According to this report, the first issue at hand in curtailing jail crowding is to identify the factors responsible for the problem. The report notes that the jail population of any county, town, or city is likely very different from the population of any prison. Jails hold a variety of offenders for a relatively short amount of time while prisons tend to hold primarily felony offenders for a greater length of time. Thus, the populations of jails are much more diverse and dynamic, with people moving through the jail system very quickly. In order to better assess jail populations, the report suggests that local officials ask pertinent questions of their jail system. Understanding the purpose of their jail systems and knowing the populations within them are crucial pieces of knowledge that will help local officials understand their jails more thoroughly, thus providing a framework for addressing potential problems. In addition to asking questions of their own jail systems, local officials need to analyze pertinent national and local data concerning jail population growth. This data will reveal why and how the jail population is growing in the face of declining serious crime rates. The next step in solving the problem of jail crowding, according to this report, is to forecast future jail needs. In order to accomplish this, the report argues that a systems perspective must be adopted. A systems perspective means that one must consider all the various components of the criminal justice system in order to accurately assess the forces behind jail crowding. The point is that jails do not operate within a vacuum; the decisions of many agents of the criminal justice system come into play when processing individuals through this system. Through a thorough analysis of the use of jails, the populations within them, and the role of the criminal justice system in putting people in jail, reasonable and reliable solutions to the problem of jail crowding may be uncovered. This report concludes with five appendix sections aimed at providing a practical guide for local officials in implementing the suggestions with this report.