SUMMARY OF BASIC FINDINGS

Even with the decline in crime rates throughout the nation, county jails have remained crowded and resources compromised to dangerous levels. Many factors beyond crime and arrest rates contribute to the continuing stress within this sector of government services. Racine County mirrors the nation in many of the recent trends, but faces increased pressure to improve and expand the existing detention capabilities. This Master Plan reviews the past relevant trends; assesses the capability of existing resources; projects alternative futures; and presents a range of options for oversight and control of pre- and post-adjudicated offenders.

Growth Determinants Impacting Jail Population

1. Between 1990 and the year 2000, Racine County’s population increased approximately 8% (from 175,000 to 189,500) a number that was ½% greater than the statewide rate. Low and high range projections for the County’s population in the year 2020 range between 196,000 and 221,000. For jail planning purposes, a population projection of 208,000 for the year 2020 was used.

2. The County’s projected 20-year growth rate of 9.5% includes an estimated decline in the number of individuals in the "at-risk" age cohort of 18 to 24 years by the year 2010, suggesting no extraordinary impacts on the justice system will result from the County’s overall growth.

3. Between 1992 and the end of the year 1999, the number of sworn officers increased 3.6%, as opposed to the 4.1% gain in County population. During this same period, Reported Index Crime declined 26%, which represented a 29% decline in the Crime Index Rate. If no major increase in the number of sworn law enforcement officers occurs due to declining crime rates, the number of future sworn officers would not have an extraordinary impact on the inmate projections.

4. Racine County arrests account for approximately 70% of admissions. Concomitantly, arrests for Index Crimes (the most serious) represent just 15% - 20% of total arrests. Although Index Crime arrest statistics provide useful information regarding a jurisdiction’s response to serious street crime, predicting the future average daily jail population based upon the percentage of Index criminals is not valid.

5. From 1993 through 2000 criminal filings in Racine declined 14%, from 5,950 to 5,119. During this same period, the number of disposed cases declined 12.9%, from 5,730 to 4,993, while the number of pending cases declined 46%. The ratio of Criminal Case Filings to Dispositions (Disposition Rate) is a highly efficient rate of 97%. While a majority of persons charged with criminal offenses are not held in jail pending trial, nonetheless the Disposition Rate has recently dropped below 90%, indicating a possible slow down between the time of arrest to trial.

6. A snapshot of the pre-trial inmate population reveals that approximately 20% of those charged with a felony are held for 120 days or longer, and that 15% of those charged with misdemeanors are held in excess of 60 days. As the Criminal District Courts are not operating in a "clogged situation," the failure to meet a Wisconsin standard of 90% felonies tried within 120 days and 90% of misdemeanors within 30 days suggests that jail cases are generally not moved ahead of non-jail cases. This assessment was confirmed by the State Public Defender.

7. From 1992 through 2000, yearly admissions (ADM) to the Racine County jail increased 13.5%, from 7,608 to 8,637. More recently, from 1996-1999 admissions grew 16.9%, while similar sized counties experienced a 6.3% increase. However, since 1998 the number of Racine County’s admissions has ceased to increase.

8. From 1992 through 2000, Racine County’s Average Length of Stay (ALOS) increased 25.3%, from 20.6 days to 25.9 and reached a high of 27.5 days in 1999. By comparison, from 1996-1999 the ALOS averaged 26.0 days, while the average of the five similar counties was 20.4.

9. Between 1992 and the end of the year 2000, the Average Daily Population (ADP) increased 42%, from 430 to 612. This increase resulted from an ADM increase of 17% and an ALOS increase of 25%. For the nine years included in the data analysis (1992-2000) the Peaking Rate average was 3.5%.

10. From 1996 through 2000 Racine County’s Incarceration Rate (IR) increased 15.4%, from 28.0 persons per 10,000 population to 32.3/10,000. Over the same time, the comparison counties experienced an increase of 40%, from 20.4 to 28.6, and the national rate increased 13.6%, from 19.6 to 22.2. These numbers suggest that while Racine County’s IR exceeds the rate of the comparison counties, the IR is in line with the current national experience.

    Jail Population Growth Trends

11. Projecting future bedspace requirements is a two-stage process. The first stage consists of developing a mathematical forecast of inmates based on historical data. The second stage of the process is the determination of the number of beds necessary to meet forecast demands.

12. A multiple model, historically-based forecasting approach was used to develop projections assuming no adjustments to current policies and programs. The five models utilized monthly and annual jail data for the years 1992 through 2000. The jail’s 2000 average daily population (ADP) of 612 inmates was the starting point for future projections.

13. The average of all the models suggests that the ADP in 2005 could reach 678, increasing to 749 by 2010, 819 for 2015 and 890 for the year 2020.

14. Peaking and classification factors must be added to the forecast numbers to determine bedspace requirements. A Peaking Rate of 3.5% was computed based upon historical information. The classification factor provides for separation requirements caused by short-term situations including inmate segregation requirements (disciplinary and administrative) and the inability to utilize individual cells or living areas due to physical plant problems. A classification factor of 6.0% (5.0% for segregation, 1.0% for unusable living space) is recommended making the combination of peaking and classification factors equal 9.5%.

15. Adding the peaking/classification factor to the projected ADP numbers suggests that Racine County will require 820 beds by the year 2010, approximately 897 beds by the year 2015 and 975 beds by 2020. This projection assumes no adjustments to current incarceration policies. Varying pretrial release policies, improving court operations, adjusting sentencing practices and the like could reduce the projection.

    Jail Population Reduction Programs

16. Programs designed to reduce or limit the growth of jail populations can be separated into three basic categories: 1) those that reduce admissions, 2) those that reduce sentenced lengths of stay, and 3) those that reduce pre-trial lengths of stay.

17. The Racine County Sheriff’s Department currently operates seven programs that reduce jail bed days. Two are outside-the-jail (off-site programs) while the remaining five are in-house programs.

18. The two off-site programs that reduce admissions are Alternatives to Incarcerations (ATI) and Intensive Supervision (ISP) and include more than 420 individuals on a daily basis. A conservative estimate suggests that 20% of ISP and 30% of ATI pre-trial defendants would be ordered to jail if these two programs did not exist, resulting in an increase in the current ADP of 114 persons.

19. The five in-house programs reduce the lengths of stay in the jail rather than reduce admissions or reduce pre-trial lengths of stay in jail.

• The Alcohol and Other Drug Addiction Program (AODA) targets substance abusers for treatment and home release, which reduced the jail’s ADP by 20 persons in 2000.
• The Children First Employment Program targets individuals in arrears of child support obligations and reduced ADP by three persons.
• The Day Reporting Center, initiated in May of 2001, is expected to reduce the jail’s ADP by at least 15.
• The Community Work Service Program reduced the jail’s ADP by two persons in 2000.
• The Inmate Worker Program allows inmates to earn jail credit for helping inside the jail and reduced the jail’s ADP by 13 persons in 2000.

1. The total reduction in the ADP in 2000 resulting from existing programs was 167. If the jail alternative and reduction programs were not operational 60,000 additional annual jail bed days would have resulted.
2. A key element in the success of jail population programs is coordination between the jail and other segments of Racine County’s justice system. A staff person who coordinates the jail’s diversion programs and handles justice system information requests must be dedicated to work closely with jail classification staff and other members of the justice system. The result could be a reduction of an additional 159 or more inmates on a daily basis as shown in Table ES-1.

    

   Table ES-1

   Potential Impact of Alternatives Programs

   

    

3. A straight-line projection suggests that these programs could reduce the forecast number from 890 to 718, translating to a bedspace requirement of 800 for the year 2020, as opposed to historical based forecast figure of 975. The adjusted jail bed requirements are presented in Table ES-2.

    

   Table ES-2

   Adjusted Jail Bed Requirement with Diversions

   

    

4. Opportunities exist for reducing current and future jail populations by 15% - 20%. To accomplish this, the various members of the criminal justice community would need to make a philosophical commitment and financial commitment to alternative programming. For planning purposes a conservative approach could include the following:

• weekend bail hearings by the judiciary
• actions by the prosecutor and defense to expedite pre-trial lengths of stay,
• reduction in rule violation lengths of stay by State Probation, and
• continued support by the courts for the AODA, Children First, and Day Reporting programs.

These actions could result in inmate reductions approaching 10%.

Capacity and Development Options

1. The projected 975 bedspaces projected for 2020 can be reduced to 805 if a philosophical and financial commitment is made to support the alternatives recommended in this report. Through the planning effort, the basic bedspace needs were narrowed to approximately 200 for minimum custody inmates (predominantly Huber) and 200 additional secure bedspaces by 2020.
2. Although the current jail is certified by the Wisconsin DOC to house 650 (excluding the holding cells), the State confirms that this rating was a one-time determination of maximum capacity based on the assumption that a long-term solution to crowding would be implemented.
3. Various options were studied that assumed the "safe operating capacity" of the existing jail should become 450 (as opposed to 650) over time. This would mean that 1/3 of the existing cells would be reserved for single occupancy as recommended by the American Correctional Association and supported as a goal by the Wisconsin DOC. Table ES-3 summarizes the projection of bedspaces compared to the current rated capacity of 650, but with a rated capacity of 450 as the 2010 target.

    

   Table ES-3

   Comparison of Projected Need to Recommended Bedspace Capacity

   

    

4. Four basic concepts were developed to meet the projected shortfall using a combination of alternatives and construction of additional bedspaces. One of these options proposed a combination of implementing the planned State Violator Facility and using limited additional diversion programs. As demonstrated in Table ES-4, the impact of this option seemed to result in an appropriate balance.

   Table ES-4

   Proposed Development Concept

   

    

5. During project meetings, a number of options for meeting future housing needs were discussed. The two options that generated significant discussion are referenced as Options A and B: Option A locates the 204-bed Huber facility at an off-site location, while in Option B the Huber facility remains at the site of the existing jail. Both options can be modified to include the addition of 200 secure beds (four, 50-bed double cell units). For future reference, the options are identified as:

• Option A-1 - Locate the 204-bed Huber facility at an off-site location.
• Option A-2 - Locate the 204-bed Huber facility and add 200 secure beds at an off-site location.
• Option B-1 - Locate the 204-bed Huber facility at the existing jail site.
• Option B-2 - Locate the 204-bed Huber facility and add 200 secure beds at the existing jail site.

1. From an operational perspective, the most pressing problem is the convoluted intake, release, and delivery area. Other problem areas include outdoor recreation space, medical area, program space, and visitation, among other areas. However, to correct the intake and release problem the ground level will have to be reprogrammed and subsequently renovated in order to provide necessary support and planning space, correct design security issues, and replace the existing 24 "holding cells."
2. The preliminary assessment of space requirements reveals the need to reprogram, redesign and renovate approximately 17,300 SF of the jail’s ground level. The new vehicle sallyport requires approximately 2,700 SF. With the removal of the Wheeler Building and the reprogramming of the Huber housing area, a state-of-the-art Intake and Release area can be created and separate the delivery of inmates from goods and supplies.
3. The preliminary assessment of space requirements reveals that a 204-bed Huber facility will require 46,000 – 49,000 SF, depending on an on-site or off-site location. If developed on-site, the County Board Building will have to be removed to make space for the new 4-story mid-rise Huber facility. The new housing is based upon three 64-bed dormitory units for males and a 24-bed housing unit for minimum custody female inmates. In addition to the dormitory housing units, approximately 12,000 new square feet for support areas to the housing will be necessary.
4. The off-site locations could include a new "green-field" site with no existing buildings, thereby permitting a special-built facility. Off-site could also include "brown-field" locations. Existing structures could be included in "brown-field" sites. Many examples of successful conversions for minimum custody facilities exist. If a suitable site can be found, the feasibility of this approach should be seriously considered. In addition, the existing site can accommodate a four-level expansion for the Huber housing.
5. Additional secure beds will be required within five to seven years. Since these beds will be assigned to pretrial inmates, the preferred location would be the site of the existing jail. Population forecasts presented earlier recommended 200 secure bedspaces. Approximately 50,000 to 60,000 square feet will be necessary for 200 secure bedspaces, including support space.
6. The advantages and disadvantages of remaining at the current site or splitting the operation must be considered before embarking on a multi-million dollar construction program. From an operational perspective, the consolidation of all inmates at one site has measurable functional, security, and financial advantages. Support, whether for a security or food service need, is more efficient.
7. However, with any additional expansion of the Downtown detention capability, Racine County will have consumed all available land at the present site. Expansion at the current site will also involve demolition of the County Board facility and the Wheeler House. Future detention needs beyond the timeframe addressed in this study will have to occur at an off-site location.

   The Cost of Confinement

8. The staffing cost of a correctional facility may account for more than upwards of 75% of operating expenses. At this stage of the project, preliminary staffing numbers were developed to provide a general guideline for assessing the operational cost implications of the four described options. The Off-Site Option (A-1) requires approximately ten more staff for the Huber Facility than constructing the 204-bed addition at the existing site. With the 200 secure beds, the staffing differential becomes approximately 14. At an average salary and benefits for Detention Deputies, in annual cost terms, this staffing difference between the two options is approximately $392,000 in favor of the On-Site Option (B-2).
9. Factoring in the assumption that non-staff operating costs will add 25% to the cost of operations, the operational cost premium associated with the Off-Site option is estimated to be $725,000 for the Huber Facility and $986,000 annually for both the Huber and Secure Facilities. An anticipated annual vehicle operating cost of $12,500 and $25,000 should be added to these estimates.
10. In the construction industry, costs are driven by many factors that are difficult for local Government to control. Labor costs generally represent approximately 50% of the total cost and labor rates are very much market-driven. In recent years, labor costs have been rising, reflecting, among other conditions, a competitive economy and a shortage of qualified tradespersons.
11. For the Huber project, the cost of off-site square footage is estimated to range from $108 to $127 in 2001 dollars. To construct a similar-sized, but multi-level Huber addition on-site, this range increases to $153 to $183 per square foot. The approximately 44% higher cost for expanding the existing jail for Huber beds is the general conditions associated with a restricted, urban site and the mid-rise design solution that will be necessary.
12. The secure bedspaces cost more than the Huber beds since Huber inmates can be confined in dormitory housing units. The 200 secure bedspaces should be at least double-occupancy, and can be expected to cost from $33,500 to $50,000 per cell. The final cost will depend upon more detailed planning and design studies.

13. Table ES-5 shows the estimated construction cost for the two options.

     

    Table ES-5

    Preliminary Project Cost Estimates

    

    A 30% factor has been added to the construction estimate to include fees, furniture and equipment, site preparation, and other similar costs. A broad estimate for underground parking (64-spaces) has been included in Option B-2. While sub-surface parking is very expensive, given the extreme shortage of parking in the vicinity of the Justice Complex, this option may be necessary.

14. The choice of options should take into account the annual operating and debt service costs. The annual operating costs are largely staff-driven and Option B (On-site) represents the greatest opportunity to maximize existing staffing resources. Although Option B-2 is the most expensive capital cost due to the problems of constructing on the restricted existing site, the operational savings from Option B, as shown in Table ES-6, offset the higher construction costs.

     

    Table ES-6

    Comparison of Total Estimated Costs for Development Options

    

15. A review of the table confirms the earlier statement that operating cost is the major financial factor to be considered. Even though Option A-2 is approximately $5.6 million less in capital cost than Option B-2, the lower annual operating cost for the On-Site Option yields a average annual savings over five years of approximately $600,000. Within 10 years, the difference in capital cost could be offset by the savings in annual operating cost.

The Racine County Jail opened in 1981 as a 144 bed, mid-rise, podular "indirect supervision" facility. By 1989, the facility had undergone three expansions and reached a design capacity of 394. Double celling of housing units commenced in 1993 and the facility is now fully double celled. This results in a facility rating of 650 beds, a figure that is 64% greater than design capacity. From 1992 to the end of the year 2000, the jail’s average daily population (ADP) rose from 430 to 612, an increase of 42%.

Currently, the Racine County Jail operates at less than the state rated capacity and therefore is not officially overcrowded. However, rated capacity is based on cell square footage guidelines and does not take into consideration deficiencies in the design and layout of various areas. Even at levels significantly below the rated capacity, effective operations are severely compromised. The State’s jail inspection agency, the Office of Detention Facilities, acknowledged the fact that although the facility is rated at 650, "it cannot properly house this number as living areas and support areas were designed to accommodate a much lower number of inmates."

The impact of the facility’s design and capacities on operations was examined with the finding that an operational capacity should be established that would serve as a basis for the planning effort. The American Correctional Association (ACA) Standard 3-ALDF-2C-04 (which provides that approximately one-third of all secure housing be single cell) was recommended as appropriate. This results in a facility operating capacity of approximately 530 beds (450 secure beds, 80 Huber dorm beds).

Inmate Population Breakdown

Typically, slightly more than half of the Racine County Jail’s population are either in pre-trial status or being held for probation rule violations, while county sentenced inmates account for approximately one-third of the facility’s ADP. A majority of the county sentenced population is Huber eligible by the sentencing court, however it is not uncommon for these individuals to have "active holds" from other jurisdictions, a situation that nullifies the Huber privilege. The remaining population includes persons admitted for contempt of court issues including failure to pay child support, those with short-term holds, and persons held for other agencies including INS detainees. A review of jail records revealed a basic inmate profile. While the numbers presented in Table 1-1 are for one specific day, a spot check on other dates revealed the adequacy of the profile.

Table 1-1 Inmate Population Breakdown (608 inmates)

Inmate Custody Profile

To help determine the basic profile of the county’s inmate population security profile, a snap shot of the jail’s inmate population was taken, that placed each inmate in one of the following detainment categories: pre-trial, probation rule violation, county sentenced and the all-inclusive "other" category. Generally, pre-trial inmates and those held on rule violations require medium and maximum security housing, while 90% of county sentenced inmates can be effectively managed in community custody or minimum-security housing. [Note: 135 of 219 County Sentenced inmates were Huber eligible.] In both 1999 and 2000, the County held an average of 27 INS detainees daily. A 2:1 ratio of minimum to secure housing is suitable when planning for these inmates. Using these ratios and adding a 6% classification factor suggests that the facility’s secure bed requirement is no greater than two-thirds of the facility’s average daily population. The remaining one-third could be housed in a lower custody environment including Huber housing.

Inmate Program Opportunities

An impressive array of program opportunities is available to the inmate population. Programs may be classified into two areas: A.) Personal Growth and Development Services and B.) Jail Alternative and Reduction Programs. These programs are designed to help the Sheriff’s Department achieve the mission of attempting to "turn around inmate lives to break the cycle of recidivism." These programs provide inmates with basic living skills, mentoring, counseling, education, and alcohol and other drug abuse counseling. In addition, many programs help to reduce the jail population.

Approximately, 30% - 35% of the inmates currently participate in some program activity with the degree of participation varying from full time, intensive involvement (AODA Program) of least 60 hours per week to once weekly participation (AA) at 2 hours per week.

Personal Growth and Development Services

Services are offered in the areas of academic education, religious services, and counseling. The Racine Unified School District provides instruction for school aged youth, 18 years and younger. Gateway Technical College provides instruction for inmates, who want to obtain a High School Equivalency Diploma (HSED).

The Racine County Jail Chaplaincy Program is responsible for providing religious services and counseling, which includes classes for Anger Management and Life Skills. The full-time chaplain schedules volunteers to assist him with AA, one-on-one counseling, and Bible study.

Jail Alternative and Reduction Programs

The Sheriff’s Department has been aggressively developing and implementing jail alternative and reduction programs since 1997. In partnership with Zimmerman Consulting, Inc. (ZCI), a continuum of programs is provided inside as well as outside the Racine County Jail. These programs incorporate inmate accountability and strong monitoring measures.

The Sheriff’s Department strongly believes that behavior intervening programs are important to reduce recidivism rates. Programs that impact behavior include the Alcohol and Other Drug Abuse (AODA) Program, Children First Employment Program, and Day Reporting Center. The AODA Program provides in-jail intensive treatment for inmates with documented alcohol and illegal substance abuse issues. As a therapeutic program, the AODA Program assists inmates in maintaining a clean and sober lifestyle when released from jail; whereas, the Children First Employment Program and the Day Reporting Center are transitional programs. Staff members supervise inmate activities so that they can transition from jail into the community.

The AODA Program, unique to Racine County, consists of two components. The In-Jail Component provides intensive alcohol and other drug treatment for a minimum of 20 to 30 days. After a court-ordered stay of sentence, the inmate is released to the 9-month After-Care Component for continued treatment and supervision. Those who successfully complete the 9-month After-Care have their original sentence modified to jail time served. Non-compliant participants are returned to jail to complete the time remaining the stay of sentence order. This program began in June of 1998.

The Children First Employment Program provides inmates, who are in arrears on their child support obligations, with job seeking instruction. Program staff members assist inmates in finding employment. Once employment is secured, inmates are transferred to the Huber dorm. After 6-8 weeks of working and with a record of paying child support, a hearing is scheduled with Family Court to allow the participants to be considered for early release from jail. Once released from jail, the Children First Program staff monitor child support payments to ensure that the participants pay child support for 3 consecutive months. This program began in August of 1999.

The Day Reporting Center allows eligible inmates to be transferred from the custody of the secure facility to home detention. Inmates must follow a very strict schedule that requires obtaining and then maintaining employment. Other allowable activities include medical and social service appointments, counseling, community service, and activities that help obtain a valid driver’s license. Each day an inmate serves in the Day Reporting Center equals one jail bed day saved. This program began in May of 2001.

Two jail reduction programs, the Inmate Worker Program and Community Work Service Program, are designed to reward inmates for positive actions; inmates earn credit for working inside the jail or on community projects.

Though most if not all county jails operate an Inmate Worker Program, this program allows approved inmates to work in the jail kitchen, jail laundry or as jail cleaners for jail credit. By state statute, inmates earn one hour off their sentences for each hour worked. Twenty-four hours of work equals one jail day.

Similarly, the Community Work Service Program allows approved inmates to work in the community for specified hours during the day for non-profit organizations. Inmates can provide useful volunteer service to the community and they earn one hour off their sentences for each hour worked. Twenty-four hours equals one jail day. This program began in January of 1998.

The courts may order pre-trial defendants to be monitored by either the Alternatives to Incarceration Program or Intensive Supervision Program in lieu of serving jail time. Although these are jail alternative programs, if found guilty, jail time may be ordered at the time of sentencing.

Alternatives to Incarceration (ATI) provides pre-trial alternatives to adult defendants, who can be supervised or detained in a non-jail environment. The courts order defendants into ATI as a condition of their bonds. Sometimes electronic monitoring is also ordered. ATI monitors defendants according to the bond conditions until time of their adjudication or until the defendant is sent to jail for non-compliance. This program began in 1980, but it has significantly increased in use by the court system. In six years, enrollments increased from 650 (1994) to 1219 (2000).

The Intensive Supervision Program (ISP) supervises pre-trial repeat OWI offenders from time of initial hearing until final adjudication. The courts order defendants into ISP as a condition of their bonds. Non-compliance may result in the modification of the bond conditions. This program began in August of 2000.

Programming in general is not funded out of the Sheriff’s Department budget, but rather results from grants, charitable contributions, and jail bed rental revenues. Oversight and control of the programs is provided through the Sheriff’s Department command structure, although the persons who provide the programming are not employees of the Racine County Sheriff’s Department, and in many instances are volunteers.

A sampling of programs available to the inmate population is presented in Table 1-2.

Table 1-2

Sampling of Program Offerings

Staffing

The Racine County Jail currently has a rated capacity of 650 inmates and a staffing contingent of 127, 65% of whom are detention officers. The remaining 35% include correction clerks, cooks, nurses, etc. If these positions were all filled during the year 2000, at an average population of 612, the staff to inmate ratio would have been 1:4.7. Survey information presented by the Criminal Justice Institute provided a list of five other facilities of similar size. These facilities had an average daily population of 649 inmates and an average staff number of 184, resulting in a staff to inmate ratio of 1:3.5. A staff to inmate ratio of 1:4 is considered to be quite efficient when all posts and other necessary positions are properly covered.

General Observations

The Racine County Jail presents a far less stressful situation than is usually encountered in an overcrowded facility. To a great extent this appears due to a well-defined command structure, a line-staff that properly perform their functions, and an impressive array of program opportunities. The Sheriff and key jail management staff recognizes that their responsibilities extend beyond that of merely "warehousing" the inmate population. However, the facility is operating far above operational capacity, has design flaws that significantly compromise inmate, staff and public security, and is too lightly staffed to properly support inmate movement requirements.

The first step in developing a jail forecast is to document trends and project future volumes. This is obtained by use of historical data that explains the number of admissions to the facility, the computed average length of stay of all those admitted, and the facility’s average daily population. The factors and issues that arise from the following statistical data explain the mathematical forecast:

• County population (growth and demographics);

• County law enforcement personnel;

• County crime statistics (reported crime and arrests);County jail statistics [Admissions (ADM), Average Length of Stay (ALOS), and Average Daily Population (ADP)];

• Circuit Court case filings and dispositions; and,

• Comparisons with five counties of similar population: Brown, Kenosha, Outagamie, Rock, and Winnebago. [Note: These counties have a combined average population of 167,000 versus Racine’s estimated 2000 population of 189,500.]

The Federal Government’s Uniform Crime Reporting (UCR) Program compiles data on selected offenses to gauge fluctuations in the overall volume and rate of crime reported to law enforcement. These Crime Index Offenses consist of the violent crimes of murder and non-negligent manslaughter, forcible rape, robbery, and aggravated assault, and the property crimes of burglary, larceny-theft, motor vehicle theft and arson. [Note: All Index Crimes are classified as Felonies in Wisconsin.] Non-Index Offenses include such crimes as possession and sale of controlled substances, criminal domestic violence, simple assaults, fraud, embezzlement, weapons possession, prostitution, disorderly conduct, driving under the influence, etc, many which are classified as felony offenses. The number of Non-Index Offenses committed in a community far outweigh the number of Reported Index Crimes and provides in conjunction with other situations, the majority of jail admissions. Non-Index Offenders provide a pool of individuals who may qualify for jail diversion programs.

ALOS is the average of the length of stay of all admissions for the year. Unlike ADM and ADP numbers, ALOS is a calculated figure, determined by the following tabulation [(ADP X 365 days) /Annual ADM]. As the large majority of admissions are due to arrests, the primary factors influencing a jail’s ALOS is the time that elapses before an inmate makes bail and the time it takes for a case to be concluded. Also of significance is the number and length of county sentences and the time it takes to rule on probation rule violators. [Note: The ALOS figure is most useful in comparing similar type jail situations, i.e. pre-trial inmates and those held for probation violations account for between 50% and 65% of a jail’s population.] Generally, an ALOS above 20 is considered high for a full service jail.

A facility’s ADP does not account for day-to-day fluctuations in the inmate count. To guard against a shortfall of beds during those periods when a jail’s population exceeds the average, a peaking factor is utilized. Peaking is determined by taking an average of those months (within a single year) that exceed the ADP for that year. The peaking rate is the percentage difference of the peaking number and ADP. [Note: Declining peaking rates generally indicate that high and low end numbers are coming less pronounced. What had been extenuating circumstances is now likely to be the normal situation.]

Between 1992 and the end of the year 2000, the ADP of the Racine County Jail increased 42%, from 430 to 612. This increase resulted from an ADM increase of 17% and an ALOS increase of 25%. [Note: The small decline in ADP between 1999 and the year 2000 appears to be due to decline in ALOS. Had this drop not occurred, the facility’s ADP for the year 2000 would have been 649.] For the nine years included in the data analysis (1992 to 2000), the peaking rate average was 3.5%.

As illustrated by Table 2-13, Racine County incarcerates at a higher rate than the five counties of similar size. [Note: Deleting the INS population from this number reduces the Racine’s 2000 IR to 31 per 10,000.]