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A Practical Guide to Closing Prisons: Lessons Learned from Six States

Helen Braithwaite, Gary Maynard, George M. Camp, and Lois M. Davis

March 2017

A Practical Guide to Closing Prisons i

ACKNOWLEDGMENTS

In 2011, the RAND Corporation, in collaboration with a team of experts from the Association of State Correctional Administrators (ASCA), the Center for Evidence-Based Corrections at the University of California, Irvine, and faculty from Purdue and Rutgers Universities received funding from the National Institute of Justice to study how states’ correctional systems responded to fiscal pressures. A component of this project involved site visits to six states to study prison closings and Departments of Corrections response to fiscal pressures in general. The following team members collaborated on the site visits –the lessons learned from the six states visited are presented in this document:

Dr. Lois M. Davis, Principal Investigator and Senior Policy Researcher, RAND Dr. George Camp, Co-Executive Director (Ret.), ASCA Mr. Gary Maynard, Former Associate Director ASCA Mr. Wayne Choinski, Senior Associate, ASCA Dr. Susan Turner, Professor and Director, Center for Evidence-based Corrections, University of California, Irvine Dr. Helen Braithwaite, Assoc. Director, Center for Evidence-Based Corrections, University of California, Irvine Ms. Theresa Lavery, Research Associate, Center for Evidence-Based

Corrections,

University of California, Irvine

Dr. Bert Useem, Professor and Head of the Department of Sociology, Purdue

University

We also would like to express our sincere appreciation to the six Departments of Corrections who willingly participated in this study and made available both their headquarters staff and staff from correctional facilities for interviews and focus groups that led to these critical insights and lessons learned. They were the Florida Department of Corrections, Michigan Department of Corrections, New York State Department of Corrections and Community Supervision, Pennsylvania Department of Corrections, Texas Department of Criminal Justice, and the Washington State Department of Corrections. We also wish to thank and acknowledge the following correctional facilities that participated in this study:

Florida: Florida State Prison, Union Correctional Institution, Jefferson

Correctional Institution

A Practical Guide to Closing Prisons ii

Michigan: Bellamy Creek Correctional Facility, Detroit Detention Center, Detroit

Reentry Center

Pennsylvania: SCI Benner, SCI Muncy

Texas: Marlin Transfer facility, Wallace Pack Unit, Ramsey Complex, Central

Unit, South Region Distribution Center, Terrell Unit, Jester 1 Unit

New York: Greene Correctional Facility, Washington Correctional Facility

Washington: Coyote Ridge, Washington Corrections Center for Women,

Washington State Penitentiary

A Practical Guide to Closing Prisons iii

INTRODUCTION

After decades of unprecedented correctional expenditures and prison population

growth, many states faced fiscal pressures to reduce their corrections budgets as the

United States entered a deep recession in 2008. To reduce spending, correctional

systems had a variety of options including closure of prison facilities, reductions in staff,

and curtailing services and programing in order to achieve operational efficiencies. In

addition, states could implement policies to reduce the number of prison inmates such

as “back-end” changes (e.g., reductions in sentence lengths through earned credits or

good time, changes to reduce revocations for probationers and parolees, and “earned”

or early discharge from parole for good behavior) and policies to address the “front-end”

or who is coming in to the system (e.g., diverting offenders to county- rather than state-

level institutions, as well as increasing the use of alternatives to incarceration).

The RAND Corporation in collaboration with the Association of State Correctional

Administrators (ASCA), the Center for Evidence-Based Corrections (CEBC) at the

University of California, Irvine, and Rutgers University undertook a series of case

studies to understand the strategies that states adopted to achieve operational

efficiencies. Case studies of state prisons in six states – Florida, Michigan, New York,

Pennsylvania, Texas, and Washington – were conducted to provide an in-depth

understanding of the different strategies adopted. This practical guide distills the key

lessons learned from these state correctional systems that generously agreed to share

their experiences. The guide is intended to inform correctional administrators whose

state may also be considering facility closures.

To complement the case studies, we also conducted a survey of all 50 state

departments of corrections to understand what strategies were adopted in response to

budget pressures. The results of that survey can be found at: A National Picture of

Prison Downsizing Strategies, Susan F. Turner, Lois M. Davis, Terry Fain, Helen

Braithwaite, Theresa Lavery, Wayne Choinski, and George Camp. Victims & Offenders

Vol. 10 , Iss. 4, 2015.

http://www.tandfonline.com/doi/full/10.1080/15564886.2015.1078185

This project was supported by Award No. 2011-IJ-CX-0011, awarded by the National

Institute of Justice, Office of Justice Programs, U.S. Department of Justice. The

opinions, findings, and conclusions or recommendations expressed in this publication

are those of the author(s) and do not necessarily reflect those of the Department of

Justice.

http://www.tandfonline.com/doi/full/10.1080/15564886.2015.1078185

A Practical Guide to Closing Prisons iv

Steps for Closing Correctional Facilities

Step 1: Manage the Closure Process

Step 2: Select Prisons for Closure

Step 3: Relocate Inmates

Step 4: Relocate Key Programs

Step 5: Relocate Infrastructure

Step 6: Relocate Staff

Step 7: Develop Plans for Reuse, Deconstruction, Demolition, or

Decommissioning of Physical Plant

Step 8: Capture Knowledge

A Practical Guide to Closing Prisons 1

Step 1: Manage the Closure Process

Create A Closure Team

If it is determined that one or more prison facilities will be closed, a good first step

is to assemble a dedicated closure team at the Department of Corrections

headquarters to manage the facility closures centrally. The closure of facilities is

a highly complex process; strategic guidance will be required to maintain the

focus of the agency mission, implement smooth closures, in addition to managing

the ongoing operations of the Department. The team should include – at a

minimum – the Director, Assistant Directors, Media Relations, General Counsel,

and Human Resources. There are many reasons to close prison facilities with

many states and jurisdictions having had that experience at one time or another.

It is likely that each occasion presented new challenges for the Department, and

there typically is no historical record of lessons learned, or guidelines for

managing future closures. This manual is intended to help the down-sizing

process to be more systematic and strategic, rather than an unfamiliar, difficult

experience for correctional administrators. Once the decision is made to close

one or more facilities, many elements of the Department must coordinate their

planning. It is best if one staff person in the Department is delegated with the

responsibility to affect the closure and manage both the resources needed and

the timing of closures. Closures are difficult to manage – the overall objective

should be to create as little disruption as possible to the Department’s

operations, inmates, and employees.

Learn From Others

Visit other states, or locations within your home state, that have previously closed

prisons to learn about the process. Discuss what went right, and what they

would have done differently. Consult with ASCA regarding states that have

closed prisons, and obtain copies of reports and publications relating to prison

closures.

Determine The Level Of Openness Of The Closure Process

If closures are to be kept confidential, then the number of members on the

closure team should be kept to a minimum and information release should be

tightly controlled. If closures are to be made public, then the closure team should

be as inclusive as possible and include Department of Corrections staff, and also

labor organizations, legislators, media, and local and state elected officials.


Orchestrate Communication

Carefully plan the release of information, depending on whether the closure

process is to be open or closed. Timing is critical. Insufficient notice of a prison

closure may result in poor planning and a perception among correctional staff

that the process was rushed and not carefully considered. On the other hand,

too much notice of an impending closure may galvanize opposition from staff,

unions and/or the local community and make the closure more difficult to

implement.

Communicate Personally With Impacted Staff And Their Families

Members of the closure team should visit facilities slated for closure to personally

communicate with facility staff. Face-to-face communication is critical. Human

resources staff should spend time with each affected staff member to provide

information and answer questions. Hold town meetings at facilities or in local

communities to speak with impacted families. Answer questions and concerns

openly; report information back to the closure team. A lesson learned from

experiences in other states is that the person who speaks with displaced

employees should be familiar with operations of a prison facility, and should

speak to employees personally. Employees impacted by a closure must feel that

the headquarters representative sent to facilitate the transition has some degree

of understanding and empathy. This high level of concern cannot be stressed

enough. The displaced employees need to know that the Department cares

about them, and has their welfare in mind.

Ease The Transition Of Staff To Their New Facilities

Facilities accepting displaced staff will also be impacted by the closures.

Members of the closure team should visit these accepting institutions prior to

closures to discuss ways in which the facility can assist the transition of staff.

Incoming staff may require additional training, assurance that their seniority will

be maintained, and initially may not feel part of the “prison family” at the

accepting facility.


McNeil Island Correctional Center, Washington was closed in 2011. The prison was

located on an island and reachable only by ferry. Photo Credit: Washington State

Department of Corrections

Provide Strong Leadership

Staff will be more accepting of closures if they feel that their leadership is “on

their side,” from the Director and senior executives through to key staff at the

facility level.

Develop Partners And Allies

If possible, work with the Governor and Legislature, since political support will

make the closure process easier. Consider bringing the Union or Correctional

Officer Associations into the planning process or as participants on the closure

team.


Step 2: Select Prisons for Closure

Establish Criteria For Rating And Selecting Facilities

The following criteria were used by states to select prisons to close: facility

mission (and security level), age, operating costs, facility location (existence of

satellite or neighboring facilities), political considerations, capital works projects

(construction and maintenance), employee impact, inmate labor, education and

programs, use of volunteers, and the impact on the local community. These

criteria are summarized in Table 1 (over page).

Determine If Certain Criteria Are More Important

Certain criteria may be more important to the agency than other criteria. If so,

these criteria may be weighted to factor more highly into the closure decision.

For example, some states rated facility age highly (to replace old with new), and

some states based closure decisions primarily on facility location and political

considerations. This document contains sample decision-making matrices that

can be adapted to your state.

Short List Potential Facilities

It is not necessary to rate every facility in your state. Select a short list of

potential institutions that you may want to consider closing and then rate these

according to the criteria important to your state.

Be Transparent

By establishing criteria important to the Department and using them to rate

facilities the selection process will be transparent and defensible.


Table 1: Potential Criteria for Rating Prisons for Closure

Criteria Description

Facility mission and security level

Consider the mission that the facility provides, and the cost of replacing that mission elsewhere. High security facilities and/or those with special functions (e.g., housing for condemned inmates, administrative segregation cells for disruptive inmates, protective custody, or specialized medical functions) may be of greater value to the agency than minimum-security camps and/or farms.

Age and operational costs

For the most part, new facilities are less favored for closure, than older facilities which are expensive to maintain and staff (due to building design and line of sight issues) should be given greater consideration. Typically, older facilities cost more per inmate to operate and should be closed in favor of newer, more operationally efficient facilities.

Location and neighboring facilities

Most states have planned their facilities with multiple institutions located within a geographic area, to provide support and economies of scale. It is common for large high-security prisons to have an adjacent minimum-security facility for support. That support might be for logistical support (e.g., laundry), or housing (e.g., the housing of crews that provide vehicle or building maintenance). In most cases, these support facilities would be exempt from closure since they are necessary for the main institution’s operations. However, it may be easier to close a facility that has a neighboring facility close by that can accept displaced inmates and staff, thus minimizing disruption and avoiding the relocation of staff.

Political considerations

States vary in the degree to which their prison systems are impacted by political agenda. A significant factor is the extent to which the Governor supports the Director of the department of corrections to be an independent agent in dealing with the local politics surrounding prisons. Each prison facility has a Senator and a Representative that may take an interest in its operations/administration. If the Governor is intrinsically involved with local legislators, the Director may have only limited discretion about which prisons to close. The Director should stay in close touch with the Governor’s Office to determine to what extent (a) the Director will be involved in the decision-making, and (b) the extent to which other, non-political, criteria will be a consideration.


Criteria Description (continued)

Capital works projects

The closure of a prison that has recently completed significant capital improvement projects may be perceived as wasteful. However, this may be inevitable, since those facilities may have long-term capital improvement plans in place (e.g., 3-year or 5-year plans) and require significant levels of ongoing maintenance. In addition, it may cost more to break existing contracts than to keep them in place and complete the projects. Where possible, suspend capital projects until closure decisions have been confirmed.

Employee impact

The impact on employees will largely be determined by the number of neighboring facilities within a radius of approximately 50 miles than can accept displaced staff. A closure in a rural part of the state with no neighboring facilities and few employment opportunities outside of the Department will significantly impact staff. A closure in a densely populated urban center with multiple facilities within driving distance will be less impactful to staff. The primary staff impact is relocation, or the decision to not relocate (and instead maintain a temporary second residence or commute long distances).

Education and programs

Inmate programming that is replicated at other institutions (e.g., academic, vocational, or other specialized programs) will not need to be moved. A highly specialized program offered only at a small number of institutions may need to be relocated if the prison were to close. In addition, closure of a facility may also mean loss of specialized programming space (e.g., vocational programs such as welding) which may impact programming capacity if not relocated elsewhere.

Inmate labor The Department may want to consider the extent to which a prison provides work squads in the community (e.g., to conduct public works and contract labor), and the detrimental effect on the community from the loss of these services. For example, an inmate wood-chopping service for elderly people in a cold climate may be very important to a local community.

Community impact

In addition to inmate labor, the local community may be impacted in a number of other ways if a prison were to close. For example, prisons are a significant employer in the local area and a prison closure may impact revenues, schools and businesses. Prisons are also a significant user of utilities (e.g., water, waste water and power) and rates may increase for local residents if correctional contracts are terminated

Use of volunteers

The Department may wish to include the number of active volunteers at an institution in a closure decision, since their loss may result in the loss of inmate programs and/or services.


Step 3: Relocate Inmates

Take Advantage Of Natural Attrition

A facility may be closed via the natural attrition of inmates if given sufficient

notice of closure. This is the desired method of population reduction.

Coordinate The Movement Of Inmates, Property And Records

If time is not sufficient for natural attrition, then the movement of inmates will

require more planning and coordination. The Classification/Records offices in

the closing and receiving facilities will need to oversee the particular inmate

decisions as to where they will be moved. It will be up to the Security leadership

at each facility to determine when and how the transports are to be made. If

possible, move inmates to neighboring facilities in small numbers. It may be an

opportunity to locate some inmates closer to their families. Special care should

be taken to move personal property and inmate records with the inmates.

Consider Staff Workload At Accepting Institutions

It is important to consider the workload impact on the receiving institution. If you

have the luxury of time to depopulate a facility that is to be closed, the Security

staff at the closing facility can coordinate so that the impact on the receiving

facility is not disruptive and coincides with the receiving facility’s normal

schedule.

Recalibrate Security Levels If Needed

Consider the need to recalibrate Department-wide security levels to match the

inmate population, particularly if multiple minimum and medium security facilities

close. This will avoid the over-classification of inmates.

Pay Attention To Mixing Of Inmates

Consider the impact of mixing inmates from different custody levels as a result of

prison closures. For example, there may be increased gate traffic caused by

low-custody inmates going out to work assignments (if work camps close and

inmates are relocated to higher-security facilities); a potential for an increase in

contraband coming in through the gate; increased potential for escape of a

higher-custody inmate out with a work crew; and an increase in coercion or

intimidation of low-custody inmates by higher-custody inmates, thus increasing


requests for protective custody. In addition, gang activity may increase:

consideration should be given to inmate separations.

Some Inmates May Need To Stay Behind

It will be necessary to keep certain inmates behind at the closed facility to

perform necessary operational functions. Operations such as food service,

laundry, housekeeping, etc. will need to be maintained and can be easily

managed. Again, it is necessary to involve case managers to take into account

the jobs held by inmates and to recommend scheduling for movement to the

receiving facility.

Prison trustees remove a desk from the Central Unit prison facility, located in Sugar

Land, Texas, which closed in 2011. Photo Credit: Texas Department of Criminal Justice

Minimize The Impact On Inmates

The Department should aim to minimize the impact on inmates by keeping

inmates in the same part of the state (to facilitate visitation, or as an incentive for

good behavior to move to a facility closer to their eventual return to the

community), at the same security level, with the same programs, provided with

the same work opportunities, and offered the same opportunities for recreation,

yard and such. Be mindful to avoid the compaction of inmates at remaining

institutions.


Step 4: Relocate Key Programs

Identify If A Program Is “Key”

Identify key inmate programs and/or services not offered at other institutions that

may need to be relocated. Key programs are likely to be particular prison

industries/workshops, specialized medical programs, or specialized treatment

programs. A program is less likely to be considered key if programs are

standardized across the state, such that all programs are offered at all or many

institutions.

Greene Correctional Facility’s Department of Motor vehicles (DMV) call center was

relocated from Arthur Kill Correctional facility, which closed in December, 2011. Photo

Credit: New York Department of Corrections and Community Supervision,

http://www.doccs.ny.gov/PressRel/2012/DMVcallcenter/DOCCSDMVcallcenter.html


Step 5: Relocate Infrastructure

Identify If Infrastructure Is “Key”

Essential infrastructure may need to be relocated from a facility that is closing –

for example, auxiliary operations, warehouses, maintenance facilities, prison

industries, or farming operations.

Decide Whether To Lease Or Build

If time permits, conduct a cost-benefit analysis to determine whether leasing or

new construction is the best option for replacement of key infrastructure. For

example, a purpose-built new warehouse may save money in the long-term in

economies of scale and reduce freight costs.

Allow Sufficient Time

The relocation of key infrastructure may take time – it is not unreasonable to

expect two years to design and built replacement infrastructure. During this time,

staff may need to remain at the closed facility to perform necessary functions,

such as guarding the premises and basic maintenance.

Manage Contracts

If relocating infrastructure such as warehouses, existing contracts will need to be

managed during the transition from old to new premises. Transitions should be

timed, where possible, to take advantage of contract cycles so that contracts are

not broken (incurring additional costs). It may be necessary to have overlap in

contracts for a short period so that orders are filled from the old warehouse while

the new warehouse is being back-filled prior to becoming operational.


Step 6: Relocate Staff

There Are Several Ways To Manage Staff Impacted By A Closure

Staff impacted by a facility closure may be laid off by the Department, may

choose to retire, or may be relocated to another institution. The “hiring boom” of

correctional staff in the 1980s across the United States created a “bubble” in the

work force of employees currently retirement-age eligible. This was an

advantage for many states dealing with the recent fiscal crisis in that necessary

reductions in force could be achieved via the natural attrition of staff retirements.

Some staff may choose to retire early rather than be relocated, in what they

reported as “forced retirements” (i.e., retirement was perceived as forced on

them by the Department, with little choice of alternatives).

“Bumping” Or “No Bumping”?

When relocating staff, two basic methods are employed. The Department may

allow for impacted staff to “bump” less senior staff out of their current positions,

across the state. Alternately, the Department may use a collective bargaining

process whereby displaced staff move to vacant positions only, but do not bump

staff with lower seniority out of their existing positions. The bumping method –

which some perceive to be the fairest system for preserving seniority – creates a

“ripple effect” across the state and increases the number of staff impacted by

closures. The bumping system will disproportionally impact junior staff: junior

staff may be bumped multiple times, causing extreme disruption. The bumping

system will take longer to fully implement, as each bump is worked out through

the system. Lower-seniority staff that are bumped out of their position by a

displaced officer in turn may bump an officer junior to them out of their position,

and so on.

Deciding Where Staff Are Relocated

Typically, displaced staff are asked to submit their preferences for a desired

locations (e.g., their top 10 prisons in the area, listed in order of preference). A

system of secondary recall may also be used after a period of time has elapsed;

if staff did not receive one of their top preferences in the first relocation, then a

second round of offers may go out to affected staff in an effort to place staff in a

preferred location


Work With Unions

Work with the unions if they are present in the state. If there are recognized

collective bargaining units, there will be representation at the local as well as the

state level. At the state level, they will normally be engaged with the Governor’s

Office and legislative leadership. At the local level, they will be engaged with the

local politicians as well as the affected facility and its union membership. In

states where there are no collective bargaining units affecting corrections, there

will most likely be a correctional officer or correctional employee association,

which has some unofficial bargaining strength both at the local and state level.

Although these correctional officer associations have no legal standing, they can

be a powerful force to support or oppose the facility closing effort. In the case of

the Governor’s staff involvement, make sure you touch base with them before

you start conversations about the potential closing of a facility. Obtain guidance

from the Governor’s staff to help you negotiate with the local union or association

leadership.

Preserve Staff Seniority

Typically, staff will be required to stay behind at a closing facility while

infrastructure is being moved, and to assist with the transfer of inmates, property,

equipment and personnel. Insure that those who stay behind in the closing

facility are not negatively impacted in the selection and assignment to new jobs in

the one or more receiving facilities. Staff seniority should be taken into account

and they should not be disadvantaged in terms of the positions/shifts/vacations

open to them once they do move. Staff cannot be penalized for remaining at a

closed facility, and the guarantee of equal opportunity to new assignments

should be made clear and honored.

Communicate In Person, As Information Comes To Hand

How the Department communicates with staff that are going to be affected by the

closing of a facility is extremely important. The experiences of the states

involved in this study indicated that staff preferred to be communicated with on a

personal level, by one senior executive only, and by someone with prior prison

experience. Do not have the direct communication with the employees come

from someone who has no correctional experience, which may inadvertently

communicate a lack of caring. Irreparable damage can be done with the

employees that will destroy future relationships and morale. If there is a lack of

communication, rumors will fill the information void. Provide the affected staff

with information as it becomes available: don’t wait until you think you have


complete information before talking with staff. Staff involved in this study were

unanimous in that some information was better than no information at all.

Create Openings For Staff

It is important to hold vacancies open prior to a closure to enable impacted staff

to find a suitable alternate position. Actions such as hiring freezes, the

imposition of a vacancy rate or a slow down on recruitment classes can create

the necessary vacancies available to employees that are losing their current

positions in the closed prison. Similarly, if the prison to be closed is being

replaced with a new facility, many employees will be able to find equivalent

positions there. In the majority of cases, this could result in increased

promotional opportunities and the incorporation of new ideas and experience into

the newly-opened facility.

Consider The Impact On Families

Relocation of staff will have an impact on entire families. Children may need to

change schools, spouses may lose their employment, friends and family in the

local neighborhood may be lost. Hold family forums and provide information to

both staff and their families on local communities, schools, health services,

spousal employment opportunities, etc. If families live on the grounds of a prison

that is closing (e.g., in rental housing or mobile homes) then the costs of

relocation may be a huge burden, and mobile homes may be abandoned rather

than moved.

Negative Consequences Of Staff Choosing Not To Relocate

If staff decide to commute to their new facility rather than relocate, staff may

prefer to work back-to-back shifts to compress their work schedule to give them

consecutive days off for commuting to their residence. These staff have been

described as “transients,” in that they may not be as heavily involved in the local

community as staff who live and work near the prison. This compressed work

schedule may cause fatigue, poor work performance, lack of staff consistency on

housing units, and feelings of isolation. Administrators will have to stay in touch

with the relocated staff to insure they are adapting well to the new environment

and schedules.


Staff May Require Training For Their New Work Assignment

Staff may need additional training to adjust to a new population when they

relocate to a different prison if the inmate population differs a great deal from the

former. For example, the new prison may house female inmates, mentally ill

inmates, or inmates of a higher custody classification, populations for which the

officers may be ill equipped to manage based on their previous experience. For

non-security positions (e.g., administrative, accounting, and support functions)

the Department may experience challenges caused by lateral transfers within a

classification. Employees may technically qualify for that position – particularly if

classifications are broad – even though they may have no relevant experience

and be found not to be a good fit.

Will Geographic Factors Create Any Barriers For Staff?

Consider any geographic factors that may impact staff when relocating from a

closed prison to their receiving institution. For example, there may be cost of

living differences across the state: families living on a correctional officer’s salary

in a small rural town (where housing is inexpensive) may struggle if they relocate

to a city (where housing is more expensive). Some officers relocating from New

York City to upstate New York did not have a driver’s license or own a vehicle.

Receiving Institutions Too Will Be Impacted

If a facility receives a sudden influx of staff from a closed prison there may be

perceptions of a “culture clash” among staff, similar to what occurs in blended

families. As previously mentioned, the closure team should visit prisons likely to

receive displaced staff prior to closures. In addition, incoming staff should be

given an opportunity to visit their receiving institution, and accepting prisons can

also reach out to the prison that is closing by visiting prior to the closure.


Step 7: Develop Plans for Reuse, Deconstruction, Demolition, or Decommissioning of Physical Plant

Decide Early What Is To Be Done With The Closed Prison

Regardless of whether the decision is to reuse or demolish the facility, plans for

any option should take into consideration the environmental and historic

implications of the site. If the facility is to be maintained as an empty (but viable)

facility for the future, the Department will need to plan for decommissioning the

facility early and have that plan in hand at the time that the closure decision is

made. The Department’s engineering/architectural section can carry this task

forward. The Department’s headquarters staff – including public relations,

personnel, finance, engineering, security, and classification – should be involved

in all the discussions and decisions about how to approach vacating and

decommissioning of a facility to be closed. Determine whether the closure will be

“soft” (easily reversed) or “hard” (permanent).

If the facility is to be reused by the Department for another purpose, or if traded

or transferred to another state agency, other steps will need to be taken. In

some cases, equipment and supplies might stay in place. In other cases,

equipment and supplies will be transferred to other prisons/state agencies, or

sold. In either case, an accurate inventory needs to be taken of all items that can

be salvaged – supplies, equipment, vehicles, educational materials, recreational

equipment, chairs, bunks, etc. That inventory will be critical as a working

document when materials are scheduled for transfer to other facilities or

agencies. Also consider the relocation and archival of inmate records, which

may later be required for court cases. One way of doing this is an “adopt a

facility” approach, in which the receiving facility that accepts displaced

staff/inmates becomes responsible for archiving all inmate records from the

closed prison.

To summarize, options for a closed facility are – mothballed for future use,

abandoned, used for another purpose, deconstructed or demolished, or sold.

Each of these will briefly be considered.


Mothballing A Facility

Several states have placed facilities in a suspended status that keeps the facility

intact, taking measures to insure that it is useable should the need arises in the

future. To that end, all utilities have to be placed in a state of reserve with

accommodations made so that during a future reactivation, the water, gas and

electric systems can be placed back on line efficiently and safely. The facility

has to be maintained to an extent that the water system is protected from

freezing, and this might require that pipes be drained and sealed. Electric

service needs to be terminated for most functions, save those required to

maintain a level of heat and lighting to allow for maintenance and prevent

freezing. Gas lines need to be reworked to allow just for the lines necessary for

preventing damage to the facility. Plans need to be preserved so that if the

facility is opened again, maintenance staff knows where connections were cut,

and pipes sealed, so they can be efficiently and safely reconnected or reopened.

Note that if a closed prison is co-located with a sister facility, then utilities may be

shared among the two facilities: water cannot be simply turned off at the closed

prison without impacting the prison that will remain open.

The National Park Service has outlined a nine-step plan across three phases to

suspend a vacant building to preserve it for future use (see Table 2)1.

Table 2: National Park Service Steps to Suspend A Vacant Building

Documentation phase:

1. Document the architectural and historical significance of the

building

2. Prepare a condition assessment of the building and its problems

Stabilization phase:

3. Structurally stabilize the building, based on the professional

condition assessment

4. Exterminate or control pests such as termites and rodents

5. Protect the exterior from moisture penetration

Mothballing phase:

6. Secure the building to reduce vandalism or break-ins

7. Provide adequate ventilation to the interior of the building

8. Secure or modify utilities and mechanical systems such as

heating

9. Develop and implement a maintenance and monitoring plan

1https://www.nps.gov/tps/how-to-preserve/briefs/31-mothballing.htm


Used For Another Purpose

If the facility is to be used by another agency or for another purpose within the

Department, a plan will need to be developed for this particular option.

Regardless of the future use, a current inventory of all supplies and equipment

will need to be taken. This inventory will guide the transfer or reuse of the

materials, and will be an important record for the future. All states have agencies

that are charged with the responsibility of disposal or transfer of state land and

buildings. They will assist in the transfer of facilities that the Department wishes

to vacate in favor of other state agencies. All states have agencies that are

charged with the responsibility of disposal or transfer of state land and buildings.

They will assist in the transfer of facilities that the Corrections Department wishes

to vacate to the other state agencies.

The Mound Correctional Facility in Detroit, Michigan, was repurposed as the Detroit

Detention Center, a central lockup for law enforcement. Photo Credit: Daniel Mears/The

Detroit News


Abandoned

This option would be the least desirable as it leaves a facility that would be

subject to looting and would ultimately be a site where curious individuals could

be subject to injury and the Department could be subject to litigation. In addition,

local communities may object to a facility that is not maintained becomes an “eye

sore.”

Deconstruction Or Demolition

Vacant facilities that are not expected to be used in the future should be

deconstructed. It the facility is demolished; many environmental requirements

must be met for removal and disposal of hazardous materials. Even if the facility

is knocked down and bulldozed, the materials must go to a landfill, and the

hazardous materials must be mitigated before they can be placed in the landfill.

If the facility is to be deconstructed, the use of inmate labor should be

considered. The facility will most likely be fenced, and the inmates can receive

their training, and work on the site with fewer security concerns. Most state

OSHA Departments will be helpful in determining the hazardous materials

contained in the facility, and will be able to recommend specific training such as

asbestos and lead paint abatement, fall protection and confined space work

standards. Most states have construction companies that specialize in

deconstruction and materials recycling, and bids can be structured to include

inmate labor on the project to assist in the salvaging of valuable materials. If

inmate labor is used, training may need to be provided by a source rather than

state funds, and non-profit organizations that see the deconstruction and training

as valuable work experience, would provide the funds for training. Any plan to

deconstruct a prison facility should consider the environmental impacts of water

treatment plants on site, wells that might need to be filled, and any hazardous

materials on the property in addition to those in the building itself.

Sold

If the facility is to be sold, realistically consider the potential for sale (it is a prison

after all, and it is less likely to be sold if co-located with another facility), make

sure the decommissioning is reversible, and consider the workload involved in

the sale. Executive staff who had been involved in selling closed facilities had

reported high workload level when they had to perform the functions of real

estate agents during a sale of a facility.


Consider Historical Implications

Consider any historical implications of closure, especially if the facility is old.

Most states have regulations that protect historic buildings and properties. If the

Department plans to deconstruct or demolish the facility, take steps to be familiar

with correct procedures. The first response from the state’s historical group may

be that the facility cannot be destroyed. However, there are ways in which

historic buildings like prisons can be taken down while preserving the history. In

the past, state historical groups have required actions such as: a significant

number of photographs to document the building, video or taped interviews with

former inmates from many years ago, video interviews with employees who

worked at the facility in its earlier days, and for tours be conducted and open to

the public, with a record of tours maintained. This process may be a very healthy

way for the staff and the community to adjust to the loss of the facility. Each

prison has a history unique to its own community related to its inception,

disturbances that may have occurred, tragedies, and noteworthy achievements.

Gathering former wardens and employees will provide for an opportunity to close

a facility with ceremony and dignity. Contact your state’s historical group well

before any actions are taken to destroy the facility and its history. Most historical

groups will be willing to assist your Engineering and Public Relations staff to

make the closing of the facility a smooth experience. In addition, consider the

loss of “culture” at the closing institution and, if possible, move staff awards,

iconic, historical and traditional items to accepting institutions.

Historical Grant Cottage located on the grounds of Mt. McGregor Correctional Facility in

Wilton, New York, which closed in 2014. Photo Credit: New York State Parks


Step 8: Capture Knowledge

Write Closure Manuals

Capture corporate knowledge from the closure team by producing closure

manuals. If your state experiences multiple closures, continually revise closure

manuals after each closure so that they are living documents.

Seek Input On Lessons Learned

Hold focus groups with staff at various levels across the organization to identify

what the Department did well during prison closures and areas for further

improvement. In addition, employee surveys are another effective way to get a

greater number of employees to weigh in on what went wrong and what worked

well in past closures. It is possible to get information on prison closures that may

have taken place many years past, and those experiences should be considered.

Incorporate all these views into the closure manuals.

Documents

A Practical Guide to Closing Prisons - Constant Contactfiles.constantcontact.com/a8d54e08601/c7e999c8-11e4-4934-a182-743… · A Practical Guide to Closing Prisons: ... systems had