beyond budget allocation— sources of funding and services

U.S. Department of Justice

National Institute of Corrections

Beyond Budget Allocation—Sources of Funding and Services

U.S. Department of JusticeNational Institute of Corrections

320 First Street N.W.Washington, DC 20534

Morris L. Thigpen Director

Larry SolomonDeputy Director

Virginia A. HutchinsonChief, Jails Division

David PachollProject Manager

National Institute of CorrectionsWorld Wide Web Site

http://www.nicic.org

Beyond Budget Allocation—Sources of Funding and ServicesMark D. MartinSeptember 2002

NIC Accession Number 017627

This document was prepared under cooperative agreement number 01J09GIQ8from the National Institute of Corrections,U.S. Department of Justice. Points of viewor opinions stated in this document are thoseof the author and do not necessarily reflectthe official position or policies of the U.S.Department of Justice.

Foreword 3iii

Foreword Beyond Budget Allocation—Sources of Funding and Services is thethird in a series of three guides developed through the NationalInstitute of Corrections (NIC) to enhance the skills, knowledge,and capabilities of jail administrators in jail budgeting and re-source management. The set includes separate guides address-ing budget development, budget management, and resourcecoordination. Jail administrators and other involved officials areencouraged to read and use the information in all three guidesto improve their jail’s budget process.

Jail administrators often cite the lack of adequate resources as amajor concern in safe and effective jail operation. These guidesshould help jail officials formulate more effective budget re-quests and improve their ability to manage resources allocatedto the jail. Recognizing that administrators have varying levelsof involvement in their jail’s budget process, these guides havebeen written for the widest possible audience. They are suffi-ciently detailed to help individuals with a strong background inbudgeting and resource management, yet easily understood bythose with little prior exposure to the budget process.

We hope these guides, available through the NIC InformationCenter at www.nicic.org, will benefit all readers, regardless ofcurrent skill and knowledge level, who wish to improve their jailbudget and resource management practices.

Morris L. ThigpenDirectorNational Institute of Corrections

Preface 3v

PrefaceThe resource needs of jails have increased dramatically inrecent years, primarily as a result of jail population growth; sig-nificant increases in mental health, substance abuse, and relatedproblems among the inmate population; and mandates forimprovements to facilities, operations, and services. Unfortu-nately, funding levels for many jails have not kept pace withgrowing resource demands.

As one of the core functions of local government, the jail obtainsa substantial portion of its financial resources through the tax-supported budget authorized by the funding authority. Despitethe pressures jail administrators encounter in addressing theirincreased resource needs, jail funding remains a low priority inmany jurisdictions because the public is usually unaware of thejail’s needs and places little pressure on governing authorities toincrease funding.

Jail administrators are challenged to operate safe, secure, andconstitutionally adequate jails in the face of increased demandsand the public’s lack of awareness of jail resource needs. Theymust look beyond the traditional budget process for alternativesources of funding. In meeting this challenge, they learn to beproactive in identifying needs, setting priorities, and aggressive-ly seeking ways to meet their goals. They learn to enhance jailresources by generating revenue, cooperating with other publicand private agencies, and securing donations of labor and goodsfrom the community. The effective jail administrator under-stands why it is important to build public awareness of jailresource needs and to establish partnerships with other localagencies that share common interests.

This guide describes strategies for identifying, securing, andcoordinating jail resources from multiple sources, both internal-ly and externally, that extend beyond the traditional fundingsupport received through the local tax-funded budget. Each jailhas unique needs, and resource availability varies from commu-nity to community. Although some resources described in thisguide will not be available to or appropriate for all jails, theideas presented should be of interest to all jail officials whomust consider nontraditional approaches to meet growingresource needs.

Acknowledgments 3vii

AcknowledgmentsBeyond Budget Allocation—Sources of Funding and Services waswritten under the direction of the National Institute of Correc-tions (NIC). Special thanks to Virginia A. Hutchinson, DavidPacholl, and Fran Zandi of the NIC Jails Division, who patientlyprovided assistance throughout the development of this guide.Thank you to Mary Stofer, who edited and formatted an earlyversion. Thanks to Cheryl Gallant, Kent Griffith, and Julie Chaf-fee, all current or former jail administrators, who revieweddrafts to ensure that practical and useful information was in-cluded for the intended audience. Also, I wish to thank KarenSwetlow of Aspen Systems Corporation, who edited the final ver-sion of this guide and coordinated its production.

Mark D. MartinSeptember 2002

Contents 3ix

ContentsForeword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iii

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .v

Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .vii

Jail Resource Types and Potential Sources . . . . . . . . . . . . . .1

Generating Revenue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1

Using the Services of Other Agencies . . . . . . . . . . . . . . . . . . . .7

Soliciting Donations From the Community . . . . . . . . . . . . . . . .8

Summary: Jail and Community Are Linked by a Common Goal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8

Strategies for Securing, Coordinating, and ManagingJail Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11

Eight-Step Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11

Sustaining the Effort . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15

Resource Management: An Ongoing Process . . . . . . . . . . . . .17

Notes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19

Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21

Jai l Resource Types and Potential Sources 31

Jai l Resource Types andPotential Sources

Resources are the supplies and supports required to sustain theday-to-day business of the jail. They include the staffing, facili-ties, equipment, contracted or volunteer assistance, supplies,and utilities needed to conduct jail operations. Jails receive abudget appropriation to pay for the majority of their resources.When budget appropriations are insufficient, however, jail offi-cials may secure needed resources by—

■■ Generating revenue from other sources.

■■ Using professional services and related support provided byother government or community agencies at little or no costto the jail.

■■ Soliciting donations of goods, time, or services from thecommunity.

Generating Revenue

Jail officials might consider generating revenue from othersources because they need or wish to—

■■ Obtain funding beyond the amount available through thetax-funded budget to meet growing service demands, imple-ment new programs, or finance equipment purchases.

32Beyond Budget Allocation

■■ Adjust or diversify the revenue mix to offset declining funding from tax-fundedsources.

■■ Demonstrate inmates’ accountability byallowing them to pay for at least a portionof their incarceration costs.

■■ Take advantage of unexpectedfunding opportunities (e.g., grants orreimbursements).

Assessing feasibility

Although a variety of alternative revenuesources may be considered, it is important toselect the most appropriate sources for eachindividual jurisdiction. The following factorsmay be assessed in determining the feasibilityof any new revenue source.1

Legal authority. Does a state statute pro-vide the legal authority required to use thissource? If the source is not specificallyauthorized or prohibited, what steps are nec-essary to secure local approval?

Fairness and equitability. Can it be deter-mined that use of this source is equitable andwill not discriminate against any inmates orexclude them from receiving services? Canjail officials ensure the new revenue will helpmaintain the quality of service?

Revenue potential and stability. Have nega-tive impacts on revenue collections (e.g.,lower use of service when fees are instituted)been considered? How will such circum-stances as economic changes affect collec-tions? Is the revenue source sustainable?

Administrative burden. Are the administra-tive costs (or additional workload) reason-able? What is the ease of collecting therevenue?

Consistency with the jail’s goals. Is this rev-enue source consistent with the jail’s missionand priorities?

Potential revenue sources

Common revenue sources available to jailsinclude—

■■ Aid and subsidies.

■■ Incentive payments and reimbursements.

■■ Boarding contracts and per diem payments.

■■ Copayments and user fees.

■■ Jail work programs.

■■ Grants.

Aid and subsidies. In most states, jails are afunction of local government. Even so, somestates provide state aid or subsidies to localgovernments to offset the cost of construc-tion and/or jail operation. This aid is general-ly predicated on the recognition that mostinmates housed in local facilities are chargedwith, or convicted of, violations of state law.Aid to jails does not merely come in the formof funding. Facilities with inmate educationprograms may be eligible for food throughthe U.S. Department of Agriculture. Otherequipment and supplies may be available atlittle or no cost through state or federal sur-plus property programs.

Incentive payments and reimbursements. Asa local social institution, the jail is sometimesable to help other jurisdictions address theirpriorities. In return, these jurisdictions mayprovide incentive payments to offset the jail’sadministrative and operational costs associat-ed with the assistance. Although incentivepayment opportunities may come and go aspriorities change, administrators who cantake advantage of such arrangements maygenerate revenue to offset budget shortfallsor to purchase goods or services for whichfunds are not otherwise available. Two cur-rent examples are payments availablethrough the Social Security Administration(SSA)2 (see “SSA Incentive Payments”) andthrough the State Criminal Alien AssistanceProgram (SCAAP) administered by the U.S.Department of Justice (DOJ) (see “State Crim-inal Alien Assistance Program”).3

Boarding contracts and per diem payments.When the jail has unused bed capacity, rev-enue may be generated through agreements


SSA Incentive Payments

Federal law authorizes the Social SecurityAdministration (SSA) to make incentivepayments to jails that report inmate infor-mation electronically to SSA. Jails canestablish agreements with SSA to provideinformation about inmates eligible forSupplemental Security Income or SocialSecurity Old Age, Survivor’s, and Disabili-ty Insurance benefits. When the informa-tion results in suspension of benefits for aninmate (incarcerated persons are not eligi-ble for these benefits under federal law),the reporting jail may receive an incentivepayment. The payments range from $200if the information is received within 90days of the individual’s confinement to$400 if the information is received within30 days of confinement.

State Criminal Alien Assistance Program

The State Criminal Alien Assistance Pro-gram (SCAAP) is administered by theBureau of Justice Assistance (BJA), a com-ponent of the Office of Justice Programswithin the U.S. Department of Justice, inconjunction with the Immigration andNaturalization Service. SCAAP providesfederal assistance to states and localitiesthat incur costs from the incarceration ofundocumented criminal aliens who havebeen accused or convicted of state orlocal offenses and incarcerated at least72 hours.

Annual SCAAP payment amounts aredetermined using actual inmate, cost, andfacility data for a specified reporting peri-od. BJA uses an electronically managedformula to determine each applicant’s rel-ative percentage of funding available forthe program. After the current year’s per-centages have been determined, the sys-tem applies the percentage values to theavailable funding for that fiscal year todetermine actual payment amounts.

with other jurisdictions to lease bedspace.Agreements may be reached on the local,state, or federal level.

Some city, county, and tribal jurisdictions findit is more economical to pay for bedspace inneighboring jails on a per diem basis than tomaintain a jail for a limited number of inmates.Other jurisdictions may be forced into con-tracting for bedspace as a result of over-crowding or a court order. Facility limitationsmay force some jurisdictions to send certaintypes of offenders (e.g., females, juveniles, orinmates with special needs) to neighboringjails that are better equipped to handle them.Jails with unused bedspace capacity may gen-erate revenue by housing prisoners from otherlocal jurisdictions on an as-needed basis orby establishing long-term contracts that guar-antee access to a certain amount of bedspace.Local jails also may be entitled to per diempayments or reimbursements from jurisdic-tions that use bedspace where no formal writ-ten agreements exist.

Local jail officials also may generate revenuefor unused bedspace by contracting with thestate department of corrections to house lessserious offenders or those nearing the end oftheir prison term. Statutes in some states also

provide for per diem payments or reimburse-ments for inmates held in jail beyond a speci-fied time (e.g., 5 to 7 days) after beingsentenced to a prison term. Also, statutoryprovisions may exist for payments to jailshousing probation or parole violators.

The Bureau of Prisons, U.S. Marshals Service(USMS), and Immigration and NaturalizationService (INS) are the three primary federalagencies responsible for detention and incar-ceration under federal law. USMS and INS, inparticular, rely heavily on contracts with stateand local detention facilities nationwide tohouse individuals in their custody (see “USMSand INS Detention Housing”).

Congress has established the Office of theDetention Trustee within DOJ to coordinatedetention policies and resource requirementsfor federal prisoners in nonfederal institu-tions or otherwise in USMS or INS custody.The detention trustee is responsible for


managing funds appropriated to DOJ fordetention functions and for establishing poli-cies related to use of detention by USMS andINS.

Copayments and user fees. At least 41 stateshave statutes that authorize assessment ofinmate fees or copayments (or “copays”) forjail services and operations.4 More jail admin-istrators are considering inmate fees to offsetincreased demand for services and fundingshortfalls.

The fees are generally charged to the inmate’saccount. In cases where inmates lack suffi-cient funds to pay the fees, some jurisdictionsmaintain a negative balance and use anyfunds subsequently deposited to pay out-standing balances. Some state statutes alsopermit the jail to establish a civil lien againstthe account that remains in place for a speci-fied period after release. If the inmate returnsto jail at a later date with funds, these fundsmay be used to satisfy the lien.

Officials must weigh the benefits of inmatefees against the additional administrativeeffort involved in tracking accounts and col-lecting fees. Fees or copays are generallycharged for one or more of the following services.

Medical services. Fees for medical servicesand prescriptions can generate a modestamount of revenue. More important, charginginmates a fee helps control medical carecosts. Many jails that charge medical feeshave experienced, on average, a 50-percentreduction in sick calls and service requests.5

Most jurisdictions charge a straight nominalfee for services initiated by the inmate. Gener-ally, no fees are charged for services initiatedby medical or facility staff or for emergencies.

Room and board. At least 16 states authorizejails to charge inmates for part or all of theactual costs of room and board. “Pay to stay”fees are popular in some jurisdictions, partlybecause they offer revenue potential butmore so because they assign some accounta-bility and responsibility to inmates. Thesefees may be perceived as controversial, how-ever, because inmate care and housing histor-ically have been public responsibilities.

Inmate services. User fees may be charged fora number of inmate services, including tele-phone usage, commissary purchases, book-ing, bonding, release escort, drug testing,detoxification, clothing, and haircuts. Tele-phone usage is the most common and sub-stantial source of revenue generated fromuser fees. In reality, these fees are most oftenpaid by the party receiving the call rather

USMS and INS Detention Housing

The U.S. Marshals Service (USMS) housesa daily average of more than 35,000detainees in federal, state, local, and pri-vate jails throughout the nation. Seventypercent of the prisoners in USMS custodyare detained in state, local, and privatefacilities. To house these presentencedprisoners, USMS contracts with approxi-mately 1,200 state and local governmentsto rent space available for federal prisoners.

Where detention space is scarce, USMSprovides select state and local govern-ments with Cooperative Agreement Pro-gram (CAP) funds to improve localfacilities and expand capacities. In return,the agency receives guaranteed space forits federal prisoners. Many local jurisdic-tions have used CAP funds and subse-quent bedspace contracts to offset aportion of construction and operationalcosts for new or expanded jails.

The Immigration and Naturalization Ser-vice (INS) is responsible for detaining per-sons charged with violating federalcriminal statutes or immigration laws whoare not otherwise released on bond or per-sonal recognizance pending disposition oftheir cases. INS operates several detentionfacilities nationwide, called service pro-cessing centers, and finances several con-tract detention facilities. INS contractswith state and local detention facilitiesto house the majority of its detainee population.


than by the inmate placing the call. Mostjails have established contracts with ser-vice providers who install reverse-charge telephones in the housing units. Based on theterms of the contract, the jail often receivesa percentage of revenue generated by theservice provider.

Many jails generate revenue from commissaryprofits. Commissary items are purchased atwholesale prices and then sold to inmates ator near retail prices. Although laws governingthe use of commissary profits vary, many jailshave the authority to place the proceeds inan inmate benefit fund, which then may beused to pay for televisions, exercise equip-ment, and other items purchased for theinmates’ benefit. Some jails charge a transac-tion fee for purchases made from the jail’scommissary to offset the administrative costsof commissary operations. In a related area,many jails generate profits from vendingmachines placed in public lobbies, staffbreakrooms, and inmate housing areas.

In some jurisdictions, booking fees arecharged to the inmate or arresting agency.When jails serve multiple municipal jurisdic-tions, booking fees charged to arresting agen-cies are a means for the municipalities tocontribute to the cost of processing inmates(many of whom are released within a shortperiod) and to discourage inappropriate useof the jail.

Program participation. Jurisdictions can chargeinmates for participation in programs offeredby the jail. Commonly, fees are charged toinmates on work release and those servingintermittent sentences (weekenders). Thesefees help offset program costs, including thecost of the inmate’s room and board. Fees areoften charged for other programs, such ashome detention, diversion, and various typesof community service programming whereoffenders are quite willing to pay the fee as analternative to jail. Less frequently, jails chargefees for participation in in-house treatment,education, or work programs. Officials shouldcarefully weigh the benefits of program partici-pation fees against possible decreases in pro-gram participation.

Jail work programs. The use of inmate laboris a common practice in jails. Productiveinmates are more manageable, and the workthey perform may reduce staffing needs andcosts. Depending on how they are used, jailwork programs may be a revenue source ormay simply reduce the costs of jail operation.Work programs are generally defined as pro-grams that “use inmate labor to create aproduct or provide a service that has value toa public or private client and for which theinmate receives compensation.”6 The compen-sation may be pay, privileges, or other bene-fits derived by the inmate for the work. Mostjails operate inmate work programs in oneform or another. Jail work programs generallyfall within one of the following categories.7

Community projects. Public service work iswork provided to government or nonprofitagencies by inmates who would otherwise bein jail. Offenders are able to reduce or avoidjail time by performing public service work inthe community. Although the jail may notdirectly benefit from additional resources as aresult of inmate participation in communityprojects, there are indirect benefits. Commu-nity service work preserves bedspace formore serious offenders. There is also a signifi-cant “good will” benefit when work saves tax-payer funds or adds value to the community.

Public works. Public works are provided togovernment and nonprofit agencies by in-mates who are confined in the jail. Usuallywork crews leave the jail during the day towork on projects and return at night. Com-pensation is generally a reduced sentence orextra privileges. Benefits to the jail are similarto those derived from community work projects.

Institutional support services. These services,performed by lower custody inmates insidethe facility or on the grounds, reduce the costof jail operations. Institutional support servic-es include work in food service, sanitationand building maintenance, grounds mainte-nance, laundry, and other areas. As with public works, compensation is generally areduced sentence or extra privileges.


“Traditional” jail industry. Traditional jailindustry involves the production of goods orprovision of services for use by the jail orother government agencies. Related tasksinclude farming, livestock production, con-struction, maintenance, landscaping, conser-vation work, and recycling. Inmates generallyreceive a nominal wage from the incomederived from sale of the goods or services.The jail also may receive proceeds from thesale of products or services.

Private-sector jail industry. This work pro-gram typically involves a partnership with aprivate-sector business that employs inmatesto produce goods or provide services for pri-vate customers. Inmates are generally paidthe prevailing wage for the work, a portion ofwhich comes back to the jail to offset incar-ceration costs or to supplement victim assis-tance funds. The industry also may generaterevenue that is shared between the jurisdic-tion and the private vendor.

Work programs may yield benefits beyondgenerating revenue or reducing costs. Theyreduce idleness in the jail while teachinginmates valuable work habits and skills thatthey take into the workforce on release.

Creating jail industry programs does require avariety of resources, including space, equip-ment and furnishings, tools, work clothing,protective gear, staff to coordinate and super-vise inmate workers, and expertise. Fortu-nately, officials can employ many low-costor no-cost approaches to secure neededresources for jail industry or work programsthat do not depend on funding from the jailbudget.8

Grants. Grants are available through a varietyof local, state, federal, and private sources.Although grants are not typically intended toprovide sustained funding streams, they maybe a viable resource to meet a specific needor to help establish a new program in the jail.Most federal grant funding comes through for-mula (or block) programs, discretionary pro-grams, or targeted programs:

■■ Formula or block grants are typicallyawarded to states based on a predeter-mined formula with a requirement thatthe states pass on the funds to local agen-cies in the form of subgrants. Jails mustapply for these funds through the stateagency designated to administer the program.

■■ Discretionary grant funds are typicallyawarded directly by the federal agency tolocal applicants on a competitive basis.

■■ Targeted grant funds are earmarked byCongress for specific purposes for a limit-ed pool of eligible recipients.

DOJ, through its various offices and bureaus,is a primary source of federal funding forcriminal justice. Other federal agencies, suchas the U.S. Departments of Agriculture, Educa-tion, Health and Human Services, Housingand Urban Development, and Labor are alsopotential grant sources.

In addition to administering passthroughfunding from the federal government, statesmay appropriate funds to be awarded asgrants to local jurisdictions for specific pur-poses. For example, lottery proceeds in onestate are reserved for grants benefiting educa-tion and the environment.

Most private funding for grants is providedthrough foundations. Foundations are grant-making organizations usually established tosupport social, educational, religious, orother charitable activities. A foundationmakes grant awards from an endowment typi-cally provided by individual private or corpo-rate sources. Foundations may have a narrowfocus in the types of grants they will considerand may limit giving to certain geographicareas. They tend to be more flexible thanpublic funding in responding to the uniqueneeds of the applicant. In addition, theirapplication processes are generally less com-plex and their grant administration is lessbureaucratic.

Information on available federal grant fundingcan be obtained through the National CriminalJustice Reference Service (NCJRS), a federally


sponsored information clearinghouse. Theclearinghouse can be accessed on the Inter-net at www.ncjrs.org. NCJRS publishes JUSTIN-FO, a biweekly electronic newsletter thathighlights resources available through DOJ,including funding announcements. The Part-nership Against Violence Network (PAVNET)is another online clearinghouse that offersinformation about both federal and privatefunding sources for criminal justice. PAVNETalso identifies publications that provideadditional information about funding sourc-es. The clearinghouse can be accessed atwww.pavnet.org.

Most states have Web sites that offer contactinformation for key agencies that may providegrant funding for jails. As an alternative, jailofficials may seek information about statefunding sources through their state senatoror legislative representative.

The following details about grants should beconsidered:

■■ The purposes of grants are set by thefunding source.

■■ Defined application processes and dead-lines usually have been established.

■■ Usually there are prescribed formats forgrant proposals.

■■ Prescribed program and financial report-ing requirements must be addressed afterfunding has been awarded.

■■ Matching or cost-sharing requirementsoften have been established.

■■ Many grants are competitive; establishedapplicants tend to have an advantage.

■■ Grants are time limited. If they are renew-able for subsequent years, the portion ofthe project supported by the fundingsource may decrease.

■■ Changing political trends may affect thesecurity of programs and continued avail-ability of funds.

■■ An evaluation component may berequired.

Benefits and risks of generating revenuefor the jail

Generating revenue from nontax sourcesoffers many benefits. The revenue can offsetbudget shortfalls or fund new or expandedservices. It can demonstrate offender account-ability and engage new community partnerswho have a stake in successful jail operation.

Some potential risks are related to generatingnontax revenue for the jail, however. In mostcases, revenue generated by the jail is credit-ed to the local jurisdiction’s general fund.Less often, revenue from fees may be crediteddirectly to the jail or to an inmate welfarefund. In generating revenue from nontaxsources, officials run the risk of budget reduc-tions from traditional tax revenue sources.When revenues go back to the general fund,there should be agreement between jail offi-cials and the governing board regarding thereinvestment of these revenues back into thejail. Revenues from these sources shouldenhance the jail’s budget and should not takethe place of general fund support that other-wise would have been provided.

Alternative revenue sources may be a lessstable funding stream, subject to forcesbeyond the control of the jail or the govern-ing authority. These risks can be managedthrough good working relationships with thefunding authority, careful decisionmakingregarding the use of funding from alternativerevenue sources, and ongoing monitoring.

Using the Services of Other Agencies

Many public and private agencies in the com-munity and at the state or federal level pro-vide professional services needed by the jail.Many of their services can be secured atno cost or reduced cost to the jail. If these agencies’ budgets are funded by the samejurisdiction that funds the jail’s budget, thegoverning authority may find it is more effi-cient and economical to include jail services


within the scope of their responsibilities.Agencies receiving grant funds for services tospecial-needs populations may satisfy theserequirements by serving jail inmates. Stillother agencies, particularly religious or othernonprofit organizations, may be mandated bytheir charters to serve special populations,such as incarcerated inmates. Examples ofresources available through public and pri-vate agencies are listed in exhibit 1.

Using service resources from other publicor private agencies may have several advantages:

■■ The services may be available at no costto the jail.

■■ It is often less costly to purchase servicesonly as needed than it is to maintain in-house capacity.

■■ Services may be better than what the jailcan provide.

■■ Use of such services enhances publicawareness of the jail’s issues and re-source needs.

■■ Use of such services engages new part-ners and creates natural links with thecommunity where inmates may seek services after release.

Soliciting Donations From the Community

Many segments of the community are willingto donate goods, time, or services to the jail.Potential donors may include civic groups,religious groups, businesses, trade associa-tions, professional groups, and individual citi-zens. Examples of the types of resourcesdonated by community groups are listed inexhibit 2.

Most jails use volunteers in some capacity.Volunteer services in jails across the countryrange from clergy visits once or twice a weekto elaborate volunteer service programs thatinvolve volunteers in many facets of theorganization. Jails manage security and priva-cy concerns through careful screening, selec-tion, and training processes and throughongoing supervision of volunteer work. Somestaffing implications are associated with theuse of volunteers; staff time is needed tocoordinate, schedule, and supervise volun-teer services.

Most jails also receive unsolicited donationsfrom time to time. Some jails actively solicitdonations by periodically publishing a “needslist” and contacting potential donors. Evenwhen the jail’s specific needs are not metthrough donations, increased public aware-ness that results from publicizing the jail’sneeds can help strengthen support for the jailat budget time.

Summary: Jail and Community AreLinked by a Common Goal

Jails must have the resources necessary tocarry out their essential functions and activi-ties. When funding is not sufficient to provideneeded resources, jail officials must find waysto generate additional revenue or secure theresources in another manner. The communityis a treasure trove of resources. Other govern-ment agencies, businesses, nonprofit groups,civic groups, religious organizations, and individuals share with the jail the commongoal of a safe, healthy community. This com-mon goal provides the basis for establishinglinks with the community to access and shareresources.


Exhibit 1. Professional Services Provided by Agencies and Organizations

Agency or Organization Example of Resources

LocalColleges Interns, staff training, inmate exercise and recreation

programming, grant-writing assistance, document development

Community mental health department Mental health counseling, crisis response, staff training

Computer services department Information technology support

County attorneys, public defenders Legal assistance, policy and procedure review

County budget office Budget development and management assistance

County building and grounds Jail maintenance and repairs, safety inspections, sanita-tion and pest control, supervision of inmate work crews

County extension office Menu planning and review, technical assistance to food service operations, life-skills programs

County personnel office Staff recruitment, selection, and evaluation; staff devel-opment; technical assistance on personnel issues

County risk manager Workplace safety audits, staff training, technical assistance

County roads department Public works projects for inmates

Fire department Fire safety inspections, staff training, technical assist-ance, emergency response services

Law enforcement Emergency response, staff training, assistance in improving security, staffing assistance

Libraries Library services, reference services, educational programs

Local community hospitals Health care services, staff training, emergency services

Local health department Health care services, sanitation inspections, staff training,pre-employment physicals, inmate health education, environmental health audits

Paramedics/EMS Emergency response services, staff training

Parks and recreation department Public works projects for inmates

Schools Teachers, educational materials, equipment, tutoring

Social services Counseling, life skills, basic needs for inmates

Vocational rehabilitation Staffing (placement of clients to work in the jail)

Workforce development Staffing (placement of clients to work in the jail), job readiness training, placement assistance

StateOther state agencies (e.g., fire marshal, labor Technical assistance, training, inspections, department, health department) information

State jail inspection agencies Technical assistance, training, inspections

FederalFederal agencies (e.g., National Institute of Correc- Technical assistance, training, funding, clearinghousetions, Office of Justice Programs, Occupational information Safety and Health Administration, Centers for Disease Control and Prevention)

Federal and state surplus property administrators Equipment, supplies, vehicles, real property

Other organizationsProfessional associations (e.g., American Correctional Training, informationAssociation, American Jail Association, National Fire Protection Association)


Exhibit 2. Resources Provided by Individuals or Groups

Individuals or Groups Example of Donated Resources

Business and civic groups (e.g., Chamber of Advocacy and public awareness, donations, researchCommerce, League of Women Voters)

Businesses Donations of equipment and supplies, expertise

Charities (e.g., Goodwill Industries, Salvation Army) Donation of clothing and goods for inmates; rehabilita-tive services

Employers Jobs for inmates (on work release and in jail industry)

Individual citizens Volunteer time and expertise, donations

Local chapters of health services organizations (e.g., Donations of health education materials, volunteerAmerican Cancer Society, American Lung Association, services (inmate health education programming,American Medical Association, American Diabetes staff training)Association, American Red Cross)

Local foundations Grants

Media Public service announcements, public awareness

Professional associations Donations, voluntary technical aid

Religious groups (e.g., churches, prison fellowships) Volunteer services (e.g., religious services, counseling, visitation, tutoring, assistance to inmates’ families)

Retiree groups (e.g., Retired Senior Volunteer Volunteer services (e.g., administrative support to jail,Program) tutoring, and other services to inmates)

Self-help groups (e.g., Alcoholics Anonymous, Volunteer services (e.g., counseling, support groups)Narcotics Anonymous, Alateen)

Service clubs (e.g., Elks, Rotary, Kiwanis) Donations (e.g., equipment, inmate needs), public awareness

Trade associations Donations of equipment, voluntary technical aid

Strategies for Securing,Coordinat ing, and ManagingJai l Resources

The key to effective use of alternative resources is matching apriority need with the appropriate resource and conductingongoing coordination and regular evaluation.

Eight-Step Strategy

An effective strategy for securing, coordinating, and managingalternative jail resources includes the following steps:

■■ Identify needs.

■■ Prioritize needs.

■■ Develop strategies to address needs.

■■ Identify potential resource providers.

■■ Determine resource availability.

■■ Match the resources to the needs.

■■ Integrate new resources into jail operations.

■■ Supervise, monitor, and evaluate.

Strategies for Securing, Coordinat ing, and Managing Jai l Resources 311


Step 1: Identify needs

The jail should systematically and regularlyexamine its operations, staffing, and facilityconditions to identify priority needs. Thiseffort should be allied with the assessmentphase of the budget process. Doing so willenable jail officials to link the resource man-agement process with the budget planningeffort. It will also provide an overall picture ofthe jail’s resource needs. This will allow thefunding authority to make informed decisionsregarding the jail’s budget and the budgets ofother agencies within the jurisdiction thatmay provide services to the jail. Jail officialsmust then consider other resources to fill thegap between what is needed and what is pro-vided for through the budget appropriation.

An assessment checklist provides a simplemeans to review the adequacy of major jailservices and activities and to focus attentionon areas in which additional resources orchanges are needed (see exhibit 3). The fol-lowing questions should be considered indetermining the adequacy of current activi-ties and services:

■■ Are all federal, state, or court-mandatedrequirements being met?

■■ Is there significant liability exposure?

■■ Is there a health or safety issue?

■■ How do current efforts compare with bestpractice?

■■ Are there community concerns regardingthe issue?

■■ Does the activity or service comply withthe jail’s policies and procedures?

■■ To what extent are current efforts con-tributing to the jail’s mission and goals?

■■ Does available capacity meet currentdemand?

■■ What are the trends in terms of futuredemand?

Step 2: Prioritize needs

Once identified, needs unmet through thebudget process should be prioritized. Oneway to distinguish between levels of priorityis to group needs into “must do” items and

“should do” items.9 Must-do items are needsthat are mandated or have serious implica-tions for the jail and/or the public if left unat-tended. In most cases, issues affecting healthand safety, quality of life, or security fall intothe must-do category. Should-do items gener-ally include needs that, if addressed, shouldresult in reduced liability exposure, increasedeffectiveness, or improved operations or thatwill address community concerns.

Priority consideration also may be given toareas that can be quickly or easily addressedor to those deemed critical by the jail’s exter-nal stakeholders—even if they do not fall intothe must-do level of priority.

Step 3: Develop strategies to address needs

After needs unmet through the budgetprocess have been identified and prioritized,it is necessary to determine the most appro-priate and available means to secure theresources required to meet those needs.Strategies include—

■■ Securing additional revenue to purchasenecessary resources.

■■ Securing assistance from other agenciesto provide resources or deliver services.

■■ Securing resources from the communitythrough donations of time, goods, or services.

The most appropriate strategy may dependon—

■■ Whether the need is a one-time or time-limited need or an ongoing need.

■■ The funding authority’s support of theintended use of any jail revenues.

■■ The willingness of other agencies to co-operate and/or share resources.

■■ The cost of securing and managing theresource versus the benefits derivedfrom it.

■■ The willingness of jail officials to open upthe jail to outside service providers andvolunteers.

■■ Community interest in the jail and aware-ness of its needs.


Exhibit 3. Sample Assessment Checklist

Rate the current adequacy of the following services and activities in your jail:

Jail Service or Activity Exceptional Adequate Fair Inadequate

Medical services

Dental services

Mental health services

Indoor exercise

Outdoor exercise

Passive recreational activities

General library services

Law library services

Education/GED programs

Job-readiness training

Life-skills training

Religious services/counseling

Drug and alcohol services

Classification process

Telephone services

Visitation

Commissary

Hair care and grooming

Inmate work programs

Work release

Education release

Pretrial release services

Food service

Laundry services

Sanitation/housekeeping

Maintenance

Fire and workplace safety

Clerical support services

Records management

Fiscal management

Staff training/development

Information systems

Emergency response services

Interpreter services

Other:

Other:

Other:

Other:

Source: Miller, Rod, and Ralph Nichols. Small Jail Resource Manual. Washington, DC: National Institute of Correc-tions, 1981. Available from the National Institute of Corrections Information Center Library.


Strategies also may include actions thatreduce demand for resources or costs.

Step 4: Identify potential resource providers

The next step is to develop an inventory ofpotential providers of both financial and nonfinancial resources. One approach is simply to brainstorm a list of professionals,agencies, and organizations within the localgovernment and community that may providegoods, services, or expertise to the jail. Thelist should include a description of the typesof resources each entity may offer.

Regarding revenue enhancement, jail officialswill need to research the availability of grants,incentive payments, reimbursements, or otherfunding opportunities. Officials also may lookinto instituting inmate user fees or copays toenhance revenue and/or discourage the inap-propriate use of services. If the jail has excessresources in one area (e.g., bedspace), officialsmay consider opportunities to sell or rent theexcess capacity to other jurisdictions. Rev-enue generated from these efforts then may bereinvested in the jail to address other needs.

If the jail is not currently using volunteers, avolunteer services program should be consid-ered. Volunteers may be capable of providinga variety of services, thus freeing jail staff toperform other duties.

Jail officials also should look internally forresources. Making inmates more productivethrough work programs could benefit the jaildirectly or could provide an asset that maybe bartered with other agencies for neededservices.

Officials should consider all options whenidentifying potential sources or providers.They can begin by listing organizations andindividuals currently providing resources tothe jail and expand from there. The ideas ofstaff, colleagues in neighboring jurisdictions,and other stakeholders should be solicited.

Step 5: Determine resource availability

The inventory of potential jail resourceproviders can be compared with the list ofresource needs to develop a contact list ofindividuals, agencies, or organizations thatmay be able to provide goods, services, orexpertise.

Officials should furnish thorough and accu-rate information to potential resourceproviders about the jail, its needs, and howtheir contribution would benefit the facility,inmates, and community. Jail officials shouldask potential resource providers to shareinformation about what they have to offerand the process for obtaining their assistance.

Activities at this stage of determining theavailability of revenue-related resources maydepend on the type of revenue being pursued.

Grants. After identifying potential grant funding, it is important to obtain additionalinformation, such as eligibility, due dates,matching requirements, submission require-ments, and funding priorities.

Payments, subsidies, and reimbursements.After identifying potential payment sources,it is important to obtain information on eligi-bility, due dates, administrative reportingrequirements, and application requirements.

Boarding contracts. If this option is beingconsidered, it is important to survey local,state, and federal agencies to determine thelevel of interest and need for bedspace.

Copayments/user fees. If deciding to imple-ment inmate fees or copays, it is important toobtain additional information regarding legalauthority, administrative requirements fortracking and managing accounts, and esti-mates of potential revenue.

Step 6: Match the resources to the needs

An effective jail budget request is based ongoals, objectives, and performance plans (see


“Linking Use of Resources to the Jail’s Mis-sion, Goals, and Objectives”). Objectives arederived from the jail’s mission and goals andfrom the priority issues identified for the fis-cal period. Work plans designed to meetthese objectives are developed for eachmajor jail activity. The work plans indicatethe following:10

■■ How much service is needed.

■■ Required resources (e.g., personnel,equipment, materials).

■■ Special conditions affecting the levelof resources (e.g., standards, legalrequirements).

■■ Current methods of performing the activity.

■■ Expected results or accomplishments.

■■ Possible alternatives to current methodsof performing the activity, along withtheir cost and service implications.

Resources are put to the most effective usewhen they are matched to needs identifiedin work plans developed during the budgetplanning process.

Step 7: Integrate new resources into jailoperations

Preparations for use of new resources willvary depending on the type of resource.

Materials or equipment. Planning is focusedon such issues as acquisition, storage, inven-tory control, and distribution.

Volunteers or personnel from outside agencies. Planning is focused on selection, recruitment, training, supervision, and docu-mentation. Incorporating volunteers or otheroutside personnel will likely require new poli-cies and procedures and training materialsgeared specifically to them. Also, it is impor-tant to pay attention to any staff concerns oranxieties about “outsiders” participating inthe jail’s operation.

Financial resources. Managing new revenuesources may require new work processes tomanage and track funds from outside the gen-eral fund budget.

Step 8: Supervise, monitor, and evaluate

After new resources are in place, officialsmust carefully supervise programs and serv-ices to make certain they are effective. If theuse of resources is linked to the budget pro-cess, there should be a means of monitoringperformance and evaluating results. Informa-tion from ongoing monitoring and evaluationcan help determine changes needed in pro-grams and services and can justify requestsfor acquisition of future resources.

Sustaining the Effort

Resource management requires a sustainedand coordinated effort to ensure success.Responsibility should be assigned to a staffmember who can commit regular, ongoing

Linking Use of Resources to the Jail’sMission, Goals, and Objectives

The jail’s mission and goals focus on out-comes (that is, the results officials hope toachieve). The mission and goals shape thefunctions and activities of the jail andhighlight what is important. For example,if one of the jail’s goals is “to provideinmates opportunities for positive changethrough academic, work, and counselingprograms,” this becomes a priority. Thus,the budget planning process might includeobjectives for the fiscal period that con-tribute toward that goal. In this example,an objective for a fiscal period might be“to improve reading and writing skills ofinmates by establishing a literacy programin the jail.” A specific work plan can thenbe developed around that objective. Iden-tification of resources needed to meet theobjective is one element of the work plan.When funding is not provided, the jailadministrator may choose to look to thecommunity for resources.


time to the effort. Resource managementresponsibilities include—

■■ Identifying and developing new resources.

■■ Scheduling and matching availableresources to jail activities and initiatives.

■■ Orienting new resource providers to thejail.

■■ Enhancing public awareness of the jail’sissues and resource needs.

Many jails across the country have estab-lished jail advisory committees or criminaljustice coordinating committees to engage

local officials and citizens in the process ofmaking needed jail and criminal justice sys-tem improvements. Such committees areeffective ways to make key stakeholdersaware of the jail’s role in the local criminaljustice system and its unique characteris-tics.11 Jail officials can use committees tomake their resource needs known. Represen-tatives involved with these groups are oftenin a position to influence decisions regardinguse of the jail and/or to advocate additionalresources for the jail.

Resource Management:An Ongoing Process

Resource needs and issues are unique to each jail, and resourcesvary from community to community. Most jail resources comefrom the jail’s budget appropriation. When unexpected needsarise, or when the budget fails to provide sufficient funding,officials must seek resources from alternative sources. Creativestrategies for identifying, securing, and coordinating resourcesfrom a variety of sources will help meet the jail’s priority needs.

Alternative options generally include generating revenue fromother sources; using professional services and support fromother government or private agencies that are funded out oftheir budgets; and soliciting donations of goods, time, or servic-es from the community. Most jails seek and use resources fromeach of these areas. However, many resources remain untappedor unused. The key to effective use of alternative resources ismatching a priority need with the appropriate resource andconducting ongoing coordination and regular evaluation.

Resource management is an ongoing process. Jails can benefitfrom the assignment of a resource management coordinator tosupervise and monitor existing resources and to work with thecommunity in developing new ones. Establishment of a jail advi-sory or criminal justice coordinating committee is another way

Resource Management: An Ongoing Process 317


to secure and manage alternative resources.Broader awareness of the jail’s needs alsomight increase stakeholders’ willingness toprovide or secure needed resources.

The need for expanded resources is not likelyto diminish, and jail officials cannot realisti-cally expect tax-funded budgets to catch upwith this need. An effective resource manage-ment process that includes identifying and

using alternative resources is an increasinglyimportant component of the jail’s operationalplan. The jail will benefit from the improvedservices made possible by alternative re-sources. The link with resource providers andincreased community awareness about thejail are benefits that may be of even greatersignificance.

Notes 319

Notes1. Culotta, Jim, Revenue Sources for County Governments,

National Association of Counties, July 1998. Research Briefavailable from the National Association of Counties atwww.naco.org/pubs/research/briefs/rev_src.cfm.

2. Additional information about this program is availablethrough local Social Security Administration offices or fromthe Social Security Administration at www.ssa.gov.

3. Additional information about this program is available fromthe Bureau of Justice Department Web site at www.ojp.usdoj.gov/BJA.

4. See National Institute of Corrections, Fees Paid by JailInmates: Findings From the Nation’s Largest Jails, Washing-ton, DC: National Institute of Corrections, February 1997,NIC accession number 013599, p. 2.

5. Skidmore, Cindy, Position Paper: Inmate Co-Payment forHealth Care Services, Georgia Department of Corrections,July 1995. Available from the National Institute of Correc-tions Information Center Library.


6. Miller, Rod, George E. Sexton, and Victor J. Jacobsen, Mak-ing Jails Productive, Research in Brief, Washington, DC: U.S.Department of Justice, National Institute of Justice, Octo-ber 1991, NCJ 132396, p. 2.

7. Miller, Rod, George E. Sexton, and Victor J. Jacobsen,Developing a Jail Industry: A Workbook, fourth draft, Wash-ington, DC: U.S. Department of Justice, National Institute ofJustice, October 1990. Available from the National Instituteof Corrections Information Center Library.

8. For more information, see “Finding Resources for Your JailWork and Industry Programs.” Presented at the AmericanJail Association Annual Training Conference, May 1997.Available from the National Institute of Corrections Infor-mation Center Library.

9. Albert, Karen, Prioritizing Resource Needs, training materi-als, NIC Jail Resource Management Training Program,2001.

10. Powdar, Juliet Carol, The Operating Budget: A Guide forSmaller Governments, Chicago: Government Finance Offi-cers Association, 1996, p. 63.

11. For more information, see Cushman, Robert C., Guidelinesfor Developing a Criminal Justice Coordinating Committee,Washington, DC: National Institute of Corrections, 2002,NIC accession number 017232.

Bibliography 321

BibliographyAlbert, Karen. Prioritizing Resource Needs. Training materials.NIC Jail Resource Management Training Program, 2001.

American Correctional Association. “Identifying Funding Sourcesand Writing Winning Grant Proposals: A Self-Help Packet.” Infor-mational packet distributed at 1995 National Correctional Educa-tion Association Conference.

Cushman, Robert C. Guidelines for Developing a Criminal JusticeCoordinating Committee. Washington, DC: National Institute ofCorrections, 2002, NIC accession number 017232.

Miller, Rod, George E. Sexton, and Victor J. Jacobsen. MakingJails Productive. Research in Brief. Washington, DC: U.S. Depart-ment of Justice, National Institute of Justice, NCJ 132396, Octo-ber 1991.

———. Developing a Jail Industry: A Workbook. Fourth draft.Washington, DC: U.S. Department of Justice, National Institute ofJustice, 1990. Available from the National Institute of CorrectionsInformation Center Library.

Miller, Rod, and Ralph Nichols. Small Jail Resource Manual.Washington, DC: National Institute of Corrections, 1981. Avail-able from the National Institute of Corrections Information Cen-ter Library.


National Institute of Corrections. Fees Paid by Jail Inmates:Findings From the Nation’s Largest Jails. Washington, DC: Na-tional Institute of Corrections, February 1997, NIC accessionnumber 013599.

Pogrebin, Mark. “Scarce Resources and Jail Management.” Inter-national Journal of Offender Therapy and Comparative Criminol-ogy 26 (3) (1982): 263–273.

Powdar, Juliet Carol. The Operating Budget: A Guide for SmallerGovernments. Chicago: Government Finance Officers Associa-tion, 1996.

Rich, Peter G. “Management Techniques in an Era of ScarceResources.” Paper presented at the Correctional ManagementConference, University of LaVerne, May 1983.

Skidmore, Cindy. Position Paper: Inmate Co-Payment for HealthCare Services. Georgia Department of Corrections, July 1995.Available from the National Institute of Corrections InformationCenter Library.

U.S. Marshals Service. Prisoner Services Fact Sheet. U.S. Mar-shals Service publication number 26. Washington, DC: U.S. Gov-ernment Printing Office, 1997. Available from the U.S. MarshalsService at www.usdoj.gov/marshals/readingroom/prisoner.pdf.

U.S. Department of Justice

National Institute of Corrections

Washington, DC 20534

beyond budget allocation— sources of funding and services

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