Featured Issue: Immigration Detention and Alternatives to Detention
Update: On March 14, 2025, AILA released a statement in response to the Trump Administration resuming the practice of detaining families pending their court proceedings in the detention facility in Karnes County, TX, and indicating its plans to use a second facility in Dilley, TX, for family detention.
AILA calls on Congress to significantly reduce and phase out the use of immigration detention for immigration enforcement purposes. Detention is costly, leads to inefficiencies in processing cases, and has a long track record of human rights abuses. Community-based case management services and legal representation is more humane and should be offered to noncitizens to support their compliance of immigration obligations.
Contents
By the Numbers
- Book Outs/Books In: The Office of Homeland Security Statistics provides data on the number of migrants who are released from CBP custody to proceed with removal cases, transfers to ICE detention, and transfers to Health & Human Services (HHS). It also provides initial book-in data on ICE detention.
- Detention: For FY2024, Congress has provided funding to detain a daily average of 41,500 noncitizens at a cost of approximately $3.4 billion. During FY2023, Congress provided funding to detain a daily average of 34,000 noncitizens at a cost of approximately $2.9 billion. A December 2024 ICE memo in response to Congressional requests for information noted that increasing detention capacity by more than 60,000 beds will require a funding increase of approximately $3.2 billion dollars.
- Current Population: Per ICE, on December 8, 2024, there were 39,062 people in custody and on January 22, 2025, there were 39,703. For future data, see bi-weekly data posted on the ICE website under “Fiscal Year 2025 statistics” here.
- Daily Costs: Projected average daily costs of detaining an adult noncitizen: $164.65. The actual cost of detaining a noncitizen varies based on geographic region, length of detention, facility type, etc. A recent ICE memo in response to the costs of expanding detention noted that they expect a 5% inflationary increase from FY2024 enacted bed costs.
- Deaths at Adult Detention Centers - AILA supplies a continually updated list of ICE press releases announcing deaths in adult immigration detention. Note: there can be delays in ICE’s reporting of deaths and there have been instances of seriously ill individuals released from ICE custody, whose deaths are not included in this list.
- ICE Alternatives to Detention: For FY2024, Congress provided approximately $470 million in funding for ICE’s Alternatives to Detention (ADT) program. This is an increase from approximately $443 million in FY2023 in which 194,427 people were enrolled.
- Daily Costs of ICE ATD: Average daily cost for participants enrolled in ICE’s Intensive Appearance Supervision Program (ISAP): $8.00
- Community-Based Case Management: The FEMA/CRCL Case Management Pilot Program (CMPP), also known as the “Alternatives to Detention Grant Program,” received $15 million in continued funding for FY2024. Prior to January 20, 2025, it was operating in five cities.
- Average daily cost of providing case management for individual family members by a community-based organization (2018 pilot): $14.05
- Legal Representation: There is no right to a government-provided attorney in immigration court and 70 percent of detained persons face proceedings without counsel. There is a pilot program that serves adult individuals with mental disabilities. Congress did not provide any funding for adult legal representation for FY2024.
AILA’s Recommendations to Congress
- Reduce detention funding to at least 25,000 average daily population or less.
- Explicitly prohibit detention funding from being used to detain families and children in custodial settings.
- Provide continued funding community-based case management programs outside of ICE such as the Case Management Pilot Program (CMPP) operated by the Federal Emergency Management Agency (FEMA) and the Office for Civil Rights and Civil Liberties (CRCL)
- Conduct robust oversight of past congressional appropriations transparency requirements and continue to require ICE to disclose and publish information relating to detention contracts, inspection process and reports, detention data, and policies for the alternatives to detention program.
Background
Created in 2002, Immigration & Customs Enforcement (ICE) has over 22,000 full-time employees, with a total annual budget of more than $9 billion. The agency has three core operational directorates: Enforcement and Removal Operations (ERO), Homeland Security Investigations (HSI), and the Office of the Principal Legal Advisor (OPLA). Housed within the Department of Homeland Security, ICE joins Customs & Border Protection (CBP) in making up the nation’s largest police force.
Immigration enforcement, including taking noncitizens into custody, is the largest single area of responsibility for ICE. ICE detains noncitizens arrested from the interior of the country and those transferred from the border. Twenty-years ago, the average daily population of detained immigrants was approximately 7,000. During the first Trump Administration, it reached a height of 50,000 average daily population. Regardless of the circumstances of their first encounter with authorities, noncitizens are detained across America in a sprawling network of private and public detention facilities. Most of these facilities operate through contracts between ICE (or, less commonly, the U.S. Marshals Service) and localities for the purposes of detaining noncitizens. In some cases, localities later sub-contract services for operating detention facilities to private prison companies. In other instances, localities reserve space in local, county, or state jails and prisons for the purposes of detaining immigrants. In all cases, localities are financially incentivized to detain individuals to increase profit margins from contracts. One key part of the financial equation is the use of noncitizens to clean and maintain facilities in exchange for $1 a day.
Immigration detention facilities, regardless of the type of contracts, have been the sites of serious and repeated allegations of abuse, including allegations of sexual assault, violations of religious freedom, medical neglect, and the punitive use of solitary confinement. In 2020, the U.S. had the highest number of deaths in ICE adult detention since 2005. Several deaths in custody have been found to have been preventable. Conditions in ICE custody have been described as “barbaric” and “negligent” by DHS experts.
Civil immigration detention works mainly to facilitate deportation. While ICE has the authority to allow most noncitizens to continue with their removal cases on the outside of custody, it often defaults to detention based on alleged “flight risk or threat to public safety.” The vagueness of these concepts frequently works against the liberty interests of noncitizens and there is generally a lack of uniformity when it comes to these discretionary releases. Only a certain portion of the overall noncitizen population must be detained under “mandatory detention” laws and even those individuals may be released based on certain exceptions.
Lastly, because immigration detention is considered “civil,” indigent noncitizens are not generally provided counsel. As a result, representation rates for noncitizens in detention are as low as 14% and directly correlate with the ability to secure release or long-term protection.
Reports and Briefings
- "No Human Being Should Be Held There": The Mistreatment of LGBTQ and HIV-Positive People in U.S. Federal Immigration Jails
- Physicians for Human Rights: Endless Nightmare”: Torture and Inhuman Treatment in Solitary Confinement in U.S. Immigration Detention
- Harvard University Press Release: New Report Documents the Mental and Physical Harm Experienced by Children in Immigration Detention
- AILA Policy Brief: Case Management: An Effective and Humane Alternative to Detention - November 2, 2022
- AILA Policy Brief: Moving The Nation Forward by Leaving Immigration Detention Behind - March 25, 2021
- The Journal of the American Medical Association (JAMA): Emergency Medical Responses at US Immigration and Customs Enforcement Detention Centers in California -November 29, 2023
- Notable findings include: a number of EMS calls for pregnant people at Otay Mesa; a shockingly low number of 911 calls for psychiatric emergencies, despite the high number of complaints of serious mental health issues in the detention centers; nearly a third of all detained people had an abnormal vital sign when EMS encountered them, a disturbing trend given the association between abnormal vital signs and deaths in ICE custody; and finally, the number of emergency calls that the authors could find in EMS systems was significantly lower than the number of ICE-reported medical emergencies, a serious discrepancy that calls into question why ICE facilities aren’t calling 911 more frequently when there is an emergency happening.
- Black Alliance for Just Immigration: Uncovering the Truth: Violence and Abuse Against Black Migrants in Immigration Detention - October 2022
- Oxfam America and the Tahirih Justice Center: Surviving Deterrence: How U.S. Asylum Deterrence Policies Normalize Gender-Based Violence, October 11, 2022
- Law Professor César Cuauhtémoc García Hernández, TED Talk, The US can move past immigration prisons—and towards justice, July 27, 2022
- Alternatives to Detention: An Overview – American Immigration Council Fact Sheet, March 17, 2022
- Community Support for Migrants Navigating the U.S. Immigration System - February 26, 2021
- American Immigration Council Special Report: "Measuring In Absentia Removal in Immigration Court," Ingrid Eagly, Esq. and Steven Shafer, Esq. - January 28, 2021
Government Reports
- DHS Office of Inspector General: website has search function to view ICE detention audits, inspections, and evaluations completed by DHS OIG.
- ICE FOIA Library: Holds detention facility contracts, facility reviews, among other required posting information.
- U.S. Government Accountability Office (GAO): Agency within the legislative branch that provides auditing, evaluative, and investigative services for the United States Congress. Website has search function to view audits done of ICE detention programs and policies.
- Office of the Immigration Detention Ombudsman Annual Report– June 20, 2023. As of January 29, 2025, the 2024 Annual Report had not been published.
- DHS Office of Civil Rights & Civil Liberties Recommendation and Investigation Memo Collection: CRCL investigates abuses in immigration detention. CRCL issues recommendations to the relevant DHS Component aimed at addressing any civil rights or civil liberties concerns identified as part of its investigation.
- DHS Advisory Committee Final Report on Family Residential Centers - September 30, 2016.
Legislative and Administrative Advocacy
- The Case Management Pilot Program: A Humane, Effective Alternative to Immigration Detention - August 15, 2024
- Senators Send Letter Urging Appropriators to Include Funding for ATD - May 15, 2024
- AILA Statement to Senate on ICE's Use of Solitary Confinement - April 16, 2024
- AILA Sends Letter to White House Opposing Family Detention – March 13, 2023
- AILA and Partners Send Letter to White House Urging Closure of ICE Detention Sites - November 21, 2022
- Members of Congress Send Letter to DHS on Access to Counsel - November 3, 2022
- Over 100 House Democrats Send Letter to DHS to Halt Immigration Detention - March 10, 2022
Browse the Featured Issue: Immigration Detention and Alternatives to Detention collection
AILA Insight: The Detention Lottery
AILA member Margaret O’Donnell creates a production to educate community members on the immigrant experience through theatre performance. In this article, she shares information about the production and how to bring it to your community.
District Court Order Enjoins Federal Facility from Interfering with Detainees’ Right to Counsel
The court issued 28-day TRO requiring FDC Sheridan to make amends, including opportunity to consult with counsel, distribution of “Know Your Rights” pamphlets, notice and/or consent before transferring detainees out of state, and improved phone access. (Innovation Law Lab v. Nielsen, 6/25/18)
Executive Order Affording Congress an Opportunity to Address Family Separation
President Trump issued an executive order on 6/20/18, ordering DHS to take measures to detain family units without separating children from parents and orders DOJ to file a request to modify the Flores settlement, among other things. (83 FR 29435, 6/25/18)
District Court Grants Habeas Relief to Person Not Taken Immediately into ICE Custody
A U.S. District Court ruled that INA §236(c) does not apply to an individual not taken into custody immediately upon release from criminal custody, finding that a nearly five-year delay is “clearly unreasonable” under §236(c). (Sall v. ICE, 5/24/18)
DHS Issues Fact Sheet on Zero-Tolerance Prosecution and Family Reunification
DHS published a fact sheet about how CBP, ICE, and HHS process parents and children who have been separated as part of the zero-tolerance prosecution policy at the border, and the role these agencies will play in the reunification process.
House Democrats Request Investigation to Reunite Children and Families
On 6/22/18, Congressman Lou Correa (D-CA) led 122 members of Congress in urging the Inspectors General of DHS and HHS to investigate whether the departments have records capable of reuniting families.
CBP Issues Statement on Implementing Executive Order on Family Separation
CBP released a statement on President Trump’s EO on family separation, stating that family unity will be maintained for families apprehended crossing the border illegally and transferred to ICE custody. Border Patrol will continue to refer for prosecution adults who cross the border illegally.
AILA Quicktake #242: Executive Order on Family Separation Policy
AILA President Anastasia Tonello discusses the family separation Executive Order that President Trump signed on June 20, 2018.
ICE Agents Issue Letter to DHS Requesting HSI and ERO Become Separate Entities
In a letter obtained by the Texas Observer, 29 ICE HSI agents requested that HSI be separated from ERO, stating “HSI’s investigations have been perceived as targeting undocumented aliens, instead of the transnational criminal organizations… impacting our communities and national security.”
White House Releases Fact Sheet on Border Prosecutions and Families
The White House published a fact sheet about zero-tolerance border prosecutions and family separation, calling on Congress to “close the loopholes that limit detention of families together to mere weeks but require years to effectuate removal.”
Code Red: The Fatal Consequences of Dangerously Substandard Medical Care in Immigration Detention
More people died in immigration detention in FY2017 than any year since 2009, and reports on deaths shows that they are still linked to dangerously inadequate medical care. Human Rights Watch, ACLU, National Immigrant Justice Center, and Detention Watch Network issued a report on this information.
AILA Members’ Letter to the Editor Template on Family Separation
We encourage AILA members to personalize and submit this Letter to the Editor on the administration’s harsh treatment of families at the border. Please email newsroom@aila.org with any questions or to share your success.
Attorney General Publishes Op-Ed in USA Today on Family Separation
Attorney General Jeff Sessions published an op-ed in USA Today defending DOJ’s zero tolerance policy and family separation, claiming, “We don’t want to separate parents from kids.”
AILA: Expanding Family Detention Is Not the Answer to Cruel Family Separation Policy
Responding to the Executive Order regarding family separation, AILA President Anastasia Tonello stated, “The barriers to due process that AILA attorneys have encountered at every detention facility only underscore what needs to happen: both family separation and family detention must end.”
AMA Urges Government to Withdraw “Zero Tolerance” Policies
The American Medical Association (AMA) issued a letter to DHS, DOJ, and HHS, strongly urging the federal government to withdraw its “zero tolerance” policy that requires the separation of migrating children from their parents and caregivers.
S. 3091: Protect Kids and Parents Act
On 6/19/18, Senator Ted Cruz (R-TX) introduced the Protect Kids and Parents Act (S. 3091) to limit the separation of families seeking asylum in the United States and expedite the asylum process for individuals arriving in the United States with children.
H.R. 6135: Keep Families Together Act
On 6/19/18, Representative Jerrold Nadler (D-NY) introduced the Keep Families Together Act (H.R. 6135) to limit the separation of families at or near ports of entry. This is the House companion bill to S. 3036.
DHS Publishes Myth vs. Fact Document on Its Zero-Tolerance Policy
On 6/18/18, DHS released the document “Myth vs. Fact: DHS Zero-Tolerance Policy,” claiming that DHS has “seen reporters, Members of Congress, and other groups mislead the public on the Department of Homeland Security’s (DHS) zero-tolerance policy.”
DHS Secretary Nielsen Delivers Remarks on Immigration and the Southern Border
On 6/18/18, DHS Secretary Kirstjen Nielsen delivered remarks at the White House Press Briefing about immigration and the southern border, in which she called on Congress to reform asylum laws and existing protections for unaccompanied minors and family units, as well as expand family detention.
Bipartisan Group of Former United States Attorneys Call on Jeff Sessions to End Family Separation
More than 75 former U.S. attorneys called on Attorney General Jeff Sessions to stop family separations, saying the decision to implement the zero tolerance policy has led to more than 2,000 children being taken from their parents and that "the unfolding tragedy falls squarely on your shoulders."
DHS Issues Fact Sheet on Zero Tolerance Immigration Prosecutions and Families
On 6/15/18, DHS issued a fact sheet regarding the treatment of families under DOJ’s “zero tolerance” policy at the border, with information on the apprehension, prosecution, and removal processes and care for children and communication with families.
DHS Publishes FAQs on Zero Tolerance Immigration Prosecutions and Families
On 6/15/18, DHS published answers to frequently asked questions about family separation at the border, including what happens to the children during and after criminal prosecution of their parents or legal guardians and how parents or legal guardians can communicate with their children.
DHS and HHS Provide Handout on Next Steps for Families in DHS Custody
On 6/15/18, DHS and HHS provided an informational handout in English and Spanish for families taken into DHS custody for suspected illegal entry. The handout outlines what will happen to children while parents or legal guardians are prosecuted.
GAO Issues Report on Initial Immigration-Related Executive Order Actions and Resource Implications
The GAO issued a report reviewing agencies’ implementation of the January and March 2017 Executive Orders related to border security and immigration (EO 13767, 13768, and 13780).
ABA Sends Letter to DOJ and DHS Expressing Strong Opposition to Family Separation
The American Bar Association President sent a letter to DOJ and DHS to express strong opposition to the drastic increase in the separation of children from their parents at the southern border noting that enforcement actions cannot be used as justification to affect international family separation.