As new jails fill up almost as soon as they open, conflict continues to grow among public officials who, in turn, create policies that are not always effective in controlling the crisis. The author believes the crisis can be understood by tracing the interdependence between jail system and local criminal justice and county government agencies. In dealing effectively with increasing litigation associated with overcrowding, cities and counties must aggressively identify problems, causes, and possible interventions within the broader legal, political, and organizational environments of jails. The onset, process, and impact of court-ordered jail reform is examined, based on interviews, court documents, and government statistics. A theoretical model of court intervention is developed that is designed to initiate systemwide analysis and change. Supplemental information on jail overcrowding and court-ordered reform is appended. 313 references, 39 tables, and 5 figures