HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: HB 65 Withholding Funds from the Return of Cash Bonds
SPONSOR(S): Andrade
TIED BILLS: IDEN./SIM. BILLS: SB 582
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
1) Criminal Justice Subcommittee 14 Y, 4 N Padgett Hall
2) Justice Appropriations Subcommittee
3) Judiciary Committee
SUMMARY ANALYSIS
Bail is a common monetary condition of pretrial release that requires a defendant, or any person acting on behalf of
the defendant, to pay a set sum of money to the court to be released from jail while awaiting further court
proceedings. If a defendant released on bail fails to appear before the court for any proceeding where his or her
presence is required, the bail money is forfeited and a warrant is issued for the defendant’s arrest.
A defendant, or a person acting on the defendant’s behalf such as a spouse, family member, or friend, may post the
entire bail amount, commonly referred to as a cash bond. Section 903.286(1), F.S., requires the clerk of the court,
after the final disposition of a defendant’s court proceeding, to withhold from the return of a cash bond posted on
behalf of a criminal defendant by any person other than a bail bond agent sufficient funds to pay any unpaid:
Costs of prosecution;
Costs of representation by the public defender;
Court fees and costs; and
Criminal penalties.
If, after payment of such fines, fees, and costs, there are funds remaining from the cash bond, the balance of the
cash bond is returned to the defendant or other person that posted the cash bond. If the cash bond is insufficient to
pay the amount of the fines, fees, and costs, the balance due is charged to the defendant.
Section 903.286(2), F.S., requires all cash bond forms to prominently display a notice that the cash bond is subject
to forfeiture if a defendant fails to appear for court, and that the clerk of court, after the final disposition of a
defendant’s case, is authorized to withhold sufficient funds from the cash bond to pay specified fines, fees, and court
costs on behalf of the defendant.
HB 65 amends s. 903.286, F.S., to require the clerk of the court to withhold funds from the return of a cash bond to
pay fines, fees, and court costs imposed at the conclusion of a criminal case only when the bond is posted by a
criminal defendant or his or her spouse. Under the bill, if a defendant’s cash bond is posted by a third party such as
a non-spouse relative or friend, the clerk of the court may not withhold funds from the cash bond at the conclusion of
a defendant’s criminal case to pay specified fees and costs associated with the defendant’s criminal c ourt case. The
defendant however, will still be responsible for paying all specified fees and costs. A bail bond agent will continue to
receive the return of the full amount of a bond posted with the court upon the conclusion of a defendant’s criminal
case, consistent with current law.
The bill amends s. 903.286(2), F.S., to revise the notice provided on all cash bond forms to specify that the clerk of
the court may withhold funds posted by the defendant or his or her spouse to pay specified fines, fees, a nd costs.
The bill may have a negative, yet indeterminate fiscal impact on state and local entities that receive revenue from
the fines, fees, and costs imposed at the conclusion of a criminal case. The bill does not relieve the defendant of his
or her obligation to pay all such fines, fees, and costs imposed by the court, however, so such entities are still
authorized to collect the full amount of fines, fees, and costs imposed.
The bill may also have a negative, yet indeterminate fiscal impact on the clerks of the court expenditures associated
with updating cash bond forms to comply with the provisions of the bill.
The bill provides an effective date of July 1, 2023.
This docum ent does not reflect the intent or official position of the bill sponsor or House of Representatives .
STORAGE NAME: h0065a.CRJ
DATE: 2/15/2023
FULL ANALYSIS
I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Background
Pretrial Release
Article I, section 14, of the Florida Constitution provides, with some exceptions, that every person
charged with a crime or violation of a municipal or county ordinance is entitled to pretrial release on
reasonable grounds. A judge is required to presume that nonmonetary conditions 1 are sufficient for any
person to be granted pretrial release who is not charged with a dangerous crime. 2 Although a court has
the authority to impose any number of pretrial release conditions, it must impose conditions of release
that require the defendant to refrain from criminal activity and to refrain from contact with a victim, if
applicable.3 If a defendant violates pretrial release conditions, he or she may be arrested and held to
answer before the court having jurisdiction to try the defendant.4
Bail
Bail is a common monetary condition of pretrial release that requires a defendant, or a person acting on
behalf of the defendant, to pay a set sum of money to the court to be released from jail while awaiting
further court proceedings.5 If a defendant released on bail fails to appear before the court for any
proceeding where his or her presence is required, the bail money is forfeited and a warrant is issued for
the defendant’s arrest.
In determining whether to release a defendant on bail and setting a bail amount, a judge must consider:
The nature and circumstances of the offense charged.
The weight of the evidence against the defendant.
The defendant's family ties, length of residence in the community, employment history, financial
resources, and mental condition.
The defendant's past and present conduct, including any record of convictions, previous flight to
avoid prosecution, or failure to appear at court proceedings.
The nature and probability of danger which the defendant's release poses to the community.
The source of funds used to post bail or procure an appearance bond.
Whether the defendant is already on release pending resolution of another criminal proceeding
or on probation, parole, or other release pending completion of a sentence.
The street value of any drug or controlled substance connected to or involved in the criminal
charge.
The nature and probability of intimidation and danger to victims.
Whether there is probable cause to believe that the defendant committed a new crime while on
pretrial release.
Any other facts that the court considers relevant.
1
Nonmonetary conditions include any condition that does not require the payment of a financial guarantee, such as releasing th e
arrestee on his or her recognizance, placement in a pretrial release program, or placing restrictions on the arrestee’s trave l, association,
or place of abode. See Fla. R. Crim. P. 3.131.
2 S. 907.041(3), F.S. “Dangerous crimes” include: arson; aggravated assault; aggravated battery; illegal use of explosives; chi ld a b u s e
or aggravated child abuse; abuse or aggravated abuse of an e lderly person or disabled adult; aircraft piracy; kidnapping; homicide;
manslaughter; sexual battery; robbery; carjacking; lewd, lascivious, or indecent assault or act upon or in presence of a chil d u n d e r th e
age of 16 years; sexual activity with a child, who is 12 years of age or older but less than 18 years of age, by or at solicitation of pers o n
in familial or custodial authority; burglary of a dwelling; stalking and aggravated stalking; act of domestic violence as def ined in s.
741.28, F.S.; home invasion robbery; act of terrorism as defined in s. 775.30, F.S.; manufacturing any substances in violation of
ch. 893, F.S.; attempting or conspiring to commit any such crime; and human trafficking. S. 907.041 (4), F.S.
3 S. 903.047, F.S.
4 Ss. 903.0471 and 907.041, F.S.
5 S. 903.011, F.S.
STORAGE NAME: h0065a.CRJ PAGE: 2
DATE: 2/15/2023
Whether the crime charged is a violation of ch. 874, F.S., relating to criminal gangs or subject to
reclassification under s. 843.22, F.S., for committing the offense of traveling across county lines
with the intent to commit a burglary.
Whether the defendant, other than a defendant whose only criminal charge is a misdemeanor
criminal traffic offense under ch. 316, F.S., is required to register as a sexual offender under s.
943.0435, F.S., or a sexual predator under s. 775.21, F.S.6
Cash Bond
A defendant, or a person acting on the defendant’s behalf such as a spouse, family member, or friend,
may post the entire bail amount, commonly referred to as a cash bond.7 Section 903.286(1), F.S.,
requires the clerk of the court, after the final disposition of a defendant’s court proceeding, to withhold
from the return of a cash bond posted on behalf of a criminal defendant by any person other than a bail
bond agent sufficient funds to pay any:
Costs of prosecution;8
Costs of representation by the public defender;9
Court fees;
Court costs; and
Criminal penalties.10
If, after payment of such fines, fees, and costs, there are funds remaining from the cash bond, the
balance of the cash bond is returned to the defendant or other person that posted the cash bond. If the
cash bond is insufficient to pay the amount of the fines, fees, and costs, the balance due is charged to
the defendant.
Section 903.286(2), F.S., requires all cash bond forms to prominently display a notice that the cash
bond is subject to forfeiture if a defendant fails to appear for court, and that the clerk of court, after the
final disposition of a defendant’s case, is authorized to withhold sufficient funds from the cash bond to
pay specified fines, fees, and court costs on behalf of the defendant.
Effect of Proposed Changes
HB 65 amends s. 903.286(1), F.S., to require the clerk of the court to withhold funds from the return of
a cash bond to pay fines, fees, and court costs imposed at the conclusion of a criminal case only when
posted by a criminal defendant or his or her spouse. Under the bill, if a defendant’s cash bond is posted
by a third party such as a non-spouse relative or friend, the clerk of the court may not withhold funds
from the cash bond at the conclusion of a defendant’s criminal case to pay specified fees and costs
associated with the defendant’s criminal court case. Instead, the obligation to pay such fees and costs
will fall to the defendant. A bail bond agent will continue to receive the return of the full amount of a
bond posted with the court upon the conclusion of a defendant’s criminal case, consistent with current
law.
6 S. 903.046(2), F.S.
7 In the alternative, a defendant may elect to use a criminal surety bail bond executed by a bail bond agent. Generally, to use the
services of a bail bond agent, an incarcerated person must pay a nonrefundable fee to the bail bond agent equal to 10 percent of the
bond amount set by the court. This contract obligates the bail bond agent to ensure a defendant appears at all required court
appearances. S. 903.105, F.S. See also Florida Dept. of Financial Services, Bail Bonds Overview https://www.myfloridacfo.com/division
/consumers/understandingcoverage/bailbondsoverview.htm (last visited Feb. 15, 2023).
8 Costs of prosecution are generally set at $50 for a misdemeanor or criminal traffic offense and $100 for a felony offense. Th e court
may award a higher amount upon a showing of sufficient proof that higher costs were incurred b y the prosecution. Proceeds are
deposited into the State Attorneys Revenue Trust Fund. S. 938.27(8), F.S.
9 Costs of representation by the public defender include a $50 initial application fee and a $50 fee for legal representation f or a
misdemeanor or criminal traffic offense and $100 for legal representation for a felony offense. The court may award a higher amount
upon a showing of sufficient proof that higher fees or costs were incurred by the public defender. Proceeds are deposited int o the
Indigent Criminal Defense Trust Fund. Ss. 27.52 and 938.29, F.S.
10 S. 903.286, F.S. The amount of court fees, court costs, and criminal penalties vary depending on the jurisdiction and the nat ure of the
defendant’s criminal charge. The fees, costs, and fines are used to fund the operations of the court system, as well as various other
programs related to criminal justice. See ch. 938, F.S.
STORAGE NAME: h0065a.CRJ PAGE: 3
DATE: 2/15/2023
The bill amends s. 903.286(2), F.S., to revise the notice provided on all cash bond forms to specify that
the clerk of the court may withhold funds posted by the defendant or his or her spouse to pay specified
fines, fees, and costs.
The bill provides an effective date of July 1, 2023.
B. SECTION DIRECTORY:
Section 1: Amends s. 903.286, F.S., relating to return of cash bond; requirement to withhold unpaid
fines, fees, court costs; cash bond forms.
Section 2: Provides an effective date of July 1, 2023.
II. FISCAL ANALYSIS & ECONOMIC IMPACT STATEMENT
A. FISCAL IMPACT ON STATE GOVERNMENT:
1. Revenues:
See Fiscal Comments.
2. Expenditures:
None.
B. FISCAL IMPACT ON LOCAL GOVERNMENTS:
1. Revenues:
See Fiscal Comments.
2. Expenditures:
The bill may have an indeterminate negative fiscal impact on the clerks of the court who will have to
update cash bond forms to comply with the bill.
C. DIRECT ECONOMIC IMPACT ON PRIVATE SECTOR:
None.
D. FISCAL COMMENTS:
The bill may have an indeterminate negative fiscal impact on state and local entities that receive
funding from the fines, fees, and costs imposed as part of the sentence in a criminal case. The bill
requires the clerk of the court to return the full amount of a cash bond posted by any person other than
the defendant or his or her spouse, thereby eliminating the clerk’s ability to use the funds from those
cash bonds to pay such fines, fees, and costs. However, the defendant will still be obligated to pay
such fines, fees, and costs, and the clerk will retain the right to collect any outstanding balances owed
by a defendant.
III. COMMENTS
A. CONSTITUTIONAL ISSUES:
1. Applicability of Municipality/County Mandates Provision:
Not applicable. The bill does not appear to affect county or municipal governments.
2. Other:
None.
STORAGE NAME: h0065a.CRJ PAGE: 4
DATE: 2/15/2023
B. RULE-MAKING AUTHORITY:
Not applicable.
C. DRAFTING ISSUES OR OTHER COMMENTS:
None.
IV. AMENDMENTS/COMMITTEE SUBSTITUTE CHANGES
STORAGE NAME: h0065a.CRJ PAGE: 5
DATE: 2/15/2023
Statutes affected: H 65 Filed: 903.286