Winnebago County DA outlines “high frequency, low severity” program targeting small group of repeat offenders

District Attorney Kristen Gossett presented the county's new "high frequency, low severity" program to the Winnebago County Board on July 8, describing a targeted effort to identify and treat a small group of repeat offenders whose behavior drives a disproportionate share of crime in the county.

Gossett said the program focuses on people with unusually high numbers of contacts with police and court referrals and emphasized that the county's approach combines assessments, case management and treatment opportunities. "This program involves the District Attorney's Office doing risk needs assessments, understanding the individual's issues, connecting them with services," Gossett said. "The sheriff's office is doing case management for the individuals. They're providing treatment even when people are in the jail."

The presentation drew public comment and pushback from housing advocates who warned planners not to conflate homelessness with criminality. Tina Haffman, a member of the Winnebago Land Housing Coalition and a founder of Day by Day, told the board that safe parking programs in neighboring cities have helped people living in vehicles and said local shelter capacity remains limited: "If you find yourself unhoused tonight you will not find a bed available," Haffman said, urging board members to verify conditions with people who have lived experience.

Sarah Kosmicki, executive director of Casa Esther and a Winnebago Land Housing Coalition member, told the board the coalition has not proposed a safe-parking site and urged collaboration with law enforcement and providers. "Our subcommittee has not yet proposed a safe parking lot in Winnebago County, and we do not have a proposal ready," Kosmicki said. "Guests in a safe parking program would be held to a signed agreement of rules and responsibilities, much like we see in Green Bay and Fond Du Lac."

Gossett described the cohort his office is tracking as small but concentrated: "Out of the 170,000 plus people in Winnebago County, this represents 112 individuals. These 112 individuals make up .7% of our criminal population, .06% of our total population, and commit 11% of the crime committed in our county," he said. He described eligibility thresholds used by the program: for example, nine criminal referrals in three years, 12 in four years, or 15 in five years. Gossett said roughly 27% of the high-frequency group are currently unhoused and that 30 of the county's point-in-time count of unhoused people fall into the high-frequency group.

Supervisors and other board members raised a range of questions about the program's scope and evidence. Supervisor Hancock Cook said she was "concerned about the question of forced recovery or forced treatment," and asked for longer-term success measures. Gossett replied that the program is being evaluated and that he expects meaningful outcome data over several years: "I really prefer five years," he said, noting shorter-term process measures would be reported sooner. Several supervisors and members of the public urged the county to continue exploring safe-parking models used elsewhere while distinguishing between people who are unhoused and those who are engaged in repeat criminal activity.

Gossett said the initiative includes partnerships with the University of Wisconsin Oshkosh for program development and evaluation, the United Way for service navigation, and the sheriff's office for case management. He described the STAR program at the jail and diversion and treatment pathways that will be offered to participants.

Board members requested more data and documentation: Supervisor Holt asked for referral patterns by agency; Supervisor Gilbertson asked for timestamps on photos used in the presentation; and Supervisor Burrow emphasized victims and public-safety impacts. Several supervisors said they supported pursuing both treatment-focused interventions and housing solutions concurrently.

Gossett closed by saying the program is intended to give repeat offenders intensive, coordinated treatment options rather than defaulting to incarceration, while also making the streets safer and easing burdens on shelters and service providers. He and board members said they would return with further data and quarterly updates on program metrics.