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Justice Reinvestment in Hawaii
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Justice Center
WHQZDOG 6HQDWH 3UHVLGHQW 6KDQ 7VXWVXL +RXVH 6SHDNHU Andy Barbee, Senior Researcher &DOYLQ 6D\ DQG 'HSDUWPHQW RI 3XEOLF 6DIHW\ 'LUHFWRU -RGLH 0DHVDND +LUDWD VHHN WR HPSOR\ D GDWD GULYHQ MXVWLFH Robert Coombs, Senior Policy Analyst & Public Affairs Manager UHLQYHVWPHQW VWUDWHJ\ WR EULQJ RXW RI VWDWH SULVRQHUV EDFN WR +DZDLL UHGXFH VSHQGLQJ RQ FRUUHFWLRQV DQG UHLQ YHVW VDYLQJV JHQHUDWHG LQ VWUDWHJLHV WKDW ZRXOG UHYHUVH UHFHQW FULPH WUHQGV 7R WKLV HQG WKH\ VRXJKW DVVLVWDQFH IURP WKH %XUHDX RI -XVWLFH $VVLVWDQFH D GLYLVLRQ RI WKH 8 6 'HSDUWPHQW Council of State Governments Justice Center | 1 RI -XVWLFH DQG WKH 3HZ &HQWHU RQ WKH 6WDWHV 7KH VWDWH OHDGHUV DJUHHG WR HVWDEOLVK D ELSDUWLVDQ LQWHU EUDQFK -XVWLFH 5HLQYHVWPHQW :RUNLQJ *URXS FRPSULVLQJ OHDGLQJ VWDWH DQG ORFDO RI½FLDOV ZKLFK ZRXOG UHFHLYH LQWHQ VLYH WHFKQLFDO DVVLVWDQFH IURP WKH &RXQFLO RI 6WDWH *RYHUQPHQWV -XVWLFH &HQWHU LQ SDUWQHUVKLS ZLWK WKH 3HZ &HQWHU RQ WKH 6WDWHV 7KH &6* -XVWLFH &HQWHU ZLOO DVVLVW WKH ZRUNLQJ JURXS LQ DQDO\]LQJ GDWD DQG GHYHORSLQJ D FRPSUHKHQVLYH VHW RI SROLF\ RSWLRQV
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•  Criminal Justice / Mental Health
•  Reentry Policy Council
•  Justice Reinvestment
•  Consensus Project
Council of State Governments Justice Center | 2
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Justice Reinvestment Assists State Officials in Identifying Policies to Improve Public Safety
Council of State Governments Justice Center | 3
Governor, Chief Justice & Legislative Leaders Launch Justice Reinvestment Initiative in June 2011
STATE TO EXAMINE INMATE RETURN POLICY The study will focus on ending the use of mainland prisons Jun 29, 2011 Hawaii is preparing a data-driven look inside the criminal justice system to help determine whether the state can stop sending prisoners to mainland prisons. Council of State Governments Justice Center | 4
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Justice Reinvestment Is Directed at Reducing Correctional Cost While Enhancing Public Safety 1. Focus on the people most likely to commit more crime 2. Use programs proven to work & ensure they are high quality 3. Deploy supervision policies and pracAces that balance sancAons and treatment 4. Target places where crime and recidivism rates are the highest Council of State Governments Justice Center | 5
Justice Reinvestment Process Bipartisan, inter-branch, bicameral working group 1
2
3
Analyze Data & Develop Policy Options
Adopt New Policies
Measure Performance
• Analyze data to look at crime, court, corrections, and supervision trends
• Identify assistance needed to implement policies effectively
• Track the impact of enacted policies/ programs
• Deploy targeted reinvestment strategies to increase public safety
• Monitor recidivism rates & other key measures
• Solicit input from stakeholders • Map allocation of resources • Develop policy options & estimate cost savings
• Review implementation progress
Council of State Governments Justice Center | 6
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Overview
Key Findings Policy OpAons Projected Impact Council of State Governments Justice Center | 7
Crime & Victimization Rates Are Down 2006
2010
60,000 50,000 40,000 30,000 20,000 10,000 0 Violent
Property
Source: FBI UCR Crime Statistics 2006 and 2010; Crime & Justice in Hawaii: 2010 Household Survey Report, Hawaii Attorney General (August 30, 2011)
Council of State Governments Justice Center | 8
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Number of Felony Convictions Declining, Especially to Prison 2,500
2,000
In 2011, 32% of individuals convicted of a felony were sentenced to prison − compared to 41% in 2007
ProbaAon ProbaAon w/ Jail Prison
1,500
1,000
500
0 2007
2008
2009
2010
Source: HI AOC Database
2011
Council of State Governments Justice Center | 9
Hawaii’s Prison & Jail Population Increased 18% from 2000 to 2011 7,000 6,251
6,000 5,000
6,043
as of June 6, 2011
5,127
Hawaii has contracted with mainland facilities to house from 1/4 to 1/3 of its inmates.
4,000 3,000 2,000 1,000 0 2000
2001
2002
2003
2004
Source: Hawaii PSD Annual Reports (2000-2008), communication from PSD staff (2009-10), and PSD Weekly Population Updates (2011).
2005
2006
2007
2008
2009
2010
2011
Council of State Governments Justice Center | 10
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Key Findings 1. Jail populaAon is increasing
due to delays in pre-‐trial process. Crime, arrests, and felony 2. Increasing number denied parole, due to convicDons programming requirements of have declined… low risk offenders & boVlenecks.
…but the prison/jail populaDon has not declined, because:
3. Prisoners are being held longer, and
increasingly held to finish their sentence without supervision.
4. Lack of discreAon in sentencing low
severity drug offenders and long probaAon terms resulAng in poor resource investments. Council of State Governments Justice Center | 11
KEY FINDING 1
“Jail” Population Increased 48% 2500
2000
Despite stable admissions, the pre-‐ trial populaAon
1500
increased 117%
1000 Pre-‐Trial PopulaAon 500
0 2006
Sentenced Jail PopulaAon
2007
2008
2009
Source: : PSD data provided to CSG Justice Center for analysis (FY2006-2011 End of Year “Snapshot” 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.
2010
2011
Council of State Governments Justice Center | 12
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KEY FINDING 1
Pretrial Felons Spending Longer in Jail FY 2006 Releases (n=2,415) Bail (33%)
Avg LOS 31 days
ROR (8%)
31 days
Supv Rel (34%)
84 days
Other (25%)
q Release on Own Recognizance (ROR) and Supervised Release (SR) account for 43% of all pretrial felony releases, but it takes three months.
FY 2011 Releases (n= 1,953)
Avg LOS 32 days
Bail (42%) ROR (14%)
59 days
Supv Rel (29%)
102 days
Other (15%)
Source: PSD Releases Data from FY2006-2011
Council of State Governments Justice Center | 13
KEY FINDING 1
Pretrial Felony Release Trends: Hawaii Compared to Other Large US Counties
Analysis of Felony Cases Filed and Type of Release from Jail During Pretrial Status*
County
Non-‐Financial
Money Bail
No Pretrial Release
% of Tot
Jail LOS
% of Tot
Jail LOS
% of Tot
Jail LOS
Honolulu, HI
27%
71 days
30%
37 days
41%
216 days
Maricopa, AZ
39%
4 days
13%
18 days
8%
137 days
Los Angeles, CA
13%
5 days
17%
8 days
63%
74 days
39 County Average
14 days
12 days
121 days
q Of the 39 counAes in the study, 32 manage to release defendants under non-‐financial condiAons in less than 15 days.
q Across the board, Honolulu had the longest average stay in jail for those ulAmately released during the pretrial stage.
* Based on Bureau of JusAce StaAsAcs Court Processing StaAsAcs Project (May 2004 felony case filings).
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KEY FINDING 1
FY 2011 Pretrial Release Trends by Island
Pretrial Release Type (Felony)
Oahu
Maui
Hawaii
Kauai
1,160
352
300
138
% of tot PT rels
38%
47%
52%
40%
Avg LOS
35 days
29 days
20 days
51 days
Supervised Release
% of tot PT rels
28%
42%
26%
8%
Avg LOS
111 days
119 days
40 days
60 days
Own Recognizance
% of tot PT rels
22%
0%
2%
6%
Avg LOS
60 days
na
28 days
62 days
Total Felony Pretrial Releases Bail/Bond
Source: PSD Releases Data from FY2006-2011
Council of State Governments Justice Center | 15
KEY FINDING 2
Overall “Prison” Population Declined by 14%, but... 5,000
The parole violator populaAon increased
4,500 4,000
37%
3,500 3,000 2,500 2,000
The post-‐minimum sentenced populaAon increased 77%
Pre-‐Minimum Post-‐Minimum Parole Violator
1,500 1,000 500 0
2006
2007
2008
2009
2010
2011
Parole Violator
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
Source: PSD data provided to CSG Justice Center for analysis (FY2006-2011 End of Year “Snapshot” Population). Pre- and Post-Minimum Offenders include those sentenced for a new conviction or a probation revocation.
Council of State Governments Justice Center | 16
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KEY FINDING 2
Parole Approval Rate Declining
Parole Approval Rate
50% 40%
Reason for Denial
40%
Program Delay 65%
34%
30%
Misconduct 5% Board Unconvinced 30%
20% 10% 0%
FY 2006
FY 2010
Source: PSD End of Year “Snapshot” Population Data, FY2006-2011; HPA Annual Reports; Analysis of Sample of Parole Board Decision Summaries
Council of State Governments Justice Center | 17
KEY FINDING 3
Increase in Parole Violator Population Due to Longer Length of Stay
Admissions HPA # of Parole Violators ‘06 – ’10 FY 2006 FY 2010 % chg 364
220
-‐40%
x
Length of Stay Avg. # of Months
=
‘06 – ‘11 FY 2006 FY 2011 % chg 19.0
28.3
Source: HPA Annual Reports; PSD Annual Release Population Data from FY2006-2011; PSD End of Year “Snapshot” Data, FY2006-2011
49%
PopulaDon
# in Prison PopulaDon FY 2006 FY 2011 416
570
‘06 – ‘11 % chg 37%
Council of State Governments Justice Center | 18
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KEY FINDING 3
Increasing Number of People Released From Prison Without Supervision Sentenced Felon Releases FY 2006
Type of Release
FY 2011
# Rels
% High Risk
# Rels
% High Risk
Parole
557
11%
595
23%
Max Out
121
12%
247
41%
Other
53
15%
26
46%
Total
731
12%
868
29%
Number of high risk prisoners maxing out without supervision increased from 15 to 101.
• 61% of max outs were rearrested within 3 years of being released. • By contrast, only 35% of releases to parole were rearrested within 3 years of being released. Source: PSD Annual Release Population Data from FY2006-2011; ICIS Database. Re-arrest analysis examined both felony and misdemeanor arrests recorded for those released in FY2008, and examined a three year follow up period.
Council of State Governments Justice Center | 19
KEY FINDING 3
Detailed Breakdown of Sentenced Felons Maxing Out FY 2011 Prison Maxouts
247
Parole Violators
New Crime in Prison
Mandatory Minimum
Eligible for Parole But Held to Maximum
Inmate Refused
Other
72
7
4
135
24
5
− should have not been coded as sentenced felons
− 95 unable to complete programs
− 2 unable to secure housing
− 38 denied for other reasons
Source: PSD Releases Data from FY2006-2011; follow-up analysis on FY 2011 sentenced felon maxouts by HPA.
Council of State Governments Justice Center | 20
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KEY FINDING 4
Statute Requires Prison Sentence for 2nd Felony Drug Possession Offense
Prisoners Incarcerated for Low Severity Drug Possession/Use Offenses as of 6/30/2011 Offense Total Low Medium High PromoAng a Dangerous Drug 3
220
Prohibited Acts Related to Drug Paraph. Subtotal Risk Level Low Medium High
q 55% of the those incarcerated for the above offenses are low or medium risk. Source: PSD End of Year “Snapshot” Population Data, FY2006-2011; ICIS Database
71
47
102
187
73
31
83
407
144
78
185
q 26% have no more than 2 prior felony arrests of any offense type (includes current offense for which they are incarcerated). − Current law requires incarceraAon for minimum term upon 2nd felony drug convicAon.
Council of State Governments Justice Center | 21
KEY FINDING 4
Exceptionally Long Probation Terms In Largest US Coun;es...
83% of the felony probaAoners in largest US counAes receive terms of 3 years or less. In Hawaii...
95% of felony probaAoners in Hawaii are ordered to terms of more than 3 years. q 60% of the felony probaAoners receiving terms of more than 3 years are low risk.
Source: HI AOC Database
Council of State Governments Justice Center | 22
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KEY FINDING 4
Across Risk Levels, Offenders Are Spending Longer on Probation Felony ProbaDoners by Risk Level FY 2006
FY 2011
Risk Level
June 30 Avg Mos on June 30 Avg Mos on Supv Supv Pop Pop
Total
16,079
49
18,542
61
Low
13,695
55
14,703
68
959
26
1,771
42
1,425
25
2,068
39
Medium High
q FY 2011 probaAoners with an open case had been on supervision an average of 61 months at year-‐end − compared with 49 months for FY 2006 ü 25% increase in LOS
3-‐Yr Rearrest Rates q FY 2008 probaAoners tracked for 3 years aler original placement show that high risk probaAoners have much higher recidivism rates than their low-‐risk counterparts − 34% (low-‐risk) vs. 56% (high-‐risk)
60% 40% 20% Low Risk
Source: AOC Probation Placement Data from FY2007-2011; ICIS Database; Dept. of AG CJIS Database
High Risk
Council of State Governments Justice Center | 23
Restitution, Victim Notification, & Safety Planning • Current statutes only require people to pay ten cents to vicAms for every dollar they earn behind bars, even if they have hundreds and thousands of dollars in their accounts. • VicAm noAficaAon has become a system that people rely upon for informaAon yet funding has not been idenAfied to sustain the state’s noAficaAon program. • Helping vicAms develop a safety plan is a core service many states provide as part of a comprehensive approach to reentry, yet Hawaii does not have resources or personnel to provide this support. Council of State Governments Justice Center | 24
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Overview
Key Findings Policy OpDons Projected Impact Council of State Governments Justice Center | 25
Hawaii Justice Reinvestment Policy Framework I
Increase Efficiency
• More Amely assessment • Earlier determinaAon by courts about pretrial release • Greater flexibility for accepAng bail payments
II
Reduce Recidivism
• Base programming requirements on knowledge about what works • Focus resources on high-‐risk offenders • Use swil, certain, and proporAonate responses to supervision violaAons
III
Ensure Accountability
• Strengthen public safety by ensuring all felons supervised upon release from prison • Improve accountability and consistency of resAtuAon collecAon by PSD • Enhance reentry through vicAm safety planning
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I
Increase Efficiency
1-‐A: Reduce delays in pre-‐trial process. q Require bail report and supervision assessment be available to court within three working days aler booking in a PSD CCC facility based on objecAve assessment of risk for re-‐offense, failure to appear, and suitability for supervision in the community.
1-‐B: Reduce obstacles to paying bail. q Require courts and PSD to coordinate in providing expanded methods of paying bail 24/7.
Council of State Governments Justice Center | 27
II
Reduce Recidivism
2-‐A: Strengthen probaAon supervision by focusing resources during iniAal period of supervision.
q Cap length of probaAon at 3 years for Class B/C felony offenders. q Provide incenAve Ame credits for successful probaAoners to free up resources to focus on probaAoners in need of addiAonal monitoring.
2-‐B: Require Parole Board to base programming requirements and release decisions on objecAve risk assessment.
q PSD must ensure that risk/need assessments, criminal history, and computaAon of pretrial credits be provided to Board no later than 45 days aler admission to PSD facility (post-‐adjudicaAon). q Add addiAonal full or part-‐Ame parole board members to avoid delays in parole process.
2-‐C: Prisoners who qualify as low-‐risk for recidivism should be
released to parole at the minimum sentence date established by the Parole Board unless the offender commits a serious misconduct. q All offenders shall receive assistance while transiAoning back into community, but that assistance should not delay the release of low-‐ risk offenders. Council of State Governments Justice Center | 28
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II
Reduce Recidivism
2-‐D: Limit term of incarceraAon for violaAng the condiAons of parole to no more than 6 months.
q Offender may be incarcerated for longer period if they abscond or are charged with a new crime. q Apply a model of swil and certain sancAons to address violaAons more cost-‐effecAvely.
2-‐E: Allow judicial discreAon in sentencing 2nd Ame felony drug possession offenders to prison or probaAon.
q Similar to exisAng law for 1st Ame felony drug possession. q All other things being equal, incarceraAon of this populaAon leads to higher recidivism rates. Therefore probaAon (as well as prison) shall be an opAon.
2-‐F: Raise felony thel threshold from $300 to $750. q Current threshold in Hawaii is among the lowest in the US. Average level across 50 states is above $1000. q Reduces felony cases/convicAons.
Council of State Governments Justice Center | 29
III
Ensure Accountability
3-‐A: Ensure a minimum period of parole supervision to prevent
prisoners being discharged to the community without any supervision whatsoever. Length of supervision shall be determined by maximum sentence discharge date less 18 months for Class A felons, 12 months for Class B felons, and 9 months for Class C felons. q Period of supervision will be used to assist offender in transiAoning back to community and maintain safety plan standards for vicAms.
3-‐B: Require PSD to collect 25% of all inmate deposits/accounts (instead of current 10% on just wages).
q Collected monies shall be used to saAsfy outstanding resAtuAon orders. q Develop a vicAm liaison within PSD to assist with safety planning and other vital services.
Council of State Governments Justice Center | 30
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Hawaii Justice Reinvestment Policy Framework I
II
Increase Efficiency
1-‐A: Reduce delays in
Reduce Recidivism
2-‐A: Focus
2-‐C: Parole low-‐risk
assessments to inform parole.
parole violaAons to 6 months.
Ensure Accountability
paying bail.
2-‐B: Risk
probaAon supervision.
2-‐D: Limit certain
III
1-‐B: Reduce obstacles to
pre-‐trial process.
at minimum sentence date.
2-‐E: DiscreAon in
2nd Ame felony drug possession cases.
3-‐A: Ensure a minimum
2-‐F: Raise
felony thel threshold.
3-‐B: Increase vicAm
period of post-‐prison supervision.
resAtuAon collecAon from prisoners. Council of State Governments Justice Center | 31
Overview
Key Findings Policy OpAons Projected Impact Council of State Governments Justice Center | 32
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Projected Impact on the PSD Population 8,000
7,000 Baseline 6,000 Impact from LegislaAon 5,000 Impact from LegislaAon and Early AdministraAve AdopAon
4,000
3,000
2,000
00 20 FY
01 20 FY
02 20 FY
03 20 FY
04 20 FY
05 20 FY
06 20 FY
07 20 FY
08 20 FY
09 20 FY
10 20 FY
11 20 FY
12 20 FY
13 20 FY
14 20 FY
15 20 FY
16 20 FY
17 20 FY
18 20 FY
Council of State Governments Justice Center | 33
How Reduced Bed Demand Impacts AZ Population
2,000 1,500
AZ PopulaDon
The reducAon in bed demand on PSD system-‐wide will allow for a gradual reducAon in the number of people housed on the mainland. ü from approximately 1,750 down to fewer than 600
1,000 500 0
11 11 12 12 13 13 14 14 15 15 16 16 17 17 18 18 20 4 20 2 20 4 20 2 20 4 20 2 20 4 20 2 20 4 20 2 20 4 20 2 20 4 20 2 20 4 20 Q2 Q Q Q Q Q Q Q Q Q Q Q Q Q Q Q
Council of State Governments Justice Center | 34
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Estimated Cost Savings Generated FY 2013
FY 2014
FY 2015
FY 2016
FY 2017
FY 2018
1,191
1,195
Average ReducDon in Bed Demand Full Year
410
794
1,051
1,162
1st 6 mos
299
702
1,013
1,143
1,189
1,195
2nd 6 mos
522
885
1,089
1,181
1,193
1,195
Savings Based on Average Cost per Day of AZ Contracted FaciliDes* Full Year
$9.8m
$19.5m
$26.5m
$30.1m
$31.6m
$32.5m
1st 6 mos
$3.6m
$8.7m
$12.9m
$14.9m
$15.9m
$16.4m
2nd 6 mos
$6.2m
$10.8m
$13.6m
$15.2m
$15.7m
$16.1m
* Assumes a 2.5% annual increase in cost per day above FY 2012 rate of $65.77.
Council of State Governments Justice Center | 35
Bottom Line
FY 2013
FY 2014 FY 2015
FY 2016 FY 2017 FY 2018
CumulaAve 6 Year Impact
Gross Savings
$9.8m
$46.0
$94.1m
$150.0m
Reinvestment
$7m
$14m
$21m
$42m
$2.8m
$32.0m
$73.1m
$108.0m
Net Savings
Council of State Governments Justice Center | 36
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Estimated Annual Reinvestment Required Area of Focus Pretrial Evidence-‐ Based PracDces
Parole VicDms
Specific Item
Amount
PSD Intake Services to Conduct Assessments Quickly
$300,000
Judiciary (24/7 bond payment)
$300,000
ProbaAon (training unit; CBT/SA programming)
$500,000
PSD Risk Assessment & Programming
$500,000
PSD Community-‐Based Programming
$1,700,000
PSD Research and Planning
$400,000
RES Re-‐Entry Office
$300,000
Parole DeterminaAon
$300,000
Parole Supervision
$700,000
NoAficaAon, Safety Planning, ResAtuAon, Accountability
$2,000,000
Total Annual Reinvestment Budget
$7,000,000 Council of State Governments Justice Center | 37
Next Steps Dates
Activity
January 17
• Working Group Meeting (detailed policy option rollout) • Press Conference
TBD
• •
Bill Introduction Hearing Schedule
Following Enactment
•
Potential for Phase II Technical Assistance with Implementation and BJA Grant Funding
Council of State Governments Justice Center | 38
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Thank You
This material was prepared for the State of Hawaii. The presentation was developed by members of the Council of State Governments Justice Center staff. Because presentations are not subject to the same rigorous review process as other printed materials, the statements made reflect the views of the authors, and should not be considered the official position of the Justice Center, the members of the Council of State Governments, or the funding agency supporting the work.
Council of State Governments Justice Center | 39
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