vulnerability report 2016youthlaw.asn.au/wp-content/uploads/2016/07/rethinking... · 2016. 9....
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VULNERABILITY REPORT 2016 | 1
VULNERABILITY REPORT 2016
2 | VULNERABILITY REPORT 2016
Red Cross volunteers support family members visiting prison. When visits go well family connections are maintained and can then provide important support when the prisoner is eventually released.
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VULNERABILITY REPORT 2016 | 3
Contents
Foreword 4Introduction 5Executivesummaryandrecommendations 6
AboutAustralianRedCross 8
SECTION ONE – Analysis of the Prison 10 Population and Underlying Issues
1.Australiahasincreasingratesofadultimprisonmentdespiteconstantordecreasingcrimerates
2.Prisonsarecostlytobuildandoperate3.Ourprisonsarenotbeingusedefficiently4.Peopleinprisonarelikelytocomefromhighly
disadvantagedandsociallyexcludedbackgrounds5.Highratesofcrimeareconcentratedinafew
communitiesthatexperiencehighlevelsofdisadvantage
6.Prisonsarenoteffectiveinrehabilitatingpeopleordeterringcrime
7. IncarcerationratesforAboriginalandTorresStraitIslanderpeoplesareunacceptablyhigh
Insight:WorkingtheWooriWay 17
SECTION TWO – Rethinking Justice 18 and Policy Reforms
1.Whatisjusticereinvestment?2.Howdoesjusticereinvestmentwork?3.Currentjusticereinvestmenttrialsoccurringorbeing
investigatedinAustralia4.Recommendationsforrethinkingjustice–safer
communities,reducedcrime,moreproductivegovernmentexpenditure
Insight:“SteppingOut”fromprison 24 backintothecommunityAppendixA:Financialmodelling 28AppendixB:ChangetheRecordCoalition 30BlueprintforChange
Cover:KidswhotakepartintheRedCrossyouthdiversionservice,gettotakepartinfunandpositiveactivitiesratherthanlettingtheirboredomandproblemsturnintotroublewiththepolice.Australian Red Cross/ Lesley Desmond.
Acknowledgements
TheSidneyMyerFundgenerouslyprovidedfundingforthepublicationofthisreportincommemorationoftheoutstandingcontributionofLadySoutheyACandhermother,DameMerlynMyer,throughtheirvolunteerworkwithAustralianRedCrosssinceitwasestablishedin1914.
Thekeyfindingsinthisreportarebasedonanextensiveliteraturereview,andinterviewswithcommunity,academicandotherstakeholdersinAustraliaandtheUK.
Wethankthefollowingpeopleforbeingpartofourconsultations:• DavidBrown,EmeritusProfessorof
LawUNSW• EddieCubillo,ExecutiveOfficerNational
AboriginalandTorresStraitIslanderLegalService
• JillGuthrie,ResearchFellowAustralianNationalUniversityNationalCentreforIndigenousStudies
• SarahHopkins,LectureratUniversityofNewSouthWales,ChairatJustReinvest
• SaraHudson,SocialPolicyConsultantURBIS• BenSchokman,DirectorofAdvocacyat
HumanRightsLawCentre• MelanieSchwarz,SeniorLecturerFacultyof
LawUNSW• KevinWong,DeputyDirectorHallamCentre
forCommunityJusticeSheffieldHallamUniversity
• Youthlaw-YoungPeople’sLegalRightsCentreVictoriaandmemberSmartJusticeforYoungPeopleincludingArielCouchman,Director,TiffanyOverall,PolicyOfficerandRosieStorey,PolicyIntern.
4 | VULNERABILITY REPORT 2016
Foreword The Hon. Michael Kirby AC CMG
Noseriousobserverissuggestingacompleteabolitionofincarcerationasapunishment.Sadly,ahardcoreofviolent,repeatanddangerousprisonersneedtobepunishedthisway.However,theratesandotherfeaturesofourcurrentpoliciespresentwell-knowndeficienciesthatneedtobeaddressedbylawmakers(andwherepossiblewithinthelaw,ourjudges).Wecannotaffordtocontinueunquestioninglygoingdownthesame,unreformedpath.Therearebetterobjectsforhugeandrisingpublicexpendituresthanbuildingnewprisons.Inthepast,therehavebeenoccasionswhenpoliticianshaveagreedtosuspendthe‘lawandorder’option,whichtheyareotherwiseencouragedtopursueby‘shockjocks’andothersimilarlyuninformedpundits.Yetsadlytheseinterruptions,whichshouldbeencouraged,barelylastlong.Hostilitiesarerenewed.Thevictimsoftenincludedisadvantaged,marginalised,mentallydisabledpersons,andtheirfamiliesandthecommunitiesinwhichtheylive.
Withitslongstandingexperienceinprovidinghumanitariansupporttovulnerablepeopleworldwide,includinginthejusticesystem,AustralianRedCrossiswellplacedtogivevoicetothewaythecurrentlaws,policiesandpracticesonimprisonmentimpactoursociety.AustralianRedCrossisalsowellpositionedtoprovidecrediblealternativestotheapproachwearecurrentlypursuing.IendorsethewayinwhichthisVulnerability Reporthastackledtheprobleminourmidst.
Inaclimateoffiscalrestraint,wherescarcegovernmentalresourcesmustdelivertothecommunitythebestvalueandoutcomesinservices,thetimeisrightforamorerational,economicandhumaneapproachtoournationalwaysandourtrendofincarceration.Ourfederalsystemisconstitutionallydesignedtopermit,andencourage,experimentationandcomparativeprojectsofinnovation.Australianeedstorediscoveritsearlierembraceofconstructivelawreform.ThisVulnerability Report urgesustorethinkourcriminaljusticeandpenalmethods.Toooftentheonlydirectiontakenhasbeentoincreaseimprisonment.Itistimetoshiftgearsandtoconsidernewdirectionsandgoals.
TheHon.MichaelKirbyACCMG*
This Vulnerability Report, presented by Australian Red Cross, is a timely appeal to Australia’s rationality and compassion.
RecentanalysisoffulltimeimprisonmentratesinAustraliabytheJudicialCommissionofNewSouthWales1showthat,overthepastyear,Australia’sprisonnumbershadreacheda10-yearhigh.Withalmost34,000prisoners,sentencedandunsentenced,theaggregateshowsanincreaseof10%in2013.TheincarcerationinIndigenousoffendersisaspecialsourceofshameforobserversoftheAustralianprisonsystem.TheAustralianBureauofStatisticsrecordedthatnearly9,500prisonersidentifiedasAboriginalorTorresStraitIslanders–morethanathirdofthetotal,eventhoughIndigenousAustraliansarefewerthan2%ofourpopulation.
Thesefiguresconstitutearebuketooursociety.Buttheproblemismorecomplexthanthebarestatisticssuggest.TheriseinthenumberofprisonershasoutpacedthenumberofavailableprisonplacesinAustralia.Thereisasevereshortageofbeds.Thishasresultedinovercrowdingandexposureofprisonerstounacceptabledangers2.
ThePublicInterestAdvocacyCentre,whichhasworkedwithdisadvantagedandmarginalisedgroupsinthecriminaljusticesystemformorethan30years,hassaid3: “Legislativechanges,coupledwithpolicing
practices,areleading…vulnerableclientstowardsarevolvingprisondoor.Thelackofoperationalcapacityhasledtoinmatesbeingdouble-or-triple-bunkedincellsoriginallydesignedforone.Butithasalsoledtotheexpenditureofincreasingamountsonthebuildingofprisons.Givenknowledgewenowhaveconcerningthehighlevelsofmentaldisabilityamongstprisoners,togetherwithwelfare,drugandalcoholproblems,aquestionisposedastowhethertheAustralianapproachtorespondingtoanti-socialconductis(inpartatleast)ineffective,overpriced,ill-targetedandinhumane.”
InSweden,inthe10yearsto2014,thenationalprisonnumbersdroppedfrom5,722to4,500inapopulationof9.5million.Therewasnocrimewavefromthereducedrelianceonincarceration.Swedenappearstobedoingsomethingcorrectly.AustraliaandNewZealandneedstostudytheeconomicandhumancostsofcopyingtheAmericanmodelofincarcerationasapenaltyofcommonresort,ratherthanthemodelapplicableinotherjurisdictions,whereincarcerationistrulyapunishmentoflastresort,asthecommonlawandstatutoryprovisionsassertitshouldbe4.
*JusticeoftheHighCourtofAustralia(1996-2009);ChairmanoftheAustralianLawReformCommission(1975-84);PatronoftheCommunityRestorativeCentre(2011-).
VULNERABILITY REPORT 2016 | 5
Australian Red Cross is proud to present the second Vulnerability Report: Rethinking Justice.
Australianeedsaprisonsystemforthosewhobreakseriouslawsandneedtodotimeinprison.Butoursiscostingbillionsmorethanisnecessarybecauseweareoverusingourprisonsystemwhentherearemoreeffectivealternatives.
Weneedreformandtherearebetterwaystoachieveimprovedoutcomesforsociety,fortaxpayersandforoffenders.
TheVulnerability ReportisaperiodicresearchcontributionbyAustralianRedCrossoncriticalpublicpolicymatters.The2016reportdrawsoncurrentinternationalandAustralianevidenceregardingjusticesystemredesignaswellastheexperiencesofourclients,thecommunitiesthatweworkwith,volunteersandsectorpartners.Itsetsoutacaseforchangewithanemphasisonsupportingbroadersectorcallsfor“justicereinvestment”,asanalternativetoexistingcriminaljusticeapproachesinAustralia.Thereporthighlightstheactualcostsofcurrentapproachestocriminaljusticeandproposessystemicreform.Wemakefivekeyrecommendationsandcallongovernmentsandthecommunitytoworktowardsimplementingthese.
Thisissueisnotonethatwecanaffordtoignore:thereisbothaneconomicandahumanitarianimperativeforchange.
Theincreasingincidenceofincarcerationratescontinuestotakeasignificanttolleconomically,witha$3.4billionannualcostofbuildingandoperatingprisonsacrossAustralia.
Withnearly34,000peopleheldinAustralianprisons,theimpactonthelivesofprisoners,theirfamilies,andcommunitiesisdetrimental,inhumaneandunacceptable.Thecontinuingover-representationofAboriginalandTorresStraitIslanderpeoples,andotherpeoplewhoexperiencesocialexclusionanddisadvantage,cannotcontinueunchallenged.
AustralianRedCrossisaleadinghumanitarianagencyandpartofthewiderInternationalRedCrossandRedCrescentMovement.RedCrossandRedCrescentNationalSocietiesaroundtheworldhavealonghistoryofworkinginprisonsandintheareaofcriminaljustice.InAustralia,weseektocontributetosaferandmoresociallycohesivecommunitiesthroughgettingbetteroutcomesfrommoreeffectivecriminaljusticesystems.
This2016Vulnerability Report advocatesforallofustorethinkourapproachandtotacklethecausesofcrimeinthosecommunitieswherecrimeismostprevalent.
JudySlatyerCEOAustralianRedCross
Introduction Judy Slatyer, CEO
6 | VULNERABILITY REPORT 2016
Executive Summary Thisunproductiveexpenditureonprisonsshouldbeinvestedinprogramsthatbothreducecrimeandpreventpeopleenteringthecriminaljusticesystem.Moreeffectivesupportneedstoalsobeprovidedforpeopletoreintegrateintothecommunityaftertheirrelease.Thisredirectionofspendingfromprisonstoearlyinterventionandsupportprogramsisbeingadoptedoverseasunderthebannerof‘justicereinvestment’-andtherearesomeearlytrialsbeingconductedinAustralia.
Doing justice better: through justice reinvestment
TheanalysisofjusticereinvestmentbothinAustraliaandoverseassuggeststhisapproachismoreeffectivethanthecurrentapproachestojustice.Justicereinvestmentinvestsinpeopleandcommunitiestoprovidesupport,treatmentandservicesthataddresstheunderlyingissuesconfrontingpeoplewhocommitlessseriousoffences.Theseissuesincludehomelessness,mentalhealth,deepsocialexclusion,andpooreducationandemploymenthistories.Evidencesuggeststhatitismoreefficientandeffectivetoaddressthecausesandthusreducetheneedfor(andgreatercostof)incarceration.
AcrossAustralia,researchershaveidentifiedthosecommunitieswheresocialexclusionanddisadvantagearedrivingcrimeandothersocialissues.AustralianRedCrossbelievestherearegreatopportunitiestoworkwithcommunityleaderstoaddressthespecificcausesofcrime.EarlyindicationsfromtrialsinAustraliasuggestthatadoptingalocaljusticereinvestmentapproachwillpaybiggerlong-termdividendsthana“toughoncrime”approach.
Growing adult imprisonment rates and costs: inhumane, inefficient and ineffective
Prisonsareanecessarypartofsociety.Peoplewhobreakthelawdeserveappropriatepunishment,includingappropriatecustodialsentences.However,theaimofanyprisonsystemmustbealsotopreventpeoplefromre-offending.Wherewehavepeoplecaptiveweshouldusethistimetomaximisethereturnonthecosttosociety.ButAustraliahasnotuseditsexpenditureonprisonsasaninvestmentinthefuture,onlyasacostofthepast.Wehaveover-investedinprisonswithcurrentexpenditureof$3.4billionwhichisfailingtodelivereffectivejustice,socialoreconomicoutcomes.
Rethink and reinvest: from prisons to prevention and diversion
Withtheprisonpopulationdoublinginthelast20years,andtheoccupancyrateofAustralianprisonsat104.4%,somethingneedstochange.AustralianRedCrosscallsonAustraliangovernmentstochangeourjusticesystems.Moreeffectiveexpenditurecoulddeliversafer,morecohesivecommunities,supportmoreproductivelivesforpeopleinvolvedinthecriminaljusticesystemandsavegovernmentsmillionsofdollars.
AustralianRedCrossbelievesthatprisonsshouldfocusonpeopleinvolvedinseriouscrimeandwhoposeahighrisktothecommunity.Evidenceshowsthatmanypeoplegoingintoprisoncomefromhighlydisadvantagedcommunitiesandoftenhavemultipleandcomplexproblemsthatarenotaddressedinprison.Thesepeopleleaveprisonhavingnotreceivedadequatetreatmentorsupportandwithlittleabilitytosuccessfullyre-entersociety–hencethecycleofcrimecontinuesforthemandtheircommunities.
This second Vulnerability Report from Australian Red Cross focuses on Australia’s current criminal justice systems. It highlights the inhumane effects of growing adult imprisonment rates and the failure of current approaches to reduce crime, target government expenditure effectively and produce safer communities.
VULNERABILITY REPORT 2016 | 7
Closing the Gap on Aboriginal and Torres Strait Islander incarceration rates
AboriginalandTorresStraitIslanderpeoplesandcommunitiesareparticularlyimpactedbyourcriminaljusticesystem,withAboriginalandTorresStraitIslanderpeoplesbeingincarceratedatrates13timesgreaterthannon-Indigenouspeople.TherehasbeenanextraordinaryrecentgrowthinprisonernumbersamongAboriginalandTorresStraitIslanderpeopleswithan88%growthinIndigenousprisonerssince2004.TheClosingtheGapStrategyshouldhaveafocusonAboriginalandTorresStraitIslanderincarcerationandjusticeissuesandshouldincorporatetargetsforreducingratesofadultimprisonmentforAboriginalandTorresStraitIslanderpeoples.
Save on prisons and reinvest in crime reduction
AustralianRedCrosshasestimatedthatoverafive-yearperiodsubstantialfundscouldbefreedupfromexpenditureonprisonsandredirectedtoexpendituretargetedonreducingcrime.• Iftherateofincarcerationwassimplyheldatcurrent
levelsthroughjusticereinvestmentandotherjusticereforms,thensavingsofalmost$1.1billionwouldbegeneratedoverfiveyearsincorrectionalcostsalone.
• Iftherateofincarcerationwasreducedby2%perannum,thensavingsofalmost$2.3billioncouldberealisedoverfiveyears.Partofthesesavingscouldbeinvestedinthesocialsupportandhealthservicesthatwould,overtime,addresstheunderlyingcausesofcrime.
Sustainabledecreasesinincarcerationratesarepossible.ThishasbeendoneinTasmania,aswellasinanumberofjurisdictionsoverseas.
Thisisnotaboutbeingsoftoncrime.Thepublicdebateneedstochangefrombeing”harder”or“softer”torethinkingwhatarethemosteffectiveresponsestocrimeandapplyingtheavailableresourcestothem.Evidencesuggeststhatrelativelyminimaldecreasesinthenumberofpeopleinprisonscanbeusedtofundthecommunityprogramsandotherjusticereformsthatarelikelytohaveasubstantialimpactonreducingcrime.
ThereportrecommendsthatgovernmentssettargetsforreducedincarcerationratesandaClosingtheGapjusticetargetforAboriginalandTorresStraitIslanderpeoples.Adoptionofthesetargetswouldallowcommunitiestoholdgovernmentstoaccountfortakingactionontheseimportantreforms.
Recommendations
1.ThatallgovernmentsinAustraliarethinkandchangetheirapproachestojusticetoachievelowercrimerates,lowerincarcerationrates,reducedprisoncostsandstronger,safercommunities.
2.ThatallgovernmentsinAustraliaintroduceajusticereinvestmentapproachandjointlysupportitsimplementationthroughtheLaw,CrimeandCommunitySafetyCounciloftheCouncilofAustralianGovernments.
3.ThatallgovernmentsinAustraliaestablish,fundandevaluatejusticereinvestmenttrialsacrossAustraliainspecificgeographiccommunitieswithhighratesofcrimetodeterminehowjusticereinvestmentcanbeappliedinAustraliancontexts.
4.Thatstateandterritorygovernmentsadoptthejusticereformproposalsoutlinedinthisreportto:•preventcrimeandrecidivism•increasenon-custodialsentencing•improveparoleandreintegrationtothecommunity.
5.That,asafirststep,allgovernmentsinAustraliacommitto:•a10%reductioninadultimprisonmentratesoverthenextfiveyears
•aClosingtheGapjusticetargettoreducetheunacceptablyhighadultimprisonmentratesofAboriginalandTorresStraitIslanderpeoplesby50%overthenextfiveyears.
AustralianRedCrossrecognisesthatthisisnotjustgovernments’business.Itrequiresawholeofcommunityresponseandwillonlybeachievedthroughworkingtogether.RedCrossstandsreadytoplayitspartinbuildingasafer,morehumaneandsociallycohesivesociety.
8 | VULNERABILITY REPORT 2016
About Australian Red Cross
Australian Red Cross is a member of the International Red Cross Red Crescent Movement which operates in 190 countries.
Inallourwork,weareguidedbytheFundamentalPrinciplesofhumanity,impartiality,neutrality,independence,voluntaryservice,unityanduniversality.
Theprincipleofhumanitydrivesourpurposetosupportandempowerpeopleandcommunitiesintimesofvulnerability,andpreventandalleviatesufferingwhereveritmaybefound.Weprovideassistancetothosewhoneeditwithouttakingsides.Thisapproachgivesustheindependencetoworkthroughcomplexsituationsandtoremainfocusedonbuildingrelationshipsaimedatdeliveringhumanitariansolutions.
VoluntaryserviceisattheheartoftheMovement’sabilitytomobilisethepowerofhumanity.InAustralia,RedCrosshasbeenavitalpartofthecommunitysince1914.Today,weworkwithpeopleandcommunitiesprovidingarangeofprogramsinemergencyservices,migrationsupport,socialservices,communitydevelopment,overseasaid,andInternationalHumanitarianLaw.
OurdiverseandcommittedvolunteersandstaffsupportAustralianRedCross’effortstoachievethefivestrategicgoalsofStrategy2020:
• BuildadiverseandactivehumanitarianMovementbasedonvoluntaryservice
• Savelives,buildresilientcommunitiesandstrengthendisasterresponseandrecovery
• Preventandalleviatehumansufferingintimesofwarandconflictandpromotenon-violenceandpeace
• Advancehealth,well-beingandresilienceofindividuals,familiesandcommunitiesmadevulnerablebydispossession,migration,displacement,illnessordisadvantage
• Maintainastrong,innovative,sustainableandaccountableorganisationcapableofachievingourhumanitariangoals.
A prisoner wears a t-shirt printed with the Fundamental Principles of the Red Cross Red Crescent Movement in an Irish prison where Irish Red Cross runs prisoner volunteers programs. An international example of Red Cross work with prisons and courts. Ph
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In Woorabinda Red Cross is helping to build young leaders who are proud of where they’re from - with positive results for the whole community.
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SECTION ONE
Analysis of the Prison Population and Underlying Issues1. Australia has increasing rates of adult
imprisonment despite crime rates being constant or decreasing
Overthelast20years,Australia’sprisonpopulationhasdoubled.At30June2014,therewere33,791peopleinAustralianprisonscomparedwith16,944peopleinAustralianprisonsinJune1994.
The prison population has doubled in the last 20 years.
The rate at which we imprison people has increased by 48%.
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19981999
20002001
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20042005
20062007
20082009
20102011
2012
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RobberySexual AssaultHomicide Kidnapping/abduction
Australiaisincreasinglyimprisoningpeople,withtheincarcerationrategrowingby48%overthetwodecadesto2014.Overthelastthreedecades,between1984and2014,therehasbeenanincreasefrom85.6to185.6peopleper100,000oftheadultpopulationinprison.
Atthesametime,ourincarcerationrateshavebeenincreasingwhileviolentcrimerateshaveeitherdeclined(robberyandsexualassault)orheldsteady(homicideandkidnapping/abduction)inrecentdecades5.
Thisdataisfurtherreinforcedby2014datafromtheAustralianBureauofStatisticswhichshowsthat:▪ between2013and2014,thenumberofrecorded
victimsdecreasedforthemajorityofoffencecategories.Robberyhadthelargestproportionaldecreaseof16%(1,825victims)
▪ homicide,kidnapping/abduction,robbery,unlawfulentrywithintentandmotorvehicletheftvictimsallfelltofiveyearlows6.
Victims of violent crimes, 1996-2012 (rate per 100,000 population)Note:Homicideandkidnappingeachoccuratratesoffewerthan5per100,000populationperyearandaredificulttodistinguishonthisgraph
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Despitecrimeratesbeingsteadyorfallingtherecontinuestobereportsaboutusfeelinglesssafe.Thiscancreateacycleofdrivingdecisionmakerstobetougheroncrime.
TheUnitedKingdomHouseofCommonsJusticeCommitteereportedin2010: ‘Widerfactors,suchasthemedia,publicopinion
andpoliticalrhetoric,contributetorisk-aversecourt,probationandparoledecisionsandhenceplayaroleinunnecessarysystemexpansion.IfMinisterswishthe(correctional)systemtobecomesustainablewithinexistingresources,theymustrecognisethedistortingeffectwhichthesepressureshaveonthepursuitofarationalstrategy’7.
International comparison rates
Australia’sincarcerationratesarerelativelyhighwhencomparedwithanumberofothersimilarWesterncountries.
Forexample,Sweden’simprisonmentrateis60%lower,Ireland’sis46%lowerandCanada’sis30%lower.However,NewZealand’sis25%higherthanAustraliaandtheUnitedStatesofAmericastandsoutwithanincarcerationratethatis360%greaterthanAustralia.
Bucking the trend in Tasmania
WithinAustralia,Tasmaniastandsoutasrunningcountertothetrendofconstantlyincreasingnumbersofprisoners.▪ OverthedecadeJune2005toJune2014,Tasmania’s
adultprisonpopulationfellby6%from551to448adultprisoners8,despiteanincreaseof6%inthepopulationofTasmania9.
▪ Overthesamedecade,therateofadultimprisonmentfellby25%from149.6per100,000oftheadultpopulationto112per100,000ofadultpopulationinTasmania.Fortheotherjurisdictionstheoverallincreasewas33%10.
RobWhite,ProfessorofCriminologyatUniversityofTasmania,hasidentifiedthereasonsforthissuccessasexpansionofbettersupportserviceswithinthecorrectionssystem,establishmentofinnovativeprojectsthatengageoffendersandtheuseofsystematicmeasuresthatencouragerehabilitation11.
Australia is jailing people at high rates, even though crime rates are steady or falling.
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2. Prisons are costly to build and operate
AcrossAustralia,thecostofprovidingcorrectionalservicesin2013/14was$3.9billion,mostlytooperatethe111prisonsinuseacrossAustralia($3.48billion).Lessthanhalfabilliondollars($0.48billion)wasspentoncommunitycorrections.
Thecostsofprovidingprisonsvaryconsiderablybyjurisdictionasshowninthediagram.TheaveragecostofincarceratingapersoninanAustralianprisonis$292perday12.
Evenwithgovernmentsspendingmoreonbuildingnewprisonsorexpandingexistingfacilities,manyprisonsarefullorovercrowded.In2013/14,prisonshadanoccupancyrateof104.4%acrossallAustralianjurisdictions.Thishighutilisationratemeansthatthereweremoreprisonersinprisonsthantheyweredesignedtohold.
Insomejurisdictions,solutionstoovercrowdinghaveincludedaccommodatingprisonersinfittedoutshippingcontainers14.Anothercommonapproachistousepoliceholdingcellstoaccommodateprisonerswhenprisonbedsarenotavailable15.
It costs $292 per day to keep someone in jail.
$239.64
$301.55
$266.32
$328.08
$260.76
$351.88
$393.83
$393.97
The daily cost of keeping a person jailed
Net recurrent expenditure, per prisoner and offender, per day 2013-1413
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3. Our prisons are not being used efficiently
Whiledataislimited,thereissomeevidencethattoomanypeoplearebeingheldinprisonforrelativelyminorcrimesorbecausetheyarewaitingforsentencingorcourthearings.Thisisnotanefficientuseofourprisonsystem,particularlygiventherelativelyhighcostsofholdingpeopleinprison.
AustralianBureauofStatisticsdata16suggeststhatshorttermprisonsentencesareparticularlycommonfortrafficandvehicleregulatoryoffences,aswellasoffencesagainstjusticeprocedures,governmentsecurityandoperations.Approximately14%ofallprisonersareinjailforthesecharges.Re-directingthesepeopletonon-custodialsentencesfortheseoffenceswouldreducecostsandavoidprisonforthesepeople.
Atthesametime,almostonequarter(24%)ofpeopleinprisonarenotsentenced(onremand).Peopleonremandaremadeupofunconvictedpeoplewhoareheldincustodywhilewaitingforatrialorcourthearingandconvictedpeoplewhoareawaitingsentencing.
At30June2014,therewereover8,200peopleremandedincustodyinAustralianprisonsandthisnumberhasdoubledoverthelast30years.In1984,only12%ofprisonerswereonremand.By2000thishadincreasedto17%ofallprisonersbeingonremand17 andby2014itwas24%.
Therearegoodreasonswhypeopleareremandedincustody,includingthelikelihoodoffailingtoattendtrial,preventingpeopleinterferingwithwitnessesandwheretherearereasonablegroundstobelievethatthepersonwouldcommitfurtheroffencesbeforetheirtrial.However,thegrowingrateofpeopleheldonremandisofconcern.
WhilethereislimitedAustralianresearchregardingpeopleonremand,researchfromtheUKindicatesthattheyaremorelikelythansentencedprisonerstobehomeless,unemployedorhavesomeformofmentalillness18.
OtherdatashowsthatAboriginalandTorresStraitIslanderpeoplesaremorelikelytoberemandedthannon-Indigenouspeople,with29%ofAboriginalandTorresStraitIslanderprisonersbeingonremandcomparedwith24%ofnon-Indigenousprisoners.
Thisdatasuggeststhathighlydisadvantagedpeopleareoftenputinprisonevenbeforetheyarefoundguiltyandconvicted.Therefore,theremaybeopportunitiestoreduceprisoncostsbyreducingthenumberofpeopleinprisononremandthroughmoreefficientandtimelycourthearingsandsentencingprocesses.
The number of people in jail awaiting sentencing has doubled in 30 years.
x2
These are often highly disadvantaged people who are defaulting to prison before they are found guilty or convicted.
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4. People in prison are likely to come from disadvantaged and socially excluded backgrounds
Availabledataindicatesthatpeopleinprisontendtobedisadvantagedandexcluded,oftenwithcomplex,longtermissues.Prisonerbackgroundstypicallyincludeloweducation,unemployment,mentalhealthissues,cognitiveimpairment,drugandalcoholuse,sexualabuseandfamilyrelatedissues.Inaddition,incarcerationratesarefarhigherforpeoplewhocomefromgeographiccommunitiescharacterisedbydisadvantageandforAboriginalandTorresStraitIslanderpeoples.
Peoplewithmentalhealthissuesaresignificantlyoverrepresentedintheprisonpopulation.ProfessorOgloff,ProfessorofForensicBehaviouralScience,DirectoroftheCentreforForensicBehaviouralScienceatSwinburneUniversityofTechnology,recentlycommented,‘Prisonersaretwotothreetimesaslikelyasthoseinthecommunitytohaveamentalillnessandare10-15timesmorelikelytohaveapsychoticdisorder.Ourresearchsuggeststhatoneinthreepeopletakenintopolicecustodyarelikelytobereceivingpsychiatrictreatmentatthetime.Ifyouincludethosewithasubstancemisusedisorder,thenumbersincreaseevenfurther’19.
TheAustralianInstituteofHealthandWelfare2012surveyofprisoners’healthunderlinedthelevelofmentalhealthissuesthatprisonersexperience,notingthatonentrytoprison:
• 26%ofpeoplearereferredtomentalhealthservicesforobservationorassessment
• 7%ofpeopleareatriskofsuicideorselfharm• 21%ofpeoplearetakingmedicationsforamental
healthdisorder20.
Peoplewithanacquiredbraininjuryalsoseemtobesubstantiallyoverrepresentedintheprisonpopulation.AVictorianstudyfoundthat42%ofmaleprisonersand33%offemaleprisonershadanacquiredbraininjurycomparedto2%ofthegeneralpopulationofAustralia21.
At30June2014,Australian-bornprisonersaccountedforfourineveryfiveprisonersinAustralia(81%or27,397prisoners),whileoverseas-bornprisonersaccountedfor18%ofallprisoners(6,035prisoners)22.
PeoplefromculturallyandlinguisticallydiversebackgroundsfacearangeofissueswhentheycomeintocontactwiththeAustraliancriminaljusticesystem.
TheyarelesslikelytounderstandthewaythecriminaljusticesystemworksthanthosewithproficientEnglishskills.Issuesincludelackofawarenessoftheirrightsinpolicequestioning,accessingbail,navigatingthecourtsystemandhowtonavigatetheprisonsystemandrules23.
Thefollowingbarriersarecitedascommontoculturallyandlinguisticallydiversecommunitieswithinthejusticesystem:
• culturalbarriers(languageandculturalnorms,aswellastraditionalgenderrolesandfearofauthorityfigures,suchaspolice)
• structuralbarriers(lackofknowledgeofavailableservicesanddifficultiesaccessingthem)
• service-relatedbarriers(e.g.servicemodelsareculturallyinappropriateorareperceivedtobeso)24.
5. High rates of crime are concentrated in a few communities that experience high levels of disadvantage
VinsonandRawsthorneintheirrecentstudyoflocationaldisadvantageinAustraliapointedtoasmallproportionofoffenderscommittingalargeproportionofcrime25.InmeasuringlocationaldisadvantageinAustralia,VinsonandRawsthorneuseddataoncriminalconvictionsandprisonadmissionsaspartofthedataset.
TheevidencethatlocationmattersinunderstandingtheincidenceofcrimeisalsoshowninareportbyAllardetal.
“Thereisalargebodyofresearchindicatingthathighcrimeratesaretypicallyconcentratedinsmallgeographicalareascharacterisedbystructuraldisadvantage,includingloweconomicstatus,poverty,segregation,ahighproportionofsingleparentfamilies,residentialinstabilityandalargeproportionofracial/ethnicminoritygroups”26.
Allardetal’sstudyfocusedontargetingcrimepreventionthroughidentifyingQueenslandcommunitiesthatgeneratechronicandcostlyoffenders.Itfoundthat15.8%ofoffendersaccountedfor67%ofoffencescommitted.Thestudyalsoidentifiedthatchronicoffendersarenotrandomlydistributedgeographicallybutratherthatchronicoffendersarelikelytoliveinspecificpostcodes.
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6. Prisons are not effective in rehabilitating people or deterring crime
Althoughsomeprisonsprovidearangeoftrainingandworkreadyskilldevelopment,generallytheevidencesuggestsprisonsarenoteffectiveinachievingtwooftheprimarygoalsthatareoutlinedforcustodialsentencesintheSentencingActsofgovernmentsaroundAustralia:rehabilitatingoffendersanddeterringoffendersfromcommittingoffences.At30June2014:
• 59%ofprisonersincustodyhadbeensentencedpreviouslytoanadultprison
• 77%ofAboriginalandTorresStraitIslanderprisonershadbeensentencedpreviouslytoanadultprison.
Further,dataonrecidivismindicatesthatabout38%ofprisonersarereimprisonedwithintwoyearsoftheirrelease27,eitherbecausetheyhavereoffendedorbecausetheyhavebreachedtheirreleaseconditions.Manyprisonersre-offendwithinthefirst3weeksofbeingreleased.
Ratherthandeterringcrime,prisonsmayhavetheoppositeimpactofincreasingthelikelihoodofapersonreoffending.Inaresearchstudyofpeopleconvictedforeithernon-aggravatedassaultorburglary,ProfessorWeatherburn,DirectoroftheNSWBureauofCrimeStatisticsandResearch,found“Thereisnoevidencethatprisondetersoffendersconvictedofburglaryornon-aggravatedassault.Thereissomeevidencethatprisonincreasestheriskofoffendingamongstoffendersconvictedofnon-aggravatedassaultbutfurtherresearchwithlargersamplesisneededtoconfirmtheresults”28.
Prisonersoftencycleinandoutofprison,withrelativelyshortepisodesofincarcerationfollowedbyreleasetothecommunity.Thischurnfactormeansthatthemedianlengthoftimeinjailforsentencedprisonersis1.8years29.
ProfessorStuartKinner,SchoolofCriminologyandCriminalJustice,GriffithUniversity,hasrecentlyestimatedtherewere42,239peoplereleasedfromAustralianprisonsin2013/1430.Almost60%ofthosepeoplewillhavepreviouslybeenreleasedfromprisonandreturned.Thisunderlinestheimportanceofreformtoreducethenegativeimpactofrepeatedprisonstaysonpeople’slives.
Prisonisalsonotthesolutionforpeoplewithcomplexneedswhoaregenerallyoverrepresentedinprison.
Baldrystatesthatprisoncan“makeapersonatargetforre-arrestandre-imprisonment;itdisruptssocialconnectionsandlockspeopleintoserialinstitutionalisation,doesnotguaranteegoodorappropriatetreatmentandoftenanytreatmentstartedisnotcontinuedinthecommunityuponrelease;itmakeshomelessnessmorelikely,createsconnectionswithcriminalculture,ensuresthelearningofprisonculturetosurviveandoftencausesself-harmanddepression”31.
Imprisonmentalsoimpactsfamiliesofprisoners,aschildrenloseparentsandspouseslosepartnerswhiletheyareincarcerated,withtheimpactsoftenbecomingintergenerational.UKdatashowsthatthechildrenofprisonersaresixtimesmorelikelythantheirpeerstobecomeprisoners.InAustralia,GoodwinandDavisfoundthatthechildrenofparentswithacriminalrecordhaveamuchgreaterlikelihoodofbecominginvolvedincrimethanthechildrenofparentswhodonothaveacriminalrecord32.
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7. Incarceration rates for Aboriginal and Torres Strait Islander peoples are unacceptably high
AboriginalandTorresStraitIslanderpeoplescontinuetobeoverrepresentedwithinthejusticesystem.BetweenJune2013andJune2014,theadultimprisonmentrateofIndigenousadultsincreasedby6.5%to2,175prisonersper100,000ofadultAboriginalandTorresStraitIslanderpeoples33.
TheIndigenousimprisonmentrateis13timeshigherthanitisfornon-IndigenouspeopleinAustralia34.
Thishighincarcerationrateisreflectedinan88%growthinprisonernumbersamongAboriginalandTorresStraitIslanderpeoplessince2004.Overthesameperiodthenon-Indigenousprisonernumbersgrewby28%35.
AboriginalandTorresStraitIslanderpeoplestendtobeimprisonedforrelativelyminormattersthatarelesslikelytoresultinprisonsentencesfornon-Indigenouspeople.ThisisreflectedinshorterprisonsentencesforAboriginalandTorresStraitIslanderprisoners(1.2years)comparedwithtwoyearsfornon-Indigenousprisonersin201436.
PreviousreviewsandreportshavehighlightedtheoverrepresentationofAboriginalandTorresStraitIslanderpeoplesinprisonincludingtherecentAmnestyInternationalreport,whichshowsthatAboriginalandTorresStraitIslandermenaretwiceaslikelytobeinprisonastheyareinuniversity37.
TheAmnestyInternationalReporthasagainhighlightedtheextraordinaryoverrepresentationofAboriginalandTorresStraitIslanderyoungpeopleintheyouthjusticesystem.Onanaveragenightin2013–14,therewere430IndigenousyoungpeopleindetentioninAustralia.Despitemakinguponly5.5%ofthepopulationof10to17yearolds,Indigenousyoungpeoplemadeupoverhalfofallyoungpeopleindetention(430outof724)38.
The2011inquirybytheStandingCommitteeonAboriginalandTorresStraitIslanderAffairsshowsthathighlevelsofcontactwiththecriminaljusticesystembyIndigenousyoungpeopleis“asymptomofthebroadersocialandeconomicdisadvantagefacedbymanyIndigenouspeopleinAustralia”39. SimilarconclusionswerereachedduringtheRoyalCommissionintoAboriginalDeathsinCustody40.
AbroadrangeofAboriginalandTorresStraitIslanderandnon-IndigenousorganisationsundertheChangeTheRecordCoalitionhavelauncheda‘BlueprintforChange’includingasetofrecommendations,(atAppendixB)thatalignwiththerecommendationsinthisreport.TheChangetheRecordBlueprintisbasedonawholeofgovernmentstrategy,thesettingofjusticetargets,andacommitmenttoworkinpartnershipwithAboriginalandTorresStraitIslandercommunitiestodrivesolutions.TheBlueprintalsohighlightstheneedtoworkwithAboriginalandTorresStraitIslandercommunitiestoinvestinholisticearlyintervention,preventionanddiversionstrategies.41
WealsoknowfrompaststudiesandreviewsofIndigenousprograms,thatAboriginalcontrolledorganisationsmustcontinuetobesupportedandfundedtodeliverqualityandculturallysensitiveservicestomeetthehighlevelsofunmetneed,andtoaddresstheunderlyingcausesofhighincarcerationratesinmanycommunities.
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WoorabindaisanAboriginalcommunityof970peopleinCentralQueensland,about180kilometressouth-westofRockhampton.Thirty-sixpercentofthepopulationisunder15andthemedianageis22years-significantlybelowthemedianageforAustraliaof37years.
AustralianRedCrossstartedworkingwiththeWoorabindacommunityin2008aspartofaplace-basedprogramapproach.TheteamusestheSaltwater-FreshwatergovernancemodeltoensuretheintegrityandstrengthofWoorabindacultureisrespectedandmaintainedwhileprovidingexpertisefromoutsideofthecommunity.
AGovernanceGroupconsistingofWoorabindacommunitymembersandRedCrossmanagementensurethatservicesandinitiativesenactedinthecommunitysupportthecommunity’svisionandgoalsandadoptaplace-basedapproach.Thereare17fulltimeandparttimelocalpeopleemployed,makingRedCrossthetown’sthirdlargestemployer.
Overall,theinvestmentinthecommunityofWoorabindaanditsyoungpeoplehassupportedamorepositiveoutlook,helpedbuildprideintheircommunityandledtobehaviourchangesresultinginfeweryoungpeopleinthejusticesystem.ThenumberofyoungpeoplesubjecttoyouthjusticeordersinWoorabindahasdecreasedfrom31in2009to14in2013,a55%decrease.Thecommunityisclearthattheinitiativesthathavebeenputinplaceaspartofaplace-basedapproachhavecontributedtoasolidcommunityefforttoreduceyouthjusticeorders.
Alongwiththecommunity,theYouthSupportteamhasdesignedandimplementedanapproachtosupportingyoungpeopleinthecommunitytobuildself-esteemandconfidence.Leadershiptrainingandskillsdevelopmentareemphasisedtogetherwithyoungpeoplebeingrolemodelsforyoungerchildren.MultimediaandmusicareusedextensivelytohelpyoungpeopletotelltheirstoryandthehistoryofWoorabinda.
JobeAdams,15,foundapassionforfilmmakingandmadeBuloo,afilmaboutDarren,aboywhowantedtobelikehisgrandfather.Buloo(meaning“grandfather”)depictshowDarren’sgrandfathertaughthimtorespecthisElders,helphiscommunityandprotecthislanguage.Jobewasawardedsecondprizeinthe2014TropJunior,partoftheTropFestFilmFestival.
AnotherareaofconcerntheWoorabindacommunityidentifiedwasthelackofsupportforadultstocompleteCommunityServiceOrders(CSOs)meaningthatpeoplewerebeingincarcerated.ByfocusingontheopportunitiesthatcouldbegeneratedthroughCSOs,18peoplenotonlycompletedtheirordersinsixmonthsbutalsoobtainedaCertificateIIIinPestControl.TwootherpeoplecompletedCertificateIIIinFitnessandwentontogainemploymentwiththeWoorabindaShireCouncil.Inaddition,angermanagementworkshopswereprovidedwiththefeedbackbeingthatthesehavebeenvaluableforpeopleinmakingchangestotheirbehaviour.
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Working the Woori Way
18 | VULNERABILITY REPORT 2016SECTION TWO
Rethinking Justice and Policy Reforms1. What is justice reinvestment?
AustralianRedCrosssupportsthebroadersectorviewsregardingjusticereinvestmentasofferingastrongapproachforrethinkingandtransformingAustralia’sjusticesystems.
Whilethereisinternationaldebateanddiscussionregardingthetermjusticereinvestment,AustralianRedCrossunderstandsjusticereinvestmentasamechanismthatredirectsmoneyawayfromincarceratingpeopleinprisonsandtowardscommunitybasedinitiativesaimedataddressingtheunderlyingcausesofcrime.Justicereinvestmentisunderpinnedbythefollowingstartingpoints:• theevidenceshowsthatimprisoningpeoplefailsto
achieveintendedoutcomesintermsofrehabilitation,deterrence,orimprovementsincommunitysafety
• alargeproportionofoffenderscomefromarelativelysmallnumberofdisadvantagedcommunities.Therefore,locallydrivenapproacheswillbeessentialtojusticereinvestment
• alongsidecommunity-ledimplementationofsolutionstheuseofdata,mappingandeconomicmodellingtodriveevidencebasedinitiativeswillleadtomoreeffectiveoutcomes.
2. How does justice reinvestment work?
Justicereinvestmentinvolveslocalstakeholderscollaboratingacrosstheircommunitytoidentifythedriversofcriminaljusticecosts.Theythendevelopandimplementnewwaysofreinvestingscarceresources–bothinthecommunityandwithinthejusticesystem.Thisisdoneinawaythatyieldsamorecostbeneficialimpactonpublicsafety.42
Theessentialstepsinthejusticereinvestmentapproachare:• justicemapping-analysisoftheprisonpopulation
andpublicspendinginthecommunitieswhichhavehighratesofcrimeandimprisonmentoftheircitizens
• optionsforchange-provisionofoptionstopolicymakersforthegenerationofsavingsandincreasesinpublicsafety
• actions-implementationofoptions,quantification ofsavingsandreinvestmentintargeted high-riskcommunities
• evaluation-measurementofimpacts,evaluationandassuranceofeffectiveimplementation.43
Father and son take part in a Red Cross run parenting session. Community support programs like this target towns and suburbs where poverty, disadvantage and crime are common.
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IntheUS,whereincarcerationratesarecomparativelyhigh,justicereinvestmenthasparticularlydirectedfundstokeypointsinthecriminaljusticesystem:arrest,pre-trial,supportingnon-custodialsentences,bettersupportonreleaseandcommunitysupervision.44
JusticeReinvestmenthasbeenstronglytakenupintheUnitedStatessincethefirstJusticeReinvestmentlegislationwaspassedinConnecticutin2004.AformalJusticeReinvestmentInitiative(JRI)sponsoredbytheU.S.DepartmentofJusticeBureauofJusticeAssistancewaslaunchedin2010.
AtleastseventeenAmericanstatesarenowparticipatinginformalpartnershipswiththeBureautoimplementjusticereinvestmentstrategies.
TheJusticeReinvestmentInitiativewastheformalimplementationstrategybytheCouncilofStateGovernments(CSG)anditsnowprincipalfunders,PewCharitableTrusts(Pew)andBureauofJusticeAssistance(BJA).Theoriginalintentwastoreducecorrectionspopulationsandbudgetstogeneratesavingstobereinvestedincommunitieswithhighincarcerationratestomakethemsafer,stronger,moreprosperousandequitable.
However,therehasbeensomecommentarythattheformalisedJRIhasmovedawayfromthesegoals,seekingtoreducetherateofprisongrowthratherthanalsofocusingonreinvestingthesavingsincommunities.45
AnyjusticereinvestmentprojectsdevelopedwithinAustraliashouldlearnfromoverseasexperienceandhaveastrongfocusonusingsavingsinprisonexpenditureforreinvestmentintocommunities.
Implementation at the local level
Atthelocalleveljusticereinvestmentworksbestwhencommunityrepresentativesworkside-by-sidewithcriminaljusticeandpolicyexperts.
Thekindsofactivitiesthatwouldhappeninalocalcommunitytopreventcrimeandaddressitscausesarelikelytoinclude46:• afocusonpreschoolforyoungchildrenbuilding
onthestrongevidencethatqualityearlychildhoodeducationsignificantlyimproveschildren’slifechances,includinglowerratesofoffendingbehaviour
• educationprogramsthathelpkeepat-riskyoungpeopleengagedinschoolorfurthertrainingalongwithintensivetherapyprograms,mentoringandthecreationofrecreationalandemploymentopportunitiesforyoungpeople
• enhancedsupportforevidence-basedcommunitybasedmentalhealth,drugandalcoholtreatmentandothersocialsupportprograms
• crisisstabilisationbedstoholdpeopleexperiencingsubstanceinducedormentalhealthepisodes
• cognitivebehaviouraltherapiessuchasangermanagementandcounsellingalongwithbettersupportforwomeninabusiverelationships
• familysupportservicessuchasparentingprograms,enhancedmaternalandchildhealthcareandotherearlyinterventionprograms
• targetedsupervisionofoffendersonparolebackedbysophisticatedscreeningtoensurethefocusisonthosewhopresentthemostrisk
• intermediatesanctionfacilitiesandgraduatedpenaltiesfortechnicalbreachesofparolealongwithlocalproblemsolvingcourtsparticularlywheretheoffendingbehaviourisrelatedtosubstanceabuseormentalhealthissues
• effectiveassistancetoensurestableaccommodation,managefinances,findandkeepemploymentandtoreunitewithfamilytoensuresuccessfulreintegrationintothecommunityfollowingreleasefromprison.
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3. Current justice reinvestment trials occurring or being investigated in Australia
Thefollowingareasampleofsomeofthelocationswherejusticereinvestmentisbeingexplored.Thelearningsfromthesesitescouldbecapturedandsharedacrossthecountrytoinformfuturework.Whileeachlocationisuniqueandthesolutionswilldiffer,theconceptofjusticereinvestmentascommunity-ledandownedshouldbecommoninalllocations.
Bourke,NewSouthWales:TheBourkeAboriginalCommunityWorkingParty(BACWP)hasbeenworkingwithJustReinvestNSWsince2012toestablishthistrial.TheBACWPisthepeakrepresentativeorganisationforthelocalAboriginalcommunitywithmembersfrom18differentorganisations.
TheyareusingajusticereinvestmentapproachtobreaktheintergenerationalcycleofoffendingandincarcerationthroughalocallydevelopedagendaforchangecalledMaranguka(meaning‘togivetothepeople’,‘caring’and‘offeringhelp’inthelanguageoftheNgembaNation).
ThefirstpriorityofMarangukaistoreduceAboriginalcontactwiththecriminaljusticesystem.TheNSWGovernmentissupportingthetrialthroughin-kindresourcing.Therearealsopro-bonoservicesprovidedbyphilanthropicandcorporatesources.Thefirstphasehasfocusedonrelationshipbuilding,withspecificinitiativesbeingimplementedovertime. Cowra,NewSouthWales:Aresearchprojecttitled‘ReducingincarcerationusingJusticeReinvestment:anexploratorycasestudy’isbeingledbyDrJillGuthriefromtheNationalCentreforIndigenousStudies(NCIS)atTheAustralianNationalUniversity(ANU).ThecasestudysiteisCowra,NSW.TheresearchisbeingguidedbyaResearchReferenceGroupthatincludestheCowraShireCouncil,CowraAboriginalLandCouncilChair,andthePresidentoftheNSWChildren’sCourt,JudgePeterJohnstone.
TheresearchteststhetheoryandmethodologyofJusticeReinvestmentinthecasestudysite.ThisprojectisanexploratorystudyinvolvingaconversationwithCowrapeopletoidentifywhatenablesyoungpeopletoleadmeaningfullivesinCowra.It’sahypotheticalstudy,notaninterventionstudy-soforyoungpeoplewhomayhavebecomeinvolvedwiththecriminaljusticesystem,theresearchalsoexplorestheconditions,theunderstandingsandtheagreementsthatwouldneedtobeinplacesothatthoseyoungpeoplewhoareincarceratedcouldconfidentlyreturntothetownandleadmeaningfullives.
Theresearchcouldpotentiallyresultinfindingsandrecommendationsforaddressingthelevelsofyoungpeople(bothIndigenousornon-Indigenous)comingintocontactwiththecriminaljusticesystem.Also,theresearchcontributestobroaderunderstandingsofJusticeReinvestmentlocallyandnationally.
Formoreinformationontheresearchprojectpleasesee:http://ncis.anu.edu.au/cowra
Ceduna,SouthAustralia:AustralianRedCrossisfacilitatingengagementwithAboriginalcommunitiesinandaroundCedunaonjusticeissuesforAboriginalpeoplelivinginthearea.
Thenextphaseinvolvesdevelopingacommunity-ownedjusticeactionplantoaddressthecausesofcrimeinCeduna.TheinitiativeislinkedtotheSouthAustralianJusticeReinvestmentWorkingPartywhichisworkingwiththeSAGovernmentonjusticereinvestment.TheengagementcommencedinFebruary2015andisfundedbytheIanPotterFoundationandCollierCharitableFund.
Katherine,NorthernTerritory:SinceApril2015,theNorthAustralianAboriginalJusticeAgencyandtheNorthernTerritoryCouncilofSocialServicehavebeenconsultingwithabroadrangeofcommunitymembersandotherstakeholderstoinformtheintroductionofajusticereinvestmentframeworkinKatherine.
ThisprocessisbeingsupportedbyfundingfromtheNorthernTerritoryLawSociety.ASteeringCommitteeiscomprisedoftheKatherineAboriginalandTorresStraitIslandercommunity,Katherinecommunityorganisationsworkingwithyoungpeople,policeandcourtsaswellasfromTerritory-wideNGOsbasedinDarwin.
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4. Recommendations for rethinking justice – safer communities, reduced crime, more productive government expenditure
ThissectionofthereportdetailsrecommendationsforrethinkingcriminaljusticepolicyacrossAustralia.Theserecommendationsincludeajusticereinvestmentapproachandotherpolicyreformstoachievesafercommunities,reducedcrimeandmoreeffectivespendingbygovernments.
Australian governments change their approaches to justice and introduce justice re-investment
Justicepoliciesshouldaimtoreducethenumberofpeopleenteringthecriminaljusticesystemandthelikelihoodofpeoplere-offendingafterservingprisonsentences.Toachievetheseoutcomes,AustralianRedCrossrecommendsandlendsitssupporttothebroadersectorthatjusticereinvestmentshouldbeacentralelementofjusticepolicy.
Theintroductionofjusticereinvestmentwillrequireresourcestobefreeduptoreinvestininitiativesthatdealwiththeunderlyingcausesofcrimeincludingissuesofsubstanceuse,mentalhealthissues,domesticviolence,lackofeducationandtraining.Investmentwillneedtofocusonstrengtheningdisadvantagedcommunitiestoaddresstheconditionsthatgiverisetocrimeinthesecommunities.
WhilejusticereinvestmentisalreadybeingexploredinAustralia,abetterresourcedandmorecoordinatedapproachisrequiredacrossalljurisdictionsthathaveprimaryresponsibilityforcriminaljusticesystems.AustralianRedCrossrecommendsthattheLaw,CrimeandCommunitySafetyCouncil(LCCSC)withintheCouncilofAustralianGovernments(COAG)shouldtakeresponsibilityforgovernmentcoordinationandsupportforjusticereinvestment.JusticereinvestmentappearstositneatlywithinexistingresponsibilitiesoftheCouncilwhichinclude‘…developinganationalandTrans-Tasmanfocusonfightingcrimeandpromotingbestpracticeinlaw,criminaljusticeandcommunitysafety,includinginpolicy,operationsandserviceprovision’.47
TheLCCSCshouldgiveprioritytofurthersupportingjusticereinvestmentinAustralia.WesuggestthefollowingactivitiesbeadoptedbyAustraliangovernmentsandsupportedthroughtheLCCSC:• establishsystemstoprovideamorerobust
understandingofthefinancialcostsofcrime,justiceandimprisonmentandmakethisinformationavailabletoinformplanningforjusticereinvestment
• supportandresourcegeographicanalysisandmappingofdatatoinformthedevelopmentandappropriatetargetingofjusticereinvestment.Thisworkwouldincludedatacollectionandaccesstoaggregateddataonthepostcodespeopleliveinimmediatelypriortoincarcerationandthepostcodestheyliveinimmediatelyfollowingreleasefromprison
• establishanationalresearchframeworkandstrategicagendatoincreasetheknowledgebaseforimplementingjusticereinvestment,includinglongitudinalevaluationofthejusticereinvestmenttrialsrecommendedinthisreport
• establishandmaintainanationalclearinghouseofinformationregardingjusticereinvestment
• undertakepubliceducationcampaignstosupportbalancedinformationandperceptionsofcrimeandjusticeissueswithinthecommunity.
Therewillalsoneedtobeanincreasedcapacityforrigorousdataanalysisandsharingofinformationacrossjurisdictionstosupportinvestmentdecisionsandtohelpbuildtheevidencebaseofwhatworks.AnumberofexistingagenciescouldsupportthisworkincludingtheAustralianInstituteofCriminology,theAustralianBureauofStatistics,theAustralianInstituteofHealthandWelfare,theProductivityCommission(throughtheGovernmentServicesReport)andstateandterritoryagenciesthatcurrentlycollectdataandundertakeresearch.
AustralianRedCrossunderstandstherewillbechallengesinmovingtoajusticereinvestmentapproachincluding:• thepoliticisednatureandpublicperceptionsofcrime,
imprisonmentandcommunitysafety• thecomplexityofdevelopingeffectivelongterm
solutionstodeepandpersistentdisadvantage• thechallengesofcoordinationbetweenandwithin
relevantgovernmentdepartments,aswellasthedifferingcircumstancesineachstateandterritory.
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TheAustralianJusticeReinvestmentProject48hasconsideredthelessonsarisingfromtheUSexperienceofjusticereinvestment,aswellasthebroaderliteratureandidentifiedthefollowingkeypreconditionsforsuccessfullyimplementingjusticereinvestmentreform.Theseinclude:• bipartisanship• strongleadership• earlyidentificationoftherightpeopletoengageas
stakeholders• substantialbuyinfromallsectors• ongoingcommitmenttoimplementationatthe
reinvestmentphase• effectivecommunityengagement.49
InestablishingjusticereinvestmentinAustralia,governmentsandotherstakeholdersshouldensurethatthesesuccessfactorsareincludedintheirapproaches.
Recommendations
1.ThatallgovernmentsinAustraliarethinkandchangetheirapproachestojusticetoachievelowercrimerates,lowerincarcerationrates,reducedprisoncostsandstronger,safercommunities.
2.ThatallgovernmentsinAustraliaintroduceajusticereinvestmentapproachandjointlysupportitsimplementationthroughtheLaw,CrimeandCommunitySafetyoftheCouncilofAustralianGovernments.
Justice reinvestment trials are supported by Australian governments and expanded to every state and territory
AustralianRedCrossrecommendsthatAustraliangovernmentsestablish,fundandevaluatetrialsofjusticereinvestmentinacoordinatedanddeliberateway,beyondthefewtrialscurrentlyunderway.
Theselectionofspecificcommunitiestotrialjusticereinvestmentshouldbeinformedbyanalysisofrelevantdataandbasedonengagementwithlocalcommunitiesabouttheirjusticeissues.50Theselectedtrialsitesmusthavestrongcommunitygovernancestructuresinplace,eitherbydrawingonexistingstructureswheretheyexistorestablishingnewones.51
Inadditiontothefourlocaltrialsitesoutlinedearlierinthereport,anumberofstategovernmentsaresupportinginitiativesthatreflectajusticereinvestmentapproach.Theseinclude:• theACTGovernmentfundedajusticereinvestment
initiativeinthe2014/15budget.TheACTJusticeandCommunitySafetyDirectorateisworkingcloselywitharangeofgovernmentandnon-governmentstakeholderstoidentifythedriversofcrimeandcriminaljusticecostsanddevelopandimplementnewwaysofreinvestingfunds
• theSouthAustralianGovernmenthascommittedtoimplementingjusticereinvestmenttrialsintwolocations.PortAdelaidehasbeenselectedasapotentialtrialsiteandtheAttorney-General’sDepartmentisconsultingwithcommunitymembers,serviceproviders,government,non-governmentorganisationsandothersaboutapossiblejusticereinvestmenttrialforPortAdelaide
• theNSWGovernmentissupportingtheBourkejusticereinvestmenttrialthroughdataprovisionandanalysis,Ministerialinputandthesecondmentofpersonneltothetrial.
AustralianRedCrosslooksforwardtothelearningsthatwillarisefromtheseinitiatives.Wenotethatmostinitiativesareintheirearlystagesandarerelativelyfragilewithlimitedresourcing.Theyareeachrespondingtotheiruniquesituationsandthereisnocoordinatednationalapproachtodrivedataanalysis,sharingoflessonsandconsistentevaluationstobuildanevidencebaseofwhatworks.
AustralianRedCrosscallsonAustraliangovernmentstocommittotheexistingandemergingtrialsofjusticereinvestment.Further,thosejurisdictionsthatdonothaveexistingjusticereinvestmenttrialsshouldinvestininitiativesintheirstateorterritory.
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Recommendations
3.ThatallgovernmentsinAustraliaestablish,fundandevaluatejusticereinvestmenttrialsacrossAustraliainspecificgeographiccommunitieswithhighratesofcrimetodeterminehowjusticereinvestmentcanbeappliedinAustraliancontexts.
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Australiangovernmentscouldsupportjusticereinvestmenttrialsthroughproviding:• analysisandinterpretationofadministrativedata
heldingovernmentdepartmentsandagencies• fundingforrobustevaluationsofthetrialsitesand
sharingoflessonslearned• supportfortheimplementationofcommunity-
developedjusticeactionplansthatredirectexistinggovernmentfundingtoinitiativesandprogramsthataddresstheunderlyingcausesofcrimeintheircommunities.
Inadvocatingfortrials,AustralianRedCrossemphasisesthatjusticereinvestmentmustbelocallydrivenandreflectwhatisoftenreferredtoasaplace-basedapproach.Aplace-basedjusticereinvestmentapproachwould:• identifythereasonswhycrimeoccursinthespecific
community• usecommunitygovernancestructurestomobilisethe
communitytoidentifyrealandeffectivesolutionstothecausesofcrime
• uselocalcommunitygroupstoimplementthesolutions
• givethecommunitygreatercontroloverspendingonnewinitiatives
• measuretheeffectivenessofnewprograms• makefurtherinvestmentsbasedonrefiningofwhat
workstobetteraddressthecausesofcrimeinthespecificcommunity.
Inaddition,thereshouldbeastrongfocusonAboriginalandTorresStraitIslandercommunitiesinanyjusticereinvestmenttrials.
Thetrialsshouldbeimplementedoveratleastafiveyearperiodtoallowrobustfindingstobedetermined,includingtheuseofpreandpoststudiesofoutcomesachieved.Withinthatperiodtherewillbeopportunitiestoshareearlyfindingsandlessonslearnedtorefinethedesignandapproachesofthetrials.Theevaluationsshouldalsoincluderigorouscost/benefitanalysestodetermineifthejusticereinvestmentapproachisachievingmoreeffectivegovernmentexpenditure.
Governmentswillneedtoprovideinitialfundingtoseedjusticereinvestmenttrials.Savingsfromreductionsincorrectionalandothercriminaljusticecostswillnotoccurimmediatelyandwilldependonthescaleofthetrialsites.TheACTandSouthAustralianGovernmentshavecommittedfundsintheirforwardbudgetstoseedtrialsintheirjurisdictionsandtheNSWGovernmenthasprovidedin-kindsupporttotheBourketrial.
AustralianRedCrosscallsonothergovernmentstoprovideinitialfundingfortheirlocaljusticereinvestmenttrialsites.
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TheRedCrossStepOutprogramsupportsyoungpeopleagedbetween14and25inAdelaideandsurroundingareas,whoareatthe‘pointyend’oftheoffendingspectrum.Theyhavebeeninvolvedwiththeyouthjusticesystemsmorethanonce,orreceivedmorethanoneyouthjusticeorder;and/orareatriskofre-offending.Theyareoftenalsodealingwithacomplexsetofunderlyingissuessuchasmentalhealth,delayeddevelopment,drugoralcoholabuse,andphysicalandemotionaltraumas.
StepOutlinksyoungpeopletoadedicatedmentortoregularlysupporttheyoungpersonaftertheirrelease,providingopportunitiesandexperiencestohelptheyoungpersonsuccessfullytransitionbackintothecommunity.Keyelementsincluderolemodellingofpositivebehaviours,establishingsupportnetworksforyoungpeopleandadvocatingontheirbehalftootheragenciesororganisations.
These young people are at the sharp end of the offending spectrum. Without the right support they are likely to follow a terrible trajectory. Most of them – 9 out of 10 would not be an exaggeration – without intensive support will be institutionalised…” Senior Sergeant, SA Police
AnanalysisoftheStepOutprogrambySocialVenturesAustraliahighlightedkeyfeaturesforsuccessfulmentoringofyoungpeoplecomingoutofprison:
• Voluntaryparticipationandparticipantguidedsupport - Youngpeoplechoosetoparticipateintheprogram,theyarenotmandatedbythecourtsorotheragenciestojoinandtheycanchoosewhentodisengage.Youngpeoplefeelempoweredandincontrol,whichbuildsdeeperengagementwiththeprogramandcontributestowardsyoungpeopleembracingchange.
• Relatablementorswithauniqueabilitytoconnectwithyoungpeople-Youngpeopleemphasisetheabilitytorelatetotheirmentorsasacriticalcomponentinbuildingatrustingandopenrelationship.Consultationswithyoungpeopleshowedastrongbondthatmentorsestablishedwiththeirmentees.
• Establishingsupportnetworksforyoungpeople-Oneofthemostimportantfactorsinyoungpeopleoffendingbehavioursislackofpositivesupportnetworksinthecommunity.Anexplicitaimofmentorsisestablishingconnectionsbetweentheyoungperson,theirfamiliesandsignificantothers(whereitishelpfultodoso)orothersupportivenetworks.
• Advocatingtootheragenciesonbehalfoftheyoungpeople-StepOutplaysavitalrolebyhelpingyoungpeopleidentifyandaccesscrucialsupporttheyneedfromotherorganisationsoragencies.
The Step Out Program pilot commenced in South Australia in 2010 with the support of the Commonwealth Attorney General’s Department, Matana Foundation for Young People and Red Cross. Since then, Step Out received continued support from Matana Foundation for Young People and is currently funded by South Australian Government and Red Cross.
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“Stepping Out” from prison back into the community
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5. All state and territory governments should commit to broader justice reform policies
Inadditiontojusticereinvestment,AustralianRedCrossbelievesthereisaneedforAustraliangovernmentstoenactbroaderreformstothecriminaljusticesystems.WenoteanumberofAustraliangovernmentsarealreadyimplementingimportantjusticereformsandencourageallstateandterritorygovernmentstolearnfromtheseinitiativesanddevelopfurtherevidencebasedreforms.
Recentreformsinclude:• theSAGovernment’senhancementofcommunity
basedsentencingoptionsforadultsandyoungpeople
• theWesternAustralia’sTurningPointprogramallowsoffenderstoundertakeatailoredprogramtoaddresstherootcauseoftheiroffending
• theVictorianGovernmenthasfundedaninitiativetodivertAboriginalandTorresStraitIslanderpeoplesawayfromtheyouthjusticesystem.
RedCrossrecommendsreformsareputinplacethatfocusonkeyeventsinthejusticesystem:
Before a crime is committed for the first or subsequent times • Reformsshouldfocusonearlyinterventionand
preventiontoavoidpeoplefromcommittingcrimesandfromrepeatoffending,particularlylessseriouscrimes.
When a person is being sentenced for a crime • Reformsshouldfocusonnon-custodialsentencesfor
lessseriouscrimes.
When a person is being released from prison and being reintegrated into the community • Reformsshouldfocusonearlypreparationfora
positiveintegrationbackintothecommunity.
Furtherdetailandrecommendedstrategiesforeachofthesepointsareoutlinedbelow.
Reforms to prevent crime and recidivism
Stateandterritorygovernmentsshouldconsiderthefollowingoptionsforcrimeprevention:• Fundprogramstopreventyoungpeoplefrom
enteringorbecomingentrenchedinthecriminaljusticesystemby:- establishingandincreasingyouthoffendingteamstocoordinateservicesandworkwiththeyoungperson,theirfamilyandcommunityindealingwiththefactorsinayoungperson’slifethatimpactontheirwellbeingandinfluenceoffendingincreasingtheuseofcommunity-ledtherapeuticandrestorativejusticeapproachesincludinghealingcirclesandyouthconferencing
- greateruseofoutofcourtoptions.Evidencetellsusthattherapeuticandrestorativeprocesses,suchasRestorativeJusticeprogrammodels,KooriandMurricourts,drugscourtsandhealingcircles,arewaysinwhichthecriminaljusticesystemcanhelptorebuildrelationshipsanddeliverpositiveoutcomesfortheentirecommunity.52
• providefundingforservicesforidentifiedpeoplewhohavehighratesofre-offendingandmultiplecustodialsentences.Suchservicesshouldworkwithpeopleandtheirfamiliesoverthelongtermusingamulti-disciplinaryapproach
• buildupontherangeofexistingrestorativejusticeapproachesandprogramswhichinvolve,totheextentpossible,thosewhohaveastakeinaspecificoffenceandtocollectivelyidentifyandaddressharms,needsandobligations,inordertohealandputthingsasrightaspossible
• createpathwaysawayfromcrimebyfundingearlyintervention,preventionanddiversionprogramsfornon-seriousoffendersbeforetheygettocourt.Whereappropriate,lessseriousoffendersshouldbedivertedtocommunitytreatmentoptionsfordrug,alcoholandmentalhealthissues.Supportshouldalsobeprovidedtobuildlifeskillsandtoattaineducation,trainingandemployment.
26 | VULNERABILITY REPORT 2016
Reforms to increase non-custodial sentencing
Stateandterritorygovernmentsshouldconsiderthefollowingoptionstopromotesentencingreform:• ensurelegislationandregulationsprovideforrisk
assessmentstobeundertakenaspartofcourtdeterminationsonsentencing,withcourtsrequiredtomakenon-custodialorderswherethereisnosubstantiverisktothepublic
• overseelegislativechangesothat:- courtsarenotpermittedtoremandpeopleincustodywheretheyareunlikelytoreceiveasentencefortheiroffence/s
- non-custodialsentencingoptionsareusedmorefrequentlytoreplaceprisonsentencesoflessthan12months
- thereisgreateruseofsuspendedcustodialsentencesasanincentiveforpeoplenotto re-offend.
TherecentlyreleasedChangetheRecordCoalitionBlueprintforChangetoaddressAboriginalandTorresStraitIslanderimprisonmentandviolenceratessupportslegislativereformtosentencing.Awiderrangeofsentencingalternativesencompassingnon-custodialoptionswouldenablejudgestoensurethatsentencesaretailored,fairandappropriate.Thiswouldgivejudgestheabilitytoensurethesentencefitsthecrime.
StateandterritorydepartmentsofCorrectionsandJuvenileJusticeshouldalsoensurethatthereareopportunitiesforrehabilitation,treatmentandsupportforidentifiedissuesincludedintheconditionsofcommunity-basedorders.Tosupportthisapproach,resourcesshouldbeincreasedforsupervisionandsupportforpeopleoncommunity-basedorders.
Reforms to improve parole and reintegration to the community
StateandterritorydepartmentsofCorrectionsandJuvenileJusticeshouldconsiderthefollowingoptionstofocusonlongertermpositiveoutcomesforprisonersre-enteringtheircommunities:• emphasisetransitionplanningandthrough-
caresupportaspeoplemovefromprisontothecommunity.Suchsupportallowspeopletobebetterpreparedtoreintegrateintothecommunity
• fundcommunityinitiativesthatsupportreintegrationofprisonersintothecommunityandaddresstheircomplexsocialneeds
• ensurethatthereisflexibilityintheparolesystemtorecogniseformerprisonerswhoaremakingeffortstoavoidreoffending.
Recommendations
4.Thatstateandterritorygovernmentsadoptthejusticereformproposalsoutlinedinthisreportto:•preventcrimeandrecidivism•increasenon-custodialsentencing•improveparoleandreintegrationtothecommunity
VULNERABILITY REPORT 2016 | 27
6. Targets for reducing the rate of adult imprisonment should be established by Australian governments
AustralianRedCrossbelievesthatifthereformsoutlinedinthisreportareimplemented,thenitwillbepossibletoreversethetrendofincreasingincarcerationratesandforthemreduceovertime.
Inconsideringthesettingoftargets,AustralianRedCrosshasconsideredvariousscenariosthatweconsiderachievableandmodelledthepotentialsavingstobeachievedundereachofthesescenariosasoutlinebelow.
ScenarioTotal savings over 5 years
Theincarcerationrateisheldatexistinglevelsforthenextfiveyearsratherthancontinuingtoincreasebythe10-year-trendof1.69%perannum
$1.1billion
Theincarcerationratedecreasesby1%perannumforthenextfiveyears
$1.7billion
Theincarcerationrate decreasesby2%perannumforthenextfiveyears
$2.3billion
Undereachofthesescenarios,therearesignificantsavingsthatcouldberealisedfromnotbuildingandoperatingnewprisonsandreducingthenumberofpeoplegoingtoexistingprisons,comparedwiththestatusquoofincarcerationratescontinuingtoincreaseyearonyear.
Eveniftherateofincarcerationwassimplyheldatcurrentlevelsforfiveyearstherewouldbesavingsof$1.1billionoverthatperiod.Thesesavingsrisetoalmost$1.7billioniftheratefallsby1%andtoalmost$2.3billioniftheratefallsby2%.
Thesesavingscouldbeusedtoreinvestinpositivesocialprogramsreferredtoearlierinthereport.
MoredetailedtablesoutliningthesesavingsandtheassumptionsunderpinningthemareincludedatAppendixA.
Insettingtargets,theAustralianGovernmentshouldalsoestablishaClosingtheGapjusticetargettoaddresstheoverimprisonmentofAboriginalandTorresStraitIslanderpeoples.
Since2009,therehasbeenaseriesofcallsforjusticetargetstobeincludedintheClosingtheGaptargets.53 DrCalmainitiallyrecommendedtheinclusionoftargetswhenhewasSocialJusticeCommissioner.Sincethen,otherreportshaverecommendedjusticetargetsbeincludedintheClosingtheGaptargets.InhismostrecentSocialJusticeandNativeTitlereportthecurrentCommissioner,MrMickGoodaagainrecommendedthatjusticetargetsbeincludedalongsidetheexistingtargets.
TheAmnestyInternationalreportoutlineshowkeepingchildrenandyoungpeopleincommunitiesgivesthemthebestchanceforahealthy,happyfuture.Thereportaimstodevelopadeepunderstandingofthe“fullstory”,includingthereasonsforover-representationofIndigenousyoungpeoplesinthejusticesystem,aswellasprovidingdataonAustralia’shighrateofIndigenousyouthdetentionacrossAustralia.
AustralianRedCrossstronglysupportsthesecallsandrecommendsthattheAustralianGovernmentincludejusticetargetsintheClosingtheGapstrategy.
Recommendations
5.That,asafirststep,allgovernmentsinAustraliacommitto:-a10%reductioninadultimprisonmentratesoverthenextfiveyears
-aClosingtheGapjusticetargettoreducetheunacceptablyhighadultimprisonmentratesofAboriginalandTorresStraitIslanderpeoplesby50%overthenextfiveyears.
28 | VULNERABILITY REPORT 2016APPENDIX A
Financial modelling Thefollowingtablesoutlinethesavingsthatwouldaccrueifactionsweretakentoholdsteadyorreducetherateatwhichpeopleareincarcerated.Theanalysisispresentedonanationalbasis.However,theimpactswillvaryinspecificstatesandterritories.
ThreescenariosarepresentedoverafiveyearperiodstartingfromJune2014(latestavailabledata).InscenariooneitisassumedthattheactionsholdsteadytherateofincarcerationfromJune2014.Thisscenariorepresentsasmallimprovementintheforecastincarcerationratewhich,basedontheaverageincreaseoverthelastdecade,couldbeexpectedtocontinuetogrowat1.69%perannum.Inscenariotwo,theactionsareassumedtoresultina1%perannumdecreaseintheincarcerationrateeachyearfrom2014.Inscenariothreeitisassumedtheactionsresultina2%perannumdecreaseintheincarcerationrate.
Scenario 1: Five year projection with a 0% decrease in the Australian incarceration per annum
2014 (Base Period)
Year1 Year 2 Year 3 Year 4 Year 5
Rateofincarceration# 185.6 185.6 185.6 185.6 185.6 185.6
Rateofincarcerationifhistoricaltrendcontinues*
188.732 191.917 195.156 198.450 201.799
Totalreductionin incarcerationrate+ 3.132 6.317 9.556 12.850 16.199
Projectedpopulation^ 18,542,304 18,871,777 19,203,809 19,485,021 19,805,984
Numberofprisonersifincarcerationratestays atthe2014level
34,415 35,026 35,642 36,164 36,760
Numberofprisonersiftheincarcerationratecontinues toincrease
34,995 36,218 37,477 38,668 39,968
Reductioninthenumber ofprisoners!
580.80
1,192.21
1,835.18
2,503.81
3,208.39
Costssaved** $106,580 $63,294,358 $132,848,524 $209,095,822 $291,696,021 $382,189,818
Scenario 2: Five year projection with a 1% decrease in the Australian incarceration per annum
2014 (Base Period)
Year1 Year 2 Year 3 Year 4 Year 5
Rateofincarceration# 185.6 183.744 181.90656 180.0874944 178.2866195 176.5037533
Rateofincarcerationifhistoricaltrendcontinues*
188.732 191.917 195.156 198.450 201.799
Totalreductionin incarcerationrate+ 4.988 10.011 15.069 20.163 25.295
Projectedpopulation^ 18,542,304 18,871,777 19,203,809 19,485,021 19,805,984
Numberofprisonersifincarcerationrate decreases1%pa
34,070 34,329 34,584 34,739 34,958
Numberofprisonersiftheincarcerationratecontinues toincrease
34,995 36,218 37,477 38,668 39,968
Reductioninthenumber ofprisoners!
925
1,889
2,894
3,929
5,010
Costssaved** $106,580 $100,798,626 $210,517,253 $329,711,035 $457,711,290 $596,800,313
VULNERABILITY REPORT 2016 | 29
Scenario 3: Five year projection with a 2% decrease in the Australian incarceration per annum
2014 (Base Period)
Year1 Year 2 Year 3 Year 4 Year 5
Rateofincarceration# 185.6 181.888 178.25024 174.6852352 171.1915305 167.7676999
Rateofincarcerationifhistoricaltrendcontinues*
188.732 191.917 195.156 198.450 201.799
Totalreductionin incarcerationrate+ 6.844 13.667 20.471 27.258 34.031
Projectedpopulation^ 18,542,304 18,871,777 19,203,809 19,485,021 19,805,984
Numberofprisonersifincarcerationrate decreases2%pa
33,726 33,639 33,546 33,357 33,228
Numberofprisonersiftheincarcerationratecontinues toincrease
34,995 36,218 37,477 38,668 39,968
Reductioninthenumber ofprisoners!
1,269
2,579
3,931
5,311
6,740
Costssaved** $106,580 $138,302,895 $287,405,390 $447,914,024 $618,771,294 $802,912,656
Notes and assumptions:
#A2%reductionappliedannuallytothebaserateofincarcerationexpressedper100,000ofadultpopulation
*Theincarcerationrateincreasedfrom158.8per100,000ofadultpopulationat30/6/04to185.6per100,00ofadultpopulationat30/6/14,anincreaseof16.88%overthedecadeoranaverageincreaseof1.69%perannum
+Thedifferencebetweentheincarcerationrateinlineoneandtheprojectedincreaseintheincarcerationrate;expressedasthenumberofprisonersper100,000ofadultpopulation
^BasedonABS3222.0-PopulationProjections,Australia,2012(base)to2101.Theadultpopulationwasderivedbysubtractingthe0-17yearoldpopulationforeachyear.TheprojectionsuseSeriesBassumptionsthattheTotalFertilityRate(TFR)willdecreaseto1.8babiesperwomanby2026andthenremainconstant,lifeexpectancyatbirthwillcontinuetoincreaseeachyearuntil2061,thoughatadecliningrate(reaching85.2yearsformalesand88.3yearsforfemales),Netoverseasmigration(NOM)willremainconstantat240,000peryearthroughouttheprojectionperiod,andmediuminterstatemigrationflows.Dataaccessedfromhttp://www.abs.gov.au/websitedbs/d3310114.nsf/home/Population%20Pyramid%20-%20Australiaon31/7/15
!Calculatedbymultiplyingthereductionintheincarcerationrate(expressedasarateby100,00ofadultpopulation)bytheprojectedAustralianpopulationovertheageof18dividedby100,000
**Thereducednumberofprisonersmultipliedbythecostofincarceratingaprisonerfor12months.ThecostofincarcerationisfromtheAustralianProductivityCommissionReportonGovernmentServices2015andusedthecostingwhichisinclusiveofnetoperatingexpenditure,depreciation,debtservicingfeesandusercostofcapital.For2013/14thiscostwas$106,580peryear,a2.25%perannumincreasehasbeenbuiltintothecalculationstoprovideforcostincreasesacrosstime.
30 | VULNERABILITY REPORT 2016APPENDIX B
Change The Record Coalition Blueprint for Change54
a)Establishanational,holisticandwhole-of-governmentstrategytoaddressimprisonmentandviolencerates.ThisstrategyshouldcontainaconcreteimplementationplanandbuildontheNationalIndigenousLawandJusticeFramework2009-2015.Inaddition,thestrategyshouldbelinkedtorelatedareasofCOAGreformincludingtheNationalFrameworkforProtectingAustralia’sChildren2009-2022andtheNationalPlantoReduceViolenceAgainstWomenandtheirChildren2010-2022.
b)Setthefollowingjusticetargets,whichareaimedatpromotingcommunitysafetyandreducingtheratesatwhichAboriginalandTorresStraitIslanderpeoplecomeintocontactwiththecriminaljusticesystem:i.ClosethegapintheratesofimprisonmentbetweenAboriginalandTorresStraitIslanderpeopleby2040;ii.CutthedisproportionateratesofviolenceagainstAboriginalandTorresStraitIslanderpeopletoatleastclosethegapby2040;withprioritystrategiesforwomenandchildren.Inaddition,thesetargetsshouldbeaccompaniedbyaNationalAgreementwhichincludesareportingmechanism,aswellasmeasurablesub-targetsandacommitmenttohalvethegapintheaboveover-archinggoalsbynolaterthan2030.
c)Jointlyestablish,ortask,anindependentcentralagencywithAboriginalandTorresStraitIslanderoversighttoco-ordinateacomprehensive,currentandconsistentnationalapproachtodatacollectionandpolicydevelopmentrelatingtoAboriginalandTorresStraitIslanderimprisonmentandviolencerates.
d)Ensurethatlaws,policiesandstrategiesaimedat,andrelatedto,reducingAboriginalandTorresStraitIslanderimprisonmentandviolenceratesareunderpinnedbyahuman-rightsapproach,andhaveinplaceaclearprocesstoensuretheyaredesignedinconsultationandpartnershipwithAboriginalandTorresStraitIslandercommunities,theirorganisationsandrepresentativebodies.
e)Supportcapacitybuilding,andprovideongoingresourcingofAboriginalandTorresStraitIslandercommunities,theirorganisationsandrepresentativebodiestoensurethatpolicysolutionsareunderpinnedbytheprincipleofself-determination,respectforAboriginalandTorresStraitIslanderpeople’scultureandidentity,andrecognitionofthehistoryofdispossessionandtraumaexperiencedbymanycommunities.
VULNERABILITY REPORT 2016 | 31
References
1 JudicialCommissionofNewSouthWales,SentencinginNSW,researchmonograph39,2015,43[5.1].
2 SophieFarthing,“OvercrowdedPrisons”,LawSocietyJournal(NSW),July2015,24.3 “ToughonCrimeStandIncreasesRecidivism”,TheAustralian,14August2015,10;B.Rudman,“HighIncarcerationRateistheRealPrisonScandal”,NZHerald,29July2015,8.
4 E.g.Crimes(SentencingProcedures)Act1999(NSW),s5(1).5 ThelatestavailablecrimedatafromtheAustralianInstituteofCriminologyisforthe2012yearandusestimeseriesdatafortheperiod1996-2012.
6 AustralianBureauofStatistics-4510.0-RecordedCrime-Victims,Australia,2014.7 HouseofCommonsJusticeCommitteeCuttingcrime:thecaseforjusticereinvestment2009.
8 AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).9 AustralianBureauofStatisticsPopulationbyAgeandSex,Tasmania(3235.6.55.001).10AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).11RobWhiteStateofimprisonment:Tasmaniaescapeslawandorderinfection–TheConversationApril222015-http://theconversation.com/state-of-imprisonment-tasmania-escapes-law-and-order-infection-38988.
12Ibid-thiscostincludestheusercostofcapital,depreciationanddebtservicingcosts.13ReportonGovernmentServices2015VolumeC:Justice,Table8A.7.14 ForexampleseetheABCreportontheuseofshippingcontainersintheVictoriancorrectionssystem-http://www.abc.net.au/news/2014-04-09/more-shipping-container-cells-for-victorian-prisons/5376832accessed9/7/15.
15ForexampleseetheSAAdvertiser-http://www.adelaidenow.com.au/news/south-australia/prison-overcrowding-risks-public-safety-police-commissioner-gary-burns-says/story-fni6uo1m-1227411399151andhttp://www.adelaidenow.com.au/news/south-australia/crowding-crisis-worsens-as-criminals-flood-south-australian-prisons/story-fni6uo1m-1227085702469accessed9/7/15.
16SeetheAustralianBureauofStatistics-PrisonersinAustraliaseriesofreports(no.4517).
17 AustralianBureauofStatisticsPrisonersinAustralia2000(no.4517.0).18MorganPM&HendersonPF1998.Remanddecisionsandoffendingonbail:evaluationoftheBailProcessProject.HomeOfficeResearchStudy184.London:HomeOfficecitedinSarre.Retalopcit.
19OgloffJGoodmentalhealthcareinprisonsmustbeginandendinthecommunity–TheConversationApril242015athttp://theconversation.com/good-mental-health-care-in-prisons-must-begin-and-end-in-the-community-40011.
20AustraliaInstituteofHealthandWelfareThehealthofAustralia’sprisoners2012.21DepartmentofJusticeAcquiredBrainInjuryintheVictorianPrisonSystem2011.22ABS4517.0-PrisonersinAustralia,2014.23SawrikarP&KatzI2008.EnhancingfamilyandrelationshipserviceaccessibilityanddeliverytoculturallyandlinguisticallydiversefamiliesinAustralia.AFRCIssuesno.3.Melbourne:AustralianInstituteofFamilyStudies.http://www.aifs.gov.au/afrc/pubs/issues/issues3/issues3.pdf
24Nobars.org.au-http://www.nobars.org.au/about-linguistic-prisoners.html#prisoners-CALD.culturallyandlinguisticallydiverse.NoBarsisapartnershipprojectbetweentheCommunityRestorativeCentre(CRC)andtheNetworkofAlcoholandOtherDrugAgencies(NADA)andisfundedbyNSWHealthundertheIllicitDrugDiversionInitiative.
25TonyVinsonandMargotRawsthorne,JesuitSocialServices.DroppingOfftheEdge2015:PersistentcommunaldisadvantageinAustralia.
26T.Allard,A.ChrzanowskiandA.StewartTargetingcrimeprevention:Identifyingcommunitiesthatgeneratechronicandcostlyoffenders.
27AustralianProductivityCommission,ReportonGovernmentServices2013(latestAustralian-widefiguresavailable).
28WeatherburnD.TheEffectofPrisononReoffending(2010).29AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).30KinnerS.Our$3b-a-yearsystemisflyingblindinsupportingex-prisonersTheConversationApril272015(http://theconversation.com/our-3b-a-year-system-isflying-blind-in-supporting-ex-prisoners-39999basedondataprovidedbytheNSWBureauofCrimeStatisticsandResearch).
31Baldry,E.2008,TheBoomingIndustry:AustralianPrisons,UNSW,Sydney.32GoodwinVandDavisBCrimeFamilies:Genderandtheintergenerationaltransferofcriminaltendencies.
33AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).34ibid35ChangetheRecord2015,takenfromdatafromtheAustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).
36AustralianBureauofStatisticsopcit.37ProfessorChrisCuneenTimetoArrestRisingAboriginalPrisonRates,Insightno8,2013.
38AmnestyInternationalABrighterFuture:KeepingIndigenouskidsinthecommunityandoutofdetentioninAustralia2015.
39HouseofRepresentativesStandingCommitteeonAboriginalandTorresStraitIslanderAffairs,DoingTime-TimeforDoing:Indigenousyouthinthecriminaljusticesystem.
40RoyalCommissiononAboriginalDeathsinCustody.41ChangetheRecordBlueprintforChange,2015.42NLaVigneetalJusticeReinvestmentattheLocalLevel,PlanningandImplementationGuide2010
43HouseofCommonsJusticeCommitteeCuttingcrime:thecaseforjusticereinvestment2009
44NancyLaVigneetalJusticeReinvestmentastheLocalLevel:Planningandimplementationguide
45Austinetal.Endingmassincarceration:Chartinganewjusticereinvestment(2013).46SeefurtherexamplesofstrategiesadoptedinUSJusticeReinvestmentInitiatives(JRI)inLaVigneNancy,BielerSamuel,CramerLindseyandothers(2014)JusticeReinvestmentInitiativeStateAssessmentReport,AppendixACaseStudies.ForUKexamplesseeforexampleAllenRob(2014)Justicereinvestment:emptysloganorsustainablefutureforpenalpolicy?TransformJustice,WongKevin,FoxChris,andAlbertsonKevin(2014)Opcit.
47Outlinedathttp://www.lccsc.gov.au/sclj/lccsc_about_us.html48TheAustralianJusticeReinvestmentProjectisanationalresearchprojectinvestigatingthecharacteristicsofJusticeReinvestment.Furtherinformationisavailableathttp://justicereinvestment.unsw.edu.au/
49Seehttp://justicereinvestment.unsw.edu.au/sites/justicereinvestment.unsw.edu.au/files/AJRP%20Newsletter%20July%202014.pdf
50Thereareanumberofresourcesonutilisationofdatatoplanforjusticereinvestmentinitiatives.LaVigneetalhavepublishedadefinitiveresourceentitledJusticeReinvestmentattheLocalLevel:PlanningandImplementationGuidewhileFox,AlbertsonandWonghaveathoughtfulchapteronitintheirbookJusticeReinvestment:Canthecriminaljusticesystemdelivermoreforless?
51In2014theAboriginalandTorresStraitIslanderSocialJusticeCommissioner,MickGooda,describedtheBourkeandCowratrialsitesandcalledforfurtherjusticereinvestmenttrialsitestobeestablished–seerecommendationthreeoftheCommissioner’sSocialJusticeandNativeTitleReport2014.
52ChangetheRecordBlueprintforChange,201553AustralianHumanRightsCommissionSocialJusticeReport200954ChangetheRecordCoalitionBlueprintforChange,2015.https://changetherecord.org.au/blog/news/16-organisations-release-blueprint-for-change-on-aboriginal-and-torres-strait-islander-imprisonment-and-violence-rates
32 | VULNERABILITY REPORT 2016
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