No. 1, 1982 - Hawaii Legislative Reference Bureau

Transcription

REVIEW OF THE
IMPLEMENTATION OF THE
HAWAII CORRECTIONAL
MASTER PLAN
SUSAN CLAVERIA
Researcher
Report No. 1, 1982
Legislative Reference Bureau
State Capitol
Honolulu, Hawaii 96813
FOREWORD
T h i s review o f t h e Hawaii C o r r e c t i o n a l Master Plan was conducted i n
response t o House Resolution No. 132 adopted i n 1981. D u e t o t h e l e n g t h y
a n d s p a r s e l y documented h i s t o r y o f t h e master p l a n development, t h e
complexity o f t h e p l a n i t s e l f a n d t h e operations o f t h e c r i m i n a l j u s t i c e system,
much o f t h e i n f o r m a t i o n o b t a i n e d f o r t h i s r e v i e w was o b t a i n e d t h r o u g h
personal i n t e r v i e w s w i t h , a n d data p r o v i d e d b y , t h e professionals i n t h e f i e l d
o f c o r r e c t i o n s (see A p p e n d i x G ) . These people have been extremely p a t i e n t
a n d cooperative a n d t h e B u r e a u is i n d e b t e d t o them f o r t h e i r valuable
assistance.
T h i s r e p o r t s h o u l d n o t b e c o n s t r u e d as an a u d i t o f t h e master p l a n as
T h e r e p o r t s h o u l d instead b e
t h e B u r e a u did n o t c o n d u c t an a u d i t .
considered as a f a c t - f i n d i n g r e p o r t o n t h e s t a t u s o f t h e master plan
It is hoped t h a t t h e contents o f t h i s r e p o r t w i l l assist t h e
implementation.
L e g i s l a t u r e in t h e determination o f new p o l i c y d i r e c t i o n s f o r corrections.
Samuel B. K. C h a n g
Director
J a n u a r y 1982
TABLE OF CONTENTS
Page
FOREWORD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
T A B L E OF CONTENTS
1.
INTRODUCTION
a.
b
c.
.
2.
f.
g
3.
.
4.
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
T h e Legislative Mandate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Scope o f S t u d y . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2
Methodology and Conduct o f S t u d y . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
T h e DSS Maui Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
T h e NCCD S t u d y . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
T h e Final DSS Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6
T h e J o i n t Legislative I n t e r i m Committee Plan . . . . . . . . . . . . . . . . . . . . . . . . . . .6
T h e J o h n Howard Association Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
O r i g i n o f t h e Hawaii Correctional Master Plan . . . . . . . . . . . . . . . . . . . . . . . . . . .7
HCMP Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8
T H E MASTER PLAN CONCEPT
a.
b.
c.
d.
e.
f.
II
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $...
11
H I S T O R I C A L BACKGROUND
a.
b.
c.
d.
e.
..
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
Community Treatment Philosophy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
Criminal J u s t i c e System U n i f i c a t i o n . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Centralized I n t a k e and Information System . . . . . . . . . . . . . . . . . . . . . . . . . . . .11
Program C o r e . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
A Statewide System o f Correctional Facilities . . . . . . . . . . . . . . . . . . . . . . . . . .13
Population Projections a n d Assumptions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
GUIDELINES FOR IMPLEMENTATION OF THE HCMP
. . . . . . . . . . . . . . . . . . . . . . . . 16
T r a n s f e r o f C o u n t y Jails t o t h e State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16
A d m i n i s t r a t i v e R e s t r u c t u r i n g . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
S t a f f i n g Requirements f o r Correctional Facilities . . . . . . . . . . . . . . . . . . . . . .17
I n t a k e Service C e n t e r . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
H i g h S e c u r i t y Facility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
Oahu Community Correctional C e n t e r . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
N e i g h b o r I s l a n d Community Correctional C e n t e r s . . . . . . . . . . . . . . . . . . . . . . 21
Half-way Residential Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
5.
PROGRESS OF HChilP IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
a.
b.
c.
d.
e.
.
New Correctional Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
.
A d m i n i s t r a t i o n . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27
S t a f f i n g a t Correctional Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .31
I n t a k e Service Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32
.
Halawa H i g h S e c u r i t y F a c i l i t y . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
Page
f.
g.
h.
Oahu Community Correctional Center .................................. 36
Neighbor I s l a n d Community Correctional C e n t e r s . . . . . . . . . . . . . . . . . . . . . . 38
Half-way Residences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
FINDINGS
.
.
a
b.
c
d.
................................................................
41
E x t e r n a l Factors A f f e c t i n g HCMP Implementation . . . . . . . . . . . . . . . . . . . . . . 41
A d m i n i s t r a t i v e and Organization Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
T h e r e Has Been No Change I n t h e
Philosophy o f Corrections ............................................ 48
Cost-effectiveness o f P u r s u i n g a
Philosophy o f I n c a r c e r a t i o n . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
..................................
51
..............................................................
56
CONCLUSIONS AND RECOMMENDATIONS
FOOTNOTES
Tables
H i s t o r y o f Legislative A p p r o p r i a t i o n s and LEAA F u n d i n g
f o r Correctional Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
A d u l t Correctional Facilities:
Capacity and Headcount . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Release by Time Served by Offense Class . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
Figure
Felon Admissions a n d Releases:
FY 1975-76 t h r o u g h FY 1980.81
......................................
43
Appendices
Description o f A d u l t J u s t i c e System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
A d u l t I n t a k e Service Flow . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Present Correctional Organization and
Proposed Organizational Format . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Comparison o f Inmate Population (Headcount)
t o Bedspace as o f November 1. 1981 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Summary o f Potential ISC Functions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Recommended ISC/CCC Functional Assignments . . . . . . . . . . . . . . . . . . . . . . . .
Resource Persons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
House Resolution No . 132, H . D . 2 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
61
64
66
68
69
72
74
75
Chapter 1
INTRODUCTION
A new correctional philosophy emerged i n Hawaii d u r i n g t h e f i f t i e s a n d
g a i n e d momentum i n t h e sixties. T h i s new philosophy focused o n t h e humane
t r e a t m e n t a n d rehabilitation o f inmates, since it was e v i d e n t t h a t custodial
t r e a t m e n t o f inmates i n t h e t r a d i t i o n a l i n s t i t u t i o n a l s e t t i n g was n o t w o r k i n g .
T o implement programs u n d e r t h i s new philosophy, t h e r e was a need t o
r e p l a c e t h e a n t i q u a t e d Hawaii State Prison.
While t h e r e were numerous e f f o r t s i n t h e sixties t o change t h e p r i s o n
system, it was n o t u n t i l 1970 t h a t a consensus was achieved among t h e c o r r e c t i o n a l forces f o r commitment t o a philosophy o f corrections s t r e s s i n g
r e h a b i l i t a t i o n p r i m a r i l y t h r o u g h community-based programs, and f o r t h e
development o f a n i n t e g r a t e d p r o g r a m - o r i e n t e d master p l a n which w o u l d r e f l e c t t h a t p h i l o s o p h y . B y 1973, when t h e master p l a n was f i n a l l y developed,
p r e s e n t e d t o t h e legislature, a n d adopted i n concept, economic conditions in
t h e State w e r e l o o k i n g bleak a n d reception t o t h e master p l a n was cooled by
i t s h i g h p r i c e t a g o f n e a r l y $25 million.
When c o n s t r u c t i o n o f t h e master p l a n facilities commenced in 1977, Hawaii
was caught o f f g u a r d b y a b u r g e o n i n g inmate population which i t s e x i s t i n g
a n d planned facilities w e r e n o t equipped t o handle. Added p r e s s u r e s w e r e
p l a c e d on t h e correctional facilities b y t h e p u b l i c ' s demand t o g e t t o u g h o n
criminals,
new mandatory sentencing laws, s t r i c t e r minimum sentencing
policies, a n d inmate u n r e s t d u e t o o v e r c r o w d i n g a n d idleness i n t h e facilities.
T h e emphasis i n corrections s h i f t e d f r o m a planned p r o g r a m approach t o a n
unplanned, d i s j u n c t i v e approach o f p u t t i n g o u t f i r e s . T h e s h i f t i n g o f blame
by o n e criminal j u s t i c e agency upon another was n o t uncommon and criticisms
o f t h e master p l a n as b e i n g impractical and i n a p p r o p r i a t e i n meeting today's
c o r r e c t i o n a l needs were widespread.
Today, w i t h most o f t h e master p l a n facilities completed, t h e inmate
headcount as o f November 1, 1981 was 1,036 despite t h e master p l a n project i o n o f a maximum o f 489 by 1990. Many o f t h e o l d facilities l i k e t h e Hawaii
S t a t e Prison cellblock a n d Kulani Honor Camp which were supposed t o b e
p h a s e d o u t a r e s t i l l b e i n g used t o house t h e population o v e r f l o w . Even w i t h
t h e use o f o l d facilities, t h e inmate population s t i l l exceeds t h e total b e d
c a p a c i t y o f t h e correctional system.
T h e minimal i n - f a c i l i t y p r o g r a m a n d recreation space p r o v i d e d by t h e
m a s t e r plan coupled w i t h t h e o v e r c r o w d i n g have r e s u l t e d i n increased inmate
idleness w i t h facilities f u n c t i o n i n g as h o l d i n g devices.
Ironically, while t h e
m a s t e r p l a n was premised o n t h e assumption t h a t programs s h o u l d d i c t a t e t h e
d e s i g n and c o n s t r u c t i o n o f facilities, Hawaii f i n d s i t s e l f w i t h t h e r e v e r s e
s i t u a t i o n w h e r e t h e facilities available have d i c t a t e d t h e programs o f f e r e d .
Responding t o t h e cries o f t h e criminal j u s t i c e system t o b u i l d more
p r i s o n space, t h e l e g i s l a t u r e has appropriated, since 1979, approximately
$13.5 million f o r t h e renovation and expansion o f correctional facilities
t h r o u g h o u t t h e State. T h e Corrections Division r e c e n t l y estimated t h a t about
$40 million w o u l d b e r e q u i r e d t o c o n s t r u c t a 500-bed medium s e c u r i t y f a c i l i t y
a t Malawa and t o e x p a n d t h e n e i g h b o r island community correctional centers
R E V I E W O F HCMP IMPLEMENTATION
$40 million w o u l d b e r e q u i r e d t o c o n s t r u c t a 500-bed medium s e c u r i t y f a c i l i t y
a t Halawa a n d t o e x p a n d t h e n e i g h b o r i s l a n d community correctional centers
o n Maui a n d Kauai t o meet t h e needs o f a p r o j e c t e d population o f 1,581 b y
1985.
T h e State, however, is r e s t r a i n e d by a c o n s t i t u t i o n a l s p e n d i n g and
d e b t limit, a n d because o f f e d e r a l b u d g e t cuts, it is u n c e r t a i n how much of
t h e State's f u t u r e resources can b e committed t o c o r r e c t i o n s w i t h o u t severely
hampering o t h e r p r o g r a m s .
T h e policymakers a r e now i n a q u a n d a r y . T h e master plan was i n t e n d e d
t o be t h e navigating instrument f o r f u t u r e correctional planning, b u t t h e
o v e r c r o w d i n g p r o b l e m has cast a c l o u d o v e r t h e master p l a n concept. House
Resolution No. 132, H . D . 2, was adopted d u r i n g t h e 1981 Legislative Session
t o clear t h e a i r by r e q u i r i n g an independent a n d comprehensive review o f t h e
master p l a n .
T h e L e g i s l a t i v e Mandate
House Resolution No.
Reference B u r e a u t o :
132,
H . D. 2,
specifically d i r e c t e d t h e Legislative
. . .study and evaluate the Hawaii Correctional Master Plan,
including the Plan's underlying philosophy or conceptual
approach, in terms of the Plan's effectiveness in meeting
problems and in presenting solutions under current and
future conditions in the corrections field and in view of
changing community attitudes and laws on sentencing of
offenders, the availability of facilities both now and in
the future, and the funding which may reasonably he
expected, make recommendations thereon, including recommended amendments or changes to the Plan itself.
T h e resolution f u r t h e r r e q u i r e d :
. . .that the study shall also include but not he limited
to, an identification of those components of the Hawaii
Correctional Master Plan which have not been fully, or
only partially implemented and a determination of the impact of those components in the Master Plan which were not
fully or only partially implemented, and the cost effectiveness of pursuing a philosophy of incarceration as a
major response in combating crime.
Scope of S t u d y
D u r i n g t h e 1980 Legislative Session, t h r e e separate reviews on t h e implementation o f t h e Hawaii C o r r e c t i o n a l Master Plan ( h e r e i n a f t e r HCMP) were
p r e s e n t e d b y (1) t h e I n t a k e Service C e n t e r A d v i s o r y Board; (2) t h e State
Law Enforcement a n d Planning A g e n c y ( h e r e i n a f t e r SLEPA); a n d (3) t h e Law
Enforcement Assistance A d m i n i s t r a t i o n o f t h e U.S. Department o f J u s t i c e
( h e r e i n a f t e r L E A A ) . Based o n t h e assumption t h a t t h e HCMP was s t i l l sound,
those reviews w e r e concerned w i t h t h e slow implementation o f programs and,
lNTRODUCT lON
consequently, focused o n k e y problem areas. Much a t t e n t i o n i n those r e v i e w s
was d i r e c t e d a t t h e role o f t h e I n t a k e Service C e n t e r and t h e systems c o o r d i n a t i o n component o f t h e HCMP.
T h e p r i m a r y focus o f t h i s s t u d y , however, is t o determine whether t h e
HCMP is s t i l l a v i a b l e i n s t r u m e n t f o r d i r e c t i n g correctional p l a n n i n g i n Hawaii
in view o f t h e changes in t h e criminal justice system which have o c c u r r e d
s i n c e t h e HCMP concept was adopted i n 1973.
T o w a r d t h i s end, a b r o a d e r
r e v i e w , s p a n n i n g all t h e components o f t h e HCMP, was necessary.
The
r e v i e w encompassed a c h a r t i n g o f t h e HCMP concepts and t h e accompanying
g u i d e l i n e s f o r implementation o f t h e capital improvement and p r o g r a m
requirements, a n d an examination o f t h e e x t e n t t o which implementation o f all
t h e HCMP components has been achieved.
Methodology a n d C o n d u c t o f S t u d y
T h e research and t h e f i e l d w o r k f o r t h i s s t u d y
p r o x i m a t e l y f o u r months a n d i n v o l v e d t h e following phases:
encompassed
(1)
Review o f t h e f i v e volumes o f t h e HCMP a n d t h e Hawaii PreDesign r e p o r t , a n d research o n t h e h i s t o r i c a l development of
t h e HCMP;
(2)
Review o f a l l r e p o r t s assessing t h e HCMP a n d research on p e r tinent
corrections
issues
such
as
jail
overcrowding,
sentencing, crime t r e n d s , a n d inmate population projections;
(3)
S u r v e y o f criminal j u s t i c e agencies r e g a r d i n g t h e i r u n d e r s t a n d i n g of t h e HCMP and t h e i r assessment o f i t s effectiveness;
(4)
I n t e r v i e w s w i t h administrators a n d p l a n n e r s o f those criminal
j u s t i c e agencies d i r e c t l y i n v o l v e d i n implementing HCMP
programs; a n d
( 5 ) V i s i t s t o all o f t h e a d u l t correctional facilities excepting t h e
K u l a n i Correctional
Release C e n t e r .
Facility a n d the
Kamehameha
Conditional
ap-
Chapter 2
HISTORICAL BACKGROUND
C o r r e c t i o n a l p l a n n i n g i n Hawaii has n e v e r been w i t h o u t c o n t r o v e r s y and
delays i n implementation.
T o g a i n a f u l l appreciation o f t h e problems s u r r o u n d i n g t h e HCMP implementation, it is necessary t o r e v i e w t h e e v e n t s w h i c h
prompted t h e HCMP development.
I n t h e e a r l y sixties, Hawaii h a d d e p a r t e d f r o m t h e t r a d i t i o n a l custodial
p r o g r a m a n d embarked o n a new d i r e c t i o n i n c o r r e c t i o n s based o n a philosop h y of rehabilitation and reintegration.
T h i s new p h i l o s o p h y maintained t h a t
while society has a r i g h t t o p r o t e c t i o n f r o m criminals t o e n s u r e i t s safety, i t
also has an obligation t o h e l p i n developing t h e employable s k i l l s a n d
r e d i r e c t i n g t h e b e h a v i o r o f t h o s e who a r e i n c a r c e r a t e d i n i t s c o r r e c t i o n a l
facilities.
Popular programs s o u g h t t o p r o v i d e more i n d i v i d u a l i z e d education,
training,
and
work
experience
along
with
professional
diagnosis,
psychotherapy, a n d personal i n t e r a c t i o n treatment.
B u t , t o e f f e c t i v e l y implement these programs i n Hawaii, it was recognized t h a t t h e a n t i q u a t e d
Hawaii State Prison cellblock s t r u c t u r e w h i c h was built in 1918, h a d t o b e
replaced by a modern f a c i l i t y t h a t would b e c o n d u c i v e t o a contemporary c o r rectional p r o g r a m .
'
In 1964, t h e l e g i s l a t u r e a p p r o p r i a t e d $100,000 f o r t h e p l a n n i n g o f a
modern m u l t i p l e s e c u r i t y p r i s o n z a n d $302,400 i n 1965 f o r t h e c o n s t r u c t i o n of
a p r i s o n w i t h a p r i s o n e r capacity o f between 640 a n d 1,000 inmates.'
The
p l a n n i n g f o r a new f a c i l i t y , however, was t r o u b l e d w i t h c o n t r o v e r s y o v e r t h e
p r i s o n site, size, a n d design, a n d t h e r e would b e a g r e a t deal o f s t u d y and
discussion b e f o r e new facilities w e r e b u i l t .
The DSS Maui Plan
T h e department o f social services a n d housing, t h e n k n o w n as t h e
department o f social services ( h e r e i n a f t e r DSS) completed a correctional
master plan i n 1966 i n response t o t h e 1964 legislative a p p r o p r i a t i o n . T h e
p l a n focused o n a t h o r o u g h diagnosis o f t h e b e h a v i o r a n d p e r s o n a l i t y o f i n mates i n o r d e r t o p r o v i d e a p p r o p r i a t e t r e a t m e n t p r o g r a m s . T h e plan called
f o r t h e establishment o f a Diagnostic C e n t e r on Oahu r u n by a team o f
professionals f o r t h e evaluation o f all o f f e n d e r s b e f o r e a n d a f t e r sentencing,
a n d a m u l t i - p u r p o s e c u s t o d y a n d t r e a t m e n t f a c i l i t y to b e located a t Pauwela
Point on t h e I s l a n d of Maui w h i c h w o u l d i n i t i a l l y house 640 inmates a n d by
1980 could b e expanded t o house 800.'
T h e DSS master plan was met w i t h g r e a t opposition d u e t o i t s proposed
Maui p r i s o n site. T h e state administration t w i c e attempted t o negotiate a land
exchange w i t h A l e x a n d e r a n d Baldwin b u t met w i t h opposition f r o m t h e
legislature.
T h e implementation o f t h e Maui p l a n was stalemated.
I n 1969, House Resolution No. 75 expressed legislative c o n c e r n o v e r t h e
delay i n r e s o l v i n g t h e problem o f t h e inadequate p r i s o n system a n d r e q u e s t e d
t h e DSS t o p r e s e n t i t s correctional master p l a n f o r legislative r e v i e w . D u r i n g
t h e 1969 r e g u l a r session, t h e DSS presented a plan w i t h o u t a specific p r i s o n
s i t e designation w h i c h called f o r a $10 million p r i s o n complex w i t h an i n i t i a l
c a p a c i t y o f 400.6 B y t h i s time opposition was focused o n t h e size o f t h e
p r o p o s e d p r i s o n a n d t h e inmate projections a n d c o n s t r u c t i o n costs were c o n T h e House was also concerned t h a t t h e p l a n was t o o
s i d e r e d t o o high.'
f a c i l i t y - o r i e n t e d a n d d i r e c t e d t h e DSS t o r e v i s e i t s p l a n t o r e f l e c t a p r o g r a m m a t i c approach advocating t h e use of p r o b a t i o n a n d h o n o r camps r a t h e r t h a n
b u i l d i n g more cells.
The NCCD Study
I n connection w i t h t h e Maui p r i s o n s i t e c o n t r o v e r s y , t h e DSS in
December o f 1967 requested t h e National Council o n Crime a n d D e l i n q u e n c y
( h e r e i n a f t e r NCCD) t o conduct a comprehensive r e v i e w o f correctional s e r v i c e s i n t h e State.
A f t e r completion o f p r e l i m i n a r y plans, t h e NCCD f i e l d
w o r k commenced i n May 1968 a n d t h e r e s u l t s o f t h e s u r v e y of all c r i m i n a l
j u s t i c e operations w e r e p u b l i s h e d i n October 1969.
T h e NCCD s t u d y f o u n d t h a t w h i l e Hawaii's correctional system was p r o g r e s s i v e a n d r e c e p t i v e t o change, it was fragmented a n d did n o t p r o v i d e a
c o n t i n u u m o f c o n s i s t e n t a n d e f f i c i e n t services t o all o f f e n d e r s as t h e y w e r e
processed t h r o u g h t h e various phases o f t h e criminal j u s t i c e system.'
The
m a j o r deficiency n o t e d b y t h e NCCD was a n absence o f a c e n t r a l a u t h o r i t y to
administer c o r r e c t i o n a l f u n c t i o n s i n t h e State.
T h e NCCD recommended 255 specific changes t o improve Hawaii's c o r r e c t i o n a l system a n d t o g u i d e i t s f u t u r e development.
T h e t w o p r i n c i p a l recommendations were t h a t :
1
T h e State should adopt a new goal o f corrections u s i n g
methods o f i n t e g r a t i o n o r r e i n t e g r a t i o n w i t h more use o f
community-based
programs
and
less
emphasis
on
incarceration.
''
(2)
D i f f e r e n t i a l t r e a t m e n t s h o u l d b e made available and programs
s h o u l d aim t o change t h e offender's a t t i t u d e a n d behavior so
t h a t t h e o f f e n d e r can f u n c t i o n as a u s e f u l person i n t h e comm u n i t y r e t u r n e d to,
A basic research p r o g r a m must b e
developed t o s u p p o r t t h i s correctional p h i l o s o p h y . l 2
O t h e r changes recommended by t h e NCCD were t h e :
(1)
Reorganization
authority; I f
of
correctional
services
under
one
central
(2)
Provision of clinical a n d i n v e s t i g a t i v e r e p o r t s t o t h e c o u r t s and
p a r o l i n g a u t h o r i t y c o n t a i n i n g evaluation o f o f f e n d e r charact e r i s t i c s a n d recommendations f o r d i f f e r e n t i a l treatment; "
(3)
C o n s t r u c t i o n o f a medium s e c u r i t y f a c i l i t y o n Oahu i n close
p r o x i m i t y t o Honolulu which o f f e r s accessibility t o staff,
family, a n d community programs;"
R E V I E W OF HCMP IMPLEMENTATION
(4)
T r a n s f e r o f t h e c o u n t y jails t o t h e C o r r e c t i o n s D i v i s i o n o f DSS
so t h a t s u c h facilities can b e used f o r w o r k release programs
a n d sentenced misdemeanants as well as p r e - t r i a l detention;'"
(5)
Provision i n t h e l o n g - r a n g e plan f o r t h e c o n s t r u c t i o n o f
community-based c o r r e c t i o n a l c e n t e r s a n d development o f new
a l t e r n a t i v e s t o incarceration; and"
(61
I n c e n t i v e s f o r r e c r u i t m e n t a n d r e t e n t i o n o f competent s t a f f . "
T h e NCCD recommendations w e r e well received by t h e l e g i s l a t u r e a n d
w e r e deemed t h e g u i d e f o r f u t u r e c o r r e c t i o n a l p l a n n i n g i n Hawaii. IS
T h e F i n a l DSS Plan
Soon a f t e r t h e NCCD r e p o r t was published, t h e DSS i n 1969 completed
i t s r e v i s e d master p l a n as was d i r e c t e d b y House Committee R e p o r t No. 429.
A l t h o u g h t h i s new p l a n was s t i l l based o n 50 inmates p e r 100,000 population
a n d p r o j e c t e d an immediate capacity o f 420 a n d 550 b y 1980, i t i n c o r p o r a t e d
t h e recommendations made by t h e NCCD s t u d y a n d p r o v i d e d a correctional
p r o g r a m i n v o l v i n g d i f f e r e n t i a l o f f e n d e r t r e a t m e n t . 2 0 T h i s new plan also
proposed t h e c e n t r a l i z a t i o n o f c o r r e c t i o n a l services by t h e establishment of a
d e p a r t m e n t of c o r r e c t i o n s w h i c h would encompass probation, parole, a n d c o r rectional i n s t i t u t i o n f u n c t i o n s u n d e r one department.
T h e J o i n t Legislative I n t e r i m Committee Plan
I n 1969, a j o i n t l e g i s l a t i v e i n t e r i m committee o n c o r r e c t i o n s ( h e r e a f t e r
j o i n t committee) c o n d u c t e d i t s own r e v i e w o f t h e c o r r e c t i o n a l system w i t h t h e
assistance o f an A d Hoc Committee composed o f r e p r e s e n t a t i v e s f r o m all
criminal j u s t i c e agencies.
T h e j o i n t committee recommended, among o t h e r
things, t h a t (1) c o u n t y jails b e t r a n s f e r r e d t o t h e State; (21 e x i s t i n g
facilities b e reassessed f o r more e f f e c t i v e u t i l i z a t i o n i n programs f o r t h e
r e i n t e g r a t i o n o f offenders; (3) sites f o r acquisition a n d c o n s t r u c t i o n of small
minimum s e c u r i t y community-based c o r r e c t i o n a l facilities b e explored; a n d (4)
t h e NCCD recommendations b e used as a g u i d e f o r f u t u r e correctional
planning.
T h e J o h n H o w a r d Association Plan
T h e John Howard Association ( h e r e i n a f t e r J H A ) submitted a proposal f o r
Hawaii's c o r r e c t i o n a l system d u r i n g t h e 1970 legislative s e s s i o n . 2 2 T h e JHA
proposal called f o r (1) c o n s t r u c t i o n o f a p r i s o n complex o f s i x maximum,
medium, a n d minimum s e c u r i t y r e s i d e n t i a l u n i t s a t t h e e x i s t i n g p r i s o n s i t e i n
K a l i h i w i t h a t o t a l capacity o f 120 inmates o r 20 inmates p e r residential u n i t ;
(2) establishment o f f i v e community-based conditional release centers; (3)
r e t e n t i o n o f K u l a n i Honor Camp f o r inmates w i t h special needs a n d who cannot
f u n c t i o n i n a h i g h l y technical a n d u r b a n setting; a n d (4) t h e development of
a special f a c i l i t y a t t h e Hawaii State Hospital f o r t r e a t i n g t h e p s y c h o t i c
criminal.
T h e J H A p l a n s t r o n g l y d i s c o u r a g e d t h e use o f i n s t i t u t i o n a l l o o k i n g buildi n g s w i t h h i g h walls, fences, a n d g u n towers a n d encouraged t h e u s e o f
" m o t e l - l i k e " b u i l d i n g s t o r e f l e c t t h e b r o a d e r society.
O r i g i n o f t h e Hawaii C o r r e c t i o n a l Master Plan
I n 1970, a f t e r y e a r s o f s t u d y , planning, a n d debate b y d i f f e r e n t
g r o u p s , Hawaii was s t i l l w i t h o u t a new p r i s o n . Clearly, t h i s was n o t d u e t o
a n absence o f p l a n n i n g ideas. C o r r e c t i o n a l a n d legislative policymakers j u s t
c o u l d n o t agree o n a p l a n . T h e big p u s h f o r a decision f i n a l l y came i n 1970
w h e n f e d e r a l f u n d s f r o m t h e Omnibus Crime C o n t r o l a n d Safe Streets A c t o f
1968 became available t h r o u g h Hawaii's SLEPA o f f i c e . T h e federal A c t maint a i n e d t h a t t h e b e s t way t o combat c r i m e was t h r o u g h a b e t t e r c o o r d i n a t e d
l a w enforcement e f f o r t a t all levels o f g o v e r n m e n t .
Funds were t h e r e f o r e
m a d e available t o state a n d local governments as incentives f o r comprehensive
p l a n n i n g a n d research development t o improve law enforcement a c t i v i t i e s .
To
q u a l i f y f o r g r a n t f u n d s , a s t a t e w o u l d r e q u i r e a comprehensive master p l a n .
Anxious t o t a k e advantage of s u c h funds, t h e j o i n t legislative committee
r e c o n v e n e d t h e A d Hoc Committee t o i r o n o u t t h e d i f f e r e n c e s i n t h e NCCD,
DSS, JHA, a n d j o i n t committee proposals. A f t e r e x t e n s i v e meetings, an
agreement was reached by t h e g r o u p o n t h e following objectives w h i c h w o u l d
d e t e r m i n e t h e parameters o f a master p l a n f o r Hawaii:
T h e p r i s o n s h o u l d b e located on Oahu.
T h e p r e s e n t s i t e s h o u l d b e used a f t e r r a z i n g t h e o l d cellblock.
C o u n t y jails s h o u l d b e p a r t o f t h e state c o r r e c t i o n s system.
Probation a n d p a r o l e s h o u l d b e u s e d more.
P r i s o n e r s s h o u l d b e separated
minimum s e c u r i t y needs.
by
maximum,
medium,
and
C o r r e c t i o n a l personnel salaries s h o u l d b e raised.
I n - s e r v i c e t r a i n i n g a n d educational leave w i t h p a y should b e
provided t o correctional personnel.
A comprehensive research a n d statistical
established.
p r o g r a m should b e
Conjugal v i s i t s o u t s i d e t h e p r i s o n complex s h o u l d b e p e r m i t t e d .
F u r l o u g h centers, h a l f - w a y houses, a n d conditional release
c e n t e r s s h o u l d b e established b o t h i n t h e community and o n
prison grounds.
T h e DSS p r o p o s a l f o r a d e p a r t m e n t o f c o r r e c t i o n s should b e
set aside f o r t h e p r e s e n t .
REVIEW OF HCMP IMPLEMENTATION
(12)
C o n s t r u c t i o n o f a diagnostic c e n t e r s h o u l d b e delayed.
(13)
T h e mentally d i s t u r b e d s h o u l d c o n t i n u e t o b e housed i n p r i s o n
r a t h e r t h a n a t t h e state hospital.
(14)
K u l a n i a n d Olinda Camps s h o u l d b e maintained.
(15)
Counseling
services
for
prisoners
in
(misdemeanantsf s h o u l d b e p r o v i d e d immediately.
Halawa
jail
23
Upon agreement of t h e g r o u p , t h e l e g i s l a t u r e t h e n a u t h o r i z e d t h e e x p e n d i t u r e o f $100,000 o f t h e f u n d s a p p r o p r i a t e d by A c t 195, Session Laws o f
Hawaii 1965, f o r t h e development o f a master p l a n by SLEPA n o t i n g t h a t t h e
p r e v i o u s authorization f o r a 1,000-bed p r i s o n r e q u i r e d amendment t o r e f l e c t
t h e recommendations o f t h e NCCD s t u d y . "
SLEPA consulted w i t h t h e A d Hoc
Committee a n d made t h e f o l l o w i n g determination c o n c e r n i n g t h e scope a n d cont e n t o f t h e master p l a n :
(If
I t s h o u l d view t h e c o r r e c t i o n s concern i n comprehensive terms
a n d account f o r all segments o f t h e criminal j u s t i c e system;
(2)
It s h o u l d a p p l y t h e c o n c e r n f o r r e h a b i l i t a t i o n o r r e i n t e g r a t i o n ,
as t h e p r i m a r y c o r r e c t i o n s objective, a t e v e r y phase o f t h e
criminal j u s t i c e process;
(3)
It should i n c l u d e p r o g r a m components designed t o accomplish
t h e objectives f o r r e h a b i l i t a t i o n a n d p u b l i c s a f e t y .
(4)
It s h o u l d i n c l u d e f a c i l i t y a n d
d e l i v e r y o f p r o g r a m services.
(5)
It should i n c l u d e personnel requirements f o r implementation o f
p r o g r a m services.
(6)
It should focus o n a d u l t s a n d a subsequent supplementary
s t u d y c o u l d focus o n j u v e n i l e s . 2 5
space
requirements
for
the
HCMP Development
T o develop t h e master plan, SLEPA obtained assistance f r o m t h e National
Clearinghouse f o r Criminal J u s t i c e Planning a n d A r c h i t e c t u r e ( h e r e i n a f t e r
NCCJPA) since it had j u s t completed federal guidelines f o r community c o r r e c Hawaii was
tional p l a n n i n g which were consistent w i t h Hawaii's policies. 2 6
used as a case s t u d y f o r t h e NCCJPA t o evaluate t h e guidelines concept i n
r e l a t i o n t o real problem situations a n d t o develop a p r o t o t y p e comprehensive
p l a n n i n g model f o r general application t h r o u g h o u t t h e c o u n t r y . ' '
In
exchange, Hawaii h a d t h e b e n e f i t o f o b t a i n i n g t h e most advanced correctional
p l a n n i n g techniques f r o m a team o f e x p e r t s .
T h r o u g h o u t t h e course o f t h e master p l a n development, SLEPA e n l i s t e d
t h e assistance o f t h e A d Hoc Committeez8 t o s e r v e i n an a d v i s o r y capacity
a n d t o r e v i e w all formal submissions o n t h e p l a n .
I n 1971, SLEPA submitted a p r o g r e s s r e p o r t t o t h e legislature o u t l i n i n g
T h e r e p o r t indicated t h a t t h e p l a n n i n g
p r o c e s s was premised o n t h e u n d e r s t a n d i n g t h a t correctional faciltties m u s t b e
located, designed, and s t a f f e d according t o t r e a t m e n t programs d e s i g n e d t o
meet t h e o f f e n d e r s ' needs and t o accomplish t h e objectives o f t h e c o r r e c t i o n a l
system. Volumes 1, 2, and 3 which were submitted t o t h e legislature d u r i n g
the 1972 r e g u l a r session contained a d e s c r i p t i o n o f t h e o f f e n d e r flow u n d e r
the e x i s t i n g system, t h e master plan concept, and an o f f e n d e r p r o f i l e .
the p r e l i m i n a r y f i n d i n g s and plans."
Volumes 4 and 5, containing detailed suggestions f o r implementing t h e
concept, w e r e submitted t o t h e l e g i s l a t u r e i n 1973 along w i t h a d r a f t o f t h e
e n a b l i n g legislation which eventually became A c t 179, Session Laws o f Hawaii
1973.
B y t h i s time, legislative enthusiasm was d i m i n i s h i n g because o f t h e
b l e a k fiscal outlook and t h e u n c e r t a i n cost requirements o f t h e p l a n . 3 o
D e s p i t e t h i s concern, enabling legislation was enacted because Hawaii h a d t o
p r o v i d e assurance t o t h e LEAA of i t s i n t e n t t o proceed w i t h t h e master p l a n
i n o r d e r t o receive $1.2 million i n federal f u n d s . "
However, t h e L e g i s l a t u r e
m a d e it c l e a r t h a t , w h i l e it s u p p o r t e d t h e HCMP concept, it was n o t committed
t o t h e implementation o f t h e c o n ~ e p t . ' ~
A c t 179, p r o v i d e d f o r :
( 1 ) t h e establishment o f t h e l n t a k e S e r v i c e
C e n t e r ( h e r e i n a f t e r ISC) a n d I n t a k e Service C e n t e r A d v i s o r y Board; (2) a
statewide system o f correctional facilities t o b e administered b y t h e d i r e c t o r o f
social services and t o consist o f community correctional centers, a h i g h
s e c u r i t y f a c i l i t y , and f u r l o u g h and conditional release centers; (3) t h e t r a n s f e r o f c o u n t y jails t o t h e State; (4) t h e authority. t o assign probation o f f i c e r s
t o t h e ISC t o c o n d u c t p r e - t r i a l a n d pre-sentence i n v e s t i g a t i v e w o r k ; and (5)
the a u t h o r i t y o f t h e D i r e c t o r o f Social Services t o negotiate w i t h p r i v a t e
agencies a n d organizations t o c a r r y o u t treatment, t r a i n i n g , education, a n d
w o r k oroqrams.
Following t h e enactment o f A c t 179, a c o n t r a c t by t h e State was awarded
t o t h e Planning Design I n s t i t u t e o f t h e U n i v e r s i t y o f Illinois t o p r e p a r e t h e
p r e - d e s i g n r e p o r t f o r t h e proposed master p l a n facilities.
T h e Hawaii PreD e s i g n r e p o r t , submitted t o t h e legislature d u r i n g t h e 1974 r e g u l a r session,
t r a n s l a t e d t h e HCMP concepts i n t o detailed requirements f o r t h e f a c i l i t y
d e s i g n a n d p r o g r a m implementation.
Chapter 3
THE MASTER PLAN CONCEPT
Community T r e a t m e n t Philosophy
T h e H C M P is based 02 a p h i l o s o p h y which maintains t h a t criminal
b e h a v i o r is symptomatic o f t h e f a i l u r e s a n d problems o f society.
A s such,
society has t h e d u a l o b l i g a t i o n o f p r o t e c t i n g t h e community f r o m crime a n d
p r o v i d i n g t h e offender w i t h opportunities t o adjust.
Since most o f f e n d e r s
e v e n t u a l l y r e t u r n t o t h e community, r e h a b i l i t a t i o n w h i c h emphasizes t h e
process o f r e i n t e g r a t i o n i n t o t h e community is t h e b e s t way of p r o t e c t i n g t h e
community.
Reintegration is b e s t achieved t h r o u g h community-based programs w h i c h
a r e designed t o promote a n d f a c i l i t a t e t h e o f f e n d e r ' s i n t e r a c t i o n w i t h t h e comm u n i t y i n w h i c h t h e o f f e n d e r must f u n c t i o n . Conventional i n s t i t u t i o n a l t r e a t ment which is p r o b a b l y t h e most expensive method has been i n e f f e c t i v e i n
dealing w i t h c r i m i n a l b e h a v i o r .
Often, o f f e n d e r p o s t - i n c a r c e r a t i o n b e h a v i o r
suggested an increase r a t h e r t h a n decrease i n t h e p r o p e n s i t y t o commit
crimes.
T h i s was a t t r i b u t e d t o t h e isolating e f f e c t o f p r i s o n s a n d t h e e x p o s u r e o f an o f f e n d e r t o more anti-social b e h a v i o r . '
T h e g u i d i n g p r i n c i p l e s o f t h e H C M P a r e t h a t (1) community-based t r e a t ment r a t h e r t h a n i n s t i t u t i o n a l t r e a t m e n t should b e used as long as p u b l i c
safety is n o t jeopardized; a n d (2) i n d i v i d u a l i z e d t r e a t m e n t a n d d i f f e r e n t i a t e d
h a n d l i n g of t h e g r e a t v a r i e t y of o f f e n d e r s a r e v i t a l t o dealing w i t h criminal
b e h a v i o r . T o w a r d these ends, essential i n g r e d i e n t s t o t h e H C M P a r e t h e (1)
optimum use o f criminal j u s t i c e a n d community resources f o r a more e f f i c i e n t
d e l i v e r y o f services t o t h e o f f e n d e r ; ( 2 ) coordination among t h e judicial, law
(3)
active
community
enforcement,
and
correctional
agencies;
and
involvement.
C r i m i n a l J u s t i c e System U n i f i c a t i o n
T o implement i t s philosophy, t h e H C M P proposed an i n n o v a t i v e approach
t o correctional p l a n n i n g by a t t e m p t i n g t o coordinate t h e operations o f t h e ent i r e criminal j u s t i c e system t o f a c i l i t a t e a systematic response t o o f f e n d e r
needs u n d e r one common p h i l o s o p h y .
A l t h o u g h t h e l e g i s l a t u r e had d i r e c t e d
t h e development of a "correctional" master p l a n f o r a new p r i s o n system, t h e
scope was broadened a n d t h e H C M P evolved i n t o a criminal justice master
It was recognized t h a t a p r i s o n system is d i r e c t l y affected b y f a c t o r s
pian.
such as crime a n d a r r e s t r a t e s and sentencing laws a n d practices which a r e
beyond t h e control of t h e Corrections Division.
Consequently, c o r r e c t i o n s
was viewed as p a r t of t h e l a r g e r problem o f crime a n d a t o t a l system response
would b e t h e most e f f e c t i v e means of combatting crime.
T h e proposed u n i f i e d criminal j u s t i c e system would consist o f t h e f o l l o w i n g components:
(If
A c e n t r a l i z e d i n t a k e a n d information system f o r t h e processing
a n d m o n i t o r i n g o f offenders;
(2)
Diverse programs f o r t h e treatment o f offenders from a r r e s t
t h r o u g h release w h i c h emphasize community treatment a n d
reintegration; and
(3)
A statewide system o f correctional facilities composed o f an
a r r a y of m o d e r n facilities designed t o accommodate v a r y i n g
p r o g r a m a n d s e c u r i t y needs.
A C e n t r a l i z e d I n t a k e a n d Information System
U n d e r t h e o l d c r i m i n a l j u s t i c e system, t h e r e s p o n s i b i l i t y o f i n t a k e a n d
p r o c e s s i n g o f an o f f e n d e r was shared by t h e police, courts, and c o r r e c t i o n a l
agencies.
(See A p p e n d i x A . )
T h e r e was l i t t l e coordination a n d m u c h
d u p l i c a t i o n o f services.
Diagnostic services a n d programs were n o t made
a v a i l a b l e t o p r e - t r i a l detainees a n d misdemeanants.
T h e HCMP r e o r g a n i z e d
t h e arrangement o f t h e c r i m i n a l j u s t i c e agencies i n t h e o f f e n d e r f l o w a n d
c r e a t e d a c e n t r a l i z e d i n t a k e process f o r more e f f i c i e n t u s e o f resources a n d
d e l i v e r y o f services t o t h e o f f e n d e r .
A l l o f f e n d e r s unable t o p o s t b a i l o r
q u a l i f y f o r a n y p r e - t r i a l release p r o g r a m w o u l d b e processed t h r o u g h a n e w l y
c r e a t e d agency, t h e ISC w h i c h would p r o v i d e t h e screening, diagnostic,
assessment, a n d p r o g r a m p r e s c r i p t i o n services f o r t h e e n t i r e criminal j u s t i c e
s y s t e m . (See A p p e n d i x 0.1
U n d e r t h e c e n t r a l i n t a k e process, t h e I S C w o u l d b e in contact w i t h t h e
o f f e n d e r o r t h e p r o g r a m agency w i t h j u r i s d i c t i o n o v e r t h e o f f e n d e r a t a l l
phases o f t h e c r i m i n a l j u s t i c e system:
Phase I A p p r e h e n s i o n - T h e ISC w o u l d assist t h e police i n
developing s t a n d a r d s f o r decisions o n w h e t h e r t o a r r e s t o r release
t h e suspect.
T h e ISC would also assist t h e police i n t h e development of d i v e r s i o n p r o g r a m s s u c h as stationhouse bail, summons, o r
citation release.
-
T h e ISC would p r o v i d e diagnostic services t o
Phase I I P r e - t r i a l
p r e - t r i a l detainees i n t e r e s t e d i n q u a l i f y i n g f o r a release o r i n t e r vention program.
T h e ISC would b e responsible f o r t h e expansion
o f e x i s t i n g b a i l a n d release o r recognizance programs and t h e
development of new p r e - t r i a l release p r o g r a m s .
Phase Ill P r e - s e n t e n c e - Pre-sentence i n v e s t i g a t i o n s f o r t h e c o u r t s
on o f f e n d e r s who r e q u i r e detention u n t i l sentencing would be cond u c t e d b y t h e ISC w h i l e i n v e s t i g a t i o n s o n o f f e n d e r s who a r e on b a i l
release o r recognizance o r o t h e r release p r o g r a m s w o u l d b e cond u c t e d b y t h e p r o b a t i o n s t a f f stationed a t t h e ISC.
T h e comp r e h e n s i v e d i a g n o s t i c s e r v i c e a t t h e I S C w o u l d enable t h e ISC t o
make recommendations t o t h e c o u r t s as t o those o f f e n d e r s suitable
f o r i n c a r c e r a t i o n a l t e r n a t i v e s such as d e f e r r e d adjudication, comm u n i t y service, a n d community job placement.
Phase I V Post-sentence - T h e ISC would c o o r d i n a t e t h e p r o g r a m ming o f t h e o f f e n d e r t h r o u g h t h e continuous s t o r i n g a n d p r o c e s s i n g
o f information on t h e o f f e n d e r ' s p r o g r e s s i n t h e p r e s c r i b e d
program, a n d by p r o v i d i n g s u c h information t o t h e c o r r e c t i o n a l
f a c i l i t y , probation, o r p a r o l i n g agency a t c r i t i c a l decision-making
p o i n t s . T h i s o n - g o i n g evaluation process w o u l d e n s u r e t h a t t h e o f f e n d e r is r e c e i v i n g a p p r o p r i a t e treatment.
Phase V Follow-up - T h e I S C w o u l d assist t h e agency w i t h t h e most
r e c e n t j u r i s d i c t i o n o v e r t h e o f f e n d e r i n g a t h e r i n g f o l l o w - u p data
a n d would b e responsible f o r t h e analysis a n d i n t e r p r e t a t i o n o f such
data.
T h i s essentially would b e a performance evaluation o f t h e
correctional i n s t i t u t i o n s a n d p r o g r a m a l t e r n a t i v e s .
'
Program C o r e
T h e HCMP is a p r o g r a m - o r i e n t e d master p l a n designed t o accommodate
t h e needs o f all o f f e n d e r t y p e s a n d is aimed a t t h e r e i n t e g r a t i o n o f t h e o f It i s premised on t h e assumptions t h a t t r e a t m e n t
f e n d e r i n t o t h e community.
o f t h e o f f e n d e r a t t h e earliest possible time a f t e r a r r e s t a n d t r e a t m e n t i n t h e
community a r e t h e most e f f e c t i v e means f o r d e t e r r i n g f u t u r e anti-social
behavior-. T h e HCMP p r o p o s e d a comprehensive p r o g r a m w h i c h e x p a n d e d t h e
p r o g r a m o f f e r i n g s i n c o r r e c t i o n a l i n s t i t u t i o n s a n d c r e a t e d new programs i n t h e
p r e - s e n t e n c e a n d a f t e r c a r e phases o f t h e criminal j u s t i c e system.
Intrinsic
t h r o u g h o u t would b e an emphasis o n educational, vocational, a n d w o r k release
programs.
T h e HCMP f o u n d t h a t t h e average I Q o f inmates was normal a n d t h a t
t h e r e was u s u a l l y a lack o f motivation d u e t o repeated f a i l u r e s i n t h e normal
school s e t t i n g .
Educational programs should t h e r e f o r e b e t i e d t o a v i a b l e
classification a n d p l a n n i n g system t o a p p r o p r i a t e l y meet t h e needs o f o f f e n d e r s a n d must b e o n equal f o o t i n g w i t h o t h e r t r e a t m e n t programs i n t h e
i n s t i t u t i o n s . T h e r e s h o u l d b e a w i d e r a n g e of p r o g r a m s i n c l u d i n g (1) i n f o r mal and social education courses;
(2) remedial, elementary, o r general
educational development; a n d (3) college level p r o g r a m s . Vocational t r a i n i n g
s h o u l d b e considered as one p r o g r a m component i n t h e t o t a l resocialization
process, n o t as an e n t i t y alone.
Work release s h o u l d b e used as much as
possible since it enhances inmate employability a n d eliminates idleness."
T h e specific programs w o u l d b e based on o f f e n d e r needs. A c c o r d i n g l y ,
t h e ISC's diagnostic f u n c t i o n w o u l d p l a y an i m p o r t a n t r o l e i n p r e s c r i b i n g a n d
developing programs t h r o u g h o u t t h e system.
Pre-release a n d d i v e r s i o n a r y p r o g r a m s .
U n d e r t h e o l d system, t h e r e
w e r e few a l t e r n a t i v e s t o i n c a r c e r a t i o n available t o an o f f e n d e r who was unable
t o post b a i l o r q u a l i f y f o r release o n recognizance. With a more comprehens i v e screening a n d assessment p r o c e d u r e u n d e r t h e HCMP, t h e police, c o u r t s ,
a n d corrections agencies would b e p r o v i d e d w i t h b e t t e r o f f e n d e r p r o f i l e s .
More o f f e n d e r s c o u l d q u a l i f y f o r b a i l a n d release o n recognizance a n d new
d i v e r s i o n programs c o u l d b e developed.
C e r t a i n alleged o f f e n d e r s such as n a r c o t i c users, mentally i l l persons,
a n d i n d i v i d u a l s accused o f minor offenses who d o n o t pose a d a n g e r t o s o c i e t y
c o u l d b e d i v e r t e d f r o m t h e criminal j u s t i c e system by police t h r o u g h t h e u s e
o f summons o r by r e f e r r a l t o a p p r o p r i a t e t r e a t m e n t agencies such as a drug
a b u s e c e n t e r o r a mental health f a c i l i t y .
Crises i n t e r v e n t i o n c e n t e r s which p r o v i d e information, advice, a n d
e m e r g e n c y assistance o r r e f e r r a l services t o citizens s h o u l d b e established by
t h e ISC t o p r o v i d e f o r e a r l y d i v e r s i o n t h r o u g h p r e v e n t i v e methods.'
T h e c o u r t s c o u l d d e f e r adjudication f o r misdemeanants and allow them t o
p r o v e themselves b e f o r e f i n a l disposition o f t h e case is made.
The courts
c o u l d also impose community s e r v i c e as an a l t e r n a t i v e f o r those cases w h e r e
f i n e s a n d i n c a r c e r a t i o n would pose additional h a r d s h i p s . F o r i n d i v i d u a l s w h o
a r e young, p o o r l y educated, unemployed, a n d u n s k i l l e d , d i v e r s i o n f r o m i n c a r c e r a t i o n c o u l d b e made t h r o u g h a community job placement p r o g r a m . '
V a r i o u s t y p e s o f conditional release programs should b e made available
f o r those who r e q u i r e some s u p e r v i s i o n p r i o r t o t r i a l a n d sentencing.
P r o b a t i o n w i l l c o n t i n u e as an i m p o r t a n t a l t e r n a t i v e sentence t o i n c a r c e r a t i o n . '
A f t e r care programs.
Parole w i l l remain t h e major p r o g r a m component
f o r a f t e r c a r e but t h e ISC w i l l assist t h e p a r o l e s t a f f i n t h e development o f
a f t e r c a r e services as t h e need arises. Such services s h o u l d encompass ( I f
d e l i v e r y o f pre-release services t o a i d t h e o f f e n d e r i n t h e r e i n t e g r a t i o n
p r o c e s s ; (2) a n e t w o r k o f s u p p o r t i v e r e s i d e n t i a l facilities w h i c h f a c i l i t a t e
g r a d u a l r e i n t e g r a t i o n ; a n d (3) s u p e r v i s i o n a n d counseling by professionals
a n d volunteers.
In-facility programs.
F o r those r e q u i r i n g detention i n a c o r r e c t i o n a l
f a c i l i t y t h e r e s h o u l d b e a w i d e r a n g e o f p r o g r a m s available f o r education,
drug a n d alcohol treatment, vocational t r a i n i n g a n d job placement, a n d
recreation.
Maintenance o f family a n d community t i e s is emphasized so
v i s i t a t i o n a n d counseling programs i n v o l v i n g family members should b e
provided.
T h r o u g h o u t t h e system, e x t e n s i v e use of counseling a n d g r o u p
meetings i n v o l v i n g s t a f f a n d residents s h o u l d b e stressed.
Medical,
p s y c h i a t r i c , a n d legal services s h o u l d b e r e a d i l y availabie f o r residents.
As much as possible, programs s h o u l d b e made available b y t h e use of
community f a c i l i t i e s a n d f u r l o u g h i n g inmates f o r t h e necessary time.
Since
r e i n t e g r a t i o n is t h e goal in programming, t h e r e s h o u l d b e a s u f f i c i e n t v a r i e t y
o f p r o g r a m s t o f a c i l i t a t e t h e sequential p h a s i n g o f t h e o f f e n d e r f r o m one level
o f s u p e r v i s i o n t o another.'O
A Statewide System o f C o r r e c t i o n a l Facilities
U n d e r t h e HCMP, incarceration i s n o t looked u p o n as an e n d i n itself,
b u t as an a d j u n c t t o t h e r e h a b i l i t a t i o n o b j e c t i v e . T h e r e f o r e , d i v e r s e in-house
p r o g r a m s a n d services s h o u l d b e made available t o meet t h e needs of all o f f e n d e r s who r e q u i r e detention, i n c l u d i n g those who a r e awaiting t r i a l a n d
s h o r t - t e r m misdemeanants."
T h e HCMP also emphasized t h e p h a s i n g o f t h e
o f f e n d e r i n t o t h e community, a n d suggested t h a t l i v i n g u n i t s r e f l e c t such
REVIEW O F HCMP IMPLEMENTATION
p h a s i n g b y decreasing t h e s e c u r i t y o f t h e l i v i n g u n i t as t h e o f f e n d e r p r o gresses t h r o u g h t h e t r e a t m e n t programs a n d assumes increased responsibilities
a n d earns more t r u s t . "
T o w a r d t h i s end, a statewide n e t w o r k of facilities
designed f o r phased s e c u r i t y a n d i n d i v i d u a l i z e d programming was proposed b y
t h e HCMP. T h e new system would consist o f a maximum s e c u r i t y f a c i l i t y on
Oahu f o r t h e l o n g - t e r m dangerous felons; community correctional c e n t e r s i n
each c o u n t y f o r t h e sentenced misdemeanants a n d p r e - t r i a l detainees a n d sent e n c e d felons t h r o u g h t h e medium s e c u r i t y level; a n d h a l f - w a y houses f o r
those r e q u i r i n g minimal s e c u r i t y .
T h e module r e s i d e n c y concept.
T o effectively provide f o r individual
p r o g r a m needs a n d inmate c o n t r o l , t h e HCMP advocated t h e use o f smaller
residential u n i t s ( r a t h e r t h a n a single p e n i t e n t i a r y - t y p e f a c i l i t y l i k e t h e o l d
cellblock)
w h i c h would p r o v i d e f l e x i b i l i t y
i n segregating t h e
inmate
population.
Modules c o n t a i n i n g i n d i v i d u a l rooms t h a t have t h e c a p a b i l i t y of
f u r t h e r d i v i d i n g t h e residents b y q u a d r a n t s w e r e t h e r e f o r e proposed.
Each f a c i l i t y would consist o f one o r more modules c o n t a i n i n g f r o m 12-36
i n d i v i d u a l rooms which would a f f o r d each r e s i d e n t t h e option f o r p r i v a c y a n d
r e t r e a t f r o m o t h e r r e s i d e n t s . T h e modules w o u i d b e phased t o v a r y i n g confinement levels d e p e n d i n g o n t h e t y p e o f o f f e n d e r s f o r s e c u r i t y a n d pr.ogrammatic p u r p o s e s . "
Each module would contain a common p r o g r a m area accessib l e t o t h e rooms f o r g r o u p activities, reading, television, etc.; a k i t c h e n a n d
d i n i n g area; a n d one o r t w o rooms f o r i n d i v i d u a l i z e d counseling. '*
Inmates w o u l d b e allowed t o roam f r e e l y i n t h e module p r o g r a m area
d u r i n g most o f t h e d a y a n d b e confined t o t h e i r rooms d u r i n g specified lockdown periods a n d bedtime.
Visitation and program privileges outside t h e
modules would c o r r e s p o n d t o t h e s e c u r i t y classification o f t h e r e s i d e n t . l 5 A
c o n t r o l station f o r t h e c o r r e c t i o n a l o f f i c e r s would be located a t t h e c e n t e r o f
t h e module f o r o b s e r v a t i o n o f r e s i d e n t movements w i t h i n t h e module.
This
would alleviate t h e need f o r scheduled " s u r v e i l l a n c e t o u r s " . C o n t r o l stations
would be open o r secured a c c o r d i n g t o t h e t y p e o f residents i n t h e module.16
Each f a c i l i t y would b e e q u i p p e d t o p r o v i d e centralized services f o r all i t s
modules such as medical care,
recreation,
food preparation,
visitation
programs, vocational programs, a n d educational p r o g r a m s . "
T h e accommodations a t each f a c i l i t y , however, would d i f f e r d e p e n d i n g o n t h e s e c u r i t y
classification level, i . e . t h e maximum s e c u r i t y f a c i l i t y would have more cent r a l i z e d p r o g r a m space since i t s residents w i l l n o t be q u a l i f i e d f o r educational
o r w o r k release p r o g r a m s . ' "
T o implement t h e g r a d u a l phasing o f t h e o f f e n d e r i n t o
H a l f - w a y houses.
t h e community, it is essential t o have a w i d e range o f community-based
facilities t o supplement t h e i n s t i t u t i o n a l f a c i l i t i e s .
T h e HCMP proposed t h e
following (1) conditional release centers f o r selected felons t o t e s t t h e i r
a b i l i t y t o a d j u s t t o l i v i n g i n t h e community; (2) a d u l t f u r l o u g h centers t o
p r o v i d e a b r i d g e t o t h e community when an o f f e n d e r is t o b e released on
parole; ( 3 ) s h o r t - t e r m i n t e n s i v e residential i n t e r v e n t i o n c e n t e r s f o r those
o f f e n d e r s e n c o u n t e r i n g d i f f i c u l t y while o n parole o r probation; a n d ( 4 )
p r o b a t i o n residential t r e a t m e n t c e n t e r s f o r those who cannot q u a l i f y f o r
regular probation.
P o p u l a t i o n Projections a n d Assumptions
T h e HCMP attempted t o p r e s e n t t h e b e s t state population p r o j e c t i o n s
a v a i l a b l e d u r i n g t h e c o u r s e o f i t s development. T h e f i r s t t h r e e volumes w e r e
b a s e d on a l i n e a r extension o f t h e r e c e n t population g r o w t h t r e n d s i n t h e
S t a t e w h i c h assumed t h a t factors g o v e r n i n g population change i n t h e p a s t
w o u l d remain t h e same.
Volumes 4 a n d 5 a n d t h e Hawaii Pre-Design w e r e
b a s e d on t h e 1970 Census B u r e a u p r o j e c t i o ~ swhich were made available a f t e r
t h e completion o f t h e f i r s t t h r e e volumes.
T h e Census Bureau p r o j e c t ~ o n s
w e r e o b t a i n e d by u s i n g component methods which recorded t h e rates of
c h a n g e separately f o r b i r t h s , deaths, a n d i n t e r s t a t e m i g r a t i o n . A l t h o u g h t h e
l a t e r p r o j e c t i o n s w e r e lower, t h e y w e r e considered more reliable t h a n t h e
l i n e a r extension p r o j e c t i o n s . 2 o
T h e a n t i c i p a t e d inmate population projections f o r t h e facilities were made
by comparing t h e annual headcount levels o f e x i s t i n g agencies t o t h e e s Each f a c i l i t y ' s
t i m a t e d p o p u l a t i o n o f each c o u n t y s e r v i c e d by t h a t f a c i l i t y .
p r o j e c t e d headcount was based o n t h e assumptions t h a t t h e r e would b e
maximum use o f a l t e r n a t i v e s t o incarceration, a r e d u c t i o n i n t h e l e n g t h o f
sentence w h i c h t h e t y p i c a l o f f e n d e r receives, a n d an increase i n t h e r a t e o f
p a r ~ l e . ~ 'T h e HCMP emphasized t h a t t h e projections f o r t h e r e q u i r e d f a c i l i t y
capacities w e r e based o n a g r a d u a l b u t s t e a d y implementation of community a l t e r n a t i v e s a n d w a r n e d t h a t if such a l t e r n a t i v e s d o n o t o c c u r i n c o n c e r t w i t h
c o n s t r u c t i o n o f facilities, a d r a s t i c increase i n f a c i l i t y capacities would b e
required. 2 2
Chapter 4
GUIDELINES FOR IMPLEMENTATION OF THE HCMP
T r a n s f e r o f C o u n t y Jails t o t h e State
T o implement a comprehensive p r o g r a m f o r o f f e n d e r s , t h e HCMP recommended t h e t r a n s f e r of c o u n t y jails t o t h e state C o r r e c t i o n s D i v i s i o n . U n d e r
t h e o l d correctional system, jails w e r e r u n b y t h e c o u n t y police departments.
Since t h e police w e r e p r i m a r i l y concerned w i t h p r e v e n t i o n , detection, a n d apprehension r a t h e r t h a n t h e r e h a b i l i t a t i v e o r c o r r e c t i v e processes, v e r y few, i f
a n y , programs a n d services were p r o v i d e d f o r t h e p r e - t r i a l detainees a n d
misdemeanants.'
T h e HCMP s t r e s s e d t h a t t h e programs f o r t h e alleged o f f e n d e r s h o u l d b e made available as much as t h e y a r e available t o t h e
c ~ n v i c t e d . ~Since t h e C o r r e c t i o n s D i v i s i o n administered all o t h e r a d u l t c o r rectional facilities a n d was e x p e r i e n c e d i n r e h a b i l i t a t i v e programs, i t was
logical t h a t it should administer t h e new statewide system.. Once t h e t r a n s f e r
o f t h e jails was effectuated, t h e n e i g h b o r i s l a n d jails would b e t r a n s f o r m e d
i n t o modern community correctional c e n t e r s 3 a n d t h e Halawa J a i l would b e
t r a n s f o r m e d i n t o t h e State's h i g h s e c u r i t y f a c i l i t y . "he
Hawaii State Prison
would b e razed a n d a new community c o r r e c t i o n a l c e n t e r would b e c o n s t r u c t e d
f o r Oahu.
Administrative Restructuring
T o administer t h e HCMP program, it was proposed t h a t another d i v i s i o n
parallel t o t h e correctional d i v i s i o n b e established i n t h e department o f social
services a n d h o u s i n g [ h e r e i n a f t e r DSSH).
[See A p p e n d i x C . ) T h e proposed
d i v i s i o n o f s u p p o r t services would handle i n t a k e screening,
pre-trial
detention, diagnostic services, a n d c o o r d i n a t i o n o f community-based programs,
w h i l e t h e Corrections D i v i s i o n w o u l d b e p r i m a r i l y concerned w i t h programs
a n d c u s t o d y o f sentenced o f f e n d e r s i n i t s facilities a n d release program^.^
A c c o r d i n g t o SLEPA t h i s recommendation was amended i n t h e E x e c u t i v e
Summary on t h e HCMP t o a noncommital recommendation o f placement of t h e
ISC u n d e r an umbrella social w e l f a r e department because t h e A d Hoc
Committee c o u l d n o t reach an agreement.
T h e A d Hoc Committee d i d n o t
aaree w i t h t h e consultants t h a t t h e ISC b e placed u n d e r DSSH since it
believed t h a t such placement w o u l d i d e n t i f y t h e ISC w i t h c o r r e c t i o n s while i t s
responsibilities u n d e r t h e HCMP s h o u l d b e b r o a d e r .
O t h e r proposals
discussed were t h e placement o f t h e ISC u n d e r a p o l i c y b o a r d independent
f r o m t h e separate branches a n d levels o f government, o r placement i n t h e
J u d i c i a r y since t h e J u d i c i a r y was p r o v i d i n g p r e - t r i a l services a n d h a d t h e
probation responsibility.
T h e E x e c u t i v e Summary proposed t h a t t h e ISC b e
administered b y a p o l i c y b o a r d comprised o f members r e p r e s e n t i n g t h e
J u d i c i a r y . DSSH, police, health department, a n d p r i v a t e sector.'
As a
compromise, A c t 197, Session Laws o f Hawaii 1973, t h e enabling a c t f o r t h e
HCMP, established t h e ISC u n d e r t h e G o v e r n o r ' s o f f i c e a n d p r o v i d e d f o r an
a d v i s o r y r a t h e r t h a n a p o l i c y b o a r d t o administer t h e ISC.
GUIDELINES FOR IMPLEMENTATION OF HCMP
S t a f f i n g Requirements f o r C o r r e c t i o n a l Facilities
T h e HCMP recommended a change i n t h e s t a f f i n g s t r u c t u r e i n c o r r e c t i o n s
to implement t h e p r o g r a m concepts.
A k e y change recommended was t h e
separation o f t h e d u a l residency a n d s e c u r i t y responsibilities o f t h e p r i s o n
guards.
T h i s separation was considered necessary t o allow t h e r e s i d e n c y
s e c u r i t y s t a f f t o f u n c t i o n also as para-professional counselors t o assist i n t h e
implementation o f programs.
T h e HCMP recommended a d i v i s i o n o f s t a f f i n g i n t o f o u r basic categories:
(1)
S e c u r i t y personnel responsible f o r perimeter,
movement, a n d centralized p r o g r a m area supervision;
(2)
Residency personnel - responsible f o r i n t e r n a l residency
s e c u r i t y a n d assistance in residency p r o g r a m implementation;
(3)
S u p p o r t a n d maintenance workers; a n d
(4)
Program s t a f f
internal
- social workers, counselors, teachers, etc.'
A l l modules w o u l d b e s t a f f e d by a u n i t team consisting o f a counselor,
responsible f o r t h e o v e r a l l module program; a n A d u l t Correctional O f f i c e r
( h e r e i n a f t e r ACO) I responsible f o r i n t e r n a l s e c u r i t y d u r i n g s h i f t s w h e n
r e s i d e n t s a r e i n v o l v e d i n module activities, a n d ACO i l ' s responsible f o r
s e c u r i t y d u r i n g sleeping o r out-module h o u r s . A u n i t s u p e r v i s o r , who i s a
social w o r k e r , would b e i n c h a r g e o f two module teams.'
The I n t a k e S e r v i c e C e n t e r
T h e ISC was envisioned by t h e planners as t h e systems c o o r d i n a t o r f o r
the HCMP implementation since it w o u l d b e a n e u t r a l agency w i t h continuous
i n p u t f r o m a n d feedback t o o t h e r criminal j u s t i c e agencies i n v o l v e d i n t h e
p r o c e s s i n g o f an o f f e n d e r . T h e basic responsibilities o f t h e ISC w o u i d b e t o
provide:
(1)
S h o r t - t e r m i n t a k e screening t h a t emphasizes t h e d i v e r s i o n o f
an i n d i v i d u a l t o a l t e r n a t i v e s t o incarceration;
(2)
Pre-sentence i n v e s t i g a t i o n s and subsequent recommendations t o
t h e courts;
(3)
Diagnostic services t h a t relate t o v o l u n t a r y p r e - t r i a l programs,
pre-sentence investigations, and c o r r e c t i o n a l programs f o r sent e n c e d offenders;
(4)
O n g o i n g evaluation o f
program; a n d
(5)
Coordination a n d r e f e r r a l services
community-based s e r v i c e s . $
an
offender's
adjustment t o a g i v e n
related
to
in-house a n d
U n d e r t h e HCMP, t h e ISC was t o b e a s h o r t - t e r m community-based
residential t r e a t m e n t f a c i l i t y p r o v i d i n g diagnostic services f o r p r e - t r i a l
detainees and p o s t - t r i a l community-based correctional p r o g r a m s . "
The
population a t t h e ISC would consist l a r g e l y o f o f f e n d e r s c h a r g e d w i t h nonbailable offenses ( v i o l e n t crimes against p e r s o n s r a t h e r t h a n p r o p e r t y ) .
O t h e r s detained would b e those awaiting t r i a l o f h i g h r i s k d u e t o t h e i r
p r o b a b i l i t y o f committing serious crimes, i n t i m i d a t i n g witnesses o r otherwise
i n t e r f e r i n g w i t h t h e administration o f justice, o r o f nonappearance i n c o u r t .
Diagnostic services would b e p r o v i d e d t o all p r e - t r i a l detainees on a v o l u n t a r y
basis.
T h e p r e - t r i a l o f f e n d e r screening process proposed by t h e HCMP was exp e c t e d t o t a k e f r o m t h r e e t o f o u r t e e n d a y s . Since t h e HCMP's emphasis was
o n d i v e r t i n g t h e o f f e n d e r t o a l t e r n a t i v e community-based programs where
s e c u r i t y p r o v i s i o n s m i g h t b e limited, t h e necessary b a c k g r o u n d information on
each o f f e n d e r was needed p r i o r t o placement i n an a l t e r n a t i v e p r o g r a m . "
Most o f such information should b e g a t h e r e d d u r i n g t h e s h o r t - t e r m residency
a t t h e ISC.
Additional information could b e obtained d u r i n g t h e p r e - t r i a l
phase if t h e o f f e n d e r were sent t o t h e community correctional c e n t e r (those
r e q u i r i n g l o n g - t e r m p r e - t r i a l detention u n d e r s e c u r i t y conditions).
A c c o r d i n g t o t h e HCMP, t h e services t o b e p r o v i d e d b y t h e ISC would
i n c l u d e psychological evaluation; employment counseling; a social i n v e n t o r y on
t h e o f f e n d e r a n d classification system l i n k e d t o specific treatment programs;
p s y c h i a t r i c service; medical service; educational assessment; a n d an i n formation storage and r e t r i e v a l system c o n t a i n i n g social h i s t o r y data and
statistical data for evaluating c u r r e n t programs a n d developing l o n g range
plans. "
T h e pre-sentence investigation and diagnostic a c t i v i t y u n d e r t h e HCMP
w o u l d b e conducted w i t h c o n f i d e n t i a l i t y between t h e J u d i c i a r y and Corrections
Division. When pre-sentence recommendations a r e taken u n d e r advisement b y
t h e c o u r t s and t h e dispositions a r e made, t h e ISC would f u n c t i o n as a
m o n i t o r i n g agency during t h e sentencing phase t o assess t h e p r o g r e s s o f t h e
offender i n t h e prescribed program."
T h e HCMP stressed t h a t t h e
r e l a t i o n s h i p between t h e ISC a n d t h e p r o g r a m agencies b e p o s i t i v e .
Close
m o n i t o r i n g by t h e ISC o f all o f f e n d e r information and a p p r o p r i a t e r e p o r t i n g
by t h e p r o g r a m agencies t o t h e ISC would enable t h e ISC t o p r e s c r i b e a d j u s t ments t o t h e o f f e n d e r ' s p r o g r a m as needs develop o r change."
A similar evaluation and r e f e r r a l relationship would e x i s t f o r o f f e n d e r s i n
a f t e r - c a r e programs such as a d u l t parole.
T h e ISC would monitor parolees
a n d p r o v i d e r e f e r r a l services f o r offenders seeking specific services i n t h e
ISC o r t h e community.
On Oahu, t h e ISC was envisioned as a separate f a c i l i t y where intake,
screening, diagnosis, a n d p r o g r a m p l a n n i n g services would t a k e place.
On
t h e n e i g h b o r islands, t h e ISC services would b e i n t e g r a t e d w i t h t h e comm u n i t y correctional centers.
T h e r e would b e a n ISC coordinator on each
n e i g h b o r island whose e f f o r t s w o u l d b e supplemented by a t r a v e l i n g team o f
professionals f r o m t h e main Oahu f a c i l i t y w h i c h w o u l d p r o v i d e services on a
r e g u l a r l y scheduled basis.
GUIDELINES F O R IMPLEMENTATION O F H C M P
T h e HCMP proposed t h a t t h e ISC consist o f t h e following a d m i n i s t r a t i v e
T h e l n t a k e Service C e n t e r D i r e c t o r - responsible f o r t h e adm i n i s t r a t i o n o f t h e i n t a k e s e r v i c e system;
T h e i n f o r m a t i o n p r o c e s s i n g a n d system evaluation d i v i s i o n responsible f o r t h e operation of t h e correctional information
system computer, t h e development of information requirements
a n d c o n d u c t o f research, a n d evaluation o f correctional data;
T h e p r o g r a m p l a n n i n g a n d development d i v i s i o n - responsible
f o r t h e development o f programs based o n t h e information a n d
research f i n d i n g s o f t h e information system a n d development o f
linkages between c o r r e c t i o n s a n d social services resources i n
t h e community; a n d
T h e f i e l d services d i v i s i o n - responsible f o r s t a f f development
a n d t r a i n i n g a n d p r o v i d i n g technical assistance t o correctional
a n d n o n - c o r r e c t i o n a l agencies. "
T h e HCMP emphasized t h a t because of t h e complex n a t u r e of t h e c r i m i n a l
j u s t i c e system, f l e x i b i l i t y i n t h e operation o f t h e system was necessary. " T h e
v a r i o u s phases a n d p r o c e d u r e s o f i n t a k e need not, and in f a c t s h o u l d not, b e
Instead, t h e c e n t e r is expected
o p e r a t e d o n l y by t h e I n t a k e Service C e n t e r .
t o assume a s u p p o r t i v e o r a d v i s o r y r o l e t o o t h e r agencies w i t h i n t h e c r i m i n a l
j u s t i c e system who operate t h e i r own p r o g r a m s . " ' 8 T h e HCMP noted t h a t t w o
essential elements o f t h e i n t a k e concept a r e t h a t (1) t h e i n t a k e system m u s t
b e comprehensive a n d t h e process must t o u c h a l l elements o f t h e criminal
j u s t i c e system b u t t h e ISC contact w i t h all system elements need n o t i n v o l v e
d i r e c t services t o i n d i v i d u a l offenders; a n d (2) t h e ISC s t a f f must remain i n d e p e n d e n t o f o t h e r criminal j u s t i c e agencies.
''
High S e c u r i t y F a c i l i t y
T h e HCMP i n t e n d e d t h a t t h e H i g h S e c u r i t y F a c i l i t y would house 108
maximum s e c u r i t y r e s i d e n t s i n t h r e e 36-person modules a n d one 13-person
module f o r special h o l d i n g o f d i s c i p l i n a r y cases."
T h e residential modules
w o u l d have t h e c a p a b i l i t y t o b e f u r t h e r d i v i d e d i n t o q u a d r a n t s f o r safety a n d
programming purposes.*'
T h e f a c i l i t y ' s p r o g r a m would b e o r i e n t e d t o p r o v i d e
a t h e r a p e u t i c e n v i r o n m e n t f o r t h e t r e a t m e n t o f o f f e n d e r s who a r e (11 g u i l t y o f
p r e d a t o r y a n d v i o l e n t crimes; (2) i n t r a c t a b l e r e c i d i v i s t s ; (3) characterized by
p e r s o n a l i t y d i s o r d e r s ; (4) o r g a n i z e d c r i m e r e c i d i v i s t s ; a n d (5) v i o l e n t a n d
d a n g e r o u s l y d e v i a n t inmates n e a r i n g t h e e n d o f a l o n g - t e r m sentence."
T h e t r e a t m e n t p r o g r a m u n d e r t h e HCMP would emphasize f r e e - f l o w i n g
communication t o r e d u c e t h e social distance between s t a f f a n d residents by
t h e use o f d a i l y g r o u p meetings i n v a r i o u s forms.
T h e f a c i l i t y would p r o v i d e
an employment t r a i n i n g p r o g r a m , a l i b r a r y , c r a f t s a n d h o b b y area, v i s i t i n g
areas, gymnasium, o u t d o o r p l a y i n g c o u r t s a n d fields, w e i g h t l i f t i n g area, a n d
m u s i c r o o m s . 2 3 T h e r e would b e a h i g h staff t o r e s i d e n t r a t i o f o r safety a n d
p r o g r a m m i n g needs. ''
Programs i n t h e h i g h s e c u r i t y f a c i l i t y a r e an i m p o r t a n t component u n d e r
t h e HCMP because i t was believed t h a t programs c o u l d s h o r t e n t h e time f o r
t h e possible t r a n s f e r of an inmate t o a lower s e c u r i t y p r o g r a m w h i c h could
h e l p t o reduce costs a n d t h e potential i n t e r p e r s o n a l c o n f l i c t i n t h e modules
a n d help i n d i v i d u a l s t o be more responsible f o r t h e i r own b e h a v i o r . * '
The
HCMP discouraged t h e use o f e x t e n d e d p e r i o d s o f isolation a n d d e p r i v a t i o n o f
o p p o r t u n i t y t o p a r t i c i p a t e i n programs since it r e g a r d e d such devices as u n p r o d u c t i v e a n d n o t conducive t o t h e r e h a b i l i t a t i o n p r o g r a m goals. Temporary
isolation a n d selected p r o g r a m d e p r i v a t i o n , however, c o u l d b e used w i t h e f f o r t s t o shape r e s i d e n t b e h a v i ~ r . ~ ' Programs w e r e t o b e coordinated b y t h e
Program C e n t e r o f t h e f a c i l i t y w h i c h would f u n c t i o n l i k e t h e Program C e n t e r
of t h e Oahu Community C o r r e c t i o n a l C e n t e r [ h e r e i n a f t e r OCCC) as described
o n page 21.
Each module was p l a n n e d t o h a v e i n d i v i d u a l rooms w h i c h a r e adjacent t o
a general a c t i v i t y area t o b e used f o r g r o u p t h e r a p y sessions, television
viewing, games, reading, g r o u p i n s t r u c t i o n , a n d o t h e r s u c h activities.''
Food p r e p a r e d i n a c e n t r a l k i t c h e n would b e c a r t e d t o each module a n d
s e r v e d i n t h e d i n i n g section o f t h e g r o u p a c i t i v i t y area.
O a h u Community C o r r e c t i o n a l C e n t e r
T h e OCCC, w h i c h was i n t e n d e d t o replace t h e o l d Hawaii State Prison
residents who a r e
cellblock, was p l a n n e d t o accommodate a maximum o f 394"
l o n g - t e r m p r e - t r i a l detainees, sentenced misdemeanants, low- a n d mediums e c u r i t y sentenced felons, o r i n conditional release p r o g r a m s . 2 9 T h e OCCC
was t o consist o f a maximum of 10 modules c o n t a i n i n g f r o m 25-36 i n d i v i d u a l
cells as follows:
1
f o r intake service residency
1
f o r i n t a k e s e r v i c e r e s i d e n c y o r p r e - t r i a l detention
2
f o r p r e - t r i a l detention
3
f o r sentenced felons
1
f o r s h o r t - t e r m sentenced persons
1
f o r honor r e s i d e n c y o r w o r k release
1
female u n i t f o r i n t a k e service,
felons d i v i d e d b y q u a d r a n t s 3 '
U n d e r t h e HCMP, t h e OCCC
m e n t programs, b u t i t s emphasis
community a n d i t would p e r f o r m
educating t h e public and actively
a n d resocialization process. 3 1
p r e - t r i a l detention a n d sentenced
was t o p r o v i d e a v a r i e t y of in-house t r e a t w o u l d b e on t h e u s e of resources i n t h e
an i m p o r t a n t crime p r e v e n t i o n f u n c t i o n by
i n v o l v i n g i t i n t h e o f f e n d e r rehabilitation
Module Programs.
T h e p r e - t r i a l modules were i n t e n d e d t o o f f e r counselors t o assist i n t h e management o f personal a f f a i r s since personal problems
GUIDELINES FOR IMPLEMENTATION O F HCMP
a r e most p r e s s i n g d u r i n g t h e p r e - t r i a l phase. Counselors would also a r r a n g e
f o r programming i n t h e module o r i n t h e community c o r r e c t i o n a l c e n t e r c e n t r a l
p r o g r a m areas if t h e detainee so d e s i r e s . 3 2 T h e h o n o r module was i n t e n d e d
to b e used f o r l o n g - t e r m sentenced persons p r o v e n t r u s t w o r t h y a n d
responsible.
T h e residents i n t h i s module would s u p e r v i s e one a n o t h e r
w i t h o u t correctional o f f i c e r s a n d counseling a n d s u p e r v i s i o n would b e
p r o v i d e d o n l y as n e e d e d . 3 3 T h e remaining modules w o u l d d i f f e r i n p r o g r a m m i n g d e p e n d i n g on t h e c a t e g o r y o f r e s i d e n t s . T h e u n i t s u p e r v i s o r w o u l d b e
r e s p o n s i b l e f o r adequacy of t r e a t m e n t a n d s e c u r i t y i n t h e modules.
The
c o u n s e l o r s would b e responsible f o r developing programs w h i c h a r e p r i m a r i l y
I n t e r - r e s i d e n c y p r o g r a m m i n g a c c o r d i n g t o inc a r r i e d o u t in t h e modules.
t e r e s t g r o u p s a n d t h e i n t e r v e n t i o n o f assistance i n emergency personal a f f a i r s
w o u l d also b e p r o v i d e d . "
Supplemental Programs.
I n a d d i t i o n t o t h e modules programs, each comm u n i t y c o r r e c t i o n a l c e n t e r was p l a n n e d t o have supplemental programs w h i c h
w o u l d i n c l u d e (1) v i s i t a t i o n a n d counseling programs f o r t h e maintenance o f
community a n d family ties; (2) g r a d e school, h i g h school, general education,
a n d college programs; (3) d e t o x i f i c a t i o n a n d counseling services f o r d r u g a n d
alcohol abuse; a n d vocational a n d job placement; (4) p s y c h i a t r i c services; a n d
( 5 ) legal services. T h e facilities would b e discouraged f r o m r e l y i n g h e a v i l y
o n w o r k t r a i n i n g a c t i v i t i e s w i t h i n t h e f a c i l i t y o r u t i l i z a t i o n of r e s i d e n t l a b o r
f o r t h e "make-work" maintenance a n d operation o f t h e c o r r e c t i o n a l c e n t e r . l 5
T o coordinate t h e t o t a l f a c i l i t y program, t h e OCCC was i n t e n d e d t o h a v e
a P r o g r a m C e n t e r component w h i c h would replace t h e o l d p r i s o n classification
committee.
T h e Program C e n t e r would b e responsible f o r (1) classification,
assessment, a n d r e f e r r a l t o p r o g r a m s a n d residential u n i t s w i t h i n t h e limits o f
t h e o v e r a l l p r o g r a m developed b y t h e ISC; (2) treatment plans a n d p r o g r a m s
development; (3) mid-sentence assessments a n d t r a n s f e r recommendations; (4)
s t a f f t r a i n i n g o t h e r t h a n w h a t I S C conducts; (5) inmate recordkeeping; (6)
v o l u n t e e r supervision;
(7) l o n g - t e r m p r o g r a m development;
(8) p a r o l e
r e p o r t s ; (9) administration of r e s i d e n c y p r o g r a m a n d personnel ( t h e u n i t team
is d i r e c t l y accountable t o t h e Program C e n t e r ) ; (10) assistance t o t h e u n i t
teams; (11) p r o v i s i o n o f supplemental p r o g r a m s t a f f t o t h e i S C f o r c o n d u c t i n g
p r o g r a m s ; a n d (12) s e r v i n g as a resource f o r pre-sentence investigation^.^^
T h e Program C e n t e r was i m p o r t a n t u n d e r t h e HCMP because (1) facilities
w i t h t w e n t y - f o u r h o u r r e s i d e n c y m u s t p r o v i d e a w i d e r r a n g e o f needs t h a n
community s u p e r v i s i o n programs; a n d (2) t h e i n c a r c e r a t e d o f f e n d e r t y p i c a l l y
has a less t r a c t a b l e set o f problems t h a n t h e n o n - i n c a r c e r a t e d . "
N e i g h b o r I s l a n d Community C o r r e c t i o n a l C e n t e r s
T h e community c o r r e c t i o n a l c e n t e r s ( h e r e i n a f t e r CCCsf o n t h e n e i g h b o r
islands w e r e i n t e n d e d t o p r o v i d e a comprehensive a n d coordinated p r o g r a m o f
b o t h n o n - i n s t i t u t i o n a l a n d i n s t i t u t i o n a l i z e d methods of t r e a t m e n t a n d care o f
o f f e n d e r s . A heavy reliance on community resources was expected since t h e
facilities w o u l d b e small a n d a t t r a c t i n g a n d f i n a n c i n g specialized correctional
s t a f f is d i f f i c u l t i n areas o f lower population. '*
S t a f f i n g i n t h e n e i g h b o r i s l a n d CCCs would consist o f one u n i t
s u p e r v i s o r , f o u r ACO I s a n d t h r e e ACO I l s . T w o ACOs would b e placed o n
d u t y d u r i n g t h e d a y a n d e v e n i n g a n d one a t n i g h t . "
T h e n e i g h b o r island community c o r r e c t i o n a l c e n t e r s w e r e p l a n n e d t o b e
e q u i p p e d t o p r o v i d e s h o r t - t e r m r e s i d e n c y f o r p r e - t r i a l detainees a n d t o house
sentenced misdemeanants a n d felons a n d misdemeanants o n pre-release p r o grams f r o m t h e h i g h s e c u r i t y f a c i l i t y o r h o n o r camps."'
Individuals with
p a r t i c u l a r l y l o n g sentences would b e sent t o OCCC.
''
Each n e i g h b o r i s l a n d CCC was i n t e n d e d t o c o n s i s t o f one module capable
o f h o u s i n g u n d e r t h i r t y r e s i d e n t s a n d t h e OCCC a n d ISC a d m i n i s t r a t i v e
offices."
T h e modules would f e a t u r e a c e n t r a l operations c e n t e r t o enable a
small s t a f f t o s u p e r v i s e a n d m o n i t o r a d i v e r s e n u m b e r o f a c t i v i t i e s . T h e cent e r would allow f o r t h e c o n t r o l o f access t o t h e b u i l d i n g , t o a d m i n i s t r a t i v e
areas, a n d t o r e s i d e n t i a l areas. T h e c e n t e r would also p r o v i d e f o r s t a f f o b s e r v a t i o n o f t h e v i s i t i n g area, a m u l t i - p u r p o s e room, a n d a recreation area
f o r general r e s i d e n t movement w i t h i n t h e f a c i l i t y . A l t h o u g h t h e c e n t e r is imp o r t a n t f o r m o n i t o r i n g purposes, t h e p r o g r a m staff manning t h e c e n t e r should
have d i r e c t contacts w i t h t h e residents a t all times."
Each module was expected t o have t h e c a p a b i l i t y o f g r o u p i n g rooms i n t o
smaller u n i t s since t h e r e would b e a v a r i e t y o f r e s i d e n t t y p e s which would
r e q u i r e separation f r o m u n d e s i r a b l e contacts o r i n f l u e n c e . "
H a l f - w a y Residential Facilities
T o a i d t h e o f f e n d e r i n r e i n t e g r a t i n g i n t o t h e community, a v a r i e t y of
release programs f r o m community -based f a c i l i t i e s was recommended by t h e
HCMP. Recognizing t h a t community involvement is c r u c i a l f o r o b t a i n i n g f i n a n c i a l s u p p o r t a n d job o p p o r t u n i t i e s , t h e HCMP u r g e d t h a t a s t r o n g p u b l i c
relations e f f o r t b e e x e r t e d t o e n l i s t community s u p p o r t p r i o r t o t h e establishment o f a f a c i l i t y i n t h e ~ o m m u n i t y . " ~ T h e HCMP p r o p o s e d t h a t t h e location
o f t h e facilities b e based on p r o x i m i t y t o t h e community a n d resources t h a t
c o u l d b e made available t o t h e residents;"
t h a t i n d i v i d u a l rooms f o r p r i v a c y
b e p r o v i d e d as much as possible; a n d t h a t h a l f - w a y houses b e small (no more
t h a n 30 r e s i d e n t s ) ."
T h e HCMP i n t e n d e d t h a t a f u l l r a n g e of programs aimed a t h e l p i n g t h e
r e s i d e n t s a d j u s t t o community l i f e d u r i n g n o n - w o r k i n g h o u r s w i t h an emphasis
As f o r
o n t h r i f t a n d b u d g e t i n g b e p r o v i d e d in community-based facilities.
recreational programs, t h e emphasis would b e o n u t i l i z i n g community resources
Work release a n d education
r a t h e r t h a n i n v e s t i n g in i n - h o u s e equipment.
release would p l a y an i m p o r t a n t p a r t i n h a l f - w a y programs, b u t an optimum
time i n a release p r o g r a m s h o u l d b e s i x months t o one y e a r since a " b u r n i n g
o u t " e f f e c t may o c c u r i n i n d i v i d u a l s who f i n d it d i f f i c u l t t o cope w i t h t h e
r e l a t i v e degrees of freedom a n d confinement i n s u c h p r o g r a m s . " 8
T h e HCMP recommended t h a t conditional release centers f o r felons, i n
a d d i t i o n t o t h e t w o a l r e a d y in operation, b e established, a n d t h a t a research
e f f o r t b e implemented t o develop t h e capacity f o r t r e a t i n g a w i d e r range o f
o f f e n d e r s t h a n a r e p r e s e n t l y allowed t o p a r t i c i p a t e i n t h e p r o g r a m .
The
GUIDELINES FOR IMPLEMENTATION OF HCMP
a v e r a g e l e n g t h o f residence i n a conditional release c e n t e r recommended by
t h e HCMP was n i n e m o n t h s . " $
A d u l t f u r l o u g h programs f o r pre-parolees w i t h about t h r e e t o s i x months
r e m a i n i n g i n t h e i r sentence w e r e envisioned b y t h e HCMP t o b e operated f r o m
community-based centers or, on t h e - n e i g h b o r islands, t o b e i n t e g r a t e d i n t o
t h e community correctional c e n t e r .
T h e more desirable method, however,
w o u l d b e a n e t w o r k o f small facilities i n communities t h r o u g h o u t t h e State.
T h e HCMP assumed t h a t by 1990 a s i g n i f i c a n t p o r t i o n o f t h e p r o j e c t e d
i n s t i t u t i o n a l population w o u l d b e d i v e r t e d i n t o community programs. T h e assumptions were based on t w o anticipated changes. F i r s t , it was asserted t h a t
t h e commitments o f misdemeanants t o t h e CCCs would b e reduced by 50 p e r
c e n t d u e t o improved assessment a n d decision-making practices and t h e
w i d e s p r e a d use o f h a l f - w a y houses. Secondly, it was assumed t h a t t h e f e l o n y
sentences w o u l d b e reduced f r o m 18 t o 16 months i n response t o t h e developm e n t o f more p r e - p a r o l e centers.
Accordingly, t h e HCMP anticipated t h a t a
t o t a l of a t least 60 residential spaces f o r s h o r t - t e r m residential programs a n d
30 residential spaces f o r pre-parolees would b e r e q u i r e d b y 1977.
More
spaces w o u l d b e r e q u i r e d by 1990 as t h e r e w o u l d b e increased use o f p a r o l e
a n d s h o r t e r sentence dispositions.
Chapter 5
PROGRESS OF HCMP IMPLEMENTATION
N e w C o r r e c t i o n a l Facilities
I n accordance w i t h A c t 179, SLH 1973, t h e t r a n s f e r o f c o u n t y jails t o t h e
S t a t e o c c u r r e d ' a n d t h e Olinda Honor Camp on Maui was phased o u t .
When
t h e Hawaii Pre-Design r e p o r t was s u b m i t t e d t o t h e L e g i s l a t u r e i n 1974, t h e
t o t a l cost f o r t h e renovation o f o l d facilities a n d c o n s t r u c t i o n o f new facilities
f o r t h e statewide system was estimated a t $14 million2 which, a c c o r d i n g t o i t s
planners, r e p r e s e n t e d implementation o f t h e maximum b u i l d i n g p r o g r a m recommended b y t h e HCMP.'
T h e L e g i s l a t u r e responded t o t h e administration's
r e q u e s t t o p r o c e e d w i t h t h e HCMP f a c i l i t i e s c o n s t r u c t i o n by a p p r o p r i a t i n g an
i n i t i a l amount o f $1,093,000 i n A c t 218, SLH 1974, a n d a n o t h e r $7.2 million i n
A c t 195, SLH 1975, f o r t h e phased c o n s t r u c t i o n of t h e facilities as recommended i n O p t i o n A i n t h e Hawaii Pre-Design.'
T h e remaining f u n d s
r e q u i r e d f o r t h e c o n s t r u c t i o n o f facilities w e r e expected t o b e p r o v i d e d
t h r o u g h LEAA g r a n t s .
(See T a b l e A f o r t h e complete f u n d i n g h i s t o r y f o r
facilities u n d e r t h e HCMP. )
A l t h o u g h t h e a p p r o p r i a t i o n s w e r e made p r o m p t l y , delays i n t h e b i d d i n g
process a n d escalating c o n s t r u c t i o n costs r e n d e r e d t h e a p p r o p r i a t i o n s i n s u f f i c i e n t b y t h e time t h e c o n s t r u c t i o n awards w e r e made i n 1976. I n December
o f 1975, t h e DSSH r e p o r t e d t h a t t h e c o n s t r u c t i o n p l a n s h a d t o b e altered
because t h e r e c e n t cost estimates o f $26 million w e r e n e a r l y double t h e amount
o f f u n d s available.'
A c c o r d i n g l y , plans f o r t h e c o n s t r u c t i o n o f t h r e e modules
f o r t h e OCCC (Modules 17, 18, a n d 19 f o r 96 r e s i d e n t s ) h a d t o b e postponed
u n t i l more f u n d s w e r e available. T h e 36-man modules f o r t h e h i g h s e c u r i t y
f a c i l i t y h a d t o b e r e d u c e d t o 30-man modules a n d plans f o r t h e c o n s t r u c t i o n
o f one module h a d t o b e postponed.
D u r i n g t h e 1976 legislative session, t h e G o v e r n o r made an unusual
emergency a p p r o p r i a t i o n r e q u e s t t o t h e L e g i s l a t u r e f o r t h e immediate
authorization o f $10.2 million so t h a t c o n s t r u c t i o n o f t h e HCMP facilities could
b e g i n . C o n s t r u c t i o n was scheduled t o b e g i n i n January, 1976, b u t t h e ant i c i p a t e d $10 million i n f e d e r a l f u n d s did n o t materialize a n d DSSH was i n
need o f supplemental f u n d s . 6
A l t h o u g h t h e r e w e r e g r o u p s vehemently opposed t o t h e a p p r o p r i a t i o n request,' t h e L e g i s l a t u r e a u t h o r i z e d t h e expend i t u r e o f $,lO,l8l,OOO. *
G r o u n d b r e a k i n g f o r all o f t h e new facilities o c c u r r e d i n t h e last h a l f o f
1976, b u t t h e completion dates w e r e much l a t e r t h a n anticipated. T h e Kauai
CCC/ISC complex was t h e f i r s t t o b e completed i n December, 1977. T h e Maui
CCC/ISC complex was completed n e x t i n March o f 1978, a n d t h e Hawaii
T h e f i r s t g r o u p o f modules
CCC/ISC complex followed in May o f t h a t y e a r .
f o r t h e Oahu CCC/ISC f a c i l i t y was completed in A u g u s t o f 1979, b u t inmates
T h e Halawa maximum
c o u l d n o t o c c u p y t h e modules u n t i l e a r l y 1980.'
s e c u r i t y f a c i l i t y was n o t r e a d y f o r occupancy u n t i l March, 1980.
TABLE A
HISTORY OF LEGISLATIVE APPROPRIATIONS AND
LEAA FUNDING FOR CORRECTIONAL FACILITIES
Purpose
Planning
Design
Construction
1. Phased construction of
the CCC/ISC faci 1 i ties
on Oahu, Hawaii, Kauai,
and Maui. Construction
and renovation of Halawa
high security facility.
All new facilities to
replace the existing
Hawaii State Prison
and county jails.
2. Option A - Construction
Phase I - Oahu CCC/ISC
Phase I1 - Oahu CCC/ISC
Interim Hawaii CCC
facility for construction of six additional
rooms and enclosure of
recreation area.
Halawa Jai 1 conversion
to high security
facility with three
36-man and one 13-man
modules.
3. Supplemental funds
autnorized for planning
and construction of
master plan facilities.
Unexpended balances from
Item G-2 Adult Furlough
Center, Sec. 4, Act 68,
SLH 1971, may also be
used.
Source
Act 179, SLH 1970
Act 202, SLH 1972 (CIP)
LEAA, 71E-4
LEAA, 73-ED-09-0010
LEAA, 73A-6. lc
State General Funds - 1975
LEAA, 74E-6.la
state General-~unds- 1976
LEAA 75E-6.la
State General Funds - 1976
Act 218, SLH 1974 (CIP)
LEAA, 74-ED-09-0008
Act 195, SLH 1975 (CIP)
Act 226, SLH 1976
LEAA, 76-ED-09-003
LEAA, 76-ED-09-009
Sub-total
State
$
Federal
100,000
200,000
8
97,900
600.000
205;263
22,807
119.798
13,311
4,269
1,092,466
4,417,786
Purpose
4. Renovation of OCCC
cellblock and administration building
($~,~oo,OOO);plans
and design for additional OCCC facilities
($50,000); plans and
design for additional
neighbor island CCC/ISC
facilities ($150,000);
construction of Module
C and sewer tie-in for
Halawa High Security
Facility ($1,332,000)
5. Supplemental appropriations for OCCC renovation ($1,300,000);
furniture and equipment
for OCCC ($100.000);. OCCC exparkion($450,000) ; and Halawa
sewer tie-in ($75,000)
6. Land acquisition in
Halawa for 500-bed
medium security
facility ($3,579,000);
supplemental funds for
OCCC renovation
($1,150,000) and for
neighbor island CCC/ISC
facilities expansion
($3,750,000); improvements to Kulani
Correctional Facility
($323,000)
Source
Act 214, SLH 1979
'
Act 300, SLH 1980
Act 1, SP. Sess. Laws
1981
Sub-total
Grand Total
* Total appropriations for
HCMP facilities including the 1979 and 1980
appropriation for
Halawa
** Total appropriations for
renovation and additional
facilities not planned by
the HCMP
State
$ 2,932,000
Federal
While t h e new facilities were b e i n g constructed, t h e State experienced an
u n e x p e c t e d and sudden r i s e i n t h e inmate p o p ~ l a t i o n . ' ~As t h e new facilities
w e r e b e i n g completed, t h e rooms w e r e b e i n g f i l l e d u p immediately,"
and it
became necessary t o r e t a i n t h e p r i s o n cellblock and Kulani Honor Camp w h i c h
w e r e o r i g i n a l l y i n t e n d e d f o r p h a s i n g o u t u n d e r t h e HCMP.
Keehi A n n e x l z
was c o n s t r u c t e d o n t h e Oahu CCC/ISC p r o p e r t y as a temporary emergency
f a c i l i t y t o house t h e o v e r f l o w o f p r e - t r i a l detainees i n 1978.
E x t e n s i v e renovations t o t h e o l d facilities were necessitated as t h e
p o p u l a t i o n c o n t i n u e d t o r i s e and it became a p p a r e n t t h a t t h e t e m p o r a r y
f a c i l i t i e s would b e r e q u i r e d i n d e f i n i t e l y .
D u r i n g t h e p a s t few years, t h e
L e g i s l a t u r e a p p r o p r i a t e d a total o f $3,950,000 f o r t h e renovation o f t h e o l d
b u i l d i n g s o n t h e OCCC p r o p e r t y since t h e o v e r c r o w d i n g has been most c r i t i c a l
a t t h e OCCC.
T h e Legislature also a p p r o p r i a t e d $1.3 million f o r t h e construction o f t h e
t h i r d module a t Halawa (Module C); $500,000 f o r t h e p l a n n i n g a n d design o f
additional facilities a t t h e OCCC; $3.9 million f o r t h e expansion o f n e i g h b o r
i s l a n d CCCs; a n d $3,579,000 f o r l a n d acquisition i n Halawa f o r t h e c o n s t r u c t i o n o f a new 500-bed medium s e c u r i t y f a c i l i t y .
T h e statewide system o f correctional facilities today has a total capacity
o f 888 but t h e total inmate headcount as of November 1, 1981 was 1,036 (see
Table B ) .
Completion o f t h e OCCC a d m i n i s t r a t i v e b u i l d i n g renovation a n t i c i p a t e d i n May, 1982, w i l l p r o v i d e 80 additional beds a n d t h e completion o f
a t Halawa w i l l p r o v i d e 30 additional beds. T h e
Module C in J u l y , 1982,
C o r r e c t i o n s Division, however, anticipates an inmate population o f 1,581 by
J a n u a r y 1985 (see A p p e n d i x D l . Since t h e c o n s t r u c t i o n o f large facilities l i k e
t h e proposed 500-bed medium s e c u r i t y f a c i l i t y a t Halawa takes approximately
f i v e years f o r t h e planning, design, and construction, t h e commencement o f
t h a t p r o j e c t i s considered h i g h p r i o r i t y .
Administration
N e i t h e r t h e HCMP n o r A c t 179, SLH 1973, delineated t h e administrative
requirements f o r implementing t h e HCMP o t h e r t h a n organizational placement
a n d s t r u c t u r e o f t h e ISC.
Following t h e enactment o f A c t 179, t h e r e was a
need t o t r a n s l a t e t h e general responsibilities o f t h e ISC and Corrections
Division i n t o f u n c t i o n a l plans.
I n 1976, t h e DSSH contracted w i t h Peat,
Marwick, Mitchell a n d Company ( h e r e i n a f t e r PM&M) t o conduct a s t u d y on t h e
development o f organizational a n d implementation plans f o r t h e ISC and t h e
new management information system r e q u i r e d b y t h e HCMP. A b o u t t h e same
time, t h e DSSH also c o n t r a c t e d w i t h A r t h u r Young a n d Company t o analyze
t h e operations o f t h e Corrections Division a n d t o develop a new organizational
s t r u c t u r e t o implement t h e HCMP.
T h e PM&M s t u d y was completed i n two volumes.
T h e f i r s t volume i n c l u d e d a detailed f l o w c h a r t o f o f f e n d e r movement t h r o u g h t h e criminal j u s t i c e
system which i d e n t i f i e d a l l t h e agency functions,
decision points, a n d
disposition^.^^ Based o n t h e f u n c t i o n s i d e n t i f i e d i n t h e flowchart, an o r ganizational s t r u c t u r e a n d f u n c t i o n a l p l a n was proposed f o r t h e ISC wherein
t h e PM&M r e p o r t i n t e r p r e t e d t h e HCMP a n d A c t 179 t o r e q u i r e t h e assumption
TABLE B
ADULT CORRECTIONAL FACILITIES
CAPACITY AND HEADCOUNT
Facility
Oahu CCC
Cell block
Keehi Annex
Modules
Holding Unit
Capaci t ~ *
250
80
276**
36
642
Hawaii CCC
24
Maui CCC
22
Kauai CCC
15
11/1/81
Headcount
758
Halawa High Security Facility
Nodules A and 8 60
Holding Unit
12
Kulani Correctional Facility
90
Conditional Release Centers
23
TOTAL
888
* Ideally, the holding unit rooms should not be considered as part of
the residential capacity because they are intended for disciplinary
or protective segregation purposes. As noted above, OCCC has 36
rooms; however 24 of those rooms are being used to house pre-trial
detainees triple in number. Halawa has 12 holding rooms and the
neighbor island CCCs each have one room.
** Of the 276 rooms, 96 in the newest modules (17, 18, 19), were not
occupied as of November, 1981, although they were completed in
August, 1981, due to staffing and equipment problems.
o f f u n c t i o n s f r o m e x i s t i n g agencies (see A p p e n d i x E ) .
T h e PMGM r e p o r t
recommended placement o f t h e ISC i n DSSH t o f a c i l i t a t e an e f f e c t i v e d e l i v e r y
o f a combination o f c o r r e c t i o n a l a n d social services a n d suggested t h a t
placement u n d e r t h e J u d i c i a r y o r C o r r e c t i o n s D i v i s i o n would l i m i t t h e e f f e c t i v e n e s s o f t h e ISC since t h e f u n c t i o n s cannot b e p u r e l y j u d i c i a l o r
correctional.
T h e second vo1c;me'" recommended an information system which w o u l d
p r o v i d e necessary information f o r t h e administration o f t h e ISC a n d c o r r e c t i o n a l facilities i n (1) t h e m o n i t o r i n g o f o f f e n d e r status; (2) t h e decisionm a k i n g process r e g a r d i n g t h e c l i e n t ' s disposition a t all phases w i t h i n t h e o f f e n d e r flow, i n c l u d i n g i n d i v i d u a l performance measurement; (3) evaluating t h e
e f f e c t i v e n e s s o f a treatment approach, program, o r o t h e r measurable f u n c t i o n s
(4) p r o v i d i n g fiscal,
of
e n t i t i e s i n c l u d i n g p r o g r a m cost accounting;
b u d g e t a r y , a n d statistical information t o meet a d m i n i s t r a t i v e needs a n d S t a t e
PPS r e p o r t i n g requirements, i n c l u d i n g p r o g r a m cost accounting; a n d (5)
d e v e l o p i n g p r e d i c t i v e models o f post-release b e h a v i o r .
B o t h PMGM r e p o r t s have been used as implementation guides f o r t h e I S C
a n d t h e O f f i c e of C o r r e c t i o n a l I n f o r m a t i o n a n d Statistics ( h e r e i n a f t e r O C I S ) .
I n a d d i t i o n t o these guides, t h e ISC developed a l o n g - r a n g e implementation
p l a n o n M a r c h 31, 1980 w i t h specific programmatic goals a n d a chronological
a c t i o n plan t o meet those goals.
T h e l o n g - r a n g e p l a n was adopted b y t h e
t h e n ISC A d v i s o r y B o a r d i n J u n e 1980 but successful implementation o f t h e
p l a n is dependent on cooperation f r o m o t h e r criminal j u s t i c e agencies.
A l t h o u g h t h e A d v i s o r y B o a r d consisted o f r e p r e s e n t a t i v e s f r o m all c r i m i n a l
j u s t i c e agencies, t h e r e has n o t been an e n t h u s i a s t i c s u p p o r t f r o m those agencies t o w a r d a c h i e v i n g t h e goals i n t h e l o n g - r a n g e p l a n .
T h e Young s t u d y attempted t o c l a r i f y t h e f u n c t i o n a l r e l a t i o n s h i p s
between t h e CCC i n t h e C o r r e c t i o n s D i v i s i o n a n d t h e ISC (see A p p e n d i x F).
Essentially, it recommended t h a t t h e CCC s h o u l d b e responsible f o r t h e i n t a k e
f u n c t i o n s normally associated w i t h a custodial i n s t i t u t i o n a n d f o r s e c u r i t y
t h r o u g h o u t t h e CCC/ISC complex while t h e ISC s h o u l d b e responsible f o r i n t a k e i n t e r v i e w i n g , p r e - t r i a l release decisions, diagnostic w o r k - u p a n d t e s t i n g
o f l o n g - t e r m p r e - t r i a l a n d sentenced offenders, a n d all a c t i v i t i e s e x c e p t
security, i n t h e short-term p r e - t r i a l housing.
B o t h t h e ISC a n d t h e C C C
p r o g r a m personnel would coordinate t h e development o f community resources
a n d i n - f a c i l i t y programs, a n d decisions on placement o f o f f e n d e r s in h o u s i n g .
T h e Young r e p o r t stressed t h e importance o f an e f f e c t i v e w o r k i n g
r e l a t i o n s h i p between t h e CCC a n d t h e ISC a n d recommended t h a t t h e ISC b e
p l a c e d w i t h i n t h e C o r r e c t i o n s D i v i s i o n . T h e rationale was stated as follows:
O u r p r i m a r y concern i s t h e degree o f c o o r d i n a t i o n
r e q u i r e d b e t ~ e o nI S C personnel and CCC personnel. Once an
o f f e n d e r e n t e r s t h e c r i m i n a l j u s t i c e system v i a t h e I n t a k e
S e r v i c e Center, he i s t h e r e c i p i e n t o f a c t i o n s t a k e n by
b o t h I S C and CCC personnel.
U n f o r t u n a t e l y , from an
o p e r a t i o n a l v i e w p o i n t , he i s n o t processed f i r s t through
t h e I S C unit and t h e n through t h e CCC u n i t .
I n f a c t , as
he moves through t h e v a r i o u s phases, he moves through I S C
processes, t h e n CCC processes, then I S C processes, e t c .
If the ISC and CCC personnel were in the same
organization, then uniformity, continuity, and effectiveness would be easier to attain. Under the current
situation, personnel working in the same areas and performing closely integrated activities are responsible to
different administrators with all the attendant differences in personality, goals, responsibilities, etc. In
our opinion, such a division of responsibility and
authority, when superimposed over a series of activities
requiring 'extremely close coordination, will make it
difficult, if not impossible, to attain the degree of efficiency required.
We recognize that the ISC was placed under the
Governor's Office for essentially two reasons. (1) to assure independence from the Criminal Justice agencies when
making decisions concerning pre-trial release, housing
(security risk), and resident program participation, and
(21, to limit undue influence pending a decision concerning the responsibility for preparing pre-sentence investigation reports. In spite of these two concerns we
recommend that the ISC be placed organizationally within
the Corrections Division so that the goals and objectives
of the Master Plan can be met in the most effective and
efficient manner.
First, there is no reason why decisional independence
cannot be maintained since the decisions involved are
based primarily on historical data, and the judgment of
personnel in the various professional disciplines.
Besides, regardless of where the ISC is organizationally
located, most of the decisions involved will he made
jointly by ISC and CCC personnel.
The more difficult problem relates to the traditional
probation activity of pre-sentence investigation reports.
It is obviously the most sensitive of issues because even
though the Master Plan has been approved by the
Legislature, and included the pre-sentence reporting
responsibilities in Act 179, S.L.H. 1973, as that of the
ISC, the "problem" has not been resolved. We suggest that
it may be some time in the future, if at all, before the
probation
activity
is assimilated into the ISC.
Therefore, we would not sacrifice the overall effectiveness of the ISC because they may become responsible
for a function not normally within the framework of a
Corrections operation,
The
degree of effectiveness of the working
relationship between ISC and CCC personnel may very well
spell the difference between success and failure of the
new corrections system. This factor should be carefully
considered before t h e new
placed i n o p e r a t i ~ n . ' ~
correctional
facilities
are
U n f o r t u n a t e l y , t h e ISC a n d t h e C o r r e c t i o n s D i v i s i o n s t i l l have n o t f u l l y
agreed on t h e i r f u n c t i o n a l relationships.
A c t 302, SLH 1580, t r a n s f e r r e d t h e
ISC t o t h e DSSH f o r a d m i n i s t r a t i v e p u r p o s e s on J u n e 18, 1980 as recommended by t h e SLEPA r e p o r t i n 1980. While t h i s arrangement has f a c i l i t a t e d
more discussion a t t h e i n i t i a t i o n o f t h e DSSH d i r e c t o r ' s office, t h e t w o agencies a r e s t i l l n e g o t i a t i n g o n t h i s m a t t e r .
O t h e r major recommendations of t h e Y o u n g r e p o r t w e r e (1) a change i n
t h e C o r r e c t i o n s D i v i s i o n organization t o allow f o r t h e assignment o f specific
responsibilities t o t h e A s s i s t a n t D i v i s i o n A d m i n i s t r a t o r (see A p p e n d i x F); (2)
t h e f u n c t i o n a l arrangement a n d personnel requirements f o r each HCMP
f a c i l i t y ; (3) t h e r e t e n t i o n o f K u l a n i Honor Camp; a n d (4) t h e establishment o f
an a d m i n i s t r a t i v e services u n i t w h i c h w o u l d i n c l u d e a p l a n n i n g a n d research
section responsible f o r t h e development o f an implementation plan f o r t h e
d i v i s i o n as well as f o r each f a c i l i t y .
E x c e p t f o r t h e s t a f f i n g o f t h e n e i g h b o r islands CCCs, t h e Y o u n g o r ganizational recommendations have n o t been f u l l y implemented p r i m a r i l y
because o f i n s u f f i c i e n t f u n d s f o r t h e additional personnel r e q u i r e d f o r t h e
organizational changes: Since 1975 t h e number o f branches a n d employees i n
t h e C o r r e c t i o n s D i v i s i o n has d o u b l e d b u t a d m i n i s t r a t i v e s u p p o r t s t a f f has
h a r d l y increased.
T h e D i v i s i o n was p r o v i d e d w i t h a master plan p l a n n i n g
u n i t t h r o u g h LEAA f u n d s b u t i t s emphasis has been, u n t i l 1980, o n capital
improvement p l a n n i n g a n d coordination o f t h e HCMP facilities. T o date, t h e r e
has been no o f f i c i a l divisional p r o g r a m implementation p l a n a n d t h e f a c i l i t y
programs a r e l e f t t o t h e d i s c r e t i o n o f t h e f a c i l i t y a d m i n i s t r a t o r s .
The
D i v i s i o n contends t h a t because o f t h e u n e x p e c t e d increase i n inmate
population, i t s personnel resources a n d p l a n n i n g e f f o r t s necessarily had t o
focus o n t h e o v e r c r o w d i n g problem since t h e HCMP programs could n o t b e
i n i t i a t e d u n d e r c r o w d e d conditions. In v i e w of t h e r e c e n t legislative approval
f o r expansion o f correctional facilities, t h e D i v i s i o n is now i n t h e process o f
developing a p r o g r a m implementation p l a n w h i c h s h o u l d r e f l e c t adjustments t o
t h e HCMP p r o m p t e d by t h e changes i n t h e criminal j u s t i c e system such as t h e
increases i n inmate commitments a n d l e n g t h o f d e t e n t i o n time.
S t a f f i n g a t C o r r e c t i o n a l Facilities
I n s u f f i c i e n t s t a f f i n g has been a major problem f o r t h e correctional
facilities, especially OCCC, because o v e r c r o w d i n g has necessitated more s t a f f
o n each s h i f t f o r s e c u r i t y p u r p o s e s . T h i s i n t u r n has l e d t o more overtime
w o r k , especially on Oahu a n d Maui, where t h e ACOs average a r o u n d sixteen
h o u r s a d a y a n d o f t e n w o r k f o r t h i r t e e n s t r a i g h t days. T h e s t a f f t u r n o v e r
o f new ACOs is h i g h a t t h e OCCC where t h e atmosphere is extremely stressf u l a n d t h e r e is i n s u f f i c i e n t s t a f f time a n d f u n d s available t o adequately t r a i n
t h e o l d a n d new s t a f f members t o cope w i t h t h e new changes o c c u r r i n g i n t h e
correctional system.
T r a i n i n g o f t h e long-time s t a f f members is c r i t i c a l
because t h e new ACOs look t o them f o r guidance o n t h e job.
Many long-time
s t a f f members a r e r e s i s t a n t t o t h e r o l e o f t h e ACO u n d e r t h e HCMP because
t h e y feel more comfortable i n a custodial s e t t i n g a n d t h e y d o n o t want t o i n -
t e r a c t w i t h inmates.
T h e D i v i s i o n does n o t have a s t a n d a r d t r a i n i n g a n d
o r i e n t a t i o n p r o g r a m f o r t h e long-time s t a f f members t o l e a r n t h e i r new roles
To a
u n d e r t h e HCMP because it does n o t have f u n d s f o r such t r a i n i n g .
l a r g e e x t e n t , t h e ACOs c o n t i n u e t o f u n c t i o n as " p r i s o n g u a r d s " a n d t h e r e is
n o separation o f s e c u r i t y a n d p r o g r a m s t a f f .
A t t h e OCCC, t h e ACOs a r e
c o n s t a n t l y r o t a t e d among v a r i o u s module, cellblock, a n d p e r i m e t e r posts.
T h e HCMP envisicmed t h a t t h e residential modules would f u n c t i o n as
semi-autonomous p r o g r a m u n i t s . As such, t h e implementation o f t h e u n i t team
management c o n c e p t would b e essential t o f a c i l i t a t e i n d i v i d u a l i z e d programming
u n d e r a c o n t r o l l e d e n v i r o n m e n t . O v e r c r o w d i n g a n d s t a f f problems, however,
have impeded t h e implementation of t h e concept.
U n t i l OCCC can resolve i t s
s t a f f t u r n o v e r problems, it w i l l c o n t i n u e t o r o t a t e i t s ACOs a n d assign social
w o r k e r s t o more t h a n one module. Successful implementation o f t h e concept
would r e q u i r e p e r m a n e n t l y assigned g r o u p s t o a module.
On t h e neighbor
islands, t h e u n i t team concept cannot b e f u l l y implemented because t h e e n t i r e
f a c i l i t y f u n c t i o n s as one u n i t . Consequently, t h e s t a f f m u s t p e r f o r m d u t i e s
f o r t h e o v e r a l l f a c i l i t y as well as f o r t h e l i v i n g u n i t . Because t h e neighbor
island CCCs a r e small, t h e r e is a l o t more i n t e r a c t i o n between s t a f f a n d i n mates and, w h i l e s e c u r i t y is t h e ACO's p r i m a r y concern, t h e ACOs a r e fulfilli n g t h e role o f t h e communication l i n k between t h e counselor a n d t h e inmates
as envisioned by t h e HCMP. T h e Halawa a d m i n i s t r a t o r has plans t o implement
t h e u n i t team concept as soon as renovation t o Module B is completed a n d
p r o v i d e d t h a t t h e p o p u l a t i o n does n o t g r e a t l y exceed i t s capacity.
The
Halawa a d m i n i s t r a t o r has i n i t i a t e d an o r i e n t a t i o n p r o g r a m f o r i t s ACOs r e g a r d i n g t h e i r roles u n d e r t h e HCMP. S t a f f morale is h i g h a n d t h e atmosphere is
conducive t o t h e u n i t team approach.
Intake Service Center
T h e G o v e r n o r appointed f i f t e e n members t o t h e I n t a k e S e r v i c e Center
A d v i s o r y B o a r d i n May, 1975.
However, t h e ISC did n o t b e g i n operations
u n t i l an LEAA g r a n t o f $141,754 i n F e b r u a r y , 1976, p r o v i d e d f u n d s f o r h i r i n g
an e x e c u t i v e d i r e c t o r , t h r e e planners, a fiscal specialist, t w o clerks, a n d a
secretary.
I n M a r c h 1976, t h e G o v e r n o r appointed t h e ISC e x e c u t i v e
In fiscal y e a r 1976-77, $370,640 i n f e d e r a l f u n d s a n d $41,183 i n
director.
state f u n d s f a c i l i t a t e d t h e appointment o f a d m i n i s t r a t o r s f o r t h e t h r e e n e i g h b o r island lSCs i n January, 1977. D u r i n g t h a t same fiscal year, t h e p r e - t r i a l
services u n i t f r o m t h e F i r s t C i r c u i t was t r a n s f e r r e d t o t h e ISC a n d t h e
Corrections Research a n d Statistics B u r e a u f r o m DSSH was t r a n s f e r r e d t o t h e
ISC t o become t h e c o r r e c t i o n s information system as recommended b y t h e
PMEM r e p o r t .
I n J u l y , 1977, t h e ISC became a r e g u l a r state p r o g r a m and
was p r o v i d e d f u n d s f o r 29.5 positions i n fiscal y e a r 1977-78 a n d 3 4 . 0
positions f o r fiscal y e a r 1978-79.''
Today, t h e ISC has 51 a u t h o r i z e d
positions. "
T h e responsibilities o f t h e ISC a r e enumerated i n A c t 179,
(sec. 353-1.4, Hawaii Revised Statutes), as follows:
SLH 1973
(b) I t s h a l l provide guidance and t e c h n i c a l s e r v i c e s
f o r volunteer r e f e r r a l s and t o admitted persons, correct i o n a l d i a g n o s t i c and evaluation s e r v i c e s f o r diversionary
determinations,
pre-sentence
investigations
for
the
c o u r t s , and post-sentence c o r r e c t i o n a l p r e s c r i p t i o n program planning f o r committed persons;
(c)
Provide short-term r e s i d e n t i a l detention f o r
persons awaiting j u d i c i a l d i s p o s i t i o n who have not been
c o n d i t i o n a l l y released;
(d)
Provide such o t h e r personal and c o r r e c t i o n a l
s e r v i c e s a s needed;
( e ) Monitor and record t h e progress of persons admitted t o t h e c e n t e r , who undergo f u r t h e r treatment o r who
p a r t i c i p a t e i n prescribed c o r r e c t i o n a l programs;
( f ) Refer persons admitted t o t h e c e n t e r i n s e l e c t e d
cases, t o community programs pending j u d i c i a l d i s p o s i t i o n
o r where j u d i c i a l
proceedings a r e discontinued o r
suspended;
(g) Provide f o r a d u l t persons, c o r r e c t i o n a l s e r v i c e s
including but not limited t o o r i e n t a t i o n , s o c i a l ,
psychiatric-psychological
evaluations,
employment
counseling, s o c i a l inventory and programming, medical and
d e n t a l s e r v i c e s , and r e f e r r a l s e r v i c e s t o community
programs ;
T h e ISC translated t h e s e responsibilities into t a s k s according t o t h e f o u r
phases of t h e criminal justice system a s follow^:'^
Apprehension Phase:
Police-ISC coordination.
Interagency
exchange of information with t h e police, prosecutor, a n d public
defender.
Pretrial Phase:
Reception, intake screening, a n d pretrial
assessment
for
release
recommendations
and
bail
recommendations.
Custody admission interviews, residential
c a r e , a n d program planning with institutions.
Pretrial
supervision, monitoring, a n d exchange of information with
police, prosecutor, public d e f e n d e r , a n d judges.
Pre-sentence Phase:
Preparation of pre-sentence and diagnostic report includes interviews with t h e offender, review of
a r r e s t reports,
conducting special diagnostic t e s t s , and
verifying information.
Post-sentence Phase:
Review case data and provide f u r t h e r
assessment of offender's needs a n d classify inmate f o r
security.
P a r t i c i p a t e i n review o f inmate f o r reclassification o r
release i n f u r l o u g h programs o r parole. Coordinate a n d r e f e r
i n d i v i d u a l s t o community p r o g r a m s .
T h e ISC also i d e n t i f i e d o t h e r i m p o r t a n t ISC a c t i v i t i e s w h i c h would b e i n t r i n s i c
t o all f o u r phases.
These a c t i v i t i e s i n c l u d e special diagnostic t e s t i n g on a
f e e - f o r - s e r v i c e basis; data g a t h e r i n g a n d analysis f o r t h e m o n i t o r i n g of o f f e n d e r s i n programs; a n d t h e development o f community-based p r o g r a m s .
I n 1979, t h e ISC A d v i s o r y B o a r d evaluated t h e p r o g r e s s o f t h e ISC a n d
noted t h a t t h e r e w e r e numerous organizational a n d management problems which
c o n t i n u e t o e x i s t d e s p i t e e f f o r t s t o r e s o l v e them.
L i t t l e p r o g r e s s has been
achieved i n r e s o l v i n g those problems since t h a t r e p o r t was made.
The foll o w i n g is a b r i e f account o f t h e s t a t u s o f t h e ISC programs.
''
Progress i n t h e implementation o f t h e HCMP requirements f o r t h e ISC has
been slow.
Essentially, t h e ISC has o n l y been i n v o l v e d i n t h e e a r l y phases
o f t h e criminal j u s t i c e system.
Yet, even i n these phases,
t h e ISC
involvement has been incomplete f o r t h e r e has been l i t t l e p r o g r a m development
a n d coordination w i t h o t h e r criminal j u s t i c e agencies.
I n t h e apprehension phase, t h e lSCs on Oahu a n d Maui have made a r rangements w i t h t h e police t o c o n d u c t i n t e r v i e w s w i t h potential candidates f o r
p r e - t r i a l release a t t h e police cellblock. T h e Maui ISC is c u r r e n t l y w o r k i n g
w i t h t h e police t o establish c i t a t i o n release p r o g r a m s .
I n t h e p r e - t r i a l phase, t h e ISC on Oahu a n d Maui have w o r k e r s available
a t d i s t r i c t c o u r t a r r a i g n m e n t s t o i n t e r v i e w potential clients a n d p r o v i d e p r e t r i a l services.
I n all j u r i s d i c t i o n s , t h e ISC conducts p r e - t r i a l investigations
a n d bail studies a n d makes recommendations t o t h e c o u r t s as t o those o f f e n d e r s who q u a l i f y f o r p r e - t r i a l release.
P r e - t r i a l o f f e n d e r s placed on s u p e r v i s e d release by t h e c o u r t s a r e s u p e r v i s e d b y t h e ISC.
T h e ISC is n o t i n v o l v e d i n i n t a k e a t t h e CCCs o r i n p r o v i d i n g services
f o r p r e - t r i a l detainees. T h e CCCs have c o n t i n u e d t o p r o v i d e these services
since t h e ISC has n o t h a d s u f f i c i e n t s t a f f i n g t o devote t o t h e f u l l p r e - t r i a l
i n t a k e process w h i c h r e q u i r e s s t a f f i n g b e y o n d e i g h t h o u r s since admissions
o c c u r d u r i n g all h o u r s o f t h e d a y .
T h e ISC has n o t been i n v o l v e d i n
residential placement a n d p r o g r a m p l a n n i n g a c t i v i t i e s w i t h t h e facilities.
ISC
services t o p r e - t r i a l detainees who d o n o t q u a l i f y f o r p r e - t r i a l release a r e
minimal. T h e ISC has been c o n c e n t r a t i n g on p r e - t r i a l release a n d has n o t
h a d s u f f i c i e n t s t a f f o r time t o p r o v i d e services a n d programs f o r t h e p r e - t r i a l
detainees a l t h o u g h t h i s is supposed t o b e one o f t h e p r i m a r y purposes o f t h e
I n t h e p r e - s e n t e n c e phase, t h e ISC has been c o n d u c t i n g pre-sentence
investigations ( h e r e i n a f t e r PSIS) f o r misdemeanants on t h e n e i g h b o r islands a t
t h e request o f t h e d i s t r i c t c o u r t s since 1978. On blaui a n d Kauai, t h e lSCs
peform PSIS o n some f e l o n y cases.
I n Hawaii county, t h e ISC also assisted
t h e c i r c u i t c o u r t i n p r e p a r i n g PSIS f o r felons b u t t h i s p r a c t i c e ceased about a
y e a r a n d one-half ago. On Oahu, t h e ISC does n o t p e r f o r m a n y PSIS, a n d
f r o m all indications, it seems u n l i k e l y t h a t t h e c o u r t s w i l l e v e r request such
services f r o m t h e I S C .
T h e p r i m a r y reason f o r t h e ISC involvement i n PSIS on t h e n e i g h b o r
i s l a n d s i s d u e t o limited personnel resources i n t h e n e i g h b o r island c o u r t s .
Maui a n d Kauai counties d o n o t have a separate d i s t r i c t c o u r t counseling s e r v i c e l i k e Oahu a n d Hawaii counties so t h e y r e f e r most o f t h e i r PSIS f o r misdemeanants t o t h e ISC so t h e i r p r o b a t i o n o f f i c e r s can concentrate on t h e PSIS
If t h e n e i g h b o r i s l a n d c o u r t s h a d s u f f i c i e n t s t a f f i n g t o handle all
f o r felons.
PSIS, t h e lSCs would p r o b a b l y n o t b e requested t o c o n d u c t a n y P S k as t h e r e
appears t o b e a p r e f e r e n c e by t h e c o u r t s t o have t h e i r own personnel do t h e
work.
In t h e post-sentence phase, t h e ISC has t a k e n o v e r s u p e r v i s i o n of t h e
Community S e r v i c e R e s t i t u t i o n p r o j e c t p r e v i o u s l y handled, on a limited basis,
by t h e J u d i c i a r y on t h e n e i g h b o r islands.
T h e r e a r e no diagnostic and prog r a m p r e s c r i p t i o n services p r o v i d e d t o t h e facilities f o r residential placement
a n d p r o g r a m m i n g decisions o n o f f e n d e r s o r t o t h e p a r o l i n g a u t h o r i t y f o r
minimum sentencing decisions.
T h e i n f o r m a t i o n system, w h i l e it has p r o d u c e d e x t e n s i v e statistical
r e p o r t s o n offenders, has n o t y e t achieved i t s most i m p o r t a n t f u n c t i o n o f
compiling a n d t r a n s l a t i n g c o r r e c t i o n a l data f r o m w h i c h e f f e c t i v e a n d consistent
decisions by t h e ISC a n d C o r r e c t i o n s D i v i s i o n r e g a r d i n g o f f e n d e r treatment
c a n b e made.
Much o f t h e p r o b l e m i n v o l v e s an absence of coordination
between t h e ISC a n d t h e C o r r e c t i o n s D i v i s i o n r e g a r d i n g t h e i n p u t and o u t p u t
requirements o f t h e i n f o r m a t i o n system.
T h e O C l S was h a v i n g d i f f i c u l t y in
c o n t r o l l i n g t h e q u a l i t y o f data t h a t was b e i n g submitted b y t h e correctional
f a c i l i t i e s a n d t h e facilities allege t h a t information has n o t been r e a d i l y availab l e i n meaningful f o r m t o assist them i n m a k i n g decisions a f f e c t i n g t h e
offender.
T h e absence o f communication a n d coordination between t h e t w o
agencies r e s u l t e d i n t h e p r o d u c t i o n o f numerous r e p o r t s b y OClS which have
n o t been f u l l y used by t h e i n t e n d e d u s e r g r o u p .
Recognizing t h i s problem, t h e DSSH formed a s t u d y team i n J u l y , 1981,
composed o f r e p r e s e n t a t i v e s o f t h e C o r r e c t i o n s D i v i s i o n a d u l t branches, t h e
ISC, a n d t h e p a r o l i n g a u t h o r i t y t o develop a c e n t r a l i z e d automated information
system t o meet t h e operational needs o f t h e c o r r e c t i o n a l system.
Although
t h e s t u d y was limited t o t h e coordination problems o f t h e Oahu branches, t h e
recommendations a r e i n t e n d e d t o b e f l e x i b l e a n d capable of i n t e g r a t i n g t h e i n if
t e r e s t s a n d concerns o f t h e n e i g h b o r island b r a n c h e s . T h e f i n a l r e p o r t , "
a g r e e d t o by t h e agencies, w i l l b e a major accomplishment t o w a r d t h e ISC
coordination e f f o r t .
O t h e r r e c e n t e f f o r t s t o w a r d coordination include t h e
development o f statewide sentence calculation policies a n d procedures, and a
c e n t r a l r e c o r d s system t o assist t h e p a r o l i n g a u t h o r i t y , Corrections Division,
ISC, a n d a d u l t p r o b a t i o n .
A s t h e i n t e n d e d c o o r d i n a t i n g agency f o r t h e implementation o f t h e HCMP,
t h e I S C has been unsuccessful i n a c h i e v i n g much p r o g r e s s .
T h e ISC does
n o t enjoy t h e s t a t u s o f systems c o o r d i n a t o r p l a n n e d f o r b y t h e HCMP. T h e r e
is n o coordinated c e n t r a l i n t a k e process, a n d t h e criminal j u s t i c e agencies
c o n t i n u e t o f u n c t i o n as i n d e p e n d e n t l y as t h e y d i d p r i o r t o t h e HCMP. T h e
o n l y area o f coordination has been i n t h e p r e t r i a l release programs w i t h t h e
police, prosecutors, a n d c o u r t s .
T h e e x t e n t o f cooperation, however, among
t h e criminal j u s t i c e agencies i n most j u r i s d i c t i o n s is, a t best, o n l y one o f
accommodation.
Relationships between t h e ISC statewide office, t h e J u d i c i a r y ,
a n d t h e C o r r e c t i o n s D i v i s i o n have been s t r a i n e d o v e r t h e p a s t f i v e years alt h o u g h t h e r e a r e c o n t i n u e d attempts i n i t i a t e d b y t h e ISC a t r e s o l v i n g
differences.
I n t h e area o f community-based p r o g r a m development, t h e ISC has n o t
implemented a n y new programs o t h e r t h a n t h o s e programs i n t h e p r e - t r i a l
d i v e r s i o n area.
With i n s u f f i c i e n t s t a f f i n g a n d o v e r c r o w d i n g i n t h e c o r r e c t i o n a l facilities, t h e ISC a t t h e onset determined t h a t p r i o r i t y would b e g i v e n
t o t h e p r e - t r i a l d i v e r s i o n area since a l a r g e p o r t i o n o f t h e detained population
a t t h a t time was comprised o f p r e - t r i a l detainees.
Halawa H i g h S e c u r i t y F a c i l i t y
A l t h o u g h t h e Halawa Jail was t u r n e d o v e r t o t h e State on J u n e 20, 1975,
i t c o u l d n o t f u n c t i o n as a maximum s e c u r i t y f a c i l i t y u n t i l a f t e r March, 1980,
when t h e new f a c i l i t y was r e a d y f o r occupancy. A t t h a t time, t h e population
consisted p r i m a r i l y o f p r e - t r i a l detainees a n d it was n o t u n t i l June, 1981, t h a t
Haiawa t r a n s f e r r e d 46 p r e - t r i a l inmates t o OCCC a n d received t h r e e maximum
s e c u r i t y inmates f r o m OCCC i n exchange. T h e C o r r e c t i o n s D i v i s i o n a t t r i b u t e d
t h e delay o f t r a n s f e r r i n g p r e - t r i a l inmates t o t h e o v e r c r o w d i n g problem i n t h e
community c o r r e c t i o n a l c e n t e r s .
As o f O c t o b e r 6, 1981, Halawa's p o p u l a t i o n totalled 78 inmates a n d cons i s t e d o f 39 not-sentenced, n o misdemeanants, a n d 38 felon^.^' Negotiations
between t h e Halawa a n d OCCC administrations r e g a r d i n g t h e t r a n s f e r o f o t h e r
inmates i s c o n t i n u i n g a n d it was anticipated t h a t b y t h e e n d o f 1981, Halawa
w o u l d b e h o u s i n g o n l y maximum s e c u r i t y inmates.
When t h i s happens,
Halawa's a d m i n i s t r a t o r i n t e n d s t o implement programs as envisioned b y t h e
HCMP w h e r e i n residents w i l l b e segregated by module a n d by q u a d r a n t s
w i t h i n modules f o r a sequentially phased p r o g r a m w h i c h o f f e r s residents t h e
o p p o r t u n i t y t o w o r k t h e i r way t o b e t t e r p r i v i l e g e s w i t h i n t h e f a c i l i t y a n d
e v e n t u a l l y , perhaps, t o a CCC. T h e programs w i l l b e geared t o keep t h e i n mates b u s y a n d o u t o f t r o u b l e , n o t t o r e h a b i l i t a t e t h e inmates. T h e r e a r e
p r e s e n t l y t w o general education p r o g r a m s a t Halawa,
one o f f e r e d by
Kamehameha School a n d one b y Aiea Community School.
New classes w i l l i n c l u d e i n d u s t r i a l courses t h r o u g h Hoomana School a n d college level courses.
T h e Halawa f a c i l i t y has a c e n t r a l p r o g r a m area c o n s i s t i n g o f a p r i n t s h o p ,
l i b r a r y , gymnasium, a n d a classroom. Each module has an o u t d o o r recreation
c o u r t y a r d adjacent t o t h e module.
C e r t a i n inmates classified a s maximum
s e c u r i t y c u s t o d y w i t h i n t h e f a c i l i t y must remain i n t h e i r modules a n d a r e o n l y
allowed i n t o t h e module's recreation y a r d .
A l l o t h e r p r o g r a m areas a r e o f f
limits t o those inmates.
A t present, however, t h e p r i n t s h o p a n d i i b r a r y
areas a r e n o t b e i n g used f o r p r o g r a m purposes because those areas have been
u s e d as h o u s i n g space t o meet t h e demands of o v e r c r o w d i n g in t h e p a s t a n d
a r e now u n d e r g o i n g renovation f o r p r o g r a m use.
Oahu Community C o r r e c t i o n a l C e n t e r
T h e HCMP envisioned t h e OCCC as a residential c e n t e r f o r t h e Oahu
not-sentenced a n d minimum t o medium s e c u r i t y sentenced inmates.
It was
PROGRESS OF HCMP 1MPLEMENTATlON
a n t i c i p a t e d t h a t t h e r e w o u l d b e a number o f minimum s e c u r i t y residents w h o
c o u l d q u a l i f y f o r community-based programs and t h a t t h e p r e - t r i a l detainees
w o u l d b e q u i c k l y processed by t h e ISC and d i v e r t e d f r o m l e n g t h y
i n c a r c e r a t i o n . However, as o f J u n e 30, 1981, t h e OCCC population o f 651 i n mates consisted o f 471 sentenced felons, 39 sentenced misdemeanants, and 141
not-sentenced. Of t h e sentenced population, o v e r f i f t y p e r cent were medium
s e c u r i t y , t w o p e r c e n t were minimum s e c u r i t y , and t w e l v e p e r cent w e r e
maximum s e c u r i t y . 2 3 As o f November 1, 1981, t h e headcount at OCCC rose
t o 758 a n d t h e OClS contends t h a t t h e m a j o r i t y o f t h e residents a r e s t i l l t h e
h i g h t o medium s e c u r i t y felons and not-sentenced detainees.
O f t h e 758
inmates, 541 were felons, 15 misdemeanants, and 202 w e r e not-sentenced.
A l l but f o u r o f t h e modules p l a n n e d by t h e HCMP have been
constructed.
T h e r e a r e c u r r e n t l y eleven modules available f o r housing inmates b u t , o f t h a t number, t h r e e (Modules 17, 18, and 19) which were comp l e t e d i n A u g u s t , 1981, a r e n o t i n use because o f equipment problems a n d
s t a f f i n g shortages.
C o n s t r u c t i o n plans f o r t h e last f o u r modules have been
delayed p e n d i n g completion o f t h e 500-bed medium s e c u r i t y f a c i l i t y planned
f o r Halawa since t h e s i t e is p r e s e n t l y b e i n g used as a "makeshift" recreation
y a r d f o r t h e OCCC inmates. Since t h e t o t a l capacity o f t h e eleven modules i s
276 inmates a n d t h e population a t OCCC is 758, t h e cellblock s t i l l houses a
l a r g e number o f maximum s e c u r i t y inmates t o g e t h e r w i t h medium s e c u r i t y
inmates.
T h e o v e r c r o w d i n g has impeded t h e OCCC's f l e x i b i l i t y t o segregate
i t s population a p p r o p r i a t e l y f o r c o n t r o l and programming purposes.
T h e OCCC has been t r o u b l e d w i t h s t a f f t u r n o v e r s d u e t o t h e s t r e s s f u l
atmosphere a t t h e f a c i l i t y . While some o f t h e ACOs l i k e t h e module s e t t i n g
because t h e r e a r e less residents a n d each can b e locked up i n d i v i d u a l l y , some
ACOs feel more apprehensive since t h e r e a r e some h i g h s e c u r i t y inmates i n
t h e module.
Furthermore, t h e r e is more d i r e c t contact between t h e inmates
a n d t h e ACOs a t OCCC because t h e module c o n t r o l station is constructed l i k e
a c i r c u l a r reception desk w i t h no s e c u r i t y enclosure as p r o v i d e d f o r t h e
Halawa H i g h S e c u r i t y F a c i l i t y o r t h e n e i g h b o r island C C C S . ~ " As o f
September,
1981, o u t o f a total o f 236 a u t h o r i z e d ACO positions (196
permanent; 40 temporary), 83 were vacant (54 permanent; 29 t e m p o r a r y ) .
OCCC has h a d d i f f i c u l t y f i n d i n g a p p r o p r i a t e personnel f o r t h e ACO I V
positions (para-professional counselors) because t h e job r e q u i r e s t h e a b i l i t y t o
w o r k a n d communicate w i t h inmates.
T h e ACO I l l ( s e c u r i t y ) positions a r e
d i f f i c u l t t o fill because t h e r e a r e n o t enough applicants a n d f o r many who d o
apply, English is n o t t h e i r p r i m a r y l a n g u a g e . 2 5
S t a f f i n g shortages h a v e also affected t h e professional levels a t OCCC.
O u t o f 9 u n i t s u p e r v i s o r positions, o n l y 7 a r e f i l l e d and o u t o f 14 social
Insufficient
w o r k e r positions, although 9 a r e filled, 3 a r e emergency h i r e s .
professional s t a f f i n g has resulted i n t h e d o u b l i n g u p o f u n i t s u p e r v i s o r s a n d
counselors t o u n i t teams a n d has t h u s minimized t h e module a n d individualized
p r o g r a m development c a p a b i l i t y o f t h e u n i t teams. 2 6
T h e mixed r a t h e r t h a n segregated population in t h e modules has hamp e r e d t h e implementation o f programs i n t h e modules. T h e module residents,
however, have more p r o g r a m o p p o r t u n i t i e s t h a n t h e cellblock inmates f o r c r a f t
and h o b b y classes. g r o u p i n t e r a c t i o n programs, religious programs, and
counseling a n d t u t o r i n g sessions because t h e modules h a v e been designed w i t h
space f o r s u c h programs.
T h e a v a i l a b i l i t y o f programs o u t s i d e t h e modules i n t h e c e n t r a l program
area is limited p r i m a r i l y because o f inadequate space.
T h e HCMP assumed
t h a t most o f t h e p r o g r a m needs o f t h e OCCC residents could b e met t h r o u g h
t h e use o f community resources.
A c c o r d i n g l y , c e n t r a l p r o g r a m space was
minimally planned.
T h e OCCC has a Hoomana School i n d u s t r i a l p r o g r a m b u t
most classes a r e limited t o a r o u n d 25 s t u d e n t s p e r class because o f limited
workshop space and s e c u r i t y personnel needed t o conduct classes. Recreation
outdoors f o r t h e OCCC residents is p r o v i d e d by a recreation h a l l t h a t is a
covered basketball and t e n n i s c o u r t complex w i t h a stage, a n d a "makeshift"
b a l l f i e l d t h a t was established a f t e r t h e o l d p r i s o n recreation y a r d h a d t o b e
closed f o r t h e c o n s t r u c t i o n o f t h e new modules.
T h e a b i l i t y t o p r o v i d e programs i n t h e cellblock i s limited because t h e
cellblock dormitories have n o p r o g r a m space l i k e t h e modules.
Programs must
t h e r e f o r e b e c a r r i e d o u t i n t h e c e n t r a l p r o g r a m areas. T h e l i b r a r y and lanai
area o f t h e o l d administration b u i l d i n g p r o v i d e some space f o r g r o u p activities
such as
b i b l e s t u d y clases, alcoholics anonymous meetings, t u t o r i n g , and
h o b b y classes. A l l cellblock inmates, e x c e p t i n g t h e maximum s e c u r i t y inmates
a r e also allowed t o p a r t i c i p a t e in t h e educational a n d vocational p r o g r a m areas
o f t h e module complex.
P r e - t r i a l detainees housed i n t h e h o l d i n g u n i t o r Keehi Annex a r e
p r o v i d e d minimal programs b y t h e Corrections D i v i s i o n such as recreation,
f i e l d d a y s w i t h families, and basic needs services such as contacts w i t h
lawyers, employers, a n d doctors.
T h e HCMP intended t h a t t h e ISC would
p r o v i d e t h e c r i s i s and counseling services f o r all o f t h e p r e - t r i a l population,
but t h e ISC has o n l y been p r o v i d i n g such services f o r those who q u a l i f y f o r
release programs a n d f o r p a r t i c u l a r inmates i n c r i s i s situations.
A l t h o u g h t h e r e is a wide v a r i e t y o f programs o f f e r e d a t t h e OCCC, many
inmates a r e o n l y i n v o l v e d i n w o r k l i n e activities w h i c h were discouraged by t h e
HCMP f o r e x t e n s i v e use. T h e w o r k l i n e activities g e n e r a l l y include l a u n d r y ,
janitorial, kitchen, and y a r d w o r k chores a r o u n d t h e f a c i l i t y . Many inmates
a r e i d l e a l a r g e p a r t o f t h e day.
T h e OCCC does n o t h a v e a Program C e n t e r as recommended by t h e
Hawaii Pre-Design.
T h e p r o g r a m committee s t i l l f u n c t i o n s as it did p r i o r t o
t h e HCMP's adoption and t h e p r o g r a m c o n t r o l administrator is responsible f o r
t h e o v e r a l l p l a n n i n g o f t h e programs f o r t h e OCCC. T h e r e is n o assistance
i n p r o g r a m p l a n n i n g p r o v i d e d by t h e ISC.
N e i g h b o r I s l a n d Community Correctional C e n t e r s
T h e breakdown o f t h e headcount a t t h e n e i g h b o r i s l a n d CCCs as o f
November 1, 1981, is as follows:
County/
Capacity
Hawaii ( 2 4 )
(22)
Maui
Kauai ( 1 5 )
-
Felons
Misdemeanors
10
19
8
15
2
1
Not
Sentenced
23
34
6
Total
41
54
23
O v e r c r o w d i n g on Hawaii a n d Maui is a t t r i b u t a b l e t o t h e i n o r d i n a t e amount
o f not-sentenced residents detained a t t h e facilities.
T h e problem on Maui is
compounded by t h e exceptionally l e n g t h y detention time s e r v e d b y t h e n o t sentenced r e s i d e n t s . 2 7
Program implementation as recommended b y t h e HCMP has been hampered
by t h e o v e r c r o w d i n g a n d t h e l a r g e number o f p r e - t r i a l detainees. T h e neighb o r island CCCs o n l y have one c o r r e c t i o n a l counselor t o coordinate and implement t h e p r o g r a m needs o f t h e f a c i l i t y since t h e HCMP expected t h e neighb o r i s l a n d CCCs t o r e l y on community
resources f o r programming.
Experience has shown, however, t h a t personnel and f a c i l i t y resources a r e
limited o n t h e n e i g h b o r islands where t h e populations a r e small. T h u s , while
t h e CCCs p r o v i d e a v a r i e t y o f general a c t i v i t i e s b y r e l i g i o u s g r o u p s , alcoholics anonymous, a n d v o l u n t e e r t u t o r s , t h e h o b b y and music classes t h a t
a r e p o p u l a r among t h e inmates a r e o n l y available when v o l u n t e e r i n s t r u c t o r s
can be o b t a i n e d .
Programs a r e also a f f e c t e d b y t h e limited p r o g r a m space
available a n d t h e number o f ACOs o n d u t y t o monitor t h e a c t i v i t y area. T h e
n e i g h b o r islands have an added problem when an ACO (sometimes two) is
r e q u i r e d t o escort an o f f e n d e r t o c o u r t .
Especially on Hawaii, t h i s can mean
a whole d a y ' s absence f r o m t h e f a c i l i t y if t h e o f f e n d e r has t o b e escorted t o
Kona.
T h e Maui a n d Kauai CCCs have o u t d o o r recreation c o u r t s while t h e
Hawaii CCC has an enclosed recreation c o u r t w i t h s k y l i g h t s . T h e recreation
c o u r t s adjoin t h e module p r o g r a m areas a n d p r o v i d e such a c t i v i t i e s as
w e i g h t l i f t i n g , volleyball, o r p i n g - p o n g .
T h e modules were designed f o r more freedom of movement w i t h i n a l a r g e
secured area w i t h t h e i n t e n t i o n of l i m i t i n g t h e cell confinement p e r i o d .
However, t h e o v e r c r o w d i n g problem on t h e n e i g h b o r islands, especially on
Maui, has r e s u l t e d i n l o n g e r confinement p e r i o d f o r residents i n t h e i r i n d i v i d u a l rooms since t h e r e i s o n l y one p r o g r a m area i n t h e module a n d most
a c t i v i t i e s have t o b e conducted i n s h i f t s .
H a l f - w a y Residences
T h e r e a r e c u r r e n t l y f o u r h a l f - w a y residential programs o p e r a t i n g i n t h e
State, all of w h i c h a r e on Oahu.
T w o a r e operated by t h e Corrections
D i v i s i o n ' s conditional release b r a n c h a n d t w o a r e operated b y t h e John
Howard Association of Hawaii u n d e r c o n t r a c t s w i t h t h e ISC a n d Corrections
Division.
T h e t w o conditional release centers u n d e r t h e C o r r e c t i o n s Division were
i n operation p r i o r t o t h e adopted o f t h e HCMP.
T h e Laumaka Conditional
Release Center, established i n 1968, a n d t h e Kamehameha Conditional Release
REVIEW OF H C M P IMPLEMENTATION
Center, established i n 1973,"
p r o v i d e h o u s i n g f o r t h o s e felons who can b e
t r u s t e d i n a minimally c o n t r o l l e d e n v i r o n m e n t w h i c h resembles t h e community
l i f e - s t y l e t h e inmate m u s t r e i n t e g r a t e i n t o u p o n release.
T h e centers o f f e r
inmates a w o r k release p r o g r a m wherein t h e inmates can p a y f o r t h e i r own
room a n d b o a r d a n d f o r t h e i r f a m i l y ' s s u p p o r t .
Programs i n t h e centers a r e
h i g h l y s t r u c t u r e d i n t o sequential phases o f goals a n d objectives agreed u p o n
by t h e inmate a n d s t a f f a t t h e onset a n d t h e inmate is awarded increased
p r i v i l e g e s based on successful performance a n d good b e h a v i o r .
T h e L i l i h a House I p r o g r a m o f t h e J o h n H o w a r d Association, which is
f u n d e d t h r o u g h t h e ISC, p r o v i d e s h o u s i n g f o r p r e - t r i a l o f f e n d e r s released o n
s u p e r v i s e d release o r o n t h e i r own recognizance, p r o b a t i o n e r s sentenced as a
special condition o f probation, a n d p r o b a t i o n e r s determined by t h e c o u r t as i n
need o f more s t r u c t u r e d p r o g r a m t h a n conventional p r o b a t i o n .
Liliha House
I I, which is f u n d e d t h r o u g h t h e C o r r e c t i o n s Division, p r o v i d e s selected male
a n d female felons w i t h a p r e - p a r o l e release p r o g r a m designed t o ease t h e
t r a n s i t i o n f r o m i n s t i t u t i o n a l l i f e t o community l i v i n g .
Programs i n t h e
residence a r e similar t o t h a t p r o v i d e d a t t h e conditional release centers where
employment is s t r e s s e d as t h e p r i m a r y means f o r t h e inmate t o e f f e c t i v e l y
r e i n t e g r a t e i n t o t h e mainstream o f t h e community.
A l l f o u r community residence programs w e r e evaluated a n d were f o u n d t o
A
b e e f f e c t i v e as a l t e r n a t i v e s t o i n c a r c e r a t i o n as envisioned by t h e HCMP."
r e p o r t by a citizens committee w h i c h c o n d u c t e d an evaluation o f t h e cond i t i o n a l release b r a n c h i n 1977 concluded t h a t t h e p r o g r a m demonstrated t h e
c a p a b i l i t y o f t h e C o r r e c t i o n s D i v i s i o n t o "deinstitutionalize" corrections b u t
t h a t t h e D i v i s i o n lacked a commitment t o t h e p r o g r a m a n d h a d failed t o
develop t h i s potential by n o t p r o v i d i n g a c o n c r e t e p l a n f o r community-based
p r o g r a m s . T h e C o r r e c t i o n s D i v i s i o n contended t h a t t h e establishment o f h a l f way houses has been hampered b y community opposition. T h i s was v i v i d l y
demonstrated i n August,
1977, when a neighborhood,
supported b y its
legislators,
successfully defeated t h e Division's
p l a n t o relocate t h e
Kamehameha c e n t e r f r o m t h e p r i s o n g r o u n d s t o a home i n t h e Kalihi area.'O
As a r e s u l t o f t h i s opposition, t h e c e n t e r was moved " t e m p o r a r i l y " t o t h e
s u p e r i n t e n d e n t ' s cottage a t t h e Hawaii Y o u t h C o r r e c t i o n a l F a c i l i t y (HYCF).
L a t e r attempts by t h e D i v i s i o n t o relocate t h e Kamehameha c e n t e r also failed
a n d t h e c e n t e r s t i l l remains on t h e g r o u n d s o f t h e HYCF.
Because o f such
s t r o n g community opposition t o t h e establishment o f c e n t e r s i n t h e i r
neighborhoods, t h e C o r r e c t i o n s D i v i s i o n began f u r l o u g h programs f r o m t h e
CCC facilities.
T h i s , i n combination w i t h t h e contention by t h e Corrections
D i v i s i o n t h a t t h e r e a r e less inmates t o d a y who can q u a l i f y f o r minimal s e c u r i t y
programs, has r e s u l t e d i n t h e t w o conditional release c e n t e r s b e i n g o n l y h a l f
f i l l e d a n d f u t u r e D i v i s i o n expansion p l a n s a r e m o v i n g t o w a r d CCC f a c i l i t y based r a t h e r t h a n community-based release p r o g r a m s .
Chapter 6
FINDINGS
E x t e r n a l F a c t o r s A f f e c t i n g HCMP Implementation
T h e HCMP was developed d u r i n g a time when t h e economy was h e a l t h y
a n d Hawaii, as a y o u n g state, took p r i d e i n i t s p r o g r e s s i v e social programs.
When t h e HCMP was f i n a l l y completed, however, t h e economic p i c t u r e dimmed,
c o r r e c t i o n s a d m i n i s t r a t o r s a n d legislators i n v o l v e d w i t h t h e HCMP development
w e r e replaced by o t h e r s n o t as familiar w i t h t h e HCMP, a n d t h e p u b l i c ' s symp a t h e t i c a t t i t u d e t o w a r d criminals changed.
Inmate Population G r o w t h .
T h e most s i g n i f i c a n t a n d unexpected change
t h a t o c c u r r e d a f t e r t h e HCMP was adopted was t h e s u d d e n inmate population
growth.
T h e HCMP's population projections w e r e based on t h e assumption
t h a t t h e slow b u t steady g r o w t h t h a t o c c u r r e d between 1930 t o 1970 would
continue.
Commencing i n 1973, however, t h e mainland states experienced a
s u d d e n g r o w t h i n inmate population.
T h a t t r e n d reached Hawaii a few years
l a t e r as t h e new HCMP facilities w e r e b e i n g c o n s t r u c t e d . '
E x p e r t s have
reasoned, a f t e r much s t u d y i n g a n d c o n j e c t u r i n g , t h a t t h e unexpected and accelerated g r o w t h p a t t e r n was a t t r i b u t a b l e t o t h e b a b y boom a f t e r World War I I
w h i c h p r o d u c e d a l a r g e c r i m e - p r o n e age g r o u p f o r today; an increase i n
crime; a r e t r i b u t i v e p u b l i c mood r e s u l t i n g i n mandatory a n d l o n g e r minimum
sentences; c o n s e r v a t i v e p a r o l e policies a n d an increase i n t h e number o f p e r sons p e r capita t h a t a r e committed t o p r i s o n . '
Whatever t h e reason, Hawaii
l i k e most o t h e r states i n t h e nation f o u n d i t s e l f u n p r e p a r e d .
T h e Fiscal P i c t u r e . T o compound t h e problem o f an u n a n t i c i p a t e d inmate
population surge, Hawaii, as well as t h e federal government, was i n a p e r i o d
o f h i g h i n f l a t i o o a n d fiscal c o n s t r a i n t .
A l l state g o v e r n m e n t agencies were
competing f o r t h e same limited resources. While t h e l e g i s l a t u r e was generous
i n a p p r o p r i a t i n g f u n d s f o r t h e c o n s t r u c t i o n o f new facilities, t h e r e was l i t t l e
money f o r t h e implementation o f programs.
T h e c o n s t r u c t i o n o f new facilities
necessarily was assigned a h i g h e r p r i o r i t y o v e r p r o g r a m implementation
because t h e state p r i s o n a n d c o u n t y jails were designated a n t i q u a t e d i n t h e
e a r l y s i x t i e s . With t h e r i s i n g inmate population i n 1976, t h e u r g e n c y of cons t r u c t i n g new facilities was i n t e n s i f i e d . F u n d s f r o m t h e LEAA were becoming
scarce a n d w i t h soaring c o n s t r u c t i o n costs, t h e l e g i s l a t u r e was r e q u i r e d t o
As
a p p r o p r i a t e much more f o r capital improvements t h a n it h a d anticipated.
was f o r e w a r n e d by t h e HCMP, w i t h o u t d i v e r s i o n a r y p r o g r a m alternatives t o
incarceration, d r a s t i c increases i n f a c i l i t y capacity needs r e s u l t e d .
"Get-tough" Public Mood.
T h e decade o f t h e seventies experienced a
s h a r p increase i n t h e state crime r a t e ( t h e p r o p o r t i o n o f offenses p e r 100,000
population).
From 1970 t o 1979, t h e crime r a t e increased b y 37.5 p e r cent,
of which 146.9 p e r c e n t r e p r e s e n t e d an increase i n crimes against t h e
person.'
A c o r r e s p o n d i n g increase i n t h e p u b l i c ' s f e a r o f b e i n g victimized
r e s u l t e d i n demands on government a n d elected officials t o " g e t - t o u g h " o n
crime a n d t o keep t h e criminals o f f t h e s t r e e t s .
Since 1976, t h e l e g i s l a t u r e has responded t o t h e p u b l i c o u t c r y by enacti n g mandatory minimum sentencing legislation.
Such laws have, in effect,
t a k e n away much o f t h e d i s c r e t i o n o f t h e c o u r t s a n d p a r o l i n g a u t h o r i t y i n
m a k i n g sentencing decisions w h i c h was t h e essence o f t h e indeterminate sent e n c i n g p h i l o s o p h y o f t h e Hawaii penal code.
T h e commentary on section
706-605, Hawaii Revised Statutes, noted t h a t :
. . .t h e Code takes t h e p o s i t i o n t h a t , w i t h t h e e x c e p t i o n o f
murder, t h e L e g i s l a t u r e should n o t compel imprisonment f o r
any crime b e f o r e t h e circumstances o f t h e crime and f a c t s
concerning t h e defendant a r e known t o t h e sentencing
authority.
T h i s p r o v i s i o n r e s t s on t h e view t h a t no
legislative d e f i n i t i o n or classification o f offenses can t a k e account o f a l l contingencies.
However r i g h t i t may be t o t a k e t h e gravest view
of an o f f e n s e i n general, t h e r e w i l l be cases
comprehended i n t h e d e f i n i t i o n where t h e circumstances were so unusual, o r t h e m i t i g a t i o n s so
extreme, t h a t a suspended sentence o r p r o b a t i o n
would be p r o p e r . We see no reason t o d i s t r u s t
t h e c o u r t s upon t h i s m a t t e r o r t o f e a r t h a t such
a u t h o r i t y w i l l be abused. (Footnote o m i t t e d )
When t h e m a n d a t o r y minimum sentencing law f o r repeat o f f e n d e r s was
f i r s t enacted, it applied o n l y t o those o f f e n d e r s convicted o f class A felonies
such as m u r d e r , f i r s t d e g r e e rape, k i d n a p p i n g , f i r s t d e g r e e sodomy, f i r s t
degree r o b b e r y , f i r s t d e g r e e promotion of dangerous d r u g s , a n d f i r s t degree
promotion of h a r m f u l d r u g s ; a n d t o persons c o n v i c t e d o f class B felonies such
as f i r s t degree assault a n d second d e g r e e promotion o f dangerous d r u g s . "
Mandatory minimum sentences o f f i v e t o t e n y e a r s were also p r o v i d e d f o r
f i r s t - t i m e and repeat o f f e n d e r s c o n v i c t e d o f class A a n d B felonies i n v o l v i n g
firearms.
Today, t h e law has been expanded t o i n c l u d e o v e r t h r e e times as
many crimes i n c l u d i n g class C felonies.
T h e mandatory minimum law f o r
repeat o f f e n d e r s p r o v i d e s t h a t persons c o n v i c t e d o f class A a n d c e r t a i n class
B f e l o n i e s h i l l b e automatically sentenced t o a minimum o f f i v e years on t h e
second c o n v i c t i o n a n d t e n y e a r s on t h e t h i r d conviction w i t h o u t t h e p o s s i b i l i t y
o f parole. A n o f f e n d e r committing o t h e r class B a n d c e r t a i n class C felonies7
would b e sentenced t o t h r e e y e a r s on t h e second conviction a n d f i v e years on
t h e t h i r d c o n v i c t i o n w i t h o u t t h e p o s s i b i l i t y o f parole.
I n 1981, t h e l e g i s l a t u r e also imposed a mandatory minimum sentence o f
t h i r t y d a y s i n jail f o r repeat o f f e n d e r s convicted o f p r o s t i t u t i o n which is a
misdemeanor.'
F o r f i r s t - t i m e o f f e n d e r s o f class A felonies, a new law i n 1980
p r o v i d e s f o r an automatic imprisonment sentence b y d e n y i n g t h e options o f
suspension of sentence a n d p r o b a t i o n as alternatives t o i n c a r c e r a t i o n . '
T h e minimum sentencing a n d release decisions b y t h e Hawaii
A u t h o r i t y have also been a f f e c t e d by t h e p u b l i c ' s g e t t o u g h mood.
t h e HCMP expected t h e average f e l o n y sentence t o b e reduced t o
months by 1982, t h e average l e n g t h o f time s e r v e d b y felons has
Paroling
Although
18 o r 16
shown a
F 1 ND 1 NGS
steady u p w a r d t r e n d f r o m 30.2 months i n fiscal y e a r 1975-76 t o 47.4 months
i n fiscal y e a r 1980-81.10
As mentioned i n C h a p t e r 4, t h e HCMP assumed t h a t a s i g n i f i c a n t p o r t i o n
o f t h e inmate p o p u l a t i o n w o u l d b e d i v e r t e d f r o m incarceration and, w i t h b e t t e r
diagnostic capabilities a n d r e i n t e g r a t i o n programs, o f f e n d e r s who r e q u i r e i n carceration w o u l d b e s e r v i n g s h o r t e r sentences.
B u t , t h e aforementioned
mandatory s e n t e n c i n g laws a n d t h e s t r i c t e r minimum sentencing a n d release
decisions o f t h e Hawaii Paroling A u t h o r i t y , o v e r t h e last f i v e y e a r s have a f fected t h e State's p r i s o n capacity i n t h a t as admissions a n d l e n g t h o f detent i o n have increased, o n l y a c o n s e r v a t i v e number o f felons have been released
(see F i g u r e 1 ) .
FIGURE
1
Felon Admissions and Releases*
FY 1975-76 through FY 1980-81
Source: *Data p r o v i e d by
OCIS.
I n a d d i t i o n , t h e a v e r a g e t i m e s e r v e d by o f f e n d e r s r e l e a s e d in f i s c a l y e a r
1980-81 s h o w e d a d r a m a t i c i n c r e a s e f r o m f i s c a l y e a r 1975-76 ( s e e T a b l e C ) .
TABLE C
Release By Time Served
By Offense Class*
FY 1975-76 t o FY 1980-81
FY 1980-81
Months
FY 1975-76
Months
Personal Crimes
Property Crimes
Other Crimes
Technical Violations
Drug-related Crimes
Average
Rates of Change
FY 1980-81 Over FY 1975-76
Personal Crimes
+71.0%
Property Crimes
+25.0%
Other Crimes
+33.0%
Technical Violations
Drug-related Crimes
Source:
*Data provided by OCIS.
+136. OZ
+58.0%
FINDINGS
With t h e increase i n admissions, t h e facilities were f u r t h e r u n p r e p a r e d
f o r a l a r g e p r e - t r i a l population. T h e HCMP's low population projections w e r e
premised on t h e assumption t h a t a l a r g e segment o f t h e p r e - t r i a l p o p u l a t i o n
w o u l d n o t r e q u i r e detention a n d c o u l d b e e x p e d i t i o u s l y d i v e r t e d f r o m t h e
system.
D u r i n g fiscal y e a r 1978-79, 37.4 p e r c e n t o f those admitted t o t h e
s t a t e c o r r e c t i o n a l facilities w e r e p r e - t r i a l felons a n d 33.3 p e r c e n t w e r e p r e t r i a l misdemeanants."
T h e p r e - t r i a l admissions t h u s accounted f o r 70.7 p e r
c e n t o f t h e t o t a l admissions.
While many p r e - t r i a l admissions a r e d i v e r t e d
f rom i n c a r c e r a t i o n t h r o u g h v a r i o u s release programs coordinated b y t h e ISC,
a l a r g e number a r e s t i l l b e i n g detained.
I n fiscal y e a r 1980-81, t h e r e were a t o t a l o f 326 p r e - t r i a l detainees h e l d
i n correctional facilities u n t i l sentencing. T h e median detention time s e r v e d
b y p r e - t r i a l felons was 82 days a n d 44.5 d a y s f o r m i s d e m e a n a n t ~ . ' ~ T h e r e i s
i n s u f f i c i e n t information available t o determine w h y many p r e - t r i a l detainees
r e q u i r e d l e n g t h y d e t e n t i o n . Consequently, t h e r e is a need f o r f u r t h e r s t u d y
b y t h e ISC o n p r e - t r i a l population i n o r d e r t o establish policies a n d programs
t o resolve t h i s problem.
A d m i n i s t r a t i v e a n d Organization Problems
I n 1979, t h e LEAA O f f i c e o f A u d i t a n d I n v e s t i g a t i o n , t h e I n t a k e Service
C e n t e r A d v i s o r y Board, a n d SLEPA each conducted a review of t h e HCMP.13
A l l t h r e e agencies r e p o r t e d t h a t t h e HCMP has been implemented a t a less
t h a n s a t i s f a c t o r y l e v e l . Hawaii now has a statewide system o f modern c o r r e c tional facilities w h i c h includes t h e f o r m e r c o u n t y jails, a n d a new agency
called t h e I n t a k e Service Center, b u t b e y o n d these, t h e r e has been l i t t l e
change t o t h e criminal j u s t i c e system.
Generally, t h e r e p o r t s f o u n d t h a t
t h e r e was an absence o f commitment b y t h e criminal j u s t i c e agencies t o t h e
HCMP; t h e r e was n o coordination o f policies a n d p r o c e d u r e s among t h e
criminal j u s t i c e agencies; and t h e r e was n o comprehensive p l a n f o r t h e
development o f a community-based c o r r e c t i o n s p r o g r a m .
T h e r e p o r t s a t t r i b u t e d these shortcomings t o a confusion r e g a r d i n g t h e
r o l e o f t h e ISC a n d t h e absence o f a clear s t a t u t o r y a u t h o r i t y a n d d i r e c t i o n
t o assume o v e r a l l r e s p o n s i b i l i t y f o r t h e coordination a n d implementation o f t h e
HCMP. T h e r e p o r t s also indicated t h a t t h e HCMP has been hampered b y t h e
p u b l i c ' s mood t o " g e t - t o u g h " on criminals w h i c h has l e d t o mandatory minimum
sentencing laws w h i c h have, i n t u r n , led t o t h e incarceration of more felons,
l o n g e r minimum sentences, a n d s t r o n g e r community opposition t o communitybased p r o g r a m s . Finally, t h e r e p o r t s noted t h a t i t was too soon f i n 1979) t o
make a f a i r assessment o f t h e HCMP implementation since t h e ISC and t h e
CCCs had o n l y been i n operation f o r a few years, a n d t h e criminal j u s t i c e
system was s t i l l in t r a n s i t i o n . T h e B u r e a u f o u n d t h a t t h e same problems s t i l l
e x i s t e d i n 1981 a n d v e r y l i t t l e p r o g r e s s i n p r o g r a m implementation has
occurred.
I n tracing t h e history of the
Absence of Commitment t o t h e HCMP.
HCtvlP implementation, t h e B u r e a u has f o u n d a g l a r i n g absence o f commitment
t o t h e HCMP concepts.
Despite t h e HCMP's advocacy of a coordinated s y s tems approach t o corrections, t h e criminal j u s t i c e agencies have c o n t i n u e d t o
t r e a t t h e o f f e n d e r s i n t h e same independent manner as t h e y did p r i o r t o t h e
adoption o f t h e HCMP. Despite t h e HCMP's emphasis o n r e i n t e g r a t i o n t h r o u g h
community-based programs a n d i t s de-emphasis o n incarceration, t h e opposite
has o c c u r r e d :
T h e r e have been v e r y l i t t l e f u n d s a p p r o p r i a t e d f o r p r o g r a m
development;
T h e r e has n e v e r been an implementation p l a n by t h e
C o r r e c t i o n s D i v i s i o n o r t h e ISC f o r t h e development o f a
n e t w o r k o f community-based programs;
T h e legislature
legislation;
has
enacted
mandatory
minimum
sentencing
Judges have been more f r e q u e n t l y a p p l y i n g t h e sentencing o p t i o n o f incarceration as a c o n d i t i o n o f probation; a n d
Minimum sentences a n d l e n g t h of time s e r v e d b e f o r e p a r o l e as
determined by t h e Hawaii Paroling A u t h o r i t y have increased
r a t h e r t h a n decreased.
Despite t h e i n t e n t o f t h e HCMP t o p r o v i d e Hawaii w i t h a planned, p r o grammed approach t o correctional p l a n n i n g , correctional decisions have s t i l l
been made on a r e a c t i v e a n d piecemeal basis. T h e HCMP may have s e r v e d as
t h e b l u e p r i n t f o r t h e design a n d c o n s t r u c t i o n o f t h e new facilities, b u t it has
n o t been used as t h e g u i d e f o r p r o g r a m p l a n n i n g . T h e incomplete implement a t i o n is l a r g e l y d u e t o an apathetic a t t i t u d e t o w a r d t h e HCMP a n d a p p a r e n t
nonchalant d i s r e g a r d f o r i t s requirements.
It is impossible f o r t h e B u r e a u t o assess t h e m e r i t s o f t h e HCMP
concepts i n view o f t h e p a r t i a l p r o g r a m implementation, b u t it is reasonable t o
conclude t h a t t h e HCMP cannot b e e f f e c t i v e i n meeting Hawaii's f u t u r e correcA master p l a n which
tional needs if t h e r e is n o commitment t o i t s concepts.
is n o t a d h e r e d t o o r s u p p o r t e d by t h e affected agencies is useless a n d
ineffective.
T h e absence o f commitment b y t h e criminal j u s t i c e agencies a n d t h e
l e g i s l a t u r e t o t h e HCMP can b e a t t r i b u t e d t o t h e lack o f l e a d e r s h i p a n d o f a
coordinated f u n c t i o n a l a n d implementation p l a n which a r t i c u l a t e s t h e master
plan concepts i n t o p u b l i c policies a n d enumerates t h e s t a n d a r d s t h a t must b e
adhered to, a n d t h e actions t h a t m u s t b e t a k e n b y t h e c r i m i n a l j u s t i c e agencies w i t h o u t compromising t h e i r effectiveness.
I n assessing t h e p r o g r e s s o f t h e HCMP,
Absence o f a Functional Plan.
i t must be remembered t h a t t h e HCMP was i n t e n d e d as a f l e x i b l e g u i d e . T h e
specifications f o r p r o g r a m implementation, therefore, w e r e l e f t t o t h e implementors since t h e HCMP p l a n n e r s c o u l d n o t p r e d i c t t h e a v a i l a b i l i t y o f
financial a n d community resources.
A c t 179, Session Laws o f Hawaii 1973,
was p u r p o s e l y d r a f t e d w i t h an assumption t h a t all c r i m i n a l j u s t i c e agencies
w e r e aware o f a n d i n agreement w i t h t h e HCMP requirements a n d t h a t changes
i n t h e system would o c c u r i n d u e course. T h i s assumption was p r i m a r i l y d u e
t o t h e involvement of t h e A d Hoc Committee, w h i c h i n c l u d e d k e y represent a t i v e s f r o m t h e criminal j u s t i c e agencies, i n t h e HCMP p l a n n i n g process.
FINDINGS
Immediately following t h e enactment o f A c t 179, SLH 1973, t h e ISC d i r e c t o r s h o u l d have been appointed t o spearhead t h e development o f a detailed
systemwide implementation p l a n . T h e r e was t o o much time between t h e enactment o f A c t 179 i n 1973 a n d t h e appointment o f t h e ISC d i r e c t o r i n 1976, and
d u r i n g t h a t period, t h e o n l y a c t i v i t y o n HCMP implementation was t h e cons t r u c t i o n o f new facilities.
B y 1976, many o f t h e i n d i v i d u a l s i n policymaking
positions changed a n d t h e eager s u p p o r t f o r t h e HCMP's community-based
p r o g r a m s waned.
A l t h o u g h t h e DSSH i n i t i a t e d an e f f o r t t o w a r d t h e development of f u n c tional plans by c o n t r a c t i n g w i t h Peat, Marwick, Mitchell a n d Company a n d
A r t h u r Y o u n g a n d Company, t h e r e s u l t i n g r e p o r t s were n o t coordinated a n d
t h e r e w e r e some i n c o n g r u i t i e s as t o t h e f u n c t i o n a l relationships o f t h e ISC
a n d t h e C o r r e c t i o n s D i v i s i o n which, u n t i l today, have n o t been resolved.
I n May, 1977, SLEPA p u b l i s h e d a r e p o r t on standards a n d goals i n a d u l t
c o r r e ~ t i o n s . ~ ' T h e r e p o r t contained s t a n d a r d s developed by a t a s k f o r c e on
adult corrections.
T h e u n d e r l y i n g p h i l o s o p h y o f t h e p r o j e c t was t h a t o f
" r e i n t e g r a t i o n o f t h e o f f e n d e r i n t o t h e community w i t h o u t u n d u e d a n g e r t o t h e
p u b l i c " w i t h a fundamental o b j e c t i v e o f " s e c u r i n g a normal c u l t u r a l a n d l i v i n g
p a t t e r n o f community l i f e f o r t h e o f f e n d e r . " 1 5
T h i s document c o u l d have
s e r v e d as t h e b e g i n n i n g s o f an implementation p l a n f o r t h e HCMP, b u t f o r
some reason, t h e r e was no formal adoption o f t h e standards a n d goals a n d t h e
agencies have n o t adhered t o them.
T h e t h r e e studies i n 1979 maintained t h a t
Lack of F a i t h i n t h e ISC.
coordination was hampered by t h e vagueness o f A c t 179, SLH 1973.
I n t e r v i e w s w i t h agencies, however, revealed t h a t t h e r e is no d i s p u t e t h a t t h e
ISC is supposed t o b e t h e c o o r d i n a t o r o f t h e HCMP since A c t 179, i n i t s p u r pose clause, adopted t h e HCMP concept o f an i n t e g r a t e d system a n d t h a t
concept is b u i l t a r o u n d t h e ISC as t h e h e a r t o f t h e system. What has been
a t issue is t h e manner i n w h i c h t h e ISC has chosen t o proceed w i t h i t s HCMP
mandate. T h e r e is also d o u t j t among t h e s e agencies as t o w h e t h e r t h e ISC is
capable o f developing programs a n d assuming t h e r e s p o n s i b i l i t y f o r c e n t r a l i n t a k e a n d diagnosis f o r t h e e n t i r e system.
T h e ISC began i t s operations i n 1976 b y assuming t h e e x i s t i n g responsibilities o f o t h e r agencies b e f o r e s t a r t i n g p r o g r a m development, b u t t h e r e
was l i t t l e e f f o r t b y t h e ISC t o coordinate i t s w o r k o r t o communicate w i t h
o t h e r criminal j u s t i c e agencies.
Some o b s e r v e r s have noted t h a t t h i s may
have been a tactical e r r o r on t h e p a r t o f t h e ISC since merely t a k i n g o v e r
f u n c t i o n s w i t h o u t p r o v i d i n g a n y supplemental assistance t o o t h e r agencies l e d
t o t h e development o f animosity t o w a r d t h e I S C .
While t h e ISC contends t h a t t h e HCMP was t o be implemented sequentially
b e g i n n i n g w i t h t h e c o n s t r u c t i o n o f facilities a n d formulation o f t h e ISC, a n d
t h a t t h e assumption o f f u n c t i o n s was a necessary i n i t i a l step in t h e planned
e v o l u t i o n o f t h e ISC, t h e B u r e a u c o u l d n o t f i n d a n y w r i t t e n evidence o f such
i n t e n t e x c e p t i n t h e PM&M r e p o r t w h i c h is j u s t one i n t e r p r e t a t i o n of t h e HCMP
a n d A c t 179. T h i s is n o t t o say t h a t t h e ISC is w r o n g . On t h e c o n t r a r y ,
t h e B u r e a u f o u n d t h a t a major problem t h r o u g h o u t t h e h i s t o r y o f t h e HCMP
has been an absence o f documentation o f legislative i n t e n t .
A c t 179 was
based on t h e assumption t h a t t h e p a r t i e s i n v o l v e d knew what was expected o f
them.
B u t , since 1973, many o f t h e a d m i n i s t r a t o r s a n d policymakers have
changed a n d t h e assumptions a r e n o l o n g e r clear o r b i n d i n g w i t h t h e p r e s e n t
If t h e alleged assumptions made i n 1973 r e g a r d i n g t h e HCMP
policymakers.
implementation h a d been documented i n t h e committee r e p o r t s o r i n a coord i n a t e d f u n c t i o n a l plan, t h e r e m i g h t n o t have been t h e p r e s e n t c o n f l i c t i n g i n t e r p r e t a t i o n s o v e r t h e r o l e o f t h e ISC v i s - a - v i s t h e o t h e r c r i m i n a l j u s t i c e
agencies.
Since i t s inception, t h e ISC has made several attempts t o o b t a i n sole
statutory a u t h o r i t y aver t h e pre-sentence investigation function which under
A c t 179 was assigned t o b o t h t h e ISC a n d t h e J u d i c i a r y . T h i s one issue has
been t h e focal p o i n t o f t h e endless debate i n t h e l e g i s l a t u r e o v e r t h e past f e w
y e a r s a n d has been t h e p r i m a r y cause o f criticisms a g a i n s t t h e ISC a n d t h e
Judiciary.
T h e Bureau's i n v e s t i g a t i o n revealed t h a t t h e r e l a t i o n s h i p between t h e
J u d i c i a r y a n d t h e I S C has become so s t r a i n e d t h a t t h e r e is l i t t l e hope f o r a
resolution t o t h e problem t h a t w i l l b e agreeable t o b o t h agencies. Too much
time a n d e n e r g y have been expended on t h e issue o f assuming t h e p r e sentence i n v e s t i g a t i o n f u n c t i o n t o t h e d e t r i m e n t o f t h e ISC. I n c o n c e n t r a t i n g
i t s e f f o r t s on t h e assumption o f e x i s t i n g programs, t h e I S C neglected i t s
o t h e r responsibilities i n t h e areas o f p r o g r a m development a n d establishment
o f a c e n t r a l i n t a k e process. Consequently, n o one is aware o f w h a t t h e ISC
is capable o f d o i n g . With i n c r e a s i n g p u b l i c demands f o r a c c o u n t a b i l i t y i n t h e
c o n t r o l l i n g o f crime, punishment o f offenders, a n d i n a l l e v i a t i n g p r i s o n
o v e r c r o w d i n g , criminal j u s t i c e agencies a r e n o t w i l l i n g t o leave t h e f a t e o f
t h e i r decisions i n t h e hands o f an u n p r o v e n agency l i k e t h e ISC. Some agencies a r e n o t c o n f i d e n t t h a t t h e ISC has t h e knowledge a n d p r a c t i c a l e x perience t o make a p p r o p r i a t e recommendations f o r inmate sentencing,
placement, a n d p r o g r a m s .
Since J u n e o f 1981, t h e ISC, u n d e r a new e x e c u t i v e d i r e c t o r , has been
attempting t o d o w n p l a y t h e pre-sentence i n v e s t i g a t i o n c o n t r o v e r s y a n d has
r e d i r e c t e d i t s e f f o r t s t o w a r d t h e establishment o f a coordinated implementation
p l a n between itself, t h e C o r r e c t i o n s Division, a n d t h e p a r o l i n g a u t h o r i t y f o r
c e n t r a l intake, classification, a n d diagnosis. While some p r o g r e s s has been
made w i t h t h e c o r r e c t i o n s agencies u n d e r DSSH, it appears u n l i k e l y t h a t t h e
ISC can o b t a i n t h e respect a n d cooperation it needs f r o m all t h e criminal
j u s t i c e agencies i n o r d e r t o become t h e systems c o o r d i n a t o r a n d c e n t r a l
intake, diagnostic, a n d information agency envisioned by t h e HCMP.
T h e r e Has Been N o Change in t h e
Philosophy o f C o r r e c t i o n s
T h e r e has been much discussion i n r e c e n t years o f t h e ineffectiveness o f
t h e r e h a b i l i t a t i o n philosophy i n c u r t a i l i n g crime a n d t h a t t h e HCMP is inapp r o p r i a t e because it is premised o n a philosophy t h a t is n o t i n consonance
w i t h t h e p u b l i c mood.
As stated i n C h a p t e r 3, t h e HCMP p h i l o s o p h y is a
community t r e a t m e n t p h i l o s o p h y t h a t advocates t h e n o n - i n s t i t u t i o n a l a n d i n dividualized treatment of offenders.
I n criminal j u s t i c e jargon, t h e t e r m
" r e h a b i l i t a t i o n " u s u a l l y r e f e r s t o an approach t o crime based on t h e medical
model t h e o r y t h a t crime is a disease a n d criminals can b e c u r e d t h r o u g h
FINDINGS
v a r i o u s t r e a t m e n t programs.
T h e HCMP, however, i s based o n t h e opposing
sociogenic model t h e o r y t h a t considers c r i m e as a social phenomenon a n d
r a t h e r t h a n seeking t o " c u r e " t h e o f f e n d e r , i t s emphasis is o n h e l p i n g t h e o f f e n d e r s t o cope w i t h society.
T h e goal o f t h e HCMP is r e i n t e g r a t i o n o f t h e
offender, n o t r e h a b i l i t a t i o n .
T h e B u r e a u believes t h a t a d i s t i n c t i o n m u s t b e made between t h e
p h i l o s o p h y o f sentencing a n d t h e goal o f c o r r e c t i o n s .
T h e "get-tough" m o ~ d
o f t h e p u b l i c has r e s u l t e d i n a move t o w a r d t h e implementation of a
p u n i s h m e n t - o r i e n t e d p h i l o s o p h y i n sentencing t o d e t e r crime since t h e p r e s e n t
r e h a b i l i t a t i v e sentencing s t r u c t u r e o f t h e penal code has n o t p r o v e n t o be e f f e c t i v e i n r e d u c i n g crime.
Regardless o f w h i c h sentencing philosophy Hawaii
operates u n d e r , t h e goal o f c o r r e c t i o n s m u s t remain t h e same. Unless Hawaii
adopts a sentencing p h i l o s o p h y w h i c h advocates l i f e w i t h o u t parole f o r all
crimes, o f f e n d e r s w i l l e v e n t u a l l y b e r e t u r n e d t o t h e community a f t e r s e r v i n g
t h e i r sentences.
Thus, t h e function o f corrections must be t o ensure that
o f f e n d e r s who r e t u r n t o t h e community a r e n o t dangerous t o t h e p u b l i c .
While t h e p r e s e n t sentencing a n d p a r o l i n g practices indicate a move
t o w a r d a p h i l o s o p h y o f punishment t h r o u g h increased incarceration, Hawaii
s t i l l has a h i g h number o f o f f e n d e r s b e i n g d i v e r t e d f r o m incarceration. I n a
r e c e n t r e p o r t by t h e Hawaii C r i m i n a l J u s t i c e a n d Statistical Analysis Center,
it was f o u n d t h a t o f t h e 2,726 f e l o n y a r r e s t s disposed o f d u r i n g t h e p e r i o d
f r o m September 1, 1979 t o A u g u s t 31, 1980, o n l y a t o t a l o f 401 cases (14.6
p e r c e n t ) r e s u l t e d i n convictions a n d o f t h a t amount, o n l y 91 o f f e n d e r s (22.6
p e r c e n t ) w e r e sent t o p r i s o n w h i l e 310 o f f e n d e r s (77.3 p e r cent) received
n o n - p r i s o n sentences such as p r o b a t i o n . 1 6
T h e HCMP p h i l o s o p h y is b r o a d a n d incorporates elements o f b o t h
r e h a b i l i t a t i o n a n d p u n i s h m e n t i n t h a t it contends t h a t while community-based
a l t e r n a t i v e s t o incarceration a r e t h e p r e f e r r e d t r e a t m e n t f o r l o w - r i s k
offenders, t h e r e a r e o f f e n d e r s w h o a r e dangerous a n d m u s t b e incarcerated i n
i n s t i t u t i o n s since t h e y cannot b e safely released i n t o t h e community. Most o f
Hawaii's laws o n mandatory minimum sentences a r e n o t necessarily inconsistent
w i t h t h e HCMP i n t h a t t h e h i g h - r i s k o f f e n d e r s a r e b e i n g incarcerated. T h e r e
has j u s t been an increase i n o f f e n d e r s considered t o b e h i g h - r i s k and a decrease i n o f f e n d e r s considered as l o w - r i s k . . . t h e r e v e r s e o f t h a t anticipated
by t h e HCMP.
Cost-effectiveness o f P u r s u i n g
a Philosophy o f I n c a r c e r a t i o n
It is impossible t o determine t h e cost-effectiveness o f a p o l i c y t h a t is n o t
y e t developed.
T h e costs o f a s t r o n g e r incarceration sentencing p o l i c y can
b e increased o r decreased d e p e n d i n g o n such f a c t o r s as t h e k i n d o f release
policies t h a t a r e established o r t h e inmate s e c u r i t y classification system. T h e
l o n g e r a n o f f e n d e r is detained o r t h e more medium t o h i g h s e c u r i t y inmates
t h e r e a r e established, t h e h i g h e r t h e cost.
If Hawaii were t o o f f i c i a l l y a d o p t a s t r o n g e r incarceration p o l i c y w h i c h
would s u b s t a n t i a l l y decrease t h e n o n - p r i s o n sentences, it m u s t anticipate a n d
b e w i l l i n g t o p a y t h e p r o b a b l e concomitant h i g h costs o f inmate care and new
REYIEW OF MCMP IMPLEMENTATION
p r i s o n c o n s t r u c t i o n . T h e 1981 C o r r e c t i o n s Yearbook r e p o r t e d t h a t t h e cost o f
inmate c a r e i n Hawaii d u r i n g fiscal y e a r 1979-1980 was t h e f o u r t h h i g h e s t i n
t h e nation a t $12,771 p e r inmate.''
I n a comprehensive national s u r v e y of
American p r i s o n s a n d jails, it was estimated t h a t t h e p r o j e c t e d cost o f cons t r u c t i n g a d d i t i o n s t o p r i s o n c a p a c i t y i n t h e western states f o r 1978-1982
would b e $41,600
p e r bed."
T h e r e p o r t also f o u n d t h a t t h e r e is a
r e l a t i o n s h i p between p o p u l a t i o n a n d capacity w h i c h suggests t h a t t h e more
p r i s o n space t h a t is available, t h e more o f f e n d e r s w i l l b e i n c a r c e r a t e d . ''
T h e Corrections, D i v i s i o n r e c e n t l y estimated t h a t approximately $40 million
would b e r e q u i r e d f o r t h e c o n s t r u c t i o n o f t h e planned 500-bed medium
s e c u r i t y f a c i l i t y a t Halawa a n d f o r expansion o f t h e Maui a n d Kauai community
correctional centers.
I n view o f t h e p r e s e n t o v e r c r o w d i n g a n d fiscal
constraints,
t h e adoption o f a s t r o n g e r incarceration p o l i c y should b e
cautiously approached a n d consideration should b e g i v e n t o t h e p r o v i s i o n o f
some mechanism t o r e g u l a t e t h e f l o w o f o f f e n d e r i n t a k e a n d release. T h e sent e n c i n g a n d release policies o f t h e State must b e developed w i t h a view
t o w a r d what i s f e a s i b l y a f f o r d a b l e a n d t h e use o f cheaper incarceration a l t e r natives such as h a l f - w a y houses s h o u l d n o t b e abandoned.
Chapter 7
CONCLUSIONS AND RECOMMENDATIONS
T h e u n d e r l y i n g r e i n t e g r a t i o n p h i l o s o p h y o f t h e HCMP as i t applies t o
c o r r e c t i o n a l t r e a t m e n t is s t i l l sound.
T h e concept o f a centralized systems
approach t o c o r r e c t i o n s appears t o b e t h e o r e t i c a l l y sound, b u t t h e designation
o f one agency o v e r o t h e r criminal j u s t i c e agencies as t h e coordinator has
p r o v e n t o be impractical and u n w o r k a b l e i n t h e p r e s e n t environment.
T h e HCMP has p r o v i d e d Hawaii w i t h new a n d decent correctional facilities
t h a t p r o v i d e f o r b e t t e r inmate c o n t r o l by s e p a r a t i n g t h e population i n t o
smaller g r o u p s a n d t h a t can f a c i l i t a t e a w i d e r v a r i e t y o f programs t o keep i n mates b u s y a n d o u t o f t r o u b l e .
T h i s alone is a major accomplishment.
U n f o r t u n a t e l y , t h e u n a n t i c i p a t e d o v e r c r o w d i n g o f c o r r e c t i o n a l facilities a n d
inadequate s t a f f i n g have impeded p r o g r a m implementation i n t h e facilities.
If
t h e o v e r c r o w d i n g a n d s t a f f i n g problems can b e moderately controlled, t h e r e is
g r e a t p o t e n t i a l f o r i m p r o v i n g p r i s o n conditions, p r o v i d e d t h a t a p r o g r a m implementation p l a n is developed a n d followed, a n d leadership is p r e s e n t .
T h e HCMP, l i k e most master plans, is b r o a d a n d conceptual, a n d
r e q u i r e s f u r t h e r specifications f o r action o n an operational level. T h e Hawaii
Pre-Design was p r i m a r i l y an a r c h i t e c t u a l r a t h e r t h a n operational implement a t i o n plan; t h e Peat, Marwick, Mitchell a n d Company a n d A r t h u r Young and
Company r e p o r t s w e r e p r i m a r i l y concerned w i t h organizational s t r u c t u r e ; and
t h e r e was no f o l l o w - u p on t h e SLEPA standards a n d goals r e p o r t . Without a
f u n c t i o n a l a n d implementation plan, it is unclear as t o (11 what t h e roles and
responsibilities o f each criminal j u s t i c e agency a r e u n d e r t h e new centralized
system; (2) w h a t agency actions a r e necessary t o implement t h e HCMP; a n d
(3) t h e n a t u r e a n d e x t e n t o f r e q u i r e d communication a n d i n t e r a c t i o n between
agencies.
T h i s has r e s u l t e d i n a c o n s t a n t b a t t l e among t h e criminal justice
agencies o v e r t h e i r roles i n areas t h a t overlap, a n d t h e l e g i s l a t u r e has been
w i t h o u t a framework u p o n w h i c h t o enact a p p r o p r i a t e legislation a n d t o allocate f u n d s .
T h e f a i l u r e o f t h e HCMP is also d u e t o t h e absence o f commitment b y
criminal j u s t i c e agencies t o accept a n d implement i t s coordinated approach t o
offender treatment.
Consequently, t h e concept o f a u n i f i e d criminal justice
system w i t h a c e n t r a l i n t a k e a n d diagnosis process has n o t been implemented.
T h e reason f o r t h i s f a i l i n g is d u e t o problems in a d m i n i s t r a t i v e implementation
r a t h e r t h a n i n t h e law o r t h e HCMP i t s e l f . A c t 179, Session Laws o f Hawaii
1973, is s u f f i c i e n t l y b r o a d t o allow t h e ISC t o t a k e c h a r g e and proceed w i t h
t h e implementation o f t h e c e n t r a l i n t a k e process b u t a coordinated implement a t i o n p l a n was n e v e r developed.
Even w i t h t h e d u a l designation o f respons i b i l i t y by t h e ISC a n d J u d i c i a r y f o r pre-sentence investigations, a timely
implementation p l a n c o u l d have c l a r i f i e d t h e r e l a t i o n s h i p between t h e ISC a n d
J u d i c i a r y r e g a r d i n g t h i s f u n c t i o n . A b s e n t a coordinated plan, t h e ISC a n d
t h e C o r r e c t i o n s Division, t h e p r i m a r y implementing agencies, proceeded t o implement t h e HCMP f r o m t h e i r own independent p e r s p e c t i v e s . T h e ISC n e v e r
assumed a c o o r d i n a t i n g role since it d i d n o t believe it h a d clear s t a t u t o r y
a u t h o r i t y t o d o so. Accordingly, o t h e r j u s t i c e agencies c o n t i n u e d t o operate
as t h e y did in t h e p a s t . When t h e ISC f i n a l l y attempted t o become t h e s y s -
tems coordinator, d i f f e r e n c e s emerged r e g a r d i n g t h e p r o p e r r o l e o f t h e i S C
a n d t h e o t h e r agencies would n o t recognize t h e ISC as t h e i r c o o r d i n a t o r .
S t r a i n e d relationships t h a t developed o v e r t h e p a s t f i v e y e a r s indicate
t h a t v o l u n t a r y cooperation w i t h t h e ISC is d i f f i c u l t t o o b t a i n .
Even if A c t
179 w e r e amended t o specifically o r d e r t h e c r i m i n a l j u s t i c e agencies t o
cooperate w i t h t h e ISC, t h e r e c o u l d b e some problems c o n c e r n i n g t h e cons t i t u t i o n a l separation o f powers since t h e criminal j u s t i c e system is composed
o f agencies f r o m d i f f e r e n t b r a n c h e s o f g o v e r n m e n t .
T h e agencies a r e
r e q u i r e d t o assume a d v e r s a r i a l roles a t times a n d i n d e p e n d e n t decision-making
by each agency is essential f o r t h e p r e s e r v a t i o n o f j u s t i c e .
Yet, a c e r t a i n
amount of dependency i s r e q u i r e d among t h e agencies f o r t h e s h a r i n g o f i n formation a n d coordination o f actions i n o r d e r t o make t h e a p p r o p r i a t e
decisions.
R e q u i r i n g cooperation by coercion i n such a u n i q u e system is n o t t h e
a p p r o p r i a t e answer. T h e HCMP recognized t h i s and was premised on a s p i r i t
o f v o l u n t a r y cooperation among t h e agencies. T h e o n l y way t o achieve t h i s
t o d a y is to, i n effect, b e g i n all o v e r again. Too much time has passed since
t h e adoption o f t h e HCMP a n d consequently i t s purposes a n d goals a r e vague
t o many people. A f t e r e i g h t y e a r s o f t r e a d i n g water, it is e v i d e n t t h a t t h e
HCMP r e q u i r e s modification i n o r d e r t o accommodate changed a t t i t u d e s a n d t o
p r o v i d e a new d i r e c t i o n f o r c o r r e c t i o n s . T h e r e is an u r g e n c y f o r t h e f o r mulation o f a new i n t e g r a t e d c o r r e c t i o n a l p o l i c y t h a t is r e f l e c t i v e o f today's
d i f f e r i n g criminal j u s t i c e needs b u t f o u n d e d o n a u n i f i e d system's goal f o r
o f f e n d e r treatment.
T h e B u r e a u ' s recommendations a r e p r i m a r i l y based on i t s
assessment o f w h a t t h e consensus opinion was o f t h e many e x p e r t s i n t e r viewed as t o t h e problems w i t h t h e HCMP implementation a n d t h e c o r r e c t i v e
actions r e q u i r e d t o resolve such problems.
Recommendations
(1)
While t h e B u r e a u believes t h a t t h e HCMP concept o f a u n i f i e d
criminal j u s t i c e system is sound, i t does n o t believe t h a t t h e approach advocated by t h e HCMP o f h a v i n g t h e ISC as t h e systems c o o r d i n a t o r is viable
since t h e r e i s too much resistance f r o m criminal j u s t i c e agencies t o accept t h e
ISC i n t h a t c a p a c i t y .
A c c o r d i n g l y , t h e concept o f c e n t r a l intake, as it
relates t o a coordinated flow o f o f f e n d e r processing, should b e retained as a
goal of t h e HCMP b u t t h e r o l e o f t h e ISC s h o u l d b e r e d e f i n e d t o t h a t of an
information f a c i l i t a t o r f o r t h e Corrections D i v i s i o n a n d Hawaii Paroling
Authority.
T h e ISC s h o u l d p r o v i d e information t o f a c i l i t a t e assessment,
diagnosis, a n d classification f o r t h e C o r r e c t i o n s D i v i s i o n a n d Hawaii Paroling
A u t h o r i t y , a n d s h o u l d s e r v e as t h e information c o o r d i n a t o r f o r t h e c o r r e c tional agencies u n d e r DSSH, n o t as t h e criminal j u s t i c e system c o o r d i n a t o r .
T h e Bureau agrees w i t h t h e assertion i n t h e A r t h u r Young R e p o r t t h a t t h e
d e g r e e o f effectiveness between t h e ISC a n d CCC personnel may make t h e
d i f f e r e n c e between success o r f a i l u r e o f t h e correctional system. T h u s , t h e
ISC's e f f o r t s should b e r e d i r e c t e d t o w a r d t h i s e n d . T h e e f f o r t b y t h e DSSH
O f f e n d e r Base A p p l i c a t i o n T r a n s f e r S t u d y G r o u p discussed i n C h a p t e r 5 is an
optimistic indication t h a t a coordinated implementation p l a n among corrections
agencies can b e realized.
C O N C L U S I O N S A N D RECOMMENDATIONS
(2)
Since p r e - t r i a l detainees a r e t e c h n i c a l l y presumed innocent u n t i l
p r o v e n g u i l t y , t h e y s h o u l d b e d i f f e r e n t i a t e d f r o m t h e sentenced popuiation,
b u t accorded t h e same o p p o r t u n i t i e s f o r c o u n s e l i n g s e r v i c e s a n d p r o g r a m s .
A c c o r d i n g l y , t h e ISC s h o u l d maintain t h e r e s p o n s i b i l i t y f o r p r e - t r i a l d i v e r s i o n
p r o c e s s i n g a n d f o r p r o v i d i n g p r o g r a m s a n d s e r v i c e s f o r p r e - t r i a l detainees.
T h e Corrections Division should continue t o p r o v i d e custodial care f o r p r e t r i a l detainees since t h e ISC does n o t h a v e a d e t e n t i o n f a c i l i t y o r s e c u r i t y
staff.
(3)
Most p e r s o n s i n t e r v i e w e d have a g r e e d t h a t w h i l e it is t h e o r e t i c a l l y
ideal t o h a v e one agency p e r f o r m all d i a g n o s t i c a n d p r o g r a m p r e s c r i p t i o n w o r k
f o r t h e c r i m i n a l j u s t i c e system, i t does n o t m a t t e r who does t h e w o r k as i o n g
as t h e i n f o r m a t ~ o n i s o b j e c t i v e a n d a c u r a t e .
It is i m p o r t a n t t o t h e c e n t r a l
i n t a k e concept, however, t h a t i n f o r m a t i o n b e s h a r e d among t h e agencies on a
formal a n d c o n s i s t e n t basis.
Moreover, t h e B u r e a u believes t h a t t h e HCMP
n e v e r i n t e n d e d t h a t t h e ISC h a d t o p e r f o r m all p r e - s e n t e n c e i n v e s t i g a t i o n s i n
o r d e r t o achieve t h e c e n t r a l i n t a k e concept.
Accordingly, t h e pre-sentence
i n v e s t i g a t i o n f u n c t i o n s h o u l d remain w i t h t h e J u d i c i a r y , b u t t h e r e must b e a
mechanism f o r t h e e x c h a n g e o f i n f o r m a t i o n between t h e ISC a n d t h e J u d i c i a r y
on r e p o r t s made on o f f e n d e r s t o maintain t h e c e n t r a l i n t a k e concept and t o
eliminate, w h e r e possible, d u p l i c a t i o n of e f f o r t .
(4)
While t h e B u r e a u is recommending a c o o r d i n a t e d implementation p l a n
among c o r r e c t i o n s agencies i t believes t h a t a c r i m i n a l j u s t i c e system p e r s p e c t i v e must b e integrated i n t o such a plan.
A c c o r d i n g l y , it is recommended
t h a t t h e l e g i s l a t u r e a p p o i n t a n A d rioc Committee t o develop c o r r e c t i o n s s t a n d a r d s a n d goals f o r a d o p t i o n b y t h e i e g i s l a t u r e as s t a t e policies.' T h e A d Hoc
Committee s h o u l d b e composed o f r e p r e s e n t a t i v e s of t h e c r i m i n a l j u s t i c e
agencies, t h e l e g i s l a t u r e , p r i v a t e social s e r v i c e agencies, a n d p u b l i c c i t i z e n s .
T h e Committee s h o u l d d e f i n e t h e roles of each c r i m i n a l j u s t i c e agency i n im-.
p l e m e n t i n g s t a t e c o r r e c t i o n a l policies; a n d e s t a b l i s h s t a n d a r d s a n d goals f o r
t h e c r i m i n a l j u s t i c e system t o r e f l e c t a u n i f i e d a n d c o o r d i n a t e d approach t o
corrections.
T h e Committee s h o u l d use as i t s base, t h e 1977 SLEPA r e p o r t e n t i t l e d
Hawaii C r i m i n a l J u s t i c e S t a n d a r d s a n d Goals:
A d u l t C o r r e c t i o n s ' a n d make
necessary m o d i f i c a t i o n s .
T h e r e s u l t o f t h e Committee's w o r k u p o n adoption
by t h e l e g i s l a t u r e w o u l d s e r v e as t h e State's policies f o r c o r r e c t i o n s .
It
s h o u l d s e r v e as a f r a m e w o r k b y w h i c h t h e l e g i s l a t u r e a n d t h e G o v e r n o r can
c o n t r o l c o r r e c t i o n a l p i a n n i n g f o r Hawaii.
T h e Committee's r e v i e w s h o u l d i n c l u d e b u t n o t be l i m i t e d to:
(A)
A r t i c u l a t i o n o f t h e p h i l o s o p h y a n d goal o f c o r r e c t i o n s ;
(B)
Establishment o f policies f o r s e n t e n c i n g a n d p a r o l e t h a t a r e
c o n s i s t e n t w i t h t h e goal o f c o r r e c t i o n s ;
(C)
Estabiishment o f policies f o r a comprehensive o f f e n d e r ciass i f i c a t i o n system a n d f o r t h e placement o f o f f e n d e r s i n facilities
a n d release p r o g r a m s ;
Establishment o f policies
residential programs;
for
the
use
Establishment o f policies f o r inmate care,
grams i n correctional facilities;
of
community-based
treatment,
and pro-
Establishment o f policies f o r a centralized information system
affecting corrections;
Establishment o f a requirement f o r t h e submission o f impact
statements t o t h e legislature f o r proposals a f f e c t i n g t h e flow o f
inmates i n c o r r e c t i o n a l facilities a n d t h e a v a i l a b i l i t y o f c o r r e c t i o n a l a n d f i s c a l resources o f t h e State; a n d
S u g g e s t e d l e g i s l a t i o n t o i m p l e m e n t t h e s t a n d a r d s a n d g o a l s est a b l i s h e d by t h e C o m m i t t e e .
-
F o l l o w i n q t h e l e g i s l a t i v e a d o p t i o n o f s t a n d a r d s a n d aoals f o r
c o r r e c t i o n s , t h e Correction;
Division,
t h e ISC, a n d t h e H a w a i i P a r o l i n g
A u t h o r i t y s h o u l d b e d i r e c t e d t o develop a f u n c t i o n a l a n d implementation p l a n
f o r t h e HCMP i n a c c o r d a n c e w i t h t h e p o l i c i e s a r t i c u l a t e d i n t h e s t a n d a r d s a n d
goals.
I n d e v e l o p i n g t h e p l a n t h e HCMP p h i l o s o p h y o f c o r r e c t i o n s s h o u l d b e
rearticulated t o appropriately reflect t h e philosophy o f t h e standards and
goals a n d t h e changes t o t h e conceptual approach o f t h e HCMP.
Those
a s p e c t s o f t h e HCMP t h a t a r e s t i l l i n c o n s o n a n c e w i t h t h e s t a n d a r d s a n d goals
s h o u l d b e o u t l i n e d a n d u s e d as t h e b a s i s f o r t h e f u n c t i o n a l a n d i m p l e m e n t a t i o n
p l a n . As a s t a r t i n g point f o r t h e development of details f o r t h e plan, t h e
agencies s h o u l d r e v i e w a n d evaluate t h e ISC's l o n g - r a n g e p l a n a n d t h e
C o r r e c t i o n s D i v i s i o n ' s p r o g r a m implementation p l a n w i t h a v i e w t o w a r d coord i n a t i o n a n d a p p l i c a b i l i t y t o t h e c o r r e c t i o n s s t a n d a r d s a n d goals.
(6)
I n a r e p o r t t o t h e Western G o v e r n o r ' s Conference,'
it was emp h a t i c a l l y s t a t e d t h a t t h e G o v e r n o r , as t h e h i g h e s t e l e c t e d s t a t e o f f i c i a l , m u s t
assume a l e a d e r s h i p r o l e i n e s t a b l i s h i n g a u n i f i e d c r i m i n a l j u s t i c e s y s t e m s
r e s p o n s e t o c o r r e c t i o n s . W i t h o u t a c o m m i t m e n t f r o m t h e G o v e r n o r , "it i s u n l i k e l y t h a t t h e issues will receive t h e attention t h e y w a r r a n t , o r t h a t t h e f u l l
range o f criminal justice actors will participate i n addressing corrections
policy."
T h e B u r e a u believes t h a t t h i s is especially t r u e f o r Hawaii's criminal
j u s t i c e s y s t e m w h e r e l e a d e r s h i p has b e e n l a c k i n g f o r m a n y y e a r s d u e t o t h e
u n s u c c e s s f u l i m p l e m e n t a t i o n o f t h e I S C as t h e s y s t e m s c o o r d i n a t o r .
T h e r e f o r e , it i s recommended t h a t r e s p o n s i b i l i t y f o r t h e m o n i t o r i n g o f
t h e n e w c o r r e c t i o n a l m a s t e r p l a n a n d s t a n d a r d s a n d goals b e v e s t e d i n t h e
Governor.
T h e I S C p o l i c y b o a r d i s s t i l l r e g a r d e d by a g e n c i e s as a p o l i c y
b o a r d f o r I S C o p e r a t i o n s o n l y , a n d n o t as a c r i m i n a l j u s t i c e s y s t e m f o r u m .
A c c o r d i n g l y , t h e B u r e a u recommends t h a t t h e I S C p o l i c y b o a r d b e a b o l i s h e d
a n d a new Corrections
A d v i s o r y B o a r d t o t h e G o v e r n o r , composed o f t h e
h e a d s o f c r i m i n a l j u s t i c e agencies, b e c r e a t e d i n i t s p l a c e .
The Advisory
B o a r d w o u l d s e r v e as a f o r u m f o r a d d r e s s i n g s y s t e m s c o o r d i n a t i o n p r o b l e m s
t h a t would affect correctional policy.
I t would b e responsible f o r evaluating
t h e HC?+lP i m p l e m e n t a t i o n , u p d a t i n g t h e c o r r e c t i o n s s t a n d a r d s a n d goals t o
k e e p p a c e w i t h c h a n g e s t h a t o c c u r i n t h e S t a t e , a n d m a k i n g recommendations
f o r iegislative action r e q u i r e d .
CONCLUSIONS A N D RECOMMENDATIONS
T h e G o v e r n o r has a l r e a d y proceeded i n t h i s d i r e c t i o n w i t h t h e c r e a t i o n
o f t h e r e c e n t Conference on C r i m e p l a n n e d by t h e G o v e r n o r ' s C r i m i n a l J u s t i c e
P l a n n i n g Committee.
T h e B u r e a u believes t h a t a f l a w i n t h e HCMP was t h e
p r o p o s a l o f a " s u p e r a g e n c y " as t h e o v e r s e e r o f t h e c r i m i n a l j u s t i c e system.
A s such, a c r i m i n a l j u s t i c e f o r u m s u c h as t h e Conference on C r i m e w h i c h can
a s s i s t t h e G o v e r n o r t o d i r e c t c o r r e c t i o n a l p o l i c y t h r o u g h l e g i s l a t i v e proposals
m i g h t b e more p r o d u c t i v e i n d e a l i n g w i t h c o n f l i c t i n g actions a n d desires o f
Hawaii's c r i m i n a l j u s t i c e agencies since it rises above j u r i s d i c t i o n a l l i m i t s .
FOOTNOTES
Chapter 2
1964 Haw. Sess. Laws, k t 52, Item 8-6-C
1965 Haw. Sess. Laws, P.cr 195, Item L-i
The custody and treatment fijcility Would
provide small residential units with counselors
in such units for ready accessibility to
inmates. Religious traiaing, academic aiid
vocation education programs, on-the-job
training programs through the correcrional
industries program, recreation and leisure
time activities would be provided through a
complex of program facilities consisting of
an auditorium, gymnasium, o w n recreation
yards, and a swimming pool. The Olinda and
Kulani conearvation camps would be maintained to play an important role in the plan
since it was anticipated char approximtely
twenty per cent of the inmate population
could be placed in such camps. Additionally,
the plan proposed the establishment of
conditional release centers, the first of
which would be lecated at the vacant stateowned Xawaii State Prison Superintendent's
residence and operable in 1968. Hawaii,
Department of Social Services, Corrections
Divisim, Xzuzi<'e 28ig?, :OF .+ozec$<c?
(Bonalulu: 1966).
19.
1970 Hac. Sess. Laws, Act 179.
20.
The plac proposed a correctional system
consisting a i (1) honor caaps; (2) ccrmmiiy
centers such as conditional release centers,
pre-parole centers, and camunity treatment
caters; ( 3 ) a> Adtilt Correctional Training
Facility for chase in need a: firm controls
while undergoing s;ecieiized training and
guidance (facility to be composed of an
Adjasrment CenLe;, 1io;atian Center, and
Training and Educarian Program Center); (4)
a men's correctional facility providing for
medium security confinement between iiirioughn
for employment, edwation, and re-socialization
and recreation (institutional care provided
in facility whi:e the training would be iron
the cornunity resaorces); ( 5 ) a women's
correctional unit cornparable to the men's
unit; snd (6) a community correctional
center which would be the replacement of the
county jails and wculd be used Lor pre-trial
detention and far se-tenced nisdemeananrs
and felons on probation who are required t o
spend some time in detention as a condition
of probation. Xawaii, Department of Social
Services, "isport m . R . .To. 76, iQ62,
Requaazirg DSS SSts .W'reser.i Correc%cr.s "aster
I t a z (Honolulu: 1969).
Hawaii, Special Consnittee Report 40. 11 re:
Improvement of Hawaii's Corrections System,
Fifth Legislature, 1970, March 23, 1979.
House Standing Comirteit Report So. i29 o n
H.R. So. 75, Fifth Legislature, 1969, State
of Hawaii, p. 3.
Testimony by Eimoet A. Cahill, Executive
Director o f the John Howard Association of
Hawaii and by John 3 . Blayioch, Chief of the
Mental Health Team for Courts and Corrections
on H.R. No. 75, April 7, 1969.
1970 Saw. Sees. Laws, Acr 179.
House Standing Committee aeport Xa. 429, ?p.
4-6.
National Council on Crime and Delinquency,
o
m i m i : X Sxmea ct Zmrac:<srr?Z
Se~~-;'rce
ine 3mli<, 1969, p 7 . 7.10-7.20.
10.
Yatiocal Clearinghouse for Criminal Justice
?laming and Architecture, Coiversity of
Iilinois, Crbana, Il;inois, and State Law
Enforcement and Juvenile Delinquency Planning
Agcncy, Correct<mat !Xa.$?m F t m (Hcnciul:
hereinafter
1972), V o l . I, ;p. 1.!4-1.15,
. . ";a;er
referred to as ;crr.i?::aiw,
Ph.
11.
12.
The Ad Xoc Com;nit:ee =hick * a s originally
rstabii~ied by the Joint Legislative inrerim
rrpresmtatiues
Commirtre was expanded :a i;cl;dt
iiam concerned agencies such as rte courts.
Corrseeioirc: .':sa%r .Xm, Voi. 1,
1.5.
13.
14. 3 X . pp. 7.50-7.51
15.
--*,. , pp.
-iil
.
5.27-5.29
16.
17.
re.
. ..
*or:., pp. 5.03-5.07,
7.21-7.36
~,
- -
!!crc..kr:< Sfm-Sil:crir, March 17, 1972. See
also Special Comirtee Report Y o . 2, 1973,
House Interim Comirtee an the Correctional
Vaster Plan.
19. ;hid.,
Act 179, Session Laws of Hawaii l9i3, provided:
(1) in section 32 that no additional general
funds wiil be appropriated during the 1973i s biennium; (2) in Section 33 that no
agency or deparcmeac would be required to
provide services or create facilities not
provided for by, or in existence prior to,
the Act until appropriated by the Legislature;
and (3) that the Legielature is not obligated
to make such appropriarions. See also
: ? o n o t ~ ZStar-huZLe:in,
~~
April 11, 1973.
Planning Design Institure of the University
of Illinois, P c t i S B e - i e s i g n (Illinois:
1974).
Chapter 3
Vol. L, pp. 4.147-L.:56
20.
- - 5 2 . , pp. 4.135-4.188
22.
;kid.,
pp. 91-92
Chapter 4
1. Xational Clearinghouse for Criminal Suetice
Planning and Architecture, Cniversity of
Illinoie, Grbana, Illinois and State Law
Enforcement and Juvenile Delinquency Planniag
Agency, CmreationoZ a s t e r Xan (Xonolulu:
1972). Vol. 1, p. 1.74, hereinafter referred
to as 7 c r r e c S i s r . d .Vaster Fim..
2.
i t i d . , Vol. 3, pp. 3.26-3.21
liational Clearinghouse for Criminal Justice
Planning and Architecture, University of
Illinois, Urbana, Illinois, and State Law
Enforcement aud Juvenile Delinquency Planning
Agency, CorractLor&l Master ?ian (Honolulu:
1972), Vol. 1, p. 1.15, Vol. 4, p. 4.3,
hereinafter referred r o a s Correcticr.aZ
vaster PZan.
6. I k i d . , Executive Summary, pp. 89-90.
:bid.,
7.
Vol. I, pp. i-ii.
Pianning Destgn Institute of the Cnivereity
of Illinois, EmaCi P r e - % s i p (Illinois:
1974), pp. 38-40, hereinafFer referred to as
,?mai< Pre-Desi,cn; C o : . r e c t ~ o x ~Msscer
~
PZavi,
Planning Design Institute of the Lniversity
of Illinois, ,Ymni'; ?re-Ceaigx (Illinois:
1914). p?. is-18, hereinafter zeferred to as
Bcdcii Pre-Cesigx.
8. .%id.,
9.
pp. 26-28.
Correct-lonst Master P h n , Vol. 4 , p. 4.5.
C O T ~ ~ ~ C ?.betar
$ ~ O Mi'ian,
~
Vol. 4 , pp. 4.1594.178.
10. B i d . , p. 4.8.
Ibid., pp. 4.116-4.117.
11.
I E d . , p. 4.10.
:b;d.,
pp. 4.118-4.120.
12.
;bid.,
;bid.,
pp. 4.130-4.137.
13.
I b i d . , p. 4.11.
I b i d . . pp. 4.138-4.142.
14.
ibid.
:bid.,
pp. 4.59, 4.143.
15. Zbid.
r o i.a.. ,
pp. 4.34-4.1i3.
16.
.-
&id.,
p. 4.11-4.14.
vol. 3, p. 3.1.
17. EmzZL Zra-&aign,
18.
pp. 38-40.
Ibis., p. 3 ; .
19, I b i d . , pp. 37-38,
23.
:hid.,
21.
Correc$iarat :#aszer ?;an, Voi. 3, p . 3.71.
22. ;bid.,
pp. 65, 181.
p. 3.62.
23. ;bid., pp. 3.75-3.79.
pp. 162, 169; C0rrec:ior~:
!4ilsier F h r , V c l . 5, pp. 5.15-5.19.
flai<
3w-;es<p,
Chapter 5
HmaZi ?re-Jesigr, p. 65.
Ibid.
1.
Ibid.
Correctiomt Master Pian. Vol. 3. pp. 3.633.70.
Three hundred twenty-two residents for the
OCCC and 72 for the ISC, Hawaii Be-Design,
pp. 215-217.
Correctionat : k s t e r P Z m , Vol. 3, p. 3.84.
Ibid.
,%id.,
p. 3.85.
H a w a i i ?re-Design, p. 20.
2. The total package cost estimated by the
H a w a i i Br-Desigr. report was $25 million,
but $11 million of that amount was for
projected operating costa which the report
indicated would be about the same as would
be required to operate the old system.
Planning Design Institute of the University
of Illinaie, H m i i Pre-Design (Illinois:
1974), pp. 235, 248, hereinafter referred to
a s Hawaii Pre-Design.
3.
The authors of the HCW contended rhat full
implementation of the construction of facilities
may not be required depending on the successfulness of diverting offenders from incarceration
through alternative programs. Homlutt
Star-BuZZetin, March 21, 1974. The Hauati
Pre-Design stated that facility capacity was
"considered in relationship to projected
populations which are based on the maximum
use of alternatives to incaceration" and
acknowledged that a drastic increase in
facilities would be required if alternatives
did not materialize. .Yc;nii P n - D c s i g x ,
pp. 99-92.
4.
The H a w a i i Be-Desigir recommended rhat the
Ibid.
I b i d . , p. 31.
I b i d . , pp. 31-33.
I b i d . , pp. 18, 33-35.
I b i d . , p. 33.
Correctiomt Masker ?inn. Vol. 4, pp. 4.804.113.
Correctionai hhster PZan. Val. 4, pp. 4.804.113.
H a w a i i ?re-Design, p. 67.
The planned bed capacities for the neighbor
island CCC'8 were as follows: Hawaii 20.
Naui 20. and Quai 14. H a w a i i Prs-Design.
p. 235.
H a w a i i Pre-Design. pp. 182-183.
Bid.
B i d . , p. 63; Correetioml ~UxsterPlan, Vol.
4., pp. 4.44-4.45.
H a w a i i Pre-Design, pp. 63-64; CorrectiomZ
Master P Z m , Vol. 4, pp. 4.55-4.56.
CorrectiorwZ Master PLan, Vol. 4 , pp. 4.52.
4.57.
I M d . , p. 4.48.
Ikid..
pp. 4.153-4.154.
Ibid., p. 4.156.
H m i i Pre-Design, p. 64.
The Maui County Jail was the first to be
transferred effecrive July 4, 1974. Xalawa
was transferred effective June I, 1975;
Hawaii County Jail on July 1, 1975; and
Kauai County Jail on June 20, 1977.
OCCCIISC ccmplex be constructed in phases.
The recommended plan called for construction
in four phases ( 1 ) construction of four
residential and program modules containing
130 rooms; (2) construecion of four modules
containing the central kitchen and 96 rooms;
(3) demolition of cellblock and old prison
administrative building; constrvction of
eight modules for the ISC administration and
program space; construction of two modules
for recreation and three modules for maintenance
and rehabilitation program areas; and (4)
construction of four OCCC residential modules
for 96 residents.
Option A reversed she order of phases two
and three. The reason Option A was chosen
wae due to limited capital funds in the
future. Since the ISC was considered the
most critical component for diverting the
inmate population from the facilities, it
wan hoped that early implementation of phaee
three would ease che pressure on the institutional
Capacity. This opcion, however, provided
problem in the relocation of the offender
population during the conetruction. Inmates
in the cellblock would not have new modules
to move into with the constructon of p h s e
three first and the cellblock demo:ition
would have to be postponed. 2 ~ u s : i weDesign, pp.103-127.
There were approximately $8 million in sfate
funds and $6 million in federal funds available.
.YomluZu Star-E'iilietir., December 10, 1975.
18.
Honolulu S t a r - B u l l e t i n , December 10, 1975;
.Yonolu?u A h e r t i s e r , January 30, 1976. See
also, Xmiciulu C t a r - b a l l e t i n , March 3, 1975.
19. For more detail, see Hawaii, Intake Service
Center Advisory Board, Intake Service Center
Evaluation Report (Honolulu: 1980).
The John Howard Aseociation, Hawaii Council
of the National Council on Crime and Delinquency
and the Hawaii Correctional Association
protested the Governor's appropriation
request at legislative hearings. The groups
alleged that too much emphasis in the HCMP
implementation was being placed on the
~onstr~ction
of facilitiee and little has
been done toward the development of c o m n i t y based programs which wavld divert offendere
from incarcerarion. With an inmate population
explosion occurring nationwide. Hawaii's
master plan faclities would soon be inadequate
without the alternative programs. Therefore,
the groups opposed the appropriation until
the administration could demonstrate a
commitment to implementing non-institutional
programs. Honolulu S t m - B u l l e t i n , February 10,
1975; H G ~ : Y Z U Advertiser, March 17, 1976.
1976 Haw. Sess. Laws, Act 226.
The residency modules at the Oahu CCC were
n o t ready for occupancy vntil early 1980
because beds for the new modules did not
arrive from the mainland on time.
The inmate headcount at the end of each
fiscal year was as follows: FY 75-76 476;
PI 76-77 - 505; FY 77-78 -547; FY 78-79 699; FY 79-80 - 782; and FY 80-81 - 945.
! ! i i ) : e c i C~-rr.-~-.l.m~l
In<onjr:x and
.,
...
3:aL>St1;5,
Intake
S V I Y I C C Cezrer .;?:,iz!.
. .
.
. .
-. , . 2 . : : . : . :2:::: ,2:, :.:.vi I. '. . . ~ .1.) . .
-
.
..
Hawaii, Intake Service Center Advisory
Board, Intake Service Center Evolaation
Report (Honolulu: 1980), pp. 25-27.
Hawaii, Department of Social Services and
Housing, The Offender Base Application
Transfer Study Group, A Mamgement and
?tanning Cocment for a Centrai Offender
I n f o m t i o n System (Honolulu: 1981), hereinafter referred to as The Offender Base
Application Transfer Stvdy Group.
S t a t e of H w i i Department of Social Services
and ilousing, Annuol Report 2980 (Honolulu:
19801, p. 14.
Halawa'si population on June 30, 1979 was 147
(120 not-sentenced, 8 misdemeanant~,and 41
felons). On June 30, 1980 the headcount was
94 with 50 not-sentenced, 3 misdemeanants,
and 41 felons. Thus, Halawa has been slowly
achieving its goal of housing only the
maximum security long-term felons.
The not-sentenced residents are not classified
although the H M P intended that pre-trial
residents be classified by the ISC for
security and programming purposes, the ISC
has not yet developed a classification
System.
The neighbor island CCCs have only one
control station for both module and facility
security so it is enclosed and secure from
the program area. Halawa being the maximum
security facility has module control stations
that provide maximum security far the ACOs
while still facilitating zone observation
and communication with inmates.
Hoxolulu Star-Bulletin, April 27, 1978.
The Annex, consisting of five buildings (one
administrative building and four dormitories)
with an inmate capacity of 80, was constructed
for interim housing of pre-trial inmates.
Halawa was being converted to a maximum
security facility and a reduction of space
dme to construction plus an increased pretrial population necessitated additional
facilities. H o ~ Z u l uStar-BulZetin, July 6,
1978.
Peat, Marwick, Mitchell 6 Co., CorrectionaZ
Master P k n : ISC Organieatiori S t r u c t u r e and
A s s q t - L o n s (Honolulu: 1976).
Peat, Marwiek, Mitchell 6; Co.. C o r r e c t i o m l
M ~ B C ~PZax:
F
ISC Inf0rrm:ion System Require- m t a d Eeaign tConcepts (Honolulu: 1976).
Arthur Young 6 Company, F i n d Repcrt cn the
Organizatiom; k w l y s i a of the Corrections
E u i s i o n and irs F a c i l i t i e s (Honolulu:
1976).
Inrake Service Center Staff Development and
Training Committee, Intro&ction t o i n t a k e
S e m i c e Cezter (Honolulu: 1979).
1981 Haw. Sess. Laws, Act 1, First Special
Sessia;..
The Offender Base Application Study Group,
Appendix C-21-23.
aid.
In a report by the ISC, Haui CCC averaged
156.6 days in the time served by not sentenced
felons while the other neighbor island CCCs
average detention time was between 30 to 40
days. See Hawaii, Intake Service Centers,
Department of Social Services and Housing,
Time Served: Sentenced rmd Ron-sentenced
Misdemeanante md Felons, FY 1378-i979,
Report No. 80-010, August 29, 1980.
The Kamehameha center orginally began in
1971 as the Adult Furlough Center but was
changed to e second conditional release
center when it was found that the automatic
placement of pre-parolees in a minimum
security setting was not working out.
See Hawaii, University, Social Welfare
House 1 6 11, Report No. 157; Hawaii, The
Citizens Corrections Inspection Cornittee,
Inspection of the C o m i t y Center Bmnch
the *%o Comditioral Relealrs Centers
(Honolulu: 1977); Hawaii, L'niveraity, Youth
Dara provide* by OCIS
Data provided by OCI5
Chapter 6
U.S. Deparment of Justice, National Institute
of Justice, American .2risona ard Jai:~,
x,*l;pa.,,e I: S u m ~ a r yand Poilcg Irpiiiaciars
ci a Nationa: Survey ilhshington: 1980).
C. 1 2 , hereinafter referred to as A-ar5ci.n
rrisons m d JciZs.
"American Prisons: No Vacancy", S t a t e
G m e m n t >em, July 1981, p. 4.
Hawaii Criminal Justice Statistical Analysis
Cenier, lorparaei;i Crlme Trends, C m t s sf
ficdc.'-. ",. i.570-i97Y (Honolulu: 1981), p. 7.
1976 Haw. Sess. Laws, Act 161.
.Hm. Rev.
Szat.,
sec.
706-660.1.
Class A felonies include murder, kidzapping,
firsr degree rape, first degree sodomy,
first degree robbery, first degree promtion
of dangerous drugs, first degree promotion
of harmful drug, criainal coercion involving
dangerous weapons, and extorrion involving
dangerous weapons. Class B felonies include
first degree assault, second degree promotion
of dangerous drugs, and first degree burglary
&2., s e t . 706-606.5(1).
Class B felonies include second degree rape,
manslaughter, second degree sodomy, first
degree promotion of child abuse, first
degree extortion, first degree criminal
properry damage, second degree robbery,
first degree escape, intimidation of correctional worker, intimidation of juror and
first degree promotion of prostitution.
Class C feloniep include second degree
burglary, first degree theft, ownership or
pcssessicn of firearm 0; amnunirion by
persons convicted of certain crimes; c m r r skip of prohibitel weapons, offenses relating
to permit. t o carry, negligeat homicide,
second degree assaul:, first degree reckless
ecdangering, first degree uniawfsl imprisonlent,
firsr degree terroristic threatening, third
degree rape, first degree sexual abuse,
incest, second degree pramorion of child
abuse, second degree rxtartios, and intimidas e c . 706-606.5(2).
tion of a witnees. .?id.,
-.
.'
.c%a.,
ssc.
i12-1200(L)(b).
-. . .
:czc.,
pet.
706-659.
The re2cris are (1) U.S. Department of
Justice, Law Enforcement Assistance Administ-iatian,Office of Audit and Investigation,
hd:5 0
: -311: .? ?;BCP.~:C?%?>
$ra%~_"
?5? Z&
: ~ h w n t 2 : i o ~ 5f the 3rree:L;riL
%m:er
S h r . ir :he S t a t e sf .Mi?-%ail, A ~ d i tReport
No. GR-90-79-Oil (Sacramento: 1979); (2)
Hawaii, Deparrment of Social Services and
Housing, Intake Service Center Advisory
Board, .-r.:a>a S r m t c e Cenrsr o'.v'alscr:ioh
.%par"Hcnolulu:
1980); and (3) Hawaii,
State Law Enforcement Planning Agency,
Progress and Assessment Report of the Havaii
State Correctional ?laster Plan (Honolulu:
1980).
Hawaii, State Law Enforcement and Juvenile
Delinquency Planning Agency, .?xdaii ,&i.-niraZ
& s t i c e Stan&rds ,r.d &ale: Adu2: :orrecLiczs
(Honclulu: 19773.
i t t s . , p. 1.
iiawaii Criminal Justice and Statistical
Analysis Center, X d r i i t L r r e s i Piqmsi:'rons
i n Urnail, Sqtember i, i W S - Xugust 31,
I960 (Honolulu: 1981), pp. 15 and 17.
. -
Leah Bruer, ."he S t r a s a e s i-.S m t e :crrecizom..
.sdz(or
issues -r":
3^-n;
.r,rectiozs, Preliminary Report to the Western
Governors' Conference, The Council of State
Governments (San Francisco: 1981). p . 62.
.
',str,qs:
.".
/LCeriozfi .'risons ard Jcils, Sol. I, p. i23.
:bid.,
Vol. I , p. 27.
Chapter 7
Leah Brumer, :he S m s e a r ~ir: Stcze 2 r r e e l t ; m :
!l;j;r ; ~ 8 l i a c ;G ? ~ % e r z i a l ?o:jcl
$>stem:
.
~ r r e c $ i c n r ,Preliminary Report io the Kearrm
Governor's Conference, Tte Council of Stare
Governmests (San Francisco: 19%).
.
Appendix A
DESCRIPTION OF ADULT
JUSTICE SYSTEM
Overview
Misdemeanor Offender Flow. A n adult arrested
for a misdemeanor is processed a t the, police
department. After completion of processing, he
is released on bail pursuant to a bail schedule
previously approved by the District Court.
If
the arrestee is unable to post b a l , he is held a t
the police department until the date of arraignment.
Arraignment of a misdemeanant nccurs a t
the District Court within 24 hours after his arrest. At the arraignment, the defendant is advised
of his constitutiocal rights, formally charged
with the commission of criminal offense(s) and is
asked to plead to same.
J'
I
In the event the defendant pleads "nut
guilty" to the crime charged, his case is set for
trial, without jury, on a given date and time in
the District Court. If the defendant requests a
jury trial, the case is removed to the Circuit
Court for trial. Subsequent to a "not guilty"
plea, a defendant not already on bail may request
a (1)release on recognizance (ROR) or 12) reduction
in the amount of bail set on the hail schedule. If
such requests are granted, the defendant is then
released until the date of trial. In the event
that the request, is not granted, the defendant
will be held in custody at the Halawa Jail until
the dateoftrial.
CRIMINAL JUSTICE SYSTEM
misdemeanor offender flow (does not assume change of plwl
From:
Correctional Master Plan Sumnary, pp. 14-16
-61 -
A defendant entering a guilty plea a t Arraignment in the District Court is usually sentenced a t
that time. The sentencing alternatives available
to the district court judges are (1) incarceration
a t the Halawa jail, (2) fine, (3) community altematives, (4) supervision (probation), ( 5 ) suspended sentence, or (6) any combination of the foyegolng. In
the event a pre-sentence report is des~redby the
district judge, sentencing is deferred until a
later date and the district court counselor is r e
quested to prepare a pre-sentence report.
At
the future date of sentencing, the same sentencing
alternatives listed above would be available to the
District Court judge.
Misdemeanor cases may also be dismissed
by the prosecuting attorney a t the arraignment if,
among other reasons, the prosecutor, after reviewing the case, feels that the evidence is insufficient to support the charge against the defendant.
Trials of adult misdemeanor cases may be
held in the District Court, without jury, or in
the Circuit Court with a jury. A case may be
dismissed by the prosecuting attorney at any time
until the defendant is convicted.
A defendant who is acquitted in either the
District or Circuit Court is released.
A convi&d defendant in either the Circuit or District
Court may appeal his case directly to the Hawaii
Supreme Court.
A convicted defendant, in both courts, is
usually sentenced immediately after ccmpletion
of the trial. The six dispositional alternatives
listed above are available to the judges. I n the
event that a presentence report is requested by
the judge, the date of sentencing is deferred until
the district murt coiinselor or Adult Probation
Division of the Circuit Court can prepare such
reports. Again, the same six sentencing alternatives, indicated above, would be available a t the
time of sentencing.
A misdemeanant sentenced to incarceration
is sent to the jail and released after serving out
the duration of his sentence. An adult misdemeanant may also be sentenced to a "recessed sentence," i.e., incarceration a t the jail or cell
block during certain hours while continuing his
regular employment.
A misdemeanant sentenced to supervision
(probation) is provided professional counseling
and, after completing the duration of his supervision (probation), is released.
Felony Offender Flow. An adult arrested for
a felony is processed a t the police department.
Immediately after completion of police p r o
cessing. the offender is taken to the District
Court for an initial arraignment.
J
CRIMINAL JUSTICE SYSTEM
felony offender flow (does not assume change of plea)
-62-
At the initial arraignment in the District
Court, the defendant is informed of his constitutional rights by the District Court Judge, including the defendant's right to a court appointed
attorney. A date for a preliminary hearing and
the amount of the defendant's bail are also
resolved a t the initial arraignment.
After the initial arraignment, a defendant
able to post bail is released until the date of preliminary hearing. A defendant unable to post
bail is taken to jail wherefrom a request for
"release on recognizance (ROR)" may be made
to the Circuit Court through the Adult Probation
Division of the Circuit Court. The Adult Probation Division will investigate and prepare an
"ROR" recommendation for the Circuit Court
judge. If the defendant is not granted " R O R
he is held in custody.
If granted an "ROR':
he is released until the date of the preliminary
hearing.
The preliminary hearing is held a t the Diat r i d Court by a District Court judge to ascertain,
among other things, whether there is probable
cause to indicate that ( 1 ) a crime has been committed, and (2) the defendant has committed the
crime. Upon a ruling by the judge that there is
no proven probable cause, the defendant is r e
leased; however, he is still subject, though r e
leased, to an indictment by the Grand Jury. If the
judge rules that probable cause has been proven
by the prosecutor, the defendant's case is turned
over to the Grand Jury for a formal indictment.
The Grand Jury may return a "no bill"
on a defendant in which even: no charges are
lodged against him. In the event that a "true
bill" is returned, however, the defendant's case
is set for arraignment (formal reading of charge
against the defendant) and plea in the Circuit
Court.
At the C i r c ~ i t Court's arraignment and
plea, the case of a defendant who enters a plea
of "not guilty" is set for trial.
An offender
who pleads "guilty" has his case set for
sentencing and a request for a presentence
report is made to the Adult Probation Division
of the Circuit Court.
At the Circuit Court trial for the defendant,
the defendant may be acqpitted and released. A
convicted defendant may, though rarely practiced,
be sentenced immediately after trial, in which
event the following dispositional alternatives are
available to the Circuit Court judge:
Incarceration
Fine
Community Alternatives
Probation
Suspended Sentence
Any
combination
of
the
foregoing.
A defendant who is sentenced to be incarcerated is sent to the Hawaii State Prison's
Diagnostic Center for examinations after comple
tion of which he is (1) released from Hawaii State
Prison or assigned to the (2) Hawaii State Prison.
(3) Kulani or Olinda Honor Camps, (4j Conditional
Release Center, or 5) Adult Furlough Center.
An incarcerated defendant is released after
sewing the duration of his sentence. He may also
be placed on parole after a parole hearing and
be released after serving out the duration of
his parole. A parolee who violates the terms of
his parole may, after a revocation hearing, have
his parole ( I ) continued, or ( 2 ) revoked and the
offender reinstitutionalized.
*
Appendix 6
Adult I n t a k e Service Flow. An adult arrested
for a misdemeanor would be booked and processed at the police department, and if unable to
post bail, he would be transferred to the Intake
Service Center until arraignment in the District
Court.
Anaignment would follow as soon as
possible, but no mote than 24 hours after the
arrest.
During the process, the offender is
screened for eligibility to appropriate other p r e
trial dispositions, with recommendations being so
made to the judiciary.
Similarly, an adult who is arrested for a
felony and who, before and after initial arraignment in the District Court, is unable to post bail
or obtain release on own recognizance, would
then be admitted to the Intake Sen-ice Center for
pretrial screening and appropriate recommendations.
The adult inrake assessment and rehabilitation process is shown below. The procedure is
basically similar to the process described for
juveniles. It involves the foliowing components,
the exact combination of which would var.v according to the specific needs of the individual.
Processing for the post-arrest begins with
the consideration of diversion st the street
level and proceeds to the consideration of
diversion a t initial intake. For those individuals who are subsequently processed, it
includes: humane approaches t, prisoner
handling, the keeping of necessary. records,
efficient and sanitary processing, medical
examinations, and individual interviewrig
that attempts to humanize the entire
process.
0 lntakestaffhgshould besufficienttopre
vent the use of holding rooms for periods in
excess of two hours.
0 The intake receiving process should be
located within the security perimeter, with
adequate physical separation from other
portions of the Intake Service Center.
Such receiving areas should be also separate from the discharge process.
0 Consideration of sanitary conditions within
the Intake Senice Center requires that intake processing include a hot water shower
with soap, the option of clothing issue, and
proper checking and storage of personal
effects. Throughout the intake process, the
dignity of the indii-idual should be preserved.
0 A11 personal property and clothing taken
from the individual upon admission must be
recorded and stored, with a receipt to the
prisoner. The Intake Service Center carries the responsibility for the safekeeping
of such effects until the time of their reissue to the owner.
From:
Correctional Master P l a n Summary,
pp. 33-35.
Proper record keeping in the inbike process
necessary in the interest of both the individual and the criminal justice system.
Records should include: name and vital
statistics; personal, social, and occupational history; names and addresses of relatives or other persons who are expected to
visit or to correspond; ordinary identity
data; results of the initial medical exammation; results of initial assessment; and
evaluation interview. Emphasis should be
directed to individualizing the recordtaking
operation, since it is an imposition upon the
innocent and it represents a component of
the correctional process for the guilty.
0 Each individual is to be interviewed by a
counselor, social worker, or other staff
member as soon as possible after being r e
ceived. The purpose of this interview is
crisis intervention so that the arrest of the
offender will cause only a s much disrup
tion to his daily life and the affairs of his
family a s is necessary.
0 A thorough medical examination of every
~rocessed individual is to be made by a
physician. It is mandatory that the decision
of the physician be followed in all matters
pertaining to the health of the prisoner.
0 Immediately after being booked, the offender should be given the opportunity to make
a reasonable number of telephone calls to
individuals of his choosing.
i6
ADULT INTAKE ASSESSMENT A N D EVALUATION PROCESS
CRIMINAL JUSTICE SYSTEM STATE OF HAWAII
felony offender flow - proposed correctional delivery system
The adult Intake Service Center has objectives
that are consistent with those of the juvenile center, but they require less modification within the
criminal justice system. The function of the Intake S e ~ c eCenter is, of course, removal of
individuals fiom the purview of the criminal justice system and the determination of what resources ought to be directed to a given individual.
This is predicated on a n effective screening process. The Intake Service Center combines diagnostic and classification activities with the
screening function.
Pre-trial releases will be
directed from the Intake Service Center, and all
pre-sentence diagnostic work will take place
there. Similarly, the diagnostic and classification services for the entire state correctional
system will be camed out in the individual
counties a t each Intake Service Center in a
County. The Intake Service Center will automatically receive all those to be considered
for mnfinement and must immediately screen
out those for whom it is unnecessary. The Intake Service Center .will also serve some of the
functions of the crisis intervention center. Typ
i d l y , individuals brought to local correctional
facilities come with unresolved problems that demand immediate attention. The screening process must deal with these problems.
The removal of a substantial body of inmates from local correctional institutions will
open the possibility for expanding the scope of
such institutions to include felons as well as misdemeanants. This will ultimately mean the return of inmates in the large State Prison to
their communities, prior to their release.
It
will facilitate the coordination at the Intake Service Center of the gradual reintegration of the
offender into his community.
In addition, the Intake Service Center becomes the coordinating point for the various correctional services now based in the community.
This involves the development of a ckassification
committee that meets in each Intake Service Center and includes not only staff and professionals
from the Center but also parole and probation
officers, representatives from volunteer groups
fe-g., Alcoholics Anonymous), and the supervisors
of relevant government agencies. In this way.
the various individuals and organizations working
with the individual inmate can make joint decisions and meet as a p u p with the inmate.
Appendix C
PRESENT CORRECTIONAL ORGANIZATION
Department of Social Senrlces
-
Board of
Paroles and
Pardons
L
-
w
Dlvislon of Corrections
Appendix D
State of Hawaii
Department of Social Services and Housing
Corrections Division
Comparison of Inmate Population (Headcount) to Bedspace
As of November 1, 1981
Facility
-
Bedspace Capacity
Permanent
Temporary
Total
(Headcount)
Current Population
Percentage of Population to BedPermanent
Total
HSF
KCF
CRCs
HCCC
MCCC
KCCC
OCCC
Total
558
-
330
-
888
-
1036
Average
185.7%
116.7%
m
7
Comparison of Projected Inmate Population (Headcount) to Bedspace
As of January, 1985
Facilit~
Bedspace Capacity
Permanent
Temporary
Total
-
(Headcount)
Projected Population
Percentage of Population to Bedspace
Permanent
Total
-
HSF
KCF
CRCs
HCCC
MCCC
KCCC
OCCC
Total
Average
255.8%
Appendix E
SUMMARY O F POTM'TIAL ISC FUNCTIONS
Function
Admhitntiun
Cumntly P a i a m b
Similar Functiom
Activities
MF'REHENS1ON PHASE
Policc-ISC Coordination
Communicate regularly with police
administration. staff and oflicern;
communicate with ISC booking and
intake staff; mmmunicatc with
prosecutor, public defender and
court.
T o mist police in developing poticier and procedures which result in
maximwn wreenine from detention utd
smooth flow of information and case).
New
R m p t i o n and Registration
Tckphonc answering, sallyport
admirsion, walk-in referrals. gate
wcurity, greet, log. Fingerprint.
photo, take identifying information.
check ID =cords.
T o receive all alleged offenders
a m i t e d and not xrcened by p o k e .
T o receive walkin referrals off the
slrcct. T o assure identity and regib
tmtion of all who, enter system.
Police
lait
Coordinate Legal Reprerntation
Notify public defender and prosecutor; provide interview space;
make client available.
T o m r e immediate protection of
kp+l rights and immediate protection of wmmunily.
Intake Screening
Intake interview: information veri.
fication. Consult with public
ddendcr, prosecutor and police.
T o make decision regarding custody.
Interview offender, family. employer,
etc. Consult with needed mmmunity
alternative agencies; naluate; m n suit with p r ~ c u t o rand delcnder.
To assin opportunity for nhabilitr
tion whenever appropriate. T o assure
w u r t apperancc.
Raecutnr
Defenm
Court
Bail, ROR
CoUect data, r o n data shcck.
receive bail funds and provide input for the determination of bail,
ROR.
T o assure w u l appearance
Jail
Probation
Court
PreTrial Report
Intake investigation and a w e s m a t .
Match nteds with progam alternatives. Consult with courts.
To a s u n w u l appearance.
program hencfita.
%Trial
Arnnge and/or proride for public
transportation; mange program
enrollment.
T o facilitate RIUX
Admission to Custody
Check property
Shower
Clothing issue, medical exam
R w m anigqent.
T o provide anitary, r c u r e custody for
thox requiring it.
Residential C u e
Program Planning
R o g s m planning and mnsultation
with institutions.
PRGTRIAL PHASE
Rclcasc Arrangements
To assure
Effective use of time in prelrU
custody.
New
New
Function
AdmKib8tbn
Cunenlly Performing
S i i l u Functio~
Activities
Referral to Community Rograms
CaU wmmunity agencies re: health.
financial assistance, housing,
family counseling, etc.
T o assist offender in gaining access
to needed resources.
Probation
ReTrial Supervision
Set terms and conditions; provide
counseling; monitor pmgnss in programs; reprogram; maintain wntact.
DAG supervision.
T o assure w u r t appearance. To matre
law-abiding behavior and benefits from
programs.
Probation
DAG Report
Investigation of offender, interview offender, family, employer;
consult with prorecutor, defender,
judge.
T o assure offender will exhibit law
abiding behavior and exit from criminal
justice system.
Probation
Re-Sentence Investigation
a. Short
b. Comprehensive
Interviews with alleged offender,
police, witnesses, family, employer,
physician, psychiatrist, etc.
Analyze data, develop plan and
write report.
T o develop a rehabilitation plan.
Probation
ReSentence Reoort to Court
Appear in wurt and present report.
To assist w u r t in making weU informed
case dispositions.
Robation
Diagnosis and Security
Classification of Inmates
Review case data; discuss with residential administrators; participation classification decision.
To assure appropriate degra of
Institution1
Rogram Committee,
Periodic Review,
Reclassiiication of lnmates
Review case data; discus with residential administrators; puticipaLion classification decision.
To assure realistic program services
PreParole Nearing and Reports
Institutional progress m i e w ;
asses available community
resources: develop needed case
resources; write report and recommendations. Appear at pre-parole
hearing and present report.
T o assure offender i$ prepared for
r e l u x and that revrurccr u e available to proridc needed support lor
succm upon rclcw. To assist
Parole Board in making case d i s w
sitions.
Parole
Parole Supervision
Provide counseling; seek needed
resources; advocate for opportunities; verify adjustment.
T o a m r e law abiding behavior after
release from residential care.
P~role
Parule Condition Enforcement
Place into custody when neceuary;
notify Parole Board of violation;
review case with Parole Board;
make recommendations to Parole
Board.
T o mist Parok Board in d b o d t i o n
of p u o k violators.
Parole
Probation Supervision
Individual o r group inBrviews with
offender, spouse, employer, etc.
T o improve offender self undcn(.ndiv
of behavior and t o mist obtainin8
a c m to opportunities for lcgitimatc
Probation*
PRESENTENCE PHASE
security during incarceration.
N
to the offender for return to w m munity a for relcase.
w
SUCCCU.
6
a
P
Mminbtniion
C m n t l y PaIonoix
S i L r Functions
Function
Probation Condition Enforcement
Place offender into custody when
necessary; notify murt of violations; review case with judge;
make recommendations to court.
T o assist court in dispoltion of
probation violations.
Assignment 10 Community
Rognms
Match ofknder's needs with availabk programs; mange program o r
pmgram sequence; perform period&
evaluation of offender in program;
reprogram.
T o assure the availability of r p p m
priatc community resources to meet
offender's needs.
New
Medical Service
Direct medical service; refer for
hospital care; direct psychiatric
evaluation, counseling and drug
therapy; refer for mental hospital
care; direct dental service.
To assure timely, profcsuional, medical, psychiatric, and dental care
for institutional residents.
Hulth
Menlal Health
Management Information System
Set UD uniform data e a t h e ~ e
procedures; gather da& cent&y;
evaluate data; plan and implement
research; develop reports.
T o naris1 management in naluatins
program wstcffectivcnns, loads,
staff and resourut alloutions. T o
monitor offender status m d progres.
New
Community Program
Dcvcloprncnt &
Contract Monitoring
Seek service vendors; develop contract,; process contracts for s@nature; monitor services; evaluate
reports; coordinate with community
services.
T o assun needed a c m c n arc dnelopcd
m d appropriately contrtcted for and
lo assure contract conditions are met.
New
Follow-up Case Evaluation
lntcniew ex offender, family,
employer, etc.
T o n a l u a t t program effectiven*u
New
Budget, Accounting.
Gather dala, iorccssl needs; budget
present budget request; monitor
expenditures.
T o budget for mticipated 1% program
and contract needs and to m u r e
spending within budget.
New
Personnel Services and
Staff Training
Perform personnel acrviccs for
employca; provide materials,
programs, methods for in-service
naining of staff.
T o tnure employee wdl-being; t o
w u n adequate levels of staff
proliciency .
New
1SC Administration
Overall planning, supervising, waluating, budgeting, and coordinating.
To assure attainment of objective and
cost effective operation of ISC and
to coordinate ils functioning with
related criminal justice and human
xrvice functions.
New
Probation*
MMINISTRA'ITVE SUPPORT
& Forecasting
*Will remain with Robonon in forercabk future: ISC may partic$ote where necessary
Appendix
F
RECOMMENDED ISC/CCC FUNCTIONAL ASSIGNMENTS
FUNCTION DESCRIPTION
EXHIBIT I
Page 1 of 2
RESPONSIBLE
ORGANIZATION
Coordinate with police and judiciary to
develop criteria for field or station
release of offenders.
Rqceive custody of offender from police
agency which will include: initial search
and confiscation of property and money,
booking or registration, shower, institutional clothing issue, offender
clothing storage, photographing and
fingerprinting.
CCC
Custody responsibility during intake
processing holding.
CCC
Security responsibility for any movement
of offender during the intake process.
CCC
Initial interview of offender to determine
eligibility for pre-trial release or
diversion. Includes generation and processing of all related paperwork.
ISC
Maintenance of basic offender records
(via MIS).
ISC
Responsibility for offender on pre-trial
release status.
Provide reports to the judiciary for pretrial appearances.
Participate in housing decision for pretrial offenders not eligible for pretrial release.
ISC/CCC/
HSF
Security responsibility for offenders
housed in modules or holding facility.
CCC
Develop community-based post-trial/postsentenced program resources (includes
eligibility criteria).
Develop in-facility recreational (keep-busy)
programs for pre-trial and sentenced offenders.
CCC
Develop in-facil~typast-trial/post-sentenced
rehabilitative programs.
-72-
ISC/CCC
EXHIBIT I
Page 2 of 2
RECOMMENDED ISC/CCC FUNCTIONAL ASSIGNMENTS (CONT.)
RESPONSIBLE
ORGANIZATION
FUNCTION DESCRIPTION
Provide in-facility personal counseling
crises intervention services to all
short-term pre-trial offenders.
-
ISC
Conduct and supervise in-facility recreation
programs for all short-term pre-trial offenders.
ISC
Provide in-facility personal counseling
and recreation programs for all long-term
pre-trial, and sentenced offenders.
CCC
Participate in making housing decisions for
sentenced offenders.
ISC/CCC/
HSF
Provide diagnostic services (interviews, testing, etc.) to long-term pre-trial, and
sentenced offenders.
ISC
Develop individual rehabilitative programs for
each long-term pre-trial, and sentenced offender
based qn diagnostic work-up, prior record, and
other historical/personal information gathered.
ISC
Evaluate rehabilitative program effectiveness.
ISC
Supervise the work release program.
CCC
Provide input data to the MIS relative to
long-term pre-trial, and sentenced offender
program participation and overall behavior.
CCC
Provide referrals to community services for
short-term pre-trial offenders who are
released at this point in the criminal justice
system.
ISC
Provide references to community services for
long-term pre-trial and sentenced offenders
as they are released.
CCC
Appendix
G
RESOURCE PERSONS
Clarence Andrade, Administrator
Hawaii Cornunity Correctional Center
Me: Ando, Administrator
Laumaka Conditional Release Center
Lester Cingcade
Administrative Director of the Courts
Conroy Chow, Administrator
Office of Correctional Information
and Statistics
Intake Service Center
John Hamano, Acting Administrator
Oahu Intake Service Center
(previously Administrator of the Oahu
Central Intake Section which handles the
Thomas Nakama, Director-Administrator
Probation and Family Court
Second Circuit
Jay Nakasone, Administrator
Maui Intake Service Center
William Oku, Administrator
Marc Oley, Police Planning Specialist
State Law Enforcement and Planning Agency
Masaru Oshiro
(formerly Administrator of the Oahu
Community Correctional Center and the
Oahu Intake Servige Center)
Ted Sakai. Administrator
Program Planning Officer
Sherwood Hara, Director-Administrator
Family and Aduit Probation Services
Fifth Circuit
Halo Hirose, Administrator
Adult Probation Division
First Circuit
Herbert Honda, Chairman
House Cormiztee on Corrections
and Rehabilltation
Dan Shoenbacker, Chairman
Intake Service Center Board
Edwin Shimoda, Acting Administrator
Oahu Community Correctional Center
(formerly Program Control Administrator,
OCCC)
Larry Shohet, Program Administrator
John Smythe, Administrator
Irwin Tanaka, Director
State Law Enforcement and Planning Agency
Walter Ikeda
(formerly deputy attorney general
assigned to SLEPA during the master
plan development; also assisted SLEPA
in the compilation of the 1980 progress
and assessment report on the master
plan)
Michael Kakesako, Administrator
Robert Kita, Probation Supervisor
famliy and Probation Services
Third Circuit
3onaid Xobataxe, Admlnrstrator
Hawail Intake Servlce Center
Kazuni Kobayashi, Adninistrator
Maui Cornunity Correctio~alCenter
Thomas Kurosaki, Administrator
Kauai Ictake Service Center
Warren MatsuZa, Correctional Counselor
Hawall Comanity Correctional Center
Howard W ~ r a i , Acting Administrator
Condltianal Release Branch
Corrections Civision
(forceriy Adxinlstrator of the
Kaxehsmeha Conditional Release Center?
Kendrick Wong, Executive Director
Intake Service Centers
(formerly the Corrections Specialist with
SLEPA involved in the master plan development)
Appendix H
(To l
a. made one 211d trn ropics)
H O U S E OF KEPKESEXI'ATIVES
ELEV.ENTH.LEGISLATUKE, 19...81
REQUESTING A REVIEW OF THE HAWAII CORRECTIONAL MASTER PLAN.
WHEREAS, the rehabilitation and incarceration of persons
convicted of crimes are of the utmost importance to the judiciary
system and to the welfare of the people of this State and the
Hawaii Correctional ha. er Plan which was authorized nearly nine
years ago was to provide for a comprehensive master plan for corrections with an emphasis on rehabilitation, reintegratiun, and
community corrections; and
WHEREAS, the recession + n the State's economy since the
passage of the Hawaii ~oriectionalMaster Plan has resulted in fewer
funds for human services, and the construct:on of new facilities for
imprisonment has depleted funds allocated for the Hawaii correctional
Master Plan; and
WHEREAS, the fundamental assumptions on which the Master Plan
were based may no longer be sound, the basic philosophies of
Correction are changing with more emphasis on incarceration, as the
planned use of facilities such as halfway houses, intake service
centers, and community correctional centers is not working;
WHEREAS, the Master Plan is faced with problems of implementation due to unforeseen lack of funding, and this lack of financial
sources undermines the facilities and programs envisioned by the
Plan; and
WHEREAS, while correctional facilities are set up to secure
the confinement of certain offenders and to provide decent living
quarters for such confinement, and the quality of prison security,
living conditions Of inmates, and reintegration are dependent on
the number of inmates in the facility, such facilities today are
overcrowded and do not meet the purposes for which they are set
up; and
WHEREAS, House Resolution No. 2.80 was passed i , ~1978 requesting
the Dean and certain faculty Of the University of Hawaii Law School
to establish a task force to study these problems, and this study
these pro',lems, and this study is not being done; now, therefore,
Page
2
-
I. 11. E.
2
BE IT RESOLVED by the House of Representatives of the
Eleventh Legislature of the State of Hawaii, Regular Session
of 1981, that the Office of the Legislative Reference Bu-eau
study and reevaluate the Hawaii Correctional Master Plan,
including the Plan's underlying philosophy or conceptual approach,
in terms of the Plan's effectiveness in meeting problems and
in presenting solutions under current and,future conditions in the
corrections field and in view of changing community attitudes and
laws on sentencing of offenders, the availability of facilities
both now and in the future, and the funding which may reasonably
be expected, make recoi, ~ndationsthereon, including recommended
amendments or changes to the Plan itself; and
BE IT FURTHER RESOLVED that the study shall also include but
not be li-;ted to, an identification of those components of the
Hawaii Correctional Master Plan which have not been fully, or
only partially implemented and a determination of the impact of
those components in the Master Plan which were not fully or only
partially implemented, and the cost effectiveness of pursuing a
philosophy of incarceration as a major response in combating
crime; and
BE IT FURTHER RESOLVED that the corrections division of
the Department of Social Services and Housing, the Judiciary
and other agencies involved in corrections cooperate with the
Legislative Reference Bureau on this study; and
BE IT FURTHER RESOLVED that the Office of the Legislative
Reference Bureau complete its study and submit its findings and
recommendations to the Legislature prior to the opening of the
Regular Session of 1982; and
BE IT FURTHER RESOLVED that certified copies of this
Resolution be transmitted to the Office of the Legislative
Reference Bureau, Director of Social Services, and the Chief
Justice of the Supreme Court.
1979
1981
I. (;i.iiciir 1)i-iig S i i l ~ s i i i i i t i o i i :Fca\il)iiity So[: 1i;i.rs;iii.2 0 ! ,1
2. c
i I
1 1 i i I ' i
i t t i : \ Sir-;iic:! lor- I ' ~ i p u l : ~ i i o(;~-:).ivtii
~i
3. I . : q t ~ i l i i ! (;I Kiglirs - Si;tiiitor\ i : o i i i p I i : ~ i i ( 7:'.ij.
~~~.
Hawaii Legislators' Handbook. Seventh Edition. 117 p, $3.50
(:iiiiirijI.
~JI,

No. 1, 1982 - Hawaii Legislative Reference Bureau

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