Prison study calls for changes to solitary confinement, health care
The Waupun Correctional Institution, the oldest prison in Wisconsin built in the 1850s, sits in the middle of a residential neighborhood (Photo | Wisconsin Examiner)
Under scrutiny over prison deaths and living conditions, the Wisconsin Department of Corrections has received recommendations that aim to improve life in adult prisons, including solitary confinement, suicide watch, mental health care and basic corrections practices.

The study was conducted by Falcon Correctional and Community Services Inc. experts partnering with the Wisconsin Department of Corrections (DOC). The department said it is planning to contract with the consulting firm to create a framework to implement recommendations.
“While the report affirms that DOC is moving in the right direction, it also shows that there is more work to be done,” Corrections Secretary Jared Hoy said in the department’s press release.
In a statement, the advocacy group Ex-Incarcerated People Organizing (EXPO) said the report “confirms what directly impacted people and advocates have said for years: Wisconsin’s prisons are dangerously overcrowded, under-resourced and in desperate need of healing-centered reform.”
Many of the suggested changes will affect the entire correctional system, the agency said. Consultants and staff will work to “reimagine existing space, create new processes and training at five pilot sites.”
In a letter dated July 9, 2024, Hoy told a state Assembly committee that the department planned on bringing on Falcon for an outside review. News of criminal charges against staff at Waupun Correctional Institution over prisoner deaths had broken just weeks before Hoy wrote the letter. The same day, the committee heard testimony about the toll of solitary confinement and other issues in the prison system.
The department and Falcon signed a contract in November 2024, and the Examiner reported in January on details of the partnership obtained through public records requests. Criminal justice reform advocates expressed hope the report would be beneficial but have called for independent oversight of the Department of Corrections. Last week, the department published the 137-page final report, which lists strengths for the department to build on as well as recommendations for improvement.
The report states that while all recommendations are made based on Falcon’s overall review of the adult prison system, “we understand that the majority of recommendations will require funding, often requiring budget approval.”
Susan Franzen of the prison reform advocacy group Ladies of SCI expressed concern about whether overcrowding and staffing shortages will affect DOC’s ability to effectively carry out recommendations.
“Legislators need to help the DOC out by giving them a fighting chance to make these changes,” Franzen wrote in an email to the Wisconsin Examiner.
The report states that the study involved working with DOC officials, gathering data, reviewing policies, statutes and prior studies and conducting virtual workshops with DOC experts and others, including formerly incarcerated people and advocates.
It also included visits to 15 facilities, such as the Waupun and Green Bay prisons, and interviews with staff and incarcerated people.
Suicide watch
Preventing suicide is a pressing concern, the report states in a section that summarized information from mental health-related discussions with staff during mental health workshops and site visits.
One concern is that observation cells are typically in restrictive housing units; in addition, “individuals on observation status are not allowed therapeutic items, visits, phone calls, or recreation,” the report states.
People who pose threats to themselves, or who pose threats to others because of mental illness, may be put on observation.
The report recommends housing people in observation in “more appropriate environments that support therapeutic care and patient safety.”
Over the last 15 years, 59 people died by suicide in Wisconsin prisons, an average of four deaths per year. Suicide watch placements reportedly rose from 1,200 to 1,500 per year to about 2,500 in 2024. In June, the Examiner reported on Victor Garcia, who died due to an attempt to hang himself while he was on observation in a Wisconsin prison.
Psychological services staff decide what items a person can have access to while they’re on clinical observation. Department policy provides a list to use as a starting point, including items like soap, toilet paper and suicide-resistant clothing.
The report described the list as “very limiting,” and the security mat or mattress was observed to be inadequate for most people on suicide precautions. Later on in the report, it suggests replacing small sleeping mats with suicide-resistant mattresses.
Solitary confinement
The Falcon report includes priorities and steps to take on “restrictive housing” in state prisons, where incarcerated people experience “very limited” out-of-cell programming and recreation time, such as:
- Giving people in restrictive housing at least two hours of recreation and/or programming each day, not including out-of-cell time for necessary activities, such as showers
- Reviewing the status, programming and needs of people in restrictive housing every week instead of every 30 days
- Improving cleanliness and removing all graffiti
- Establishing units that are alternatives to restricted housing for people with serious mental illnesses
Incarcerated people in Wisconsin prisons can be put in restrictive housing as a punishment for a violation or when having the person live with the general population would create a serious threat.
An average stay in disciplinary separation — a punishment for committing a violation — decreased from 39.7 days in January 2019 to 27.4 days in April 2025, the report notes. However, this varies by facility, and the latest average published online for Green Bay Correctional Institution is 48.7 days.
The department has begun to address the number of people in restrictive housing and how long they spend there, the report states. However, the number of people placed in restrictive housing has not changed significantly over the last five years.
“High rates of substance use and mental illness among individuals placed in restrictive housing was noted, often contributing to a ‘revolving door’ for this population,” the report stated in the section about mental health insights from staff.
Solitary confinement has potential effects of physical harm, health issues and negative effects on mental health, the report notes.
Solitary confinement is also associated with increased risk of violence towards oneself and suicide, and research shows that solitary confinement as a tool does not reduce institutional misconduct or violence or the risk of recidivism, the report states.
There were 950 people in restrictive housing as of September, 863 of whom were placed there due to a rule violation, according to online Department of Corrections data.
Under a policy that went into effect last May, a placement of over 120 days has to be approved by the assistant administrator for the division of adult institutions, the report noted.
An overcrowded system
All medium and maximum-security facilities in Wisconsin except for Waupun Correctional Institution are over capacity, as of January, the report states. Facilities for men were at 130% of capacity, while women’s prisons were at 166% of capacity. People are living at security levels that don’t fit their classification — for example, a person sentenced to medium-security being held in maximum security, or a person sentenced to minimum-security being held in medium security.
The state building commission took an initial step toward updating the aging and overcrowded prison system last month, when it agreed to create plans for a revamp.
Inconsistency in the department
Leaders and staff at the facility level of the agency felt a lack of autonomy in their day-to-day jobs, the report found. They believe there is “significant and often excessive and unnecessary scrutiny from outside entities.”
But the study also found a problem with “a general lack of uniformity across facilities,” which is creating challenges relating to monitoring, oversight and accountability. It recommends “system-wide alignment” on areas including basic security practices, incident reporting and investigation processes.
The report recommends that the agency take an approach that involves both oversight and collaboration. The goal would be to carry out the strategy of DOC leadership with both efforts from leadership and “input and innovation” from frontline staff, stakeholders and incarcerated people.
A central part of a section called “Back-to-Basics in Correctional Practices” recommends a three to five-day training for all staff about basic corrections practices, such as searches, use of force and out-of-cell time for people in restrictive housing.
The department “has experienced a great deal of staffing changes, with a significant number of the current staff hired during or after the COVID19 pandemic,” the report found.
Strained mental health care
Mental health services were described as strained, according to the section of the report about mental health-related discussions with staff.
That section of the report suggests that an “unsustainable” number of people have been assigned to receive mental health care at least once every six months, and that this interferes with treatment for people who need more intensive care.
Nearly half of all incarcerated people in adult prisons had been classified as needing mental health care as of May 20. It’s a much higher rate than other state correctional departments see, the report states.
Department data shows the agency isn’t fully staffed in psychological services, with a vacancy rate of 19.7%.
About nine in ten incarcerated women were on the mental health caseload. The report also noted that the population of maximum security facilities has a higher percentage of incarcerated people with mental health needs than medium or minimum security facilities.
Other recommendations in the report address medical practices, investigations and intelligence practices, data management and human resources and staffing.
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