In line with the Investigative Staff's review, Bureau management officials initiated a plan for corrective action. This plan calls for:

(1) Improving the monthly summary population report to make it a more useful document for operational and planning purposes.

(2) Updating procedures and assure consistency in determining optimum capacity.

(3) Developing a more refined systematic method of collecting information relating to the Bureau's total inmate population workload.

(4) Modifying the titles currently used in describing Bureau institu

(5) Conducting a new Bureau-wide space study which will provide the impetus for a new long-range facility plan.

(6) Providing new direction for the Bureau's automated information systems.

By directive dated June 19, 1975, the Committee requested the Investigative Staff to undertake an analysis and investigation of the Federal Prison System concerning population estimates and the capacity and utilization of existing facilities.

The directive stipulated that the investigation address the following points:

B.

(1) Validity of estimates of prison population.

(2) Capacity and utilization of existing Federal prison institutions. (3) Explanation of differences between the current capacity of some institutions with capacity stated several years ago.

Scope of Investigation

The Investigative Staff reviewed the policies, objectives, and procedures concerning the Bureau of Prison's facilities development program undertaken to (1) reduce institutional overcrowding; (2) close the large and antiquated penitentiaries; and (3) to develop smaller, more humane facilities complementary to a constructive correctional process. The Investigative Staff also reviewed the Bureau's plans and feasibility data concerning the 2 proposed institution's-1 in the Northeast Region and the other in the South Central Region. During the course of the review, field visits were made to the Bureau's

5 regional offices located in San Francisco, California; Dallas, Texas; Kansas City, Missouri; Atlanta, Georgia; and Philadelphia, Pennsylvania. Also, the following institutions were visited, Lompoc, California; Leavenworth, Kansas; Marion, Illinois; Atlanta, Georgia; and Lewisburg, Pennsylvania. The Investigative Staff interviewed officials at the Bureau's Central Office, Regional Offices, wardens, various correctional officers, and program and branch chiefs. Also

interviewed were an official of the Law Enforcement Assistance Administration, Department of Justice, private citizen organizations concerned with prison matters--Friends Committee on National Legislation and the National Moratorium on Prison Construction--certain offenders at each institution visited, and officials of the U.S. General Accounting Office. The Investigative Staff examined and analyzed pertinent Bureau reports, documents, and statistical data regarding inmate populations, trends, and facility utilization. C. Background

The Federal Bureau of Prisons (Bureau) was established in the Department of Justice on May 30, 1930, to bring the 7 autonomous Federal prisons under the control of the Attorney General. The Bureau presently operates 50 separate correctional facilities including 16 community treatment centers and/or halfway houses, 30 institutions, and 4 camps. Total inmate population incarcerated as of June 30, 1975, was 23,566.

Bureau institutions are classified into several categories in order to provide for separation of older, recidivistic inmates from other types, particularly juvenile and youthful offenders. These include penitentiaries, correctional institutions, youth centers, camps, and metropolitan correctional

centers.

In addition to the Federal facilities, the Bureau contracts with over 900 state and local jails for the detention of Federal offenders awaiting trial before the U.S. District Courts. There are also 400 private and local agencies under contract to provide assistance to Federal offenders in the community.

The Central Office, located in Washington, D.C., controls and coordinates all activities of the Bureau. The Central Office is responsible for planning and policy development, management of manpower and other resources, monitoring

60-765 O 75 pt. 1 31

the quality of programs and services, preparing and presenting the budget to the Congress, and coordinating the activities of the various regions.

In July 1974, the Bureau established 5 regional offices in order to provide more efficient management and administration of the Federal Prison System.

A major goal of the Bureau's correctional program is to return offenders to society as constructive and useful citizens. To achieve this goal, the Bureau believes it must establish the following correctional reforms:

(1)

(2)

(3)

Provide a level of supervision consistent with human dignity
that offers maximum protection to the community, staff, and
inmates.

Increase the number of Federal offenders achieving a success-
ful adjustment upon their return to the community.

Provide a wide variety of program alternatives for offenders,
including those who do not require institutional confinement.

(4) Provide institutional improvements that minimize the corrosive effects of confinement.

(5) Increase the knowledge of correctional technology through systematic evaluation and research.

The Bureau believes that its programs and operations are geared to a longrange improvement plan that will make the Federal Prison System a model for state and local corrections. In July 1972, the Planning and Development Division was established to coordinate future budget and planning needs, facilities and program development, and research activities.

In discussions with the Bureau's Director, and other top management officials, the Investigative Staff was informed that the 3 primary objectives of the agency are to:

(1) Reduce overcrowding.

(2) Replace antiquated penitentiaries, i.e., Atlanta, Leavenworth,

and McNeil Island.

(3) Replace the above antiquated institutions with small ones housing approximately 500 to 600 offenders.

II. INMATE POPULATION AND FACILITIES

A. Information Sources,

Reliability and Use

The analysis requested by the Committee concerning population trends,

facility capacity fluctuation and utilization over a period of years necessitates that the Bureau have as a minimum:

(1) Accurate and reliable documentation reflecting past, present, and future Federal prison activities.

(2) An integration of the current operating environment with longterm goals and objectives.

(3) Standards (guidelines or criteria, including clear and precise definitions of terms to be used) in order to obtain some measure of management performance toward established goals.

(4) A basis for comparing past and present revisions associated with the Bureau's prison program, as well as a methodology for reviewing why important decisions were made as they impacted on inmate population, overcrowding, and frequent shifting of facility capacities.

The Investigative Staff feels that it is important to point out early in this report that, to a large degree, each of the above elements are either lacking or have become entangled in a web of unclear and changing definitions and terminology within the Bureau's programs.

1. Bureau's Information System

The Bureau relies on its Inmate Information System (IIS) for vital statistical and operational data. This automated system utilizes a Department of Justice IBM 370-155 computer which has terminals located in the Bureau's Central Office. Information is collected from field activities and transmitted to the Central Office via a data communications network.

The IIS consists of a Population Control subsystem and a Demographic Data subsystem.

The Population Control subsystem had its beginning as a punched card system in the 1960s. The system has been redesigned and the