[House Hearing, 106 Congress]
[From the U.S. Government Publishing Office]
RESPONDING TO DRUG CHALLENGES IN HAWAII
=======================================================================
HEARING
before the
SUBCOMMITTEE ON CRIMINAL JUSTICE,
DRUG POLICY, AND HUMAN RESOURCES
of the
COMMITTEE ON
GOVERNMENT REFORM
HOUSE OF REPRESENTATIVES
ONE HUNDRED SIXTH CONGRESS
SECOND SESSION
__________
MARCH 20, 2000
__________
Serial No. 106-173
__________
Printed for the use of the Committee on Government Reform
Available via the World Wide Web: http://www.gpo.gov/congress/house
http://www.house.gov/reform
U.S. GOVERNMENT PRINTING OFFICE
68-506 WASHINGTON : 2001
_______________________________________________________________________
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COMMITTEE ON GOVERNMENT REFORM
DAN BURTON, Indiana, Chairman
BENJAMIN A. GILMAN, New York HENRY A. WAXMAN, California
CONSTANCE A. MORELLA, Maryland TOM LANTOS, California
CHRISTOPHER SHAYS, Connecticut ROBERT E. WISE, Jr., West Virginia
ILEANA ROS-LEHTINEN, Florida MAJOR R. OWENS, New York
JOHN M. McHUGH, New York EDOLPHUS TOWNS, New York
STEPHEN HORN, California PAUL E. KANJORSKI, Pennsylvania
JOHN L. MICA, Florida PATSY T. MINK, Hawaii
THOMAS M. DAVIS, Virginia CAROLYN B. MALONEY, New York
DAVID M. McINTOSH, Indiana ELEANOR HOLMES NORTON, Washington,
MARK E. SOUDER, Indiana DC
JOE SCARBOROUGH, Florida CHAKA FATTAH, Pennsylvania
STEVEN C. LaTOURETTE, Ohio ELIJAH E. CUMMINGS, Maryland
MARSHALL ``MARK'' SANFORD, South DENNIS J. KUCINICH, Ohio
Carolina ROD R. BLAGOJEVICH, Illinois
BOB BARR, Georgia DANNY K. DAVIS, Illinois
DAN MILLER, Florida JOHN F. TIERNEY, Massachusetts
ASA HUTCHINSON, Arkansas JIM TURNER, Texas
LEE TERRY, Nebraska THOMAS H. ALLEN, Maine
JUDY BIGGERT, Illinois HAROLD E. FORD, Jr., Tennessee
GREG WALDEN, Oregon JANICE D. SCHAKOWSKY, Illinois
DOUG OSE, California ------
PAUL RYAN, Wisconsin BERNARD SANDERS, Vermont
HELEN CHENOWETH-HAGE, Idaho (Independent)
DAVID VITTER, Louisiana
Kevin Binger, Staff Director
Daniel R. Moll, Deputy Staff Director
David A. Kass, Deputy Counsel and Parliamentarian
Lisa Smith Arafune, Chief Clerk
Phil Schiliro, Minority Staff Director
------
Subcommittee on Criminal Justice, Drug Policy, and Human Resources
JOHN L. MICA, Florida, Chairman
BOB BARR, Georgia PATSY T. MINK, Hawaii
BENJAMIN A. GILMAN, New York EDOLPHUS TOWNS, New York
CHRISTOPHER SHAYS, Connecticut ELIJAH E. CUMMINGS, Maryland
ILEANA ROS-LEHTINEN, Florida DENNIS J. KUCINICH, Ohio
MARK E. SOUDER, Indiana ROD R. BLAGOJEVICH, Illinois
STEVEN C. LaTOURETTE, Ohio JOHN F. TIERNEY, Massachusetts
ASA HUTCHINSON, Arkansas JIM TURNER, Texas
DOUG OSE, California JANICE D. SCHAKOWSKY, Illinois
DAVID VITTER, Louisiana
Ex Officio
DAN BURTON, Indiana HENRY A. WAXMAN, California
Sharon Pinkerton, Staff Director and Chief Counsel
Kevin Long, Professional Staff Member
Lisa Wandler, Clerk
Cherri Branson, Minority Counsel
C O N T E N T S
----------
Page
Hearing held on March 20, 2000................................... 1
Statement of:
Alm, Steven S., U.S. attorney................................ 6
Anderson, Dr. Bruce, director, State of Hawaii Department of
Education.................................................. 46
Aycox, Nat, Port Director, U.S. Customs Service.............. 80
Cunningham, Sara, Hawaii State Student Council............... 161
Dowsett, Major Susan, Narcotics/Vice Division, Honolulu
Police Department.......................................... 71
Hamamoto, Patricia, deputy superintendent, State of Hawaii
Department of Education.................................... 40
Leonhart, Michele M., Special Agent in Charge, Los Angeles
Field Division, Drug Enforcement Administration............ 86
Sakai, Ted, director, State of Hawaii Public Safety Deparment 74
Taketa, Chris, Hawaii State Student Council.................. 166
Tom, Randall, counterdrug coordinator, Hawaii National Guard. 99
Letters, statements, etc., submitted for the record by:
Alm, Steven S., U.S. attorney, prepared statement of......... 9
Anderson, Dr. Bruce, director, State of Hawaii Department of
Education, prepared statement of........................... 50
Aycox, Nat, Port Director, U.S. Customs Service, prepared
statement of............................................... 83
Cunningham, Sara, Hawaii State Student Council, prepared
statement of............................................... 164
Dowsett, Major Susan, Narcotics/Vice Division, Honolulu
Police Department, prepared statement of................... 72
LeMahieu, Paul G., Ph.D., superintendent od education, Hawaii
Department of Education, prepared statement of............. 43
Leonhart, Michele M., Special Agent in Charge, Los Angeles
Field Division, Drug Enforcement Administration, prepared
statement of............................................... 90
Mica, Hon. John L., a Representative in Congress from the
State of Florida, prepared statement of.................... 4
Mink, Hon. Patsy T., a Representative in Congress from the
State of Hawaii:
Information concerning drug articles..................... 111
Report from the National Guard........................... 131
Sakai, Ted, director, State of Hawaii Public Safety
Deparment, prepared statement of........................... 77
Taketa, Chris, Hawaii State Student Council, prepared
statement of............................................... 168
Tom, Randall, counterdrug coordinator, Hawaii National Guard. 102
RESPONDING TO DRUG CHALLENGES IN HAWAII
----------
MONDAY, MARCH 20, 2000
House of Representatives,
Subcommittee on Criminal Justice, Drug Policy, and
Human Resources,
Committee on Government Reform,
Honolulu, HI.
The subcommittee met, pursuant to notice, at 9 a.m., at the
Kupono Courtroom, 4th Floor, Federal Courthouse Building, 300
Ala Moana Boulevard, Honolulu, HI, Hon. John L. Mica (chairman
of the subcommittee) presiding.
Present: Representatives Mica and Mink.
Staff present: Sharon Pinkerton, staff director and chief
counsel; Lisa Wandler, clerk; and Cherri Branson, minority
counsel.
Mr. Mica. This hearing will come to order.
Our subcommittee is conducting this oversight field hearing
as part of our need to understand fully the Nation's drug
crisis, how it impacts different parts of our Nation, and what
effective drug-control efforts are under way and should be
fully supported. Today, we will learn about Federal, State, and
local efforts to respond to the drug challenges in Hawaii.
Since Hawaii is uniquely located and a destination which
attracts millions of people and goods, this State is a logical
transit point for illegal narcotics and has become one of our
most vulnerable and challenging regions in America for our law
enforcement officials.
We are privileged to have with us today a congressional
leader who strongly supports efforts to stop the flow of drugs
into the United States and to protect our communities from the
ravages they cause. I know that Mrs. Mink, the ranking member
who invited us to her congressional district here in beautiful
Honolulu, has been very active helping this region deal with
issues of drug prevention and treatment and national and
international drug control. I recognize that she is the
resident expert on the needs and concerns of citizens
throughout this area and an important force in fashioning
Federal, State, and local solutions.
I wish to thank all the participants for their presence
here today and for their dedication to this issue of critical
importance across America.
We are honored to have testifying before us today a number
of Federal, regional, and local officials who are engaged in
responding to the drug crisis and its terrible consequences.
These officials serve on the front line, apprehending and
prosecuting drug producers and traffickers, and counseling
those whose lives have been impacted by drugs and are in need
of our support and assistance.
This subcommittee is particularly interested in how
communities and regions are dealing with critical
responsibilities of successfully implementing our national, not
just Federal, drug control strategy. After all, most law
enforcement and treatment activities are primarily State and
local responsibilities. However, because of Hawaii's
geographical uniqueness, your community has special needs and
concerns, such as trade and transit issues. In Congress, we
want to ensure that the Federal Government is doing everything
possible to assist you, both in reducing the supply of drugs in
communities, as well as the demand for drugs.
At a recent hearing of this subcommittee, we learned that
estimates of Americans in need of drug treatment range from 4.4
to 8.9 million; yet less than 2 million people reportedly
receive treatment. This ``gap'' must be addressed. Our
subcommittee will continue its oversight in this area and seek
to improve our Federal programs that support State and local
drug treatment and prevention efforts.
Today, we are focusing on the special challenges and
threats facing Hawaii. Illegal drug production, use and
trafficking pose special dangers and challenges to communities
in Hawaii, to our schools, to our law enforcement officials,
and to your health care system.
Since Hawaii is in the middle of the Pacific, this region
continues to be a primary transit point for illegal drugs
entering this country and transiting between the continental
United States and Asia. And since Honolulu is a financial
center for the Pacific Rim, this area is probably vulnerable to
money laundering activities. In recent years, this area has
experienced more demands on its resources than ever before.
This demand is expected to increase, not diminish, in the
future.
To help respond to these unique challenges, Hawaii has been
designated by the White House Office of National Drug Control
Policy, ONDCP, as a ``High Intensity Drug Trafficking Area,''
commonly referred to as HIDTA. HIDTAs are defined as regions in
the United States with serious drug trafficking problems that
have a harmful impact on other areas of the country. The
missions HIDTAs is: ``to enhance and coordinate America's drug-
control efforts among Federal, State, and local agencies in
order to eliminate or reduce drug trafficking, including the
production, manufacture, transportation, distribution, and
chronic use of illegal drugs and money laundering, and its
harmful consequences in critical regions of the United
States.''
Our subcommittee is responsible for authorizing and
overseeing ONDCP and the HIDTA program. Since Hawaii's HIDTA
was only recently created, we will learn more today about the
goals and targeted initiatives of the HIDTA in combating drugs
in this area.
I applaud the continuing dedication and professionalism of
our witnesses today and their willingness to share their ideas
and needs with us. I can assure you that this subcommittee and
your Representative here today will do everything we can to
assist you in protecting your loved ones and ridding your
comunities of deadly drugs.
We all recognize that the drug crisis demands full
utilization of available resources and close cooperation in a
comprehensive, regional approach. It is our job in Congress to
monitor Federal activities and ensure their success. If
obstacles are identified, then we must move decisively to
overcome them. Honolulu and Hawaii and the rest of our country
cannot afford to wait. The drug crisis demands promising
approaches and decisive action, and the time to act is now.
I wish to thank all witnesses for appearing before us
today. I look forward to hearing your testimony on this topic
of local, State, and national importance to our continued drug
control efforts.
Mrs. Mink.
[The prepared statement of Hon. John L. Mica follows:]
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[Proceedings were had prior to the following
transcription.]
STATEMENT OF STEVEN S. ALM, U.S. ATTORNEY
Mr. Alm. It is a tremendously high risk of fire and the
like. More recently it's even been racketed up a notch because
there have been findings and arrests involved with scratch lab
productions where methamphetamine itself is being created. That
creates an even higher risk of danger, of explosion.
I think our close geographic quarters here help in some
ways, because citizens already are on the alert and have called
in to law enforcement when they've seen large supplies of
acetone cans or when they smell odors that sound off to them.
And they have called law enforcement and that's how some cases
have been made.
But I think especially the neighbor islands are going to be
in danger; in fact, that's where the recent scratch labs have
been located, on the neighbor islands where there is even a
lower population density. Especially I think the Big Island is
in danger of that kind of a result.
In the late 1980's we were getting a lot of different
ethnic groups running--in a sense running the ice business. And
we were getting a lot of very high quality ice from the Far
East, from Korea, Taiwan, and China.
Since the early 1990's we are pretty much getting all of
the methamphetamine through domestic sources. And that means
from central and southern California, often Mexican nationals
working in organizations are picking up large batches of it and
then the drugs are being brought over to Hawaii.
Cocaine is probably second to ice in our drug problem.
About 30 percent of the Federal indictments are for cocaine,
often crack cocaine. There have been a few organizations that
have been operating for years that have recently been broken
up. Richard Brown Taumoepeau, also known as ``Tiki,'' had a
group of predominantly ethnic Tongans who transported large
quantities of cocaine, hundreds of kilograms. And as you
described earlier, Hawaii in that case became a transhipment
point to sites such as Australia, New Zealand, Guam and other
parts of the Pacific.
We have an emerging black tar heroin problem. As opposed to
China white from Asia, this is Mexican heroin and we often have
illegal aliens from Mexico involved in the distribution. I
think this is another area the neighbor islanders are even
having a bigger problem than folks here on Hawaii with this
problem. An Organized Crime Drug Enforcement Task Force
investigative group with the FBI, DEA, INS and all four county
police departments is becoming increasingly successful in this
area.
I would like to make the point that I don't think there is
a State nationally that has better cooperation between all of
the law enforcement agencies. I think our small size really
lends itself to that approach. So for example, in the HIDTA
program we are able to bring all of the Federal law enforcement
agencies that are involved in drug investigations, the four
county police departments, the prosecutors are involved, the
public safety and their drug program is involved, the National
Guard and the Western States information network. All 16 of us
can sit down in a room and work on this together.
I think the law enforcement situation in Hawaii is
complicated by the fact that it is--with interdiction being a
major problem regarding source of supply, it is virtually
impossible to do those interdiction cases in State court. As a
result all of those prosecutions are going into Federal court.
There are advantages to this because of the very strong
sentencing guidelines. We are often able to get cooperation
from couriers that are caught at the airport; they face years
in prison and the only way to really work that time down is to
cooperate against co-conspirators. We are able to work
cooperatively with the drug enforcement administration and
often do searches of supplier's houses in short order working
with the courts in California. And frankly that would not be
possible in a State prosecution. At the same time this is a big
burden on law enforcement. But I think we're never going to--I
think law enforcement has become sophisticated enough to
realize we're never going to arrest our way out of the drug
problem. Law enforcement is a key component of that but we also
need to emphasize that prevention and treatment efforts to have
a real strong approach to this--I think the State drug court is
a program that's working real well, it's helping people get off
of decades-long problems with addiction in an environment that
allows them really to come to grips with this and proceed in
the future. Through the Weed and Seed program that was
mentioned, the drug court got a grant for $300,000, and now
dozens of addicts from Kalihi-Palama and by China Town are
working with drug court and doing it that way.
I think our State prison system is another area that is in
desperate need of funds. The Department of Public Safety has
estimated that more than 80 percent of the inmates have
substance abuse problems and that there is only funding to
treat 20 percent of them. I think the Kash Box program that we
saw yesterday is a real positive program; it's something that
works. Those inmates were impressive in where they were in
their lives and what the future looked for them.
But when we asked them what would really help you folks,
they said a bigger program for Kash Box because there are other
folks at Halawa would who would like to get into the program
but there is no space right now. I know as Hawaii is looking to
build a new State prison, in part to take care of the 1,200
prisoners who are housed on the mainland, making that prison
into an entire drug treatment facility makes a lot of sense.
Kash Box writ large. I think that would benefit the inmates. It
would benefit society. I think we need to--both prevention--
even treatment is a post crime strategy and it's late in the
game and expensive. So I think there are a lot of good programs
going on. Weed and Seed I think is one of the ones that we
offer. And in that case you have programs set up to help kids
do other things so they are not waiting around, they are not
hanging out having those high-risk after-school hours so they
can get in trouble and encouraging that.
I think at the end of the day Hawaii is going to have to
come to real grips with our ice problem and the destruction
it's causing our State. And that means everybody. I think
public awareness is getting better, but we still are not
employers/employees, students/retirees, labor unions/small
businesses. We have got to get on the same page so we can send
the message to all of our residents that drug and alcohol abuse
is wrong, that it's destroying families and lives. And we need
to help to work to keep our kids from getting involved in that
kind of problem to begin with. We've got to make this
everybody's business.
I thank you for the chance to address you today, and I'll
be happy to answer any questions.
Mr. Mica. Thank you. We will defer questions till we have
heard the other two witnesses.
[The prepared statement of Mr. Alm follows:]
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Mr. Mica. At this time I will recognize Ms. Patrick
Hamamoto, deputy superintendent, the State of Hawaii Department
of Education.
Welcome, and you are recognized.
STATEMENT OF PATRICIA HAMAMOTO, DEPUTY SUPERINTENDENT, STATE OF
HAWAII DEPARTMENT OF EDUCATION
Ms. Hamamoto. Good morning, Representative Mica,
Representative Mink, members and staff of the House Committee
on Government Reform, Subcommittee on Criminal Justice, Drug
Policy, and Human Resources, colleagues and guests.
Dr. LeMahieu was unable to be with you this morning and
sends his apologies and regrets. However, we welcome this
opportunity to present testimony before your subcommittee on
matters relating to the drug problem in Hawaii.
1997 Youth Risk Behavior Survey [YRBS] results for Hawaii
high school students indicate modest gains in the number of
students: Who have consumed alcohol in the last 30 days; had
five or more drinks on one or more occasion in the past 30
days; ever used inhalents; ever tried to quit smoking; used
smokeless tobacco in the past 30 days; used smokeless tobacco
on school property in the past 30 days.
Although these statistics indicate that we are experiencing
some success, there is need to increase our prevention efforts.
Recent data from the 1999 Hawaii Kids Count Data Book
indicate that 72 percent of Hawaii high school students have
tried alcohol, 67 percent have tried cigarettes, and 46 percent
have tried marijuana at some point.
When experimentation becomes regular usage, there are
serious impacts to health, educational achievement, personal
relationships and increased potential for violence. Alcohol is
a major factor in half of all homicides, suicides and motor
vehicle accidents, these being the leading causes of death
among teenagers.
Nicotine addiction is the most common form of drug
addiction and brings with it a tremendous impact on health care
and causes more serious health problems than all other types of
addictions combined. Over 75 percent of all adult smokers
started as teens.
Increased drug use is mirrored by increasing violence,
abuse and neglect. Arrest rates for violent crimes committed by
juveniles have increased from 38 percent from 1990-1997. The
increases in methamphetamine use in both adult and adolescent
populations have resulted in increased violence in the home and
workplace.
Marijuana remains the drug of choice other than alcohol and
tobacco. We continue to see an increase in the number of
students that try marijuana before the age of 13. Departmental
statistics indicate that there was a total of 665 incident
reports filed in school year 1998-99 for possession of
marijuana, 24 for possession of drugs other than marijuana, 156
for possession of alcohol or intoxicating compounds, and 209
for possession of drug paraphernalia.
Although these statistics show a decline in drug-related
offenses since 1995, there continues to be a shortage of
treatment programs for adolescents both on and off campus. The
1998 Hawaii student alcohol and drug use survey indicates that
3 percent of 6th graders, 10 percent of 8th graders, 22 percent
of 10th graders and 29 percent of 12th graders are in need of
treatment for some type of substance abuse. This correlates to
roughly 16,701 public and private school students in Hawaii or
approximately 16 percent of all students in grades 6 through
12. We need to provide accessible treatment programs and
services to these adolescents.
Any amount of drug use in the school or community by adults
or adolescents is unacceptable. The decline in parental
involvement, the lack of meaningful and purposeful after-
school, especially for students in the middle schools, and the
overall decline of student self-worth are contributors to
student alcohol and other drug use. Given the etiology of this
issue, it should come as no surprise that drug problems beset
Native Hawaiians and other Pacific Islanders disproportionately
more so. Recognizing this, the Department's prevention efforts
focus on helping students achieve to high standards and
academics and character. Only through achievement can students
take pride in themselves. We recognize that this can only be
achieved in an atmosphere that is conducive to learning and
free of drugs and violence. To this end the Department is
concentrating its prevention efforts and funds in primary
prevention strategies and in developing and implementing
programs that build resiliency in students.
At the present time, all public schools in Hawaii and
approximately 75 private schools participate in the Safe and
Drug-Free Schools and Communities program. However, we
recognize that the Department of Education cannot fight this
battle alone. We have formed partnerships with other Federal,
State and local and private agencies to spread the message and
strive to reach the goals of the Safe and Drug-Free Schools and
Communities program. These agencies include the: Office of the
U.S. Attorney; Office of the Attorney General; Department of
Health; Coalition for a Drug-Free Hawaii; Hawaii Medical
Service Association; Kamehameha Schools-Bishop Estate's Native
Hawaiian; Safe and Drug-Free Schools and Communities Program;
and the city and county governments of Kauai, Honolulu, Maui,
and Hawaii.
It is through partnerships with these agencies that we have
seen a coordinated effort to achieve common goals. We have
reduced to duplicity of effort and have filled the gaps in
services to the extent possible.
There needs to be a balance between prevention and
treatment. We must provide treatment programs for students that
despite our best prevention efforts manage somehow to become
involved in illicit drug use as they get older.
As I am sure you are aware, measuring the impact of
prevention is difficult at best. Research has demonstrated that
programs that are implemented over time are more effective than
those that are ``one shot'' in nature. We are in it for the
long haul and will not rest until our schools and communities
are indeed safe and drug free. Our succusses have begun to
indicate the validity of our efforts. However, the Federal
support that we have received is what
has made these efforts possible. They must be maintained and
redoubled if we are going to realize satisfactory success in
this war.
Thank you for this opportunity to share with you.
Mr. Mica. Thank you for your testimony.
[The prepared statement of Mr. LeMahieu follows:]
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Mr. Mica. I will now recognize Dr. Bruce Anderson, director
of the State of Hawaii Department of Health.
We recognize you.
STATEMENT OF DR. BRUCE ANDERSON, DIRECTOR, STATE OF HAWAII
DEPARTMENT OF EDUCATION
Mr. Anderson. Chairman Mica, Congresswoman Mink----
Mr. Mica. You might pull that mic up as close as you can.
Thank you.
Mr. Anderson. Good morning again. Thank you for the
opportunity to testify. Before I begin, I'd like to recognize
Elaine Wilson, who is chief of our drug and alcohol abuse
division, and who will be able to answer any questions you
might have.
I have a fairly lengthy written testimony that I would like
submitted into the record.
Mr. Mica. Without objection the entire statement will be
made as part of the record.
Mr. Anderson. And with that in mind I will keep my comments
shorter if that's all right.
Mr. Mica. Go ahead.
Mr. Anderson. I wanted to reiterate some of the points that
have already been made; that is, that substance abuse is a
serious problem, reaching epidemic proportions here in Hawaii.
Our department's primary goal and focus is to assure that the
people suffering from substance abuse have the appropriate
treatment services they need.
We have rather limited resources to accomplish this and the
Federal funds provided by the Substances Abuse Prevention and
Treatment Block Grant have greatly assisted our efforts. We
certainly appreciate the support provided by the Substance
Abuse and Mental Health Service Administration.
Let me speak a little bit about the problem generally.
As of course all of you know it's a serious problem that
affects everyone. Every man, woman and child in America spends
over a $1,000 per year aiding for substance abuse problems.
Looking at how this translates to Hawaii, the cost of alcohol
and drug abuse is estimated to be over $730 million with costs
due to alcohol approximately $440 million and other drugs over
$290 million. Those costs include not only the direct medical
costs but of course costs associated with illnesses and death,
motor vehicle crashes, crime and incarceration and other
related costs.
Substance abuse in Hawaii touches the lives of many
families, practically every family in Hawaii. Each delivery of
a new child that's complicated by chemical addiction results in
an expenditure between 48,000 and $150,000 in maternity care,
physicians' fees and hospital charges. Addictive substances
have the potential for destroying a person who is addicted,
their family, and other relationships. Fetal alcohol syndrome,
for example, is a condition that is 100 percent preventable.
Infants would not be born with irreversible physical and mental
damages if this issue were addressed.
Approximately 65 percent of emergency room visits are drug
and alcohol related. We have also seen the link between
domestic violence and substance abuse. We know that 25 to 50
percent of men who commit acts of domestic violence also have
substance abuse problems.
As Congresswoman Mink indicated, ice is probably one of the
greatest challenges we face today. It is a major crime
prevention problem, as Mr. Alm has pointed out, and it is a
health problem. Ice causes brain damage and can make the
abusers psychotic, paranoid and schizophrenic.
In December, the Department of Health in conjunction with
the Center for Substance Abuse Treatment, sponsored the first
regional methamphetamine conference to increase knowledge,
strategies and treatment for those addicted to ice. Over 400
people attended this conference. One of the presenters, a Dr.
Rawson, remarked that, ``If Hawaii was in Arlington, Virginia,
this would be a national emergency story in the extent to which
it has affected the community here. It's certainly a very
significant public health problem.'' The conference was
followed by a town meeting where overflowing crowds, mostly
people in recovery or currently in treatment, filled the State
capitol auditorium and made clear that family and community
problems are attributed to ice. There was one woman, probably
in recovery, who told her story at town hall by saying,
Ice seduced both me and my children. I was a construction
worker for 15 years and did drugs for 12. I lost my
granddaughter who was stillborn because my daughter was on ice.
I hate this drug even though it was my first love. I want to be
a strength to the community, not a menace. I went to a short-
term program but it didn't work. I went loaded every day to
work because I was an alcoholic and addict. But long-term
treatment works.
Ice in Hawaii has become a multigenerational problem, since
first introduced in 1985 and contributed to the increased
demand and need for treatment.
Mr. Ted Sakai is one of the panelists I know you have
before you, and I won't go into a collaborative that we're
working on with them to look at diversion programs for the
criminal justice population. But I would like to focus on a
couple of other areas of high risk.
And Ms. Hamamoto has also mentioned this, but let me cite a
few statistics that I think should be repeated. The Department
of Health in a student alcohol and drug use survey, surveyed
over 25,000 students in various grades and found that more than
14 percent of Hawaii's sixth graders have used at least one
illegal drug in their lives. By 12th grade, 50 percent have
used at least one illegal drug. Alcohol is still the largest
substance abuse problem for our youth, but what is of great
concern is that almost twice as many of Hawaii's 8th and 10th
graders report drinking alcohol on a daily basis as compared to
youth on the mainland.
Again, Ms. Hamamoto covered many of these statistics, but
26 percent of Hawaii's 8th graders, 43 percent of the 10th
graders and 50 percent of the 12th graders have used illegal
drugs at least once.
Inhalents are the second-most illicit drug after alcohol.
And let me finally add that one of the most disturbing
statistics in the 1998 survey is that 8 percent of Hawaii's
12th graders have used crystal methamphetamine compared to 5
percent of the 12th graders on the mainland. Clearly we have
more of a problem here in Hawaii than on the mainland.
Let me talk a bit about treatment needs. In Hawaii there
has been increased demand for both adult and adolescent drug
treatment services resulting in a daily wait list for the
residential treatment of between 150 and 300 clients. Access to
drug treatment does not meet the current need for services.
I do have some charts here today; incidentally, the tables
of these charts are in my testimony so there is no need to
reproduce the charts, but let me illustrate and highlight a
couple of significant points.
As we look at treatment needs, the cahrts indicate that
among young adults, there are over 89,000 adults in Hawaii who
need treatment. That's 10 percent of the adult population.
I've a got a better pointer here.
I wanted to also highlight that the Department has
resources to treat only 2,500 of those 89,000 people. That's
less than 3 percent of the population in need. When we look at
the youth, the second chart down here, we can see that the
total youth needing treatment amounts to 16,718. Again that's
consistent with Ms. Hamamoto's numbers. That's 16 percent of
our youth.
While Hawaii's youth abuse alcohol and other drugs in
similar patterns to the mainland, the daily use, defined as
using drugs 20 out of the last 30 days in Hawaii, is twice the
Nation's rate for marijuana and alcohol. The Department of
Health provides treatment for about 1,500 of these 1,600 youth,
which is less than 9 percent of those who need treatment.
In our testimony we covered what we do in terms of
treatment services, and I won't go through those, but I do want
to emphasize the effectiveness of treatment. It not only helps
to reduce rates of abuse, but it also reduces healthcare costs,
crime, HIV and AIDS, and complicated pregnancy costs and
Welfare costs. Studies indicate for every $1 invested in
treatment, over $7 are saved by reductions in health costs.
I have some other charts here that I'll just touch on
briefly.
During the State fiscal year 1999 we have listed here some
of the outcomes from treatment services. As you can see, for
example, looking down this list almost 83 of the those who were
treated had no arrests since they were discharged. And I won't
read through all the numbers here, but the effectiveness of
treatment is very clear for the adults.
We also have some good statistics that relate to
adolescents.
As I mentioned before, 83 percent of those who were treated
had no arrests.
Similarly we have very good statistics for the youth who
have been treated. While drug treatments have been proven to
work, Hawaii's public treatment system can serve only
approximately 12 percent of adults in severe need of treatment.
An even greater problem exists with the thousands of youth at
vulnerable age needing treatment.
And finally let me touch on prevention.
The age at which children and adolescents initiate their
use of alcohol, tobacco and other drugs shapes the pattern of
abstention or abuse during youth and adulthood. Research has
shown that youth exposed to various risks for substance abuse
are responsive to prevention efforts.
The Department's prevention programs focus on reducing the
incidence and prevalence of substance abuse, improving
individual and family functioning through specific skill
building strategies, and heightening personal and community
awareness of risk and protective factors for substance abuse.
A typical youth prevention program such as The Boys And
Girls Clubs' ``Smart Moves'' or our Native Hawaiian ``E Ola
Pono'' curriculum, stresses the teaching of refusal skills,
dealing with peer pressure, increasing awareness of the harm of
alcohol and drugs, providing HIV and AIDS education, and
developing decisionmaking skills, healthy choices, and life
enhancing skills. There are sufficient resources for only 10
program sites throughout the State, enough to provide an
effective program to some of our youth yet very few.
I have mentioned in my testimony some other prevention
initiatives, but in rality, there are only one or two of these
programs across the State. We have also started a mentoring
initiative and working with our first lady Vicky Cayetano on
the problem of underage drinking.
There is a great deal of prevention work to do. Effective
models are being implemented in Hawaii. However, to make a
difference to all of our children and our families we need more
resources for this.
In closing, let me say that Hawaii, like most States, has
many individuals and communities in need of substance abuse
prevention treatment. The lack of adequate resources available
results in a population of underserved or unserved individuals
and tragedies for many of our families.
We do appreciate this committee's interest and commitment
to address the new challenges we face, and I thank you for the
opportunity to present some of this information to you.
[The prepared statement of Mr. Anderson follows:]
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Mr. Mica. I'd like to thank all of our witnesses for their
testimony, and I will start with several questions.
First of all, for the U.S. Attorney, tell me again what
percentage of crime you see in Hawaii related to illegal
narcotics?
Mr. Alm. Well, like I said, I think given our extremely
high property crime rate I think the vast majority of that is
associated with drug use. In Federal court we prosecute all of
the bank robberies and virtually all of the bank robbers are
doing it to buy drugs.
Mr. Mica. It appears that there is a meth epidemic here.
Different parts of the country have different problems. We were
in California, northern California all the way down to San
Diego, has similar meth problem. I come from an area that is
ravaged by heroin.
Your HIDTA, your High Intensity Drug Traffic Area that
you've designated, have you chosen one specific narcotic,
illegal narcotic to go after? Some of them do concentrate in
their overall planning to target a particularly difficult
problem.
Mr. Alm. Well, initially the biggest thrust would be
setting up the intelligence center so that all narcotics
investigations will be aided by the intelligence base. And the
big initiative initially will be a more complete comprehensive
interdiction program at all four airports that we now have that
have direct flight capability.
So we have direct flights coming in to not only Honolulu
International Airport, but Kauai, Maui and the Big Island. And
getting the interdiction efforts up on the neighbor islands and
increasing the efforts here on Oahu will cut access for all the
drugs. We have initiatives that we do not think that will be
funded. The first year there won't be money because setting up
the intelligence center and setting up the interdiction program
that will probably take virtually all the money. But we have a
methamphetamine task force and a black tar heroin task force
that we will hopefully be able to fund along those lines.
Mr. Mica. Have you submitted your request or prepared your
request for funding for the 2000-2001 year?
Mr. Alm. Yes. And we're working with the----
Mr. Mica. And how much is that?
Mr. Alm. The five new HIDTAs they were hoping to get at
least $2\1/2\ million more per year. We didn't even make that.
We got $1.4 million for the current year and we are told at
least it's flat funding. We hope to get more.
But as you know the expense of procuring space and the
computer capability, a lot of that is going to get taken up. We
have had very good response from all of the law enforcement
entities about assigning people to the HIDTA project. We are
trying to run it as lean as possible so only the very basic
folks end up getting hired that are recommended by ONDCP, and
otherwise it's going to be staffed by many of the people you
see here with Drug Enforcement Administration, with the
Honolulu Police Department and with our office.
Mr. Mica. Well, it appears in addition to meth which is
increased at least from seizures--and actually it looks like
your seizures are down from 1998 to 1999, but it appears you
have a substantial problem with meth, according to at least
what they are catching and then almost a doubling since 1997,
over a doubling of heroin and you say that's black tar heroin
coming out of Mexico?
Mr. Alm. Yes.
Mr. Mica. And the meth is also related to Mexican gangs,
you said, who were involved and Mexican production.
Mr. Alm. Yes. Often the precursor chemicals are coming over
the border. Most of the labs are in central and southern
California.
Mr. Mica. And that is coming in from the mainland through
the airports. So that's your major area of concentration of
enforcement.
Mr. Alm. Yes.
Mr. Mica. How would you describe--and certainly the U.S.
Customs is Federal responsibility. Do we have inadequate
coverage as far as Customs at these points of entry.
Mr. Alm. No. I think Customs has been doing a good job. The
number of seizures is certainly down over what it used to be. I
think that is more of a reflection of the traffickers. Even if
the end product is going to be here in Hawaii they are sending
it to the mainland and then back domestically so they can avoid
the Customs searches. But Customs has been a real player in
HIDTA and looks forward to bringing, I think, especially some
of the technology they have developed and some of the
cooperation they have developed, bringing that table.
Mr. Mica. What's the size of the DEA operation here?
Mr. Alm. Michele Leonhart is the special agent in charge
and she's here specifically----
Mr. Mica. I think she's on the next panel. But do you feel
that their staffing is adequate to keep up with the amount of
traffic?
Mr. Alm. I think their staffing could be improved. And I
think one thing that has been a real difficulty for all of the
Federal law enforcement agencies is that with the high cost of
living in Hawaii it's extremely difficult for them to be able
to attract mid career agents who are the most effective,
they've been seasoned, they've got experience, but to have
folks come out here as agents with families and kids, the cost
of living just scares them away. We have a lot of first-office
agents at all of the Federal law enforcement agencies. They
have got a tremendous amount of enthusiasm but they are just
learning the trade.
And I think, again, you folks have joked about it yourself,
that coming to Hawaii, we hear the same thing, that this is
Paradise, you can't have real crime problems. And the idea of
giving a supplement or bonus for a Federal to be assigned to
Hawaii--I realize they have been trying to do that for Puerto
Rico which has its own tremendous crime problems, but it sounds
like it's a hard sell.
We have tried to communicate that with all of the Federal
law enforcement agencies, that their agents need more money to
attract the best agents. They are doing a good job now and they
are working extremely close with other Federal agencies and the
Honolulu Police Department, but I think that that's an area
that can be improved.
Mr. Mica. You also advocated to the panel that drug
treatment for prisoners is an important program. We visited
yesterday one program. Is that the only program that you have
or are there other programs?
Mr. Alm. I know Ted Sakai is going to be here. I think that
is the premiere program for the State prison system. They are
also doing an educational program at Halawa, the main State
medium security facility. All of the people that get arrested
in Federal court and are sent to the mainland for Federal
prison have access to drug treatment there. And we're trying to
work as in the Weed and Seed program. We are arresting and
sending the dealers to Federal prison on the mainland.
Mr. Mica. The prison that's being built now, I think you
advocated having a treatment program.
Is that a State or Federal facility.
Mr. Alm. It's a State facility. It's not being built now.
It's supposed to be built now. They are still in the throes of
finding a community to accept it. They were looking at the
mainland, even building a prison on the mainland. I think the
current focus through the legislature is location on the Big
Island.
Mr. Mica. Ms. Hamamoto, the Federal Government in the last
several years has authorized and approved funding for a million
dollar media campaign, education campaign which spent about a
third of a billion, I think, in 1 year. That is also
supplemented by at least an equal amount through donated time
or services for effort.
Are you aware of that program and what's your opinion of
what we have been doing so far?
Ms. Hamamoto. Let me call our staff person Wendell----
Mr. Mica. Well, no, I'm interested in what you have to say.
Have you seen anything that we have done?
Ms. Hamamoto. Yes, I have. Now that he needs to refresh my
memory.
Mr. Mica. Some of this is television ads----
Ms. Hamamoto. Yes, I have seen them. Do I think----
Mr. Mica. We want your candid assessment of what we are
doing. It's the biggest program we have probably done in the
history of Congress. Our job is to oversee that program. Is it
successful? What do you think of it? Does it have any impact?
Or maybe we should use the money in some other way.
Ms. Hamamoto. I think it has a tremendous impact on the
young people. It makes them think; it challenges them to see
what is out there.
As an educator, as well as a former high school principal,
I know that since these ad campaigns have come out, we've had
more students that have come to us requesting help, for
themselves and their friends. And it's not something that the
kids try to hide. It's something that they bring out and they
want help for.
So I believe that what the drug campaigns have done is
given students an avenue, from by which they can express their
feelings, and seek help, which is better than not talking about
it and keeping it bottled up.
Mr. Mica. If you were going to direct additional Federal
resources to complement what you're doing how would you
proceed?
Ms. Hamamoto. I would like to see resources put into more
drug treatment programs for youngsters. Presently the
Department of Education is primarily into prevention, and we
refer out for the treatment. We have more referrals for
treatment for kids who need it than there are agencies that can
support them.
One of the things that I would like to see is for every
student on campus involved in any kind of drug violation,
regardless of whether it's paraphernalia or use or just
possession, included in those violations that these students
have some type of drug counseling, drug treatment, something
that we could through policy insist that these students get
help on. I would like to see Federal dollars go--if we could
help more of these type of treatments, not only on campus but
with agencies that would support us as partners.
Mr. Mica. Dr. Anderson, one of the questions, debates in
Congress is block grants versus continuing the program that we
have now of a combination of block grants and then
discretionary grants from the Federal Government.
Some of the preliminary information we did in looking at
the State of Florida--I'm not certain about Hawaii, I'd like to
get the information if we could--is we found in review, first
of all, that 11 percent of the SAMHA, Substance Abuse and
Mental Health Administrative costs are used to disburse 89
percent of the funds; 89 percent of the funds are given in
block grant program. We end up with 89 percent of the balance
of the resources being spent administrative costs to disburse
the remaining 11 percent. The discretionary grant overhead is
very expensive.
In my review of Florida we found that many that are
receiving the discretionary grants are also receiving State
grants. We have had Federal money from grants going to these
programs and we are spending 100--or 89 percent of $129 million
to administrative program and gift money in discretionary
grants to folks that are already going through the process and
being eligible for block grant money through the States.
Why don't we just block grant all the funds?
Mr. Anderson. Without knowing all the----
Mr. Mica. Let me change the question. It sounds like Hawaii
is sort of at the short end at getting some of these
discretionary funds.
How much do you get in discretionary funds?
Mr. Anderson. I would have to ask our program staff to
describe that. Let me say we are also at a disadvantage when it
comes to receiving discretionary funds given the lack of
resources in the State to even apply for those. We don't have
anyone--we don't have grant writers in our State. I think many
States are faced with the same thing. What has to happen is
someone like Elaine Wilson behind me or someone else must spend
a weekend, or two, or three, or more writing for grants, which
is very difficult.
Personally, without knowing the circumstances here, I'm
often troubled with block grants just because I think
categorical grants to be much more targeted and often much
easier to administer. If there is a clear problem, those work
best. There is always the temptation to say with a block grant:
Well, we have given you money that you can use for that purpose
if you want to.
Having said that, would you like more specific----
Mr. Mica. If you could I would like you to submit for the
record a list of all--any discretionary grants you get, the
total amount of money you get in discretionary grants, and then
the amount you get in block grant money.
We hear the common theme. We have held hearings on SAMHA
discretionary and also block grant program and we have heard
the call for more flexibility with the block grants. And also
we have imposed reporting requirements and accountability
requirements which now sometimes duplicate what States are
doing and have also--of course, we had testimony at one of our
hearings that one of the providers said that they spend 4 days
a week providing treatment and 1 day filling out forms and
reporting. And we're not sure even where those forms go or who
is looking at them, if they make any difference.
Are you finding the same type of problem from some of the
reporting requirements?
Mr. Anderson. Certainly. I think it's perhaps the need that
tends to sometimes overwhelm the program because it lacks
administrative support.
Again, I would have to defer to our program staff, with
regard to the specifics of any time allotted to meeting those
reporting requirements. But generally I would say that we'd
like to have a minimal number of reporting requirements
particularly with discretionary grants and block grants as well
and be able to focus more on program delivery.
Mr. Mica. One of the problems--I will just close with
this--is that we found as we increase Federal funding to States
we find legislatures decreasing the amount of funding for
treatment and in particular prevention programs.
I'm not sure if that's the case in your State. We can go
back and look at it historically. But again we find giving more
Federal money ends up having a decrease in what the State
(inaudible) is what kind of increases have you had in your
funding over the past several years from the State legislature
for these programs?
Mr. Anderson. I think over the last several years we have
had no increase in State funding whatsoever.
Let me add that our treatment is helping only a very small
percentage of those persons in need. For adults 3 percent; for
youth about 9 percent I think is the numbers that I recall.
This year we're talking about using some of the tobacco
settlement moneys for drug treatment. In fact there is a bill
going through the legislature that would allocate up to 25
percent of the moneys the State's receiving from tobacco, for
drug and alcohol abuse treatment.
Clearly it's a significant problem here given the scarcity
of State resources and our economic situation. A commitment of
this amount of money to drug abuse treatment is indicative that
this is perceived as a problem. Our State has not had the
luxury of having a lot of uncommitted funds over the last few
years. We have been struggling to make balance. In fact this
year we looked at a significant reduction in funding, despite
the fact that the rest of the Nation is doing very well.
So we haven't had the discretionary State funding to put
toward substance abuse or any other program for that matter.
Any Federal support would be welcomed, not necessarily
supplanting general funds, State general funds or other funds.
I think we would be able to use that money to supplement the
limited State resources we have. So I would not worry about
that problem, especially if the money were targeted toward
substance abuse.
Mr. Mica. Thank you. Yield to the ranking member, Mrs.
Mink.
Mrs. Mink. Thank you very much, Mr. Chairman. I would like
to ask unanimous consent that I be permitted to submit a number
of questions to the three witnesses----
Mr. Mica. Without objection.
Mrs. Mink [continuing]. And their responses be inserted in
the record.
Mr. Mica. Without objection.
Mrs. Mink. The testimony is very interesting and yields to
a large number of questions. And I know we don't have time to
go into many of these areas since we do have two other panels.
I think that what needs to be said at this hearing, and
hopefully we have other hearings in the future, at least from
my vantage point the reason I'm here is that I wanted to
emphasize to my colleagues in the Congress and to the Nation as
a whole as they look at the drug problems that we here in
Hawaii have a very very serious problem.
Having said that it's also, I think, disturbing to realize
that our State government and our local governments have not
really put this at the top of their list in terms of State and
local priorities in dealing with these problems.
Law enforcement is one thing; that's going to continue. And
we may have disagreements as to law enforcement efforts. But
from my perspective the area of treatment and prevention is the
key. We're going to have a HIDTA to develop intelligence so we
can interdict these drugs as they are coming in to the State.
But once the drugs are here we have to do something about the
demand and to try to limit it, try to educate, particularly our
young people. And if they should fall victim to these drugs we
need to have in place a wide variety of treatment programs that
could be made available.
And it's disturbing to hear you, Dr. Anderson, say that we
only have about 10 percent of our young people in treatment
programs, if I heard you correct, and that there is almost none
in the State school system in terms of treatment. You find a
youngster who is abusing drugs and there is very little you can
do within the school system. You have to refer that individual
to either law enforcement or to the Department of Health.
State Senator Chumbley sent me responses to questions that
he propounded to all State agencies who have anything to do
with drug treatment, drug prevention, asking them what State
dollars were use ub their program and what the Federal
contributions were. And over all I was quite shocked to see the
very, very limited amount of State assets that were going into
some of these very, very important areas.
And so my one question that I wanted to ask the three
witnesses is, is this drug problem one which only the Federal
Government needs to pay attention to and is it the primary
source for concern for funding, for direction, for initiatives,
or how do you split this responsibility? Is it a State
responsibility? And if it is, what can we do from the Federal
end to encourage States to do more? Do we need matching
programs? Do we need to direct the energies of the States in
certain kinds of preventive treatment programs? Do we have to
illustrate what works and try to encourage States to go down
that path?
What can we do as Federal legislators to bring to bear
obviously limited resources at the State level but to create a
much greater awareness of the State and local responsibility to
help the Nation do something about this very, very terrible
problem?
Mr. Alm. Well, I think Federal funding that is targeted as
was mentioned that can only be used for treatment or can only
be used for prevention and perhaps requiring a match, by
targeting those funds is a way to go.
And I think for the kids it's supporting programs like the
A-Plus program and other programs for kids so that if they're
active and they're busy and they're engaged otherwise they are
less likely to get involved in this kind of activity to begin
with. So encouraging those kinds of efforts. And as we
described, the heros like Bernard Lewis at Kaiulani Elementary
School, people on their own doing things if they get some
encouragement to set up programs so kids can be kept active,
kept busy in doing other things. And I think there is a long
way, if those programs were expanded throughout the State, we
would go a long way toward giving kids other things to do so
they wouldn't go down this path to begin with.
Mrs. Mink. So if I understand your answer you're saying
when we look at the prevention area you're listing A-Plus as a
part of the program for prevention, so you would include that
as part of the total expenditure for the State?
Mr. Alm. Yes.
Mrs. Mink. Thank you.
Ms. Hamamoto. I thought about what you said and I'd like to
say all of the above that you mentioned: Matching funds,
efforts to expand, to encourage what are the best practices.
For the Department of Education if it's a national priority and
we keep it in front of the system as a whole that drug
prevention treatment and the problems that we have with the
misuse and abuse of drugs is a priority that needs to be
addressed, then it filters into all the systems that we have as
far as education. I think the Federal Government keeping it at
a priority level is important. I also believe that the funding,
when it's leveraged or matched with our funds also allows us to
expand programs.
And like Steve Alm said, what happens is, if we take our
programs that we presently have and we look at the flexibility
and how we can somehow tie in the use of those funds to ensure
that as we do academic (inaudible) we also include the idea of
drug prevention and drug awareness, we would have much better
results. So I would like to see it in all areas.
Mr. Anderson. Let me just add I have no difference of
opinion with either of the other witnesses here.
I think, Congresswoman Mink, the point you made to focus on
prevention activities is so important. The treatment needs are
so overwhelming here that unless you have targeted grant
moneys, they are going to be moneys sucked up in treatment
services. I think we have something like $80 million of
expected treatment needs here that are not being met. And given
the benefit of prevention, for every $1 we are spending on
prevention we are potentially saving $7 or more in treatment. I
think that, to get the biggest bang for the bucks, with money
targeted toward prevention activities, we ultimately are going
to be saving ourselves much more expense down the line. And I
would suggest that at least some of the Federal moneys if
targeted toward that purpose, would help.
Mrs. Mink. Thank you, Mr. Chairman.
Mr. Mica. Thank you. The problem we have found at the
Federal level in supporting public treatment programs is that
there is a very high rate of recidivism. Even in the program
that we visited yesterday, I think they were only averaging 30
or 40 percent success rate.
What can we do to support effective programs and what do
you consider most effective programs, Dr. Anderson?
Mr. Anderson. Actually I'm now working with the Department
of Public Safety on focusing, not only on the population of
individuals who are incarcerated but also those people on
probation and parole. We are trying to see what we can do about
getting a comprehensive treatment program in place for the
entire justice population to help stop that revolving door.
We're now actually looking at jacking up some alcohol and
cigarette taxes to help pay for some of those programs.
Politically I'm not sure how viable it is here, but I would say
a comprehensive program similar to the program Arizona has in
place, which I think focuses primarily on persons on parole,
but a program to focus on a continuum care and support for
those individuals is critical.
One thing that I have noted with the recidivism problem is
that short-term treatment doesn't work. You can't just put
someone in a treatment program for a few weeks or months, or
whatever, and then expect them to be OK.
To have a program that works you need to provide continual
support for that individual and be able to track them, and
continue that support after the treatment is over.
A comprehensive case management approach with a case
manager, supporting that individual as they move, say out of
the prison system, into treatment programs and then into
community, I think is going to be critical toward assuring that
those individuals don't commit crimes again or have other
problems. So we are working to see if we can get such a model
in place. Of course it takes money, it takes staff to build up
such an effort, but perhaps with some Federal support maybe
looking at Hawaii as a model we could make this program work.
Mr. Mica. Mr. Alm, yesterday I think you described to me
the problem you have with people who are going through the
State system of their delays, they're back on the street. It is
a tough regimen as there is at the Federal level and your
tougher cases you try to get into the Federal system. Yet there
is a call now for doing away with minimum mandatory sentencing.
And that is something you also have cited as being a tool that
you can use for prosecution and tough enforcement.
What should we do about minimum mandatory, leave it, change
it?
Mr. Alm. I think there may be some problems that certain
communities in the neighborhood had with perceived disparity on
how those have been applied. I don't think that's been the case
here. When we are doing cases in Federal court it's for
couriers who are all part of drug organizations, and those are
the guys who are primarily getting hit with the mandatory
minimums. I think it's a very useful tool. We have to get other
people in those organizations and the mandatory sentences
provide the impetus for them to do that.
I think the best dollar would be spent on the programs
you've--like the Kash Box program. That is something that's
working, plus the followup when they get out. We know those
guys are criminals who are committing crimes, who are
committing the burglaries, who are committing the auto theft
break-ins. We're not speculating about those guys. Every single
one of those guys we can get off of drugs for when they move
back out, it's going to save the State thousands of dollars in
future crimes that can be avoided.
And I think one of the reasons the Federal system is able
to work is we deal with a smaller number of people. And so the
penalties are higher. I think by us going after the
traffickers, that's good use of that Federal dollar.
Mr. Mica. I think we will have additional questions for the
panelists, the witnesses who are here this morning, the first
panel. And I think we have already had some questions to which
we are seeking answers and we will leave the record open for 2
more weeks for responding. So we ask for your cooperation in
providing responses to submitted questions as some have been
raised here at the hearing this morning.
I do want to thank all three of you again for your
professionalism, for your efforts in trying to assist with a
very difficult societal problem and one that has particularly
impacted the State of Hawaii.
There being no further questions I will dismiss this panel
and call the second panel this morning.
The second panel consists of Major Susan Dowsett. She is
the narcotics/vice division of the Honolulu Police Department
with that division.
And Mr. Ted Sakai; he is the Director of the State of
Hawaii Federal Safety Department.
Mr. Nat Aycox; he is the Port Director of the U.S. Customs
Service.
Next witness is Ms. Michele M. Leonhart, and she is the
special agent in charge of the Los Angeles field division of
the DEA, Drug Enforcement Administration.
The final panelist is Major Randall Tom, and he's the
counterdrug coordinator for the Hawaii National Guard.
(Inaudible) This is an investigation and oversight
subcommittee of the House of Representatives.
I will swear in the witnesses if you would all please
stand.
[Witnesses sworn.]
Mr. Mica. The witnesses have answered in the affirmative.
I'd also inform the panel that we will add lengthy
statements upon request to the record and also additional
materials that you would like to see made part of this
congressional hearing.
With that I'm pleased to recognize Major Susan Dowsett. She
is with the narcotics/vice division of the Honolulu Police
Department.
Welcome and you are recognized.
STATEMENT OF MAJOR SUSAN DOWSETT, NARCOTICS/VICE DIVISION,
HONOLULU POLICE DEPARTMENT
Major Dowsett. Good morning. Dear Chair Mica, I'm going to
basically discuss some of the drug challenges which face the
Honolulu Police Department.
Highly pure crystal methamphetamine remains the dominant
drug problem in Hawaii. Although the drug is expensive and
costs approximately $100 to $200 per gram on the street, its
highly addictive nature and its abundant supply have made it
the most problematic drug being abused in Hawaii today. Crystal
methamphetamine use has frequently been associated with violent
crimes and has contributed to the increase in property crimes.
As with most other drugs entering our State, it is
estimated that 90 percent of methamphetamine is imported by
air. It is believed that the bulk of the methamphetamine
entering Hawaii is manufactured in Mexican-based clandestine
laboratories and then transported to California for
distribution to Hawaii and other destinations.
Cocaine use and distribution remains prevalent, with crack
cocaine being preferred among users. While cases and arrests
have declined slightly, seizures at the airport have increased.
Heroin use in Hawaii is relatively low in comparison to
methamphetamine and cocaine. However, the recent influx of
Mexican black tar heroin is a matter of continual concern for
law enforcement. Approximately 90 percent of all heroin coming
to Hawaii arrives from Mexican sources and is controlled by
Mexican-based organizations with a corps of runners or couriers
operating between southern California and Hawaii.
Marijuana has long been popular in Hawaii and is only now
surpassed by crystal methamphetamine. Marijuana addiction is
the--and there is a correction there, instead of ``second'' it
should be ``third''--marijuana is the third most common primary
drug problem among treatment admissions for adults, and is the
No. 1 primary drug for juvenile treatment admissions.
The majority of the marijuana supply in Hawaii is locally
produced, high grade, and very potent. It is in demand
worldwide by marijuana connoisseurs. Despite the abundant
locally produced marijuana, there has been a dramatic increase
in seizures occurring at the airport over the past 2 years.
And to a lesser extent we have seen other drugs such as
ecstasy, 6HB, and LSD come back in popularity especially among
the teens and the young adults and military personnel who
frequent the ``rave'' clubs, the ``rave'' scene.
Thank you for the opportunity to testify.
Mr. Mica. Thank you for your testimony.
[The prepared statement of Major Dowsett follows:]
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Mr. Mica. We will now recognize Mr. Ted Sakai. And he is
the director of the State of Hawaii Public Safety Department.
STATEMENT OF TED SAKAI, DIRECTOR, STATE OF HAWAII PUBLIC SAFETY
DEPARMENT
Mr. Sakai. Thank you very much, Chairman Mica and
Representative Mink. Thank you for the opportunity of
testifying before you this morning on this very important
topic.
The Department of Public Safety has two arms: One is the
law enforcement, we are responsible for the State sheriffs as
well as the narcotics enforcement division of the State of
Hawaii. We also operate the correctional system in Hawaii.
Given the ample representation that you have this morning on
the law enforcement side I thought I'd focus my thoughts on the
correction side.
Our department, unlike most other States has a
comprehensive correctional system. By this, I mean we are
responsible, the State of Hawaii is responsible for its prisons
and jails. In most jurisdictions you will see a split. The
prison system is run by the State government, and the jail
system by the county government. In Hawaii we have a
comprehensive system where our department is responsible for
both sides.
Drugs have had a profound impact on the correctional system
in Hawaii. We have had a tremendous growth in our inmate
population. The focus of our rehabilitative efforts have
shifted dramatically in the past 10 years because of drugs. And
finally, the health needs of inmates has shifted dramatically
because of drugs.
As it regards population growth, the information I have
provided you indicates that our prison population has increased
by about 64 percent in the past 5 years, most of this is
attributable to drugs. Drug-related offences has increased by
221 percent in this period.
Since 1996, we have had mandatory sentencing for the
possession of crystal methamphetamine which has been referred
to this morning as the No. 1 problem in Hawaii. The number of
inmates admitted due to felony convictions for possession of
ice has increased from 6.4 percent in 1995 to 10.3 percent in
1999.
Our prison population has increased to such an extent that
we are currently housing about 1,200 inmates on the mainland.
And this is a significant number because our department is
responsible for a total of 4,700 inmates, prison and jail. In
other words, about 25 percent of the people under our care and
custody are housed in Oklahoma, Tennessee and Minnesota, not in
the State of Hawaii, simply because we have run out of room,
and we have chosen this means to avoid litigation based on
conditions of confinement.
Regarding the drug problems, the last time we were able to
do a formal study was in 1991 and at that time the study
indicated that 53 percent of the offenders in the correctional
system committed their offenses while under the influence of
drugs. I would not be surprised if that number has increased
since 1991. That study also indicated that 85 percent of the
incarcerated population have serious substance abuse problem
that require treatment interventions.
Regarding the health problem, our health care staff has
found that substance abuse is directly related to serious
medical problems that drain our resources, such as hepatitis A,
B and C, liver disease, HIV and AIDS, organic brain damage, and
psychosis. This was something I was not really aware of, but
they also reported to me that tuberculosis is also related to
use of drugs, which is unexpected.
Drugs is also closely related to the high rate of mental
illness in our correctional facilities. We estimate that more
than 20 percent of our correctional population suffers from
some sort of mental health problem. In 1999 we suffered from a
rash of suicides in our system. We had seven suicides in our
correctional system in Hawaii in calendar year 1999. In all
seven cases the victims were serious drug users.
The problem that is emerging in our consciousness, is a
problem we call dual diagnosis. We recently conducted a survey
just last fall and we found that 24 percent of the women and 9
percent of the men have what we call co-occurring diagnosis,
mental illness accompanied by substance abuse. And this is a
problem that we're trying to formulate a strategy for right
now.
Some of the systemic treatment type problems that we see in
our correctional system, No. 1, lack of common assessments
among the various agencies in the criminal justice system. We
need to coordinate better among probation, parole and the
incarcerated populations; second, the lack of trained substance
abuse professionals available for treatment for our population.
And the third, perhaps the most serious, the lack of continuity
of services for offenders exiting correctional facilities.
As regards to this third point, I would like to point out
that we surveyed in State fiscal call year 1999 about 1,000
probation and parole violators returned to our system. Of the
600 parole violators who returned 150 or 25--I'm sorry, 600
probation violators, about 150 or about 25 percent were
technical violators whose technical violation was drug use. In
other words, they came back to prison simply because of drug
use.
But the parole statistics are even worse. About 40 percent
of the 430 parole violators who returned to incarceration
returned purely because of drug use.
So as you can see the need for treatment for people exiting
the correctional system is very important.
Chairman Mica, with your permission I would like to just
correct a number that you stated earlier. I believe the
statistics for our Kash Box program which you visited
yesterday--and thank you very much for doing so--indicate that
30 to 40 percent of the Kash Box graduates fail on treatment. I
think the statistics will indicate that about 70 percent of the
serious drug users who do not go to treatment will return to
incarceration.
In our testimony, I further layout some of the programs
that we have. They are very limited. Besides the Kash Box
program we have a very small program for the women which is
limited to 15 beds and we certainly could use more. We have a
30 bed transition program on Oahu for Kash Box graduates who
are returning to the community and we believe that this should
be expanded.
As regards our additional needs, the biggest area of need
as I indicated would be for programs in the community for
probationers and parolees to help them stay out of prison, and
to assist them in making useful lives.
I think treatment is an absolute necessity. But only
through well thought out, coordinated and effective treatment
is the State going to address its long-term prison overcrowding
problem, which can really become very costly.
Thank you very much.
Mr. Mica. Thank you for your testimony.
[The prepared statement of Mr. Sakai follows:]
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Mr. Mica. I will recognize now Mr. Nat Aycox. He's the Port
Director the U.S. Customs Service. Welcome and you are
recognized, sir.
STATEMENT OF NAT AYCOX, PORT DIRECTOR, U.S. CUSTOMS SERVICE
Mr. Aycox. Thank you, Chairman Mica, Representative Mink.
I am Nat Aycox. I'm the Port Director for the combined
Customs ports for the State of Hawaii. I'm also representing
resident agent-in-charge Larry Burnett of the Honolulu Customs
Office of Investigations. Thank you for inviting me to speak
this morning.
In the past 5 years, the dynamics of drug smuggling have
been changing dramatically. Hawaii continues to be assaulted,
however, by an influx of drugs from outside our borders, both
internationally and domestically.
In its long history as a conduit for drugs headed from
Southeast Asia to the mainland, Hawaii has seen many
significant heroin seizures by Customs at Honolulu Airport.
In the past decade methamphetamines and designer chemicals
have been added to the shopping list of illegal drugs. With the
notable exception of opium smuggling, international drug
shipments to Hawaii are now as likely to come from Canada or
Mexico as they are from Asia.
Recently, inspectors at our air cargo station discovered 8
kilos of marijuana and 290 grams of designer MDMA known as
ecstacy from Canada. Customs special agents arrested three
individuals associated with the shipment. Earlier this month
Customs special agents arrested two men in Waikiki after a
controlled delivery of 21 pounds of BC buds that were
discovered by inspectors in Danville, WA. BC buds are British
Colombian hot-house grown marijuana that tested 33 percent TAC
content.
The emergence of Colombia as America's principal heroin
supplier has turned that market upside down. Mexico also serves
as a supplier and conduit of illegal drugs. Today Hawaii is not
only a destination for drugs, but has also become a transit
point for Mexican and South American drugs destined for
Australia, Guam, the South Pacific islands and Asia. Asia
continues to be a threat, however, with intelligence still
reporting significant trafficking groups to Thailand and the
Philippines. We anticipate some of these new patterns will
again reverse themselves as Asia rebuilds its economy and China
enters both tourism and the illicit narcotics marketplace.
For the 5-years, the Honolulu Customs mail facility is
(inaudible) up an average of 235 pounds of opium each year in
parcels and Laos.
Shifts in trafficking patterns are normal for drug
smuggling operations which continue to change and evolve to
take advantage of any weaknesses detected in law enforcement
efforts. Of all drugs coming in to Hawaii, the one of greatest
concern to us in Customs and here in the community, is crystal
methamphetamine. Virtually unknown a decade or so ago crystal
methamphetamine known on the street as ice is a crystallized
form of what was known as ``speed'' in the 1960's. This
odorless, colorless drug originally began arriving in Hawaii
from the Philippines and Korea.
As people can tell you, users who smoke this drug for 24 to
48 hours without sleeping become desperately paranoid. Mixed
with firearms, the drug becomes lethal and has resulted in
numerous armed hostage situations, domestic violence scenes and
armed police standoffs. Most recently, and sadly, Dominick
Kealoha shot and killed himself in Nanakuli after an ice field
stand-off with police. We join U.S. Stephen Alm in applauding
the Honolulu Police Department for their outstanding handling
of this and other recent tragic agent.
It's anticipated that synthetic chemical drug smuggling
will increase as these drugs become more popular and available.
We have already seen an increase in the implementation of
steroids, tranquilizers and prescription drugs through the
postal system and the express consignment operators as more and
more Web sites in foreign countries are offering to send these
items over the internet.
Honolulu Customs continues to work diligently with local
law enforcement agencies and other Federal agencies and the
National Guard in a unified effort to suppress the importation
of illegal drugs. We are very aware of the opportunities now
available, since Hawaii's destination as a high intensity drug
trafficking area.
Our cooperation is extended overseas and was exemplified in
the 1998 operation at Norita Airport in Japan to study the
potential for that key Asian hub to be a transit point for
southeast Asian narcotics. Our study revealed that Norita has a
high potential for being a transit point for drugs into major
American cities.
U.S. Customs has an aggressive community outreach program.
For example, we send our K9 enforcement officers into schools
to educate our island children on the dangers of illegal drugs.
K9 enforcement officers and their drug detector dogs provide an
antidrug program for over 2,000 island school children last
year.
Customs also takes a multilateral approach to attacking
drug smuggling in Hawaii. We work very closely with the Coast
Guard and Customs services of Australia and New Zealand to
monitor maritime trafficking in and out of the islands. We also
monitor air and sea cargo, mail and express courier operations,
and air passenger traffic.
Honolulu is the seventh largest international airport in
terms of foreign passenger arrivals. We are the fourth; it has
dropped because of the Asia crisis.
We remain on the lookout for drugs both entering and
leaving the United States. We also monitor currency entering
and leaving the United States that may have been used in drug
transactions.
In two recent cases the mail facility seized money being
mailed from Guam to the West Coast to pay for crystal
methamphetamine.
Mr. Chairman, I know that you and the other members of the
subcommittee have been very supportive of Customs Service. I
wish you continued success in your efforts. And we know that
you are working to secure funding for Customs through the
pending Colombia supplemental procreation bill. In another area
Customs could also use some assistance in closing the loophole
that allows drug traffickers and money launderers to avoid
Customs inspection for shipments that move in transit or
through outbound mail. We believe the mail can be and is being
used to export illegal drug proceeds.
The men and women of the Customs Service who serve as
guardians of the Nation's borders appreciate your concern and
continued support on this very serious matter.
I'll be happy to answer any of your questions.
Mr. Mica. Thank you.
[The prepared statement of Mr. Aycox follows:]
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Mr. Mica. We will hear next from Michele M. Leonhart. And
she is the special agent in charge of the Los Angeles Field
Division of the Drug Enforcement Administration.
Welcome and you are recognized.
STATEMENT OF MICHELE M. LEONHART, SPECIAL AGENT IN CHARGE, LOS
ANGELES FIELD DIVISION, DRUG ENFORCEMENT ADMINISTRATION
Ms. Leonhart. Thank you. Chairman Mica, Congresswoman Mink
and members of the subcommittee, I am pleased to have the
opportunity to appear here today to discuss drug-related issues
facing the State of Hawaii. I would first like to thank the
subcommittee for its continued support of the Drug Enforcement
Administration and overall support of drug law enforcement. My
testimony today will provide you with an objective assessment
of the law enforcement issues surrounding the drug threat
throughout the State of Hawaii.
Hawaii's position in the national drug market is unique,
due primarily to its location and its isolation from the
mainland. Illicit drugs, like other commodities here in Hawaii,
command a premium price within the State. Drug trafficking
organizations have found it extremely profitable to establish
distribution outlets here in Hawaii. With profit margins in
excess of 300 percent from those on the mainland, traffickers
are willing to take the risks associated with drug trafficking.
I will give you an example. A pound of methamphetamine in
the State of California goes for between $10,000 and $15,000.
That same pound will sell here in Hawaii for between $30,000
and $35,000.
Throughout the State of Hawaii all types of drugs are
available. Most drugs are smuggled into the area from the
mainland United States, principally California. Recently even
marijuana which is cultivated here in abundance has been
intercepted in transit from Canada destined for Hawaii.
Since Hawaii is an island State surrounded by water, the
threat for introduction of drugs by means of vessel is always
present. And historically preferred method has been by way of
commercial air travel. The drugs are either concealed in
accompanying baggage, hand carried, or what we call body
carried.
The most alarming trend is the fact that the quantities of
drugs entering Hawaii or accessible in Hawaii are increasing at
a rapid rate. This is not only true on Oahu but on the neighbor
islands as well. Methamphetamine, heroin, cocaine are among the
most popular drugs brought into the State.
I would now like to discuss these drugs in greater detail.
Since early 1999, Hawaii retail and wholesale prices for
crystal meth which we are calling ``ice'' have remained stable
following an abrupt increase experienced in 1997. During the
past 10 to 12 months we have noticed an increased involvement
by Hispanic drug traffickers in all facets of drug trafficking
here in Hawaii. Previously, Mexican or Hispanic drug
traffickers occupied the positions of sources and supply for
the meth coming into Hawaii. Local drug trafficking groups,
utilizing local networks, distributed the drugs once they got
into Hawaii. It appears, however, that the Mexican and Hispanic
trafficking groups have moved into the distribution aspect of
the drug business as well.
Up until late 1998 the labs seized were relatively small
and restricted to the conversion process, i.e., converting
methamphetamine to ice. The potential for a fully functional
ice production lab was realized in late 1999 when a clan lab
site was located and dismantled on the island of Maui.
In Hawaii, as well as at the national level, meth abuse and
meth-related criminal activity has continued to increase over
the past 2 years. The latest drug treatment made available
indicates that methamphetamine was the primary drug reported by
subjects seeking voluntary drug rehabilitation treatment in
Hawaii. All too often parental use of ice results in instances
of serious child abuse.
Today, similar to methamphetamine, Hawaii faces an increase
of black tar heroin use. The drug, manufactured in Mexico, is
readily available throughout Hawaii. Hispanic trafficking
groups working in concert with relatives and associates on the
mainland and in Mexico control the distribution of heroin from
entry point to street sales. The black tar heroin is smuggled
into Hawaii in multi-ounce and multi-pound quantities primarily
from the Los Angeles area via commercial air courier or through
parcel services. Hispanic and Mexican nationals involved with
the heroin trafficking trade in Hawaii are rotated frequently
between the islands and back and forth to the mainland and to
Mexico. The traffickers do this to maintain low profiles within
the community to confuse law enforcement efforts.
Although heroin-related deaths on the mainland have
decreased over the past 2 years, it should be noted that the
heroin user population is increasing and that the new users are
a younger age. Street dealers actually recruit new customers by
soliciting around schools and/or nearby drug treatment centers.
This methodology was initiated by Mexican traffickers operating
in Hawaii. The quality of street heroin available in Hawaii is
extremely high, usually between the 50 to 70 percent range.
Considering this factor, addiction may occur much more rapidly,
and the probability of an accidental overdose will be greater
for the inexperienced user.
Cocaine in kilo quantities is readily accessible throughout
the State. The use and street sales of crack cocaine, which is
cocaine base, has remained stable over the past year. Cocaine
does not have the popularity of ice in Hawaii but it is readily
available from heroin or ice dealers. It is often used in
combinations with other drugs or alcohol and is less expensive
than ice.
Marijuana production continues to be a significant problem
within the State of Hawaii. Hawaii has always had the dubious
distinction of supplying some of the best marijuana to the
world. Marijuana is another drug of choice among Hawaii
residents, unfortunately including many middle and high school
children.
Marijuana cultivators, active on all major Hawaiian
islands, pose an ever-changing menace to the environment and
public domain. Growers utilize both public and private lands to
further their industry with little regard for others. And in
fact often intimidate visitors, hikers and hunters who
inadvertently trespass onto their grow sites.
New drugs such as MDMA, GHB, Rohipnol and steroids are
available in Hawaii and are used and distributed in fitness and
dance clubs frequented by the late teen or early 20's crowd.
GHB and Rohipnol are also known as ``date rape'' drugs. Several
GHB clan labs were actually seized in the State of Hawaii
during the last 2 years.
The DEA Honolulu office acknowledges that in order to
effectively identify, target and dismantle organizations
responsible for trafficking these drugs, they must work with
other Federal, State and local agencies. As a result, the
Honolulu district of the DEA has a close working relationship
with all four county local law enforcement departments as well
as the State and other Federal agencies engaged in drug law
enforcement. It would be virtually impossible for the DEA to
effectively pursue the majority of its investigations in Hawaii
and the Pacific area without this cooperative effort.
One such example of cooperative effort, you heard from U.S.
Attorney Alm, is the Weed and Seed program managed by his
office.
Due to an intense effort by the Honolulu PD over 100
arrests were made in a recent Weed and Seed task force
operation. The majority of the defendants were prosecuted
federally. Several businesses were seized as a result of the
drug trafficking activity that was condoned by the owners.
In fiscal year 2001 there is a Weed and Seed initiative, I
am told, that will focus on another area of Oahu that has a
high incidence of drug abuse, poverty and criminal activities.
In 1999 the State of Hawaii was designated as a High
Intensity Drug Trafficking Area, otherwise known as HIDTA,
which again provides for cooperative law enforcement approaches
to the drug situation throughout the State. HIDTA funding
should provide a much needed shot in the arm for State, local
and Federal drug enforcement units in Hawaii. These additional
resources will enable the four county police departments and
the State and Federal agencies with drug interdiction programs
to combine their efforts and focus their resources to make the
greatest impact on the drug trafficking problem that faces
Hawaii today.
As I have already stated, the primary threat that Hawaii
faces in our ability to attack the traffickers at the point
they are most vulnerable, is at the airports. Drug traffickers
are aware of the success of the drug interdiction program that
has been in place at the Honolulu International Airport for
several years and have moved their operations to airports
located on neighboring islands. The HIDTA executive committee
is aware of this shift in the trafficking pattern and is taking
steps to ensure that this threat is addressed, as soon as the
HIDTA is fully functional. We at DEA will be an aggressive
partner and we fully support the HIDTA initiative by providing
manpower, expertise in airport operations and interstate
communications network to provide drug transportation
intelligence rapidly. We plan to actively participate in the
intelligence center and be available to assist the four county
police departments and State agencies with the development of
their individual initiatives. If we are successful in this
endeavor the drug traffickers will be forced to find another
means of smuggling their illegal drugs into the State of
Hawaii.
Ladies and gentlemen, as we speak the Honolulu district
office is conducting two major drug trafficking initiatives
targeting drug trafficking groups operative throughout Hawaii.
These enforcement efforts are being made in concert with the
Honolulu PD, the Maui PD, the Hawaii Police Department, the
Kauai Police Department, the Honolulu office of the FBI, ATF,
U.S. Immigration, U.S. Customs and IRS. These types of
investigations demanding the participation of multiple agencies
will become the norm rather than the exception in the months
and years to come.
Congressman Mica and Congresswoman Mink, I thank you for
providing the opportunity to address the subcommittee and look
forward to answering any questions you have.
Mr. Mica. Thank you.
[The prepared statement of Ms. Leonhart follows:]
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Mr. Mica. We'll hear from our final witness Major Randall
Tom.
STATEMENT OF RANDALL TOM, COUNTERDRUG COORDINATOR, HAWAII
NATIONAL GUARD
Major Tom. I'm Randall Tom, the Hawaii National Guard
Counterdrug Coordinator. I am here to provide testimony on our
program efforts in responding to drug challenges in Hawaii.
Over the past 10 years, the Hawaii National Guard has
increased its emphasis on counterdrug activities as concerns
about illicit drug use in the United States have grown. In
1997, the Hawaii National Guard was the first in the Nation to
utilize National Guard personnel to provide support to drug law
enforcement agencies with Operation Green Harvest. The focus of
that operation was directed at marijuana eradication; that
continues to be the primary criteria for our funding to this
day.
Our support to law enforcement agencies and community-based
organizations are sanctioned and approved by the Governor,
State Adjutant General, State Attorney General, and the
National Guard Bureau under the provisions of Section 112,
Title 32, United States Code. Each year we develop the
Governor's Counterdrug Support Plan that delineates the support
requirements established by local law enforcement and
community-based organization. The three State leaders mentioned
earlier certify that Hawaii National Guard soldiers and airmen
can support counterdrug activities complying with State Law and
Section 2012(d), Title 10, United States Code to meet the
requirements of each fiscal year's Defense Authorization Act.
Presently, the fiscal year 2000 plan provides Hawaii
National Guard personnel services and equipment to support the
drug law enforcement agencies mission of not only eradicating
domestically grown marijuana, but also interdicting illicit
drugs entering Hawaii, and providing drug demand reduction
training and resources to community-based prevention
organizations.
National Guard members have significantly participated in
this effort as I will elaborate further in my testimony. Our
support covers a wide range of activities including, but not
limited to, aerial and ground reconnaissance, intelligence
analysis, and cargo inspections at ports of entry. The
operations also include administrative and logistics support to
release commissioned law enforcement personnel to perform their
duties on the street.
Our counterdrug organization consists of 63 Hawaii National
Guard personnel. The agencies that we support include the
Federal Bureau of Investigations, U.S. Attorney, U.S. Customs
Service, U.S. Marshals, Drug Enforcement Agency, U.S. Coast
Guard, the Department of Public Safety State Narcotics and the
four county police departments.
We provide intelligence analysis and investigative case
support to the FBI's Narcotics Vice Airport Detail, the Western
States Intelligence Network, and the county police departments'
criminal intelligence units. We actively participate in
reviewing and analyzing collected information and provide
legal, paralegal and auditing assistance that optimizes law
enforcement agents to perform drug enforcement duties. We also
provide communications support in establishing, operating and
maintaining equipment for counterdrug operations. We've used
Hawaii National Guard equipment to detect crack houses, to
clear gambling huts and shacks and dog pits and chicken
fighting areas where drugs were prevalent.
We also provide transportation support to enhance the law
enforcement agencies and community organizations. Our support
constituted mass movement of sheriffs to conduct prison raids
and provided vehicles for tactical tracking in Hilo. In
addition, our equipment has been utilized to participate in
search and rescue missions and assist with security
requirements during events and conferences. We transported over
400 of the 34,000 during the Millennium's Young People's
Congress in October 1999, and provided administrative and
logistical support for the ``Ready to Learn'' program that
delivered school supplies to more than 30,000 children
statewide.
We utilized both Hawaii Army and Air National Guard CH-47,
C-26 and C-130 assets to assist in missions such as
transporting the State Department of Public Safety during
prison shake-downs combating drug trafficking on neighbor
islands, working with the Maui Police Department during
community policing, vice narcotics and special operations, and
assisting State narcotic agents in completing their drug
investigations. We collaborated with the Department of
Education in assisting Sam Choy, one of Hawaii's nationally
renowned chefs, to conduct cooking presentations and promote
drug free awareness through his ``Forget the Crime, Cook the
Grinds'' vignettes. We have been a team player with the HPD's
gang detail and DARE contingencies to fostering drug awareness
through their ``Teen Dances'' and ``No Hope in Dope'' programs,
and airlifted FBI and DEA surveillance personnel and vehicles
for counterdrug missions.
Our personnel at the U.S. Customs Service inspect 100
percent foreign mail, all inbound international luggage and
randomly check domestic luggage, perform 100 percent inspection
on foreign ships and cargo, and assist in random inspections of
domestic and international planes.
We provide training in the form of safety observed
familiarization for law enforcement agents authorized to sit in
the OH-58A helicopter front seat in Operation Wipeout--
marijuana eradication--issues. In January 2000 we provided
Power Point presentation classes for Western States
Intelligence Network personnel to enhance case agents'
capabilities to share critical information for ongoing
investigations. In our efforts to address the employment and
quality of life issues with the Waimanalo community, our
counterdrug members have provided computer training to adults
and eventually expanded this training to the children.
Likewise, we have trained our guard members in computer,
clerical, research and various administrative skills to better
serve the law enforcement agencies.
As part of our drug demand reduction efforts, we have
instituted various training venues. Parent to Parent Training
empowers parents and guardians to confront critical issues
concerning drugs, gangs, sex, violence and values. Safe Passage
Training is phase two of our parent training that emphasizes
nonviolence and positive role modeling.
Na Koa Ku Makani--The Warrior Who Stands Against The Wind--
is a drug free day promoting family activities done in
partnership with Housing and Community Development Corp. of
Hawaii for community and National Guard parents and children
with informational booths and games. Throughout the years we
have supported children and youth day programs, community
action seminars that mobilize communities to take action in
preventing crimes in their neighborhoods, Department of
Education's Elementary School Attendance Program, recently a
new program that assists parents of elementary school children
improve school attendance through a mandated program. Our
training to youth challenge program participants have been a
positive influence to high school ``at-risk'' students.
Our funding has grown from $159,000 in 1989 to $1.9 million
in 1997. However, it has decreased by $200,000 each year since
then. In our efforts to stabilize the budget, we enlisted
congressional support and received additional funding through a
plus up in congressional appropriation based on Hawaii's rating
as the premiere State in outdoor marijuana eradication. As a
result, our budget has increased to a total of $4 million in
fiscal year 2000.
Without congressional support Reconnaissance and
Interdiction Detachment [RAID] Mission would cost approximately
$1 million, and thus any additional support to law enforcement
or community-based organizations would be minimized or
terminated. The Hawaii National Guard's RAID program is the
only military resource available to address the State of
Hawaii's unique challenges of marijuana cultivation.
In summary, the Hawaii National Guard Counterdrug Program
is a proud and rich heritage in providing for the defense of
our communities. We have been and continue to be staunch
supporters of our law enforcement organizations in their
valiant efforts to minimize and eventually eradicate illicit
drug productions, trafficking and use in Hawaii. Our drug
awareness programs have been successful in developing and
fostering drug free environments for parents, children and
neighborhood communities.
In addition to supporting our efforts to stabilize the
Hawaii National Guard's $4 million budget, we also solicit your
support for the National Guard's 4,000 soldier/airman end
strength and $192 million budget for fiscal year 2001. This
will ensure the continued support of the Hawaii National Guard
Counterdrug program for Hawaii's law enforcement agencies and
community organizations.
Thank you for the opportunity to provide you an insight
into the Hawaii National Guard's contribution to the
counterdrug efforts.
Mr. Mica. Thank you for your testimony.
[The prepared statement of Major Tom follows:]
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Mr. Mica. I thank all the witnesses on the second panel.
I have some questions. First, Dr. Sakai, you describe the
prison population that's dramatically increasing and most of
them got there because of some drug-related offense.
Describe the type of offenses--you also--and I think I
believe I got this correct. You have a combined sort of local
jail and State prison system?
Mr. Sakai. That's correct.
Mr. Mica. Sometimes I hear this, that the people behind
prison in these large numbers are there for minor marijuana
personal use or offenses. Is that the case with your prison
population? Describe what kind of offenses that your prison
population and your increase in prison population are there
for.
Mr. Sakai. Our prison population consists of about 26
percent violent offenders, 11\1/2\ percent sex offenders, 16
percent property offenders and about 18 percent drug offenders.
In addition there is 17\1/2\ percent consisting of probation
and parole violators. Unfortunately, our information does not
yield the crime that they committed.
Mr. Mica. The drug offenses which account for 18 percent,
would that be primarily trafficking? What would be the
breakdown?
Mr. Sakai. I don't have that breakdown.
Mr. Mica. Can you guesstimate? I mean are these people
there for possessing a small amount of marijuana or are they
there for violation of trafficking laws and quantities?
Mr. Sakai. I don't want to guesstimate. I would prefer to
see if I can get back and get better numbers.
Mr. Mica. Would you provide us with that?
Mr. Sakai. Yes, I can. But, Chairman Mica, if I can say, I
believe that the majority almost all of them are there for
trafficking, or if they're there for small amounts, they are
there because they are repetitive drug users who failed--they
were given the opportunity to get treatment in the community.
And it is my impression that the court and parole systems
in the State of Hawaii are fairly liberal. I have spoken to the
heads of probation and parole and both have indicated to me
that their policy is to not return a violator to prison until,
perhaps, their third violation. So if they are there for a
small amount they are there because they are repeat offenders.
Mr. Mica. Major Dowsett, you are seeing these people on the
streets. What are you arresting them for as far as it relates
to drug offenses? Possessions, and what kind of possession,
trafficking, felonies committed under the influence of
narcotics?
Major Dowsett. All kinds, actually. We have the one Weed
and Seed area and of course any violation or even seen in the
Weed and Seed area would subject them to an arrest. Possession,
distribution, primarily. And that would pattern what Mr. Sakai
was saying.
Normally before they actually get to jail they have had a
whole lot of other options. We have drug court. The prosecutors
don't always include the meth language when we go to court so
we can circumvent the mandatory sentencing there. We really do
see a variety.
Mr. Mica. Of that property crimes, it sounds like property
crimes were the biggest percentage, Dr. Sakai; is that correct?
Mr. Sakai. Actually violent crimes.
Mr. Mica. Violent?
Mr. Sakai. Violent.
Mr. Mica. Was that 16 percent?
Mr. Sakai. That was 26 percent; 16 percent was property.
Mr. Mica. 26 percent were violent?
Mr. Sakai. That's correct.
Mr. Mica. And what are you seeing with the violent crimes,
Major Dowsett, are they drug related?
Major Dowsett. Virtually all of them are drug related in
one respect or another.
Mr. Mica. Property crimes.
Major Dowsett. Yes. (Inaudible.) Even your misdemeanor
offenses a lot of them are drug related, you know, petty thefts
to get money for drugs.
Mr. Mica. On the correction side, Dr. Sakai, you said--you
gave us a couple of figures here; 95 percent of those in prison
have a substance abuse problem, was that----
Mr. Sakai. 85 percent.
Mr. Mica. 85. I want to make sure I get those numbers
correct.
And how would you break that down between alcohol and
narcotics?
Mr. Sakai. It is my impression that what we are dealing
with is addictive personalities where ice happens to be the
drug of choice. I think virtually all of them will use alcohol
if that's what it takes to get high.
I have been in the system for about 30 years and that's the
biggest change I have seen in the makeup of the criminal
population. When I started we couldn't identify the type of
person who used marijuana versus the type of person who might
have used heroin. My impression today is that a drug user will
use whatever drugs becomes available until he or she gets
addicted to the drug, and alcohol is a factor.
Mr. Mica. The program I visited had about 200 folks in it,
Kash Box. That's your major program in Hawaii?
Mr. Sakai. That's correct.
Mr. Mica. And you said you had a small one for female
population?
Mr. Sakai. At our women's facility we have a program for
about--we have a maximum capacity of about 15.
Mr. Mica. In your State prison what kind of drug treatment
programs----
Mr. Sakai. We have a small counseling program, and we have
three staff at our prison.
Mr. Mica. I didn't get the budget for the program yesterday
but do you know what the Kash Box annual budget is?
Mr. Sakai. I would have to go back.
Mr. Mica. If you could provide that for the record I would
like to see that because it seemed like it served a large,
fairly significant population for a small amount of money. You
don't know what it cost per day?
Mr. Sakai. No. Treatment programs in prison tend to be a
little less expensive than in a community because the inmate
spacing needs are already taken care of through the
correctional budget; their care, shelter, and food.
Mr. Mica. But if the figures I got are correct, and I'm not
sure what it does cost you to incarcerate someone in the State
system behind bars in a secure facility as opposed to treatment
programs there, it seemed like it was actually less per head
for the treatment program than it was for doing hard time.
Is that correct?
Mr. Sakai. It would depend on the treatment program.
Mr. Mica. Well, you've got that one treatment program.
Mr. Sakai. Well, let me get the figures for you.
Mr. Mica. If you could. Because if that's the case and
again I heard some figures yesterday and I haven't had them
substantiated, but it looked like it was fairly reasonable to
put them in that program, and it seemed like it also takes a
burden off the State to put more people in that program as
opposed to doing hard time.
We also had commentary from those who participated in the
program. One of the comments from one of the prisoners was that
the hard time they came in and left even more hardened,
inclined to have criminal skills as a result of the time in the
tougher prison.
And of course you can't shift everybody into these
programs, but if it's cost effective it might be something we
would want to encourage supporting (inaudible).
Mr. Sakai. I will get you the figures.
Mr. Mica. I appreciate that.
Mr. Aycox, how many full-time Federal slots does Customs
have here?
Mr. Aycox. In the port of Honolulu I have a total of 185
people.
Mr. Mica. Chronologically in the past few years, has it
increased, decreased, stable?
Mr. Aycox. It has in the last, say year or so, dropped a
little bit.
Mr. Mica. Dropped a little bit. And is that just this
location, or I'm not sure if there are other assignments in
Hawaii? Are you taking all of Hawaii or just Honolulu.
Mr. Aycox. The number I quoted referred to the uniform
contingent. The group I supervise--my counterpart Larry Burnett
supervises a group of investigative agents and they have
decreased staffing somewhat over in the last couple years as
well.
Mr. Mica. We had testimony from Major Dowsett that 90
percent of the stuff is coming in by air. I think that was your
testimony.
What are we missing with Customs to not be able to catch
more? Do we not have the enforcement power, or the technical
capability, or just the sheer volume.
Mr. Aycox. Well, I think the statement was made 90 percent
by air that included domestic and international air. And I
think that the available intelligence indicates that the
majority of it is coming in domestically, which of course we
are not empowered to deal with except in support of the other
agencies.
Mr. Mica. (Inaudible) coming through from the mainland,
DEA, is that more their responsibility than yours?
Mr. Aycox. It's a function of the task force which we
supplement by HIDTA as well.
Mr. Mica. So you think that would have a better coordinated
effort utilization of (inaudible) or at least detect coming
through the airport.
Is there something missing at the airport on domestic
flights that we aren't doing?
Mr. Aycox. I would defer on that to the other agencies
because I believe that's their question to answer.
Mr. Mica. Leonhart.
Ms. Leonhart. I would say we are doing a very good job with
the limited resources we have.
Mr. Mica. How many do you have?
Ms. Leonhart. Currently at the airport we have eight task
force officers and we have three special agents working cases
with one DEA supervisor. Those numbers have been stable for
over the last 3 or 4 years.
What we are really lacking is increases in our personnel on
the other islands because you've heard testimony, that we are
very concerned about traffickers now using the airports on the
other islands.
Our relationship with Honolulu PD in these interdiction
efforts is outstanding, and what we are finding, the more we
are working together on the air threat, the more intelligence
we are actually passing from Los Angeles on these trafficking
organizations to the airport detail and the more arrests we are
able to make, I see the HIDTA as a great supplement here. If
DEA were to get additional resources for Honolulu I would be
looking at beefing up the airport and putting additional
resources on the outer islands.
Mr. Mica. It appears the package transport mail, Fed Ex,
UPS, DHL, or other package services also seems to have an
increased trafficking in illegal narcotics. Is that the case,
is that something you have seen?
Mr. Aycox. Yes. We are seeing both the courier services
throughout the Nation and the mail conditions across the Nation
with increased interdiction, not only in the traditional drugs,
but in the newer designer drugs, and now in the prescription
drugs and steroids.
Mr. Mica. Are you getting any of the ion scanning equipment
that we've ordered?
Mr. Aycox. We have one ion scanner here that we use on a
regular basis. And in addition I believe the National Guard has
one that we share on a regular basis.
Mr. Mica. Thank you. Mrs. Mink.
Mrs. Mink. Thank you very much. I'd like to put some of
these documents that I received into the record and make
reference to it.
[The information referred to follows:]
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Mr. Mica. One is the drug situation?
Mrs. Mink. Yes, the drug situation.
Mr. Mica. By the intelligence division of DEA?
Mrs. Mink. That's correct.
Mr. Mica. That's without objection, so ordered.
Mrs. Mink. Trying to get a handle on the total presence of
these drugs in Hawaii, and I'm looking at this first chart on
page 1 of this document talks about drugs seized in Hawaii,
1997, 1998, and 1999. In heroin in kilograms, 2.7; cocaine in
kilograms, 32.1; marijuana in kilograms, 42.5; methamphetamines
in kilograms, 16.2.
Reference again those figures to drugs seized. What would
be the estimate of, in each of these four categories, of the
total presence of drugs in Hawaii say in that last recorded
year 1999? We see the figure of the amount seized. What would
be the total figure of heroin as it is available in Hawaii?
Cocaine as available, marijuana, methamphetamine.
Ms. Leonhart. I'd be happy to answer that by saying that
with the designation of Hawaii or Honolulu as a High Intensity
Drug Trafficking Area, and the funds that will come with that;
set up an intel center, we will have a better idea. One of the
frustrations of running the Los Angeles field division is in
Los Angeles we have had, over 10 years now, had an intel center
set up that can give you good estimates.
There is really no place to go in Honolulu or in Hawaii to
find good estimates. So we look at the trends; we look at what
has the DEA seized; we go and look at State seizure numbers.
But I don't feel comfortable, I would say, that that's where
we're hoping HIDTA fits in. I don't feel comfortable that we
know the numbers that we have not seized. I can also tell you
that the numbers are a little bit deceiving because the use
of--like Congressman Mica said--the use of the parcel, the UPS,
the Fed Ex, we are seizing great quantities in Los Angeles and
southern California that are destined for Honolulu which don't
show up in these numbers, and we are also through airport
interdiction, especially at LAX Airport, we are able to
interdict those drugs before they ever get on the flight to go
to Honolulu. So those numbers really only represent the drugs
that were seized by DEA and sent to DEA laboratories.
Mrs. Mink. Could we have those figures of the drugs that
are seized on the West Coast that were bound for Hawaii so we
can get a better view of the interdiction and the potential
traffic that at least has been stopped on the West Coast?
Ms. Leonhart. What I can do--we started looking at it,
because there is a trend as the Mexico based organizations have
moved over to Honolulu, we are keeping track of what we can.
There are no statistics; we haven't been keeping them for a
long period of time. We recognize that this is a trend to
watch.
I will try to come up with some numbers for you or some
anecdotes or cases where this has occurred and you will see
where we see the trend going.
Mrs. Mink. Now, on the last page you have the data on
marijuana. And it is the table which shows the amount of plants
that were seized, outdoor plants, 627,000, indoor plants,
1,489. Total plants seized/eradicated 629,000.
What would be the percentage--what would that constitute as
a percentage of the total amount of marijuana plants in
existence in cultivation in Hawaii today?
Ms. Leonhart. Again, what I would have to do is go and find
out what the estimates are. I know that we have probably the
most successful of the domestic canvas eradication programs
running in Honolulu. I would have to go to that program and
find out for you the estimates on what is grown that we don't
eradicate.
Mrs. Mink. Now, of the marijuana that you interdict leaving
Hawaii in all the different channels that are available, what
is the total amount that is actually found or interdicted
leaving Hawaii in all the different ways that it could possibly
leave, postage express, air travel, whatever.
Do you have any figures there?
Ms. Leonhart. I don't have figures with me. I would be glad
to look to see if those numbers are kept and provide you with
that. I can tell you, because I handle Los Angeles, that we are
still seeing bulk shipments of marijuana coming from Honolulu
to the mainland. However, there are active growing sites in
California. We're still seeing importation of Mexican marijuana
into southern California as well as Canadian marijuana. So it
would not be a large percentage but there still is marijuana
that is being transported to the mainland.
Mrs. Mink. Mr. Aycox, in your testimony on the last page
you said you were hoping the members could clarify your
authority to inspect outbound mail parcels.
Could you elaborate on that.
Mr. Aycox. Yes. There is a continuing long-term difference
in the interpretation of the existing statute as to whether or
not Customs has the authority to examine outbound mail. We
believe, and our counsel advises us, that the existing statute
gives us that authority. The counsel and the managers of the
U.S. Postal Service have a different interpretation.
Mrs. Mink. So does that mean you do not inspect outbound
parcels?
Mr. Aycox. That's correct, on a regular basis we do not.
The only time we would do so would be on a special task force,
where we would work with the Postal Service and they would get
a warrant on each and every package to be examined.
Mrs. Mink. So does that need to be clarified by a statute,
an enactment by Congress or this is just internal
interpretations and we would need to bear down on the Postal
Service?
Mr. Aycox. I believe it needs to be clarified to make it
very clear that we have the authority----
Mrs. Mink. By statute.
Mr. Aycox. Well, I do want to say that we have a very good
working relationship with the Postal Service across the Nation.
Mrs. Mink. This interpretation applies nationwide, not just
to the activity here in Hawaii?
Mr. Aycox. Correct, it's nationwide.
Mrs. Mink. Now, with respect to inbound parcels, you have
authority and capacity to inspect all inbound?
Mr. Aycox. Yes, we do.
Mrs. Mink. Both the express mail and UPS as well as the
postal.
Mr. Aycox. We have that authority. However, here in Hawaii
there is no express consignment hub; most of that examination
is done in Memphis or in Cincinnati or one of the other hubs
where Fed Ex or UPS, or in Miami.
Mrs. Mink. So when it lands here you make no inspection?
Mr. Aycox. Typically, no, because it comes in as a domestic
shipment.
Mrs. Mink. So what percentage do you think comes in here
with no inspection at all.
Mr. Aycox. From the other----
Mrs. Mink. For the western sites since there is no
inspection.
Mr. Aycox. Well, there are Customs officers at each one of
those locations and they target the shipments and inspect them
if necessary for examination.
Mrs. Mink. Isn't that inconsistent when you say you don't
have outbound authority?
Mr. Aycox. No, I don't understand.
Mrs. Mink. This is outbound coming to Hawaii and you're
saying your officials have the task to inspect outgoing parcels
before they get here.
Mr. Aycox. I misspoke. What I meant to say was that these
are international shipments that arrive in the United States at
one of the other hubs in those cities, such as: Memphis, Miami,
Cincinnati--which are some of the other locations. So they are
inbound international shipments which are inspected by Customs
at that time and then they are shipped here as part of a later
continuing journey as domestic cargo.
Mrs. Mink. How about domestic trans-shipments then from
West Coast or other points not international cargo?
Mr. Aycox. We don't have any authority to examine domestic
cargo.
Mrs. Mink. You have no authority to investigate incoming
and outgoing, both ways.
Mr. Aycox. Domestic cargo, correct.
Mrs. Mink. So the seizures that are made by Customs
extensively relate to what types of situations if it's not the
express or the Postal Service?
Mr. Aycox. Our seizures throughout the Nation and
specifically here in Hawaii are related to inbound
international people, vessels, aircraft, cargo, merchandise--
whatever it may be--that's entering that particular location
for the first time. And we also examine outbound cargo people,
vessels that are going direct outbound from the site as well.
Mrs. Mink. That is travelers as well as parcels?
Mr. Aycox. Yes.
Mrs. Mink. That are leaving the State you have authority to
inspect?
Mr. Aycox. Correct, if they are going internationally.
Mrs. Mink. But not domestic.
Mr. Aycox. Not domestic.
Mrs. Mink. Dr. Sakai, on your treatment programs,
apparently the facility that we visited yesterday with the 200
beds is basically the totality of your extensive long-term
treatment program for the inmates in your prison system.
Mr. Sakai. Pretty much so.
Mrs. Mink. And this 200 bed facility is only recent, about
a year?
Mr. Sakai. The program actually started with Federal funds
about 10 years ago, but was very small until about a year ago
when we were able to expand it to 200.
Mrs. Mink. Was that because of Federal funds or because the
State gave you more money?
Mr. Sakai. The State did give us more money in response to
the overcrowding problem. The Governor and the legislature
supported our proposal to expand the Waiawa facility by 200
beds.
Mrs. Mink. Are there any Federal funds in there now?
Mr. Sakai. No. However, we use Federal funds to support our
Bridge program which is a transitional program for Kash Box
graduates.
Mrs. Mink. Now, is the Bridge program which is transitional
after they leave prison, after going through Kash Box, is that
adequate to service all of your inmates that have been released
from prison after having gone through Kash Box? Because we
heard differently yesterday, that it was inadequate.
Mr. Sakai. It certainly is not adequate. We don't have
enough slots, only 30 slots there.
Mrs. Mink. Who pays for Bridge, is that State or is that
Federal?
Mr. Sakai. That's federally funded right now. And Bridge is
actually located within our jurisdiction. It's a work release
program.
Mrs. Mink. They have not really been discharged from the
system.
Mr. Sakai. That's correct. The real need--I believe we
could use at least twice as many beds as we have now.
Mrs. Mink. So you're saying that you could use 400 instead
of the 200 you now have?
Mr. Sakai. No. I was speaking of Project Bridge.
Mrs. Mink. What would be the maximum size of your Kash Box
facility if you had the funds to expand it, what would you
consider to be a reasonable size program?
Mr. Sakai. I would, rather than expanding Kash Box I would
like to see if we can replicate similar programs in our Halawa
prison or the new prison we are proposing to build.
Mrs. Mink. At Halawa why can't you replicate it there at
Halawa? They're already there; they're already incarcerated,
you don't have all the costs for residential expenses as you
would normally if the person is outside. A treatment program
outside is very expensive because the individual has to be kept
as a residential patient for a considerable length of time, 6
months and plus. But in the prison situation they are there so
you have no costs attributable to the residents and all the
other facilities. So why can't you just sort of take a part of
Halawa and dedicate it to drug treatment?
Mr. Sakai. There are two reasons. First of all, we don't
have the staffing to run the program for the treatment
component. And second, because of overcrowding, it's difficult
for us to dedicate any portion of Halawa. Halawa was designed
to hold 586 inmates and we are currently holding about 1,200
inmates. So it's very difficult for us to carve out (inaudible)
and dedicate it to----
Mrs. Mink. But then you answered my question. Instead of
increasing Kash Box from 200 to 400, you said you would rather
have a similar facility in Halawa. So what specifically were
you talking about doing in Halawa?
Mr. Sakai. The reason I mention that is because Kash Box is
for inmates who qualify for minimum security. And many inmates
who need treatment are not in that level of security
classification, and we would be reluctant to put them in Halawa
because they pose a risk, not only to the management of the
facility, but also to the community.
Mrs. Mink. So are you saying that there are none who would
qualify for Kash Box beyond the 200 you now have because of the
security aspects of it?
Mr. Sakai. No, I'm not saying that. What I'm saying is that
the greater need would be for high-level security inmates, that
also need treatment.
The other factor for us, Congresswoman Mink, is that we
have 1,200 inmates on the mainland including about 1,100 men.
And unfortunately, some of our best candidates for treatment
have been shipped off to the mainland because of certain
qualifications for inmates to be shipped off to prisons out of
State, which was established in our contracts. Unfortunately
some of our best inmates, our prime candidates, are there.
Mrs. Mink. I don't understand. What do you mean your prime
candidates have been shipped off?
Mr. Sakai. Inmates who are most amenable to treatment.
Mrs. Mink. Are they getting treatment in their mainland
facilities?
Mr. Sakai. There is some treatment going on, but it's very
limited and because we don't constitute the entire population.
(Inaudible) need for treatment slots for inmates from other
States.
This is why we are proposing to build a new facility in
Hawaii to bring all of these people home. We would like to make
the treatment intensive and to dedicate substantial portions of
our new facility to that treatment.
Mrs. Mink. Why do you feel you have to ship out of Hawaii
your best candidates if you are sending them to a facility that
has no treatment program?
Mr. Sakai. Because the contracts that we have allow the
contractors to select the particular inmates that they're going
to have. So we allow them to take a look at the inmates who are
candidates for transfer, and many of the inmates who remain
back in Hawaii present particular kinds of problems--security
problems, health problems or mental health problems--which
makes them difficult to handle.
The first consideration we had when we set up these
contracts and selected the facilities, was to relieve
overcrowding.
As I indicated, Halawa is still more than double it's
design capacity, and it's sort of the first relief that we need
to bring upon our system is simple total relief from
overcrowding.
Mrs. Mink. Now, with reference to Kash Box and the inmates
that have gone through it and have been released and are
outside the prison system, the chairman asked you some
questions about recidivism. It's a very important element for
our consideration in terms of the validity of investment and
treatment programs. You want to see some evidence that it is
working. And I realize that the transition is not really fully
in place, but given your experience in the last say 5 years
with Kash Box, what is the recidivism of these individuals that
have gone through Kash Box? How many of them have had to come
back in?
Mr. Sakai. I believe the number is somewhere between 30 to
40 percent.
Mrs. Mink. Have returned.
Mr. Sakai. That's correct. But we are dealing with people
that have serious drug problems. And my understanding is that
without treatment the return rate is somewhere in the vicinity
of around 70 percent. So we believe there is a substantial
effect.
Mrs. Mink. Have you had the opportunity to examine what
you're doing with Kash Box as compared to what other prison
institutions in other States are doing? And how does it compare
in terms of recidivism?
Mr. Sakai. We never really formally studied or had a formal
evaluation of Kash Box. I think it's very important that we do
so. The numbers that I have used is based simply on our
tracking of inmates that have gone through the Kash Box
program. I think it is important for us to take a look at
what's being done in other States. We are in contact with other
jurisdictions, and I believe the prevailing research would
indicate that treatment is effective as long as there is
continuing care in the community.
Mrs. Mink. The inmates we spoke to yesterday pointed out,
that they felt that while they were sure they had benefited
from the program while they were there, there is still an
element of uncertainty as to what they will face when they get
out; can they get a job and all of those things. So the
transition issue, I think, is very, very vital.
Incidentally, Mr. Chairman, before I conclude my
questioning, I have to tell the Public Safety Director that
they made one request of me yesterday as I went to meet the
inmates who were out there in the lawn. They want a basketball
court.
So I have transmitted their request to you.
Thank you, Mr. Chairman.
Mr. Mica. I want to thank each of our witnesses this
morning for their contribution.
As I have said before we will leave the record open. We
have asked some questions which we would like your response,
and we may be submitting additional questions.
Mrs. Mink. One more request. I received in the mail a very
fine report from the National Guard on their drug program. I
would like to ask unanimous consent that that report be placed
in the record together with his testimony.
[The information referred to follows:]
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Mr. Mica. Without objection, so ordered.
Again, I thank each of the witnesses for their testimony
today. At this time I will excuse this panel and call our third
panel.
Our third panel today consists of two individuals. One is
Sara Cunningham, Hawaii State Student Council. The other one
Chris Taketa; is that correct?
Mr. Taketa. Taketa.
Mr. Mica. And he is also with the Hawaii State Student
Council.
And as I have informed the other panelists, this is an
investigation. It's an oversight panel of Congress and I'm
going to swear you in, if you would please stand.
[Witnesses sworn.]
Mr. Mica. I would like to welcome each of you.
Mr. Mica. We will recognize first Sara Cunningham, again,
from the Hawaii State Student Council.
STATEMENT OF SARA CUNNINGHAM, HAWAII STATE STUDENT COUNCIL
Ms. Cunningham. Good morning, Chairperson Mica and
Representative Mink. I'm Sara Cunningham and I'm a sophomore at
Hilo High School located on the Big Island. And I'm a
representative to the Hawaii State Student Council.
There is a question that parents always use to describe
peer pressure: ``If your friends were to jump off a bridge,
would you jump too?'' Peer pressure is no longer that simple.
Instead, parents should be asking their children: ``If your
friends were trying to push you off a bridge, would you try to
stop them?''.
Peer pressure is no longer just a force upon your
decisions. It has become a way of thinking and acting. Weekend
partying, for example, has become a way of life for many
teenagers in my home town of Hilo. At these parties, one will
always find alcohol and cigarettes, and on occasion illegal
drugs like marijuana. The actual parties themselves are not as
detrimental as the effects of them. When the new school week
begins, I often hear stories of those who have gotten drunk
over the weekend. People brag about how much alcohol they have
consumed and act as though they have just won a competition for
having been the most drunk.
Those students who have yet to experiment with alcohol or
drugs are tempted by the stories told by those who have already
tried drugs and reported their findings in a lighthearted
manner. The problem lies in the lighthearted manner in which
the stories are told. Who would ever believe the detriments of
weekend partying told in a joking manner? The answer is: hardly
anyone.
In elementary school, we are taught to ``just so say no to
drugs.'' And there it is rare for students to ever have to use
that line because drugs seldom exist at that point in our
lives. In intermediate school, we have the same phrase running
through our heads as we see the first use of drugs by our
classmates. I remember walking home behind students who were
smoking cigarettes and trying to get away from them so I didn't
have to smell that smoke. Yet in high school the elementary
drug education is truly tested. Although when you were in
elementary school, saying no to your friends in role playing
was so easy, denying your friends when they now stick a beer in
your hand and they say, ``That's yours'' is not. Somehow all
the information that you gained as a child is no longer
applicable to your life. And because it makes little sense to
you now, what is the harm in letting yourself try, just once.
Drug prevention programs, such as DARE, are excellent tools
for elementary school students to learn about drugs and alcohol
and why to stay away from them. However, there is little or no
maintenance of students' drug education as they become older.
The one time teach-them-and-they-will- remember-forever program
is no longer working. As drugs become more readily available,
the idea that drugs are bad for you is not reinforced.
We understand that there are a shortage of funds for drug
prevention and limited ways in which the money can be spent.
However, we propose that money should be diverted from
elementary programs to intermediate and high schools so that
drug education is spread over more years, rather than compacted
into a few months.
Survey numbers support the idea of increasing high school
drug prevention programs. There have been numerous surveys
conducted. The following survey cited is the 1999 Hawaii State
Student Council and State Student Conference Legislative
Committee survey, taken at the student leadership workshop,
August 4, 1999. The students surveyed were student leaders from
elementary through high school, so they are answering based on
what they see on their campus. The survey revealed that 112 of
166 students reported that they knew of an illegal drug problem
on campus. 147 of 166 students surveyed stated that there is a
smoking problem at their school.
When asked if there were any preventative measures being
taken at their school, 117 of 166 students responded that there
are programs in their school. However, of those 117, 86 replied
that those preventative measures do not work.
I have just learned that the Department of Health in
correspondence with the Department of Education has 29
treatment programs set up in different schools which does not
cover the entire State, but at least there are a few programs.
In other surveys taken by students from across the State,
the Millennium Young People's Congress Survey revealed that
drug education is a top priority for the new millennium.
According to the national survey administered by the
Educational Testing Service [ETS], in 1998, one of every five
Hawaii eighth graders reported that their school had a drug
problem.
It may seem as though there is a drug epidemic in Hawaii.
But I do not see it that way. There are problems, there is no
denying that. But these problems hardly exist in a physical
state, but more often a psychological one. The jokes about
using drugs and alcohol are the main culprits in this epidemic.
Just as mathematics is being taught and built upon in
elementary through high school, drug prevention also needs to
be reinforced, maintained, and/or retaught throughout a
student's career.
The question of the bridge is raised again except this time
I ask you: Can you teach me not to jump off a bridge? Can you
teach me to avoid drugs and alcohol so in turn I will try to
convince my friends not to throw me off that bridge?'' But most
importantly, can you teach us all not to be tempted to go near
the bridge?
And I'd like to thank the people who have helped me prepare
my testimony. I've had very little experience with drugs and
alcohol--none--except for religious education regarding reasons
for alcohol. And so I had the help of my principal, students
from across the State, my State student council and students
from my own school who helped me to put together this testimony
so that I had a full view of what was happening with students
from across the State.
Thank you for your time and consideration.
[The prepared statement of Ms. Cunningham follows:]
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Mr. Mica. The next witness is Chris--is that Taketa? I have
messed it up twice now.
Mr. Taketa. Taketa.
Mr. Mica. Taketa, very good. And he is with the Hawaii
State Student Council also.
Welcome and you are recognized.
STATEMENT OF CHRIS TAKETA, HAWAII STATE STUDENT COUNCIL
Mr. Taketa. Thank you, Chairman Mica and Representative
Mink. My name is Christopher Taketa. I'm a senior at Castle
High School and I'm testifying on behalf of Loni Takeoka who is
a senior at Konawaena High School on the Big Island.
Today, high school is hardly what it was 10 years ago.
Every day students come face to face with obstacles such as
violence, drugs, and endless amounts of peer pressure. Although
people don't realize it, drug abuse is a huge problem in high
schools all over Hawaii. I speak from personal experience,
after 4 years of attending high school, I have seen students
smoking in restrooms, student parking lots, campus hallways and
the list goes on. The problem is so common that most students
don't find drug abuse much of a big deal. Even drug dealing is
a very common sight on campus. And it doesn't stop there.
Students are grossly exposed to drugs outside of school through
parties or other social activities.
Drugs and drug use are everywhere and students like myself
are being exposed to it every day. I have attended numerous
conferences and student workshops where time and again my
attention was called to the drug problem that exists in
Hawaii's schools. Surveys taken show that most students are
aware of a drug problem in their school and know people who are
using drugs, such as friends or siblings.
The prevention programs I had in elementary such as DARE
were great. They gave us free stickers and they told us things
like ``If you smoke you will croak'' which really scared me and
taught us not to do those things. And they also taught us to
deal with peer pressure. But what about high school? Drug abuse
is where it happens in high school. And for those who don't
know, the class of 2000 is no longer smoke free. You may think
the students who are smoking and dealing with drugs are mostly
juniors and seniors. But the kids who don't seem to be the
least bit worried about these problems are the freshman and
sophomores. They see what others are doing and they don't see
anything wrong with it.
I strongly believe that drug programs for the Hawaii high
schools should be implemented if they are ever going to take
steps to solve our problem. If there were drug programs for
high school students, they don't exist for every school and are
not effective. I understand that funding for the programs such
as DARE are scarce, and perhaps we need to reevaluate our
existing programs and find out why they aren't effective and
fix the problem. Students spend most of the time during the day
at school, so why not concentrate solving the problems in
school for the students on campus. Therefore, those who can't
get help outside of school and don't want to tell their parents
can find help after school. Kids like freshmen and sophomores
who can't drive to abuse centers can get help right on campus
and become educated.
Most of the information I have given you is from personal
experience. And I have had friends who have used and abused
drugs and paid dearly for it. And the number of students I see
suffering from drugs seems to increase year after year. I truly
hope you have taken this into consideration and to heart, and
maybe 1 day we will stand proud and say we are drug free.
[The prepared statement of Mr. Takeoka follows:]
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Mr. Mica. Thank you both for your testimony. What level are
you both in school, seniors or juniors?
Ms. Cunningham. I'm a sophomore.
Mr. Taketa. I'm a senior.
Mr. Mica. Both in public school?
Mr. Taketa. Yes.
Mr. Mica. Are drugs readily available in the school you
attend?
Ms. Cunningham. If I wanted to get drugs, I could very
easily.
Mr. Mica. What kind of drugs?
Ms. Cunningham. Marijuana, (inaudible) because it's grown
heavily in many areas where students that attend my school come
from.
I don't know too much about the other drugs. I could
possibly get cocaine.
Mr. Mica. What about meth?
Ms. Cunningham. I don't know too much about meth. Meth is
not talked about too heavily at our school, because our
administration cracks down heavily on it. But marijuana and
cocaine.
Mr. Mica. What about your school?
Mr. Taketa. Mostly marijuana and alcohol.
Mr. Mica. You said you knew students had who had been
victims of illegal narcotics?
Mr. Taketa. I'm sorry, that was on Loni's behalf.
Mr. Mica. You're reading his testimony?
Mr. Taketa. Yes. But most of what----
Mr. Mica. What about you?
Mr. Taketa. No, I haven't.
Mr. Mica. Have either of you seen the national ad campaign
or narcotics ads on television.
Ms. Cunningham. Yes.
Mr. Taketa. Yes.
Mr. Mica. What's your opinion?
Mr. Taketa. I think they are really effective. I don't do
any of that either, so it works.
Mr. Mica. What about you?
Ms. Cunningham. I have seen some ads, but I don't know
exactly which ones you are talking about because there are many
different ads out there, dealing with peer pressure.
Mr. Mica. But you have seen ads?
Ms. Cunningham. I have seen ads.
Mr. Mica. What's your evaluation of their effectiveness?
Ms. Cunningham. I think they are effective for some
students, but for others, watching a TV ad and having it tell
you ``Don't do drugs'' is rather trivial; they think its a big
joke. That's how it's taken, as a big joke.
But for many students the ads are very effective because
they see it along with programs that they enjoy watching. But
others who need the person physically standing in front of them
telling them that they need to stay away from drugs in a
classroom.
Mr. Mica. And the only drug prevention program that either
of you participated in in school was the DARE program?
Ms. Cunningham. I actually participated in the AGE program
which is an anti-gang program, but they also discussed drugs
because of the relation between the two.
Mr. Mica. Is that required or voluntary?
Ms. Cunningham. In eighth grade it was required for health
class, but your parents could sign you off if they did not wish
you to participate in certain segments.
Mr. Mica. Nothing since then?
Ms. Cunningham. Nothing since then.
Mr. Mica. How about you? Nothing since DARE?
Mr. Taketa. Nothing.
Mr. Mica. Did you have DARE?
Mr. Taketa. Yes, I had DARE.
Mr. Mica. Thank you. Mrs. Mink.
Mrs. Mink. Thank you very much. You're both members of the
student council representing your schools in a State
environment?
Ms. Cunningham. We are representing our districts.
Mrs. Mink. Your district in a State council?
Ms. Cunningham. Yes.
Mrs. Mink. How often does that council meet?
Ms. Cunningham. Once a month.
Mrs. Mink. And you have special interest in this drug area?
Ms. Cunningham. Yes, we do. We work very closely with the
State Student Conference which is where Loni Takeoka is from.
And in that conference there was a resolution that was brought
up about drug prevention and treatment programs. And with our
survey results, it has been a major concern students feel we
need to address; because that's what we do.
Mrs. Mink. So when you adopted this resolution it was
specifically to ask the legislature to provide more moneys for
student programs that would carry on the message that you all
received in fifth grade. Is that the essence of your
resolution?
Ms. Cunningham. There were two resolutions. One was--
basically the combination of both--prevention and treatment.
Prevention as a continuation of our fifth grade education
becoming more sophisticated as we get older. And a treatment
program for all schools and students at different levels.
Because we see that although there are treatment programs in 29
of the schools, which is not all the schools of Hawaii, there
are more than that.
Mrs. Mink. Recently you testified before the legislature?
Ms. Cunningham. Yes, I have.
Mrs. Mink. On that particular--how was it received.
Ms. Cunningham. We had not testified in front of that
legislature for that particular resolution because it did not
pass.
Mrs. Mink. It did not pass?
Ms. Cunningham. Did it?
Mrs. Mink. The student council did not pass the resolution
on drugs?
Ms. Cunningham. No, no. We do not have any control over
what is passed at the State Student Conference. And I think it
was brought up; it did pass the State Student Conference which
means that the State Student Conference planners can continue
to pursue it with the State legislature. And they did.
Unfortunately I do not believe that--I know it was heard once
in house education, but unfortunately it was tied up in house
finance because of money reasons that we do not have----
Mrs. Mink. Is that this year or last year?
Ms. Cunningham. This year.
And so we do not have enough funding to pursue it, although
they did tell us that it was a wonderful idea. We need to find
another way to get the funding for it.
Mrs. Mink. Thank you very much, Mr. Chairman.
Mr. Mica. I want to thank both of our panelists in our last
panel for coming forward and providing us with testimony today.
I would like to thank all of those who participated in the
hearing today from various State, local, Federal agencies for
providing their testimony. Hopefully it will help us as we go
back and try to do a better job in trying to direct our
resources and Federal attention to this problem facing not only
Hawaii but the entire Nation.
I'm particularly grateful to Mrs. Mink, not only for her
asking and helping to coordinate this hearing and her
persistence in trying to bring resources not only to Hawaii but
the whole country effective drug treatment and prevention and
education enforcement programs.
But also thank her for her leadership on our subcommittee.
We are a very active subcommittee of Congress with a number of
areas of jurisdiction including national drug policy, oversight
of the Department of Justice, Department of HHS, HUD,
international trade issues and also the Department of
Education, certainly a broad area to conduct oversight and
investigations. And without her leadership that would be
impossible to be effective in that charge.
So I thank her, again, for her work with me. We do that in
a very bipartisan manner in the House of Representatives and I
in the interest of all the people of the country.
Again, thank you, Mrs. Mink. Thank you for again the warm
hospitality. Next time I hope when I come to Hawaii I don't
have to go to prison, to jail, the police and station and to
Weed and Seed programs so I can enjoy myself with my wife and
family. I have been here a number of times before. But this has
been a very productive 48 hour visit for me. And I thank you
for accommodating me.
Mrs. Mink. I thank you very much, Mr. Chairman for your
agreement to come. I know that it really interrupted your
regular schedule to make this long trip out here and for such a
short time. Less than 48 hours.
Mr. Mica. That's right.
Mrs. Mink. Like a 39 hour trip. I really appreciate it and
the time that you took to do the two field investigations
yesterday in particular.
I hope that the record that we have made today will help
our colleagues understand the enormity of the problem that we
have here. And I hope I can get hundreds of copies of the
hearings record, and together with our students and others,
prevail upon the State to do a much more aggressive job in the
area of prevention and treatment, which clearly is the area
that we have to spend our time and money in.
Thank you very much, Mr. Chairman.
Mr. Mica. Thank you.
And having completed the other half of my 20 hours of
travel, I may submit your name along with others who represent
this area for congressional medals just for the endurance of
traveling back and forth to our Nation's capitol. I honestly
don't know how you do it, but I admire you and look forward to
seeing you on the floor tomorrow morning after we both arrive.
There being no further business to come before the
subcommittee this meeting is adjourned.
[Whereupon, at 12:10 p.m., the subcommittee was adjourned.]