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
CA9 Holds That Petitioner Detained Under INA §236(a) Was Not Entitled to New Bond Hearing with Government Bearing Burden of Proof
Reversing the district court’s judgment granting the petitioner’s habeas petition, the court held that due process did not entitle petitioner to a second bond hearing at which the government would bear the burden of proof by clear and convincing evidence. (Rodriguez Diaz v. Garland, 11/21/22)
Practice Alert: ICE Withdraws Attorney Notification Requirements for COVID-19 Risk Factors
AILA alerts members that ICE has discontinued certain attorney notifications in its updated Pandemic Response Requirements as of 11/1/22.
Members of Congress Send Letter to DHS on Access to Counsel
Members of Congress sent a letter to DHS Secretary Mayorkas urging ICE to ensure that immigrants can access their legal representation in detention and makes recommendations on facility improvements.
AILA Policy Brief: Case Management: An Effective and Humane Alternative to Detention
AILA summarizes current DHS alternative to detention options and urges Congress to fund a new approach. Case management programs are a more humane and effective approach to obtaining compliance with immigration requirements while also helping migrants navigate complex removal proceedings.
Department of the Treasury Notice on Interest Rate for Immigration Bonds
Department of the Treasury notice that for the period beginning 10/1/22 and ending 12/31/22, the U.S. Immigration and Customs Enforcement Immigration Bond interest rate is 2.74 per centum per annum. (87 FR 61147, 10/7/22)
DHS CRCL Issues Recommendations on Implementation of ICE’s Segregation Oversight Program
DHS's CRCL issued a memo stating that it believed that ICE must more clearly define the policies and guidelines regarding the use of segregation in order to qualitatively differentiate ICE segregation from what is commonly understood as solitary confinement.
ICE 30-Day Notice and Request for Comments on Proposed Revisions to Form I-352
ICE 30-day notice and request for comments on proposed revisions to Form I-352, Immigration Bond. Comments are due 10/27/22. (87 FR 58515, 9/27/22)
CA9 Holds That California’s Ban on Privately Run Immigration Detention Facilities Is Unconstitutional
The en banc court vacated the district court’s denial of preliminary injunctive relief, holding that California Assembly Bill (AB) 32 would violate the Constitution by giving California a virtual power of review over ICE’s detention decisions. (The Geo Group, Inc. v. Newsom, et al., 9/26/22)
AILA Provides Members with Updated Recommendations in Responding to Detention Center Closures
AILA is tracking updates that have led to or may lead to immigration detention facility closures. This updated resource offers recommendations for seizing the opportunity to call for release of clients to facilitate continued local representation and how to anticipate transfers out of state.
District Court Approves Settlement in Case Challenging ICE’s Unlawful Detention of Unaccompanied Minors
The district court approved a settlement agreement whereby the government agreed to dismiss its appeal, and the district court’s 9/21/21 judgment and five-year permanent injunction against ICE became final. (Garcia Ramirez, et al. v. ICE, et al., 9/7/22)
Practice Pointer: Updated ICE Policy on Interests of Noncitizen Parents and Legal Guardians of Minor Children or Incapacitated Adults
AILA summarizes information provided at ICE’s engagement on its updated policy directive on the interests of noncitizen parents and legal guardians of minor children or incapacitated adults and provides practice tips. Special thanks to committee member Michael Sharma-Crawford for his contribution.
Litigation Timeline: Fraihat v. ICE
The court reversed a California district court’s grant of a preliminary injunction, finding plaintiffs did not provide evidence of constitutional and statutory violations on a programmatic, nationwide level to justify the extraordinary relief they requested. (Fraihat v. ICE, 10/20/21)
DHS OIG Issues Report on El Paso Sector Border Patrol Struggles
DHS OIG issued a report after an unannounced inspection in October 2021 of five Border Patrol stations and two OFO ports of entry in the El Paso area to evaluate CBP’s compliance with applicable detention standards and found that 494 migrants in custody were held longer than 72 hours.
Practice Alert: Credible Fear Bond Hearings Eliminated
AILA and the Council provide an update following the vacatur of the preliminary injunction in Padilla v. ICE, eliminating bond hearings for noncitizens who were detained under INA § 235(b)(1) after they entered the United States without inspection and had passed a credible fear interview.
ICE Updates Policy on Interests of Noncitizen Parents and Legal Guardians of Minor Children or Incapacitated Adults
ICE Directive 11064.3 updates policies to ensure parents and legal guardians arrested or detained by ICE can maintain visitation with their child(ren) or the incapacitated adult for whom they serve as guardian, coordinate care, and participate in any related court or child welfare proceedings.
AILA and Partners Submit Amicus Brief on Challenging Mandatory Detention
AILA and partners submitted an amicus brief in Alphonse v. Moniz urging the court to reverse decision on whether an individual can challenge a mandatory detention finding via habeas while also challenging the deportability consequences of the conviction in removal proceedings.
Interest Rate Paid on Cash Deposited To Secure ICE Immigration Bonds
ICE immigration bond interest rate for the period beginning July 1, 2022, and ending on September 30, 2022. (87 FR 40883, 7/8/22)
Detainees at ICA-Farmville Reach Settlement with Government Regarding COVID-19 Protections
The parties reached a settlement under which the ICA-Farmville Detention Center will be allowed to detain a maximum of 180 people and accept transfers only of individuals who are vaccinated, asymptomatic, and test negative for COVID-19. (Santos Garcia, et al. v. Mayorkas, et al., 7/6/22)
DHS OIG Finds Violations of ICE Detention Standards at Folkston ICE Processing Center and Folkston Annex
DHS OIG found that while ICE’s Folkston detention facilities complied with several detainee standards, it did not meet standards for facility conditions, medical care, grievances, segregation, staff-detainee communications, and handling of detainee property.
ICE 60-Day Notice and Request for Comments on Proposed Revisions to Form I-352
ICE 60-day notice and request for comments on proposed revisions to Form I-352, Immigration Bond. Comments are due 8/23/22. (87 FR 37882, 6/24/22)
GAO Provides Report on the ATD Program
GAO reviewed ICE’s alternatives to detention (ADT) program, with focus on ICE management and oversight and participation in the ATD program. GAO issued ten recommendations, including that ICE establish performance goals, ensure collection of necessary information, and more.
Supreme Court Rules That INA §242(f)(1) Deprived District Courts of Jurisdiction to Grant Class-Wide Relief to Detained Respondents
The U.S. Supreme Court held that the ordinary meaning of the terms “enjoin” and “restrain” in INA §242(f)(1) deprived the district courts of jurisdiction to entertain the respondents’ requests for class-wide injunctive relief. (Garland, et al. v. Gonzalez, et al., 6/13/22)
Supreme Court Says Government Is Not Required to Give Detained Noncitizens Bond Hearings Where It Must Show They Are a Flight Risk
The U.S. Supreme Court held that INA §241(a)(6) does not require the government to provide noncitizens detained for six months with bond hearings in which the government bears the burden of proving that they pose a flight risk. (Johnson, et al. v. Arteaga-Martinez, 6/13/22)
ICE ERO Releases Updated COVID-19 Pandemic Response Requirements for ICE Detention Facilities
ICE ERO updated its COVID-19 Pandemic Response Requirements (PRR) to outline mandatory requirements, set forth expectations and best practices, and assist detention facility operators in sustaining detention operations during the pandemic. Last updated on 6/13/22.
Civil Rights Groups Reach Settlement with Federal Government in Lawsuit Concerning Illegal Immigration Arrests
Asian Americans Advancing Justice - Asian Law Caucus and the ACLU Foundation of Northern California reached a settlement agreement with the government to stop ICE from using a third-party contractor to perform civil immigration arrests at jails and prisons. (Solano v. ICE, et al., 7/6/22)