New York Senate Committee Points in a New Direction for

Sex Offender Management in New York State

The New York Senate Committee on Crime, Crime Victims, and Corrections has just published their 2009-2010 report. The report's section on "Effective Sex Offender Management in New York State," points in a new direction for sex offender management in the state. This new direction is based on facts and research, rather than mythology and hysteria. Reforming the laws in the ways this report suggests will make our communities safer and will potentially be more cost effective.

XIV. EFFECTIVE SEX OFFENDER MANAGEMENT IN NEW YORK STATE

In March 2010, the Committee conducted two roundtables which included experts in the
field of effective sex offender management. Staffs of both parties were present and engaged in
a question and answer period. From these meetings the following policy goals were suggested
and we now share them with our readers.

1. Convene public hearings on effective sex offender management and public safety to begin
to develop comprehensive legislation that will better facilitate the goal of improving
public safety and reducing the risk of sexual assault. After fourteen years of sex offender
registries and a growing list of restrictions in place in New York, there is little evidence
that any of these measures have contributed to a decrease in sexual assault. There is,
however, a growing body of research suggesting that some laws relating to registration,
notification, and overly harsh laws restricting where sex offenders can be and how they
can engage with their communities may exacerbate the risk that they will reoffend. We
should engage in a conversation to consider developing a comprehensive sex offender
management plan that embraces new research and is aimed at reducing recidivism.

2. Re-examine the method of assessing risk of re-offense among registered sex offenders
currently used by the New York State Board of Examiners and appoint a commission to
choose among the various assessment tools available today one that would provide the
most reliable determination of risk. New York’s Risk Assessment Guidelines were developed
more than fifteen years ago, at a time when experts in the state knew far less about
how to measure the risk that someone once convicted of a sex crime would reoffend. It
is our belief—one shared by many experts—that there are far too many people in New
York who are misclassified in the higher levels of risk, and therefore unnecessarily diverting
limited resources away from likely re-offenders.

3. Reject additional further residency restriction proposals and instead reinforce the ability
of individual probation and parole officers to assess whether there are residences that
are inappropriate for certain individuals such that they would pose an unacceptable risk
of re-offense. The legislature should also pass affirmative legislation that would require
counties to create plans for safe and stable housing for sex offenders. All of the empirical
research examining the effectiveness of residency restrictions shows that residency
restrictions do not work to reduce the risk of harm to children. They have been shown
to discourage offenders from reporting their whereabouts to law enforcement, and they
destabilize offenders’ lives, creating roadblocks to successful re-integration into society
and increasing the risk of recidivism. Housing stability is a key to reducing recidivism,
and a comprehensive sex offender management plan must include provisions to ensure
stable housing for offenders.

4. Many states have declined to adopt the federal Adam Walsh Act that would expand community
notification via the state’s Internet registry to include registered offenders who
pose the lowest risk of re-offense; require that anytime affirmative community notification
is undertaken that law enforcement concurrently conduct community education to
ensure that risk is communicated in a way that makes sense; monitor acts of vigilantism
and take action against anyone found to have abused the use of the Internet registry
to harass or harm a registered offender or his family. Community notification has been
found to have no demonstrable impact on sexual recidivism. In fact, some studies suggest
that community notification may aggravate stressors that lead to increased recidivism³²,
and requiring broad community notification via the Internet may discourage
some victims of sexual abuse from reporting incidents to the authorities. Victims may
be reluctant to report offenses out of concern for a perpetrator who is close to them ( a
relative, a step-parent), or out of concern for their own privacy.³³ The Adam Walsh Act
would take New York in a dangerously opposite direction, besides the fact that experts
agree that it would cost more to implement than the state would stand to lose in federal
grant money.

5. Pass the Healthy Teens Act,³⁴ a bill pending in both the Assembly and the Senate, which
would establish an age-appropriate and medically accurate program of comprehensive
sex education, including instruction on avoiding unwanted verbal, physical and sexual
advances. Each year, New York adds another restriction on those already convicted of
sex offenses as a means to prevent sexual violence against children. However, the overwhelming
majority (around 95%) of sex offenses, including rape and child molestation,
are committed by those who have never before been convicted of an offense. This means
that New York concentrates all of its legislative efforts on preventing only 5% of all sex
crimes against children, and completely ignores the threat posed by first-time offenders.
The Healthy Teens Act would provide young people with age-appropriate comprehensive
sex education that would include instruction about how to avoid becoming a victim—
perhaps the .most valuable and effective tool way to reduce the incidence of child
sexual assault.

³² Naomi J. Freeman, The Public Safety Impact of Community Notification Laws, Crime & Delinquency (2009) (“Empirical research has suggested that sex offenders do not always commit crimes within their areas of residence and, thus, the areas in which notification occurs. Indeed, studies in Colorado and Minnesota found that sex offenders are unlikely to offend close to their homes and within the area that notification occurs; rather, sex offenders may travel, on average, 3 to 5 miles to gain access to victims.”).

³³ Jeffrey C. Sandler, Does a Watched Pot Boil? A Time-Series Analysis of New York State’s Sex Offender Registration and Notification Law, Psychology, Contextualizing Sex Offender Management Legislation and Policy: Evaluating the problem of Latent Consequences in Community Notification Laws, International Journal of Offender Therapy and Comparative Criminology (2001).

³⁴ Assembly Bill 1806A (Assemblyman Gottfried)/Senate Bill 3836 (Senator Duane).

Facts about Megan's Law and Sex Offenders in New York State

 New York Map Showing Counties with Sex Offender Residency Laws
and why such laws are ineffective and counterproductive