From left, Republican state Reps. David Steffen and Ben Franklin and Democratic state Sen. Jamie Wall plans for closing Green Bay Correctional Institution at an Allouez Village Board meeting Tuesday, Aug. 19. (Photo by Andrew Kennard/Wisconsin Examiner)

Now that the Wisconsin budget has called for closing the aging Green Bay Correctional Institution, lawmakers, the governor’s office and the Department of Corrections are having to grapple with how to carry it out. 

“For the first time in ever, we finally have agreements in the Legislature and with the executive branch on how to move forward,” said state Rep. David Steffen (R-Howard) after an Allouez village board meeting last week.

There are unresolved details that will need time to work out, Steffen said, but “we’re moving in the right direction.”

Steffen, state Rep. Ben Franklin (R-De Pere) and state Sen. Jamie Wall (D-Green Bay) spoke to the village board Aug. 19 about plans to close the prison, located in the village adjacent to the city of Green Bay. Gov Tony Evers and DOC Secretary Jared Hoy were invited to the meeting but were unable to come, Allouez Village Board President Jim Rafter said. 

The 2025-27 Wisconsin budget includes money for preliminary plans to  revamp Wisconsin’s prison system and close the Green Bay prison. But what Evers originally proposed and what the document looked like when it reached his desk were far apart.

Pushing for a deadline

Evers originally called for $325 million for a series of projects that would enable the state to close the Green Bay prison in 2029 and transform Waupun Correctional Institution. 

What the Legislature passed — largely written by the GOP majority on the powerful Joint Finance Committee — includes $15 million for prison system construction planning related to the corrections department’s realignment, including closing the Green Bay prison.

When he signed the budget July 3, Evers vetoed the 2029 closing  deadline, arguing in his veto message that the Legislature had rejected his own plan for closing the prison, which also aimed for closure in 2029. The Legislature, he wrote, provided “virtually no real, meaningful or concrete plan” in place of his.

Republican lawmakers criticized Evers’ veto.  In a statement the day that the budget was signed, Steffen said that “only in government would four and a half years be too short of a deadline to finalize the closure of a crumbling building.” 

Republican lawmakers want to restore the deadline. Franklin said at last week’s meeting that he will introduce a bill in the fall to set a closing deadline and wants it to be Dec. 31, 2029. The bill should specify that the deadline could only be extended with approval from the Legislature, he said. 

Wall gave less weight to the impact of  setting a deadline. He pointed to Lincoln Hills, which houses male juvenile offenders. The facility has remained open for years after the original deadline to close it, Wall said, because the Legislature did not take the steps needed to meet that target date.

He also expressed concern that people might leave because of a deadline “that may or may not become real,” exacerbating ongoing staffing problems in the system. 

While the shortage of correctional officers improved after pay increased, vacancies have started rising again. The DOC and prisons across the country have experienced staffing troubles, which can lead to more restrictive conditions for incarcerated people. 

Vacancy rates published by the DOC for correctional officers and sergeant positions in adult prisons climbed to 35% in August 2023. The vacancy rate declined to about 11% in fall 2024, but it has since increased to 17%. At Green Bay and Waupun, it’s over 25%.  

“Historically speaking, from the time that I started there to the time that I left… if 10 new people would start at one point, usually half would quit,” former Green Bay corrections officer Jeff Hoffman told the Examiner last year. “Because they didn’t want to work in that environment.” 

Differences over prison system planning

Franklin said his proposed deadline bill will more specifically state how the $15 million will be spent.

Wall said the DOC is already developing a plan for spending the money, which will go through the state building commission. The plan is to direct the money to the  kind of facility changes that Evers proposed originally, he said.  

Franklin said Republicans will have to be flexible in adopting some of Evers’ proposals to restructure juvenile centers and medium and maximum security adult prisons. He said he doesn’t think everything will be adopted as Evers originally proposed, however. 

Franklin said he also wants to set milestone dates, for actions such as transfers of incarcerated people, which would provide “a barometer of where we’re at” ahead of the closing deadline. 

He said he also wants quarterly progress reports to the Joint Finance Committee.

Steffen said the committee and the Legislature should have the opportunity to see and understand plans and ask questions more than once and have time to deal thoughtfully with the situation instead of “in a pressure cooker budget environment.” 

Wall cautioned against moving too slowly, however. DOC has some projects that could go up for approval early in 2026, he said.

“And time is not necessarily on our side here when it comes to the state budget,” Wall said, noting that if the economy softens, that could affect the state budget. 

According to the Wisconsin Policy Forum, the state could be facing a more difficult budget in 2027 than it has seen in recent years, with recently approved spending and tax cuts using up most of the surplus.

Speaking to reporters after the Allouez meeting, Steffen said that “we are generally in agreement on what to do with the buildings, the expansions at the other facilities and the closure” at Green Bay. 

But he said there will be incarcerated people who need somewhere to go. Republicans and Democrats differ on whether to expand the earned release program — releasing some people before their sentence is completed — or “find the space within the system” to move them, Steffen said. He raised the possibility of having local jails take in prisoners, a tactic the Department of Corrections has used to reduce overcrowding. 

Funding remains uncertain, Steffen added. 

Aging prison system

A 2020 draft report on the Department of Corrections’ website includes information about problems created by the infrastructure inside the aging prisons in Green Bay and Waupun. 

“There are a lot of issues with running facilities that are that old,” Hoy said in April about the Green Bay facility. “We shouldn’t be running prisons in that manner in 2025… We want to do more with our population than what those facilities can afford us to do.”

Prison reform advocates hold vigils outside the prison. Wisconsin Department of Corrections data shows that on average, prisoners at GBCI spend an average of 48.5 days in disciplinary separation, where an incarcerated person may be sent for committing a violation — the most of any prison listed.

While lawmakers push to close the Green Bay prison, it’s unclear what will become of Waupun, the state’s oldest prison, which has attracted scrutiny for a string of prisoner deaths, a lockdown and living conditions. 

The governor’s proposal in February aimed to close the prison temporarily and convert it to a medium-security institution and “vocational village” emphasizing job training and readiness at an  estimated cost of $245.3 million. The provision did not pass the Legislature. 

While Allouez’s Rafter wants to close the Green Bay prison, Waupun mayor Rohn Bishop has called for keeping Waupun Correctional Institution open. 

Bishop has pointed to the economic impact on Waupun and to the city’s history and heritage. In a column in December, he said the city donated the land to bring the prison there, generations of people in Waupun have worked at the prison and local churches have had outreach to incarcerated people.

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• Boosting corrections officers’ pay initially helped address chronic staffing shortages in Wisconsin prisons, but vacancies have been rising again in recent months. 

• Corrections officers say the trend is predictable as new officers, attracted by competitive starting wages, discover the demands of the work. Improving training, safety and workplace culture would help, they say. 

• Some Democratic lawmakers, prisoner rights advocates and even correctional officers argue that reducing the prison population would improve conditions for inmates and staff.

Responding to staffing shortages that imperiled guards and staff, Wisconsin lawmakers in 2023 significantly increased pay for corrections officers — hoping to retain and attract more workers to the grueling job. 

It helped, at least initially. But following significant progress, staffing vacancies are again growing in many Wisconsin prisons. The data support a common complaint from correctional officers and their supporters: The Department of Corrections and the Legislature must do more to retain officers in the long run. Improving training, safety and workplace culture would help, they say. 

Meanwhile, some Democratic lawmakers, prisoner rights advocates and correctional officers argue that reducing the prison population would improve conditions for inmates and staff by reducing overcrowding and easing tensions. 

The two-year budget Gov. Tony Evers signed last week included a small boost in funding for programs geared at limiting recidivism and additional funding to plan the closure of one of Wisconsin’s oldest prisons. But Republicans removed broader Evers proposals that focused on rehabilitating prisoners, and a plan to close Green Bay’s 127-year-old prison includes few details.

“Reducing the number of people we incarcerate in Wisconsin is critical, both because of the harm that mass incarceration does to individuals and communities, and because of the resulting stress from overburdening prison staff,” Rep. Ryan Clancy, D-Milwaukee, told Wisconsin Watch. “Packing more people into our prisons leads to worse services and worse outcomes when incarcerated folks are released back into the community.” 

Wisconsin Watch and The New York Times last year detailed how Wisconsin officials for nearly a decade failed to take significant steps to slow a hemorrhaging of corrections officers that slowed basic operations to a crawl. During that period prisoners escaped, staff overtime pay soared and lockdowns kept prisoners from exercise, fresh air and educational programming, leading some to routinely threaten suicide.  

At Waupun Correctional Institution, staffing vacancies peaked at 56% in February 2024, leaving more positions open than filled.

As aging staff members retired, the state struggled to replace them, particularly after Act 10, a sweeping 2011 state law that gutted most public workers’ ability to collectively bargain for more attractive conditions. Vacancy rates steadily climbed to 43% in the state’s maximum-security prisons and 35% across all adult institutions before pay raises took effect in October 2023.

Following two years of partisan infighting, the Republican-led Legislature approved a compensation package that increased starting pay for corrections officers from $20.29 to $33 an hour, with a $5 add-on for staff at maximum-security prisons and facilities with vacancy rates above 40% for six months straight. 

Within a year, vacancy rates plunged as low as 15% at maximum-security prisons and 11% across all adult prisons.

Rep. Mark Born, a Beaver Dam Republican who co-chairs the Legislature’s budget-writing Joint Finance Committee, credited legislative action with greatly reducing staffing shortages.  

“As I’ve talked to the prisons in my district, they’re happy to see that the recruit classes are much larger and the vacancies are about half of what they were prior to the action in the last budget,” he told Wisconsin Watch. 

Vacancies rise following initial progress

It’s true that vacancies are nowhere near their previous crisis levels. Those include rates in Waupun and Green Bay, where officials previously locked down prisoners during severe staffing shortages. Green Bay now has just over half the vacancy rate it had during the height of the crisis. Waupun has recovered even more dramatically. After plunging much of last year, its vacancy rate has hovered near 20% in recent months.

But vacancies are increasing across much of the prison system, corrections data show. As of July 1, rates reached 26% at maximum-security prisons and more than 17% overall. The department has lost more than 260 full-time equivalent officer and sergeant positions over the past nine months. 

The vacancy rate at Columbia Correctional Institution in Portage, which has the most gaping staffing shortage, reached 41% on July 1, up from a low of 11% a year ago. 

Push to close Green Bay prison

The new state budget appropriated $15 million “to develop preliminary plans and specifications” to realign the Department of Corrections and eventually close the Green Bay prison, whose vacancy rate has grown from a low of 9% last October to nearly 25%.

Republicans proposed closing the prison by 2029, but Evers used his veto power to remove that date, saying he objected to setting a closure date “while providing virtually no real, meaningful, or concrete plan to do so.” 

How a future prison closure would shape long-term population trends may hinge on what replaces the prison. Evers earlier this year proposed a $500 million overhaul to, among other provisions, close the Green Bay prison; renovate the Waupun prison — adding a “vocational village” to expand workforce training; and convert the scandal-plagued Lincoln Hills and Copper Lake youth prison into an adult facility.

Republicans rejected that more ambitious proposal in crafting the bill that became law. 

Closing the Green Bay prison without replacing its capacity might reduce the prison population — and ease staffing shortages, Clancy argues. With less space to put those convicted of crimes, judges might issue shorter sentences, he said. 

“Every time I’ve spoken with a criminal judge, I’ve asked if they are aware of the number of beds available when they sentence someone. They always are,” Clancy said. “And I ask if that knowledge impacts their sentencing decisions. It always does.”

But for now, corrections employees are supervising a rising number of prisoners. The state’s total prison population is up about 7% since the compensation boost took effect. Wisconsin now houses more than 23,400 prisoners in facilities built for about 17,700, with the state budget estimating that number to rise over the next two years.

The Department of Corrections did not respond to multiple requests for comment on staffing trends.

‘How much of your soul can you afford to lose?’

Multiple corrections officers called rising vacancies predictable as new officers, attracted by competitive starting wages, discovered the demands of the work.

“It doesn’t surprise me one bit,” said a former officer who recently left a job in Waupun. He requested anonymity to avoid jeopardizing future employment in law enforcement. “They put a Band-Aid on the problem. They lured people in, thinking they were going to make more money. But the reality is the job hasn’t changed.” 

Even before the raises, it was not uncommon for officers to make upwards of $100,000 as they banked overtime pay while being forced to cover for open shifts. That pay came at a steep cost to work-life balance, said Rich Asleson, a correctional officer between 1997 and 2022, most at the former Supermax facility in Boscobel.

“It’s not a matter of needing more money. It’s a matter of how much of your soul can you afford to lose?” Asleson said. 

Additionally, officers say they feel added risks — whether reprimands, lawsuits or even criminal charges — as news media increasingly scrutinize their actions. Multiple deaths of Waupun prisoners, for instance, resulted in rare criminal charges against the warden and eight other staff members. Officers say they get little support, with a larger focus on penalties and firings than reforming conditions.  

More predictable hours, improved training practices and restored union protections would make the work more attractive, officers said.

“It’s one thing to do a job where you’re getting paid and you’re miserable,” the former Waupun officer said. “But can you imagine doing a job and feeling like you’re not even backed up by Madison? There’s people that are getting into trouble because the powers that be are scared, too. (Leaders) think if they’re ever called to the carpet, they can point to all the people they terminated.”

The officer said veterans, fearing reprisals, are increasingly choosing posts that separate themselves from prisoners and riskier work. They are less willing to train incoming officers due to turnover — seeing that time as wasted if new officers won’t stay long, he added. 

The Department of Corrections should improve training and retention by pairing veteran officers with rookies on shifts to show them the ropes — designating training specialists, he said. 

Waupun mayor: Prison guards go unappreciated

Waupun Mayor Rohn Bishop blames news media for recruiting and retention challenges, saying coverage disproportionately scrutinizes officers without recognizing their difficult jobs. 

“I’m the mayor of a town with three prisons within its city limits. Any time an inmate dies all the TV trucks show up and reporters put microphones in my face,” Bishop said. “But when an officer gets killed or hurt for just doing their job, almost no media pay attention. And I think there’s a burnout because of that.”  

Compared to other front-line workers, correctional officers often go unseen and unthanked, Bishop said. 

“You see firefighters. You see nurses. You see cops. You see these other front-line workers. You don’t see correctional officers because they walk on the other side of the wall. And I just think we don’t appreciate them,” Bishop said. 

Improving conditions for prisoners would simultaneously benefit correctional officers by boosting morale across prisons. That includes expanding the Earned Release Program, which offers pathways for early release to eligible prisoners with substance abuse issues who complete treatment and training — with the potential to ease overcrowding.  Evers’ initial budget proposal included provisions that would have expanded eligibility for the Earned Release Program. The final budget included about $2 million to support programs to reduce recidivism and ease reentry.  

“There needs to be a reimagining of what corrections are,” said the former Waupun officer. “It would make it easier for the inmates and the officers.”

Asleson agreed. “You can’t keep people locked away forever,” he said. “I think it’s about hope on both sides of the fence. If nobody has hope, it shows.” 

Wisconsin Watch reporter Sreejita Patra contributed reporting.

‘Band-Aid on the problem’: Past raises haven’t fully solved Wisconsin prison staffing problems is a post from Wisconsin Watch, a non-profit investigative news site covering Wisconsin since 2009. Please consider making a contribution to support our journalism.