The two-story house on 17th St. looks typical of the working-class homes on Racine's west side. Three bedrooms, one bath. Assessed by the city at $122,000.
Yet inside, a young woman has tapped into a home-based money-making operation that netted her and her three sisters more than half a million in taxpayer dollars since 2006.
And they did it with the blessing of the state.
All four had been in-home child-care providers. Collectively they have 17 children. For years, the government has paid them to stay home and care for each other's children.
Nothing illegal about it under the rules of Wisconsin Shares, the decade-old child-care assistance program designed alongside Wisconsin's welfare-to-work program.
"It's a loophole," said Laurice Lincoln, administrative coordinator for child care with the Milwaukee County Department of Health and Human Services. "Do we have concerns about it? Yes, it can be a problem. But if it's allowed, it's allowed. We really can't dispute it."
The Journal Sentinel spent four months investigating the $340 million taxpayer-supported program and uncovered an array of costly problems - including fraud. But the investigation also revealed a system rife with lax regulations that have paved the way for abuse by parents and providers.
Consider:
Sisters or other relatives can stay home, swap kids and receive taxpayer dollars. The four Racine sisters took in as much as $540,000 in taxpayer dollars in less than three years, mostly to watch each other's kids.
Rules allow parents to be employed by child-care providers and enroll their children at the same place. At some centers, children of employees make up the majority of kids in day care. In one Milwaukee location, an employer and parents are accused of teaming up to bilk the system out of more than $360,000.
Child-care subsidy recipients have been allowed to work for almost any type of business. Payments were made when moms claimed to work ironing a man's shirts, drying fruit and selling artwork they made during art class.
The government pays for child care while parents sleep. Counties have no way to monitor whether parents are actually sleeping while their kids are in day care.
"We're not being good stewards of taxpayer dollars," said state Rep. Robin Vos (R-Racine) who introduced legislation in 2007 to try to crack down on child-care related fraud. "We have a system where there's a whole lot of finger-pointing going on and in between, a whole lot of fraud happens."
The state published new rules in November - a month after the Journal Sentinel began asking questions - yet three of the five counties with the majority of Wisconsin Shares cases were unaware of the new requirements until contacted by the newspaper.
Caring for family
Torneshia Simmons, a 28-year-old single mother of five, sat at her dining room table at her 17th St. house in December surrounded by her children - all under the age of 9. The younger ones climbed on her and tried to snatch the hat off her head as she explained how she and her three sisters have been caring for each other's kids for years.
"I've been doing child care for my family since I was like 14," she said. "I've been watching their kids before I had kids, after I had kids . . . I've been watching all my friends and family's kids."
Simmons first became an approved provider and received Wisconsin Shares money in 2002. Her sister Shanta McKinney first received child-care subsidies in 2003. Other sisters Tumina Ransom and Temeshe Brown got into the business in 2006 and 2007, according to state regulators.
For a while, Simmons took care of Ransom's and Brown's kids, she said. Then last summer her 2-year-old son was found wandering around outside unsupervised. The county shut down her child-care operation.
She said she now has another job that keeps her qualified for government-supported child care.
But when asked for details about her work, the answers got fuzzy.
First she said she worked at a clothing store called Get Fitted, Family Owned on Washington Ave. She said she worked second and third shift. A few minutes later she said she worked part time and the store was simply called Family Owned.
It's unclear what she would be doing working third shift at a retail clothing store.
And when the Journal Sentinel contacted the co-owner of Get Fitted, Carey Collins, he said Torneshia Simmons doesn't work there and never has. He didn't recognize Simmons' name. And his store closes at 8 p.m.
The Journal Sentinel could find no record of a clothing store called Family Owned. The Racine Area Manufacturers and Commerce and the state Department of Financial Institutions couldn't either. Simmons didn't list an address or phone number on documents filed with Racine County. Nor did the documents contain a federal tax identification number - all facts that should have raised the suspicion of Racine county workers.
Yet workers approved funding for Simmons' kids to be in her sisters' care 75 hours per week, costing taxpayers a weekly total of $1,283.
Simmons, who filed Chapter 7 bankruptcy in 2007, claims her children now go from McKinney's Racine house to Brown's house in Kenosha at about 11 p.m. McKinney, who has three young children of her own, and Brown, who has five, drop off or pick up the kids, she said.
But rules prevent providers from caring for more than six children at a time - depending on their ages - so for Brown to care for Simmons' five children, she would have to take her own kids elsewhere at 11 p.m.
Documents show Ransom is authorized to take care of Brown's kids.
Ransom, McKinney and Brown declined to comment or didn't respond to attempts to contact them.
Simmons said she's not concerned that the arrangement could interfere with her children's sleep. They go to bed whenever they want anyway - usually around 11:30 p.m. or midnight, she said.
State officials say such a situation is out of their control.
"Even though it might not appear to be in the best interest of the children, we don't have any authority to regulate that," said Jim Bates, a program analyst for Wisconsin Shares.
The government spends $66,716 a year on child care for Simmons' kids. That's 75% more than the average Wisconsin worker earned in 2007.
The full extent of the caregiving relationships is unclear in records, but it appears the sisters frequently change the arrangements.
Racine County officials declined to comment on the four sisters.
Nobody knows how often any of the roughly 34,000 Wisconsin families who receive child-care assistance take advantage of regulations allowing siblings to care for each other's kids. Neither the state nor the counties track that data.
But the Journal Sentinel discovered it's not the only rule that's especially prone to abuse.