Report of the American Bar Association Delegation
to the Kenosha County Detention Facility

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Holland & Knight LLP
131 South Dearborn Street
Chicago, Illinois 60603-5506
312.263.3600

Report of the American Bar Association Delegation
to the Kenosha County Detention Facility
DATE:

September 10, 2004

This memorandum summarizes and evaluates information gathered at the
Kenosha County Detention Facility (“Facility”) in Kenosha, Wisconsin, during the
delegation’s July 13, 2004 visit to the facility. The information was gathered via
observation of the facility by the delegation and interviews with immigration
detainees (“Detainees”) and detention center personnel.
I.

Detention Standards
In November 2000, the former Immigration and Naturalization Service

(“INS”) promulgated the detentions standards (“Detention Standards”) to insure the
“safe, secure and humane treatment” of Detainees. The standards cover a range of
issues from visitation policies to grievance procedures to food service.

The

Detention Standards apply to detention centers operated by Immigration and
Customs Enforcement (“ICE”) personnel and to other facilities that house Detainees
as part of a contract or intergovernmental service agreement (“IGSA”).
The Detention Standards constitute the minimum requirements for the
treatment of Detainees at ICE facilities. Each field office and/or officer in charge
may also, in his or her discretion, promulgate policies and practices that afford
Detainees rights and protections above and beyond the Detention Standards.
The Detention Standards took effect at ICE-operated detention facilities on
January 1, 2001. ICE intended to phase the Detention Standards gradually into all
of its contract and IGSA facilities by December 31, 2002.

The ABA Commission on Immigration instituted the Detention Standards
Implementation Initiative (“ABA Initiative”), a program designed to tour detention
facilities in order to observe the effective implementation of the Detention
Standards as mandated by the former INS.
II.

The Delegation’s Visit
In connection with the ABA Initiative, a group of attorneys and paralegals

from Holland & Knight LLP ("Delegation") toured the Facility on July 13, 2004, to
determine whether the Facility has implemented the Detention Standards. The
Delegation, consisting of D
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and Jam

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et wi th

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he Facility’s

shift supervisor, and other members of the Facility’s staff for a tour of the Facility,
and interviews with Detainees. This report is based on the observations of the
members of the Delegation during that visit.
At the time of the Delegation’s visit, the Facility housed 394 individuals, of
which 96 were Detainees. At any given time, the majority of the Detainees are men,
with the number of female Detainees generally ranging from five to 12.

The

countries predominantly represented in the Detainee population at the Facility are
Mexico, Cuba, Poland, and Central American, although the female Detainees tend
to be Asian. The duration of Detainees’ stays at the Facility ranges from as short as
five days to as long as several years. For example, one South African Detainee
ended a four and one-half year stay shortly before the Delegation’s visit.
The remainder of the Facility’s population was made up of inmates who have
been confined to the Facility for various criminal offenses (“Inmates”). Although the
3

Facility takes some precautions, as described below, to ensure that Detainees are
not exposed to more serious criminal offenders, Detainees and Inmates are
intermingled throughout the Facility.
Detainees are classified according to the degree of risk they pose. Low-risk
Detainees such as asylum seekers and migrant workers are classified as “Level 1”
Detainees.

Detainees who are not considered dangerous but who have minor

criminal convictions are classified as “Level 2” Detainees. Finally, Detainees that
pose the greatest degree of risk – generally Detainees with combative histories,
violent propensities, or felony convictions – are classified as “Level 3” Detainees.
While the Facility prevents the intermingling of Level 1 and Level 3 Detainees,
except those in segregation, Level 2 Detainees may be intermingled with either
Level 1 or Level 3 Detainees. All of the individuals housed at the Facility, both
Inmates and Detainees, wear orange uniforms.
A “Detainee Handbook” is posted in each dormitory of the Facility.
Individual copies of this handbook are not distributed to the Detainees, although
Officer

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as copies available in his office for review. The Facility’s rules are

posted in both English and Spanish. According to Officer

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he Facility

rules include those in the Detainee Handbook.
One of the most notable features of the Facility is its cleanliness. All of the
areas observed by the Delegation, including the kitchen, appeared extremely clean
and orderly. Facility officials and the Detainees noted that Detainees and Inmates
are responsible for cleaning their dormitory and volunteers help in the kitchen for
which they are compensated.
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III.

Observations of Implementation of Legal Access Standards
A.

Law Library and Legal Materials

The Detention Standards mandate that detention facilities provide Detainees
with “adequate” access to legal materials so that Detainees have the opportunity to
apprise themselves of their legal rights. In addition, detention facilities must
maintain certain legal reference materials specified by the Detention Standards.1
The Facility’s library contains general reading materials, such as donated
books and magazines, but no hard copy legal materials.

Instead, the Facility

provides legal materials on two Lexis-Nexis CD-ROMs. The CD-ROMs, which may
be downloaded to a computer, contain a broad range of immigration law materials,
including case and statutory law. The CD-ROMs are updated at least three to four
times per year pursuant to the Facility’s contract with Lexis. There is no single
Facility official or officer responsible for maintaining and updating the library’s
Lexis-Nexis system. Further, while there isn’t any one individual responsible for
helping Detainees with computer issues, the Delegation was informed that
members of the Facility staff are trying to familiarize themselves with the computer
so that they can help Detainees with computer access.
Although there are other computers in the Facility, there is only one
computer designated for legal research. The Lexis CD-ROMs may be downloaded
directly to this computer.

Written directions for downloading the software and

using the Lexis-Nexis research system are available next to this computer. The
computer, which sits on a stand-alone, movable cart, is typically stored in a
1

Detention Operations Manual, Detainee Services, Standard 1, Section III.C.

5

separate room in the library, which remains open and unlocked during the day. The
computer may be moved virtually anywhere within the Facility at a Detainee’s
request. Most Detainees are allowed to use the computer and the Lexis research
system at any time during the daytime hours, and are not limited in the number of
times they may use the computer and Lexis research system. However, Detainees
in segregation units may only use the legal research system at the discretion of the
Facility staff.
Because the segregation units are located in a separate section of the Facility,
Facility officers will transport the computer to a segregation unit only if the
particular Detainee making the request has an urgent need for legal information,
such as an imminently pending hearing. When considering a request for computer
use from a segregated Detainee, Facility officers take into account the duration of
the Detainee’s stay in segregation. For example, if a segregated Detainee requests
computer use but is due to be released from segregation shortly, Facility officers
generally will not transport the computer to the segregated Detainee.
There is one printer available for printing materials found on Lexis and
Detainees may print legal materials free of charge. Further, Detainees may obtain
photocopies of any legal materials by filling out a request form and paying 25 cents
per copy. However, if a Detainee is deemed indigent, he or she may make
photocopies free of charge, provided the amount of material to be copied is not
unreasonably voluminous. Typically, if a Detainee is deemed indigent, requests for
personal items must be made through and approved by Sister

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the Facility’s

“in house” religious advisor. Detainees may also save legal materials to a computer
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disk provided at no cost by the Facility. Additional computers, paper, writing
instruments, and other office supplies are available at designated areas in the
Facility. The Facility provides free stamps, envelopes, and other mailing supplies to
send out materials related to legal matters. Detainees may store any printed
material and computer disks in their personal lockers in their dormitory rooms.
Although the Delegation did not tour the Facility’s general library, it does not
appear that the Facility maintains either hard or electronic copies of the reading
materials mandated by the Detention Standards. Further, there are no copies of the
Florence Project’s “Know Your Rights” packets in the library.

However, the

Midwest Immigration and Human Rights Center (“MIHRC”) distributes handouts
covering these materials when MIHRC conducts group presentations at the Facility.
Further, there is no separate, private room designated for legal research and
writing as required by the Detention Standards. Lastly, the Facility does not have
copies of the legal reference materials specified on the Detention Standards list.
At least two of the Detainees were not aware of the legal materials available
in the library and had not used the library at all.2 One reported that he was aware
of the presence of legal materials.3

Another Detainee noted that he was not

permitted access to the library, but has been allowed materials upon request and
has been allowed to use the computer.4 One Detainee stated that the Facility’s legal
materials were outdated and that the computer was not readily available.5

2

Detainee interview notes of
Detainee interview notes of
4
Detainee interview notes of
5
Detainee interview notes of
3

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and
. It is not clear whether this Detainee was in a segregated unit.
.
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B.

Group Rights Presentations

The Detention Standards provide that the Facility shall permit authorized
persons to make presentations to groups of Detainees for the purpose of informing
them of U.S. immigration law and procedures consistent with the security and
orderly operation of the Facility.6
MIHRC, a non-profit agency, conducts group rights presentations at the
Facility twice a year. In addition, the Florence Project’s7 “Know Your Rights” video,
which is distributed by ICE, is shown at the Facility every Monday. The Delegation
was told that there is a representative available to answer questions after the
weekly video presentation.
C.

Visitation

The Detention Standards provide that the Facility should allow Detainees to
meet privately with their current or prospective legal representatives and the
applicable consular officials.8 The Detention Standards encourage visitation with
family and friends to maintain Detainee morale and family relationships.9
Therefore, the Detention Standards require each facility to allow visitation and
establish written visitation procedures.10 A minimum of 30 minutes per visit must
be allowed under normal conditions, though the Detention Standards encourage

6

Detention Operations Manual, Detainee Services, Standard 9, Section I.
The Florence Project is a nonprofit legal service organization that provides free legal services to men, women and
children detained by the Bureau of Immigration and Customs Enforcement (ICE). Further information can be found
at http://www.firrp.org.
8
Detention Operations Manual, Detainee Services, Standard 16, Section I.
9
Detention Operations Manual, Detainee Services, Standard 16, Section I.
10
Detention Operations Manual, Detainee Services, Standard 16, Section III.A.
7

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more generous limits when possible.11

The Facility must allow visitation by

immediate family members and other relatives, friends, and associates.12
Each Detainee is permitted one 30 minute, non-contact visit per week.
However, visits with non-legal professionals, i.e. anyone who is not an attorney,
paralegal, or otherwise associated with a Detainee’s legal case, are privileges that
may be taken away.

Detainees who are housed in segregation units for

administrative or disciplinary reasons are not allowed these visits. Detainees may
be visited by up to two individuals during this 30 minute period, but the period may
not be shared with a third visitor. Children are allowed to visit if escorted by a
parent or guardian. Facility staff search each Detainee via an over-the-clothing
pat-down method before and after each visit. Visitors to the Facility must show
valid identification to Facility staff prior to visiting a Detainee.
Visits with non-legal professionals – typically friends and family – occur in
one of the 20 visit stalls located in the Facility’s visiting room. The visit stalls each
contain a glass partition that separates the Detainee from his or her visitor(s) and a
telephone to allow the Detainees and visitors to talk.
A visitation schedule is posted in the lobby area of the Facility. Visitation
hours differ for male and female Detainees.

According to the schedule, male

Detainees are allowed visits between 8:00 a.m. and 11:00 a.m. on Sundays, and
from 6:00 p.m. to 8:00 p.m. on Tuesdays, Thursdays, Fridays, and Saturdays.
However, in one of the Facility’s male dormitories, Friday visiting hours were

11
12

Detention Operations Manual, Detainee Services, Standard 16, Section III.H.1.
Detention Operations Manual, Detainee Services, Standard 16, Section III.H.2.

9

crossed out – it was not clear whether this applied solely to the specific dormitory or
the Facility as a whole. Female Detainees are allowed visits between 1:00 p.m. and
3:00 p.m. on Sundays and from 6:00 p.m. to 8:00 p.m. on Mondays. However, visits
are not permitted on New Year’s Eve, New Year’s Day, Good Friday, Memorial Day,
Labor Day, Thanksgiving, Christmas Eve, or Christmas Day.
Visits by legal professionals such as attorneys, paralegals, and approved
experts are by right and are unlimited in number and unrestricted as to time.
However, a legal professional must provide advance notice to the Facility and must
show proper identification, such as a bar association card, upon entry to the
Facility.

These visits take place in one of ten full-contact conference rooms

designated for this purpose in the Facility. The conference rooms have a door for
privacy, but the walls contain plastic windows so that visits may be visually
observed by Facility staff.

Visiting legal professionals and Detainees are not

physically separated in these conference room. One of the conference rooms is set
up for videoconferencing use, but was not yet available for use at the time of the
Delegation’s visit.

Interpreters and electronic telephonic language lines are

available as necessary for these visits.
While most of the Detainees interviewed were aware of the visitation hours,
at least one stated that he did not know of them.13 Most of the Detainees are visited
regularly by family and/or friends but visits by attorneys and other legal
professionals appear to be relatively rare. At least one of the Detainees stated that

13

Detainee interview notes of

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,

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the visitation policies do not allow for enough visits.14

None of the Detainees

interviewed had ever requested special arrangements for a visit (e.g. a visit outside
of normal visiting hours); therefore the Delegation does not know whether or how
the Facility would accommodate such requests.
D.

Access to Telephones and Correspondence

The Detention Standards require Detainees be allowed to send and receive
correspondence in a timely manner, subject to limitations required for safety,
security, and orderly operation of the Facility.15

General correspondence is

normally opened and inspected for contraband in the presence of the Detainee, but
may be opened and even read outside the presence of the Detainee if security
reasons exist for doing so.16 Special correspondence, which includes all written
communication to or from attorneys, legal representatives, judges, courts,
government officials, the news media, is treated differently.17

Incoming special

correspondence can be inspected for contraband only in the presence of the
Detainee, but it can never be read or copied.18 Outgoing special correspondence
cannot be opened, inspected, or read.19
The Detention Standards also require that the Facility provide Detainees
with reasonable and equitable access to telephones.20

14

In order to meet this

b6
Detainee interview notes of b6 ,
Detention Operations Manual, Detainee Services, Standard 4, Section I.
16
Detention Operations Manual, Detainee Services, Standard 4, Sections III.B & E.
17
Detention Operations Manual, Detainee Services, Standard 4, Sections III.B, E, & F.
18
Detention Operations Manual, Detainee Services, Standard 4, Sections III.B & E.
19
Detention Operations Manual, Detainee Services, Standard 4, Sections III.B & F.
20
Detention Operations Manual, Detainee Services, Standard 15, Sections I & III.A.

15

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standard, the Facility is required to provide at least one telephone for every 25
Detainees and written telephone access rules to each Detainee.21
Generally, Detainees are allowed unlimited use of the telephones between
9 a.m. and 10 p.m. However, calls to anyone other than a Detainee’s attorney are a
privilege that can be taken away. All non-attorney calls are monitored for content
and recorded. In addition, the Detainee is allowed to call his or her attorney, at any
time. While such calls are monitored, they are not monitored for content, and are
not recorded. Guards will take written phone messages for Detainees, as well as
deliver faxed messages from attorneys. Faxed messages are to be delivered the
same day such messages are received, and a copy of the same are kept in the
Detainee’s file.

All collect calls have a $3.95 service charge. Additional charges

include $0.50 per local call; $0.69/minute per Inter-LATA and Intra-LATA calls; and
$0.89/minute per Interstate calls.

Each dormitory has one or two pods, which

usually contain three telephones each. The telephone system has a language line
that provides dozens of foreign language interpretation options.
Several of the Detainees complained that telephone calls are too expensive.22
Most of the Detainees noted that they know how to use the Facility’s telephone
system for incoming and outgoing calls, and that there is rarely a wait for using the
telephones.23 None of the Detainees typically receive incoming calls; so they could
not confirm whether the Facility staff is diligent about delivering telephone
messages to Detainees. However, several Detainees noted that they had not timely

21

Detention Operations Manual, Detainee Services, Standard 15, Sections III.B & C.
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Detainee interview notes of b6
and b6 , b6
23
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Detainee interview notes of b6
and b6
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22

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received faxes at the Facility.24 One Detainee recounted that he had received a fax
from his attorney nearly three weeks after it was sent.25
One of the Detainees reported receiving mail that had been opened, but he
was not sure whether it had been intentionally opened or merely improperly
addressed.26
IV.

Other General Observations
A.

Recreation

The Detention Standards require the Facility to provide Detainees with
access to recreational programs and activities, under conditions of security and
supervision that protect their safety and welfare.27 Every effort is to be made to
provide outdoor recreation facilities, but, if such facilities are not available, the
recreation room must be large, contain exercise equipment, and have access to
sunlight.28 The Facility is required to designate an individual responsible for the
development and oversight of the recreation program.29 According to the Detention
Standards, the recreation area should “offer a variety of fixed and movable
equipment.” Dayrooms at detention facilities should offer “board games, television,
and other sedentary activities.”

Further, cardiovascular exercise should be

available to Detainees for whom recreation is unavailable.
Detainees at the Facility are allowed one hour of recreation, three times a
day.

However, only male Detainees are allowed to use the outdoor recreation

24

Detainee interview notes of
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Detainee interview notes of
26
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Detainee interview notes of b6 ,
It is not apparent whether this Detainee was aware that the Detention
Standards allow the Facility to open Detainees’ mail.
27
Detention Operations Manual, Detainee Services, Standard 13, Section I.
28
Detention Operations Manual, Detainee Services, Standard 13, Section I.
29
Detention Operations Manual, Detainee Services, Standard 13, Section III.F.
25

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facility and, to prevent injury, they are not allowed to run or play ball. Female
Detainees are restricted to the gym, which does not appear to contain any
equipment. The reason given for keeping female Detainees from the outdoor facility
is that it is visible to the male Detainees.
The Detainees noted that daily recreation is permitted depending on the
weather, but that the recreation activities are severely limited.30 The Detainees
reported different information regarding the amount of recreation allowed – one
Detainee noted that recreation was allowed in one-hour increments three times a
day, but another stated that recreation was allowed only one hour per day.31 The
Detainees generally agreed that the lack of equipment severely limited the type of
recreation activities available to Detainees.32 The Detainees noted that recreation
is limited to walking or sitting.33

However, one Detainee noted that indoor

recreational activities include television programs, books, and board games.34
B.

Access to Medical Treatment

The Detention Standards require that all Detainees have access to medical
services that promote health and general well-being.35 The Facility is required to
maintain regularly scheduled “sick call” times, during which medical personnel are
available to see Detainees who have requested medical services.36

The Facility

must also promulgate procedures for emergency medical care.37 If a Facility staff

30

Detainee interview notes of
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Detainee interview notes of
32
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Detainee interview notes of b6
and b6
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33
Detainee interview notes of
34
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Detainee interview notes of b6
35
Detention Operations Manual, Health Services, Standard 2, Section I.
36
Detention Operations Manual, Health Services, Standard 2, Section III.F.
37
Detention Operations Manual, Health Services, Standard 2, Sections III.A, III.D, and III.G.
31

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member is uncertain whether a Detainee requires emergency medical care, he or
she must immediately contact a health care provider or an on-duty supervisor.38

If

a Detainee is diagnosed with a medical or psychiatric condition that requires special
attention, the medical care provider is required to notify the OIC in writing.39 The
Facility has two nurses on staff and a physician visits several times a week. The
Facility does not offer mental health services.
Though the Facility staff stated that all medicines are supplied, the
Delegation heard numerous complaints about the inadequacy of the Facility’s
medical treatment. Several Detainees claimed that they had not received their
individual medications for several weeks and one Detainee noted that he was
informed that he could not have a blood sugar test unless he paid $5.00 for the test.
One Detainee claimed that he has not been administered his AIDS medicine.40
Another stated that he suffers from a hernia that has not been treated.41 Another
Detainee stated that he had been denied medical attention and threatened with
strict detention – meaning that he would be sent to the maximum security facility
in town – if he complained again.42

He did not indicate the reason he needed

medical attention. Another Detainee, who had never required medical assistance
while in the Facility, told members of the Delegation that he knew of a Detainee
who had been sent to a segregation unit for refusing medication.43

Another

Detainee stated that he experiences severe pain caused by dental problems but is
38

Detention Operations Manual, Health Services, Standard 2, Sections III.H.
Detention Operations Manual, Health Services, Standard 2, Section III.J.
40
Detainee interview notes of
41
Detainee interview notes of b6
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42
Detainee interview notes of
43
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Detainee interview notes of b6
39

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often made to wait several days for pain medication.44

At the time of the

Delegation’s visit, that Detainee had been waiting for a month for the INS to
process a required approval for dental surgery.45
One of the Detainees stated that he had been denied a low-salt diet required
for medical reasons.46 In addition, another Detainee disputed the Facility staff’s
claim that dietary needs are accommodated and reported that he had been told to
throw out what he could not eat.47 Detainees with special dietary needs are not
served until after other Detainees are48 served.
Some Detainees noted that they were aware of the procedures for requiring
medical assistance and had never been denied medical attention.49 One of these
Detainees stated, however, that the Facility does not provide interpreters for
medical visits.50
C.

Grievance Procedures

The Detention Standards require that the Facility develop and implement
standard procedures for handling Detainee grievances, and encourage that the
Facility try to resolve grievances informally if possible.51

In addition, translation

assistance for grievances must be provided upon request.52 The Facility is also
required to establish a reasonable time limit for: (i) “processing, investigating, and

44

Detainee interview notes of b6
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Detainee interview notes o
.
46
Interview notes of
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47
Interview notes of
48
Detainee interview notes of
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49
Detainee interview notes of
50
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Detainee interview notes of b6 ,
It was not clear to the Delegation representatives whether an
interpreter could be obtained for a Detainee who spoke no English but needed medical treatment.
51
Detention Operations Manual, Detainee Services, Standard 8, Sections I & III.A.
52
Detention Operations Manual, Detainee Services, Standard 8, Sections III.A.1 and 2.
45

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responding to grievances;” (ii) “convening a grievance committee to review formal
complaints;” and (iii) “providing written responses to Detainees who have filed
formal grievances, including the basis for the decision.”53

All grievances must

receive supervisory review, include guarantees against reprisal, and allow for
appeals.54 Finally, the Detention Standards state that Detainee Handbooks are to
provide an explanation of grievance procedures, including the procedures for
appealing decisions to the ICE, and information on how to file a complaint about
officer misconduct directly with the Justice Department.
Overall, the Detainees were aware of the Facility’s grievance procedures. At
least one of the Detainees who complained about a roommate was satisfied with the
outcome.55 The roommate was removed, and the complaining Detainee suffered no
retaliation.56 However, another Detainee stated that he was afraid to complain
because he felt that complaining would make things worse.57 Also, several of the
Detainees noted that they had never received responses to their complaints.58 For
example, one Detainee noted that he had complained repeatedly about chronic pain
caused by his mattress but that these complaints had not yet been addressed or
resolved.59
One of the Detainees stated that he and other Detainees had recently filed a
joint grievance relating to an incident in which a Facility guard refused to change

53

Detention Operations Manual, Detainee Services, Standard 8, Section I.
Detention Operations Manual, Detainee Services, Standard 8, Sections I and III.C.
55
Detainee interview notes of
,
56
Detainee interview notes of b6 ,
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57
Detainee interview notes of
,
58
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Interview notes of b6 ,
59
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Detainee interview notes of b6
54

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at least one of the televisions in the dormitory to a Spanish language channel.60
The guard was relocated after this incident.
D.

Religious Services

The Detention Standards require that Detainees be provided with reasonable
and equitable opportunities to participate in the practices of their respective
faiths.61 According to the Detention Standards, these opportunities are to “exist for
all [Detainees] equally, regardless of the number of practitioners of a given religion,
whether the religion is ‘mainstream,’ …or other such factors.”

Further, the

opportunities are to be “constrained only by concerns about safety, security, orderly
operation, or extraordinary costs associated with a specific practice.”62

The

Facility’s staff is to make “all reasonable efforts to accommodate” special food
services necessitated by a Detainee’s religion.63
The Facility provides a non-denominational religious service in both English
and Spanish every Sunday.

In addition, the Facility provides counseling via

Christian clergy. Special diets, including vegetarian and pork-free, are available to
Detainees.

While Detainees are permitted to keep a Bible or Koran in their

personal possession, they are not permitted to keep crosses or other religious items.
Four of the Detainees interviewed identified themselves as Christian, two
expressed no particular religious affiliation, and two did not address their religious
beliefs at all. Most of the Detainees were aware that the Facility offers weekly
religious services, but none appeared to attend regularly. One Detainee noted that
60

b6
Detainee interview notes of b6
Detention Operations Manual, Detainee Services, Standard 14, Section I.
62
Detention Operations Manual, Detainee Services, Standard 14, Section I.
63
Detention Operations Manual, Detainee Services, Standard 14, Section III.M.

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he was not sure whether the Facility accommodated dietary restrictions related to
religion and noted that he found it difficult to remain a vegetarian in the Facility.64
It was also mentioned that free Bibles were provided to Detainees but that Korans
had to be purchased.65 While none of the Detainees reported being subjected to
harassment based on his religion, one Detainee noted that the Facility did not allow
him to wear religious symbols or clothing.66
E.

Documents and Supplies

The Detention Standards require the Facility to ensure each Detainee can
obtain photocopies of legal materials when such copies are reasonable and
necessary for the Detainee’s legal proceedings.67 Enough copies should be provided
so that a Detainee can fulfill court procedural rules and retain copies for his or her
records.68 Facility staff are not supposed to read any document that on its face is
clearly related to a Detainee’s legal proceeding.69
Detainees are permitted to keep legal documents in their lockers but a few
Detainees complained that their documents were disrupted during inspections.70
Though some Detainees were aware of the procedures for making photocopies, they
reported different photocopy costs ranging from 15 cents per page to 25 cents per
page.71 Photocopies are made by Facility staff and are usually provided to the
Detainees within 24 to 48 hours of their written request. One Detainee noted that

64

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Detainee interview notes of b6
– the Detainee is a vegetarian for health, not religious, reasons.
Interview notes of b6
b6
66
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Detainee interview notes of b6
67
Detention Operations Manual, Detainee Services, Standard 1, Section III.J.
68
Detention Operations Manual, Detainee Services, Standard 1, Section III.J.
69
Detention Operations Manual, Detainee Services, Standard 1, Section III.J.
70
b6
Interview notes of b6 ,
71
b6
Detainee interview notes of b6
and b6
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65

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his photocopies were returned in a “mutilated” state.72

Detainees reported that

they are allowed three stamps and five sheets of paper per week at no cost, and that
additional supplies were available from the commissary.73

However, several

Detainees complained that the commissary prices for supplies and other items are
too expensive.74
F.

Volunteer Work Programs

The Detention Standards require all facilities with work programs to provide
Detainees with the opportunity to work and earn money.75

Detainees who are

physically and mentally able to work must be allowed the opportunity to participate
in any voluntary work program.76 The Detention Standards require facilities to
permit physically and/or mentally challenged Detainees to undertake “appropriate
work projects.”77
The Detainees’ reports on work programs varied.

At least one Detainee

stated that the Detainees were not eligible for work programs and thus had no
means of earning money.78 However, another Detainee noted that he was aware of
the program, but chose not to participate.79 Finally, another Detainee mentioned
that the only work Detainees are permitted to do is clean the common areas of the
Facility.80
H.

Dormitories

72

Detainee interview notes of b6
.
b6
Detainee interview notes of
74
b6
b6
Detainee interview notes of b6
; b6
and b6
75
Detention Operations Manual, Detainee Services, Standard 17, Section I.
76
Detention Operations Manual, Detainee Services, Standard 17, Section III.A.
77
Detention Operations Manual, Detainee Services, Standard 17, Section III.G.
78
Interview notes of b6 , b6
79
Detainee interview notes of
.
b6
b6
80
Detainee interview notes of
.
73

20

b6

.

The male Detainees are housed in open dormitories with two wings of 32
bunk beds. Female Detainees are housed in one dormitory with 32 bunk beds.
Clothing and linens are changed on a weekly basis, and Detainees each receive
three fresh sets.
Several of the Detainees complained about the sleeping situation in the
Facility dormitories.81

They noted that the mattresses were very thin and

uncomfortable, and that the dormitories were very noisy.82

While no one was

required to sleep on the floor at the time of the Delegation’s visit, it was noted that
there were mattresses on the floor of the female dormitory in case of overload.
Several of the Detainees indicated that they did not know whether they were
classified as Level 1, 2, or 3,83 and some Detainees complained about being
intermingled with Inmates.84 At least one of the Detainees signed a petition asking
that Detainees and Inmates be housed separately.85 However, at least one Detainee
noted that he had never been intermingled with Inmates.86
One of the Detainees relayed an extremely disturbing story about a fellow
Detainee who was housed in a dormitory with Inmates.87 Approximately one week
before the Delegation’s visit, an Inmate forced his penis into the mouth of a sleeping
Detainee.88 The victim reported the incident to the Facility staff and the Inmate

81

b6
Detainee interview notes of b6
and b6
.
b6
Detainee interview notes of
83
b6
Detainee interview notes of b6 , b6
and b6
84
b6
Detainee interview notes of b6 ,
Without knowing the classification levels of the interviewed
Detainees, it is not possible for the Delegation to determine whether the Facility’s intermingling policy is followed.
85
Detainee interview notes of b6
b6
86
Detainee interview notes of
87
Detainee interview notes of b6
b6
88
Detainee interview notes of

82

21

was transferred to another dormitory.89 Currently, the Detainee is attempting to
press charges against the Inmate.90 The interviewed Detainee blamed the incident
on poor supervision by Facility staff and expressed frustration that, even after this
incident, Detainees and Inmates continue to be intermingled without proper
supervision by Facility staff.91

V.

Recommendations
A.

Law Library and Legal Materials

We recommend that attention be given to the legal library at the Facility.
Currently only one computer (with CD-ROM access to LEXIS) is available to all of
the Detainees (and Inmates) at the Facility. This provides a number of advantages
in that (i) it allows access to a large amount of legal material that is
updated periodically, (ii) it does not have the expenses and upkeep requirements
of a "paper" library, (iii) it is mobile, and (iv) it does not take up a great deal of
space at the Facility.
Unfortunately, the detriments of this "one-computer library" far outweigh the
benefits. First of all, it must be shared by approximately 400 Detainees and
Inmates. If there were a demand for the use of this computer, it would be difficult
for access to be had by the Detainees and Inmates because only one person at a time
can use it. Also, most of the Detainees (i) do not speak and/or write English well,
(ii) do not have much, if any, of a formal education, and (iii) have little, if any,

89

Detainee interview notes of
Detainee interview notes of
91
Detainee interview notes of
90

b6

b6

22

experience and comfort with using computers.

Using a computer can be

intimidating to many people, even those who have excellent English skills and postsecondary educations. Using LEXIS to search legal materials for specific
information is difficult, even for many attorneys. There were written instructions
available for use of the computer; however, on our visit we learned that many of the
guards and other staff members of the Facility had only a limited idea, if any, of
how to use LEXIS. As a result, Detainees cannot rely on in-house training on the
use of LEXIS by Facility guards or staff.
All in all, we believe the "one-computer library" only creates the appearance
of offering a legal library to Detainees. Though the cost of maintaining a "paper"
library is probably cost-prohibitive, there must be a better way of providing legal
materials to Detainees. Procuring volunteer attorneys for LEXIS training might be
a viable solution; however, training several Detainees on one computer makes this
idea counterproductive. Also, multiple training sessions would probably be required
because, arguably, the only way to learn how to use LEXIS is to use it, and given
the reduced English and educational skills of the Detainees, a great deal of use
would probably be necessary to adequately train them. We recommend that
Detainees have some access to "paper" legal materials, in addition to computer
access. We believe additional computers should be made available for research and
training should be offered and available to Detainees.

Additionally, "paper"

materials in English and Spanish would be useful. We do not believe that these
recommendation are the perfect solution; however, the current access to legal
materials is extremely deficient and in need of modification.
23

B.

Recreation for Female Detainees

At the time of the Delegation’s visit, female Detainees were not permitted
outdoor recreation. We believe that female Detainees should be given access to
outdoor recreation opportunities.
VI.

Conclusion
While we felt that the Facility was clean and orderly, we strongly believe that

changes must be implemented in the Facility’s law library in order to provide
Detainees with the required access to legal materials.

In addition, female

Detainees should have access to outdoor recreation like the male detainees.

b6

Holland & Knight LLP
131 South Dearborn Street
Chicago, Illinois 60603-550
6312.263.3600

# 2190353_v6-9/10/2004

24

Medical Services
(Health Services – Standard 2)
I. – “All detainees shall have access to medical services
that promote detainee health and general well-being.”
III.I – “In facilities that are not medically staffed 24 hours

, and

TOUR OBSERVATION

b6

Access to Legal Materials
(Detainee Services – Standard 1)
III.A – “The facility shall provide a law library in a
designated room with sufficient space to facilitate
detainees’ legal research and writing…It shall [be
located] in a well-lit room, reasonably isolated from
noisy areas.”
Access to Legal Materials
(Detainee Services – Standard 1)
III.C – “The law library shall contain the materials listed
in Attachment A [to Standard 1]. INS shall provide an
initial set of these materials.
Recreation
(Detainee Services – Standard 13)
III.B(1) – “If outdoor recreation is available at the
facility, each detainee shall have access for at least one
hour daily, at a reasonable time of day, five days a week,
weather permitting.”

,

b6

ICE STANDARD PROVISION

b6

b6

b6

b6

Facility Name: Kenosha County Detention Facility; Kenosha, Wisconsin
Date of Tour: July 13, 2004
Tour Participants:
,
LLP)

(Holland & Knight

SOURCE

There is no separate, private room
designated for legal research and
writing located within the Kenosha
Facility (p. 6, 20-21, delegation)

Delegation
observation

It does not appear that the Facility
maintains either hard or electronic
copies of the reading materials
mandated by the Detention Standards
(p. 6, lines 14-16, delegation)
Only male Detainees are allowed to
use the outdoor recreation facility.
Female Detainees are restricted to the
gym (p. 13, lines 7-9,
delegation/detainees)
The reason given for keeping female
Detainees from the outdoor facility is
that it is visible to the male Detainees.
(p. 13, 10-11, staff)
One Detainee claimed that he has not
been administered his AIDS medicine
(p. 14, l. 18)
One Detainee stated that he suffers
from a hernia that has not been treated

Delegation
observation

Delegation
observation
& detainee
interviews
Facility staff

Detainee
interviews

ICE ESPONSE

a day, medication may be distributed by detention
officers who have received proper training by the health
care provider… Distribution of medication by detention
officers will be according to the specific instructions and
procedures established by the health care provider.”

(p. 14, l. 19)

26