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just a wild guess … but … have a hunch that the states that chose to not report hate crimes essentially believe that what happened was simply that the perpetrator was exercising their “freedom of expression” - you know “expressing their feelings” … like how much they don’t like particular groups of people.
… and burning a cross on somebody’s lawn or
spitting & punching somebody or
spray painting a swastika on their house - well… that is just “communication”!
… no need to get all fussy and call it a “hate” crime
reporting it would just reinforce the (justified) stereotype that the state already has.