WASHINGTON — The Justice Department on Thursday issued the first comprehensive federal rules aimed at “zero tolerance” for sexual assaults against inmates in prisons, jails and other houses of detention.

The regulations, issued after years of discussions among officials and prisoner advocacy groups, address a problem that a new government study finds may afflict one out of every 10 prisoners, more than twice as many as suggested by an earlier survey.

Congress passed the Prison Rape Elimination Act in 2003, and the rules to carry it out are the first to address federal, state and local prisons and jails, including institutions holding juveniles.

The standards are binding on federal prisons, and states that do not comply could lose 5 percent of their federal financing.