Blog Post | 114 KY. L. J. ONLINE | March 23, 2026
Jailers Without Jails: Why is Kentucky the Only State That Still Elects Jailers as Constitutional Officers?
By: Mallie Cornett, Staff Editor, Vol. 114
Kentucky is the only state in the nation that elects jailers.[1] As of 2024, Kentucky had 43 counties without jails but with elected jailers.[2] But even without a jail to run, these jailers are still paid competitive salaries.[3] “No-jail” jailers cost taxpayers around $2 million annually.[4] Over the past ten years there has been a push to eliminate these positions but Kentucky’s legislators have been unwilling to do so, despite the fact that Kentucky’s prisons are underfunded and understaffed.[5]
What does the jailer do? Per the Kentucky Association of Counties, jailers are tasked with maintaining order within their county’s jail and “supervising the processing of inmates.”[6] On a day-to-day basis, jailers transport prisoners to and from jail and accompany them to medical appointments.[7]
When a county has no jail, what does the jailer do? In theory, the jailer should act as a bailiff, but in practice this is rare.[8] Louisville Public Media interviewed over forty of these no-jail jailers and found that most don’t do much of anything.[9] Many claim to be “on call” at all hours but only receive calls if someone is arrested.[10] In small counties, there are often days or even weeks between arrests, leaving these jailers with little to do. So little, in fact, that most work another job.
Section 227 of Kentucky’s constitution provides for the prosecution or removal of elected officers for “misfeasance or malfeasance . . . or willful neglect.”[11] But these jailers are not necessarily neglecting their duties—they simply have none.
Why does this matter?
Jailers are paid from the county’s treasury.[12] Their salaries can range from $20,000 to roughly $70,000 dollars.[13] These figures do not account for whether the county actually has a jail.[14] In 2015, the highest paid “no jail” jailer was Perry County’s jailer, Jeanette Hughes.[15] Hughes was paid $69,000.[16] Perry County has not had a jail since roughly 2005.[17]
Kentucky’s no-jail jailers cost taxpayers around $2 million per year. The jailers’ salaries account for only $1.4 million. The remainder is paid to the jailer’s deputies, who are often family members. Jailers have the ability to appoint deputies as they please.
If there isn’t even enough work for the jailer, why do these jailers need deputies? In most cases, jailers hire deputies simply to increase their overall household income.
Concerns about the wisdom of electing jailers are not new. Since 1891, when Kentucky adopted its current constitution, lawmakers have been wary of elected jailers.[18] As such, Kentucky’s constitution provides that the role of jailer may be consolidated with the county’s sheriff.[19] This was intended to act as a safeguard in smaller counties that had less resources.[20] However, only two counties have done so—Fayette and Jefferson. Ironically, these are the richest counties in Kentucky.
When Kentucky’s constitution was drafted, most counties had their own local jails.[21] Over time, these local jails have shut down due to lack of funding or resources. This is not merely a local issue. Kentucky State Reformatory, previously Kentucky’s largest state prison, recently closed due to lack of staff.[22] Kentucky’s carceral system is underfunded,[23] yet Kentucky legislators refuse to consolidate the roles of sheriff and jailer.[24] This is due, in part, to the fact that jailers hire lobbyists through the Kentucky Jailers Association.[25] So far, this tactic seems to be working in their favor. In 2025, Senate Bill 193 moved forward to the House.[26] The bill, sponsored by Senator Rick Gridler, would “recognize the service of Kentucky’s jailers.”[27] The bill would create a Jailer Service Card which is an official document issued by the secretary of state.[28] The card would acknowledge and recognize jailer’s role in the county government.[29] It is baffling that over forty of the jailers set to receive a Jailer Service Card have never even owned a set of jail keys.
Will anything change?
Kentucky’s constitution already provides for the consolidation of jailer and sheriff.[30] Kentucky could consolidate these roles. Other states, such as Florida, use correctional officers to run their jails.[31] Kentucky could move towards a similar system. Either way, Kentucky legislators could easily save taxpayers $2 million dollars a year by adopting a different model.[32] Based on recent legislative history, it seems unlikely that legislators will choose to do so.
[1] E. Gail Chandler, Kyle Ellison, Becky Gentry, Gaye Holman, Gary Marvin, Tom Mugavin, Michael Price, Steve Tonnemacher, Dave Vislisel & Dennis Wagner, Process and Results of Passing House Bill 5: From Retired Jail and Corrections Employees 3 (June 12, 2024), https://www.aclu-ky.org/app/uploads/2024/06/process_and_results_of_passing_house_bill_5.pdf
[2] Victor Puente, Why Do We Have County Jailers for Counties That Don’t Have Jails? WKYT (Aug. 20, 2024, 15:48 PM EDT) https://www.wkyt.com/2024/08/20/why-do-we-have-county-jailers-counties-that-dont-have-jails/.
[3] See R.G. Dunlop & Jacob Ryan, Only in Kentucky: Jailers Without Jails, Louisville Pub. Media (Jan. 2, 2015, 12:30 EST) https://www.lpm.org/investigate/2015-01-02/only-in-kentucky-jailers-without-jails
[4] Id.
[5] Chanlder et al., supra note 1, at 2-3, 10.
[6] Jailers Process Inmates and Help Maintain Safe Jails, Ky. Assoc. Counties https://kaco.org/county-information/county-officials-in-kentucky/jailers/ (last visited Mar. 12, 2026).
[7] Dunlop & Ryan, supra note 3.
[8] Id.
[9] Id.
[10] Id.
[11] Ky. Const. § 227.
[12] Ky Const. § 42.
[13] Ryland Barton, Kentucky Senate Passes Bill to Monitor ‘No-Jail Jailers’, WKMS (Mar. 4, 2015, 8:16 CST) https://www.wkms.org/government-politics/2015-03-04/kentucky-senate-passes-bill-to-monitor-no-jail-jailers
[14] See id.
[15] Dunlop & Ryan, supra note 3.
[16] Id.
[17] Id.
[18] R.G. Dunlop, Why Kentucky Elects Jailers, Louisville Pub. Media (Jan. 2, 2015, 18:02 EST) https://www.lpm.org/news/2015-01-02/why-kentucky-elects-jailers
[19] Ky. Const. § 105.
[20] Dunlop, supra note 18.
[21] Id.
[22] Chanlder et al., supra note 1, at 3.
[23] Id. at 2-3.
[24] Ky. Const. § 105
[25] Chandler et al., supra note 1, at 10.
[26] Bill Recognizing Kentucky Jailers’ Service Passes From Senate, Moves to House, Ky. Senate Republicans (Mar. 7, 2025) https://kysenaterepublicans.com/press-releases/2025/3/11/bill-recognizing-kentucky-jailers-service-passes-from-senate-moves-to-house.
[27] Id.
[28] See id.
[29] See id.
[30] Ky. Const. § 105.
[31] Fla. Stat. § 943.10(2) (2025).
[32] Dunlop & Ryan, supra note 3.