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A roofing accident left a new immigrant paralyzed. Tracking down his employer took ‘detective’ work.

An illustration shows a person lying in a hospital bed with a neck brace, connected to medical equipment, with a window on one wall in the room. A bedside table holds a red cap.
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  • An undocumented construction worker was paralyzed after falling through a roof in Madison in 2023 while working for contractors that lacked Wisconsin worker’s compensation insurance. He waited for months in a hospital while attorneys and state investigators determined who would be held responsible — a common consequence of informal employment arrangements.
  • Wisconsin’s Uninsured Employers Fund ultimately covered the worker’s nearly $1 million claim, including medical care, disability compensation and transportation back to Nicaragua. The fund exists for crises like his, but it does not solve the underlying problem.
  • Construction companies account for a disproportionate share of uninsured employer cases, and many businesses dissolve or disappear before regulators can recover costs. Undocumented workers paid in cash often struggle to prove they were employed, making it difficult to access benefits after serious injuries.
  • The worker’s injury was never investigated by OSHA. State worker’s compensation systems and federal workplace safety investigators rarely coordinate. Advocates say limited reporting requirements, staffing shortages and poor coordination allow many serious workplace injuries to escape regulatory scrutiny.

Juan can no longer walk. A fall through a Madison auto repair shop roof in 2023 paralyzed him from the neck down.

Juan spent two lonely years in Wisconsin health care facilities while his attorneys and state regulators worked out how to cover his medical bills and compensate him for the abrupt end of his working life.

Like many undocumented immigrants working in construction, Juan found the job repairing a sheet-metal roof in Madison through a blurry relationship between a labor recruiter and a general contractor. Neither had the worker’s compensation insurance state law requires.

The Department of Workforce Development (DWD) investigates thousands of employers each year for potentially violating those requirements. In 2024 alone, investigators issued more than 4,400 penalties totaling $8.7 million against employers for operating without insurance. The penalties flow into Wisconsin’s Uninsured Employers Fund, which compensates injured workers while the state attempts to recoup costs from their employer. 

But even identifying his employer after his injury proved difficult, Juan said. Wisconsin Watch is using only part of his name to protect his identity. 

While he eventually received compensation, Juan considers his lengthy hospitalization a cautionary tale both for regulators and for fellow immigrants afraid to ask who cuts their checks for fear of losing work. “Sometimes people just work and work without asking questions,” he said, “and that’s what happened to me.” 

Meanwhile, disconnects between worker’s compensation systems and federal workplace safety investigators can shield dangerous conditions from scrutiny, leaving more workers at risk of life-altering injuries.

A job with no clear employer

Juan, 40, was one of hundreds of thousands of Nicaraguans who immigrated to the U.S. between 2020 and 2025.

Many fled after police responded violently to widespread protests against President Daniel Ortega’s totalitarian regime. Juan said he headed north to support his family back home. 

He waded across the Rio Grande to Eagle Pass, Texas, on an early morning in December 2022. 

After a brief encounter with U.S. Border Patrol officers, Juan joined a nephew in Florida. Eager to work and constrained by his lack of work authorization, Juan fit the target demographic for labor recruiters connecting employers in agriculture, construction and food processing with Florida’s then-booming population of newly arrived undocumented immigrants. 

A recruiter named Angel connected Juan with his first gig: renovating his nephew’s apartment complex. One job led to another, and he soon found himself crisscrossing the Midwest as an itinerant construction worker. 

“One week we’d go to one place in Wisconsin; the next week we’d be in another,” he said. 

The work itself was a blur. “Sometimes we’d work up to 13 hours,” he recalled — usually at an unrelenting pace. Wary of asking questions that could cost him a job, Juan said he never fully knew who called the shots. “That’s the problem,” he said. “You start working and you don’t investigate who owns the company…. Sometimes they don’t think it’s good to investigate.”

Juan still didn’t know his employer’s identity when he climbed onto the auto repair shop’s roof on a cloudy Friday in August. The site supervisor hadn’t provided him with a safety harness, he added, so nothing broke his fall when he accidentally stepped through a sheet of insulation.

He fractured his spine upon impact with the concrete floor below.

Juan struggled to remain conscious as the site supervisor debated whether to call an ambulance. “It seemed like he was scared,” he recalled. “Afraid they would cause trouble for him because I had fallen. I kept telling him, ‘Call someone! Call someone! I’m dying!’” 

Who pays when a worker is hurt?

Confined to a trauma unit bed at University Hospital in Madison, Juan was in a bind.

Among other looming questions, “there was some doubt about who was going to cover the medical bills,” said Gabriel Manzano, an attorney who represented Juan. 

Aaron Halstead, also on Juan’s legal team, estimates that roughly three-quarters of Uninsured Employers Fund claims he pursued over his three-decade career involved undocumented workers. Spanish-speaking worker’s compensation attorneys are few and far between in Wisconsin, and undocumented workers are overrepresented in injury-prone trades.

The types of opaque employment arrangements that left Juan in limbo are especially common among undocumented immigrants, Halstead said.

“They get paid in cash by some guy they may or may not know,” he added, and when disaster strikes, they’re left without an easy way to prove the identity of their employer. 

The state denies a claim if a worker or attorneys cannot gather sufficient evidence to identify an employer, said Jim O’Malley, who directs the legal services for DWD’s worker’s compensation division.


“They need to be able to give us something that establishes a relationship (with an employer),” added Aaron Galarowicz, chief of DWD’s uninsured employers fund unit. “Pay stubs are easy,” he said, “but when they’re paid in cash… that’s a little bit more difficult.”

Tracking down the responsible employer requires a degree of “amateur detective” work, he added. Text messages, worksite photos and cellphone location history can all help solve the mystery, Halstead said — or at least create a clear enough picture to bring a claim to DWD. 

Leads in Juan’s case pointed to two possible employers: Luis Villafuerte, the subcontractor who brought Juan to Madison, and RestoreMasters, a then-Florida-based contractor in charge of the roof repair. 

Neither had worker’s compensation insurance in Wisconsin. Employers sometimes forgo insurance to cut costs, Halstead said. “Some percentage of them end up with injured workers,” he added, “and they hope that no one’s going to do anything about it.”

RestoreMasters, which did not respond to requests for comment, carried insurance elsewhere but failed to get a Wisconsin endorsement on its policy before taking the Madison job, Halstead said.

Not all states offer a fallback. Had he been injured while working for an uninsured contractor while living in Florida, for example, Juan’s only path to compensation would require filing a lawsuit against his employer.

In Wisconsin, however, DWD’s Uninsured Employers Fund could step into the gap as investigators sorted out which contractor to hold accountable.

A million-dollar claim

Passing interactions with fellow Spanish-speaking patients provided Juan moments of comfort during his initial hospital stay. Those connections dried up once he transferred to a medical rehabilitation facility. He had no family or close friends in the area. “I felt alone,” he recalled. “I felt devastated … to not be able to see anyone.”

State investigators reached a decision in February 2024. RestoreMasters was his employer at the time of his injury, DWD determined, so it bore responsibility for failing to secure a worker’s compensation insurance policy in Wisconsin. 

By the time the state secured an agreement with RestoreMasters to cover his ballooning medical bills, Juan had another request: a flight back to Nicaragua. With nobody in the U.S. to care for him, returning was his only viable option. 

The final payout, including all medical costs, compensation for Juan’s injuries and a chartered flight to Managua, reached nearly $1 million. Only one other uninsured employer — a now-dissolved trucking company in Oshkosh — paid a larger sum to the Uninsured Employers Fund in the past two decades. 

Construction dominates uninsured employer cases

Construction firms like RestoreMasters made up a disproportionate share of the uninsured employers that settled with DWD. Roughly one in four businesses that settled with the Uninsured Employers Fund between 2013 and 2023 offered construction or remodeling services. By comparison, the construction industry accounted for one in 14 worker’s compensation claims filed in Wisconsin during the same period, according to DWD data.

But RestoreMasters, a business with a portfolio spanning half the country, wasn’t a typical uninsured employer. “Employers with Uninsured Employers Fund claims tend to be less established than other businesses,” DWD spokesperson Haley McCoy wrote — and difficult to track. 

A quarter of the roughly 150 employers that faced Uninsured Employers Fund claims between 2020 and 2025 have since dissolved, Wisconsin Department of Financial Institutions records show. Some may have reincorporated under a different name. State records list another 20% as “delinquent,” having failed to file required reports or pay state taxes.

Less than half of employers still incorporated in Wisconsin with names matching Uninsured Employers Fund records have obtained worker’s compensation policies since encountering DWD.

State of Wisconsin Department of Workforce Development building facade
The Wisconsin Department of Workforce Development building is shown in downtown Madison, Wis. (Steven Potter / WPR)

Of the more than two dozen businesses Wisconsin Watch contacted about their experiences navigating Uninsured Employers Fund claims, only one responded: a used car dealership on Milwaukee’s South Side owned by former Greenfield alderwoman Linda Lubotsky. 

Her business is among those that have not obtained insurance policies; Lubotsky told Wisconsin Watch that she now runs a one-person operation that isn’t subject to Wisconsin’s worker’s compensation insurance requirement. 

Lubotsky called her business’s run-in with DWD as a “witch hunt,” accusing the former employee who filed a worker’s compensation claim in 2024 of fraud and the agency of failing to act as a neutral arbiter. “I spent $15,000 on attorney fees,” she said, “and I’m currently in the appeal process.”

Employers and employees appealing Uninsured Employers Fund decisions first make their case to an administrative law judge. They can then appeal to Wisconsin’s Labor and Industry Review Commission before taking a case to court. 

When serious injury escapes OSHA scrutiny

Even as the state investigated and settled with RestoreMasters, the company faced no scrutiny from federal workplace safety regulators after Juan’s fall.

Occupational Safety and Health Administration (OSHA) serious injury records from 2023 contain no mention of the incident, and the agency’s enforcement data shows no penalties against RestoreMasters for workplace safety rule violations.

Federal rules require employers to report workplace accidents resulting in deaths, overnight hospitalizations or the loss of a body part, and employers that fail to report injuries can face financial penalties.

“OSHA can barely enforce those penalties,” said Debbie Berkowitz, a fellow at Georgetown University’s Kalmanovitz Initiative for Labor and the Working Poor and a former Obama administration senior policy adviser for OSHA. 

OSHA has six months to fine employers for failing to report serious workplace injuries, Berkowitz said. That deadline, coupled with overwhelming caseloads and a shrinking corps of investigators, allows many cases to fall through the cracks. 

Others aware of Juan’s fall could have reported the incident to OSHA. But Wisconsin DWD has “no established reporting process” for sharing information about Uninsured Employers Fund payouts with the federal agency, McCoy wrote.

That disconnect goes both ways. “OSHA doesn’t double-check worker’s (compensation) records,” said Eric Frumin, health and safety director for the Strategic Organizing Center, a coalition of national labor unions. The agency’s investigations aren’t primarily driven by workplace injuries, he added, so worker’s compensation data would be “a bit out of their wheelhouse.”

Even in states that enforce workplace safety laws through OSHA-approved programs, including Iowa, Michigan and Minnesota, regulators do not use worker’s compensation records, Frumin said. 

But properly reporting injuries to OSHA doesn’t guarantee follow-up investigations, Berkowitz noted. In 2021, for instance, OSHA compliance officers investigated less than 40% of reports of severe workplace injuries.

A long road back

Juan boarded a chartered flight to Managua last fall. The final leg of his return — an eight-hour drive from the capital to his rural hometown — sapped what remained of his energy.

“I arrived home in terrible shape,” he said. “But I made it back.” 

He’ll spend the rest of his life in a house he built with the payout from RestoreMasters. “Nothing fancy,” he said — but with a floor plan he can navigate in a wheelchair. 

Know your rights 

How to research your employer

What is the legal name of the business you work for? Who owns it? Where is it based?

Search Wisconsin’s corporate records here

How to check whether your employer has worker’s compensation insurance

Wisconsin requires coverage for employers with three or more employees or those that pay $500 or more in wages during a calendar quarter. The same requirements apply to out-of-state employers.

Click here to check whether your employer has a worker’s compensation insurance policy.

What to do if you’re injured at work 

Report the injury or suspected work-related illness to your supervisor, human resources department or other designated employer representative.

Get medical treatment as soon as possible. You have the right to choose your own doctor. Get a doctor’s note detailing your work restrictions and give it to your employer.

Click here for more information from the Wisconsin Department of Workforce Development about worker’s compensation benefits and filing a claim.

Wisconsin Watch is a nonprofit, nonpartisan newsroom. Subscribe to our newsletters for original stories and our Friday news roundup.

A roofing accident left a new immigrant paralyzed. Tracking down his employer took ‘detective’ work. 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.

In more states, older people outnumber children

Stars glow above a cabin in Catron County, New Mexico. The county, known for scenery and a dark sky for stargazers, has attracted retirees and now has one of the largest ratios of older adults to children in the country. (Photo courtesy of U.S. Forest Service by Belinda Mollard)

Stars glow above a cabin in Catron County, New Mexico. The county, known for scenery and a dark sky for stargazers, has attracted retirees and now has one of the largest ratios of older adults to children in the country. (Photo courtesy of U.S. Forest Service by Belinda Mollard)

Catron County, New Mexico, may be seeing the future of an aging population today. It has beautiful landscapes that draw retirees who fall in love with the area and want to stay among soaring rock formations and bright stars in dark skies. 

But it’s a tough place to get even minimal medical care. And employees are hard to find, with few young people to hire and support the tax base. It’s a microcosm of the national trend:  By 2034 the whole country may have more older adults than children; Social Security’s retirement fund could be exhausted by 2032, and the nation will depend on an ever-shrinking workforce of young people. 

“For quality healthcare, if you need even an X-ray, you are driving an hour and a half,” said Catron County Manager Deborah Mahler. “We have 900 miles of dirt roads that are not passable when it rains, so you have to have a four-wheel-drive vehicle with a high profile.” 

Some hospital systems send shuttle buses, but it’s not enough and the county would like to offer more medical transportation and attract a local medical practice. But there is little tax base to support either, Mahler said.

Local parks and ranches in the county, which abuts the state line with Arizona, provide world-class elk hunting and beautiful scenery such as the Cosmic Campground’s dark sky sanctuary for stargazers and the Catwalk National Recreation Trail through desert rock formations.

But with parks taking up so much land, there’s not much space for industry that might provide jobs for young families or provide a tax base to help older people, she said. 

There are now 17 states with more people over 65 than children under 18 as of last year. That’s up from 13 states in 2024 and just five in 2020, according to new U.S. Census Bureau estimates to be released Thursday. 

Michigan, New Mexico, South Carolina and Wisconsin are new to the list, which reflects ages as of mid-2025. 

Others may soon see some of the challenges already familiar to places like Sumter County, Florida, where there are almost 8 older adults per 1 child. In McCormick County, South Carolina; Catron County, New Mexico, and Jefferson County, Washington, the ratio is more than 4 to 1. 

Many states are enacting or considering legislation to support older residents: Wisconsin passed laws this year aimed at elder scams and easing the transition from hospital care to rehabilitation, and last year enacted a support program for dementia caregivers. 

New Mexico enacted a Medigap law in March allowing Medicare users to switch plans without insurers denying coverage or charging higher rates based on health status.

South Carolina’s state Senate passed a bill to give larger property tax breaks in February, and the proposal has been caught up in budget negotiations between that chamber and the House.  

Michigan is working on a state plan to help older residents and their families starting next year with a report due July 1 and taking effect in October. 

In 2020, the only states where older adults outnumbered children were Florida, Maine, New Hampshire, Vermont and West Virginia. Since then, besides the four states added in 2025, these states are also on the list: Connecticut, Delaware, Hawaii, Massachusetts, Montana, Oregon, Pennsylvania and Rhode Island. 

Stateline reporter Tim Henderson can be reached at thenderson@stateline.org.

  • June 30, 20264:19 pmThis story has been updated to include more information on a South Carolina property tax bill.

This story was originally produced by Stateline, which is part of States Newsroom, a nonprofit news network which includes Wisconsin Examiner, and is supported by grants and a coalition of donors as a 501c(3) public charity.

Door County is a retirement destination. So why are more older adults still working?

A person wearing glasses carries a stack of wrapped pizzas through swinging doors with round windows.
Reading Time: 11 minutes
Click here to read highlights from the story
  • The trend of older adults staying in the workforce is reshaping what retirement looks like in Door County. 
  • Many retirees seek jobs in the county’s booming tourism industry, offering the chance for them to interact with people, as well as earn extra cash. 
  • A local nonprofit organization matches older adults seeking work in Door County with employers. 
  • Wisconsin Watch and Door County Knock spoke to several people over age 65 who continue to work for various reasons.

When James Carson, 72, retired to Washington Island a decade ago, he envisioned the next stage of his life as many do: leaving the workforce, volunteering, traveling, caring for his family. 

Instead, unexpected medical expenses and the rising cost of living soon forced him to pick up two service industry jobs to make ends meet. Today, he regularly clocks in seven days a week, logging 45 to 50 hours. 

Door County is home to one of Wisconsin’s oldest populations, largely thanks to its status as a serene retirement destination. But like Carson, more of those older adults and retirees are returning to work. Unwilling or unable to quit for good, they’re picking up jobs to afford the rising cost of living, to stay social and to become involved in the community. 

The trend is reshaping what retirement in Door County looks like today as people live longer and life becomes more expensive.

Carson wishes he would have saved more aggressively – he “was kind of naive” about retirement. He also thinks people have false ideas about what it looks like. 

“You cannot live on Social Security, and unless people have a very good retirement plan, they’re going to be hurting,” Carson said. 

Given Door County’s booming tourism industry, many retirees like Carson seek out hospitality and customer service jobs. Even for those not driven by finances, these gigs offer the chance to interact with others. But others simply continue their careers past retirement age or pivot fields.

To meet the demand from job-seeking older adults, local employment services nonprofit We Are Hope runs a program to match them with employers. Executive Director Kim Carley said the organization served more people in the first half of 2026 than it expected for the whole year.

“The need is definitely, definitely there. The majority of it is that social connection, but you do have that small population that financially they need to work still,” Carley said. “Not everybody in Door County is rich. The cost of living has really affected things right now, too.”

Wisconsin Watch and Door County Knock spoke with several workers over the age of 65. Together, their stories create a changing image of what retirement and aging look like today. Keep reading to learn more about their jobs.

James Carson

Age: 72

Job: Bartender

Former career: Amtrak conductor

Town: Washington Island

Why: Money

“Everyone wants to talk to the bartender,” Carson said. “I’m well-suited for the job.” 

A person wearing glasses sits at a counter, looking to the side. Wood-paneled walls and seating are visible in the background.
James Carson poses for a portrait at the bar at Nelsen’s Hall & Bitters Club on June 15, 2026, on Washington Island, Wis. (Heidi Hodges for Wisconsin Watch)

Carson was not always a confident speaker. When he was younger, he stuttered badly. A fifth grade teacher helped correct it, he said, “and I haven’t shut up since.” 

Being well-suited for his job may be a good thing, but Carson did not think he’d still be working at 72 years old, especially not in Washington Island’s demanding summer service industry.

Carson and his wife, Stacey, bought a house there about 10 years ago, after he retired from a 20-year career with Amtrak. Stacey spent summers on the island growing up, and her parents live there now. 

He envisioned volunteering and traveling, and the couple would care for Stacey’s aging in-laws, he said. For the first year or so, that was what he did. Jim served on their church council, worked with a developmentally disabled young adult, volunteered for the island’s nonprofit Art & Nature Center, and gave back to a community he said welcomed them with open arms. 

“Until reality kicked in,” he said. The cost of living, including utilities, groceries and ferry travel, ate away at the couple’s savings faster than they anticipated. Jim needed eye surgery, then knee surgery. 

He quit volunteering and returned to the workforce, where he has remained for the last eight years. Between shifts as a prep and line cook at Nelsen’s Hall & Bitters Club and as a bartender at the Albatross Drive-In tiki bar, he works seven days a week during the busy tourist season.

“I’m working more aggressively this summer to bank against having to continue to work this much next year,” Carson said. But with the fluctuating economy, higher grocery bills and gas prices, that might change. Ideally, he would like to only work for another two years, he said. 

Mentally, Carson enjoys talking to people and has formed good relationships with the island’s youth — the Albatross is a popular hangout spot — but physically, the work takes its toll. The knee surgery made it harder to be on his feet all day and he falls into bed exhausted every night, he said. 

“I’m doing better than most. I hear about folks splitting or foregoing their medications and going to food pantries,” Carson said. “I’m not there yet.” 

A person stands at the front of a building with signs reading “HISTORIC NELSEN’S HALL” and “HOME OF THE BITTERS CLUB.” A table and chairs, a pot with flowers and wooden art pieces sit beneath the covered entrance.
James Carson poses for a portrait outside Nelsen’s Hall & Bitters Club on June 15, 2026, on Washington Island, Wis. Medical expenses and the overall rising cost of living required Carson to start working after he retired about a decade ago. (Heidi Hodges for Wisconsin Watch)

Cindy Good 

Age: 71

Job: Retailer

Former career: Software and business consulting

Town: Sturgeon Bay

Why: Keeps her busy

Cindy Good plopped down on the chartreuse furniture clustered at the front of her store, The Naked Sheep Yarn Shop & Gift Boutique. At 2 p.m., it was her first time sitting that day. 

Good, nearly 72, is exhausted. But she said she’ll continue working “as long as my body will hold out.”

She retired at 70 after a career in software and business consulting. She once thought that she’d work part time at most at her age and take advantage of having more time to read books or catch up on knitting. But before she could do that, she and her sister opened a second venture: a yarn store on the west side of Sturgeon Bay. 

The store sells yarn, knitting tools and other tchotchkes. They also host classes, social knitting groups and crafting events. Good regularly bounces between handling orders for inventory, checking what’s in stock and helping customers with their knitting projects.

A person sits in a yellow chair in a room with shelves of colorful yarn, books and knitting supplies along the walls.
Cindy Good, co-owner of The Naked Sheep Yarn Shop & Gift Boutique in Sturgeon Bay, Wis., poses for a portrait on June 11, 2026. Good, nearly 72, opened the business after she retired. She’ll keep working “as long as my body will hold out.” (Miranda Dunlap / Wisconsin Watch)

“There are days when I wake up and I think, ‘Oh God, why didn’t I just fully retire?’” she joked.

But in reality, she knows why: She feels the need to keep busy. 

If she quit working, her Social Security payments would provide enough money for her to live on. But she recognizes the rising cost of living that influences other working retirees in the area. For instance, no houses in the area are for sale at the price she and her sister bought theirs for. 

“We have friends that have money and they travel and do all that kind of stuff,” Good said. “That was sort of my goal, but I don’t have that kind of money. I was thinking I would do a trip a year or something, but now I’m here.”

Good loves Sturgeon Bay’s tight-knit feel and the downtown location of her business. In mid-June, business had just started picking up as tourism season began. By July, the street will bustle for their busiest month.

Maybe, she considered, once business is where she wants it to be, she might take those yearly trips.

Charlene Keith

Age: 68

Job: Door County Maritime Museum associate

Former career: Grocery distribution

Town: Sturgeon Bay

Why: Social interaction

Charlene Keith never envisioned herself retiring. 

Five years ago, she technically did. But she went right back to work. After two and a half years, she decided to finally slow down — but not fully. 

“If I sat home, I would just drive myself crazy,” Keith said. “I have to be doing something.” 

She reached out to We Are Hope, where MatchUp program leaders recommended a part-time opening at Door County Maritime Museum in Sturgeon Bay. 

Here, she works the front desk, welcomes visitors, sells tickets, stocks the gift shop, keeps tours running on schedule and closes the museum at night. 

It’s a far cry from her grocery distribution career, where she navigated difficult roles and recalled everyone around her being unhappy. Nowadays at work, “everybody’s happy to be where they’re at,” she said. Most of Keith’s co-workers are retirees, too.

“It’s just fun. It makes me believe that it can be done. I thought everybody was unhappy in (their job),” Keith said. “You hear people say if you have a job you love, then it’s not really working, and I thought, ‘Yeah, that doesn’t happen.’”

Keeping busy brings her joy. She enjoys seeing guests’ excitement over the museum’s exhibits.

Keith lives and shares expenses with her sister, so she doesn’t necessarily need the part-time wages to get by. But she sees why finances motivate other people her age. 

“It’s expensive to live, but people are living so much longer,” Keith said. “Unless you’re a millionaire and can travel, what would you do with yourself? I mean, I guess there’s people that sit around and fish for hours every day, but I’m not that kind of person.” 

A person sits in a chair facing a large window overlooking a lakeshore, dock and open water. A rocking chair and small tables sit inside the wood-paneled room.
Lee Engstrom, shown May 28, 2026, works as a lieutenant with the Washington Island Fire Department and is an emergency medical technician and emergency medical responder. At 87, he might be the oldest first responder in Door County, and he said he will continue as long as he is able. Engstrom starts his summer mornings with a cup of coffee at this window at the Sunset Resort, which his family has operated since 1902. (Emily Small / Door County Knock)

Lee Engstrom

Age: 87

Job: First responder

Former career: Factory quality control

Town: Washington Island

Why: Keeps him busy

At 87 years old, Lee Engstrom is almost certainly among the oldest in Door County, according to county Emergency Services Director Aaron LeClair. He may be the oldest first responder in Wisconsin. 

Engstrom is a fourth-generation member of the family that owns and operates Sunset Resort on Washington Island. He grew up in Michigan and spent summers helping his grandparents at the resort. He always dreamed he would end up there full time.

That dream came true when he and his wife, Janet, moved to the island in the late 1980s after he retired from a 30-year career in a factory’s quality control department. 

Engstrom was not ready to stop working completely. He got a job with the local hardware store and did some plumbing work on the island. When he turned 62, he started getting Social Security and quit those jobs, but still needed something to keep busy. 

He became an emergency medical responder, then got certified as an emergency medical technician and joined the island’s volunteer fire department. Today, he spends 80 to 100 hours every two weeks on call as a first responder because he enjoys it. He also does maintenance and odd jobs around the resort.

At 87, he did not think he would still be working, he said. 

“I didn’t think I’d be alive,” Engstrom said. “When is it going to stop? As long as I feel good like this, I’ll just keep going. I have slowed down some, though … I’ve got fake ears, fake eyes and fake teeth. Everything else is original.” 

Unless there’s a rescue call, being on standby doesn’t take much time. Engstrom just needs to be dressed near the emergency services facilities in case a call comes in — easy enough on an island. He’s happy to be one of the responders on call during the day because many of the younger volunteers are working their regular jobs during that time. 

Engstrom focuses on patient care when he goes on calls. His primary objective is to make them feel comfortable and cared for once their medical condition is stable, he said. 

When there is a fire, Engstrom’s primary job is to fill the tender truck — a mobile reservoir that supplies water to hose trucks when fire hydrants aren’t available. Rural departments often use them. 

“I’m too old, and not as agile, to be going around dragging hoses and that kind of stuff,” he said. 

For a while, fewer and fewer new recruits became island first responders as agencies statewide saw dire staffing shortages. But a recent influx of younger people has changed that, he said. 

Financially, he and Janet are doing fine, and they have family who support and help them. But he enjoys his work — especially interaction with patients and knowing he provides a valuable service to his beloved island community. 

When he does stop for good, Engstrom said he might golf more, keep working in his shop and do what he can to help at the resort. He would also continue his daily cruise around the island with Janet, he added. 

“Whatever I’m doing, I enjoy taking the ride with my wife for a cup of coffee,” he said. 

Jeff Gildersleeves

Age: 65

Job: Door County Parks Department maintenance staff

Former career: Manufacturing plant management

Town: Gardner

Why: Money

Jeff Gildersleeves is no stranger to physical labor. The 65-year-old works for the Door County Parks Department’s “mow crew.” The part-time gig lasts from May to October, and he spends his days hauling equipment, mowing, trimming trees, planting grass seed, picking up trash and tackling other tasks to maintain the county’s parks. 

Gildersleeves’ first job as a teenager growing up in Door County was picking cherries and strawberries during summer. He loves the outdoors, and the work suited him well, he said. He went on to obtain a degree in biology and wildlife management, which he used to work for the Department of Natural Resources.

When Gildersleeves and his wife were expecting their first child, he switched careers and took a job at a chemical production and manufacturing plant in Milwaukee. He retired in 2021 and returned to Door County with his retirement benefits and a plan. 

According to Gildersleeves, a local company was offering an Employee Stock Ownership Plan. If he worked there for at least three years, he would receive his full investment and returns, enough to supplement his retirement savings from the Milwaukee job. 

Three months before his three-year anniversary, Gildersleeves got injured on the job. He needed surgery to repair a torn left rotator cuff, and that was it, he said. “I only got 20% of my investment back.” 

Today, the mowing job is replacing that lost income.

“We thought at 66, 67 we’d be able to sit back and enjoy life, but with the economy the way it is, and health insurance costs?” Gildersleeves said. “My wife has some hefty prescriptions. Social Security is not enough to live on.” 

The physical part of the job can be hard, he said. “You think you are physically fit until you’re out there doing it.” 

Beyond the manual labor, Gildersleeves guides younger employees. His supervisors value his experience, and he has a good rapport with the teenagers on his crew, who listen to him, he said. 

Doing something valued and worthwhile is good for his mental health, he said, but he is not sure how long he’ll continue. 

 “Until I’m unable to work anymore,” he said. 

He has a small IRA put away and a pending lawsuit against the Door County company where he was injured, but he said he doubts he will see any settlement money. He knows one thing for certain: He would like to remain in his own home for as long as possible. 

“I don’t want to sell off and go to a nursing home,” he said. “I watched my in-laws do that, and it’s not a good way to live.” 

Kathy Bandstra

Age: 76 

Job: Therapist

Town: Sturgeon Bay

Why: Is fulfilled by her career.

Kathy Bandstra returned to school in her 40s to become a licensed clinical social worker. Her sixth decade began before she paid off her student loans. At 68, she started considering retirement. 

“I retired in June of 2018 because my financial person said, ‘Don’t ever retire in the winter, because that’s too depressing,’” she said. “I followed his advice.” 

By the next month, though, she already returned to work part time for a private practice. A year later, she shifted to volunteer as a hospice worker during the COVID-19 pandemic. Then she moved from Racine to Door County and began volunteering at the area’s Aging and Disability Resource Center.

“I still felt like something was missing … It just felt like I could do more with the skills I had,” Bandstra said. “And I still had the energy to do it. And volunteering doesn’t pay you anything. I like making some money.”

People had told her that it was hard to find affordable mental health services in her new home county. She rented an office in Sturgeon Bay, opened her own business and offered services on a sliding scale to help people afford care. She couldn’t offer her services for so cheap if she wasn’t retired and receiving Social Security, she said. 

Now, at 76, Bandstra regularly sees several clients a day in person and through telehealth. She helps people through distress and trauma with cognitive behavioral therapy and eye movement desensitization and reprocessing therapy.

Continuing to work gives her the freedom to go out to eat, get a new car if needed and cover expenses that pop up outside of bills. If she stopped working, she might have more time for her hobbies — making clay pots, writing her memoir, doing open mic readings. But she would miss feeling helpful to others. She also feels her physical and mental health has improved because she keeps going. 

Bandstra believes people largely have false ideas about what retirement looks like. She thinks “it’s unrealistic to look to retire,” period. If clients continue to see her, she’d like to work into her 80s.

“I don’t know if some people would want someone that’s old enough to be their great-grandma,” Bandstra said. “But the people that stopped coming to me didn’t say that they thought I was too old or anything.”

Miranda Dunlap reports on pathways to success in northeast Wisconsin, working in partnership with Open Campus. Find her on Instagram and Twitter, or send her an email at mdunlap@wisconsinwatch.org.

Emily Small is a reporter for Door County Knock and a Report for America corps member. Contact her at esmall@doorcountyknock.org.

Wisconsin Watch is a nonprofit, nonpartisan newsroom. Subscribe to our newsletters for original stories and our Friday news roundup.

Door County is a retirement destination. So why are more older adults still working? 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.

Can Wisconsin employers check your credit?

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  • Employers must get your permission before they use a third-party company to run a background check. 
  • Employers can use your credit history to make employment decisions, but experts say it’s important to know your rights. 
  • If there’s false or inaccurate information on your credit report, notify the consumer reporting agency that generated the report. 
  • Experts say you can protect yourself by checking your credit report annually and placing a freeze on your credit report to reduce the risk of identity theft.

When you apply for a job, you probably know that your potential employer will check your criminal record. But what about your credit history?

Employers in most states, including Wisconsin, are allowed to run background checks that show your debts, available credit and payment history. Wisconsin Watch asked experts what job seekers and employees should know about this process and their rights. 

We spoke to:

  • Nick Raef, employment attorney at law firm Hawks Quindel
  • Jeff Palkowski, state director of the Wisconsin State Council of the Society for Human Resources Management.
  • Adriana Peguero, assistant city attorney for the city of Madison.

What kind of credit information can employers see?

What questions do you have about jobs and job training in Wisconsin?

Email reporter Natalie Yahr at nyahr@wisconsinwatch.org. We’ll try to find an answer, and we might even write an article about it. But don’t worry: We won’t name you unless you give us permission.

Not all types of background reports show financial information. Those that do typically show your credit accounts, payment history, available credit, bankruptcies, liens and self-reported work history, NerdWallet reports.

The reports do not show your credit score, the three-digit number that lenders, landlords and insurers use to assess how creditworthy you are. They also don’t show your income, birth date, marital status or medical debts. 

Unlike when you apply for a credit card or a loan, this is a “soft inquiry,” meaning it won’t affect your credit score and it won’t be visible to other employers or lenders. 

Can an employer run a background check without my permission?

No. If employers want to use a third-party company to run a background check, they need written permission. That’s because of the Fair Credit Reporting Act, a 1970 federal law created to protect consumers from false information being included in their credit reports. The law requires that an employer provide “clear and conspicuous” notice in a stand-alone document. 

“That means that if they throw the language into the boilerplate of an application, or scribble it in the margins of the position description, or fail to get your consent before pulling the report, then they are in violation of the law,” Raef, the employment attorney, said in an email. The employer can run the background check only if the employee or job applicant signs the document.

If employers want to run a background check later, like if they’re considering you for a promotion, they have to get permission again.

“It’s not the case that if you’re hired by a company that five years later they can go back and use the same acceptance of disclosure from when you were hired,” Raef said.

Notably, the protections of the Fair Credit Reporting Act apply only when employers use another company to run the background check, not when employers use the Wisconsin Circuit Court Access Program (CCAP) or other tools to check a person’s history themselves.

Can an employer use my credit history to make employment decisions?

Yes, though additional restrictions apply in the city of Madison.

If employers see something in the report that makes them choose to take an “adverse action” about your employment (for example, fire, demote or simply not hire), they must give you a “pre-adverse action notice,” along with a copy of your background report, details about the Fair Credit Reporting Act and an explanation of your rights, including the right to dispute the accuracy of the report and get another free report within 60 days. 

“The notice must inform an individual that their decision was influenced by the report, but does not have to clarify what exactly within the report has led to the employer’s adverse decision,” Raef said. That, he said, can “leave individuals with little clarity as to the employer’s reasoning.” 

The employer must allow time for the employee or applicant to respond before sending a final notice indicating the action the employer took. 

Still, Raef said, employers might say they had other reasons for choosing a different candidate. 

“Employers have the leeway to base their decision on a multitude of factors,” Raef said. “Oftentimes it can be really hard to sort of draw out what exactly happened here, and that’s where an employment attorney can be really helpful.” 

In Madison, employers face stricter limits on how they can use credit history. That’s because credit history is one of the 30 characteristics denoted in the city’s equal opportunity ordinance, alongside homelessness, citizenship status, source of income and physical appearance. 

“We have a very large, expansive number of protected classes,” said Peguero, the assistant city attorney. 

Employers in Madison can make employment decisions based on credit history only if one of the following is true: 

  • They can demonstrate that the person’s credit history is “substantially related” to the job.
  • The job requires that the person be bonded and the person’s credit history makes them ineligible. Some jobs, especially ones that involve handling money, valuables or proprietary information, require that employees be covered by a fidelity bond that will reimburse the employer if the employee steals or commits fraud. (Note: The federal government operates a little-known alternative bonding program for people who might otherwise struggle to find work, including those with poor credit. You can learn more about that program here.)

The ordinance applies within the city, so it covers Madison employers. It’s less clear whether it would apply to the growing number of Madison residents who work remotely for employers based elsewhere, Peguero said.

“That analysis would have to be done by the hearing examiner, but it is possible it could extend to an employer that is outside of the city of Madison,” Peguero said.

Why do employers check credit? 

Employers may use credit history to assess how trustworthy or responsible a person is, Raef said. An employer may assume that an employee or applicant who has lots of debt, for example, may be more likely to commit fraud, embezzle funds or accept a bribe, especially if the person is in charge of company funds. 

But Raef questions whether credit reports are useful in most employment decisions. “There’s not clear evidence that credit history is an indicator of an employee’s capacity to perform well in their job,” Raef said, pointing to a 2012 study that found no correlation.

“Someone might have poor credit on paper because of a domestic abuse situation in their home, or because they were born into really unfortunate circumstances that don’t reflect on their ability to be a great employee,” Raef said.

He worries that credit checks will create a “toxic loop” where the people who most need jobs can’t get them, which only makes their financial situation worse.  

“I can see the employer’s side where there are limited and specific circumstances where these checks make sense, but as a broad application, I think that it leads to a lot of unfair employment practices and probably exacerbates existing biases that are systemic within our society,” Raef said. 

A 2023 report by the Urban Institute, a national think tank focused on economic and social policy, echoes those concerns. 

“Research suggests that workers with low wages are among those harmed by preemployment credit checks, in part because workers with low incomes are the most likely to have imperfect credit records,” the authors write, though they note there’s limited data on low-wage workers specifically.

How common is it for employers to run credit checks?

About half of U.S. employers conduct credit checks when hiring for at least some of their positions, according to a 2021 survey by the Professional Background Screening Association.   

Jeff Palkowski leads the Wisconsin State Council of the Society for Human Resources Management. He has worked in human resources in Wisconsin for more than 20 years, mostly in the public sector in Madison. The closest he’s come to an employment credit check was when a friend applied to work at the FBI. 

“Anecdotally, I have heard of instances where a credit check may be part of the pre-employment process, but only in rare cases … Personally, I have never filled a role that had a pre-employment credit check as part of the recruitment process,” he said. 

Do all states allow employers to do credit checks?

No. As of 2023, 11 states had restricted the practice, according to the Urban Institute. Wisconsin has no state law restricting these checks.

What can I do if I think my credit report is wrong or if I think an employer used my credit history illegally?

If you believe there is a mistake on your credit report, you can dispute it by contacting the consumer reporting agency whose report showed the mistake. The agency must investigate. 

“If they can’t verify the accuracy of the information, then they have to remove it,” Raef said.

If you believe an employer used your credit history inappropriately, Raef recommends contacting an employment lawyer. 

“If they fail to notify you of a negative decision based on a report, or if they refuse to identify the source of the information that they obtained about you, or if they fail to get your permission at all, then you might be entitled to recover damages,” Raef said. 

If you or the employer is located in Madison, you can also file a complaint with the city of Madison’s Department of Civil Rights, which investigates alleged violations of the city’s equal opportunity ordinance. You must file the complaint within 300 days of the incident. 

Complaints are far less common than allegations of other kinds of employment discrimination, Peguero said. Of the 805 employment complaints submitted to the office between 2020 and 2025, just eight mentioned credit history.

How can I protect myself?

There are proactive steps you can take now to reduce the chance that a credit check will cause you unnecessary trouble.

 “You shouldn’t wait until you have signed something allowing your employer to look into this,” Raef said. 

He recommends the following actions:

  • Request your own credit report to check for errors. You can do this for free once a year at www.annualcreditreport.com. If you find a mistake, report it. 
  • Place a freeze on your credit report to reduce the risk of identity theft, which can damage your credit. A credit freeze blocks anyone from opening a new credit account in your name. You can place a freeze for free online, but you’ll need to do it separately for each of the three nationwide credit reporting agencies: Equifax, Experian and TransUnion. You’ll need to lift the freeze any time you want to apply for credit. “It’s kind of a pain … but it’s worthwhile to do with the amount of pain that it could cause if not done,” Raef said.

Natalie Yahr reports on pathways to success statewide for Wisconsin Watch, working in partnership with Open Campus. Email her at nyahr@wisconsinwatch.org

Wisconsin Watch is a nonprofit, nonpartisan newsroom. Subscribe to our newsletters for original stories and our Friday news roundup.

Can Wisconsin employers check your credit? 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.

‘Second chance’ bonds show promise. Few Wisconsin businesses use them

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  • Fidelity bonds protect businesses if an employee steals or commits fraud. 
  • The state issues the bonds, and research shows they’re one of the most effective ways to persuade employers to hire people with criminal records.  
  • But Wisconsin issues few fidelity bonds. 
  • Experts are divided on the issue, with some saying the free insurance can’t hurt and might help. 
  • Others say it doesn’t address all the concerns employers have or educate them about the benefits of giving people with criminal records a second chance.

For every 10 people released from Wisconsin’s prisons, just seven find jobs within two years — even as the state’s ongoing worker shortage leaves many employers scrambling to find the help they need. 

The struggle isn’t unique to Wisconsin. Formerly incarcerated people nationwide are far more likely to be unemployed than the general population. One reason: Though people with criminal records often outperform their colleagues, many employers worry they’ll be unreliable or even dangerous. 

That’s why, 60 years ago, the U.S. government began insuring employers against that risk, for free. 

The Federal Bonding Program, established in 1966, offers “fidelity bonds” to reimburse businesses for losses if the covered employee steals or commits fraud. 

Recent research suggests these bonds are one of the most effective ways the government can persuade employers to give jobs to people with criminal records. Those jobs have ripple effects.  Families become more financially stable, communities become safer — as people with jobs are less likely to commit new crimes — and taxpayers save money as fewer people return to prison.  

So why aren’t Wisconsin employers requesting these bonds? While some states issued hundreds last year, Wisconsin issued just three — even though an estimated 1.4 million Wisconsinites have a criminal record. 

Demand in the state is so low that when the federal government in 2019 offered Wisconsin $100,000 to spend on bonds, workforce officials used just $15,000.

To figure out what’s going on, Wisconsin Watch spoke to economists, insurance experts, criminologists and workforce development officials, who ranged from enthusiastic to cynical about bonding. 

Some said the coverage limits may be too low to address employers’ worries, or that bonds don’t help when employers are worried about safety or a bad work ethic. Some said employers overestimate the risk of hiring people with criminal records and that education — not insurance — is the solution. But most said offering this free insurance can’t hurt and might help. 

In a worker-strapped state, is this insurance program a little-known lifeline or an irrelevant relic? 

Bonding basics

Imagine you’re a hiring manager who wants to offer a job to an applicant with a criminal record. If you’re in the same boat as many businesses, your commercial insurance may not cover any theft or other act of dishonesty if the employee in question has a criminal record. 

To fill that insurance gap, you contact your state’s bonding coordinator to apply for a six-month, no-deductible fidelity bond that will reimburse you for up to $5,000 in losses. In special circumstances, you can apply for additional coverage of up to $25,000. The state handles the paperwork and the $100 cost. 

The program boasts a claim rate of just 1%, meaning businesses in the program seldom report losses. At the end of the six months, you may now be satisfied that your new employee is trustworthy — or you can buy additional coverage. 

In Wisconsin, these bonds are the only incentive available to encourage what’s often called “second chance” or “fair chance” hiring.

Formerly incarcerated Wisconsinites more likely to be jobless

About 3 out of 10 people released from Wisconsin prisons in 2023 were not employed within two years.

In comparison, only 3 out of 100 people in Wisconsin’s workforce were unemployed.

Source: Wisconsin Department of Corrections

Formerly incarcerated Wisconsinites more likely to be jobless

About 3 out of 10 people released from Wisconsin prisons in 2023 were not employed within two years.

In comparison, only 3 out of 100 people in Wisconsin’s workforce were unemployed.

Source: Wisconsin Department of Corrections

Formerly incarcerated Wisconsinites more likely to be jobless

About 3 out of 10 people released from Wisconsin prisons in 2023 were not employed within two years.

In comparison, only 3 out of 100 people in Wisconsin’s workforce were unemployed.

Source: Wisconsin Department of Corrections

“It is a unique tool to help a job applicant get and keep a job,” the state’s Department of Workforce Development says on its bonding webpage. “It is like a ‘guarantee’ to the employer that the person hired will be an honest worker.” 

The same bonds are also available to other job applicants whose background could make it hard to get or keep a job. That includes people in treatment or recovery for alcohol or drug addictions and people with little or no work history. 

In practice, the program is almost exclusively used for people with criminal records, according to program administrator Kevin Kulling. 

Wisconsin focuses much of its outreach effort on prisons, making sure people know how to take advantage of the program when they get out. The stakes are high: Of those released in 2023, nearly 1 in 3 were rearrested within a year and 1 in 8 ended up back behind bars. 

Recent research backs bonds 

Governments have tried a variety of ways to persuade employers to hire people with criminal records. 

Nationally, there’s the $2-billion-a-year federal Work Opportunity Tax Credit, which rewards employers for hiring people with felony convictions. But new research finds the tax credit doesn’t increase pay or hiring for the workers it’s designed to help. It expired in December but could be reinstated.

Meanwhile, a growing number of states have tried to boost job seekers by barring employers from asking about criminal records on job applications. In about a dozen states, public and private employers are subject to such “ban-the-box” measures. 

Evidence is mixed. Several studies find these laws reduce hiring for Black and Hispanic men, suggesting that when employers can’t check an applicant’s criminal record, they instead make assumptions based on demographics.

Enter the bond, a policy that predates the others by decades. In 1975, the U.S. Department of Labor commissioned a study of the then-new program. Participating workers reported major salary increases after joining the program, and a majority held on to their bonded job longer than one year. 

New evidence supports the program. In a 2023 article, researchers from the National Bureau of Economic Research teamed up with an online hiring platform to survey businesses. The platform asked users about their willingness to hire people with criminal records and how that might change if the platform offered wage subsidies or insurance coverage. 

Researchers found employer willingness to hire someone with a criminal record rose 12% when offered up to $5,000 in crime and safety insurance. It would take an 80% wage subsidy to get the same result. 

Mitchell Hoffman, an economics professor at the University of California-Santa Barbara, co-authored that study. He said policymakers have often tried to solve these hiring challenges by trying to change the workers, like with training or therapy. This research suggests it’s possible to change employers’ behavior, too.

That matters, he said, because employers hold the cards. “If firms don’t want to employ people with a record, then it’s hard to move them to employment and to good jobs,” Hoffman said.

The findings are welcome news to Jen Doleac, executive vice president of criminal justice at the philanthropy Arnold Ventures and author of the book “The Science of Second Chances: A Revolution in Criminal Justice.” Doleac, who researches crime and discrimination, was surprised when she first learned about the Federal Bonding Program.

“It’s such a smart idea. Employers say they’re worried about the risk of hiring someone with a record. How do we deal with risk? We provide insurance,” Doleac said. A critic of the Work Opportunity Tax Credit, she said the new research shows why bonds are a better bet. 

“Insurance just moved the needle more, and much more dollar for dollar,” Doleac said.   

Experts divided

Even in states issuing hundreds of bonds a year, that’s just a fraction of those released from prison annually, and a smaller share of all people with criminal convictions. 

“The total number of firms nationally that were involved, it seemed like a very small number,” Hoffman said. “There's interesting variation across states, but overall, just not that much usage.”

Just 27 Wisconsin employers participated in the program in the last five years, according to federal records obtained by Wisconsin Watch. Those businesses range from national retailers like Dollar Tree to smaller agricultural businesses like Rine Ridge Farms. 

Why haven’t bonds proven more popular? Wisconsin Watch asked more than a dozen Wisconsin businesses and industry groups about their experience with the Federal Bonding Program. Just one responded, and none agreed to answer questions. 

Hoffman thinks maybe employers just aren’t that worried, or that the risk they’re worried about isn’t covered by the bonds. They may worry the applicant will be unreliable or even dangerous, despite evidence to the contrary. In a 2021 survey by the Society for Human Resource Management, more than 80% of business leaders said second-chance hires perform the same as or better than other employees. 

“If someone does something bad to a customer,” Hoffman said, that customer might sue, or customers might take their business elsewhere. Bonds don’t cover that risk. “That is very difficult to quantify. What is the cost of that sort of event?”

Another possibility, Doleac said, is that employers don’t know about the bonds. Some states may be doing more to get the word out than others, but marketing costs money that state workforce departments may not have.

The more likely explanation, she said, is that the process is too cumbersome for employers who are used to buying insurance that covers all their employees. Although job applicants and employers do not have to complete any paperwork to get a bond, employers still need to keep track of the policies that were issued to a specific employee. 

“It’s just too inconvenient and too much paperwork to keep track of,” Doleac said. She and her colleagues are exploring whether standard policies could include riders covering these workers, without a separate process or schedule. 

Meanwhile, some advocates for formerly incarcerated people worry that the bonds can backfire, making employers worry even more. 

Craig Coleman, a case manager for Forward Service Corporation, helps formerly incarcerated Wisconsinites get trained and find work. He doubts bonds will help them. 

“You’re saying to your employer, ‘If I steal from you, then you'll be reimbursed,’” Coleman said. “I’m not an HR person, but if I had someone come in with an insurance policy saying, ‘If I steal from you,’ that’s the end of the conversation. I'm not hiring you.”

Genevieve Martin of Talent Nova agrees. Before starting a website designed to help formerly incarcerated people prepare for the workforce, she worked at Dave’s Killer Bread, which built its brand on hiring people with criminal records. 

There, she trained more than 50 other companies on “fair-chance hiring,” teaching them that hiring people with criminal records isn’t risky. Talking about extra insurance policies undermines that message, she said.

“Rather than hiring the person because they’re the best person for the job, but they happen to have a record. Now we’re trying to say, ‘Here’s an insurance policy. Please do it,’” Martin said. 

The fact that Wisconsin employers seldom use fidelity bonds might even be a good sign. The state has unusually strong organizations that prepare applicants for work and match them with employers, said Josh Morby, who represents such groups as spokesperson for the Wisconsin Workforce Hub. If those organizations are doing their jobs well, employers will trust their participants — no insurance policy necessary. 

“Wisconsin employers are looking for candidates who are screened, prepared and supported so hiring justice-impacted talent becomes a reliable workforce solution, not a risk,” Morby said in an email.

Wisconsin bond use lags 

The bonding program’s popularity varies among states, according to data Wisconsin Watch obtained from the U.S. Department of Labor’s Employment and Training Administration. In 2025, New Jersey issued 277 bonds, and Washington, D.C., issued 192. 

Meanwhile, 12 states didn’t issue any in 2025. 

Wisconsin Watch requested interviews with workforce officials in New Jersey, Tennessee, Washington, D.C., and West Virginia to learn why employers there are using more bonds. None responded. A U.S. Department of Labor spokesperson also declined an interview. 

One possible explanation for the higher numbers is that those states have higher unemployment rates. But Wisconsin’s unemployment rate was at a historic low in 2018, when the state issued 27 bonds, more than 12 times as many as it did in 2025. 

In 2019, Wisconsin workforce officials requested the maximum $100,000 federal grant to buy more bonds. They said they planned to buy 1,000 bonds over four years, plus more with other funds. They estimated more than 5,500 Wisconsinites with criminal records were eligible. The bonds, they said, would help break “the cycle of recidivism.”

But the COVID-19 pandemic — which shuttered businesses and locked down prisons — derailed the state’s plans. 

“With the unemployment rate at an increased rate in Wisconsin, many recruitment efforts for employers to use Fidelity Bonds (have) slowed,” officials wrote in each quarterly grant report from April 2020 to February 2021.

When the grant period ended in 2023, Wisconsin had issued just 59 bonds. Officials wrote that, despite their outreach efforts, their bond numbers were “extremely low.”

The bond’s popularity has since further waned. In each of the last two years, Wisconsin issued no more than three bonds. Department spokesperson Haley McCoy attributed that to the state’s tight labor market. 

“Given the strong demand to fill vacant positions, employers have not needed the added incentive of fidelity bonds to hire justice-involved employees during this historically strong economic period,” McCoy wrote in an email to Wisconsin Watch.

Asked whether the Department of Workforce Development plans to make any changes to Wisconsin’s bonding program, McCoy said the bonds are “just one tool in the toolbox that can help a job seeker secure a job.” 

“We’ll continue to work with our partners to provide opportunities and prepare job seekers and workers for their next opportunity in Wisconsin,” McCoy wrote.

From a job market ‘hidden force’ to a lever against bias

Meanwhile, Arnold Ventures researchers are trying to figure out how to get more businesses across the country to use federal fidelity bonds or something similar. 

Criminal justice director Carson Whitelemons has been studying ways to improve the federal program. But she said just trying to understand how bonding works and how it fits with existing business policies can be “incredibly difficult.”

“Even for business owners who are trying to ask their insurers what is covered and what is not covered, it's not always clear, and often that realm of uncertainty, I think, is what makes employers cautious,” Whitelemons said.

But it’s not just about bonding. The work is part of a new effort she’s organizing with experts from a variety of fields, trying to understand the biases that can keep people from getting all kinds of coverage and how to fix them.  

“(Insurance) is such a powerful lever in terms of what people feel safe or empowered to do, what they feel protected from. This has come up again and again in terms of different issues in the United States, in home ownership and redlining — insurance is often this hidden force, especially in areas where there is stigma or discrimination.”

Hoffman, the HR economist, said if more employers use bonds, that could help dispel misconceptions about people with records. 

“Employers … think they’re less productive than they actually are,” Hoffman said. That’s not the problem bonds are designed to solve, but if bonding gets more employers to hire these applicants, the experience may change how they view similar applicants in the future, he said. 

Meanwhile, officials from Wisconsin’s Department of Corrections will continue teaching prisoners about these seldom-used bonds and encouraging them to pitch the opportunity to their potential future bosses — for better or worse.  

Hongyu Liu is a data investigative reporter for Wisconsin Watch. Email him at hliu@wisconsinwatch.org

Natalie Yahr reports on pathways to success statewide for Wisconsin Watch, working in partnership with Open Campus. Email her at nyahr@wisconsinwatch.org.

Wisconsin Watch is a nonprofit, nonpartisan newsroom. Subscribe to our newsletters for original stories and our Friday news roundup.

‘Second chance’ bonds show promise. Few Wisconsin businesses use them 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.

New Wisconsin Watch tool makes statewide layoffs easier to track

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Wisconsin Watch has launched a new, searchable dashboard to track layoffs across the state — the latest release in a broader rollout of news applications, which began this week with a national immigration court data tracker.

The Wisconsin Department of Workforce Development (DWD) maintains a public dataset of layoff notices submitted by employers; our tool aims to make that information more accessible and to highlight statewide or county-level patterns. The tool draws from data dating to 2018 and allows for searches by employer, industry, county and year.

These tools can always be improved, and we welcome questions, suggestions or feedback. If you or your organization find a way to use these tools, please tell us about it.

We’ll release a few more new tools in the coming months, so keep an eye out.

New Wisconsin Watch tool makes statewide layoffs easier to track 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.

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