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Commissioner's Report on July 12 Hostage Incident, DE CC, DE DOC, 2004

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THE COMMISSIONER'S REPORT
ON
THE JULY 12, 2004 HOSTAGE INCIDENT
AT
THE DELAWARE CORRECTIONAL CENTER

ISSUED OCTOBER 06, 2004

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TABLE OF CONTENTS

1.

Executive Swnmary

II.

Security Overview:

Pages 1 - 5

Hostage Negotiation Training

Page 6

Corrections Emergency Response Team

Page 7

Security Staffing Plan

Page 8

Hazardous Duty Pay Criteria

Ill.

Action Plan

IV.

Appendix

Pages 8 - 9
Pages 10 -11
Page 12

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EXECUTIVE SUMMARY
THE HOSTA GE INCIDENT
On July 12,2004 DCC Counselor Cassandra Arnold was conducting a Group Session in Medium
Housing Complex, Support Building #24-classroom #4. The group numbered approximately 15
inmates, including Scott A. Miller, SBI# 00145669.
The session ended atter 10:00 a.m. Counselor Arnold lett the classroom, walked past the Control
Pod, down the hallway and into the Building #24 administration offices. As she passed the
bathroom, she observed a yellow inmate uniform through the bathroom door. Inmate Miller
confronted Counselor Arnold, taking her hostage using a homemade metal weapon.
A brief struggle ensued as Counselor Arnold resisted. Her yells alerted staff to the situation.
Inmate Miller briefly held her hostage in the bathroom and then entered the hallway with her and
moved across the hallway into an office. He barricaded the office door with the room's
furniture.
Institutional staff responded to the emergency from assignments throughout the complex
including the Hostage Negotiation Team (HNT) and the Corrections Emergency Response Team
(CERT).
Atter several hours of negotiations with the HNT, Inmate Miller stopped communicating and
raped his hostage. Shortly thereafter, the CERT Team entered the room through the ceiling and
shot Inmate Miller twice, resulting in his death. Counselor Arnold was extracted from the room,
treated at the scene, and transported to a hospital.

SHU & MHU POLICY STATEMENT
The Security Housing Unit (SHU) controls and manages the most dangerous, highest risk
inmates, as well as, those inmates who have demonstrated through their institutional and/or
criminal history/behavior that they are unable to function in lesser security levels. Some of these
behaviors include, but are not limited to, assaultive-aggressive behavior, escape risks or a history
of non-compliant behavior. Also housed in SHU are inmates sentenced to the death penalty,
protective custody inmates and detentioners who have demonstrated that they cannot function in
general population because they present a serious risk to others.
SHU inmates are confined to a single occupant cell except for medical appointments, visits,
showers and recreation. Inmates are mechanically restrained when movement occurs out of their
cell.

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Simply stated, SHU is a prison within a prison. Inmates earn their way into SHU with
unacceptable behavior. Inmates must progress through various review levels, which require
them to complete specific treatment programs and comply with rules and regulations. Program
completions coupled with continued positive behavior may result in steps toward placement in
the general population.
As both positive behavior and program achievements become consistent, inmates can progress to
the Medium Housing Unit (MHU). Here they are housed in a cell with another inmate, meals are
served in a central dining room, programming occurs in a classroom setting and recreation
occurs with other inmates. The focus in this housing unit is to continue behavior modification
and increase program achievements to the point where inmates can function in the general
population.

THE PERPETRA TOR
Inmate Miller was sentenced to a term of 699 years on June 23,2000. His initial classification,
th
made on July 6 , assigned him to Maximum Security-High Custody status. He was housed in
the Maximum Security Unit (predecessor to SHU), consistent with the Central Institutional
Classification Board unanimous decision.
A review of Miller's classification occurred in October 2000. While the Classification Team
noted that he was making some progress, their decision was to continue his original placement in
order to observe behavior and attitude trends for a longer time period. The Institutional Based
Classification Board (mCB) approved this recommendation and Miller remained housed in the
Maximum Security Unit.
Incorporated within the DOC system expansion, a new Maximum Security area was opened in
December 2000. Inmate Miller was moved to the new Security Housing Unit on December 12,
2000, consistent with his maximun-high custody classification. Throughout this time period,
SHU staflmonitored Miller's behavior and response to programming.
In early 2003, the DOC developed and adopted an objective classification system. This new
system includes some of the former subjective system processes, however, its new scoring
mechanism provides a benchmark for appropriate security level placement. Initial scores may be
overridden placing inmates in higher or lower security levels based on behavior trends,
disciplinary sanctions, etc.
This objective classification system was developed in conjunction with technical assistance from
The Institute On Crime, Justice, and Corrections ofthe George Washington University.
Additional technical expertise was provided under the auspices of the National Institute of
Corrections.

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Inmate Miller transferred back and forth between SHU and MHU four times between 12-12-00
and 09-20-02. These transfers ref1ect his treatment program participation and behavior trends.
In March 2003, Inmate Miller's classification status was reviewed under the objective
classification system. The Classification Team recommended and received approval for a
change to Medium Security consistent with his score. Miller was moved to the MHU Complex,
Building #22 Housing Unit.
Inmate Miller's next classification review occurred in March 2004. As a result of this review
Miller remained at MHU. In May 2004, as a result of a disciplinary violation and resultingjob
termination, a classification review was conducted. The Classification Team recommended and
received TBCB approval for Inmate Miller to remain at MHU. Simply stated, he spent the fifteen
months prior to the incident housed in the MHU.
During his incarceration and classification reviews, Inmate Miller was assigned to some
institutional programs, and brief1y held a job in the Building #24 kitchen. He participated in
programs including conflict resolution, decision-making, values training, anger management,
communication skills, substance abuse education, selfesteem, and thinking errors. He also
participated in the Prison Education Program as a QED student, but didn't complete any courses.
A summary ofInmate Miller's Disciplinary History Record indicates nine offenses from 01-0800 through 11-23-00. Two years later he had one offense on 10-16-02. One year later he had
two offenses dated 08-26 and 10-02-03. Seven months later he had three additional offenses
dated 05-05, 05-24, and 06-27-04.
Examination of the time frame leading up to this incident indicates that specific events in
Miller's life contributed to his frustration and anger. On 04-21-03 he was transferred from SHU
to MHU; Miller expected placement in the general population compound. More than a year later
(05-05-04), he received a disciplinary written reprimand for rules infractions. On 05-24-04 he
was sanctioned for job related oflenses, which resulted in his being fired. On 06-04-04 the
Hearing Board overturned the sanction and reinstated Miller to his kitchen job. Days later his
divorce became final. On 06-27-04 he was found in possession offood items and was again
fired. On 07-03-04 he had an abbreviated visit with his ex-wife and their children. She stated
that Miller was rude and verbally abusive to the children, so she cut short the visit. Miller's exwife scheduled another visit for 07-09-04 but chose not to attend. She states that Miller called
her saying he would give her a present for her upcoming birthday that she wouldn't forget.
Counselor Arnold, at her 08-18-04 interview, stated that Miller's demeanor during the group
session was stressful. She recalls his specific comments referring to a bogus disciplinary
sanction over a sandwich, a staff member using a racial slur, loss of his job, change of housing
units, and request for Interstate Compact Transfer to Virginia.

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At this same interview, Counselor Arnold recounts elements of the conversation she had with
Miller, while held as his hostage. They discussed the transfer to Virginia and Miller said that
perhaps he had acted too soon. He told her that he wanted to kill a specific Sergeant, who he
followed to the chow hall. When Miller entered the chow hall the Otlicer turned around, so
Miller exited and came up to the Administration Area. Miller said he was sorry she was his
hostage because she was the good Counselor and that he would rather kill either one of two other
Counselors he named. Miller again stated that he really wanted to kill the Sergeant.
The frustrations noted above seem to be the motivation for Inmate Miller's actions the day ofthe
incident. Miller was stressed and sought to vent his anger on a staff member.

OFFENDER MOVEMENT CONTROL
On the day and time of the incident, Building #24 had a Sergeant in the Control Pod post,
another Sergeant as the Building Rover, the area Lieutenant, two Teachers in the classrooms, one
Administrative Assistant, two Counselors, one Nurse Assistant, one Mental Health Clinician, one
Mental Health Doctor, two Commissary Officers, one Para-legal, one Property Otlicer, and four
statlfrom the Housing Units (Total of 19 employees).
The area Lieutenant and a Sergeant were in the Control Pod. The four additional officers were
staging in the area near the Control Pod and Chow Halls. These ofticers are usually sent from
Buildings # 21-23 to assist with feeding the inmates. Counselor Arnold was conducting a group
session in classroom #4. There was a Teacher in Classroom #1 and another Teacher in
Classroom # 3. The Building Rover was near the classrooms. Two officers were in the
Commissary and a Para-legal was in the Law Library. The Inmate Property Otlicer was
positioned in the hallway between the Control Pod and the slider door to the lobby. The
Administration Area contained a Counselor, the Mental Health Doctor, the Mental Health
Clinician, the Medical Assistant, and the Administrative Assistant.

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BUILDING #24 CONDITIONS THE DAY OF THE INCIDENT
On the morning of July 12,2004 several witnesses observed the door to the Building #24
Administrative Office Area propped open with a wooden chock. Individuals interviewed
stated that this had become a routine practice. The Control Pod Officer electronically
controls this door. The door is usually secured daily after 5:00 p.m. and remains secured
throughout the evening hours. All staff who worked in or had offices in the MHU
Complex had a responsibility to ensure that all doors were locked when not in use.
Many interviewees advised that the slider doors would occasionally be left open during
shift changes to facilitate staff movement to their assigned positions. When this
occurred, inmates would normally be secured in their cells and locked in for a count.
Other than the shift changes, the slider door to the entrance of Building #24 would be
secured. The Control Pod oflicer also electronically controls the slider door.
The investigation also focused on where Inmate Miller's weapon originated.
Examination of the shank revealed the metal was round, approximately eight inches long,
possibly a galvanized material with an improvised handle. The metal resembled fencing
material. The handle was made of plastic wrapping material like that used in the kitchen.
The handle also had masking tape wrapped around the plastic wrap. The point was
sharpened on four sides, similar to a nail. The exact location of where Inmate Miller
obtained the materials to construct the shank could not be determined.

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SECURITY OVERVIEW
HOSTAGE NEGOTIATION TRAINING
Early in 1997, DOC identified the need to reinforce the role of hostage negotiation teams
and provide more consistent team training. The Employee Development Center was
tasked with researching national programs, identifYing trainers and resources to fund the
training. Through the National Institute for Corrections and the Virginia Department of
Correction the Department identified a model successfully used by federal and state
correctional agencies.
On November 17, 1997 DOC sought technical assistance from the Federal Bureau of
Prisons. Technical experts with teaching credentials and applied experience in hostage
negotiations were identified.
The initial training was held at Delaware Technical and Community College the week of
April 20, 1998. Wardens and their Executive Staff were provided an overview ofthe
model and training their teams would receive. Team classroom-based training
culminated with an off-site mock hostage drill affording DOC teams the opportunity to
practice their negotiation skills. The trainees also had a policy development session with
one of the technical experts.
Through the subsequent years from 1998 until August 21,2001 the Department's teams
continued to run practice drills. In March 2000, due to the 2,500-bed expansion, a work
group including a representative from the Employee Development Center and institutions
met to review the existing program and make recommendations.
In 2001, DOC identified the need to offer the program again to train additional hostage
negotiation team members. This session was conducted at our Employee Development
Center.
On November 30, 2001 another briefing session was conducted for the Wardens and their
Security Teams. Throughout this session, information was provided on decision-making
issues/strategies for Wardens and teams, as well as, lessons learned from the Federal
Bureau of Prisons' incidents relevant to Delaware. The CERT Team presented their role
in the hostage negotiation process and discussed available technology.

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Since 2001 the Employee Development Center has continued to maintain a training
relationship with Virginia Department of Correction. On two separate occasions
representatives from our Employee Development Center, along with Delaware DOC
institutional staff, have participated in Virginia training drills. DOC teams continue to
run periodic practice drills to maintain readiness.

CORRECTIONS EMERGENCY RESPONSE TEAM (CERT)
The CERT mission is to ensure public safety, the safety of DOC stan: as well as, inmates
through joint partnership with BOP institutions. This is accomplished through:
•

Development and implementation of security programs based on needs
identified by the institutions.

•

Training and development of selected groups of staffto perform advanced,
high risk, or community operations.

•

Acting as technical advisor to Wardens and providing a tactical response
during emergency situations.

Each CERT Member receives:
•
•

4 weeks of Basic Training
1 Day of proficiency training each month
Topics Include:
Building Assaults
Riot Control
Defensive Tactics
PR 24 Riot Baton
Chemical Munitions

Cell Extractions
Rappelling
Tactical Firearms
Escapee Recovery & Management
Non Lethal Munitions

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SECURITY STAFFING PLAN
The MHU Complex is designed with four units (Buildings # 21, 22, 23 and 24). The
original design for the 8-4 shifts was a total of six security personnel in each of the
Housing Units and two security personnel in Building 24. To refine stafling within the
complex to meet operational needs, the 8-4 shifts complement was increased, in October
2003, to a total of seven security personnel in each of the Housing Units and 2 security
personnel in Building 24. In summary, the MHU complex requires a total security
compliment of twenty-three staff members.
On Monday, July 12 th the following staff were present on the 8-4 shifts, at the time of the
incident:
•
•
•
•

Building # 21
Building # 22
Building # 23
Building #24

- seven security staff
- six security staff
- seven security staff
- two security staff

This equates to a total security compliment of twenty-two staff or minus one officer
compared to the Operations Plan. Seven of these OtIicers were working overtime.
An Area Lieutenant, who was present in Building #24 the day of the incident, is not
included in the above as he had MHU Complex supervisory responsibilities.

HAZARDOUS DUTY PAY CRITERIA
All Correctional Officers receive Level A hazardous duty pay. Some non-uniform staff
members receive Level A, while others qualify for Level B.
In order to receive Level A hazardous duty pay, a DOC employee must meet the Merit
Rule criteria and successfully complete the Correctional Employee Initial Training
(CEIT) Program. Counselor Arnold had successfully completed the CElT Program, and
was receiving Level A hazardous duty pay at the time of the incident.
The State of Delaware Merit Rules, which receives its Statutory Authority from 29
Delaware Code, Section 5914, recognizes that certain state employees work in an
environment that involves an unusual risk of serious physical injury.
Merit Rule 4.18.1 states that "determination as to the positions eligible for hazardous
duty pay shall be requested by agencies for the Director's approval. The agency shall
notify the Director when a substantive change occurs in the duties of work conditions of
any position receiving hazardous duty pay. Compensation shall be set by the State
Budget Act."

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In the definition section ofthe Merit Rules, Hazardous Duty is further defined in the
following manner:

"Hazardous Duty Pay": uncontrollable circumstances that involve an unusual risk of serious
physical injury, impairment to health or death resulting from accidental, negligent or intentional
causes. Compensation for Exposure Levels A & B shall be set in the Budget Act. The following
two degrees of exposure are recognized:
"Exposure Level A ": Continuing exposure to hazards where the employee's
responsibility is to deal with the hazard as a function of assigned duties.
"Exposure Level B ": Proximate exposure to hazards where it is not the employee's
stipulated job duty to deal with the hazard, or occasional exposure to hazards where the
employee's responsibility is to deal with the hazard as a function of assigned duties.
The following definitions shall be used to determine eligibility for hazardous duty pay:

"Continuing ": frequency of exposure is normally more than 50% of employees'
working time.
"Occasional ": frequency of exposure is normally more than 5% but less than 50%
of employees' working time.
"Uncontrollable ": precautions, such as safety and life support equipment, are
either impractical to be used continually or are insuflicient to assure reasonable
safety.
"Proximate": the location of employee's work site precludes evacuation as a
means of avoiding exposure to serious physical injury, impairment to health or death
resulting from accidental, negligent or intentional cause.

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ACTION PLAN
CHANGES ALREADY MADE:
•

A Directive was issued to ensure that the door to the Building #24 Administration
Area remains locked at all times. Inmate access or movement to this area is
prohibited, including inmate janitorial services.

•

A Directive was issued to ensure that all Building #24 areas and offices are locked
whether occupied or vacant.

•

Motorola radios have been ordered for issue to the Counselors in the SHU/MHU area.

•

One additional Correctional Officer has been reassigned to Building #24 from #21
through #23 on a rotational basis, Monday through Friday, 8-4 shifts, to assist with
security coverage for classrooms, mental health groups, treatment programs, Law
Library, and Commissary.

•

DCC security staff is escorting all DOC staff: and contractual services employees
when they are on the housing unit tiers.

•

Signs have been posted on the Building #24 front slider and Administration Area
Door stating "No Inmates Beyond This Point".

•

A Directive was issued stating that all inmates entering and leaving Building #24 will
be escorted, at all times, by Correctional Staff

•

A Directive was issued to add another override category in both the initial inmate
classification and reclassification process for a pattern of assaultive/preditatory
behavior in institutions or the community.

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WORK-IN-PROGRESS:

•

Review Classification Policy & Procedures with the United States Department of
Justice, National Institute of Corrections.

•

Review StatfTraining Academy Curriculum with the United States Department of
Justice, National Institute of Corrections.

•

Review Emergency Response Procedures with the United States Department of
Justice, National Institute of Corrections.

•

Review the Institutional Staffing Analysis with the United States Department of
Justice, National Institute of Corrections.

•

Develop a plan to utilize the analysis of this incident as a training tool for all DOC
institutions,

•

Continue efforts begun in Fall 2002 to address Correctional Officer Series Compensation
issues. The Compensation Task Force, formed in Spring 2003, delivered its Final Report
Recommendations in September 2003, The Govemor recommended and the General
Assembly approved hazard duty pay increases for the Correctional Officer series in July
2004. A Selected Market Variation Analysis was conducted in compliance with Senate Bill
NO. 320 of the 142nd General Assembly, Epilogue Section 224 (see Appendix). The State
Personnel Office, in conjunction with the Budget Office and Pension Office, has developed a
proposed revised supplemental benefits package that incorporates multiple Task Force
Recommendations. Work continues on a plan to phase-in implementation ofthe
recommendations ofthe Task Force on Correctional Oflicer Compensation, Benefits and
Pension Issues.

•

Require mandatory CElT classes for all DOC employees working inside any
institutional fence line.

•

Establish DCC Shakedown Teams.

•

Investigate specific tactical equipment options. If selected, submit the appropriate
budgetary request for approval and funding.

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APPENDIX
•

Senate Bill NO. 320, 142 nd General Assembly, Sections 60 & Section 224

•

State of Delaware Merit Rules, effective January 1,2004, Section 4.18
"Hazardous Duty Pay" page 9 and "Definitions" page 33

•

Compensation Task Force Recommendations, Executive Summary

•

Compensation Presentation for the Correctional Officers Association of
Delaware, dated September 1,2004

•

DOC request for Department of Justice, National Institute of Corrections (NIC)
teclmical assistance, dated September 28,2004.

•

NIC affirmative reply, dated September 30, 2004

•

MHU Complex Diagram

•

MHU Building Diagram

•

Internal Affairs Unit Investigative Report - Case # 04-031

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1

Posted by

TheNew~Q~rn~1

DELAWARE STATE SENATE
142nd GENERAL ASSEMBLY
SENATE BILL NO. 320
AN ACT MAKING APPROPRIATIONS FOR THE EXPENSE OF THE STATE GOVERNMENT FOR THE
FISCAL YEAR ENDING JUNE 30, 2005; SPECIFYING CERTAIN PROCEDURES, CONDITIONS AND
LIMITATIONS FOR THE EXPENDITURE OF SUCH FUNDS; AND AMENDING CERTAIN PERTINENT
STATUTORY PROVISIONS.
BE IT ENACTED BY THE GENERAL ASSEMBLY OF THE STATE OF DELAWARE:
Section 1. The several amounts named in this Act, or such part thereof as may be necessary and
essential to the
proper conduct of the business of the agencies named herein, during the fiscal year ending June 30, 2005, are
hereby
appropriated and authorized to be paid out of the Treasury of the State by the respective departments and
divisions of
State Government, and other specified spending agencies, subject to the limitations of this Act and to the
provisions of
Title 29, Part VI, Delaware Code, as amended or qualified by this Act, all other provisions of the Delaware Code
notwithstanding. All parts or portions of the several sums appropriated by this Act which, on the last day of
June 2005,
shall not have been paid out of the State Treasury, shall revert to the General Fund, provided, however, that no
funds shall
revert which are encumbered pursuant to Title 29, Section 6521, Delaware Code.
The several amounts hereby appropriated are as follows:

Page 129 of 251 - Section 60
Section 60. (a) Section 1 of this Act appropriates $1,143.6 to the Office of the Budget,
Contingencies and One-Time Items (10-02-04) for the Correctional Officer Task Force. Funding in this
appropriation shall be used to create a new Hazard Duty Level A-1 at the rate of $2,520.00 annually
to
include Correctional Officer series and Probation Officer series positions. Hazardous Duty Level A-1
will effectively increase the allocation of Hazardous Duty Level A currently provided to Correctional
Officer and Probation Officer Series positions by $600.00 annually.
(b) The Department of Correction is hereby authorized to develop a recruitment incentive pilot
program. The pilot project shall be approved by the Budget Director and Controller General prior to
implementation.

Page 180 of 251 – Section 224
Section 224. The State Budget Director, the Director of State Personnel, and the Controller
General are directed to work with the Department of Correction on a plan to phase-in implementation
of
the recommendations of the Task Force on Correctional Officer Compensation, Benefits & Pension
Issues
(September, 2003). Special attention and analysis shall be on the Correctional Officer Series pay
grades
and pay ranges. Recommendations shall be made no later than November 15, 2004 to the Governor
and Co-chairs of the Joint Finance Committee.

2

Posted by

TheNew~Q~rn~1

STATE OF DELAWARE MERIT RULES
Adopted by the Merit Employee Relations Board
Effective January 1, 2004

I,

Statutory Authority: 29 Delaware Code,
Section 5914 (29 DeI.C. §5914)
Chapter Index
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.

15.
16.
17.
18.
19.

Introduction
Non-Discrimination
Classification of Positions
Pay Plan
Employee Benefits
Recruitment and Application Policies
Examinations and Registers
Certification
Probation
Other Appointments
Layoff Procedures
Employee Accountability
Performance Review
Employee Development and Communications
Employee Responsibilities
Human Resource Records
Payroll
The Grievance Procedure
Definitions

1.0 Introduction
1.1 Pursuant to 29 DeI.C. Chapter 59, these Rules apply to initial probationary,
Merit and limited term employees, except as otherwise specified, and shall
continue in effect until such time as they are amended or modified by the Merit
Employee Relations Board ("Board") or are amended, modified or superseded by
amendment to 29 DeI.C. Chapter 59.
1.2 In the event of conflict with the Delaware Code, the Code governs. In the
event of conflict with individual agency regulations, these Rules take precedence.
In the event of conflict with Intergovernmental Merit System Standards, the
Standards govern federally funded positions subject to the provisions of the
Intergovernmental Personnel Act. Federal laws supersede any conflicting state
laws.
1.3 If a subject is covered in whole or in part by a collective bargaining
agreement, 29 DeI.C. §5938(d) provides that the Merit Rules shall not apply to
such subject matters. These Rules govern in matters of: classification, uniform

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required during on-call periods shall also be compensated in accordance
with 4.16.
4.17.2 Social workers providing direct child or adult protective services
and the State Emergency Response Team approved by the State
Personnel and Budget Directors shall be eligible for stand-by pay.
4.18 Hazardous Duty Pay
4.18.1 Determination as to the positions eligible for hazardous duty pay
shall be requested by agencies for the Director's approval. The agency
shall notify the Director when a substantive change occurs in the duties or
work conditions of any position receiving hazardous duty pay.
Compensation shall be set by the State Budget Act.
4.19 Supervisory Pay. Subject to the approval of the Director, the Secretary of
the Department of Health & Social Services (DHSS) may grant supplemental pay
equal to 5% of the employee's paygrade midpoint to registered nurses employed
in DHSS institutions or facilities who are designated as charge nurses or team
leaders and are permanently assigned such responsibilities in addition to their
regular staff nurse duties.
Charge Nurse/Public Health Nurse team leader responsibilities include the daily
supervision and coordination of nursing or other patient care activities in a unit,
ward, floor, clinic or field setting during a specified shift to ensure quality patient
care and continuity of care with other shifts. This supplemental pay is not
authorized for employees required to perform charge nurse/team leader functions
on a temporary basis consistent with Merit Rule 3.2.
4.20 Computing Overtime Pay. The hourly rate of pay for overtime, holiday and
call-back payment purposes includes shift differential, stand-by and hazardous
duty pay.

5.0 Employee Benefits
5.1 Holidays
5.1.1 The following days are legal holidays for employees: New Year's
Day; Martin Luther King, Jr. Day; Presidents' Day; Good Friday; Memorial
Day; Independence Day; Labor Day: Columbus Day; Veterans' Day;
General Election Day; Thanksgiving Day; Day after Thanksgiving;
Christmas Day; and Return Day (the second day after the General
Election), 3.75 hours for 37.5 hours work week schedule or 4 hours for 40
hour work week schedule for employees who live or work in Sussex
County; and any other day or part of proclaimed by the Governor as a
holiday.

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the Merit System. An examination may consist of, but is not limited to, oral,
written or performance tests, or a rating of the candidate's training and
experience.
"Exceptional Employment": employment of individuals with disabilities through
special program such as the Agency Aide or Selective Placement Program.
"FMLA Eligible Employee": an employee who has at least one year of state
service and has been paid for at least 1,250 hours over the 12-month period prior
to the first day of the FMLA leave.
"FMLA Leave": leave taken in accordance with the provisions of the Family and
Medical Leave Act of 1993.
"Grievance": Merit employee's claim that these Rules or the Merit system
statute has been violated. A grievance may not deal with the content of the Rules
or the Merit system statute.
"Hazardous Duty Pay": uncontrollable circumstances that involve an unusual
risk of serious physical injury, impairment to health or death resulting from
accidental, negligent or intentional causes. Compensation for Exposure Levels A
& B shall be set in the Budget Act. The following two degrees of exposure are
recognized
"Exposure Level A": Continuing exposure to hazards where the
employee's responsibility is to deal with the hazard as a function of
assigned duties.
"Exposure Level B": Proximate exposure to hazards where it is not the
employee's stipulated job duty to deal with the hazard, or occasional
exposure to hazards where the employee's responsibility is to deal with
the hazard as a function of assigned duties.
The following definitions shall be used to determine eligibility for hazardous
duty pay:
"Continuing": frequency of exposure is normally more than 50% of
employees' working time.
"Occasional": frequency of exposure is normally more than 5% but less
than 50% of employees' working time.
"Uncontrollable": precautions. such as safety and life support
equipment, are either impractical to be used continually or are insufficient
to assure reasonable safety.
"Proximate": the location of employee's work site precludes evacuation
as a means of avoiding exposure to serious physical injury, impairment to
health or death resulting from accidental, negligent or intentional cause.
"Hiring List": the list of finalist candidates eligible to fill a vacant position.

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Posted by

TheNew~Q~rn~1

FINAL REPORT
FROM THE

TASK FORCE ON CORRECTIONAL
OFFICER COMPENSATION, BENEFITS
& PENSION ISSUES
SEPTEMBER

~003

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PREFACE
On February 3, 2003 the Department of Correction Commissioner and
the State Personnel Director jointly held a meeting with representatives from
the Correctional Officers Association of Delaware (COAD) to discuss
Correctional Officer compensation, benefits and pension related issues. As a
result of their meeting, this Task Force was created to study and make
recommendations for these areas... DOC Bureau Chief of Prisons, Paul W.
Howard, was appointed as the Task Force Chairperson.
The Task Force was instructed to focus on both short & long term
proposals and objectives. Given Delaware's present economic climate,
short-term recommendations (less than 2 years) had to be limited to only
those that would not represent a significant fiscal impact. Reconnnendations
that potentially represented a significant fiscal impact were by design
deemed as long-term proposals. Even these long-term recommendations
would be subject to adjustment depending on the economic situation and
availability of funding.
In pursuit of its mission to identify compensation alternatives the Task
Force included members from the Department of Correction Bureau of
Management Services, Bureau of Prisons, Bureau of Community Correction,
the State Personnel Office, the Budget Office, the Correctional Officers
Association of Delaware (COAD), and the American Federation of State,
County & Municipal Employees Local 247 (AFSCME).
And so the process began... The Task Force conducted its fITst
meeting on April 10, 2003 and their work culminated with submission of
this Final Report of fmdings and recommendations.

Pas ed y

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Executive Summary
The Task Force reviewed the consolidated Final Report Findings and
Recommendations at their August 12, 2003 meeting. By consensus vote, the
Task Force ranked their recommendation priorities as follows:
1. Compensation Issues:

a. Increase Hazard Duty Pay stipend,
b. Establish horizontal movement through the pay range, and
c. Move starting salary to 85% of midpoint
2. Pension Issues:

a.
b.
c.
d.

Adopt 25 year retirement (pass Senate Bill 90),
Institute a Drop Program,
Adopt a 20 year retirement, and
Explore leaving the Merit System and/or Pension Plan.

3. Traditional Benefits Issues:

a. Expand Supplemental Benefits coverage to include
disability, vision, prepaid legal, dental, auto insurance, and
b. Institute an incentive program for Sick Leave.
4. Recognition/Career Development Issues:

a. Expand training opportunities,
b. Enhance Recognition Program, and
c. Establish a new Rank Structure.

The four individual Committee reports are integral to this Task Force
Final Report. They are included in their entirety, under separate tabs in the
pages that follow, along with referenced materials appendix and Committee
Chainnan's Remarks.

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STATE OF DELA WARE
DEPARTMENT OF CORRECTION
245 McKee Road
Dover, Delaware 19904

(302) 739-5601
Fax: (302) 739-8221
E-Mail: sttaylor@state.de.us

Stan Taylor
Commissioner

September 28, 2004

George M. Keiser
Chief, Community CorrectionslPrisons Division
US. Department of Justice
National Institute of Corrections
320 First Street, NW
Washington, D.C. 20534
Dear George:
On July 12, 2004 the Delaware Department of Correction experienced a difficult
hostage incident. The hostage, a female counselor, was raped. The hostage taker was
shot and killed by a Department of Correction tactical team member.
The hostage taking, the rape, and the use of deadly force have been investigated
by the Delaware State Police and the Delaware Attorney General. The Department of
Correction has conducted an internal investigation to detennine whether employees
complied with policies and procedures as well as to identify possible operational
improvements.
In addition to the above, I am requesting technical assistance from the National
Institute of Corrections in four areas:
1. Provide a staffing analysis for the Delaware Correctional Center, a 2700 bed
facility with 16 housing units and 640 FTE's.
2. Review the Delaware Department of Correction Correctional Employee ~tial
Training and refresher training as it compares to other states and national
standards.
3. Review the'Delaware Department of Correction Objective Classification System
to determine its validity and reliability.

Pas ed y

.'

.
George M. Keiser
September 28,2004
Page Two

4. Review the Delaware Department of Correction Emergency Response and
Hostage Negotiation Plans relative to the current standards being provided by the
National Institute of Corrections.
This incident has had a dramatic effect on our department and we want to ensure
that we are current with professional standards in these important areas.
I thank you in advance for your consideration of my request.

Xc:

Morris L. Thigpen, Director, NrC

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THU 14:40 FAX 2023051956

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PRISONS DIV

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of Justice

Nation31 Institute of Corrections

Was!lillgtoll, DC 2053-/

September 30, 2004

Stan W. Taylor, Jr., Commissioner
Delaware Department of Corrections
245 McKee Road
Dover, DE 19904
Deal' Commissioner Taylor:
We are developing a working plan of assistance with the Delaware Department of Conections in
response to your letter on September 28,2004.
If you have any questions, please feel free to give me a call George M. Keiser, Chief, Community
Corrections/Prisons Division at 1-800-995-6423 extension 3-4213.

Sincerely

~r~h{ff ~;f~
Community cZ;ectionS/PriSO:, LS:l

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