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Bettesworth Construction
construction management

How Construction Teams Keep an Occupied Jail Operating During an Addition

Keeping an occupied jail open during an addition depends on a shared, site-specific plan for construction phases, secure separation, routes, service interruptions, temporary conditions, and operational readiness.

By Bettesworth Construction Team 10 min read
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Construction teams keep an occupied jail operating by treating custody operations as a core project constraint, not a condition to work around later. Facility leaders and the project team need a shared, site-specific phasing and security plan that controls where work happens, how people and materials move, which services may be interrupted, and what must be ready before operations shift into a new phase.

That plan must change as the work moves through different areas. A sequence that protects access to a new housing unit, for example, will not automatically work for renovation near intake, medical services, a kitchen, or a sally port. The facility’s custody requirements, site conditions, design, and local policies determine the right arrangements.

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Why an addition is an operations project as well as a construction project

An addition to an operating jail creates two active environments on one campus: the construction site and the facility responsible for custody, safety, and daily services. Their boundaries can shift as crews move between areas, utilities are changed, and completed space is prepared for use. The project therefore needs to protect routine operations while giving construction workers, deliveries, and emergency responders controlled access to the places they need to reach.

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The U.S. Department of Justice’s Resource Manual for Transition to a New Jail addresses renovations and additions specifically. It advises jurisdictions to plan for construction duration; the timing of service interruptions; work hours; security barriers; worker access and screening; tool control; construction-worker contact with inmates; emergency aid; parking; weapons; and intoxicants. It also recommends a phasing plan that identifies when work occurs in each area and considers whether to close a floor or unit at a time, use temporary facilities, or complete new construction for a particular use before renovating existing space.

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Those topics are a planning framework, not a universal construction specification. The security arrangements, allowable routes, temporary conditions, and decision authority have to be established for the specific facility and project. A method documented at one jail should not be treated as automatically suitable at another.

How to build a phasing and security plan

Start with the people who operate the jail and the people who will design and deliver the work. Facility leadership needs a clear coordination role because operational constraints can affect access, sequencing, shutdowns, and the readiness of new areas. The plan should make those dependencies visible before construction access begins, then be revisited when a phase boundary or site condition changes.

1. Map operations against the proposed work

Identify which custody functions, staff activities, services, circulation routes, and building systems touch each work area. Map those against contractor access, material deliveries, staging, parking, and emergency access. The purpose is to surface conflicts early: a route needed to move construction materials may also be important to jail operations, while a work area can affect services beyond its physical footprint through utility connections or access restrictions.

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For each proposed phase, record what remains in service, what may be constrained, and which facility functions depend on the area or system being changed. The DOJ manual calls for planning around service interruptions and their timing. That means a shutdown should be treated as a scheduled operational event, with its affected services and timing agreed with facility leadership, rather than as an ordinary construction convenience.

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2. Define phase boundaries and movement

Set out where construction is permitted in each phase and how the boundary will be maintained. Specify the routes and access arrangements for workers and deliveries, the work hours, and how those movements will be coordinated with facility operations. The boundary is not just a line on a drawing: it has to support the facility’s custody requirements while allowing the work to proceed.

Consider separately how inmates, staff, contractors, deliveries, and tools will move. A plan should establish how overlap is prevented or managed at access points, and what happens when a route is unavailable or a phase shifts. The appropriate separation measures are site-specific. For example, temporary security fencing is documented on one jail project, but that does not establish fencing as the right solution for every facility or location.

3. Set access, screening, and accountability procedures

Before work begins, agree how construction personnel will be authorized, screened, identified, and escorted or otherwise managed under facility procedures. Establish how tools and materials will be tracked and controlled, and define the procedures for emergencies and for any permitted or prohibited contact between construction workers and inmates. The federal manual identifies these as items to address in construction specifications.

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Put the agreed responsibilities and communication paths into the project’s working documents. Facility staff need to know whom to contact about a planned delivery, a route conflict, a potential shutdown, or an unexpected condition. Contractors need a reliable way to learn which operating constraints apply to their assigned phase. Specific controls and approval authority must come from the facility’s own policies and project arrangements; the available guidance does not set one universal role structure.

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4. Identify temporary space and services

Determine whether operations will need temporary rooms, facilities, utilities, environmental controls, or life-safety arrangements while existing spaces are under construction. Temporary provisions should be planned in relation to the functions they support and the phases when they are needed. Where a system will be taken offline, the team should establish what temporary service is required and how it will be coordinated with occupied areas.

Mechanical work illustrates why this matters. A Williamson County jail HVAC project overview describes phased work and temporary HVAC to preserve environmental conditions in occupied inmate areas while existing equipment is offline. It is an example of a project-specific response, not a design prescription: the equipment, configuration, and requirements depend on the facility and the work.

5. Define readiness before a transition

Construction completion does not necessarily mean a space is ready for operational use. Before a new area is occupied or an existing area is taken offline, the team should identify what must be completed, tested, staffed, or covered by training. The phase plan should distinguish physical progress from the operational decision to transfer functions or people.

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Larimer County’s sequencing offers a clear example: a new housing unit was built first but occupied last, a sequence DLR Group says supported secure construction access and staff training. That distinction can be important when the safest or most workable construction sequence is not the same as the order in which spaces should become operational.

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What project examples show about sequencing and coordination

Published project descriptions show several ways teams have approached occupied-jail work. They are examples of project choices, not evidence of a single standard method or a guarantee that operations were entirely disruption-free.

Project Documented scope or approach What the example illustrates
Larimer County, Colorado DLR Group describes three years of phased construction involving utility upgrades and kitchen and laundry expansion, a new intake housing unit, a new booking and intake facility, and renovation of medical, release, and transfer areas. The new housing unit was built first and occupied last. DLR Group project description Construction sequencing and operational occupancy can be deliberately separated; training and secure construction access can shape the order in which completed areas are used.
Larimer County, Colorado JE Dunn describes work on an occupied, operational correctional campus and a deputy- and corporal-led SCORE Team—Security, Construction, Operations, Review, Evaluation—to act as a liaison among stakeholders and facilitate ongoing campus activity. JE Dunn project description Facility personnel can have a structured coordination role. The SCORE Team is this project’s model, not a required title or universal governance arrangement.
Loudoun County, Virginia The Sheriff’s Office describes a planned Adult Detention Center expansion with four housing units, kitchen and laundry renovation, a maintenance building, and administrative-area expansion. Its project page states construction was scheduled to begin in July 2026 and finish by May 2028, with the center to remain fully operational. Loudoun County Sheriff’s Office project page A stated commitment to remain operational is a project objective, not a verified account of progress or a guarantee that no service constraints will arise. The schedule is the agency’s stated schedule.
Athens-Clarke County, Georgia McKnight Construction describes a 120,000-square-foot occupied-jail expansion and renovation using phased construction, temporary security fencing, and relocated administrative operations to maintain functionality. McKnight Construction case study Temporary separation measures and relocating functions can be part of a project’s approach. The description is the contractor’s case study, not an independent evaluation of outcomes.
Montrose County, Colorado The Sheriff’s Office announced an addition and renovation affecting booking, medical, kitchen, and the sally port. Jail Commander Dean McNulty said: “The Sheriff’s Office has developed a consistent plan to maintain Jail operations during this project which has been challenging, but the end result will be very rewarding.” Montrose County Sheriff’s Office announcement The project official described continued operations as challenging. The statement is not evidence that the work was disruption-free.

Together, the examples point to planning choices rather than a formula: assigning facility staff a liaison role, building an area before it is needed operationally, moving administrative functions, and using temporary separation measures. Whether any of these choices fits another jail depends on its circulation, security needs, systems, space, and project scope.

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How to handle utility shutdowns and temporary conditions

Utility and building-system changes can affect occupied areas even when the physical construction zone is separated. A project plan should identify which existing services or equipment may need to be interrupted, the expected timing of each interruption, what temporary conditions are needed, and how the facility and contractor will coordinate the work window.

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A 2026 Hood County jail-addition solicitation makes this coordination part of the project scope. It calls for coordination with the county, sheriff’s office, architect, and owner’s representative on phasing, access, deliveries, utility shutdowns, secure separation, inmate and staff movement, and temporary conditions. It also requires work to maintain security, safety, life-safety systems, inmate operations, staff access, and construction access. These are requirements of that procurement, not universal terms for every jail contract. Hood County RFP 2026-08 Jail Addition CSP

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For a project team, the practical implication is to identify shutdown dependencies while the phases are being developed, not after crews arrive at the affected equipment. If temporary HVAC or other services are needed, their scope and timing must be considered alongside occupied-area needs. The Williamson County HVAC overview documents one use of temporary HVAC during phased mechanical work; it does not establish a generally suitable system or operating threshold.

How to compare alternative phase plans

When more than one sequence is feasible, compare them against the same operational questions. The DOJ manual identifies the tradeoff between keeping areas occupied and temporarily relocating people, but it supplies no universal decision rule. The project team and facility leadership need to assess the consequences for their site.

Decision dimension Question to answer for each proposed phase
Operational continuity Which custody functions or services are constrained or interrupted, and when? Are the timing and affected operations agreed with facility leadership?
Security separation How will boundaries, worker access, screening, tools, materials, and any potential inmate contact be controlled?
Access and movement Can construction and jail movements take place without unsafe overlap? Are delivery, staff, inmate, and emergency routes accounted for?
Temporary conditions What temporary spaces, utilities, environmental controls, or life-safety arrangements are needed, and in which phases?
Sequencing and readiness What must be finished, tested, staffed, or covered by training before a new area is occupied or an existing area is taken offline?
Cost and schedule How does keeping an area occupied compare with temporarily relocating people in cost and schedule effects? There is no universal decision rule in the DOJ manual.

A useful comparison is specific enough to expose consequences. Instead of asking whether a plan “keeps the jail open,” identify which functions remain available, when a constraint occurs, what temporary arrangement supports the affected operation, and what decision is required before the next phase starts. This makes tradeoffs clearer without assuming that one sequence will suit every site.

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Common planning gaps to resolve before work starts

  • Unclear phase limits: If drawings and operating plans do not identify where work is allowed and how access is controlled, the facility and contractor may make incompatible assumptions. Define boundaries and routes for each phase.
  • Shutdowns treated as last-minute tasks: Utility interruptions can affect occupied operations. Identify dependencies, timing, and needed temporary services early, then coordinate the agreed windows with facility leadership.
  • Completion confused with occupancy readiness: A space can be physically built before staff are trained or operational arrangements are ready. Define the handover and readiness conditions for each transition.
  • Coordination without an identified facility role: The Larimer County example shows one way deputies and corporals served as project liaisons. Each facility needs to establish its own communication and decision paths rather than assume a named model applies.
  • Project-specific controls treated as universal: Temporary fencing, HVAC, relocated operations, or any other measure must be evaluated against the facility’s requirements and design. The cited projects document examples, not a standard package of measures.

The operating plan should be revisited when a boundary, route, service condition, or sequence changes. A coordination arrangement that works during a new-build phase may need to be reconsidered when construction moves into an occupied service area. The facility’s policies, security assessment, applicable requirements, and site conditions govern those decisions.

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