    1995 and has been found to contain no information collection 
    requirements.
    
    Drafting Information
    
        The primary author of this document is Warren LeBeau, Detention 
    Specialist, Bureau of Indian Affairs, Office of Law Enforcement 
    Services.
    
    List of Subjects in 25 CFR Part 10
    
        Buildings, Indians, Law enforcement, Prisoners, Youth.
    
        For the reasons given in the preamble, a new part 10 is added to 
    Chapter I of title 25 of the Code of Federal Regulations as set forth 
    below.
    
    [[Page 34374]]
    
    PART 10--INDIAN COUNTRY DETENTION FACILITIES AND PROGRAMS
    
    Sec.
    10.1  Why are policies and standards needed for Indian country 
    detention programs?
    10.2  Who is responsible for developing and maintaining the policies 
    and standards for detention and holding facilities in Indian 
    country?
    10.3  Who must follow these policies and standards?
    10.4  What happens if the policies and standards are not followed?
    10.5   Where can I find the policies and standards for the 
    administration, operation, services, and physical plant/construction 
    of Indian country detention, Inmate Handbook, and holding 
    facilities?
    10.6  How is the BIA assured that the policies and standards are 
    being applied uniformly and facilities are properly accredited?
    10.7  Where do I find help or receive technical assistance in 
    complying with the policies and standards?
    10.8  What minimum records must be kept and reports made at each 
    detention, Inmate Handbook, or holding facility in Indian country?
    10.9  If a person is detained or incarcerated in an Indian country 
    detention, Inmate Handbook, or holding facility, how would they know 
    what their rights, privileges, safety, protection and expected 
    behavior would be?
    10.10  What happens if I believe my civil rights have been violated 
    while incarcerated in an Indian country detention or holding 
    facility?
    10.11  How would someone detained or incarcerated, or their 
    representative, get the BIA policies and standards?
    
        Authority: 5 U.S.C. 301; 25 U.S.C. 2, 9, 13, 2417, 2453, and 
    2802.
    
    
    Sec. 10.1   Why are policies and standards needed for Indian country 
    detention programs?
    
        Policies and standards are required to ensure that all Bureau of 
    Indian Affairs (BIA) and tribal entities that receive Federal funding 
    for the operation, maintenance, design and construction or renovation 
    of detention facilities, Inmate Handbook, or holding facilities are 
    supporting constitutional rights and are complying with the Indian Law 
    Enforcement Reform Act of 1990. Self-governance tribes and tribes with 
    limited jurisdiction are encouraged to follow the regulations in this 
    part, and other BIA manuals and handbooks. The provision for funding 
    tribes for detention programs under the Indian Alcohol and Substance 
    Abuse Prevention and Treatment Act, Public Law 99-570, (25 U.S.C. 2453) 
    requires standards and procedures for such facilities.
    
    
    Sec. 10.2   Who is responsible for developing and maintaining the 
    policies and standards for detention and holding facilities in Indian 
    country?
    
        The Director, Office of Law Enforcement Services who reports to the 
    Deputy Commissioner of Indian Affairs, BIA, establishes policies, 
    procedures, and standards for the operations, design, planning, 
    maintenance, renovation, and construction of detention programs in the 
    BIA and by tribal contract under Indian Self-Determination and 
    Education Assistance Act, Public Law 93-638, as amended, 25 U.S.C. 450.
    
    
    Sec. 10.3   Who must follow these policies and standards?
    
        You must follow these minimum policies, standards, and guides if 
    you are part of the BIA or tribal detention or rehabilitation program 
    receiving Federal funding. Self-governance tribes and tribes with 
    limited jurisdiction are encouraged to follow the regulations in this 
    part, and other BIA manuals and handbooks. Detention officers, guards, 
    cooks and other staff conducting business in the facilities must meet 
    minimum standards of law enforcement personnel as prescribed in 25 CFR 
    part 12, subpart D, ``Qualifications and Training Requirements.'' Those 
    tribal programs not receiving Federal funding under the Indian Self-
    Determination and Education Assistance Act (Public Law 93-638, as 
    amended) who wish to be accredited are encouraged to use the policies 
    and standards in that part since they have been modified and approved 
    for Indian country.
    
    
    Sec. 10.4   What happens if the policies and standards are not 
    followed?
    
        The risk for human and civil rights violations due to lack of 
    common standards will subject the operation and/or facility to 
    unnecessary exposure to liability. Lack of employee standards, 
    particularly for training and background checks, will increase the risk 
    of misconduct and vicarious liability of the tribes and the Federal 
    government through tort claims. Funding sources for detention programs 
    may become scarce to nonexistent because of contract noncompliance. The 
    tribes' opportunity to receive funding from potential resource sharing 
    agreements with other law enforcement agencies may be damaged because 
    the facility may have to be closed for cause due to violation of the 
    life safety codes.
    
    
    Sec. 10.5   Where can I find the policies and standards for the 
    administration, operation, services, and physical plant/construction of 
    Indian country detention, Inmate Handbook, and holding facilities?
    
        The Bureau of Indian Affairs, Department of the Interior, maintains 
    a manual of policies and procedures called the Bureau of Indian Affairs 
    Manual (BIAM). The Chapter 69 BIAM titled ``Indian Country Detention 
    Facilities and Programs,'' contains the BIA's policies, procedures, and 
    standards for detention and holding programs in Indian country. The 
    standards for the programs within the BIAM are in handbook format for 
    easy field reference and use. Copies of the Chapter 69 BIAM and 
    handbooks may be obtained from the Director, Office of Law Enforcement 
    Services.
    
    
    Sec. 10.6   How is the BIA assured that the policies and standards are 
    being applied uniformly and facilities are properly accredited?
    
        The tribes and BIA programs will use a phased approach to meeting 
    all non-mandatory detention standards and will document progress on 
    uniform reporting. The BIA Office of Law Enforcement Services will 
    conduct periodic operational evaluations for oversight.
    
    
    Sec. 10.7  Where do I find help or receive technical assistance in 
    complying with the policies and standards?
    
        The BIA has a trained Detention Specialist on the staff of the 
    Office of Law Enforcement Services, Albuquerque, New Mexico, who is 
    available to conduct evaluations and provide technical assistance or 
    guidance in all facets of Indian country detention programs.
    
    
    Sec. 10.8  What minimum records must be kept and reports made at each 
    detention, Inmate Handbook, or holding facility in Indian country?
    
        The Director, Office of Law Enforcement Services, BIA, will develop 
    all necessary requirements for maintaining records, reporting data, and 
    archiving information. These requirements will be published in 69 BIAM, 
    ``Indian Country Detention Facilities and Programs.''
    
    
    Sec. 10.9  If a person is detained or incarcerated in an Indian country 
    detention, Inmate Handbook, or holding facility, how would they know 
    what their rights, privileges, safety, protection and expected behavior 
    would be?
    
        When an individual is incarcerated in an Indian country detention, 
    Inmate Handbook, or holding facility, he/she will be given, or in some 
    cases notified of the availability of, an Inmate
    
    [[Page 34375]]
    
    Handbook. This book of guidelines describes in detail the inmate's 
    rights, privileges, protection and safety, cleanliness and sanitation, 
    and general health and nutritional standards. The Inmate Handbook 
    describes the emergency evacuation procedures, medical, counseling, 
    rehabilitation services, visitation procedures, and other appropriate 
    information. The Inmate Handbook is published by the Director, Office 
    of Law Enforcement Services and maintained by the detention facility 
    administrator at each facility location.
    
    
    Sec. 10.10  What happens if I believe my civil rights have been 
    violated while incarcerated in an Indian country detention or holding 
    facility?
    
        All allegations of civil rights violations must be reported 
    immediately to the Internal Affairs Branch of the Office of Law 
    Enforcement Services. This office will ensure that such allegations are 
    immediately reported to the Civil Rights Division of the U.S. 
    Department of Justice through established procedures. The BIA Internal 
    Affairs Branch may also investigate alleged violations and make 
    recommendations for additional action as necessary. Detailed 
    instructions on the procedure to report violations can be found in the 
    Inmate Handbook.
    
    
    Sec. 10.11  How would someone detained or incarcerated, or their 
    representative, get the BIA policies and standards?
    
        At each detention, Inmate Handbook, or holding facility located in 
    a tribal jurisdiction where federal funds are used for operations or 
    maintenance programs, the BIA's policies, standards, and procedures 
    will be made available upon request. The Inmate Handbook will be made 
    available to all persons at the time they are incarcerated or detained 
    in a facility. There may be times when this may be delayed due to the 
    physical or mental condition of the person at time of incarceration. In 
    these cases, the Inmate Handbook will be made available when the person 
    is deemed receptive and cognizant by the detention officer in charge. 
    All policies, standards, procedures, and guidelines are available at 
    each facility to the public or by writing to the Director, Office of 
    Law Enforcement Services.
    
        Dated: May 28, 1996.
    Ada E. Deer,
    Assistant Secretary--Indian Affairs.
    [FR Doc. 96-16042 Filed 7-1-96; 8:45 am]
    BILLING CODE 4310-02-P
    
    
    

Document Information

Effective Date:
8/1/1996
Published:
07/02/1996
Department:
Indian Affairs Bureau
Entry Type:
Rule
Action:
Final rule.
Document Number:
96-16042
Dates:
These regulations take effect on August 1, 1996.
Pages:
34371-34375 (5 pages)
RINs:
1076-AD77
PDF File:
96-16042.pdf
CFR: (19)
25 CFR 10.1
25 CFR 10.2
25 CFR 10.3
25 CFR 10.4
25 CFR 10.5
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