JOINING FORCES? POTENTIAL CONSOLIDATION OF STATE …

JOINING FORCES? POTENTIAL CONSOLIDATION OF STATE LAW ENFORCEMENT DUTIES IN HAWAII

Primary Researcher:

WAYNE SCOTT

Research Attorney Supervising Researcher:

JOHNNY BRANNON

Research Attorney

Report No. 1, 2019

Legislative Reference Bureau State Capitol Honolulu, Hawaii

This report has been cataloged as follows:

Scott, Wayne + Brannon, Johnny Joining forces? Potential consolidation of state law enforcement duties in Hawaii.

Honolulu, HI: Legislative Reference Bureau, January 2019.

1. Law enforcement ? Hawaii. 2. Executive departments ? Hawaii. KFH421.5 L35 A25 19-1

FOREWORD

This report was prepared by the Legislative Reference Bureau ("Bureau") pursuant to Act 124, Session Laws of Hawaii 2018, which directed the Bureau to conduct a study examining the consolidation of law enforcement activities and responsibilities that are currently divided among various state divisions and agencies.

The Bureau requested information from various potentially affected state agencies and departments, as well as the Department of Budget and Finance and the Department of Human Resources Development. The Bureau extends its appreciation to the many entities that generously provided information and assistance in the preparation of this report.

January 2019

Charlotte A. Carter-Yamauchi Director

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ENTITY ACRONYMS

AG B&F BREG Bureau DAGS DCCA DHRD DHS DLNR DOCARE

DOD DOH DOT DOTAX DOTH HICAC

IFIB

INS INVO

MFCU

NED

OCP PSD RICO

SD SEB

USDOJ

Department of the Attorney General Department of Budget and Finance Department of Commerce and Consumer Affairs, Business Registration Division Legislative Reference Bureau Department of Accounting and General Services Department of Commerce and Consumer Affairs Department of Human Resources Development Department of Human Services Department of Land and Natural Resources Department of Land and Natural Resources, Division of Conservation and Resources Enforcement Department of Defense Department of Health Department of Transportation Department of Taxation Department of Transportation, Harbors Division Department of the Attorney General, Hawaii Internet Crimes Against Children Task Force Department of Commerce and Consumer Affairs, Insurance Division, Insurance Fraud Investigation Branch Department of Commerce and Consumer Affairs, Insurance Division Department of Human Services, Benefit, Employment and Support Services Division, Investigations Office Department of the Attorney General, Criminal Justice Division, Medicaid Fraud Control Unit Department of Public Safety, Law Enforcement Division, Narcotics Enforcement Division Department of Commerce and Consumer Affairs, Office of Consumer Protection Department of Public Safety Department of Commerce and Consumer Affairs, Regulated Industries Complaints Office Department of Public Safety, Law Enforcement Division, Sheriffs Division Department of Commerce and Consumer Affairs, Business Registration Division, Securities Enforcement Branch United States Department of Justice

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Table of Contents

Page

FOREWORD ......................................................................................................................... iii

ENTITY ACRONYMS ......................................................................................................... iv

EXECUTIVE SUMMARY ................................................................................................... ix

1. INTRODUCTION ..................................................................................................... 1

A. Background .................................................................................................... 1 B. Scope and Methodology ................................................................................ 1 C. Organization of the Report............................................................................. 3

Endnotes......................................................................................................... 4

2. POTENTIALLY AFFECTED AGENCIES AND DEPARTMENTS ...................... 6

A. Departments and Agencies Named in Act 124, Session Laws of Hawaii 2018 ................................................................ 6

1. Department of the Attorney General.................................................. 6 i. Investigations Division .......................................................... 6 ii. Criminal Justice Division, Medicaid Fraud Control Unit ...... 7 iii. Hawaii Internet Crimes Against Children Task Force........... 7

2. Department of Land and Natural Resources ...................................... 7 i. Division of Conservation and Resources Enforcement ......... 8

3. Department of Public Safety.............................................................. 8 i. Law Enforcement Division, Narcotics Enforcement Division .................................... 8

4. Department of Transportation............................................................ 8 i. Harbors Division .................................................................... 9

B. Departments and Agencies Not Named in Act 124, Session Laws of Hawaii 2018 ................................................................ 9

1. Department of Accounting and General Services, Stadium Authority ...................................................................... 9

2. Department of Commerce and Consumer Affairs ............................. 9 i. Business Registration Division, Securities Enforcement Branch ...................................... 10 ii. Office of Consumer Protection .............................................. 10 iii. Regulated Industries Complaints Office ................................ 10 iv. Insurance Division, Insurance Fraud Investigation Branch ... 10

3. Department of Human Services ......................................................... 11 i. Benefit, Employment and Support Services Division, Investigations Office ...................................................... 11

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4. Department of Public Safety.............................................................. 11 i. Law Enforcement Division, Sheriffs Division....................... 11

5. Department of Taxation ..................................................................... 12 i. Fraud Unit .............................................................................. 12 ii. Special Enforcement Section ................................................. 12 iii. Criminal Investigation Section .............................................. 12

6. Department of Transportation............................................................ 13 i. Airports Division ................................................................... 13 ii. Highways Division................................................................. 13 Endnotes............................................................................................. 13

3. POTENTIAL STRUCTURE OF CONSOLIDATION ............................................. 17

A. Opposing a Single, Centralized Law Enforcement Agency .......................... 17 B. Requesting Exclusion from Consolidation .................................................... 18 C. Structures of the New Agency ....................................................................... 19

1. Departmental Placement within the Department of the Attorney General and the Department of Public Safety............. 19

2. Organizational Structures Suggested by Executive Agencies ........... 19 3. Use of Specialized Units .................................................................... 20 D. Conclusion ..................................................................................................... 20 Endnotes......................................................................................................... 20

4. START-UP REQUIREMENTS AND TIMELINE ................................................... 23

A. Start-Up Requirements: Training, Equipment, and Facilities....................... 23 1. Education, Training, and Certification............................................... 23 2. Equipment and Supplies .................................................................... 24 3. Facilities ............................................................................................. 25 4. Miscellaneous Requirements ............................................................. 25 5. Transfer of Existing Supplies, Equipment, Facilities, Policies, Procedures, Personnel, and Agreements .................................... 26

B. Timeline for Start-Up..................................................................................... 27 C. Conclusion ..................................................................................................... 28

Endnotes......................................................................................................... 28

5. POTENTIAL OPERATING COSTS AND COST-SAVINGS ................................. 34

A. Costs............................................................................................................... 34 B. Cost Savings................................................................................................... 34 C. Potential Cost-Incurring Issues ...................................................................... 35 D. Conclusion ..................................................................................................... 35

Endnotes......................................................................................................... 36

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Page

6. LABOR, EMPLOYMENT, AND PERSONNEL ISSUES ....................................... 37

A. Position Descriptions and Collective Bargaining Units................................. 37 B. Effect on Collective Bargaining Agreements ................................................ 38 C. Other Personnel and Employment Issues ...................................................... 38

1. Administrative and Support Staff ...................................................... 38 2. Employees' Retirement System and Other Employee Programs ....... 39 D. Conclusion ..................................................................................................... 39 Endnotes......................................................................................................... 39

7. OPERATIONAL AND REGULATORY EFFICIENCIES....................................... 43

A. Efficiencies Achieved .................................................................................... 43 B. Efficiencies Lost ............................................................................................ 43

1. Loss of Specialized Knowledge and Mission .................................... 43 2. Other Efficiencies Lost ...................................................................... 44 C. Conclusion ..................................................................................................... 44 Endnotes......................................................................................................... 45

8. OTHER ISSUES ........................................................................................................ 47

A. Funding Issues ............................................................................................... 47 1. Funding Compliance .......................................................................... 47 2. Diversion of Funds............................................................................. 47

B. Overall Effect on the Responding Agency or Department ............................ 48 C. Physical Location of a New Agency.............................................................. 49 D. Diversity of Certification and Training Requirements .................................. 50 E. Non-Law Enforcement Activities .................................................................. 50 F. Conclusion ..................................................................................................... 51

Endnotes......................................................................................................... 51

9. FINDINGS AND RECOMMENDATIONS.............................................................. 56

A. Findings.......................................................................................................... 56 B. Recommendations.......................................................................................... 56

1. Goals of a Potential Law Enforcement Consolidation....................... 56 2. Scope of a Potential Law Enforcement Consolidation ...................... 57 3. Desired Levels of Standardization ..................................................... 57 Endnotes......................................................................................................... 58

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Appendices

A. Act 124, Session Laws of Hawaii 2018 ..................................................................... 61

B. Responses to Surveys Departments and Agencies Named in Act 124, Session Laws of Hawaii 2018 1. Department of the Attorney General Response to Survey............................. 65 2. Email sent from the First Deputy Attorney General to the Legislative Reference Bureau (Sept. 12, 2018) ....................................... 74 3. Department of the Attorney General Response to Survey, Part I, Question 1 Addendum................................................................... 76 4. Department of Land and Natural Resources, Division of Conservation and Resources Enforcement, Response to Survey ...................................................................................................... 113 5. Department of Public Safety, Law Enforcement Division, Narcotics Enforcement Division Response to Survey ............................. 119 6. Department of Transportation, Harbors Division Response to Survey ...................................................................................................... 127

Departments and Agencies Not Named in Act 124, Session Laws of Hawaii 2018

1. Department of Accounting and General Services Response to Survey ...................................................................................................... 134

2. Department of Accounting and General Services, Stadium Authority Response to Survey................................................... 142

3. Department of Budget and Finance Response to Survey............................... 151 4. Department of Commerce and Consumer Affairs Response to

Survey ...................................................................................................... 153 5. Department of Defense Response to Survey ................................................. 161 6. Department of Human Resources Development Response to

Survey ...................................................................................................... 165 7. Department of Human Services, Benefit, Employment and

Support Services Division, Investigations Office Response to Survey ...................................................................................................... 183 8. Department of Public Safety, Law Enforcement Division, Sheriffs Division Response to Survey ................................................................... 191 9. Department of Taxation Response to Survey ................................................ 198 10. Department of Transportation Response to Survey ....................................... 204 11. Email from the Department of Transportation, Highways Division Administrative Services Officer to the Legislative Reference Bureau (Sept. 5, 2018) ................................... 214

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