justice reinvestment in hawaii - detailed analyses and policy direction
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8/3/2019 Justice Reinvestment in Hawaii - Detailed Analyses and Policy Direction
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Council of State Governments Justice Center | 1
Justice Reinvestment
in Hawaii
3ndWorking Group Meeting
DetailedAnalyses&PolicyDirec2on
November 29, 2011
Council of State Governments Justice Center
Marshall Clement, Project Director
Andy Barbee, Senior Research Associate
Robert Coombs, Senior Policy Analyst
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Funders and Partners
Council of State Governments Justice Center | 2
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Overview
1.Justice Reinvestment Process& Data Analyzed
2. Detailed Analysis & Policy Directions
3.Proposed Timeline & Next Steps
Council of State Governments Justice Center | 3
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Engageinputfrom
stakeholders
Behavioralhealth&treatmentproviders
Lawenforcement Judges Prosecutors Defensebar Vic=madvocates/survivors Countyofficials Communitycorrec=ons Proba=on
Collect&examine
quan9ta9vedata
Reportedcrime&arrests Courtdisposi=on&
sentencing
Proba=onandcommunitycorrec=onsprograms
Prisonadmissions,popula=on&releases
Develop&presentacomprehensiveanalysisof
thestatescriminaljus9ce
system
Developaframeworkofpolicyop9onsthattogether
wouldincreasepublicsafety
andreduce/averttaxpayer
spending
1Analysis
2Implementa9on
3Accountability
Ohio Justice Reinvestment Process
HawaiiJus9ceReinvestmentProcess
June-October October-December December-January 4Feb
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Data Requested in Hawaii
Data Source Status
Arrests CJIS Received
Felony Court Filings and Dispositions JUD Received
Probation Placements, Terminations &Population Snapshots
JUD Received
Jail and Prison Admissions, Releases &Population Snapshots
PSD Received
Parole Population Snapshots & BoardHearings
HPA Received
Risk / Needs Assessments ICIS Received
5
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Overview
1. Justice Reinvestment Process& Data Analyzed
2.Detailed Analysis & Policy Directions
3.Proposed Timeline & Next Steps
Council of State Governments Justice Center | 6
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Key Findings
Council of State Governments Justice Center | 7
Crime,arrests,
andfelony
disposi9ons
havedeclined
butthe
incarcerated
popula9onhas
remainedstable,
because:
Pre-trialpopula=onhasincreaseddue
tolonglengthsofstay&low
percentageofreleasestosupervision
Increasingnumberdeniedparole,due
toprogrammingrequirementsof
lowriskoffenders&boNlenecks
Paroleviolatorsarebeingheldlonger,andincreasinglyheldtofinishtheir
sentencewithoutsupervision.Length
ofproba=onislongerthanmoststates.
1.
2.
3.
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0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
Hawaiis PSD Population HasIncreased 18% from 2000 to 2011
Council of State Governments Justice Center | 8
Source: Hawaii PSD Annual Reports (2000-2008), communication from PSD staff
(2009-10), and PSD Weekly Population Updates (2011).
5,127
6,043asof
June6,2011
6,251
Hawaii has contracted with mainlandfacilities to house from 1/4 to 1/3 of
its inmates.
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Crime Is Declining
Council of State Governments Justice Center | 9
Source: FBI UCR Crime Statistics 2006 and 2010; Crime & Justice in Hawaii: 2010
Household Survey Report, Hawaii Attorney General (August 30, 2011)
0
10,000
20,000
30,000
40,000
50,000
60,000
Violent Property
2006 2010
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Felony Court Dispositions Declining
Council of State Governments Justice Center | 10
Source: HI AOC Database
2007 2008 2009 2010 2011
Prison 935 887 790 699 624
Proba=onw/Jail 921 1,015 977 947 1,009
Proba=on 432 425 414 376 345
0
500
1,000
1,500
2,000
2,500
Proba=on Proba=onw/Jail Prison
In2011,31%ofindividuals
convictedofafelonyweresentencedtoprison
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Decline in DispositionsConsistent Across Offense Types and Islands
Council of State Governments Justice Center | 11
FelonyGuiltyDisposi9onsbyOffenseType
Offense FY2007 FY2011 %Chg
Violent 298 332 +11%
Sex 78 41 -47%
Property 1,051 932 -11%
Drug 644 433 -33%
DUI 30 22 -7%
Other 246 272 +11%
Total 2,347 2,032 -13%
q60%oftheincreasedViolentdisposi=onsinOahuare1stand2ndDegreeAssaultandRobbery.
q33%oftheincreasedOtherdisposi=onsinOahuare1stand2ndDegreeTerroris=c
Threat.
FelonyGuiltyDisposi9onsbyCircuit
Circuit FY2007 FY2011 %Chg
Oahu 1,605 1,353 -16%
Maui 366 320 -13%
Hawaii 338 334 -1%
Kauai 38 25 -34%
Total 2,347 2,032 -13%
DrivenbyOahu
DrivenbyOahu
Source: HI AOC Database
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Prison Population Declined by 14% (613 people)
Council of State Governments Justice Center | 13
Source: PSD data provided to CSG Justice Center for analysis (FY2006-2011 End of Year
Snapshot Population). Pre- and Post-Minimum Offenders include those sentencedfor a new conviction or a probation revocation.
Thepost-
minimum
sentenced
popula=on
increased
77%
Theparole
violator
popula=on
increased
37%2006 2007 2008 2009 2010 2011
ParoleViolator 416 415 433 458 502 570
Post-Minimum 493 839 930 973 956 872
Pre-Minimum 3,556 3,219 3,094 2,967 2,806 2,420
0
500
1,000
1,500
2,000
2,500
3,000
3,500
4,000
4,500
5,000
Pre-Minimum Post-Minimum ParoleViolator
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Jail Population Increased 48% (694 people)
Council of State Governments Justice Center | 14
Source: : PSD data provided to CSG Justice Center for analysis (FY2006-2011 End of YearSnapshot Population). Pre-Trial Population includes: Pre-Trial Felons, Pre-Trial
Misdemeanors, Probation Violators. Sentenced Jail Population includes: Sentenced
Misdemeanor, Sentenced Misdemeanor Probationer, and Sentenced Felon Probationer.
2006 2007 2008 2009 2010 2011
Pre-TrialPopula=on 568 565 551 574 624 1233
SentencedJailPopula=on 914 917 890 940 1040 958
0
500
1000
1500
2000
2500
Thepre-trial
popula=on
increased
117%
1,482
2,191
Yetadmissions
stayedstable
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Summary of Pretrial Jail Trends
Council of State Governments Justice Center | 15
PT/PSFelons
FY2006 FY2010 FY2011
Admissions 3,318 2,602 2,543
JunePop 405 413 741
PTMisd. FY2006 FY2010 FY2011
Admissions 4,132 4,826 4,164
JunePop 105 96 142
Proba9on
Violators FY2006 FY2010 FY2011
Admissions 791 1,551 1,956
JunePop 58 115 350
Pretrialfelonyadmissionsaretrendingdownward,butthe
popula=ontrendedupwardsharply
inthepastyear.
Pretrialmisdemeanoradmissionshavebeenmostlystable,butthe
popula=ontrendedupwardsharply
inthepastyear.
Proba=onviolatoradmissionshavebeenincreasing,andthepopula=on
hastrendedupwardaccordingly.
Source: PSD Admissions Data from FY2006-2011; PSD End of Year Snapshot
Population Data, FY2006-2011
2006-11%chg
-23%
+82%
2006-11
%chg
+147%
+503%
2006-11%chg
+35%
+1%
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Mapping of Pretrial Process:Arrest to Case Disposition
Council of State Governments Justice Center | 16
Arrestand
Booking
intoJail
Ini=alCourt
Appearance
Bail
Reconsidera=on
Hearing
CaseDisposi=on
IntakeServicesCenter(ISC)staff
conductbrief
screeningforMH
issues
Actualassessmentof
riskOT
conducted
Decisionofwhetherornot
tooffermoney
bailop=onper
recommenda=on
ofprosecu=on
Ifbailnotposted,defendant
detained
Requiresfilingbydefenseof
mo=onfor
hearingto
reconsider
ISCmustconductbailreport
priortofiling
qOnOahu,reconsidera=on
hearingisusually
5ormoreweeks
aertheini=al
appearancefor
felonsand1or
moreweeksfor
misdemeanants.
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Pretrial / Presentence Felony Release Trends
Council of State Governments Justice Center | 17
FY2006Releases(n=2,415)
Bail(33%)
ROR(8%)
SupvRel(34%)
Other(25%)
FY2011Releases(n=1,53)
Bail(42%)
ROR(14%)
SupvRel(29%)
Other(15%)
31days
84days
31days
32days
102days
59days
qReleaseonOwnRecognizance(ROR)andSupervisedRelease(SR)accountfor43%of
allpretrialfelonyreleases,butittakesthree
months.
AvgLOS
AvgLOS
Source: PSD Releases Data from FY2006-2011
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Offense Type and Risk Level ofPretrial Felons
Council of State Governments Justice Center | 18
PretrialFelonsasofJune30,2011
741
Domes=cViolence18
Violent/Sex
216
Property/Drug
339
Other
168
63%ofthe
nonviolentpretrial
felonsarelowrisk.
Source: PSD End of Year Snapshot Population Data, FY2006-2011; ICIS Database
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Pretrial / Presentence Felony Release Trends:Hawaii Compared to Other US Counties
Council of State Governments Justice Center | 19
AnalysisofFelonyCasesFiledandTypeofReleasefromJailDuringPretrialStatus*
CountyNon-Financial MoneyBail NoPretrialRelease
%ofTot JailLOS %ofTot JailLOS %ofTot JailLOS
Honolulu,HI 27% 71days 30% 37days 41% 216days
Maricopa,AZ 39% 4days 13% 18days 8% 137days
LosAngeles,CA 13% 5days 17% 8days 63% 74days
3CountyAverage 14days 12days 121days
qOfthe39coun=esinthestudy,Honoluluhadthelongestaveragestayinjailforthoseul=matelyreleasedonnon-financialterms(recognizance,
supervisedrelease)ortomoneybail.
*BasedonBureauofJus=ceSta=s=csCourtProcessingSta=s=csProject(2004felonycasesfiled).
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Finding 2:
77% Increase in Population Denied Parole
Council of State Governments Justice Center | 20Source: PSD End of Year Snapshot Population Data, FY2006-2011
SentencedFelonsIncarceratedBeyondMinimumReleaseDate
FY2006 FY2011 %Change
AllSentenced
Felons
4,059 3,292 -19%
#PastParole
Date493 872 +77%
%ofAll
Sentenced
Felons
12% 27% +125%
Avg.MonthsPast
MinimumDate28.8 27.5 -5%
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Assessment Unit DrivesPrograms Required By Parole Board
Council of State Governments Justice Center | 22
eedforSubstanceUseTreatment
Program
Yes
o
RiskofRecidivism
High
Med.
Low
High
Med.
Low
Recommendedfor
Programs
LikelytoBenefit
fromProgram
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Risk / Needs Matrix:Sentenced Felons Beyond Parole Eligibility
Council of State Governments Justice Center | 23
NeedLevelRiskLevel
TotalLow Medium High
oTreatment 214 0 1 215
Incr.UAs;D/AEduc. 135 0 0 135
WeeklyTherapy 57 115 34 207
IOP 26 35 125 187
IR 7 15 66 88
TC 0 7 25 32
AssessforPsychopathy 0 0 8 8
Total 440 173 260 872
OutsideProgramming
InsideProgramming
NoProgramming
310(35%)
121(14%)
441(51%)
qOfthosebeyondparoleeligibility,only14%needprison-basedprogramming.Yet,two-thirdsareawai=ngprison-basedprogramminginordertobereleasedto
parole.Source: PSD End of Year Snapshot Population Data, FY2006-2011; ICIS Database
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Risk / Needs Matrix:Sentenced Felons within 1 Year of Parole Eligibility
Council of State Governments Justice Center | 24
NeedLevelRiskLevel
TotalLow Medium High
oTreatment 122 1 2 125
Incr.UAs;D/AEduc. 107 0 0 107
WeeklyTherapy 35 86 30 151
IOP 17 30 114 161
IR 2 12 41 55
TC 0 4 18 22
AssessforPsychopathy 0 0 11 11
Total 283 133 216 632
OutsideProgramming
InsideProgramming
NoProgramming
260(41%)
86(14%)
286(45%)
qOfthosew/inoneyearofparoleeligibility,only14%needprison-basedprogramming.
Source: PSD End of Year Snapshot Population Data, FY2006-2011; ICIS Database
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58% of Low Risk Inmates Denied Release to Parole
Council of State Governments Justice Center | 25
Aug-Oct2011
ParoleHearingsTotal
Low
Risk
Medium
Risk
High
Risk
TotalHearings 542 272 107 163
Denials 330 158 65 107
DenialRate 61% 58% 61% 66%
Almosthalfofallparoledenialswerelow-riskinmates.
Source: HPA Hearings Database FY 2011; ICIS Database
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Finding 3:37% Increase in Parole Violator Population
Council of State Governments Justice Center | 27Source: HPA Annual Reports; PSD Annual Release Population Data from FY2006-2011;
PSD End of Year Snapshot Data, FY2006-2011
Admissions LengthofStay Popula9onx =FY2006FY2011
0611
%chg
416 570 37%
FY2006FY20110611
%chg
19.0 28.3 49%
Thenumberofparole
violatorshasdeclined,but
theaveragelengthofstay
hasincreasedsignificantly,
requiring570bedsin
FY2011.
Analyzingtheriskofparole
violatorsandtheircriminal
historieswillhelpdeterminehow
muchbenefitthisincapacita=on
periodislikelyhaving.
HPA#ofParoleViolators
FY2006FY20100610
%chg
364 220 -40%
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Large Increase in Number ofHigh Risk Prisoners Maxing Out
Council of State Governments Justice Center | 28
Typeof
Release
FY2006 FY2011
#Rels %HighRisk #Rels %HighRisk
Parole 557 11% 595 23%
MaxOut 11 12% 47 41%Other 53 15% 26 46%
Total 731 12% 868 2%
SentencedFelonReleases(excludesparoleviolators)
(15to101
increaseinhigh
riskrels)
Source: PSD Annual Release Population Data from FY2006-2011; ICIS Database
Basedonanalysisoffelonyandmisdemeanorarrestdata,53%of
FY2008maxoutswererearrestedwithin3yearsofbeingreleased.
Only28%ofFY2008releasestoparolewererearrestedwithin3yearsofbeingreleased.
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80% of Parole Population Is Low Risk
Council of State Governments Justice Center | 29
EndofFiscalYearParolePopula9onbyRiskLevel
Year %Low %Med %High ParolePop
2008 78% 12% 10% 1,950
2011 80% 14% 6% 1,862
Source: HPA Annual Reports; HPA Database; ICIS Database
Low
Medium
High
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Probation Population HasIncreased by 15% Since FY 2006
Council of State Governments Justice Center | 30
Degree FY2006 FY2007 FY2008 FY200 FY2010 FY2011
Total 16,07 16,451 16,424 16,35 17,771 18,542
Felony 10,059 10,379 10,685 11,168 11,423 11,778
Misd. 5,975 6,034 5,704 5,733 6,317 6,715
Other 45 38 35 34 31 49
Source: HI AOC Database
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Probation Lengths in the Largest U.S. CountiesRarely Last More than Three Years
Council of State Governments Justice Center | 31
*BasedonBJSstudyofdefendantschargedinMay2006withfelonyoffense
hNp://bjs.ojp.usdoj.gov/content/pub/pdf/fdluc06.pdf(AppendixTable12)
Distribu9onofProba9onLengthsbyOffenseDegree*
OffenseDegree 1-12mos 13-24mos 25-36mos 37+mos
Felony 16% 36% 31% 18%
Misdemeanor 54% 29% 16% 1%
InLargestUSCounEes...
InHawaii...
Distribu9onofProba9onLengthsbyOffenseDegree
OffenseDegree 1-12mos 13-24mos 25-36mos 37+mosFelony 2% 1% 1% 96%
Misdemeanor 83% 15% 1% 1%
Fewerthan5%offelony
proba=onersin
Hawaiiare
orderedtoterms
of3yearsorless.
Comparedwith83%inlargestUS
urbancoun=es
q60%ofthefelonyproba=onersreceiving
termsof37+months
arelowrisk.
Source: HI AOC Database
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Key Finding & Policy Direction:Pre-Trial Population
Council of State Governments Justice Center | 32
Amendcourt/PSDprocesstoprovidejudgewith
informa9onaboutriskof
rearrestandfailureto
appearatini9alappearance.
Setgoalstoreduceaveragelengthofstay
forindividualswhoare
alreadyreleasedonpre-
trialsupervisionorROR.
1. Pre-trialpopula=onhasincreasedduetolonglengthsofstay&lowpercentageofreleasestosupervision
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Key Finding & Policy Direction:Sentenced Population
Council of State Governments Justice Center | 33
Tailorprogrammingrequirementstoriskof
recidivismandcriminogenic
need.
Makesureparolereleasedecisionsare
informedbyriskof
recidivism.
2. Increasingnumberdeniedparole,duetoprogrammingrequirementsoflowriskoffenders&boNlenecks
Allowjudgesgreaterdiscre9ontodetermine
whencertaindrugoffenders
requireaprisonvs.jailterm.
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Key Finding & Policy Direction:Parole & Probation
Council of State Governments Justice Center | 34
Reducelengthofstayandcostsassociatedwith
punishingparole
violatorstoensure
sufficientresourcesarein
placetochangebehavior.
Ensureaperiodofsupervisionattheendof
everyoffenderssentencefor
holdingoffenders
accountableandtransi9oning
thembacktothecommunity.
3. Paroleviolatorsarebeingheldlonger,andincreasinglyheldtofinishtheirsentencewithoutsupervision.Lengthof
proba=onislongerthanmoststates.
Strengthenproba9onsupervisionbyfocusingresourceson
theini9al1-2yearsofsupervision&expandingtreatment.
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Potential Bed Reduction FromAddressing Key Drivers
Council of State Governments Justice Center | 35
Pre-trialpopula=onhas
recentlydoubled
Increasingnumberdeniedparole,mostlydueto
programmingboNlenecks
Paroleviolatorsarebeingheldlonger,andincreasinglyheldto
finishtheirsentencewithout
supervision
1.
2.
3.
IncreaseSinceFY2006:
665
37
154
Total:1,18
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Proposed Timeline
Dates Activity
November 29 Working Group Meeting(detailed data analysis & policy direction)
November-December Policy Development &Stakeholder Consultation
January 17 Working Group Meeting(detailed policy options)
Council of State Governments Justice Center | 37
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Council of State Governments Justice Center | 38
Thank You
This material was prepared for the State of Hawaii. The presentation wasdeveloped by members of the Council of State Governments Justice Centerstaff. Because presentations are not subject to the same rigorous review
process as other printed materials, the statements made reflect the views ofthe authors, and should not be considered the official position of the Justice
Center, the members of the Council of State Governments, or the fundingagency supporting the work.
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