Select Committee on the Increase in Prisoner Population Final Report
Select Committee on the Increase in Prisoner Population Final Report
Select Committee on the Increase in Prisoner Population Final Report
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LEGISLATIVE COUNCIL<br />
PARLIAMENTARY PAPER NUMBER 924<br />
<str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong><br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er<br />
Populati<strong>on</strong><br />
F<strong>in</strong>al <strong>Report</strong><br />
Ordered to be pr<strong>in</strong>ted 13 November accord<strong>in</strong>g to <strong>the</strong><br />
Resoluti<strong>on</strong> of <strong>the</strong> House<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
New South Wales Parliamentary Library catalogu<strong>in</strong>g-<strong>in</strong>-publicati<strong>on</strong> data:<br />
New South Wales. Parliament. Legislative Council. <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong>.<br />
F<strong>in</strong>al <strong>Report</strong> / <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong>. [Sydney, N.S.W.] :The <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, 2001. – 190p. ;<br />
30 cm. (Parliamentary paper ; no. 924)<br />
“Ordered to be pr<strong>in</strong>ted accord<strong>in</strong>g to resoluti<strong>on</strong> of <strong>the</strong> House”.<br />
Chair: John Ryan.<br />
ISBN 0734764685<br />
Pris<strong>on</strong>ers—New South Wales.<br />
I. Title<br />
II. Ryan, John.<br />
III. Series: New South Wales. Parliament. Legislative Council. <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er<br />
Populati<strong>on</strong>. <strong>Report</strong> ; F<strong>in</strong>al <strong>Report</strong><br />
IV Series: New South Wales. Parliament. Parliamentary paper ; no. 924<br />
365.6 (DDC21)<br />
ii F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
How to c<strong>on</strong>tact <strong>the</strong> committee<br />
Members of <strong>the</strong> <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> can be c<strong>on</strong>tacted through <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> Secretariat. Written<br />
corresp<strong>on</strong>dence and <strong>in</strong>quiries should be directed to:<br />
The Clerk<br />
<str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Legislative Council<br />
Parliament House, Macquarie Street<br />
Sydney New South Wales 2000<br />
Internet www.parliament.nsw.gov.au<br />
Email scipp@parliament.nsw.gov.au<br />
Teleph<strong>on</strong>e 02 9230 3544<br />
Facsimile 02 9230 3416<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
iii
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Terms of Reference<br />
House Resolved 17 November 1999, 2nd Sessi<strong>on</strong>, M<strong>in</strong>utes of Proceed<strong>in</strong>gs No. 23, pp 234-6<br />
1. That a <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> be appo<strong>in</strong>ted to <strong>in</strong>quire <strong>in</strong>to and report <strong>on</strong>:<br />
(a) <strong>the</strong> factors resp<strong>on</strong>sible for, and <strong>the</strong> c<strong>on</strong>sequences of, <strong>the</strong> <strong>in</strong>crease <strong>in</strong> pris<strong>on</strong>er populati<strong>on</strong> s<strong>in</strong>ce 1995<br />
(be<strong>in</strong>g 40% <strong>in</strong> females and 20% <strong>in</strong> males),<br />
(b) issues relat<strong>in</strong>g to <strong>in</strong>carcerati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g but not limited to <strong>the</strong> matters <strong>in</strong> paragraphs 2 and 3.<br />
2. That, <strong>in</strong> relati<strong>on</strong> to women, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sider:<br />
(a)<br />
(b)<br />
(c)<br />
(d)<br />
(e)<br />
(f)<br />
(g)<br />
(h)<br />
(i)<br />
(j)<br />
<strong>the</strong> effectiveness of impris<strong>on</strong>ment as a resp<strong>on</strong>se to all women who are currently sentenced, <strong>in</strong>clud<strong>in</strong>g<br />
those with special needs, such as women with <strong>in</strong>tellectual, physical and psychiatric disabilities,<br />
<strong>the</strong> effectiveness of impris<strong>on</strong>ment as a resp<strong>on</strong>se to Aborig<strong>in</strong>al women who are sentenced,<br />
<strong>the</strong> effectiveness of impris<strong>on</strong>ment as a resp<strong>on</strong>se to women with n<strong>on</strong> English speak<strong>in</strong>g backgrounds who<br />
are sentenced,<br />
<strong>the</strong> effectiveness of us<strong>in</strong>g <strong>the</strong> pris<strong>on</strong> to house all women who are remanded <strong>in</strong> custody, and us<strong>in</strong>g <strong>the</strong><br />
key <strong>in</strong>dicators of recidivism and cost effectiveness,<br />
<strong>the</strong> adequacy or o<strong>the</strong>rwise of build<strong>in</strong>g a new women’s pris<strong>on</strong> as <strong>the</strong> most effective method of address<strong>in</strong>g<br />
<strong>the</strong> problems of <strong>in</strong>creas<strong>in</strong>g numbers of women <strong>in</strong> pris<strong>on</strong> and <strong>the</strong> adequacy or o<strong>the</strong>rwise of <strong>the</strong> plans,<br />
terms and c<strong>on</strong>diti<strong>on</strong>s of any c<strong>on</strong>tract entered <strong>in</strong>to or proposed to be entered <strong>in</strong>to <strong>in</strong> relati<strong>on</strong> to a new<br />
women’s pris<strong>on</strong>,<br />
<strong>the</strong> adequacy or o<strong>the</strong>rwise of alternatives to <strong>in</strong>carcerati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g those currently utilised <strong>in</strong><br />
New South Wales and those trailed <strong>in</strong> o<strong>the</strong>r jurisdicti<strong>on</strong>s, which purport to deal effectively with<br />
crim<strong>in</strong>ality,<br />
<strong>the</strong> wider social implicati<strong>on</strong>s of <strong>in</strong>carcerat<strong>in</strong>g women <strong>in</strong> New South Wales,<br />
<strong>the</strong> factors resp<strong>on</strong>sible for <strong>the</strong> dramatic <strong>in</strong>crease <strong>in</strong> <strong>the</strong> female pris<strong>on</strong>er populati<strong>on</strong> <strong>in</strong> <strong>the</strong> last four years,<br />
alternatives to <strong>in</strong>carcerati<strong>on</strong> and <strong>the</strong>ir adequacy or o<strong>the</strong>rwise, <strong>in</strong>clud<strong>in</strong>g those currently utilised <strong>in</strong> New<br />
South Wales and those trialed <strong>in</strong> o<strong>the</strong>r jurisdicti<strong>on</strong>s, which purport to deal effectively with crim<strong>in</strong>ality,<br />
<strong>the</strong> effectiveness or o<strong>the</strong>rwise of post release policies of <strong>the</strong> Department of Corrective Services and coord<strong>in</strong>at<strong>in</strong>g<br />
of <strong>in</strong>tegrated assistance to <strong>in</strong>mates by Government Departments, <strong>in</strong>clud<strong>in</strong>g Hous<strong>in</strong>g, Health<br />
and Community Services, with a view to reduc<strong>in</strong>g recidivism.<br />
3. That, <strong>in</strong> relati<strong>on</strong> to men, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sider each of <strong>the</strong> matters set out <strong>in</strong> paragraph 2 (a) to (j),<br />
substitut<strong>in</strong>g <strong>the</strong> word “men” for “women” wherever occurr<strong>in</strong>g and “male” for “female” wherever occurr<strong>in</strong>g.<br />
iv F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
4. That <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> present an <strong>in</strong>terim report deal<strong>in</strong>g with <strong>the</strong> matters <strong>in</strong> paragraph 2 (a) to (j), <strong>in</strong> relati<strong>on</strong> to<br />
women, by 1 May 2000 and a f<strong>in</strong>al report deal<strong>in</strong>g with <strong>the</strong> rema<strong>in</strong><strong>in</strong>g matters by 1 October 2000.<br />
5. That, notwithstand<strong>in</strong>g anyth<strong>in</strong>g to <strong>the</strong> c<strong>on</strong>trary <strong>in</strong> <strong>the</strong> Stand<strong>in</strong>g Orders, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sist of <strong>the</strong> follow<strong>in</strong>g<br />
members:<br />
(a)<br />
(b)<br />
(c)<br />
3 Government members nom<strong>in</strong>ated <strong>in</strong> writ<strong>in</strong>g to <strong>the</strong> Clerk of <strong>the</strong> House by <strong>the</strong> Leader of <strong>the</strong><br />
Government,<br />
2 Oppositi<strong>on</strong> members nom<strong>in</strong>ated <strong>in</strong> writ<strong>in</strong>g to <strong>the</strong> Clerk of <strong>the</strong> House by <strong>the</strong> Leader of <strong>the</strong><br />
Oppositi<strong>on</strong>,<br />
Dr Chesterfield-Evans and Ms Rhiann<strong>on</strong>.<br />
6. That <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> have leave to sit dur<strong>in</strong>g any adjournment of <strong>the</strong> House to adjourn from place to place, to<br />
make visits of <strong>in</strong>specti<strong>on</strong> with<strong>in</strong> New South Wales, and o<strong>the</strong>r States and Territories of Australia with <strong>the</strong><br />
approval of <strong>the</strong> President, and have power to take evidence and to send for pers<strong>on</strong>s, papers records and th<strong>in</strong>gs,<br />
and to report from time to time.<br />
7. That should <strong>the</strong> House stand adjourned and <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> agree to any report before <strong>the</strong> House resumes<br />
sitt<strong>in</strong>g:<br />
(a)<br />
(b)<br />
(c)<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> have leave to send any such report, m<strong>in</strong>utes of proceed<strong>in</strong>gs and evidence taken before it<br />
to <strong>the</strong> Clerk of <strong>the</strong> House,<br />
<strong>the</strong> document be pr<strong>in</strong>ted and published and <strong>the</strong> Clerk forthwith take such acti<strong>on</strong> as is necessary to give<br />
effect to <strong>the</strong> order of <strong>the</strong> House, and<br />
<strong>the</strong> document be laid <strong>on</strong> <strong>the</strong> Table of <strong>the</strong> House as its next sitt<strong>in</strong>g.<br />
8. That <strong>on</strong> receipt of a request from <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> for fund<strong>in</strong>g, <strong>the</strong> Government immediately provide <strong>the</strong><br />
Legislative Council with such additi<strong>on</strong>al funds that <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>siders necessary for <strong>the</strong> c<strong>on</strong>duct of its<br />
<strong>in</strong>quiry.<br />
9. That this House requests <strong>the</strong> Government to impose a moratorium <strong>on</strong> <strong>the</strong> build<strong>in</strong>g of a new pris<strong>on</strong> for women<br />
at W<strong>in</strong>dsor until <strong>the</strong> Government has c<strong>on</strong>sidered <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s <strong>in</strong>terim report to be presented <strong>in</strong> May 2000.<br />
House Resolved 6 September 2000, 2nd Sessi<strong>on</strong>, M<strong>in</strong>utes of Proceed<strong>in</strong>gs No. 62, p634<br />
That <strong>the</strong> report<strong>in</strong>g date for <strong>the</strong> f<strong>in</strong>al report of <strong>the</strong> <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong> be<br />
extended from 1 October 2000 to 29 June 2001.<br />
House Resolved 20 June 2001, 2nd Sessi<strong>on</strong>, M<strong>in</strong>utes of Proceed<strong>in</strong>gs No. 107, p1032<br />
That <strong>the</strong> report<strong>in</strong>g date for <strong>the</strong> f<strong>in</strong>al report of <strong>the</strong> <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong> be<br />
extended from 29 June 2001 to 31 August 2001.<br />
House Resolved 18 September 2001, 2nd Sessi<strong>on</strong>, M<strong>in</strong>utes of Proceed<strong>in</strong>gs No. 118, p1148<br />
That <strong>the</strong> report<strong>in</strong>g date for <strong>the</strong> f<strong>in</strong>al report of <strong>the</strong> <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong> be<br />
extended to 31 October 2001.<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
v
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> Membership<br />
The H<strong>on</strong> John Ryan MLC Liberal Party (Chair)<br />
Ms Lee Rhiann<strong>on</strong> MLC The Greens (Deputy Chair)<br />
Ms Jan Burnswoods MLC Australian Labor Party<br />
The H<strong>on</strong> Dr Arthur Chesterfield-Evans MLC Australian Democrats<br />
The H<strong>on</strong> Jenny Gard<strong>in</strong>er MLC Nati<strong>on</strong>al Party<br />
The H<strong>on</strong> Peter Primrose MLC Australian Labor Party<br />
The H<strong>on</strong> Janelle Saff<strong>in</strong> MLC Australian Labor Party<br />
vi F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Table of C<strong>on</strong>tents<br />
Chair’s Foreword<br />
Executive Summary<br />
Summary of Recommendati<strong>on</strong>s<br />
xii<br />
xiv<br />
xviii<br />
Chapter 1 Introducti<strong>on</strong> 1<br />
Terms of Reference 1<br />
Interim <strong>Report</strong> and <strong>the</strong> Government Resp<strong>on</strong>se 1<br />
C<strong>on</strong>duct of <strong>the</strong> <strong>in</strong>quiry 1<br />
Scope of this <strong>Report</strong> 2<br />
Structure of <strong>the</strong> <strong>Report</strong> 2<br />
Chapter 2<br />
The NSW Pris<strong>on</strong> System: role of impris<strong>on</strong>ment; sentenc<strong>in</strong>g legislative<br />
framework; and correcti<strong>on</strong>al centres. 4<br />
Introducti<strong>on</strong> 4<br />
The Role of Impris<strong>on</strong>ment 4<br />
Legislative framework for sentenc<strong>in</strong>g and impris<strong>on</strong>ment 6<br />
The Crimes (Sentenc<strong>in</strong>g Procedures) Act 6<br />
The Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 7<br />
NSW Correcti<strong>on</strong>al Centres and Impris<strong>on</strong>ment 8<br />
Maximum Security 8<br />
Medium Security 8<br />
M<strong>in</strong>imum Security 9<br />
Total Capacity of Pris<strong>on</strong> System 10<br />
Geographic Locati<strong>on</strong> 10<br />
C<strong>on</strong>clusi<strong>on</strong> 12<br />
Chapter 3 Size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> 13<br />
Introducti<strong>on</strong> 13<br />
New South Wales 13<br />
Current NSW pris<strong>on</strong> populati<strong>on</strong> 13<br />
Rate of <strong>in</strong>crease <strong>in</strong> NSW pris<strong>on</strong> populati<strong>on</strong> 13<br />
<strong>Increase</strong> <strong>in</strong> NSW Impris<strong>on</strong>ment Rate 15<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
vii
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
<strong>Increase</strong> <strong>in</strong> Australian Impris<strong>on</strong>ment Rates 15<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong> Populati<strong>on</strong> 15<br />
<strong>Increase</strong> <strong>in</strong> Impris<strong>on</strong>ment Rates 16<br />
New South Wales vs Victoria 16<br />
Internati<strong>on</strong>al Pris<strong>on</strong> Populati<strong>on</strong> and Impris<strong>on</strong>ment Rates 17<br />
C<strong>on</strong>clusi<strong>on</strong> 18<br />
Chapter 4 Profile of pris<strong>on</strong> populati<strong>on</strong> 19<br />
Introducti<strong>on</strong> 19<br />
General characteristics of <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong> 19<br />
Inmate Health 19<br />
Socio-ec<strong>on</strong>omic status 20<br />
Profiles of Specific Groups with<strong>in</strong> Pris<strong>on</strong> Populati<strong>on</strong> 21<br />
Indigenous Inmates 21<br />
Inmates with an Intellectual Disability 22<br />
Inmates from a N<strong>on</strong>-English Speak<strong>in</strong>g Background 24<br />
Inmates with a Mental Illness 25<br />
State Wards and Pris<strong>on</strong> 25<br />
Vulnerable Pris<strong>on</strong>ers 26<br />
An Age<strong>in</strong>g Inmate Populati<strong>on</strong> 27<br />
Offences result<strong>in</strong>g <strong>in</strong> impris<strong>on</strong>ment 28<br />
Length of sentences 29<br />
Repeat Offenders 30<br />
Instituti<strong>on</strong>al Security Classificati<strong>on</strong> of Inmates 31<br />
Sentenced/unsentenced <strong>in</strong>mates 32<br />
C<strong>on</strong>clusi<strong>on</strong> 32<br />
Chapter 5 Analysis of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> 33<br />
Introducti<strong>on</strong> 33<br />
General Factors: immediate and underly<strong>in</strong>g causes 33<br />
Police activity 34<br />
Arrest rates 34<br />
Crim<strong>in</strong>al charges com<strong>in</strong>g before <strong>the</strong> courts 35<br />
Police Charges 36<br />
Crime rates 36<br />
Remand 40<br />
viii F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
<strong>Increase</strong> <strong>in</strong> <strong>the</strong> number of <strong>in</strong>mates <strong>on</strong> remand 40<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Bail refusal 42<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Changes to Bail Act<br />
45<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Pers<strong>on</strong>s unable to<br />
meet bail c<strong>on</strong>diti<strong>on</strong>s 47<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Length of time <strong>on</strong><br />
remand 48<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: C<strong>on</strong>clusi<strong>on</strong> 48<br />
Process<strong>in</strong>g of cases by <strong>the</strong> courts 48<br />
<strong>Increase</strong>d C<strong>on</strong>victi<strong>on</strong> Rates 49<br />
Court Delays and <strong>in</strong>fluence <strong>on</strong> Remand populati<strong>on</strong> 50<br />
Severity of court decisi<strong>on</strong>s 50<br />
Guidel<strong>in</strong>e Judgements 52<br />
Breach of orders 56<br />
The Complexity of <strong>the</strong> causes of <strong>the</strong> <strong>in</strong>crease 58<br />
Research Needs 58<br />
Informati<strong>on</strong> relat<strong>in</strong>g to judicial decisi<strong>on</strong>s 61<br />
Whole of Government Approach 62<br />
C<strong>on</strong>clusi<strong>on</strong> 63<br />
Chapter 6 Incarcerati<strong>on</strong> 65<br />
Introducti<strong>on</strong> 65<br />
Chang<strong>in</strong>g sentenc<strong>in</strong>g policies: impact <strong>on</strong> <strong>the</strong> aims of <strong>in</strong>carcerati<strong>on</strong> 65<br />
The Shift Away from Incarcerati<strong>on</strong> as Rehabilitati<strong>on</strong> 65<br />
Australian Policies S<strong>in</strong>ce <strong>the</strong> 1980s 67<br />
Guidel<strong>in</strong>e Judgements 70<br />
Evidence of Effectiveness of Incapacitati<strong>on</strong> 71<br />
Increas<strong>in</strong>g Costs of Incarcerati<strong>on</strong> 72<br />
Fund<strong>in</strong>g of Department of Corrective Services 72<br />
Trends <strong>in</strong> Increas<strong>in</strong>g Costs of Incarcerati<strong>on</strong> 74<br />
Inmate management 76<br />
Aims of Throughcare Program 76<br />
Classificati<strong>on</strong> System and Case Management 77<br />
ICAC <strong>Report</strong> 77<br />
Recent Criticisms of Case Management 78<br />
Pris<strong>on</strong> programs 80<br />
Drugs and alcohol 82<br />
Programs for Sex Offenders 83<br />
Violence Preventi<strong>on</strong> Program 86<br />
Correcti<strong>on</strong>al Industries 87<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
ix
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Educati<strong>on</strong> 89<br />
Difficulties <strong>in</strong> Program Delivery 90<br />
Short Term Pris<strong>on</strong>ers 90<br />
Overcrowd<strong>in</strong>g of Pris<strong>on</strong> Facilities 91<br />
Inmates with special needs 92<br />
Inmates with mental illness 92<br />
Forensic Patients 93<br />
Inmates with Intellectual Disabilities 94<br />
Inmates from N<strong>on</strong> English Speak<strong>in</strong>g Backgrounds 95<br />
Inmates from Indigenous Backgrounds 95<br />
“E” Classificati<strong>on</strong> Pris<strong>on</strong>ers 95<br />
Restorative Justice 97<br />
Release and Transiti<strong>on</strong> to <strong>the</strong> Community 98<br />
Parole 98<br />
The Probati<strong>on</strong> and Parole Service 100<br />
Transiti<strong>on</strong>al Centres 103<br />
Back End Home Detenti<strong>on</strong> 104<br />
C<strong>on</strong>clusi<strong>on</strong> 106<br />
Chapter 7 Sentenc<strong>in</strong>g Alternatives and Diversi<strong>on</strong>ary Programs 107<br />
Introducti<strong>on</strong> 107<br />
Sentenc<strong>in</strong>g Opti<strong>on</strong>s: N<strong>on</strong>-custodial sentences 107<br />
Benefits of N<strong>on</strong>-Custodial Sentences 107<br />
V<strong>in</strong>s<strong>on</strong> and Baldry Research: Divert<strong>in</strong>g less serious offenders 109<br />
Aboliti<strong>on</strong> of Short Sentences 110<br />
Crimes (Sentenc<strong>in</strong>g Procedures) Act s5(1) 113<br />
Community based correcti<strong>on</strong>al orders 114<br />
Reas<strong>on</strong>s for low utilisati<strong>on</strong> 114<br />
Completi<strong>on</strong> of community opti<strong>on</strong>s 116<br />
Suspended Sentences 116<br />
Community service order 117<br />
F<strong>in</strong>es as alternative to impris<strong>on</strong>ment 118<br />
B<strong>on</strong>ds and Probati<strong>on</strong> Orders 118<br />
Detenti<strong>on</strong> as alternatives to full time impris<strong>on</strong>ment 120<br />
Periodic Detenti<strong>on</strong> 120<br />
Home Detenti<strong>on</strong> 122<br />
Indigenous Offenders and Home Detenti<strong>on</strong> 124<br />
Net-widen<strong>in</strong>g 125<br />
Mechanisms for divert<strong>in</strong>g eligible offenders from pris<strong>on</strong> 127<br />
Programs for Offenders with an <strong>in</strong>tellectual disability 127<br />
x F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Programs for Offenders with a psychiatric illness 127<br />
Psychiatric C<strong>on</strong>sultati<strong>on</strong> and Assessment Service 128<br />
Programs for Indigenous Offenders 129<br />
Circle Sentenc<strong>in</strong>g 131<br />
Divert<strong>in</strong>g Offenders with illicit drug problems 131<br />
NSW Drug Court Program 131<br />
Drug Court Program: Indigenous Offenders 133<br />
The MERIT Program 134<br />
C<strong>on</strong>clusi<strong>on</strong> 135<br />
Chapter 8 Interim <strong>Report</strong> and <strong>the</strong> Government Resp<strong>on</strong>se 136<br />
Interim <strong>Report</strong>: issues relat<strong>in</strong>g to women 136<br />
Bail Hostels 148<br />
Disparity of Wages <strong>in</strong> Educati<strong>on</strong> Programs 149<br />
Australian Institute of Crim<strong>in</strong>ology C<strong>on</strong>ference “Women <strong>in</strong> Correcti<strong>on</strong>s” 149<br />
Different Needs of Women Pris<strong>on</strong>ers 150<br />
Transiti<strong>on</strong> from Pris<strong>on</strong> 151<br />
Need for Sentenc<strong>in</strong>g Data specific to Women 151<br />
Deaths of Women Post Release 152<br />
C<strong>on</strong>siderati<strong>on</strong> of C<strong>on</strong>ference research 154<br />
C<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g Need to Reduce Growth <strong>in</strong> Impris<strong>on</strong>ment 154<br />
Appendix 1 Submissi<strong>on</strong>s 161<br />
Appendix 2 Witnesses 168<br />
Visits 172<br />
Appendix 3 M<strong>in</strong>utes of <strong>the</strong> Proceed<strong>in</strong>gs 173<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
xi
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Chair’s Foreword<br />
This report marks <strong>the</strong> completi<strong>on</strong> of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s <strong>in</strong>quiry <strong>in</strong>to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong>er<br />
populati<strong>on</strong> <strong>in</strong> New South Wales correcti<strong>on</strong>al facilities. The <strong>in</strong>quiry commenced <strong>in</strong> November 1999<br />
when <strong>the</strong> Legislative Council resolved that a <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> should look at <strong>the</strong> factors resp<strong>on</strong>sible<br />
for <strong>the</strong> <strong>in</strong>crease, <strong>the</strong> impact <strong>on</strong> pris<strong>on</strong>ers and <strong>the</strong> wider implicati<strong>on</strong>s of <strong>in</strong>carcerati<strong>on</strong>.<br />
In July 2000 <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> presented its Interim <strong>Report</strong> which made a number of f<strong>in</strong>d<strong>in</strong>gs <strong>in</strong> relati<strong>on</strong><br />
to <strong>the</strong> high rate of <strong>in</strong>carcerati<strong>on</strong> of women <strong>in</strong> New South Wales. This f<strong>in</strong>al report of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
makes a number of f<strong>in</strong>d<strong>in</strong>gs <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> whole pris<strong>on</strong> populati<strong>on</strong> which are c<strong>on</strong>sistent with <strong>the</strong><br />
f<strong>in</strong>d<strong>in</strong>gs of <strong>the</strong> <strong>in</strong>terim report.<br />
For me, <strong>the</strong> most significant observati<strong>on</strong>s c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> this <strong>Report</strong> are that:<br />
• <strong>the</strong> largest c<strong>on</strong>tribut<strong>in</strong>g factor to <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is <strong>the</strong> growth <strong>in</strong> <strong>the</strong><br />
number of people <strong>on</strong> remand, and <strong>the</strong> surpris<strong>in</strong>g fact that <strong>the</strong> majority of <strong>the</strong>se people whilst <strong>the</strong>y<br />
are held <strong>in</strong> custody up to <strong>the</strong>ir court hear<strong>in</strong>g are ultimately not given sentences of impris<strong>on</strong>ment,<br />
• <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is cost<strong>in</strong>g <strong>the</strong> community heavily <strong>in</strong> f<strong>in</strong>ancial terms.<br />
The level of growth <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> which already taken place is cost<strong>in</strong>g taxpayers an<br />
extra $145 milli<strong>on</strong> every year <strong>in</strong> current terms,<br />
• <strong>the</strong>re is no reliable research that <strong>in</strong>dicates that any of this <strong>in</strong>crease has ei<strong>the</strong>r prevented crime or<br />
arisen from a significant <strong>in</strong>crease <strong>in</strong> crim<strong>in</strong>al behaviour <strong>in</strong> <strong>the</strong> community, and<br />
• two thirds of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> spend less than six m<strong>on</strong>ths <strong>in</strong> gaol and that this level of<br />
“churn<strong>in</strong>g” through <strong>the</strong> pris<strong>on</strong> system disrupts its ability to provide rehabilitati<strong>on</strong> programs.<br />
On <strong>the</strong> whole it is <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s unanimous view that a greater focus needs to be placed <strong>on</strong> f<strong>in</strong>d<strong>in</strong>g<br />
alternative means for sancti<strong>on</strong><strong>in</strong>g relatively less serious offenders and <strong>on</strong> provid<strong>in</strong>g impris<strong>on</strong>ment<br />
which aims to rehabilitate ra<strong>the</strong>r than <strong>in</strong>capacitate offenders.<br />
In my own op<strong>in</strong>i<strong>on</strong> I th<strong>in</strong>k it is unfortunate that putt<strong>in</strong>g people <strong>in</strong> gaol has become <strong>the</strong> benchmark for<br />
measur<strong>in</strong>g our resp<strong>on</strong>se to crime, when o<strong>the</strong>r sancti<strong>on</strong>s such as community service orders, home<br />
detenti<strong>on</strong> or probati<strong>on</strong> may be more effective <strong>in</strong> address<strong>in</strong>g offend<strong>in</strong>g behaviour, less expensive to <strong>the</strong><br />
community and just as <strong>on</strong>erous <strong>on</strong> <strong>the</strong> offender.<br />
Ano<strong>the</strong>r important f<strong>in</strong>d<strong>in</strong>g, which has been made by this <str<strong>on</strong>g>Committee</str<strong>on</strong>g> and many o<strong>the</strong>rs over and over<br />
aga<strong>in</strong> is that certa<strong>in</strong> groups such as <strong>in</strong>digenous Australians, people with <strong>in</strong>tellectual disabilities and<br />
people with mental illness are over represented <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system. The c<strong>on</strong>t<strong>in</strong>ued over<br />
representati<strong>on</strong> of <strong>in</strong>digenous Australians is a particular c<strong>on</strong>cern <strong>in</strong> view of <strong>the</strong> fact that it has been ten<br />
years s<strong>in</strong>ce <strong>the</strong> Royal Commissi<strong>on</strong> <strong>in</strong>to Black Deaths <strong>in</strong> Custody.<br />
This report recommends that research be c<strong>on</strong>ducted <strong>in</strong>to <strong>the</strong> impact of abolish<strong>in</strong>g full time custodial<br />
sentences of six m<strong>on</strong>ths or less, similar to that <strong>in</strong>troduced <strong>in</strong> Western Australia. This recommendati<strong>on</strong><br />
is based <strong>on</strong> evidence that this would have a significant impact <strong>on</strong> <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> and<br />
would also allow better target<strong>in</strong>g of scarce resources. It is difficult for <strong>the</strong> Department of Corrective<br />
xii F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Services to prepare and implement case management and rehabilitati<strong>on</strong> plans for <strong>in</strong>mates who have<br />
received short sentences result<strong>in</strong>g <strong>in</strong> offenders return<strong>in</strong>g to <strong>the</strong> community without <strong>the</strong> benefit of<br />
pris<strong>on</strong> based programs aimed at rehabilitati<strong>on</strong> or <strong>in</strong>tensive supervisi<strong>on</strong> from <strong>the</strong> Probati<strong>on</strong> and Parole<br />
Service. C<strong>on</strong>sequently <strong>the</strong> transiti<strong>on</strong> <strong>in</strong>to <strong>the</strong> community can be difficult for <strong>the</strong>se offenders <strong>in</strong>creas<strong>in</strong>g<br />
<strong>the</strong> possibility of re-offend<strong>in</strong>g.<br />
I recognise that changes to <strong>the</strong> crim<strong>in</strong>al justice system must proceed slowly and that <strong>the</strong><br />
recommendati<strong>on</strong>s <strong>in</strong> this report will require c<strong>on</strong>siderable thought. However people should weigh any<br />
c<strong>on</strong>cerns aga<strong>in</strong>st <strong>the</strong> fact that <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has taken evidence from a wide range of <strong>in</strong>dividuals,<br />
experts and <strong>in</strong>mates, has worked <strong>on</strong> <strong>the</strong> issue for two years, has attempted, without <strong>the</strong> expense of<br />
travell<strong>in</strong>g overseas, to place our correcti<strong>on</strong>al system <strong>in</strong> NSW <strong>in</strong> an <strong>in</strong>ternati<strong>on</strong>al c<strong>on</strong>text, and br<strong>in</strong>gs<br />
toge<strong>the</strong>r <strong>the</strong> c<strong>on</strong>sensus of 7 politicians represent<strong>in</strong>g a wide political spectrum from <strong>the</strong> Greens to <strong>the</strong><br />
Nati<strong>on</strong>al Party and with comb<strong>in</strong>ed experience of about 50 years <strong>in</strong> public life.<br />
I would like to thank <strong>the</strong> members of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> for <strong>the</strong>ir time and dedicati<strong>on</strong> throughout this<br />
<strong>in</strong>quiry, for <strong>the</strong>ir forthright and c<strong>on</strong>structive critique and for hav<strong>in</strong>g <strong>the</strong> courage to take <strong>the</strong> trip with<br />
me. While a bumpy ride at times, I am proud of <strong>the</strong> result we have achieved. I am c<strong>on</strong>fident that<br />
some, if not all of <strong>the</strong> recommendati<strong>on</strong>s, will <strong>in</strong>fluence public policy <strong>in</strong> <strong>the</strong> future.<br />
I would like to thank <strong>the</strong> former M<strong>in</strong>ister for Corrective Services, <strong>the</strong> H<strong>on</strong> Bob Debus MP and <strong>the</strong><br />
present M<strong>in</strong>ister for Corrective Services, <strong>the</strong> H<strong>on</strong> John Watk<strong>in</strong>s MP, for <strong>the</strong>ir cooperati<strong>on</strong> and<br />
assistance. I also thank Emma Asht<strong>on</strong> and Jane Fitzgerald from Mr Watk<strong>in</strong>s’s office for <strong>the</strong>ir<br />
c<strong>on</strong>siderable assistance dur<strong>in</strong>g <strong>the</strong> <strong>in</strong>quiry. I would also like to thank <strong>the</strong>n Corrective Services<br />
Commissi<strong>on</strong>er Dr Leo Keliher and senior staff of <strong>the</strong> Department of Corrective Services, <strong>in</strong> particular<br />
Catri<strong>on</strong>a McComish, Luke Grant and Sim<strong>on</strong> Eyland for <strong>the</strong>ir evidence and advice. I also would like to<br />
express my appreciati<strong>on</strong> to Dr D<strong>on</strong> Wea<strong>the</strong>rburn and Marilyn Chilvers from <strong>the</strong> NSW Bureau of<br />
Crime Statistics and Research, and Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> and Dr Eileen Baldry from <strong>the</strong> University of<br />
NSW, who not <strong>on</strong>ly appeared <strong>on</strong> a number of occasi<strong>on</strong>s before <strong>the</strong> committee, but assisted us<br />
<strong>in</strong>formally as well. I would like to thank <strong>the</strong> many staff and <strong>in</strong>mates <strong>in</strong> NSW Correcti<strong>on</strong>al facilities for<br />
meet<strong>in</strong>g with <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> over <strong>the</strong> last two years. However I do not wish to exclude any witnesses<br />
from this list and extend my appreciati<strong>on</strong> to all witnesses, organisati<strong>on</strong>s and <strong>in</strong>dividuals who made<br />
submissi<strong>on</strong>s to this <strong>in</strong>quiry for <strong>the</strong>ir <strong>in</strong>terest and valuable evidence.<br />
F<strong>in</strong>ally, I would like to thank <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> staff who have worked <strong>on</strong> this l<strong>on</strong>g and sometimes<br />
difficult <strong>in</strong>quiry. I greatly appreciate <strong>the</strong> work of Steven Reynolds and Susan Want dur<strong>in</strong>g <strong>the</strong> f<strong>in</strong>al<br />
stages of this report. I would also like to thank David Blunt and Alex Shehadie for <strong>the</strong>ir work dur<strong>in</strong>g<br />
<strong>the</strong> <strong>in</strong>quiry, Russell Keith for his work <strong>on</strong> <strong>the</strong> Interim <strong>Report</strong> and Ashley Nguyen for assistance<br />
throughout.<br />
I commend this report to <strong>the</strong> House.<br />
The H<strong>on</strong> John Ryan MLC<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> Chair<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
xiii
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Executive Summary<br />
The Inquiry<br />
On 17 November 1999 <strong>the</strong> Legislative Council appo<strong>in</strong>ted a <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to <strong>in</strong>quire <strong>in</strong>to factors<br />
resp<strong>on</strong>sible for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong> <strong>in</strong> NSW s<strong>in</strong>ce 1995, and <strong>the</strong> c<strong>on</strong>sequences of<br />
that <strong>in</strong>crease. The <strong>in</strong>quiry received 197 submissi<strong>on</strong>s, held 16 hear<strong>in</strong>gs and c<strong>on</strong>ducted several site visits<br />
and c<strong>on</strong>sultati<strong>on</strong>s. The Interim <strong>Report</strong> of <strong>the</strong> <strong>in</strong>quiry, which focussed <strong>on</strong> women pris<strong>on</strong>ers, was tabled<br />
<strong>on</strong> 28 July 2000. The current report addresses issues affect<strong>in</strong>g <strong>the</strong> entire populati<strong>on</strong> of pris<strong>on</strong>ers, of<br />
which 93 % are male.<br />
The NSW Pris<strong>on</strong> System<br />
The NSW pris<strong>on</strong> system comprises 28 ma<strong>in</strong> correcti<strong>on</strong>al centres with vary<strong>in</strong>g capacities, security<br />
classificati<strong>on</strong>s and specialist purposes. The current capacity of <strong>the</strong> pris<strong>on</strong> system is 8,105. The NSW<br />
Government has recently announced it will expand this capacity to nearly 10,000 by <strong>the</strong> year 2005 to<br />
address <strong>the</strong> c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g growth <strong>in</strong> <strong>the</strong> number of <strong>in</strong>mates.<br />
The Size of <strong>the</strong> <strong>Increase</strong> <strong>in</strong> <strong>the</strong> Pris<strong>on</strong> Populati<strong>on</strong><br />
The pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> NSW has risen by 20.9% between 1995 and 2001. For women this <strong>in</strong>crease<br />
has been especially rapid, represent<strong>in</strong>g a 67.6% <strong>in</strong>crease, and an 18.6 % <strong>in</strong>crease <strong>in</strong> male pris<strong>on</strong>ers. The<br />
<strong>in</strong>crease has ma<strong>in</strong>ly occurred <strong>in</strong> <strong>the</strong> two years beg<strong>in</strong>n<strong>in</strong>g from 1998, but <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong> has<br />
c<strong>on</strong>t<strong>in</strong>ued to <strong>in</strong>crease, at a slower rate, up to <strong>the</strong> current date.<br />
The pris<strong>on</strong> populati<strong>on</strong> fluctuates <strong>on</strong> a daily basis, but at 30 June 2001 it was 7,750, of which 7,232 were<br />
male and 518 were women. This represents an impris<strong>on</strong>ment rate of 112.7 per 100,000 pers<strong>on</strong>s, or 172<br />
per 100,000 adult pers<strong>on</strong>s.<br />
O<strong>the</strong>r states <strong>in</strong> Australia have also experienced significant <strong>in</strong>creases, however Victoria has ma<strong>in</strong>ta<strong>in</strong>ed<br />
an impris<strong>on</strong>ment rate of almost half that of NSW dur<strong>in</strong>g <strong>the</strong> same period. Also, subject to <strong>the</strong> reliability<br />
of <strong>in</strong>ternati<strong>on</strong>al comparis<strong>on</strong>s, several European countries have also had m<strong>in</strong>imal <strong>in</strong>creases or decreases<br />
<strong>in</strong> <strong>the</strong>ir impris<strong>on</strong>ment rates dur<strong>in</strong>g <strong>the</strong> time <strong>in</strong> which <strong>the</strong> NSW impris<strong>on</strong>ment rate has significantly<br />
<strong>in</strong>creased. The different trends <strong>in</strong> impris<strong>on</strong>ment rates <strong>in</strong> different jurisdicti<strong>on</strong>s raises <strong>the</strong> questi<strong>on</strong>s as<br />
to whe<strong>the</strong>r more people are <strong>in</strong>carcerated <strong>in</strong> NSW than is necessary.<br />
Pris<strong>on</strong>er Profile<br />
Approximately forty per cent of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> has been sentenced for a serious act of violence<br />
such as murder, armed robbery or sexual assault. The next largest category of offenders, amount<strong>in</strong>g to<br />
about 30 per cent, are those whose most serious offence was a robbery or steal<strong>in</strong>g charge. The balance<br />
of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is made up of those who have committed drug offences (12%), driv<strong>in</strong>g and<br />
traffic offences (5%), offences aga<strong>in</strong>st good order (6%) and those who have breached a community<br />
based sancti<strong>on</strong> such as probati<strong>on</strong>, parole or community service orders (5%).<br />
The pris<strong>on</strong> populati<strong>on</strong> c<strong>on</strong>sists of men and women who are, <strong>on</strong> average, of lower socio-ec<strong>on</strong>omic<br />
status, of poorer health and of lower levels of educati<strong>on</strong> than <strong>the</strong> rest of <strong>the</strong> populati<strong>on</strong>. For example:<br />
• 60% of <strong>in</strong>mates are not functi<strong>on</strong>ally literate or numerate;<br />
• 60% did not complete year 10;<br />
• 64% have no stable family;<br />
xiv F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
• 21% have attempted suicide; and<br />
• 60% of males and 70% of females had a history of illicit drug use.<br />
Indigenous men and women and those with an <strong>in</strong>tellectual disability or a mental illness are significantly<br />
over represented. The average age of <strong>the</strong> <strong>in</strong>mate populati<strong>on</strong> is <strong>in</strong>creas<strong>in</strong>g, although <strong>the</strong> majority (64.4%<br />
of males, 73% of females) are aged 18-34. A number of pris<strong>on</strong> <strong>in</strong>mates were state wards or care<br />
leavers, however <strong>the</strong> exact number is unknown. The majority of pris<strong>on</strong>ers who pass through <strong>the</strong> pris<strong>on</strong><br />
system each year serve sentences of less than six m<strong>on</strong>ths.<br />
Causes of <strong>the</strong> <strong>Increase</strong><br />
The causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> are complex. The pris<strong>on</strong> populati<strong>on</strong> can fluctuate<br />
c<strong>on</strong>siderably as a result of legislative, judicial and policy changes, irrespective of any changes <strong>in</strong> actual<br />
crimes committed. There has been no evidence from agencies such as <strong>the</strong> Bureau of Crime Statistics<br />
and Research to support <strong>the</strong> propositi<strong>on</strong> that an <strong>in</strong>crease <strong>in</strong> actual crime, as opposed to <strong>in</strong>crease <strong>in</strong><br />
police activity, is an underly<strong>in</strong>g cause of <strong>the</strong> <strong>in</strong>creased pris<strong>on</strong> populati<strong>on</strong>.<br />
A major <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> appears to be <strong>the</strong> most significant c<strong>on</strong>tribut<strong>in</strong>g factor to <strong>the</strong><br />
<strong>in</strong>crease <strong>in</strong> <strong>the</strong> total number of people <strong>in</strong> custody. O<strong>the</strong>r factors <strong>in</strong>clude l<strong>on</strong>ger sentences and <strong>in</strong>creased<br />
police activity. The underly<strong>in</strong>g causes of <strong>the</strong>se factors are, however, less clear.<br />
(a) <strong>Increase</strong> <strong>in</strong> Remand Populati<strong>on</strong><br />
At 30 June 2001 <strong>the</strong>re were 2,188 pris<strong>on</strong>ers held <strong>on</strong> remand, await<strong>in</strong>g sentence, represent<strong>in</strong>g more than<br />
a quarter of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. This number has almost doubled s<strong>in</strong>ce 1995. The <strong>in</strong>crease <strong>in</strong> <strong>the</strong><br />
remand populati<strong>on</strong> may <strong>in</strong> part be due to factors such as:<br />
• <strong>in</strong>creased bail refusals,<br />
• changes to <strong>the</strong> Bail Act remov<strong>in</strong>g a presumpti<strong>on</strong> of bail <strong>in</strong> many cases,<br />
• <strong>the</strong> <strong>in</strong>ability of people to meet bail c<strong>on</strong>diti<strong>on</strong>s, and<br />
• police “over-charg<strong>in</strong>g” (charg<strong>in</strong>g offenders for several offences <strong>in</strong> <strong>the</strong> hope that <strong>on</strong>e will result <strong>in</strong><br />
a guilty plea)<br />
(b) <strong>Increase</strong>d Police Activity<br />
<strong>Increase</strong>d police activity has resulted <strong>in</strong> a 22% <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of pers<strong>on</strong>s com<strong>in</strong>g before NSW<br />
courts s<strong>in</strong>ce 1995. This has co<strong>in</strong>cided with an <strong>in</strong>crease <strong>in</strong> police numbers and result<strong>in</strong>g <strong>in</strong>crease <strong>in</strong><br />
police activity.<br />
(c) Judicial Attitudes to Sentenc<strong>in</strong>g Alternatives<br />
Judges are given a broad discreti<strong>on</strong> <strong>in</strong> sentenc<strong>in</strong>g decisi<strong>on</strong>s, however <strong>the</strong> sentenc<strong>in</strong>g legislati<strong>on</strong> (Crimes<br />
(Sentenc<strong>in</strong>g Procedures) Act) does embody <strong>the</strong> noti<strong>on</strong> that pris<strong>on</strong> should be a sancti<strong>on</strong> of last resort.<br />
There is a need to exam<strong>in</strong>e <strong>the</strong> impact of <strong>in</strong>dividual sentenc<strong>in</strong>g practices, and how judges and<br />
magistrates perceive, <strong>in</strong> terms of relative severity, alternatives to impris<strong>on</strong>ment. <strong>Increase</strong> <strong>in</strong> penalties<br />
for offences under specific legislati<strong>on</strong> and guidel<strong>in</strong>e judgements are examples which may lead to <strong>the</strong><br />
c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g <strong>in</strong>creases <strong>in</strong> <strong>the</strong> use of pris<strong>on</strong> over alternative sentenc<strong>in</strong>g arrangements.<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
xv
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Whole of Government Problem<br />
The complex causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> raises <strong>the</strong> issue of how decisi<strong>on</strong>s should be<br />
made as to who should be impris<strong>on</strong>ed. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes this is a whole of government issue<br />
but that <strong>the</strong> Department of Corrective Services should take a lead role <strong>in</strong> m<strong>on</strong>itor<strong>in</strong>g <strong>the</strong> impact of<br />
decisi<strong>on</strong>s <strong>on</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. There is a need for research to identify and quantify <strong>the</strong> impact<br />
<strong>the</strong>se and o<strong>the</strong>r factors have had.<br />
Incarcerati<strong>on</strong>: Costs<br />
S<strong>in</strong>ce <strong>the</strong> 1980s <strong>the</strong>re has been an <strong>in</strong>creas<strong>in</strong>g shift <strong>in</strong> sentenc<strong>in</strong>g policy towards see<strong>in</strong>g <strong>the</strong> purpose of<br />
pris<strong>on</strong> as <strong>in</strong>capacitati<strong>on</strong> ra<strong>the</strong>r than rehabilitati<strong>on</strong>. The adopti<strong>on</strong> of this purpose clearly favours l<strong>on</strong>ger<br />
sentences and <strong>in</strong>creased use of <strong>in</strong>carcerati<strong>on</strong> as a means to c<strong>on</strong>trol crime. This <strong>in</strong>creased use of<br />
<strong>in</strong>carcerati<strong>on</strong> leads to significant <strong>in</strong>creases <strong>in</strong> expenditure <strong>on</strong> programs with<strong>in</strong> pris<strong>on</strong>s, which are much<br />
more expensive to deliver than community based programs. There has been no reliable research <strong>in</strong><br />
Australia or overseas which has shown that <strong>in</strong>creas<strong>in</strong>g <strong>the</strong> number of people <strong>in</strong> gaol is an effective or<br />
ec<strong>on</strong>omical approach to reduc<strong>in</strong>g crime.<br />
The annual costs of <strong>the</strong> programs of <strong>the</strong> Department of Corrective Services have risen by $145 milli<strong>on</strong><br />
<strong>in</strong> real terms s<strong>in</strong>ce 1994, a 37% <strong>in</strong>crease. The cost of hold<strong>in</strong>g a pris<strong>on</strong>er <strong>in</strong> gaol can be as high as<br />
$64,486 per year ($181 per day) compared to $3,150 per year ($8.63 per day) for complet<strong>in</strong>g a<br />
community based program supervised by <strong>the</strong> Probati<strong>on</strong> and Parole Service.<br />
Incarcerati<strong>on</strong>: Programs<br />
There are promis<strong>in</strong>g programs with<strong>in</strong> pris<strong>on</strong> <strong>in</strong> some areas such as drug and alcohol programs, <strong>the</strong><br />
Restorative Justice Unit and transiti<strong>on</strong> centres. However a lack of c<strong>on</strong>t<strong>in</strong>uity <strong>in</strong> programs has meant<br />
<strong>the</strong>re is almost noth<strong>in</strong>g known about <strong>the</strong> effectiveness of most programs <strong>in</strong> reduc<strong>in</strong>g recidivism. The<br />
case management program, which has already been <strong>in</strong>tensively reviewed <strong>on</strong> several occasi<strong>on</strong>s, still<br />
appears to be experienc<strong>in</strong>g problems under <strong>the</strong> weight of <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> numbers and <strong>the</strong> difficulty<br />
of assist<strong>in</strong>g short term pris<strong>on</strong>ers.<br />
Alternatives to Pris<strong>on</strong><br />
Greater exam<strong>in</strong>ati<strong>on</strong> needs to be made of alternatives to pris<strong>on</strong> sentences. There are many pris<strong>on</strong>ers<br />
currently <strong>in</strong> full time custody who may be more appropriately and cost-effectively supervised under<br />
alternative sentenc<strong>in</strong>g opti<strong>on</strong>s. These opti<strong>on</strong>s <strong>in</strong>clude community service orders, probati<strong>on</strong> and parole,<br />
periodic detenti<strong>on</strong>, and home detenti<strong>on</strong>, as well as diversi<strong>on</strong>ary programs such as <strong>the</strong> Drug court and<br />
<strong>the</strong> MERIT scheme. Some of <strong>the</strong>se alternatives are currently under-utilised, while o<strong>the</strong>rs are <strong>in</strong> <strong>the</strong>ir<br />
early stages and have much promise.<br />
Indigenous offenders are under-represented <strong>in</strong> <strong>the</strong>se alternative programs. For <strong>in</strong>stance, research<br />
suggests that illicit drug use is not as significant a factor for Aborig<strong>in</strong>al offenders as for <strong>the</strong> wider pris<strong>on</strong><br />
populati<strong>on</strong>, so few Aborig<strong>in</strong>als benefit from <strong>in</strong>itiatives such as <strong>the</strong> Drug Court. The alcohol related and<br />
violent nature of many offences committed by Aborig<strong>in</strong>al offenders also precludes <strong>the</strong>m from <strong>the</strong><br />
criteria for participati<strong>on</strong> <strong>in</strong> home detenti<strong>on</strong> programs. The lack of community service opti<strong>on</strong>s <strong>in</strong> rural<br />
areas also disadvantages <strong>in</strong>digenous offenders.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes more <strong>in</strong>formati<strong>on</strong> is needed <strong>on</strong> why some opti<strong>on</strong>s are not more extensively<br />
used, whe<strong>the</strong>r <strong>the</strong>y are perceived as not effective, and whe<strong>the</strong>r new <strong>in</strong>itiatives are deserv<strong>in</strong>g of<br />
expansi<strong>on</strong>. The ga<strong>in</strong>s to <strong>the</strong> community from greater use of effective alternatives to sentences of full<br />
time custody are c<strong>on</strong>siderable, and every effort should be made to realise <strong>the</strong>se ga<strong>in</strong>s. The Probati<strong>on</strong><br />
xvi F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
and Parole Service needs to be given a more prom<strong>in</strong>ent role <strong>in</strong> <strong>the</strong> pris<strong>on</strong> dom<strong>in</strong>ated culture of <strong>the</strong><br />
Department of Corrective Services.<br />
Aboliti<strong>on</strong> of Short Term Sentences<br />
About two thirds of <strong>the</strong> people who are sentenced to impris<strong>on</strong>ment stay <strong>in</strong> gaol for less than six<br />
m<strong>on</strong>ths. It is difficult for <strong>the</strong> Department of Corrective Services to design and implement effective<br />
rehabilitati<strong>on</strong> programs and case management strategies for <strong>the</strong>se <strong>in</strong>mates and transiti<strong>on</strong> to <strong>the</strong><br />
community after <strong>the</strong> disrupti<strong>on</strong> caused by a pris<strong>on</strong> sentence can be more difficult because <strong>the</strong>y are not<br />
supervised by <strong>the</strong> Probati<strong>on</strong> and Parole Service.<br />
One way of address<strong>in</strong>g <strong>the</strong>se issues and <strong>in</strong> counter<strong>in</strong>g <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>,<br />
would be for NSW to follow <strong>the</strong> recent <strong>in</strong>itiative of <strong>the</strong> Western Australian Government to abolish<br />
sentences of six m<strong>on</strong>ths or less. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recognises that such a move would need to be<br />
accompanied by public support. It is also important to address issues such as whe<strong>the</strong>r abolish<strong>in</strong>g<br />
shorter custodial sentences would <strong>on</strong>ly lead to <strong>in</strong>mates serv<strong>in</strong>g l<strong>on</strong>ger sentences, particularly if fund<strong>in</strong>g<br />
was not provided for <strong>in</strong>creased alternative programs. For <strong>the</strong>se reas<strong>on</strong>s <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends<br />
that comprehensive research and public c<strong>on</strong>sultati<strong>on</strong> be c<strong>on</strong>ducted <strong>in</strong>to <strong>the</strong> possible impact of such an<br />
<strong>in</strong>itiative before any measures are implemented.<br />
The Western Australian government has also recently announced a major change of directi<strong>on</strong> <strong>in</strong> its<br />
pris<strong>on</strong> system, particularly for women, based up<strong>on</strong> overseas models. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes<br />
approaches such as <strong>the</strong>se, which creatively c<strong>on</strong>sider alternatives to build<strong>in</strong>g additi<strong>on</strong>al pris<strong>on</strong>s, may hold<br />
many less<strong>on</strong>s for NSW.<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
xvii
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Summary of Recommendati<strong>on</strong>s<br />
Recommendati<strong>on</strong> 1 Page 26<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services undertake a research project<br />
to focus <strong>on</strong> <strong>the</strong> needs of former State wards and care leavers <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system. The research<br />
project should identify <strong>the</strong> numbers of former State wards and care leavers <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system.<br />
Recommendati<strong>on</strong> 2 Page 45<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research <strong>in</strong>vestigate and<br />
report <strong>on</strong> <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> rate of bail refusal and its c<strong>on</strong>sequent impact up<strong>on</strong><br />
<strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> <strong>in</strong> <strong>the</strong> NSW pris<strong>on</strong> system.<br />
Recommendati<strong>on</strong> 3 Page 46<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research specifically review<br />
<strong>the</strong> impact of <strong>the</strong> excepti<strong>on</strong>s to <strong>the</strong> presumpti<strong>on</strong> <strong>in</strong> favour of bail now provided for <strong>in</strong> secti<strong>on</strong> 9<br />
of <strong>the</strong> Bail Act.<br />
Recommendati<strong>on</strong> 4 Page 58<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bail Regulati<strong>on</strong> 1994 be amended to make provisi<strong>on</strong> for <strong>the</strong><br />
prompt determ<strong>in</strong>ati<strong>on</strong> of <strong>the</strong> revocati<strong>on</strong> of periodic detenti<strong>on</strong>, home detenti<strong>on</strong> or parole orders<br />
<strong>in</strong> order to m<strong>in</strong>imise <strong>the</strong> number of offenders remanded <strong>in</strong>to custody and <strong>the</strong> length of time<br />
spent <strong>on</strong> remand.<br />
Recommendati<strong>on</strong> 5 Page 61<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services adopt a co-ord<strong>in</strong>at<strong>in</strong>g<br />
and m<strong>on</strong>itor<strong>in</strong>g role for <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> adult crim<strong>in</strong>al justice system and that, with <strong>the</strong><br />
Bureau of Crime Statistics and Research, <strong>the</strong> Department ensure <strong>the</strong> full shar<strong>in</strong>g of data between<br />
all departments and agencies <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system and regularly review and report up<strong>on</strong><br />
both <strong>the</strong> direct and underly<strong>in</strong>g causes of changes <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 6 Page 62<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Judicial Commissi<strong>on</strong> or ano<strong>the</strong>r agency c<strong>on</strong>duct regular<br />
studies of sentenc<strong>in</strong>g patterns <strong>in</strong> courts <strong>in</strong> specific districts, and that <strong>the</strong> results of <strong>the</strong>se studies<br />
be made available to policymakers to assist <strong>in</strong> understand<strong>in</strong>g <strong>the</strong> impact of legislative and policy<br />
changes <strong>on</strong> <strong>the</strong> future pris<strong>on</strong> populati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 7 Page 63<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Premier ensure that <strong>the</strong> M<strong>in</strong>ister for Corrective Services is<br />
represented <strong>on</strong> any Cab<strong>in</strong>et sub-committees which have a decisi<strong>on</strong> mak<strong>in</strong>g role <strong>in</strong> relati<strong>on</strong> to <strong>the</strong><br />
crim<strong>in</strong>al justice system, so as to ensure that <strong>the</strong> implicati<strong>on</strong>s of any such decisi<strong>on</strong>s for <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> and <strong>the</strong> ec<strong>on</strong>omic and social impacts of those decisi<strong>on</strong>s are given full c<strong>on</strong>siderati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 8 Page 63<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services be given an active role<br />
<strong>in</strong> <strong>the</strong> Premier’s Council <strong>on</strong> Crime Preventi<strong>on</strong> and any similar bodies which have a role <strong>in</strong> <strong>the</strong><br />
development of policy of legislative proposals <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> crim<strong>in</strong>al justice system, so as to<br />
ensure that <strong>the</strong> implicati<strong>on</strong>s of any such decisi<strong>on</strong>s for <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> and <strong>the</strong> ec<strong>on</strong>omic<br />
and social impacts of those decisi<strong>on</strong>s are given full c<strong>on</strong>siderati<strong>on</strong>.<br />
xviii F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Recommendati<strong>on</strong> 9 Page 80<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services give very high priority to<br />
<strong>the</strong> implementati<strong>on</strong> and evaluati<strong>on</strong> of case management <strong>in</strong> its Corporate Plan. The Department<br />
should be required to report back to Parliament <strong>in</strong> 12 m<strong>on</strong>ths time <strong>on</strong> how it has measured<br />
progress <strong>on</strong> address<strong>in</strong>g problems identified by ICAC, <strong>the</strong> Inspector General of Corrective<br />
Services and this <str<strong>on</strong>g>Committee</str<strong>on</strong>g>.<br />
Recommendati<strong>on</strong> 10 Page 86<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department produce and release prelim<strong>in</strong>ary f<strong>in</strong>d<strong>in</strong>gs of its<br />
l<strong>on</strong>g term evaluati<strong>on</strong> of <strong>the</strong> Sex Offender programs, so as to assist modificati<strong>on</strong>s of <strong>the</strong>se<br />
programs.<br />
Recommendati<strong>on</strong> 11 Page 90<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services <strong>in</strong>clude <strong>in</strong> future research<br />
programs a l<strong>on</strong>g term study <strong>on</strong> <strong>the</strong> impact of its educati<strong>on</strong> programs <strong>on</strong> recidivism.<br />
Recommendati<strong>on</strong> 12 Page 94<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> NSW Government give urgent priority to fund<strong>in</strong>g<br />
proposals that will enable NSW to comply with <strong>the</strong> Nati<strong>on</strong>al Medical Health Forensic Policy by<br />
hous<strong>in</strong>g forensic <strong>in</strong>mates <strong>in</strong> secure community based facilities.<br />
Recommendati<strong>on</strong> 13 Page 96<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department review <strong>the</strong> impact of “E” (previous escape)<br />
classificati<strong>on</strong>s <strong>on</strong> <strong>the</strong> ability of pris<strong>on</strong>ers to participate <strong>in</strong> programs to address <strong>the</strong>ir offend<strong>in</strong>g<br />
behaviour. Procedures should be exam<strong>in</strong>ed to determ<strong>in</strong>e whe<strong>the</strong>r modificati<strong>on</strong>s to current<br />
restricti<strong>on</strong>s can be made so as to assist access to programs for pris<strong>on</strong>ers who are not c<strong>on</strong>sidered<br />
high risk <strong>in</strong> <strong>the</strong>ir current term.<br />
Recommendati<strong>on</strong> 14 Page 104<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services expand <strong>the</strong> establishment of<br />
transiti<strong>on</strong>al centres, and that, where possible, <strong>the</strong>y be located outside but near to exist<strong>in</strong>g NSW<br />
Correcti<strong>on</strong>al facilities.<br />
Recommendati<strong>on</strong> 15 Page 106<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g <strong>the</strong> completi<strong>on</strong> of its current research <strong>in</strong>to <strong>the</strong> home<br />
detenti<strong>on</strong> scheme, <strong>the</strong> Department of Corrective Services re-exam<strong>in</strong>e proposals for back-end<br />
home detenti<strong>on</strong>.<br />
Recommendati<strong>on</strong> 16 Page 113<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> NSW Attorney General commissi<strong>on</strong> research to <strong>in</strong>vestigate<br />
<strong>the</strong> impacts of abolish<strong>in</strong>g sentences of six m<strong>on</strong>ths or less <strong>in</strong> NSW, and table this research <strong>in</strong><br />
Parliament. The research should c<strong>on</strong>sider:<br />
• <strong>the</strong> impact <strong>on</strong> <strong>the</strong> size of <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong>,<br />
• potential sav<strong>in</strong>gs to <strong>the</strong> NSW Budget,<br />
• <strong>the</strong> impact <strong>on</strong> <strong>the</strong> management of NSW Correcti<strong>on</strong>al Centres,<br />
• development of alternatives to full time custody<br />
• <strong>the</strong> impacts <strong>on</strong> o<strong>the</strong>r services such as <strong>the</strong> Probati<strong>on</strong> and Parole Service,<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
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LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
• <strong>the</strong> profile of <strong>the</strong> <strong>in</strong>mates who are sentenced to less than six m<strong>on</strong>ths <strong>in</strong>clud<strong>in</strong>g <strong>the</strong>ir<br />
most serious offences, and<br />
• <strong>the</strong> number of <strong>in</strong>mates serv<strong>in</strong>g six m<strong>on</strong>ths or less who are male, female or<br />
<strong>in</strong>digenous.<br />
If <strong>the</strong> Research supports <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> of measures to abolish short sentences <strong>the</strong> proposal<br />
should be circulated <strong>in</strong> a Discussi<strong>on</strong> Paper for public c<strong>on</strong>sultati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 17 Page 113<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Government <strong>in</strong>itiate a pilot project which would select and<br />
divert a number of offenders who would o<strong>the</strong>rwise be sentenced to impris<strong>on</strong>ment for a period of<br />
three m<strong>on</strong>ths or less. Priority should be given to select<strong>in</strong>g women and <strong>in</strong>digenous <strong>in</strong>mates for<br />
<strong>the</strong> pilot study.<br />
Recommendati<strong>on</strong> 18 Page 116<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Judicial Commissi<strong>on</strong> c<strong>on</strong>duct a survey of Judges and<br />
Magistrates’ percepti<strong>on</strong> of <strong>the</strong> severity of different penalties vary<strong>in</strong>g <strong>in</strong> durati<strong>on</strong>. This study<br />
should compare, for example, what judges and magistrates c<strong>on</strong>sider to be <strong>the</strong> periodic detenti<strong>on</strong><br />
equivalent of twelve m<strong>on</strong>ths impris<strong>on</strong>ment, and <strong>the</strong> factors that may cause this assessment to<br />
vary.<br />
Recommendati<strong>on</strong> 19 Page 117<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g <strong>the</strong> operati<strong>on</strong> for a period of two years of s12 of <strong>the</strong><br />
Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999, <strong>the</strong> Bureau of Crime Statistics and Research evaluate <strong>the</strong><br />
extent of breaches of orders for suspended sentences and its impact <strong>on</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 20 Page 122<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research c<strong>on</strong>duct research<br />
to evaluate <strong>the</strong> effectiveness of periodic detenti<strong>on</strong> as an alternative to full time custody. The<br />
research should <strong>in</strong>vestigate why <strong>the</strong>re are currently problems with compliance lead<strong>in</strong>g to<br />
breaches, and whe<strong>the</strong>r <strong>the</strong> program can be improved to address <strong>the</strong>se problems.<br />
This research should <strong>in</strong>clude c<strong>on</strong>siderati<strong>on</strong> of what impact periodic detenti<strong>on</strong> reports at <strong>the</strong><br />
sentenc<strong>in</strong>g stage have <strong>on</strong> <strong>the</strong> use of alternatives to impris<strong>on</strong>ment.<br />
Recommendati<strong>on</strong> 21 Page 124<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g its current research <strong>in</strong>to <strong>the</strong> home detenti<strong>on</strong><br />
program, <strong>the</strong> NSW Government give priority to fund<strong>in</strong>g <strong>the</strong> expansi<strong>on</strong> of home detenti<strong>on</strong> <strong>on</strong> a<br />
strategic basis <strong>in</strong>to rural areas, as an alternative to full time custody.<br />
Recommendati<strong>on</strong> 22 Page 125<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services <strong>in</strong>itiate a pilot program<br />
to expand <strong>the</strong> use of home detenti<strong>on</strong> by Indigenous offenders <strong>in</strong> rural NSW. This pilot should<br />
<strong>in</strong>clude provid<strong>in</strong>g alternative accommodati<strong>on</strong>, and/or o<strong>the</strong>r forms of community support, where<br />
offenders can complete a sentence of home detenti<strong>on</strong>.<br />
Recommendati<strong>on</strong> 23 Page 126<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Attorney-General’s Department make provisi<strong>on</strong> for courts,<br />
when cancell<strong>in</strong>g a periodic or home detenti<strong>on</strong> order, to substitute a different n<strong>on</strong>-custodial<br />
sentence, for example a b<strong>on</strong>d or Community Service order, when appropriate to <strong>the</strong> specific<br />
offender c<strong>on</strong>cerned.<br />
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Recommendati<strong>on</strong> 24 Page 129<br />
The committee recommends that <strong>the</strong> Psychiatric C<strong>on</strong>sultati<strong>on</strong> and Assessment Service be<br />
expanded statewide and that an evaluati<strong>on</strong> be c<strong>on</strong>ducted to review its success <strong>in</strong> divert<strong>in</strong>g<br />
offenders.<br />
Recommendati<strong>on</strong> 25 Page 134<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research <strong>in</strong>clude <strong>in</strong> <strong>on</strong>e of<br />
its evaluati<strong>on</strong>s of <strong>the</strong> Drug Court c<strong>on</strong>siderati<strong>on</strong> of offenders who receive sentences of custody<br />
after failure to obta<strong>in</strong> <strong>on</strong>e of <strong>the</strong> limited places <strong>on</strong> <strong>the</strong> program.<br />
Recommendati<strong>on</strong> 26 Page 134<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> fur<strong>the</strong>r recommends that <strong>the</strong> evaluati<strong>on</strong>s <strong>in</strong>clude c<strong>on</strong>siderati<strong>on</strong> of <strong>the</strong><br />
applicability of <strong>the</strong> Drug Court program to offenders with alcohol problems.<br />
Recommendati<strong>on</strong> 27 Page 134<br />
If and when <strong>the</strong> Drug Court program <strong>in</strong>cludes those with alcohol related problems, <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g <strong>the</strong> Bureau of Crime Statistics and Research evaluati<strong>on</strong>s,<br />
<strong>the</strong> Government c<strong>on</strong>sider establish<strong>in</strong>g a Drug Court <strong>in</strong> a regi<strong>on</strong>al part of NSW, where <strong>the</strong>re are a<br />
significant number of <strong>in</strong>digenous people are arrested and charged.<br />
Recommendati<strong>on</strong> 28 Page 154<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services Research and Statistics<br />
Branch exam<strong>in</strong>e <strong>the</strong> papers presented at <strong>the</strong> “Women <strong>in</strong> Correcti<strong>on</strong>s: Staff and Clients” hosted<br />
by <strong>the</strong> Australian Institute of Crim<strong>in</strong>ology <strong>in</strong> November 2000. The Research Branch should<br />
determ<strong>in</strong>e whe<strong>the</strong>r <strong>the</strong>y should develop and pursue any of <strong>the</strong> suggesti<strong>on</strong>s for fur<strong>the</strong>r research <strong>in</strong><br />
NSW or refer relevant data to o<strong>the</strong>r crime research bodies or <strong>in</strong>terested <strong>in</strong>dividual researchers.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Branch give str<strong>on</strong>g c<strong>on</strong>siderati<strong>on</strong> to those projects deal<strong>in</strong>g with<br />
<strong>the</strong> deaths of <strong>in</strong>mates post release, <strong>the</strong> operati<strong>on</strong> of bail laws and l<strong>in</strong>ks between trauma and<br />
patterns of drug abuse by female offenders.<br />
F<strong>in</strong>al <strong>Report</strong> - November 2001<br />
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SELECT COMMITTEE<br />
Chapter 1<br />
Introducti<strong>on</strong><br />
Terms of Reference<br />
1.1 On 17 November 1999 <strong>the</strong> Legislative Council appo<strong>in</strong>ted a select committee to <strong>in</strong>quire<br />
<strong>in</strong>to <strong>the</strong> factors resp<strong>on</strong>sible for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> pris<strong>on</strong>er populati<strong>on</strong> s<strong>in</strong>ce 1995 and <strong>the</strong><br />
c<strong>on</strong>sequences of that <strong>in</strong>crease, toge<strong>the</strong>r with a wide range of issues relat<strong>in</strong>g to <strong>in</strong>carcerati<strong>on</strong>.<br />
The terms of reference of <strong>the</strong> committee required that it make an <strong>in</strong>terim report by 1 May<br />
2000 <strong>on</strong> matters relat<strong>in</strong>g to women and a f<strong>in</strong>al report <strong>on</strong> rema<strong>in</strong><strong>in</strong>g matters by 1 October<br />
2000. 1 The terms of reference are reproduced <strong>in</strong> full <strong>on</strong> pages iv-v of this report.<br />
1.2 Specific issues for <strong>the</strong> committee’s c<strong>on</strong>siderati<strong>on</strong> <strong>in</strong>clude:<br />
• <strong>the</strong> effectiveness of impris<strong>on</strong>ment, <strong>in</strong>clud<strong>in</strong>g for people with special needs,<br />
Indigenous Australians, and people with a n<strong>on</strong>-English speak<strong>in</strong>g background,<br />
• <strong>the</strong> use of pris<strong>on</strong>s for people remanded <strong>in</strong> custody,<br />
• <strong>the</strong> effectiveness of build<strong>in</strong>g a new women’s pris<strong>on</strong> to address <strong>in</strong>creas<strong>in</strong>g numbers<br />
of women pris<strong>on</strong>ers and any c<strong>on</strong>tract entered <strong>in</strong>to for such a pris<strong>on</strong>,<br />
• alternatives to <strong>in</strong>carcerati<strong>on</strong>, and<br />
• post-release policies and coord<strong>in</strong>ati<strong>on</strong> of <strong>in</strong>tegrated assistance.<br />
Interim <strong>Report</strong> and <strong>the</strong> Government Resp<strong>on</strong>se<br />
1.3 At a meet<strong>in</strong>g <strong>on</strong> 25 May, 2000, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> resolved to seek an extensi<strong>on</strong> of <strong>the</strong> date for<br />
tabl<strong>in</strong>g <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s <strong>in</strong>terim report, and this request was subsequently agreed to by <strong>the</strong><br />
Legislative Council. C<strong>on</strong>sequently, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> tabled its Interim <strong>Report</strong>: Issues Relat<strong>in</strong>g to<br />
Women <strong>on</strong> 28 July 2000. 2 The Interim <strong>Report</strong> makes 58 recommendati<strong>on</strong>s.<br />
1.4 On 19 February, 2001, <strong>the</strong> M<strong>in</strong>ister for Corrective Services, <strong>the</strong> H<strong>on</strong> John Watk<strong>in</strong>s MP,<br />
provided a resp<strong>on</strong>se to <strong>the</strong> Interim <strong>Report</strong> <strong>on</strong> behalf of <strong>the</strong> Government. This resp<strong>on</strong>se,<br />
which reproduces each of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s recommendati<strong>on</strong>s, is <strong>in</strong>cluded <strong>in</strong> Chapter N<strong>in</strong>e<br />
of this report.<br />
C<strong>on</strong>duct of <strong>the</strong> <strong>in</strong>quiry<br />
1.5 In accordance with <strong>the</strong> terms of reference, follow<strong>in</strong>g <strong>the</strong> tabl<strong>in</strong>g of <strong>the</strong> <strong>in</strong>terim report, <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> commenced its <strong>in</strong>quiry <strong>in</strong>to <strong>the</strong> rema<strong>in</strong><strong>in</strong>g matters.<br />
1 M<strong>in</strong>utes of Proceed<strong>in</strong>gs of <strong>the</strong> Legislative Council, No 17 November, 1999, M<strong>in</strong>utes No 23, Item 4.<br />
2 Hereafter referred to as “The Interim <strong>Report</strong>”.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 1
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
1.6 At <strong>the</strong> time of tabl<strong>in</strong>g <strong>the</strong> Interim <strong>Report</strong>, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> had received 138 submissi<strong>on</strong>s.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> placed advertisements <strong>in</strong> major newspapers <strong>on</strong> 16 September 2000 seek<strong>in</strong>g<br />
submissi<strong>on</strong>s to <strong>the</strong> sec<strong>on</strong>d stage of <strong>the</strong> <strong>in</strong>quiry with a clos<strong>in</strong>g date of 30 November 2000.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> received a fur<strong>the</strong>r 59 submissi<strong>on</strong>s, mak<strong>in</strong>g <strong>the</strong> total number of submissi<strong>on</strong>s<br />
received 197. The authors of submissi<strong>on</strong>s, except those request<strong>in</strong>g c<strong>on</strong>fidentiality, are<br />
listed <strong>in</strong> Appendix One.<br />
1.7 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> held a total of eight public hear<strong>in</strong>gs dur<strong>in</strong>g <strong>the</strong> sec<strong>on</strong>d phase of <strong>the</strong> <strong>in</strong>quiry.<br />
Six of <strong>the</strong>se hear<strong>in</strong>gs took place at Parliament House, <strong>on</strong> 19 October 2000, 20 October<br />
2000, 28 November 2000, 12 March 2001, 19 March 2001 and 12 June 2001. One hear<strong>in</strong>g<br />
was held at Goulburn Correcti<strong>on</strong>al Centre <strong>on</strong> 23 October 2000 and <strong>on</strong>e hear<strong>in</strong>g was held at<br />
Wagga Wagga RSL Club and Junee Correcti<strong>on</strong>al Centre <strong>on</strong> 24 October 2000. A total of 60<br />
witnesses were exam<strong>in</strong>ed dur<strong>in</strong>g <strong>the</strong> sec<strong>on</strong>d phase of <strong>the</strong> <strong>in</strong>quiry, <strong>in</strong>clud<strong>in</strong>g 20 <strong>in</strong>mates. The<br />
witnesses and hear<strong>in</strong>gs are listed as Appendix Two.<br />
1.8 In additi<strong>on</strong> to tak<strong>in</strong>g formal evidence, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>ducted a number of site visits.<br />
On 13 March 2001 <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited <strong>the</strong> Drug Court of NSW and held discussi<strong>on</strong>s<br />
with Judge Murrell and psychiatric staff and viewed <strong>the</strong> proceed<strong>in</strong>gs of <strong>the</strong> Court. On 13<br />
March 2001 <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> also visited <strong>the</strong> NSW Judicial Commissi<strong>on</strong> and received a<br />
brief<strong>in</strong>g <strong>on</strong> <strong>the</strong> Judicial Informati<strong>on</strong> Research System. On 19 March 2001, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
visited <strong>the</strong> Central Local Court and received a brief<strong>in</strong>g <strong>on</strong> <strong>the</strong> Psychiatric C<strong>on</strong>sultati<strong>on</strong> and<br />
Assessment Service. On 22 March 2001 <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited L<strong>on</strong>g Bay Correcti<strong>on</strong>al<br />
Centre and c<strong>on</strong>sulted with Department of Corrective Services and Correcti<strong>on</strong>s Health staff<br />
and also a number of <strong>in</strong>mates <strong>in</strong> <strong>the</strong> Malabar Special Programs Centre.<br />
1.9 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> at its deliberative meet<strong>in</strong>g <strong>on</strong> 15 August 2001 agreed to seek an extensi<strong>on</strong><br />
for <strong>the</strong> report<strong>in</strong>g deadl<strong>in</strong>e for <strong>the</strong> f<strong>in</strong>al report of 31 October 2001, and this was<br />
subsequently granted by <strong>the</strong> Legislative Council.<br />
1.10 The Chair’s draft report was c<strong>on</strong>sidered and adopted at <strong>the</strong> c<strong>on</strong>clusi<strong>on</strong> of deliberative<br />
meet<strong>in</strong>gs held <strong>on</strong> 24 October, 29 October and 6 November 2001. The m<strong>in</strong>utes of<br />
proceed<strong>in</strong>gs for <strong>the</strong> <strong>in</strong>quiry are tabled separately to this report.<br />
Scope of this <strong>Report</strong><br />
1.11 Investigat<strong>in</strong>g <strong>the</strong> male populati<strong>on</strong>, as required by <strong>the</strong> terms of reference, has presented a<br />
particular challenge to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>. It makes little sense to exam<strong>in</strong>e <strong>the</strong> male populati<strong>on</strong><br />
as a discrete group. Because more than 93% of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is male, <strong>the</strong> needs of<br />
that populati<strong>on</strong> have historically been <strong>the</strong> benchmark for <strong>the</strong> delivery of services and<br />
programs to all <strong>in</strong>mates. This report <strong>the</strong>refore looks at issues affect<strong>in</strong>g <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> as a whole, and also exam<strong>in</strong>es those outstand<strong>in</strong>g issues aris<strong>in</strong>g from <strong>the</strong> Interim<br />
report.<br />
Structure of <strong>the</strong> <strong>Report</strong><br />
1.12 This report is divided <strong>in</strong>to three parts. Part One outl<strong>in</strong>es essential background<br />
<strong>in</strong>formati<strong>on</strong> <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> NSW pris<strong>on</strong> system and <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g<br />
trends identified dur<strong>in</strong>g <strong>the</strong> <strong>in</strong>quiry. Chapter Two briefly discusses <strong>the</strong> role of impris<strong>on</strong>ment<br />
2 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
and provides an outl<strong>in</strong>e of <strong>the</strong> legislative framework for sentenc<strong>in</strong>g <strong>in</strong> New South Wales.<br />
Chapter Three provides statistics <strong>on</strong> <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> and comparative data<br />
for Australian and <strong>in</strong>ternati<strong>on</strong>al pris<strong>on</strong> populati<strong>on</strong>s. Chapter Four outl<strong>in</strong>es <strong>the</strong> profile of <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>, specifically <strong>the</strong> demography of <strong>the</strong> populati<strong>on</strong> and <strong>the</strong> offences for<br />
which pers<strong>on</strong>s are serv<strong>in</strong>g sentences.<br />
1.13 Part Two of <strong>the</strong> report analyses <strong>the</strong> evidence received by <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> dur<strong>in</strong>g <strong>the</strong> course<br />
of <strong>the</strong> <strong>in</strong>quiry. Chapter Five analyses <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong> and exam<strong>in</strong>es<br />
<strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease. Chapter Six discusses <strong>in</strong>carcerati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> changes <strong>in</strong><br />
attitudes over <strong>the</strong> years as to why people are put <strong>in</strong> pris<strong>on</strong>, and <strong>the</strong> current f<strong>in</strong>ancial costs<br />
of <strong>in</strong>carcerati<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g capital works and <strong>in</strong>mate costs. The chapter also c<strong>on</strong>siders <strong>the</strong><br />
<strong>in</strong>mate management system, programs available to <strong>in</strong>mates, and post-release matters.<br />
Chapter Seven discusses sentenc<strong>in</strong>g alternatives to full-time impris<strong>on</strong>ment and diversi<strong>on</strong>ary<br />
programs.<br />
1.14 Part Three of <strong>the</strong> report deals with issues aris<strong>in</strong>g from <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s <strong>in</strong>terim report.<br />
Chapter Eight reviews <strong>the</strong> major f<strong>in</strong>d<strong>in</strong>gs and recommendati<strong>on</strong>s of <strong>the</strong> Interim <strong>Report</strong>, and <strong>the</strong><br />
Government’s resp<strong>on</strong>se.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 3
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Chapter 2<br />
The NSW Pris<strong>on</strong> System: role of<br />
impris<strong>on</strong>ment; sentenc<strong>in</strong>g legislative<br />
framework; and correcti<strong>on</strong>al centres.<br />
Introducti<strong>on</strong><br />
2.1 This chapter provides background <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> NSW pris<strong>on</strong> system prior to<br />
c<strong>on</strong>siderati<strong>on</strong> of <strong>the</strong> specific issues at <strong>the</strong> centre of this <strong>in</strong>quiry. The chapter beg<strong>in</strong>s with a<br />
brief discussi<strong>on</strong> of <strong>the</strong> role of impris<strong>on</strong>ment. The chapter <strong>the</strong>n outl<strong>in</strong>es <strong>the</strong> legislative<br />
framework for sentenc<strong>in</strong>g and impris<strong>on</strong>ment <strong>in</strong> NSW. F<strong>in</strong>ally, <strong>the</strong> chapter provides a brief<br />
overview of <strong>the</strong> locati<strong>on</strong>, classificati<strong>on</strong> and capacity of <strong>the</strong> gaols managed by <strong>the</strong><br />
Department of Corrective Services.<br />
The Role of Impris<strong>on</strong>ment<br />
2.2 The NSW Law Reform Commissi<strong>on</strong>, <strong>in</strong> its landmark 1996 report, Sentenc<strong>in</strong>g, summarised<br />
<strong>the</strong> rati<strong>on</strong>ale for punishment as follows:<br />
Retributi<strong>on</strong> – which is <strong>the</strong> noti<strong>on</strong> that <strong>the</strong> guilty ought to be accountable for <strong>the</strong>ir<br />
acti<strong>on</strong>s and suffer <strong>the</strong> punishment which <strong>the</strong>y deserve.<br />
Deterrence: specific deterrence which aims to dissuade <strong>the</strong> offender from<br />
committ<strong>in</strong>g fur<strong>the</strong>r crime; and general deterrence which aims to dissuade o<strong>the</strong>rs<br />
from committ<strong>in</strong>g <strong>the</strong> crime <strong>in</strong> questi<strong>on</strong> by mak<strong>in</strong>g <strong>the</strong>m aware of <strong>the</strong> punishment<br />
<strong>in</strong>flicted up<strong>on</strong> <strong>the</strong> offender.<br />
Denunciati<strong>on</strong> – which <strong>in</strong>volves <strong>the</strong> court mak<strong>in</strong>g a public statement that<br />
behaviour c<strong>on</strong>stitut<strong>in</strong>g <strong>the</strong> offence is not to be tolerated by society ei<strong>the</strong>r <strong>in</strong><br />
general, or <strong>in</strong> <strong>the</strong> specific <strong>in</strong>stance.<br />
Rehabilitati<strong>on</strong> – which relies <strong>on</strong> <strong>the</strong> philosophy that <strong>the</strong> offender’s behaviour<br />
can be changed by us<strong>in</strong>g <strong>the</strong> opportunity of punishment to address <strong>the</strong> particular<br />
social, psychological, psychiatric or o<strong>the</strong>r factors which have <strong>in</strong>fluenced <strong>the</strong><br />
offender to commit <strong>the</strong> crime.<br />
Incapacitati<strong>on</strong> – which <strong>in</strong>volves prevent<strong>in</strong>g a pers<strong>on</strong> from committ<strong>in</strong>g fur<strong>the</strong>r<br />
offences dur<strong>in</strong>g <strong>the</strong> period of <strong>in</strong>carcerati<strong>on</strong>, with community protecti<strong>on</strong> as <strong>the</strong><br />
justificati<strong>on</strong>. 3<br />
2.3 These purposes for sentenc<strong>in</strong>g are derived from <strong>the</strong> comm<strong>on</strong> law and have not been<br />
codified <strong>in</strong> NSW legislati<strong>on</strong> because it was feared that it would compromise “<strong>the</strong> desirable<br />
flexibility and evoluti<strong>on</strong>ary nature of <strong>the</strong> comm<strong>on</strong> law discreti<strong>on</strong> and its ability to adapt to<br />
chang<strong>in</strong>g societal values.” 4<br />
3 NSW Law Reform Commissi<strong>on</strong>, Sentenc<strong>in</strong>g, <strong>Report</strong> 79, December 1996, pp 331-332 (referred to <strong>in</strong><br />
Department of Corrective Services, Submissi<strong>on</strong> 63, pp 123-124).<br />
4 Op cit p333-334.<br />
4 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
2.4 The Law Reform Commissi<strong>on</strong> stated that all of <strong>the</strong>se purposes were relevant and that it<br />
was nei<strong>the</strong>r practicable nor appropriate to seek to place <strong>the</strong>m <strong>in</strong> a hierarchy. The<br />
Commissi<strong>on</strong> also recognised that some of <strong>the</strong>se purposes represent c<strong>on</strong>flict<strong>in</strong>g<br />
philosophical approaches:<br />
The Commissi<strong>on</strong> is of <strong>the</strong> view that all <strong>the</strong>se purposes are relevant <strong>in</strong> determ<strong>in</strong><strong>in</strong>g<br />
<strong>the</strong> sentence appropriate to <strong>the</strong> <strong>in</strong>dividual circumstances of <strong>the</strong> offence and <strong>the</strong><br />
offender, <strong>the</strong>ir weight <strong>in</strong> any case depend<strong>in</strong>g <strong>on</strong> <strong>the</strong> circumstances of that offence<br />
and of <strong>the</strong> offender. The sentence process <strong>in</strong>volves a complex and <strong>in</strong>tricate<br />
<strong>in</strong>terplay which emerges as a compromise between <strong>the</strong>se overlapp<strong>in</strong>g “dist<strong>in</strong>ct and<br />
partly c<strong>on</strong>flict<strong>in</strong>g pr<strong>in</strong>ciples”. They represent vary<strong>in</strong>g philosophical approaches to<br />
sentenc<strong>in</strong>g. The Commissi<strong>on</strong> is unable to identify from am<strong>on</strong>g <strong>the</strong> objectives a<br />
dom<strong>in</strong>ant rati<strong>on</strong>ale. The importance attached to any particular goal or goals of<br />
sentenc<strong>in</strong>g will vary, not <strong>on</strong>ly with <strong>the</strong> <strong>in</strong>dividual circumstances, but also over<br />
time, reflect<strong>in</strong>g changes <strong>in</strong> society and community expectati<strong>on</strong>s. The legislative<br />
statement of <strong>the</strong> purposes of punishment [recommended by <strong>the</strong> Commissi<strong>on</strong>]<br />
should not place <strong>the</strong>m <strong>in</strong> a hierarchy. The legislati<strong>on</strong> should make it clear that no<br />
priority is assigned, lest it is un<strong>in</strong>tenti<strong>on</strong>ally <strong>in</strong>terpreted to this effect. 5<br />
2.5 The NSW Court of Crim<strong>in</strong>al Appeal has recently referred to <strong>the</strong> “multiplicity of factors”<br />
<strong>in</strong>volved <strong>in</strong> sentenc<strong>in</strong>g decisi<strong>on</strong>s and to <strong>the</strong> broad discreti<strong>on</strong> which judges have <strong>in</strong> apply<strong>in</strong>g<br />
<strong>the</strong>se factors to <strong>the</strong> circumstances of <strong>in</strong>dividual cases:<br />
The existence of multiple objectives <strong>in</strong> sentenc<strong>in</strong>g – rehabilitati<strong>on</strong>, denunciati<strong>on</strong><br />
and deterrence – permits <strong>in</strong>dividual judges to reflect quite different penal<br />
philosophies. This is not a bad th<strong>in</strong>g <strong>in</strong> a field <strong>in</strong> which “<strong>the</strong> <strong>on</strong>ly golden rule is<br />
that <strong>the</strong>re is no golden rule” (Geddes (1936) 365 SR(NSW) 554, 555 per Jordan CJ).<br />
Indeed, judges reflect <strong>the</strong> wide range of differ<strong>in</strong>g views <strong>on</strong> such matters that exists<br />
<strong>in</strong> <strong>the</strong> community. 6<br />
2.6 In additi<strong>on</strong> to c<strong>on</strong>sider<strong>in</strong>g <strong>the</strong>se often c<strong>on</strong>flict<strong>in</strong>g goals, judges have to take <strong>in</strong>to<br />
c<strong>on</strong>siderati<strong>on</strong> numerous <strong>in</strong>dividual factors <strong>in</strong> determ<strong>in</strong><strong>in</strong>g a sentence for a c<strong>on</strong>victed<br />
offender. The factors c<strong>on</strong>sidered by <strong>the</strong> courts for <strong>in</strong>dividual matters fall <strong>in</strong>to five broad<br />
categories, namely those relevant to:<br />
• <strong>the</strong> nature of <strong>the</strong> offence;<br />
• <strong>the</strong> nature of <strong>the</strong> offender;<br />
• <strong>the</strong> offender’s resp<strong>on</strong>se to <strong>the</strong> charges;<br />
• <strong>the</strong> effect of <strong>the</strong> offence and <strong>the</strong> sancti<strong>on</strong>; and<br />
• <strong>the</strong> sentence imposed <strong>on</strong> a co-offender. 7<br />
5 Ibid, pp 332-333.<br />
6 R v Jurisic (1998) 45 NSWLR 209, at 221 per Spigelman CJ. However, <strong>the</strong> Court of Crim<strong>in</strong>al Appeal also<br />
identified limits to <strong>the</strong> permissible range of variati<strong>on</strong>, argu<strong>in</strong>g <strong>the</strong> case for, and deliver<strong>in</strong>g <strong>the</strong> first of a number<br />
of recent guidel<strong>in</strong>e judgments to structure judicial discreti<strong>on</strong>.<br />
7 NSWLRC Discussi<strong>on</strong> Paper 33 (1996) Sentenc<strong>in</strong>g 5.7.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 5
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
2.7 The NSW Court of Crim<strong>in</strong>al Appeal has recognised that <strong>the</strong>re is a tensi<strong>on</strong> between<br />
ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g maximum flexibility <strong>in</strong> <strong>the</strong> exercise of discreti<strong>on</strong> <strong>on</strong> <strong>the</strong> <strong>on</strong>e hand, and ensur<strong>in</strong>g<br />
c<strong>on</strong>sistency <strong>in</strong> sentenc<strong>in</strong>g decisi<strong>on</strong>s <strong>on</strong> <strong>the</strong> o<strong>the</strong>r. 8<br />
Legislative framework for sentenc<strong>in</strong>g and impris<strong>on</strong>ment<br />
2.8 In 1999 <strong>the</strong> Parliament passed legislati<strong>on</strong> which c<strong>on</strong>solidated and rati<strong>on</strong>alised <strong>the</strong> legislative<br />
framework for sentenc<strong>in</strong>g <strong>in</strong> NSW. This is primarily c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> two Acts, <strong>the</strong> Crimes<br />
(Sentenc<strong>in</strong>g Procedures) Act 1999 and <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 1999. The<br />
changes were <strong>in</strong>tended to implement recommendati<strong>on</strong>s made <strong>in</strong> <strong>the</strong> NSW Law Reform<br />
Commissi<strong>on</strong>’s report Sentenc<strong>in</strong>g (discussed <strong>in</strong> <strong>the</strong> previous secti<strong>on</strong>).<br />
The Crimes (Sentenc<strong>in</strong>g Procedures) Act<br />
2.9 The Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 is <strong>the</strong> legislati<strong>on</strong> that outl<strong>in</strong>es <strong>the</strong> various forms of<br />
sentences which are available for <strong>the</strong> courts to impose <strong>on</strong> offenders. The Act c<strong>on</strong>ta<strong>in</strong>s a<br />
significant statement of pr<strong>in</strong>ciple <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> role of impris<strong>on</strong>ment:<br />
s 5 (1) A court must not sentence an offender to impris<strong>on</strong>ment unless it is<br />
satisfied, hav<strong>in</strong>g c<strong>on</strong>sidered all possible alternatives, that no penalty o<strong>the</strong>r than<br />
impris<strong>on</strong>ment is appropriate.<br />
2.10 This approach, that “impris<strong>on</strong>ment should <strong>on</strong>ly be used as a sancti<strong>on</strong> of last resort”, 9 was<br />
also adopted by <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> its Interim <strong>Report</strong>.<br />
2.11 In relati<strong>on</strong> to sentences to impris<strong>on</strong>ment for 6 m<strong>on</strong>ths or less, secti<strong>on</strong> 5 (2) <strong>in</strong>cludes a<br />
requirement that <strong>the</strong> court:<br />
must <strong>in</strong>dicate to <strong>the</strong> offender, and make a record of, its reas<strong>on</strong>s for do<strong>in</strong>g so,<br />
<strong>in</strong>clud<strong>in</strong>g its reas<strong>on</strong>s for decid<strong>in</strong>g that no penalty o<strong>the</strong>r than impris<strong>on</strong>ment is<br />
appropriate.<br />
2.12 The Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 clearly dist<strong>in</strong>guishes alternatives to full-time<br />
detenti<strong>on</strong> that a court may order for an offender sentenced to impris<strong>on</strong>ment (namely<br />
periodic detenti<strong>on</strong> and home detenti<strong>on</strong>), and n<strong>on</strong>-custodial alternatives to impris<strong>on</strong>ment<br />
(namely community service orders and good behaviour b<strong>on</strong>ds, dismissal of charges,<br />
deferral of sentenc<strong>in</strong>g and suspended sentences) and f<strong>in</strong>es. 10<br />
2.13 Part 3 of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedure) Act 1999 deals with sentenc<strong>in</strong>g procedures, with<br />
secti<strong>on</strong>s 36-42 deal<strong>in</strong>g specifically with guidel<strong>in</strong>e judgments. Part 4 of <strong>the</strong> Act deals with<br />
sentenc<strong>in</strong>g procedures for impris<strong>on</strong>ment. Secti<strong>on</strong> 44 provides for <strong>the</strong> court to, firstly, set<br />
<strong>the</strong> term of <strong>the</strong> sentence; and, sec<strong>on</strong>dly, set a n<strong>on</strong>-parole period 11 which must generally not<br />
be less than three-quarters of <strong>the</strong> term of <strong>the</strong> sentence. Secti<strong>on</strong> 45 provides that <strong>the</strong> court<br />
8 R v Jurisic (1998) 45 NSWLR 209, Spigelman CJ and ors.<br />
9 Interim <strong>Report</strong>, p 2.<br />
10 Secti<strong>on</strong>s 6-17.<br />
11 That is <strong>the</strong> m<strong>in</strong>imum period for which <strong>the</strong> offender must be kept <strong>in</strong> detenti<strong>on</strong> <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> offence.<br />
6 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
may decl<strong>in</strong>e to set a n<strong>on</strong>-parole period, and secti<strong>on</strong> 46 prevents <strong>the</strong> court from sett<strong>in</strong>g a<br />
n<strong>on</strong>-parole period for a sentence of less than 6 m<strong>on</strong>ths.<br />
2.14 Part 5 of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedure) Act 1999 deals with procedures for periodic<br />
detenti<strong>on</strong> orders. A procedure is provided for <strong>the</strong> court to obta<strong>in</strong> assessments from <strong>the</strong><br />
Probati<strong>on</strong> and Parole Service <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> suitability of an offender for periodic<br />
detenti<strong>on</strong>. Part 6 of <strong>the</strong> Act addresses sentenc<strong>in</strong>g procedures for home detenti<strong>on</strong> orders.<br />
A similar procedure is provided for <strong>in</strong> terms of an assessment report. However, Part 6 of<br />
<strong>the</strong> Act c<strong>on</strong>ta<strong>in</strong>s very detailed provisi<strong>on</strong>s c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> reas<strong>on</strong>s why a home detenti<strong>on</strong><br />
order may not be made for an offender, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> nature of <strong>the</strong> offence and <strong>the</strong><br />
offender’s history. Part 7 of <strong>the</strong> Act <strong>on</strong>ce aga<strong>in</strong> provides a similar procedure, <strong>in</strong>clud<strong>in</strong>g<br />
assessment reports from <strong>the</strong> Probati<strong>on</strong> and Parole Service, <strong>in</strong> relati<strong>on</strong> to sentenc<strong>in</strong>g for<br />
community service orders. Part 8 provides for sentenc<strong>in</strong>g procedures for good behaviour<br />
b<strong>on</strong>ds.<br />
The Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act<br />
2.15 The Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 1999 sets out how offenders are to be dealt with<br />
follow<strong>in</strong>g sentence, and c<strong>on</strong>solidated <strong>the</strong> law <strong>in</strong> relati<strong>on</strong> to this issue.<br />
2.16 Part 2 of <strong>the</strong> Act deals with impris<strong>on</strong>ment by way of full-time detenti<strong>on</strong>. Subjects dealt<br />
with <strong>in</strong>clude work by <strong>in</strong>mates (s 6), segregated and protective custody (ss 9-22), transfer of<br />
<strong>in</strong>mates (s 23), leave permits (s 26), correcti<strong>on</strong>al centre discipl<strong>in</strong>e (ss 51-65) and regulati<strong>on</strong>s<br />
(s 79). Part 3 of <strong>the</strong> Act deals with impris<strong>on</strong>ment by way of periodic detenti<strong>on</strong>. Part 4 of<br />
<strong>the</strong> Act deals with impris<strong>on</strong>ment by way of home detenti<strong>on</strong>. Part 5 of <strong>the</strong> Act deals with<br />
community service work. Part 6 of <strong>the</strong> Act deals with Parole. Secti<strong>on</strong>s 135 and 137<br />
address <strong>the</strong> duties of <strong>the</strong> Parole Board <strong>in</strong> mak<strong>in</strong>g decisi<strong>on</strong>s about <strong>the</strong> mak<strong>in</strong>g of parole<br />
orders. The Act also c<strong>on</strong>ta<strong>in</strong>s detailed provisi<strong>on</strong>s <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> Parole Board, <strong>the</strong><br />
Serious Offenders Review Council and <strong>the</strong> Inspector General.<br />
2.17 Part 11 of <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 1999 deals with adm<strong>in</strong>istrati<strong>on</strong>,<br />
<strong>in</strong>clud<strong>in</strong>g <strong>the</strong> proclamati<strong>on</strong> of correcti<strong>on</strong>al complexes, correcti<strong>on</strong>al centres and periodic<br />
detenti<strong>on</strong> centres (ss 224-226). Secti<strong>on</strong> 232 of <strong>the</strong> Act provides for <strong>the</strong> functi<strong>on</strong>s of <strong>the</strong><br />
Commissi<strong>on</strong>er of Corrective Services, which are to have <strong>the</strong> “care, directi<strong>on</strong>, c<strong>on</strong>trol and<br />
management of all correcti<strong>on</strong>al complexes, correcti<strong>on</strong>al centres and periodic detenti<strong>on</strong><br />
centres”, subject to <strong>the</strong> directi<strong>on</strong> and c<strong>on</strong>trol of <strong>the</strong> M<strong>in</strong>ister. Secti<strong>on</strong>s 233-235 provide for<br />
<strong>the</strong> functi<strong>on</strong>s of Governors of correcti<strong>on</strong>al centres, and correcti<strong>on</strong>al officers (<strong>in</strong>clud<strong>in</strong>g<br />
commissi<strong>on</strong>ed and n<strong>on</strong>-commissi<strong>on</strong>ed officers).<br />
2.18 As outl<strong>in</strong>ed <strong>in</strong> later chapters of this report, <strong>the</strong>re are legislative provisi<strong>on</strong>s <strong>in</strong> o<strong>the</strong>r<br />
legislati<strong>on</strong> which are also relevant to <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. 12 However, it is <strong>the</strong> Crimes<br />
(Sentenc<strong>in</strong>g Procedures) Act 1999 and <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 1999 which<br />
provide <strong>the</strong> essential legal framework both for sentenc<strong>in</strong>g procedures and sentenc<strong>in</strong>g<br />
opti<strong>on</strong>s, and for <strong>the</strong> adm<strong>in</strong>istrati<strong>on</strong> of those sentences, <strong>in</strong>clud<strong>in</strong>g for <strong>the</strong> adm<strong>in</strong>istrati<strong>on</strong> of<br />
<strong>the</strong> NSW pris<strong>on</strong> system.<br />
12 See for example <strong>the</strong> discussi<strong>on</strong> of <strong>the</strong> Bail Act <strong>in</strong> Chapter Five.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 7
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
NSW Correcti<strong>on</strong>al Centres and Impris<strong>on</strong>ment<br />
2.19 NSW was founded as a penal col<strong>on</strong>y. The Department of Pris<strong>on</strong>s was established <strong>in</strong> 1874<br />
and was renamed <strong>the</strong> Department of Corrective Services <strong>in</strong> 1969. 13 The Corporate Plan<br />
developed by <strong>the</strong> NSW Department of Corrective Services for <strong>the</strong> period 2001-2004 states<br />
that its missi<strong>on</strong> is “reduc<strong>in</strong>g re-offend<strong>in</strong>g through secure, safe and humane management of<br />
offenders”. 14<br />
2.20 There are currently 28 correcti<strong>on</strong>al centres <strong>in</strong> NSW. These centres are classified<br />
maximum, medium or m<strong>in</strong>imum security, although some may c<strong>on</strong>ta<strong>in</strong> more than <strong>on</strong>e<br />
category of pris<strong>on</strong>ers.<br />
Maximum Security<br />
2.21 Maximum security correcti<strong>on</strong>al centres generally have high walls, state-of-<strong>the</strong>-art electr<strong>on</strong>ic<br />
perimeter security and strict security <strong>in</strong>side <strong>the</strong> walls. These <strong>in</strong>stituti<strong>on</strong>s hold <strong>in</strong>mates whose<br />
escape would be highly dangerous to members of <strong>the</strong> public or <strong>the</strong> security of <strong>the</strong> State.<br />
As well as sentenced <strong>in</strong>mates, those who are await<strong>in</strong>g trial or sentence, and those sentenced<br />
by <strong>the</strong> courts but wait<strong>in</strong>g to be assessed as security risks, are generally held <strong>in</strong> maximum<br />
security.<br />
2.22 The Department operates 7 maximum security correcti<strong>on</strong>al centres:<br />
Gaol Beds Characteristics<br />
Goulburn Correcti<strong>on</strong>al Centre 550 Males<br />
Lithgow Correcti<strong>on</strong>al Centre 335 Males<br />
Malabar Special Programs Centre (L<strong>on</strong>g<br />
Bay)<br />
n/a<br />
L<strong>on</strong>g Bay Hospital 120 Sick <strong>in</strong>mates<br />
Metropolitan Medical Transit Centre<br />
(L<strong>on</strong>g Bay)<br />
Metropolitan Remand and Recepti<strong>on</strong><br />
Centre (Silverwater)<br />
n/a<br />
Special programs: HIV, self- harm <strong>in</strong>mates, sex<br />
offenders.<br />
Inmates await<strong>in</strong>g medical<br />
treatment/appo<strong>in</strong>tments and those discharged<br />
from L<strong>on</strong>g Bay Hospital<br />
900 Males – remand<br />
Special Purpose Centre (L<strong>on</strong>g Bay) n/a Inmates requir<strong>in</strong>g special protecti<strong>on</strong><br />
Medium Security<br />
2.23 Medium security <strong>in</strong>stituti<strong>on</strong>s are normally surrounded by walls or high security fences.<br />
Inside <strong>the</strong> walls or fences <strong>in</strong>mates are still under c<strong>on</strong>stant supervisi<strong>on</strong> but move around<br />
more freely than <strong>in</strong> maximum security.<br />
13 Department of Corrective Services, 1999/2000 Annual <strong>Report</strong>, <strong>in</strong>side cover. For more detail <strong>on</strong> <strong>the</strong> history of<br />
<strong>the</strong> NSW pris<strong>on</strong> system see J Ramsland, With Just but Relentless Discipl<strong>in</strong>e: A Social History of Corrective Services <strong>in</strong><br />
New South Wales, Kangaroo Press, 1996.<br />
14 NSW Department of Corrective Services, Corporate Plan 2001-2004.<br />
8 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
2.24 The Department operates 10 medium security correcti<strong>on</strong>al centres:<br />
Gaol Beds Characteristics<br />
Bathurst Correcti<strong>on</strong>al Centre<br />
260 medium<br />
125 m<strong>in</strong>imum<br />
Recepti<strong>on</strong> centre for western NSW<br />
Broken Hill Correcti<strong>on</strong>al Centre 50 45 male and 5 female<br />
Graft<strong>on</strong> Correcti<strong>on</strong>al Centre<br />
Junee Correcti<strong>on</strong>al Centre<br />
154 medium<br />
120 m<strong>in</strong>imum<br />
500 medium<br />
100 m<strong>in</strong>imum<br />
Mulawa Correcti<strong>on</strong>al Centre (Silverwater) 235 Females<br />
Parklea Young Offenders Correcti<strong>on</strong>al<br />
Centre<br />
312<br />
92 work release<br />
Parramatta Correcti<strong>on</strong>al Centre n/a Remand<br />
Recepti<strong>on</strong> centre for nor<strong>the</strong>rn NSW<br />
Privately run correcti<strong>on</strong>al centre<br />
Ma<strong>in</strong>ly male young offenders (18-25)<br />
Tamworth Correcti<strong>on</strong>al Centre 64 Males, <strong>in</strong>clud<strong>in</strong>g periodic detenti<strong>on</strong><br />
centre<br />
Yetta Dh<strong>in</strong>nakal 42 Primarily first time <strong>in</strong>digenous offenders<br />
Warakirri 33 Primarily <strong>in</strong>digenous offenders<br />
M<strong>in</strong>imum Security<br />
2.25 M<strong>in</strong>imum security <strong>in</strong>stituti<strong>on</strong>s hold <strong>in</strong>mates who can be trusted <strong>in</strong> open c<strong>on</strong>diti<strong>on</strong>s where<br />
<strong>the</strong>re are fewer physical barriers to escape. M<strong>in</strong>or offenders and those near<strong>in</strong>g <strong>the</strong> end of<br />
<strong>the</strong>ir sentences are held <strong>in</strong> this type of correcti<strong>on</strong>al centre.<br />
2.26 The Department operates 11 m<strong>in</strong>imum security correcti<strong>on</strong>al centres:<br />
Gaol Beds Characteristics<br />
Berrima Correcti<strong>on</strong>al Centre 70 Males, medium and m<strong>in</strong>imum<br />
Cessnock Correcti<strong>on</strong>al Centre 464 Males, maximum and m<strong>in</strong>imum<br />
Emu Pla<strong>in</strong>s Correcti<strong>on</strong>al Centre 118 Females<br />
Glen Innes Correcti<strong>on</strong>al Centre 130 Males<br />
Industrial Tra<strong>in</strong><strong>in</strong>g Centre (L<strong>on</strong>g Bay) 412 Short sentences and due for release<br />
<strong>in</strong>mates<br />
John Mor<strong>on</strong>y Correcti<strong>on</strong>al Centre<br />
(W<strong>in</strong>dsor)<br />
Kirkc<strong>on</strong>nell Correcti<strong>on</strong>al Centre<br />
(Bathurst)<br />
Mannus Correcti<strong>on</strong>al Complex<br />
(Tumbarumba)<br />
Ober<strong>on</strong> Young Offenders Correcti<strong>on</strong>al<br />
Centre<br />
250 Males<br />
210 Males, <strong>in</strong>clud<strong>in</strong>g weekend leave<br />
164 Includes periodic detenti<strong>on</strong> for males<br />
and females<br />
100 Male young offenders<br />
Silverwater Correcti<strong>on</strong>al Centre 450 Males, <strong>in</strong>cludes work release centre<br />
St Heliers Correcti<strong>on</strong>al Centre<br />
(Muswellbrook)<br />
256 Males, <strong>in</strong>cludes mobile pris<strong>on</strong><br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 9
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
2.27 The Department also operates:<br />
• 11 periodic detenti<strong>on</strong> centres<br />
• 1 transiti<strong>on</strong>al centre for female <strong>in</strong>mates<br />
• 69 probati<strong>on</strong> and parole offices 15<br />
Total Capacity of Pris<strong>on</strong> System<br />
2.28 The Premier and <strong>the</strong> M<strong>in</strong>ister for Corrective Services announced <strong>in</strong> September 2001 a<br />
major expansi<strong>on</strong> of <strong>the</strong> capacity of <strong>the</strong> pris<strong>on</strong> system. This <strong>in</strong>cluded two new correcti<strong>on</strong>al<br />
facilities, with <strong>the</strong> re-open<strong>in</strong>g of Cooma correcti<strong>on</strong>al centre and <strong>the</strong> establishment of a<br />
facility <strong>in</strong> central western NSW. In a statement to <strong>the</strong> House, <strong>the</strong> M<strong>in</strong>ister advised that as a<br />
result of <strong>the</strong> current capital works program (<strong>in</strong>clud<strong>in</strong>g recent budget announcements<br />
outl<strong>in</strong>ed <strong>in</strong> Chapter Six and <strong>the</strong> September 2001 announcements) will be 1,805 new beds <strong>in</strong><br />
12 locati<strong>on</strong>s across <strong>the</strong> state. 16 With current pris<strong>on</strong> beds said to be 8,105, <strong>the</strong> expanded<br />
works program will see <strong>the</strong> capacity of <strong>the</strong> NSW pris<strong>on</strong> system close to 10,000 by 2005. 17<br />
Geographic Locati<strong>on</strong><br />
2.29 Reproduced below is a map of NSW show<strong>in</strong>g <strong>the</strong> current locati<strong>on</strong> of <strong>the</strong> correcti<strong>on</strong>al<br />
centres and o<strong>the</strong>r facilities adm<strong>in</strong>istered by <strong>the</strong> Department of Corrective Services.<br />
15 All <strong>in</strong>formati<strong>on</strong> sourced from <strong>the</strong> Department of Corrective Services Website:<br />
www.dcs.nsw.gov.au/correcti<strong>on</strong>al/<br />
16 H<strong>on</strong> J Watk<strong>in</strong>s MP, NSWPD 16 October 2001 p19.<br />
17 “Carr announces 1,805 new places for NSW pris<strong>on</strong> system” H<strong>on</strong> RJ Carr MP, Premier, Press Release 2<br />
September 2001.<br />
10 F<strong>in</strong>al <strong>Report</strong> - November 2001
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F<strong>in</strong>al <strong>Report</strong> – November 2001 11
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
C<strong>on</strong>clusi<strong>on</strong><br />
2.30 The NSW pris<strong>on</strong> system comprises of 28 ma<strong>in</strong> correcti<strong>on</strong>al centres spread throughout<br />
NSW. These centres have vary<strong>in</strong>g capacities, security classificati<strong>on</strong>s and specialist uses.<br />
Pris<strong>on</strong>ers are sentenced to terms <strong>in</strong> <strong>the</strong>se centres under <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act,<br />
and <strong>the</strong>n adm<strong>in</strong>istered primarily through <strong>the</strong> provisi<strong>on</strong>s of <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of<br />
Sentences) Act. Judges are given a broad discreti<strong>on</strong> as to <strong>the</strong> objectives – rehabilitati<strong>on</strong>,<br />
denunciati<strong>on</strong>, <strong>in</strong>capacitati<strong>on</strong> and deterrence – used <strong>in</strong> <strong>the</strong>ir sentenc<strong>in</strong>g decisi<strong>on</strong>s. However<br />
<strong>the</strong> sentenc<strong>in</strong>g legislati<strong>on</strong> does embody <strong>the</strong> noti<strong>on</strong> that pris<strong>on</strong> should be a sancti<strong>on</strong> of last<br />
resort.<br />
2.31 The rema<strong>in</strong>der of Part One of this <strong>Report</strong> exam<strong>in</strong>es <strong>the</strong> extent and impacts of <strong>the</strong> <strong>in</strong>crease<br />
<strong>in</strong> <strong>the</strong> overall pris<strong>on</strong> populati<strong>on</strong>. Chapter Three of this report <strong>in</strong>cludes detailed statistics <strong>on</strong><br />
<strong>the</strong> size of <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong>. Chapter Four <strong>in</strong>cludes detailed statistics <strong>on</strong> <strong>the</strong><br />
profile of <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong>.<br />
12 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Chapter 3<br />
Size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong><br />
Introducti<strong>on</strong><br />
3.1 The pris<strong>on</strong> populati<strong>on</strong> can be measured by ei<strong>the</strong>r its absolute size, or by <strong>the</strong> impris<strong>on</strong>ment<br />
rate, that is <strong>the</strong> <strong>in</strong>crease <strong>in</strong> pris<strong>on</strong>ers <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> overall populati<strong>on</strong>.<br />
Both are exam<strong>in</strong>ed <strong>in</strong> this chapter, and comparis<strong>on</strong> is made with pris<strong>on</strong> populati<strong>on</strong>s <strong>in</strong><br />
o<strong>the</strong>r states and overseas.<br />
3.2 For <strong>the</strong> purposes of uniformity, this <strong>Report</strong> <strong>in</strong> o<strong>the</strong>r chapters uses details from <strong>the</strong> annual<br />
census of <strong>in</strong>mates published by <strong>the</strong> Department of Corrective Services at <strong>the</strong> end of June<br />
each year, and statistics published <strong>in</strong> <strong>the</strong> Department’s Inmate Statistics (Weekly States) and<br />
<strong>the</strong> Department’s Annual <strong>Report</strong>. The figures used will refer to <strong>in</strong>mates <strong>in</strong> full time custody.<br />
They do not <strong>in</strong>clude pris<strong>on</strong>ers serv<strong>in</strong>g periodic detenti<strong>on</strong>. However, <strong>in</strong> this chapter some<br />
use <strong>in</strong> <strong>in</strong>terstate comparis<strong>on</strong>s will also be made of statistics produced by <strong>the</strong> Australian<br />
Bureau of Statistics (ABS). These differ from <strong>the</strong> Department’s statistics because <strong>the</strong> ABS<br />
def<strong>in</strong>iti<strong>on</strong> of <strong>the</strong> impris<strong>on</strong>ment rate per 100,000 populati<strong>on</strong> is based <strong>on</strong> <strong>the</strong> adult populati<strong>on</strong><br />
ra<strong>the</strong>r than <strong>the</strong> total populati<strong>on</strong>. This ABS def<strong>in</strong>iti<strong>on</strong> leads to a higher impris<strong>on</strong>ment rate<br />
statistic than that used <strong>in</strong> <strong>the</strong> Department’s research figures.<br />
New South Wales<br />
Current NSW pris<strong>on</strong> populati<strong>on</strong><br />
3.3 The Inmate Statistics (Weekly States) from <strong>the</strong> Department of Corrective Services for 1 July<br />
2001 <strong>in</strong>dicate that as at 30 June 2001 <strong>the</strong>re were 7750 full time <strong>in</strong>mates <strong>in</strong> NSW<br />
correcti<strong>on</strong>al centres. This <strong>in</strong>cludes 5562 sentenced and 2188 unsentenced pris<strong>on</strong>ers. 7,232<br />
of <strong>the</strong>se pris<strong>on</strong>ers were men, and 518 were women.<br />
Rate of <strong>in</strong>crease <strong>in</strong> NSW pris<strong>on</strong> populati<strong>on</strong><br />
3.4 The New South Wales pris<strong>on</strong> populati<strong>on</strong> has been steadily <strong>in</strong>creas<strong>in</strong>g over a number of<br />
years. Sharp <strong>in</strong>creases were experienced follow<strong>in</strong>g <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> of <strong>the</strong> Sentenc<strong>in</strong>g Act <strong>in</strong><br />
1989 and dur<strong>in</strong>g <strong>the</strong> period June 1998 to June 2000, particularly <strong>the</strong> first 12 m<strong>on</strong>ths of that<br />
period. Slower but steady growth c<strong>on</strong>t<strong>in</strong>ued through to 2001.<br />
3.5 In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> Mr Sim<strong>on</strong> Eyland, Director, Research and Statistics,<br />
Department of Corrective Services advised:<br />
There was a 6.4 per cent <strong>in</strong>crease <strong>in</strong> <strong>the</strong> daily average number of <strong>in</strong>mates <strong>in</strong> fulltime<br />
custody <strong>in</strong> <strong>the</strong> 1999-2000 f<strong>in</strong>ancial year compared with <strong>the</strong> 1998-1999<br />
f<strong>in</strong>ancial year. 18<br />
18 Eyland, Evidence 12 March, 2001, p2.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 13
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
3.6 The follow<strong>in</strong>g graph illustrates <strong>the</strong> daily average number of <strong>in</strong>mates <strong>in</strong> NSW Correcti<strong>on</strong>al<br />
Centres from January 1988 to January 2001:<br />
3.7 It can be seen from <strong>the</strong> follow<strong>in</strong>g table that <strong>the</strong> total <strong>in</strong>mate populati<strong>on</strong> has had two<br />
significant periods of <strong>in</strong>crease: 1989 to 1991, and 1998 to 2000. The graph c<strong>on</strong>t<strong>in</strong>ues to<br />
rise, at a slower rate, after mid 2000.<br />
3.8 S<strong>in</strong>ce 1995 (<strong>the</strong> date identified <strong>in</strong> <strong>the</strong> terms of reference for this <strong>in</strong>quiry) <strong>the</strong> NSW pris<strong>on</strong><br />
populati<strong>on</strong> has <strong>in</strong>creased by approximately 20.9% up to June 2001. The female pris<strong>on</strong><br />
populati<strong>on</strong> has <strong>in</strong>creased by a greater rate, <strong>in</strong>creas<strong>in</strong>g from 309 to 518 (an <strong>in</strong>crease of<br />
67.6%) s<strong>in</strong>ce 1995 by comparis<strong>on</strong> to <strong>the</strong> male populati<strong>on</strong> which <strong>in</strong>creased from 6098 to<br />
7232 (an <strong>in</strong>crease of 18.6%). 19<br />
Pers<strong>on</strong>s under full time detenti<strong>on</strong> <strong>in</strong> correcti<strong>on</strong>s centres as of 30 June each year<br />
year<br />
unsentenced<br />
male<br />
unsentenced<br />
female<br />
sentenced<br />
male<br />
sentenced<br />
female<br />
total rate per 100,000<br />
NSW Populati<strong>on</strong><br />
1995 1130 71 4968 238 6407 103.1<br />
1996 1183 95 4742 241 6261 101.9<br />
1997 1316 95 4735 243 6389 101.3<br />
1998 1347 104 4748 253 6452 100.6<br />
1999 1718 144 5084 294 7240 106.9<br />
2000 1929 169 4939 291 7328 112.7<br />
2001 1989 199 5243 319 7750 N/A<br />
19 The <strong>in</strong>crease is even more significant when it is recognised that as of 27 January 1998 all f<strong>in</strong>e defaulters have<br />
been diverted from <strong>the</strong> correcti<strong>on</strong>al system: <strong>in</strong> 1996/97 before <strong>the</strong> change to <strong>the</strong> F<strong>in</strong>es Act, 4,474 f<strong>in</strong>e<br />
defaulters entered correcti<strong>on</strong>al centres. (Department of Corrective Services Submissi<strong>on</strong> 63 p28).<br />
14 F<strong>in</strong>al <strong>Report</strong> - November 2001
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3.9 Data provided to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> shows that <strong>the</strong>re has also been an upward trend <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong> s<strong>in</strong>ce January 2001. At 30 June 2001 <strong>the</strong> figure was 7,750 (although this<br />
had decl<strong>in</strong>ed to 7681 at 5 th August, 2001, 20 dem<strong>on</strong>strat<strong>in</strong>g how levels fluctuate from m<strong>on</strong>th<br />
to m<strong>on</strong>th).<br />
3.10 Evidence from <strong>the</strong> Department of Corrective Services <strong>in</strong>dicates that <strong>the</strong> rate of <strong>in</strong>crease <strong>in</strong><br />
<strong>the</strong> <strong>in</strong>mate populati<strong>on</strong> is c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g. The Department of Corrective Services predicts that<br />
<strong>in</strong>mate numbers for <strong>the</strong> f<strong>in</strong>ancial year 2001/2002 will be 7920 and for <strong>the</strong> f<strong>in</strong>ancial year<br />
2002/2003 will be 8200. 21<br />
<strong>Increase</strong> <strong>in</strong> NSW Impris<strong>on</strong>ment Rate<br />
3.11 While <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> total pris<strong>on</strong> populati<strong>on</strong> is important it is perhaps more important<br />
to refer to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> rate of <strong>the</strong> total populati<strong>on</strong> (measured by pris<strong>on</strong>ers per<br />
100,000 of populati<strong>on</strong>). The last available figures (for 30 June 2000) show that <strong>the</strong> total<br />
impris<strong>on</strong>ed populati<strong>on</strong> represents slightly more than 112.7 pris<strong>on</strong>ers per 100,000 of <strong>the</strong><br />
NSW populati<strong>on</strong>.<br />
3.12 Corresp<strong>on</strong>d<strong>in</strong>g to <strong>the</strong> rise <strong>in</strong> <strong>the</strong> actual number of <strong>in</strong>mates <strong>in</strong> custody, <strong>the</strong>re has been a<br />
large rise <strong>in</strong> <strong>the</strong> impris<strong>on</strong>ment rate s<strong>in</strong>ce <strong>the</strong> early 1980’s, a rise of around 64% (1981-<br />
2000). 22 The rate of impris<strong>on</strong>ment <strong>in</strong> New South Wales per 100,000 populati<strong>on</strong> has<br />
<strong>in</strong>creased from 103.1 <strong>in</strong> 1995 to 112.7 <strong>in</strong> June 2000, an <strong>in</strong>crease of approximately 21%. The<br />
<strong>in</strong>crease <strong>in</strong> <strong>the</strong> impris<strong>on</strong>ment rate from 1988 is shown <strong>in</strong> <strong>the</strong> graph <strong>in</strong> <strong>the</strong> next secti<strong>on</strong><br />
(below) regard<strong>in</strong>g <strong>in</strong>terstate comparis<strong>on</strong>s.<br />
<strong>Increase</strong> <strong>in</strong> Australian Impris<strong>on</strong>ment Rates<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong> Populati<strong>on</strong><br />
3.13 The Australian Bureau of Statistics (ABS) produces an annual pris<strong>on</strong> census. The pris<strong>on</strong><br />
census for 30 June 2000 revealed that <strong>the</strong>re were 21,714 pris<strong>on</strong>ers <strong>in</strong> Australia, represent<strong>in</strong>g<br />
a rate of 148 pris<strong>on</strong>ers per 100,000 adult populati<strong>on</strong>. 23 The pris<strong>on</strong>er populati<strong>on</strong> rose from<br />
14,305 <strong>in</strong> 1990 to 21,714 <strong>in</strong> 2000, represent<strong>in</strong>g an <strong>in</strong>crease of 52%. 24<br />
3.14 At 30 June 2000, when <strong>the</strong> ABS comparis<strong>on</strong>s were made, <strong>the</strong> NSW populati<strong>on</strong> was 8,547<br />
<strong>in</strong>clud<strong>in</strong>g periodic deta<strong>in</strong>ees, or 7328 exclud<strong>in</strong>g <strong>the</strong>se <strong>in</strong>mates.<br />
20 Allen, Evidence, 12 June 2001, p 16<br />
21 Department of Corrective Services, Submissi<strong>on</strong> 63 (supplementary).<br />
22 Eyland, Evidence 12 March 2001 p4.<br />
23 Australian Bureau of Statistics, 4517.0 Pris<strong>on</strong>ers <strong>in</strong> Australia page 3.<br />
24 Australian Bureau of Statistics, 4517.0 Pris<strong>on</strong>ers <strong>in</strong> Australia page 2.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 15
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
<strong>Increase</strong> <strong>in</strong> Impris<strong>on</strong>ment Rates<br />
3.15 The NSW pris<strong>on</strong> populati<strong>on</strong> as measured by <strong>the</strong> ABS pris<strong>on</strong> census represents a rate of<br />
172 pris<strong>on</strong>ers per 100,000 adult populati<strong>on</strong>. This is higher than <strong>the</strong> Department figures<br />
quoted elsewhere because <strong>the</strong> ABS uses per 100,000 of <strong>the</strong> adult populati<strong>on</strong> ra<strong>the</strong>r than per<br />
100,000 of <strong>the</strong> total populati<strong>on</strong>. This NSW rate compares to 85.4 per 100,000 adult<br />
populati<strong>on</strong> <strong>in</strong> Victoria, <strong>the</strong> lowest <strong>in</strong> Australia. The Nor<strong>the</strong>rn Territory had <strong>the</strong> highest rate<br />
of 458.1 pris<strong>on</strong>ers per 100,000 adult populati<strong>on</strong>. 25<br />
3.16 The states with <strong>the</strong> steepest <strong>in</strong>creases <strong>in</strong> recent years have been Queensland and Western<br />
Australia. Victoria has <strong>the</strong> lowest impris<strong>on</strong>ment rate and <strong>the</strong> most stable impris<strong>on</strong>ment<br />
rate. The follow<strong>in</strong>g graph shows <strong>the</strong> different rate per 100,000 by state and <strong>the</strong> trends <strong>in</strong><br />
<strong>the</strong> <strong>in</strong>crease <strong>in</strong> rates:<br />
New South Wales vs Victoria<br />
3.17 Rates of impris<strong>on</strong>ment <strong>in</strong> NSW have c<strong>on</strong>sistently been higher that those <strong>in</strong> Victoria despite<br />
<strong>the</strong> demographic similarities between <strong>the</strong> two states. The NSW Bureau of Crime Statistics<br />
and Research has c<strong>on</strong>ducted two studies <strong>in</strong> relati<strong>on</strong> to this issue <strong>in</strong> 1992 and <strong>in</strong> 1995.<br />
(Discussed <strong>in</strong> Chapter Six)<br />
3.18 In <strong>the</strong> most recent comparis<strong>on</strong>, New South Wales and Victoria recorded <strong>the</strong> greatest<br />
<strong>in</strong>creases <strong>in</strong> Australia <strong>in</strong> <strong>the</strong> March quarter 2001, ris<strong>in</strong>g at <strong>the</strong> same rate of 2% by 159<br />
25 Australian Bureau of Statistics, 4517.0 Pris<strong>on</strong>ers <strong>in</strong> Australia page 3<br />
16 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
pris<strong>on</strong>ers and 77 pris<strong>on</strong>ers respectively. Quarterly <strong>in</strong>creases are, however, affected by<br />
seas<strong>on</strong>al factors such as re-open<strong>in</strong>g of courts after <strong>the</strong> January break and do not necessarily<br />
predict last<strong>in</strong>g trends.<br />
Internati<strong>on</strong>al Pris<strong>on</strong> Populati<strong>on</strong> and Impris<strong>on</strong>ment Rates<br />
3.19 The <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong> has been an Australia-wide and <strong>in</strong>ternati<strong>on</strong>al<br />
phenomen<strong>on</strong>.<br />
3.20 The follow<strong>in</strong>g table shows <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> (percentage changes and rates) <strong>in</strong> a range<br />
of countries and illustrates Australia’s positi<strong>on</strong>. 26<br />
Pris<strong>on</strong> Populati<strong>on</strong> (percentage changes and rates)<br />
Gord<strong>on</strong> Barclay and Cynthia Tavares, “Internati<strong>on</strong>al Comparis<strong>on</strong>s of Crim<strong>in</strong>al Justice<br />
Statistics 1999 Home Office, May 2001<br />
Country 1988-1994 1995-99 1998-99<br />
rate per 100,000<br />
populati<strong>on</strong> 1999<br />
U.S.A. 73% 17% 3% 682<br />
South Africa 27% 29% 0% 327<br />
Czech Republic 3% 18% 4% 224<br />
New Zealand 51% 21% 4% 149<br />
Portugal 52% 11% -9% 131<br />
England/Wales 35% 28% 0% 125<br />
Canada 19% -3% -1% 123<br />
Australia 63% 26% 8% 108<br />
France 20% 1% 1% 91<br />
Ne<strong>the</strong>rlands .. 14% -1% 84<br />
Ireland (Eire) 38% 35% 5% 72<br />
Nor<strong>the</strong>rn Ireland -36% -33% -20% 69<br />
Sweden 0% -16% 0% 59<br />
F<strong>in</strong>land -36% -23% -8% 46<br />
3.21 There are differences <strong>in</strong> <strong>the</strong> way countries collect data and direct comparis<strong>on</strong>s between<br />
<strong>in</strong>ternati<strong>on</strong>al pris<strong>on</strong> populati<strong>on</strong>s should be made with cauti<strong>on</strong>. There is, however, very<br />
significant differences <strong>in</strong> <strong>the</strong> size of <strong>the</strong> impris<strong>on</strong>ment rate <strong>in</strong> <strong>the</strong> United States (682 per<br />
100,000) and countries such as Sweden (59) and F<strong>in</strong>land (46). Australia’s patterns of<br />
<strong>in</strong>crease <strong>in</strong> impris<strong>on</strong>ment rates more closely match those of <strong>the</strong> United States ra<strong>the</strong>r than<br />
those countries <strong>in</strong> which rates have been static or decl<strong>in</strong><strong>in</strong>g.<br />
26 Walmsley, R, 1999, World Pris<strong>on</strong> Populati<strong>on</strong> List, Home Office Research, Development and Statistics<br />
Directorate, Research F<strong>in</strong>d<strong>in</strong>gs No. 88<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 17
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
C<strong>on</strong>clusi<strong>on</strong><br />
3.22 After two years of decl<strong>in</strong>e from 1995, <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> NSW has risen significantly,<br />
as has <strong>the</strong> impris<strong>on</strong>ment rate. The <strong>in</strong>crease has been most significant <strong>in</strong> <strong>the</strong> two years from<br />
June 1998, but <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong> has c<strong>on</strong>t<strong>in</strong>ued to <strong>in</strong>crease, at a slower rate, up<br />
to <strong>the</strong> current date. O<strong>the</strong>r states <strong>in</strong> Australia and o<strong>the</strong>r nati<strong>on</strong>s have also experienced<br />
significant <strong>in</strong>creases <strong>in</strong> <strong>the</strong> same period. However states such as Victoria have ma<strong>in</strong>ta<strong>in</strong>ed<br />
low impris<strong>on</strong>ment rates compared to NSW <strong>in</strong> <strong>the</strong> same period. Also, subject to <strong>the</strong><br />
reliability of <strong>in</strong>ternati<strong>on</strong>al comparis<strong>on</strong>s, several European countries have also had m<strong>in</strong>imal<br />
<strong>in</strong>creases or decreases <strong>in</strong> <strong>the</strong>ir impris<strong>on</strong>ment rates dur<strong>in</strong>g <strong>the</strong> time <strong>in</strong> which <strong>the</strong> NSW<br />
impris<strong>on</strong>ment rate has significantly <strong>in</strong>creased.<br />
3.23 The different trends <strong>in</strong> impris<strong>on</strong>ment rates <strong>in</strong> different jurisdicti<strong>on</strong>s raises <strong>the</strong> questi<strong>on</strong>s as<br />
to whe<strong>the</strong>r, <strong>in</strong> NSW, more people are <strong>in</strong>carcerated than is necessary. This issue highlighted<br />
by, am<strong>on</strong>g o<strong>the</strong>rs, Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> and Dr Eileen Baldry <strong>in</strong> evidence to <strong>the</strong><br />
committee, 27 will be discussed <strong>in</strong> more detail <strong>in</strong> Part Two of this report.<br />
27 Evidence 12/6/01<br />
18 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Chapter 4<br />
Profile of pris<strong>on</strong> populati<strong>on</strong><br />
Introducti<strong>on</strong><br />
4.1 The previous chapter exam<strong>in</strong>ed <strong>the</strong> overall size and rate of <strong>in</strong>crease of <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong>. In this chapter specific features of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> are exam<strong>in</strong>ed to build<br />
a profile of this populati<strong>on</strong>. Particular attenti<strong>on</strong> is given to specific groups with<strong>in</strong> pris<strong>on</strong>s<br />
such as Indigenous <strong>in</strong>mates and pris<strong>on</strong>ers with an <strong>in</strong>tellectual disability. The length of<br />
sentences imposed and <strong>the</strong> seriousness of offences is also exam<strong>in</strong>ed.<br />
General characteristics of <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong><br />
4.2 The Department of Corrective Service’s NSW Inmate Census 2000 <strong>in</strong>dicates that:<br />
• <strong>the</strong> average age for full-time male <strong>in</strong>mates was 33 years. The average age for fulltime<br />
female <strong>in</strong>mates was almost 32 years.<br />
• Inmates <strong>in</strong> NSW correcti<strong>on</strong>al centres were predom<strong>in</strong>antly young males, although<br />
<strong>the</strong>re has been a shift towards older <strong>in</strong>mates and an <strong>in</strong>crease <strong>in</strong> females as a<br />
proporti<strong>on</strong> of <strong>the</strong> populati<strong>on</strong>(see below).<br />
• 64.4% of males and 73 % of females were aged between 18 and 34 years.<br />
• The country of birth of <strong>in</strong>mates broadly reflected <strong>the</strong> general populati<strong>on</strong> with<br />
71.6% Australian born and 16.6% born overseas <strong>in</strong> a n<strong>on</strong> English speak<strong>in</strong>g<br />
country. About 6% came from o<strong>the</strong>r English speak<strong>in</strong>g countries and <strong>the</strong> orig<strong>in</strong> of<br />
<strong>the</strong> rema<strong>in</strong>der was unknown.<br />
• Approximately 15.9% of males and 21% of females identified as Aborig<strong>in</strong>al<br />
and/or Torres Strait Islander.<br />
Inmate Health<br />
4.3 Inmates suffer disadvantage <strong>on</strong> a whole range of specific health problems associated with<br />
mental illness, drug abuse and general neglect of health. The Correcti<strong>on</strong> Health Services’<br />
Inmate Health Survey, c<strong>on</strong>ducted <strong>in</strong> 1997, showed that:<br />
• About 80% of <strong>in</strong>mates were <strong>in</strong>carcerated for offences relat<strong>in</strong>g to alcohol and o<strong>the</strong>r<br />
drug use.<br />
• Some 60% of males and 70% of females had a history of illicit drug use.<br />
• Around <strong>on</strong>e third of males and two thirds of females were Hepatitis C positive.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 19
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
• Approximately <strong>on</strong>e third of males and half of females had been assessed or treated<br />
for mental illness by a psychiatrist or psychologist at some time. 28<br />
4.4 The Department of Corrective Services states <strong>in</strong> its submissi<strong>on</strong>s to <strong>the</strong> <strong>in</strong>quiry that:<br />
• 13% of <strong>in</strong>mates have an <strong>in</strong>tellectual disability;<br />
• 16% of male <strong>in</strong>mates have been sexually abused before <strong>the</strong> age of 16;<br />
• 21% of <strong>in</strong>mates have attempted suicide; and<br />
• 40% of <strong>in</strong>mates meet <strong>the</strong> diagnosis of Pers<strong>on</strong>ality Disorder. 29<br />
Socio-ec<strong>on</strong>omic status<br />
4.5 Inmates have a substantially lower socio-ec<strong>on</strong>omic status than <strong>in</strong> o<strong>the</strong>r communities. This<br />
bears out research f<strong>in</strong>d<strong>in</strong>gs that people from lower socio-ec<strong>on</strong>omic groups are more likely<br />
to be over represented <strong>in</strong> correcti<strong>on</strong>al centres than those from higher socio-ec<strong>on</strong>omic<br />
areas. 30<br />
4.6 In its first submissi<strong>on</strong> <strong>the</strong> Department of Corrective Services provided <strong>the</strong> follow<strong>in</strong>g<br />
<strong>in</strong>formati<strong>on</strong>:<br />
• 60% of <strong>in</strong>mates are not functi<strong>on</strong>ally literate or numerate;<br />
• 44% of <strong>in</strong>mates are l<strong>on</strong>g term unemployed;<br />
• 60% of <strong>in</strong>mates did not complete year 10;<br />
• 64% of <strong>in</strong>mates have no stable family; and<br />
• many <strong>in</strong>mates have had c<strong>on</strong>tact with <strong>the</strong> Department of Community Services, with<br />
a high proporti<strong>on</strong> of those be<strong>in</strong>g state wards. 31<br />
4.7 In his study, Unequal <strong>in</strong> Life: The Distributi<strong>on</strong> of Social Disadvantage <strong>in</strong> Victoria and NSW,<br />
Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> found that most offenders are drawn from <strong>the</strong> “top 30” most<br />
disadvantaged neighbourhoods. Those same neighbourhoods accounted for:<br />
• four and a quarter times <strong>the</strong>ir share of child abuse;<br />
• three and a quarter times <strong>the</strong>ir share of emergency assistance;<br />
• three times <strong>the</strong>ir share of court c<strong>on</strong>victi<strong>on</strong>s and l<strong>on</strong>g term unemployment;<br />
• twice <strong>the</strong>ir share of low <strong>in</strong>come households; and<br />
• a little under <strong>on</strong>e and a half times <strong>the</strong>ir share of school-leavers before 15 years. 32<br />
28 Correcti<strong>on</strong>s Health Service, Annual <strong>Report</strong> 1999-2000, p 14.<br />
29 Department of Corrective Services Submissi<strong>on</strong> 63 (orig<strong>in</strong>al and supplementary submissi<strong>on</strong>s).<br />
30 Correcti<strong>on</strong>s Health Service, Annual <strong>Report</strong> 1999-2000, p 14.<br />
31 Department of Corrective Services Submissi<strong>on</strong> 63, pp35-36.<br />
20 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Profiles of Specific Groups with<strong>in</strong> Pris<strong>on</strong> Populati<strong>on</strong><br />
Indigenous Inmates<br />
4.8 The NSW Inmate Census 2000, shows that 15.9% of males and 21% of females are<br />
Aborig<strong>in</strong>al or Torres Strait Islander mak<strong>in</strong>g a total of 16% for all full time <strong>in</strong>mates. 33 The<br />
Department of Corrective Services statistics show that this has risen significantly s<strong>in</strong>ce<br />
1983, when Indigenous offenders were recorded as be<strong>in</strong>g <strong>on</strong>ly approximately 6% of <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>. 34<br />
4.9 <strong>Report</strong>s and studies have shown that Indigenous <strong>in</strong>mates are over represented at all stages<br />
of <strong>the</strong> crim<strong>in</strong>al justice system. In March 2001 <strong>the</strong> NSW Bureau of Crime Statistics and<br />
Research produced a report entitled, The Scope for Reduc<strong>in</strong>g Indigenous Impris<strong>on</strong>ment Rates.<br />
Significant f<strong>in</strong>d<strong>in</strong>gs of BOCSAR’s <strong>Report</strong> <strong>in</strong>clude that <strong>in</strong> 1998:<br />
• ATSI pers<strong>on</strong>s were 10 times more likely than <strong>the</strong> general populati<strong>on</strong> to be<br />
impris<strong>on</strong>ed, whereas <strong>the</strong>y were eight times more likely <strong>in</strong> 1991.<br />
• 11% of those appear<strong>in</strong>g <strong>in</strong> court, 10% of those c<strong>on</strong>victed, 19% of those sentenced<br />
to impris<strong>on</strong>ment and 17% of those sentenced to impris<strong>on</strong>ment for l<strong>on</strong>g terms (ie<br />
6 m<strong>on</strong>ths or more) identified <strong>the</strong>mselves as Indigenous.<br />
• The over representati<strong>on</strong> <strong>in</strong> pris<strong>on</strong> stems from a higher rate of appearance at court.<br />
• At <strong>the</strong> po<strong>in</strong>t of sentenc<strong>in</strong>g, <strong>in</strong>digenous pers<strong>on</strong>s are sentenced to impris<strong>on</strong>ment at<br />
about 10 times <strong>the</strong> rate expected given <strong>the</strong>ir relative populati<strong>on</strong> size, or almost<br />
twice <strong>the</strong> rate expected given <strong>the</strong> rate at which <strong>the</strong>y entered <strong>the</strong> court system. 35<br />
4.10 Factors that c<strong>on</strong>tribute to this high rate of court appearance <strong>in</strong>clude over-representati<strong>on</strong> at<br />
arrest, <strong>the</strong> nature of <strong>the</strong> offence and re-offend<strong>in</strong>g, <strong>the</strong> differential treatment of Indigenous<br />
pers<strong>on</strong>s by <strong>the</strong> crim<strong>in</strong>al justice system and <strong>the</strong> disadvantage experienced by Indigenous<br />
offenders. The Bureau of Crime Statistics and Research states that without better<br />
<strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> relative importance of <strong>the</strong>se reas<strong>on</strong>s it is difficult to know where efforts<br />
to reduce <strong>the</strong> rate of <strong>in</strong>digenous court appearances might be best placed. 36 The Bureau<br />
states that it is easier to determ<strong>in</strong>e <strong>the</strong> relative importance of c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> higher<br />
impris<strong>on</strong>ment rate and <strong>the</strong> limited use of alternative sancti<strong>on</strong>s am<strong>on</strong>g c<strong>on</strong>victed <strong>in</strong>digenous<br />
offenders:<br />
32 V<strong>in</strong>s<strong>on</strong> T, (1999) Unequal <strong>in</strong> Life: The Distributi<strong>on</strong> of Social Disadvantage <strong>in</strong> Victoria and NSW, Jesuit Social<br />
Services, Melbourne.<br />
33 NSW Department of Corrective Services, NSW Inmate Census 2000, Statistical Publicati<strong>on</strong> No. 22, April<br />
2000, p 4.<br />
34 NSW Department of Corrective Services: Source: NSW Pris<strong>on</strong> Census <strong>in</strong> NSW Inmate Populati<strong>on</strong>:<br />
Visualis<strong>in</strong>g <strong>the</strong> Trends 1999.<br />
35 NSW Bureau of Crime Statistics and Research, The Scope for Reduc<strong>in</strong>g Indigenous Impris<strong>on</strong>ment Rates,<br />
March 2001, p 8.<br />
36 Ibid p8.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 21
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Indigenous pers<strong>on</strong>s were more likely to be c<strong>on</strong>victed of offences aga<strong>in</strong>st <strong>the</strong><br />
pers<strong>on</strong>, robbery/extorti<strong>on</strong> and offences aga<strong>in</strong>st justice which are violent <strong>in</strong> nature<br />
and which are more likely to attract a pris<strong>on</strong> sentence. Indigenous pers<strong>on</strong>s were<br />
also more likely to have prior crim<strong>in</strong>al c<strong>on</strong>victi<strong>on</strong>s. 37<br />
4.11 In its submissi<strong>on</strong> <strong>the</strong> Aborig<strong>in</strong>al and Torres Strait Islander Commissi<strong>on</strong> fur<strong>the</strong>r highlighted<br />
<strong>the</strong> over representati<strong>on</strong> of <strong>in</strong>digenous pers<strong>on</strong>s <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system:<br />
• for Indigenous males, three categories of crim<strong>in</strong>al <strong>in</strong>cident c<strong>on</strong>stitute 58% of all<br />
those recorded, namely:<br />
− <strong>the</strong>ft (26%)<br />
− driv<strong>in</strong>g (13%)<br />
− assault (19%).<br />
• <strong>the</strong> category of “Offences aga<strong>in</strong>st Justice Procedures” (<strong>in</strong>clud<strong>in</strong>g breach of<br />
ma<strong>in</strong>tenance, Family Law orders, resist/h<strong>in</strong>der police and breach of<br />
probati<strong>on</strong>/parole) c<strong>on</strong>stitutes 11% of all offences recorded by Indigenous<br />
offenders.<br />
• drug offences c<strong>on</strong>stitute <strong>on</strong>ly 3.75% of all crim<strong>in</strong>al <strong>in</strong>cidences recorded aga<strong>in</strong>st<br />
Indigenous pers<strong>on</strong>s. 38<br />
4.12 Accord<strong>in</strong>g to <strong>the</strong> Bureau of Crime Statistics and Research, Indigenous offenders are more<br />
likely than n<strong>on</strong>-Indigenous defendants to receive a short (i.e. less than six m<strong>on</strong>th) pris<strong>on</strong><br />
sentence and are sentenced to n<strong>on</strong>-custodial sancti<strong>on</strong>s less frequently than n<strong>on</strong>-<strong>in</strong>digenous<br />
offenders. The Bureau notes that any <strong>in</strong>terventi<strong>on</strong> at <strong>the</strong> po<strong>in</strong>t of sentenc<strong>in</strong>g would be<br />
difficult without any radical change to current sentenc<strong>in</strong>g practices. However, <strong>the</strong> Bureau<br />
calculated that if Indigenous people presently given a short pris<strong>on</strong> sentence of six m<strong>on</strong>ths<br />
or less were <strong>in</strong>stead given some form of n<strong>on</strong>-custodial sancti<strong>on</strong>, <strong>the</strong> number of <strong>in</strong>digenous<br />
pers<strong>on</strong>s sentenced to pris<strong>on</strong> could be reduced by 54 per cent. This would have <strong>the</strong> result<br />
of reduc<strong>in</strong>g <strong>the</strong> rate relative to <strong>the</strong> n<strong>on</strong>-Indigenous rate.<br />
Inmates with an Intellectual Disability<br />
4.13 While <strong>the</strong> prevalence of <strong>in</strong>tellectual disability <strong>in</strong> <strong>the</strong> general populati<strong>on</strong> is somewhere<br />
between 1 and 3%, estimates of <strong>the</strong> prevalence <strong>in</strong> correcti<strong>on</strong>al facilities <strong>in</strong> <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>al<br />
literature range from 2% to 37%. Determ<strong>in</strong><strong>in</strong>g <strong>the</strong> size of this group is extremely difficult.<br />
Very limited data is collected by different agencies and <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> varies between places<br />
where data is collected. 39<br />
4.14 In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> March 2000, Professor Susan Hayes, Head of <strong>the</strong><br />
Department of Behavioural Sciences <strong>in</strong> Medic<strong>in</strong>e at <strong>the</strong> University of Sydney, advised that<br />
37 Ibid p 8.<br />
38 However anecdotal evidence to this <strong>in</strong>quiry from Aborig<strong>in</strong>al and Torres Straight Islander Legal Service staff<br />
estimate that close to 80% of all matters <strong>the</strong>y deal with <strong>in</strong>volve alcohol and/or drugs (Submissi<strong>on</strong> 179, pp 8-9).<br />
39 Simps<strong>on</strong> J et al, The Framework <strong>Report</strong>, Law & Justice Foundati<strong>on</strong> of NSW, July 2001, p 8.<br />
22 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
am<strong>on</strong>g adult pris<strong>on</strong>ers <strong>the</strong> prevalence had risen from 12.5% <strong>in</strong> 1988 to 19.3% <strong>in</strong> 1999. 40 In<br />
evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> March 2001, Professor Hayes outl<strong>in</strong>ed studies she had<br />
c<strong>on</strong>ducted <strong>on</strong> <strong>the</strong> prevalence of <strong>in</strong>tellectual disability <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system <strong>in</strong> 1997<br />
and 1999 and advised that:<br />
I can say with c<strong>on</strong>fidence that <strong>the</strong> rate falls between 15 and 25 per cent, and it is<br />
likely to hover between around 19 and 20 per cent based <strong>on</strong> those studies, which<br />
had a f<strong>in</strong>al sample of more than 300 <strong>in</strong>mates. 41<br />
4.15 In its first submissi<strong>on</strong>, <strong>the</strong> Department of Corrective Services advises that 13% of <strong>the</strong><br />
<strong>in</strong>mate populati<strong>on</strong> have an <strong>in</strong>tellectual disability and between 1997 and 1999, of <strong>the</strong> <strong>in</strong>mates<br />
identified as <strong>in</strong>tellectually disabled, 55.4% were <strong>in</strong> custody for serious offences (murder,<br />
sexual assault, robbery). 42<br />
4.16 Intellectually disabled offenders also have a high rate of recidivism. Luke Grant, Assistant<br />
Commissi<strong>on</strong>er, Inmate Management stated <strong>in</strong> evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
Some 68.3 per cent of <strong>in</strong>mates between 1990-98, who were identified as meet<strong>in</strong>g<br />
<strong>in</strong>tellectual disability criteri<strong>on</strong> returned to custody with a new offence with<strong>in</strong> two<br />
years. That compares to 38.3 per cent of <strong>the</strong> ma<strong>in</strong>stream populati<strong>on</strong>. It is<br />
significantly higher. Some 53 per cent of those people had returned more than<br />
<strong>on</strong>ce with<strong>in</strong> that time. 43<br />
4.17 The M<strong>in</strong>ister for Corrective Services has advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that, <strong>in</strong> an attempt to<br />
determ<strong>in</strong>e <strong>the</strong> numbers <strong>in</strong> New South Wales, <strong>the</strong> Department will be c<strong>on</strong>duct<strong>in</strong>g a major<br />
health survey of <strong>in</strong>mates <strong>in</strong> mid 2001 which will <strong>in</strong>clude a test for <strong>in</strong>tellectual disability. 44<br />
4.18 The <strong>in</strong>appropriateness of impris<strong>on</strong>ment for people with a disability was noted by a number<br />
of witnesses and submissi<strong>on</strong>s to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>. For example, <strong>the</strong> Disability Council of<br />
NSW stated:<br />
The Council believes it is <strong>in</strong>appropriate to <strong>in</strong>volve a pers<strong>on</strong> with a disability <strong>in</strong> <strong>the</strong><br />
corrective services system, especially if <strong>the</strong>y have committed a n<strong>on</strong>-violent offence<br />
as <strong>the</strong>re is little to be ga<strong>in</strong>ed from apply<strong>in</strong>g such a sancti<strong>on</strong>. 45<br />
4.19 The Disability Council believes that <strong>the</strong> costs of <strong>in</strong>carcerati<strong>on</strong> far outweigh <strong>the</strong> benefits,<br />
and that people with an <strong>in</strong>tellectual disability with<strong>in</strong> <strong>the</strong> pris<strong>on</strong> envir<strong>on</strong>ment are more likely<br />
to be isolated and victimised and less likely to become <strong>in</strong>tegrated.<br />
40 Hayes Evidence 27 March 2000.<br />
41 Hayes Evidence 19 March 2001 p2<br />
42 Department of Corrective Services Submissi<strong>on</strong> 63 p53<br />
43 Grant, Evidence 19 March 2001<br />
44 Corresp<strong>on</strong>dence from M<strong>in</strong>ister for Corrective Services, undated, <strong>in</strong> resp<strong>on</strong>se to <strong>the</strong> Chair’s letter of 26 April<br />
2001.<br />
45 Disability Council of NSW Submissi<strong>on</strong> 87, p5.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 23
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Inmates from a N<strong>on</strong>-English Speak<strong>in</strong>g Background<br />
4.20 The Department of Corrective Services advised <strong>in</strong> its submissi<strong>on</strong> that 26% of <strong>the</strong> <strong>in</strong>mate<br />
populati<strong>on</strong> may be from a n<strong>on</strong>-English speak<strong>in</strong>g background. 46 O<strong>the</strong>rs have provided a<br />
smaller estimate. For example, Ms Violet Roumeliotis, Executive Officer, CRC Justice<br />
Support, stated that as at 30 June 2000, around 18 per cent of pris<strong>on</strong> populati<strong>on</strong> are of a<br />
n<strong>on</strong>-English speak<strong>in</strong>g background. 47 The NSW Inmate Census 2000 produced by <strong>the</strong><br />
Department put <strong>the</strong> figure at 16.6% of full time custody, with a fur<strong>the</strong>r 6% of unknown<br />
orig<strong>in</strong>.<br />
4.21 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was advised by pris<strong>on</strong>er groups that <strong>the</strong> variance <strong>in</strong> <strong>the</strong> estimates of <strong>the</strong><br />
number of people from different ethnic groups <strong>in</strong> pris<strong>on</strong> was due to <strong>the</strong> way <strong>the</strong><br />
Department of Corrective Services collected <strong>in</strong>formati<strong>on</strong> from <strong>in</strong>mates rely<strong>in</strong>g <strong>on</strong><br />
passports al<strong>on</strong>e or voluntary disclosure, not always readily forthcom<strong>in</strong>g from pris<strong>on</strong>ers.<br />
4.22 The follow<strong>in</strong>g table taken from <strong>the</strong> 2000 Inmate Census provides <strong>the</strong> country of birth of <strong>the</strong><br />
seven most numerous groups with<strong>in</strong> <strong>the</strong> pris<strong>on</strong> system: 48<br />
Country of Birth<br />
Country of Birth: Full Time Custody Inmates June 2000<br />
Male<br />
(% of total <strong>in</strong>mates)<br />
Female<br />
(%)<br />
Total<br />
(% of <strong>in</strong>mates)<br />
Australia 71.4 74.2 71.6<br />
Vietnam 3.3 2.2 3.2<br />
New Zealand 2.9 3.3 2.9<br />
United K<strong>in</strong>gdom 2.4 2.2 2.4<br />
Pacific Islands (<strong>in</strong>c Fiji) 1.8 0.7 1.8<br />
Leban<strong>on</strong> 1.3 - 1.3<br />
Ch<strong>in</strong>a (exc Taiwan) 0.9 1.1 0.9<br />
O<strong>the</strong>rs 15.1 16.3 14.4<br />
4.23 The table shows that <strong>the</strong> great majority of pris<strong>on</strong>ers are Australian born. What is not<br />
shown by this table is whe<strong>the</strong>r certa<strong>in</strong> groups are over-represented with<strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
system. The Department of Corrective Services does not produce figures <strong>on</strong> <strong>the</strong><br />
impris<strong>on</strong>ment rate of pris<strong>on</strong>ers accord<strong>in</strong>g to country of orig<strong>in</strong>, although <strong>the</strong>re have been<br />
nati<strong>on</strong>al studies which have exam<strong>in</strong>ed this issue us<strong>in</strong>g census data. 49<br />
46 Department of Corrective Services Submissi<strong>on</strong> 63, p 35.<br />
47 Roumeliotis, Evidence, 20/10/00.<br />
48 NSW Inmate Census 2000 Table 2.6 pp 28-32.<br />
49 Carcach and Grant “Australian Correcti<strong>on</strong>s: Ma<strong>in</strong> Demographic Characteristics of Pris<strong>on</strong> Populati<strong>on</strong>s”<br />
Australian Institute of Crim<strong>in</strong>ology Trends and Issues <strong>in</strong> crime and Crim<strong>in</strong>al Justice April 2000 p 5.<br />
24 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Inmates with a Mental Illness<br />
4.24 The Department of Corrective Services and <strong>the</strong> Correcti<strong>on</strong>s Health Service reports that for<br />
male pris<strong>on</strong>ers:<br />
• 12% have been diagnosed with some form of psychiatric disorder <strong>in</strong>clud<strong>in</strong>g<br />
depressi<strong>on</strong>, anxiety disorder, schizophrenia, or bipolar disorder;<br />
• 2.6% have been diagnosed with schizophrenia;<br />
• 33% have underg<strong>on</strong>e some form of treatment or assessment for emoti<strong>on</strong>al and<br />
psychological problems; and<br />
• 21% have attempted suicide. 50<br />
4.25 Dr Richard Mat<strong>the</strong>ws, of <strong>the</strong> Correcti<strong>on</strong>s Health Service, advised <strong>the</strong> committee that:<br />
When we look at health we f<strong>in</strong>d that <strong>on</strong> recepti<strong>on</strong> more than 50 per cent of males<br />
and 30 per cent of females need a referral because <strong>the</strong>y are depressed. You might<br />
argue that if you were not depressed com<strong>in</strong>g to gaol <strong>the</strong>re would be someth<strong>in</strong>g<br />
wr<strong>on</strong>g with you. But, more worry<strong>in</strong>gly, 30 per cent of <strong>the</strong> males and 50 per cent of<br />
<strong>the</strong> females had had c<strong>on</strong>tact with public mental health services <strong>in</strong> <strong>the</strong> 12 m<strong>on</strong>ths<br />
prior to <strong>in</strong>carcerati<strong>on</strong>.<br />
Some 12 per cent had a previous axis <strong>on</strong>e diagnosis, which is a major mental<br />
illness such as schizophrenia, manic depressi<strong>on</strong> or major depressi<strong>on</strong>; 80 per cent<br />
are <strong>in</strong>carcerated for drug and alcohol related offences; and aga<strong>in</strong>, … we are now<br />
up to about 60 per cent of <strong>the</strong> males and 80 per cent of <strong>the</strong> females are hepatitis C<br />
positive. That compares with a community prevalence of about 1 per cent. 51<br />
4.26 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was told, by a representative of <strong>the</strong> NSW Disability Council, that<br />
determ<strong>in</strong><strong>in</strong>g <strong>the</strong> number of <strong>in</strong>mates with a mental illness is problematic as some <strong>in</strong>mates<br />
may be reluctant to identify as hav<strong>in</strong>g a psychiatric illness. 52<br />
State Wards and Pris<strong>on</strong><br />
4.27 In <strong>the</strong>ir report, Address<strong>in</strong>g Offend<strong>in</strong>g Behaviour, MacFarlane and Murray state that<br />
at present <strong>the</strong>re are no statistics available <strong>on</strong> <strong>the</strong> numbers of wards <strong>in</strong> adult<br />
pris<strong>on</strong>s. Our observati<strong>on</strong>s (at Mulawa Correcti<strong>on</strong>al Centre) suggest that <strong>the</strong>y make<br />
up a significant part of <strong>the</strong> women’s populati<strong>on</strong>. 53<br />
50 These are not exclusive categories: for <strong>in</strong>stance some, but not necessarily all, <strong>the</strong> 21% of pris<strong>on</strong>ers who have<br />
attempted suicide may also suffer from a mental illness.<br />
51 Mat<strong>the</strong>ws, Evidence, 12 March 2001 p 34.<br />
52 Manns. Evidence, 12 March 2001.<br />
53 K MacFarlane & J Murray, Address<strong>in</strong>g Offend<strong>in</strong>g Behaviour, 1998, p 12.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 25
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
4.28 In its first submissi<strong>on</strong> to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, <strong>the</strong> Department of Corrective services states that<br />
many <strong>in</strong>mates have had c<strong>on</strong>tact with <strong>the</strong> Department of Community Services, with a high<br />
proporti<strong>on</strong> of those be<strong>in</strong>g state wards.<br />
4.29 The Positive Justice Centre cite a number of <strong>in</strong>ternati<strong>on</strong>al and Australian studies which<br />
show that ward over-representati<strong>on</strong> <strong>in</strong> adult pris<strong>on</strong>s is <strong>the</strong> norm. Their submissi<strong>on</strong> cites a<br />
survey c<strong>on</strong>ducted by <strong>the</strong> NSW Department of Corrective Services which found that 30%<br />
of female pris<strong>on</strong>ers claimed to have been removed from <strong>the</strong>ir families as children; it also<br />
cites United K<strong>in</strong>gdom research which has shown that 23 per cent of adult pris<strong>on</strong>ers and 38<br />
per cent of young pris<strong>on</strong>ers have been <strong>in</strong> State care. 54<br />
4.30 In evidence to <strong>the</strong> committee John Murray, for <strong>the</strong> Positive Justice Centre, <strong>in</strong>dicates that<br />
little is known about <strong>the</strong> number of State Wards go<strong>in</strong>g <strong>in</strong>to custody. 55 He was critical of<br />
<strong>the</strong> failure of many agencies over many years to address <strong>the</strong> needs of former wards.<br />
Speak<strong>in</strong>g of provisi<strong>on</strong> for <strong>the</strong> needs of former wards and care leavers <strong>in</strong> gaol, he said:<br />
Pers<strong>on</strong>ally I th<strong>in</strong>k it is quite <strong>in</strong>adequate, because <strong>the</strong>re is certa<strong>in</strong>ly noth<strong>in</strong>g<br />
happen<strong>in</strong>g <strong>in</strong> Corrective Services, to address past car<strong>in</strong>g episodes and experiences<br />
that have led to offend<strong>in</strong>g. 56<br />
4.31 As <strong>the</strong> Department of Community Services is no l<strong>on</strong>ger us<strong>in</strong>g <strong>the</strong> term “wards” it is<br />
possible that any trends <strong>in</strong> numbers will be lost <strong>in</strong> <strong>the</strong> change of def<strong>in</strong>iti<strong>on</strong>s. So as to<br />
<strong>in</strong>crease what is known about State wards <strong>in</strong> custody and assist <strong>in</strong> develop<strong>in</strong>g strategies to<br />
reduce this <strong>in</strong>cidence, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends a research project to identify <strong>the</strong> needs<br />
of “wards” <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system.<br />
Recommendati<strong>on</strong> 1<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services undertake a<br />
research project to focus <strong>on</strong> <strong>the</strong> needs of former State wards and care leavers <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> system. The research project should identify <strong>the</strong> numbers of former State<br />
wards and care leavers <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system.<br />
Vulnerable Pris<strong>on</strong>ers<br />
4.32 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recognises that <strong>the</strong>re are <strong>in</strong>mates who are particularly vulnerable with<strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> system to discrim<strong>in</strong>ati<strong>on</strong> from o<strong>the</strong>r pris<strong>on</strong>ers or pris<strong>on</strong> staff. This vulnerability<br />
may be by reas<strong>on</strong> of <strong>the</strong>ir sexuality, for gay pris<strong>on</strong>ers, or because of <strong>the</strong>ir status regard<strong>in</strong>g<br />
HIV <strong>in</strong>fecti<strong>on</strong>.<br />
4.33 Transgender <strong>in</strong>mates 57 are ano<strong>the</strong>r vulnerable subgroup with<strong>in</strong> pris<strong>on</strong>s. In 1998, <strong>the</strong><br />
Department of Corrective Services implemented a policy for <strong>the</strong> management of<br />
54 The Positive Justice Centre, Submissi<strong>on</strong> 97, pp 3-4.<br />
55 Murray Evidence 12 June 2001.<br />
56 Murray Evidence 12 June 2001.<br />
57 Inmates who identify as a member of <strong>the</strong> opposite sex by liv<strong>in</strong>g, or seek<strong>in</strong>g to live, as a member of <strong>the</strong><br />
opposite sex.<br />
26 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
transgender <strong>in</strong>mates <strong>in</strong> order to comply with an amendment to <strong>the</strong> NSW Anti-Discrim<strong>in</strong>ati<strong>on</strong><br />
Act <strong>in</strong> 1996 which made it unlawful to discrim<strong>in</strong>ate aga<strong>in</strong>st a pers<strong>on</strong> <strong>on</strong> <strong>the</strong> grounds of <strong>the</strong><br />
pers<strong>on</strong> be<strong>in</strong>g, or be<strong>in</strong>g thought to be, transgender. 58 The transgender policy applies to all<br />
NSW correcti<strong>on</strong>al centres, and to all court cells, lock-ups and police stati<strong>on</strong>s where pers<strong>on</strong>s<br />
are received <strong>in</strong>to lawful custody by correcti<strong>on</strong>al officers. 59<br />
An Age<strong>in</strong>g Inmate Populati<strong>on</strong><br />
4.34 Research and evidence presented to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> shows that <strong>the</strong> <strong>in</strong>mate populati<strong>on</strong> is<br />
age<strong>in</strong>g. In <strong>the</strong> Australian Institute of Crim<strong>in</strong>ology (AIC) report Elderly Inmates: Issues for<br />
Australia, Anna Grant writes that two reas<strong>on</strong>s which may account for this are ei<strong>the</strong>r that<br />
people are enter<strong>in</strong>g pris<strong>on</strong> relatively late <strong>in</strong> life, or that <strong>the</strong>y are serv<strong>in</strong>g l<strong>on</strong>ger sentences<br />
and grow<strong>in</strong>g old <strong>in</strong> pris<strong>on</strong>. 60 Accord<strong>in</strong>g to Grant, <strong>the</strong> most comm<strong>on</strong> offence category for<br />
<strong>in</strong>mates over <strong>the</strong> age of 50 years is “violent offence”. 61<br />
4.35 Witnesses to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> commented <strong>on</strong> <strong>the</strong> issue of <strong>the</strong> age<strong>in</strong>g pris<strong>on</strong>er populati<strong>on</strong><br />
specifically <strong>in</strong> relati<strong>on</strong> to NSW. Dr Richard Mat<strong>the</strong>ws, CEO for Correcti<strong>on</strong>s Health for<br />
<strong>in</strong>stance, stated:<br />
As a result of truth <strong>in</strong> sentenc<strong>in</strong>g legislati<strong>on</strong> <strong>the</strong>re is an age<strong>in</strong>g cohort and between<br />
1992 and 1996, when <strong>the</strong> populati<strong>on</strong> rema<strong>in</strong>ed stable, <strong>the</strong> number of <strong>in</strong>mates over<br />
45 almost doubled. 62<br />
4.36 Reproduced below is a pie chart which identifies <strong>the</strong> age profile of NSW <strong>in</strong>mates, as at 30<br />
June 2000.<br />
Age of NSW Full Time Inmates June 2000<br />
40%<br />
25%<br />
21%<br />
18-24<br />
25-34<br />
34-44<br />
45+<br />
14%<br />
Source: NSW Inmate Census 2000.<br />
58 Transgender (Anti-Discrim<strong>in</strong>ati<strong>on</strong> and o<strong>the</strong>r Acts) Amendment Act 1996 (NSW).<br />
59 Rosa op cit p 219.<br />
60 Australian Institute of Crim<strong>in</strong>ology, Elderly Inmates: Issues for Australia, 1999.<br />
61 Ibid p 3.<br />
62 Mat<strong>the</strong>ws Evidence 12 March, 2001.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 27
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
4.37 This shows that <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is still primarily young, with <strong>the</strong> majority aged under<br />
34, despite <strong>the</strong> evidence above that over time <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is age<strong>in</strong>g.<br />
Offences result<strong>in</strong>g <strong>in</strong> impris<strong>on</strong>ment<br />
4.38 One impact <strong>on</strong> pris<strong>on</strong> numbers is <strong>the</strong> seriousness of <strong>the</strong> offence for which <strong>in</strong>mates are<br />
charged. Inmates may be <strong>in</strong> pris<strong>on</strong> for several offences. The table below exam<strong>in</strong>es <strong>the</strong> most<br />
serious offences of full-time <strong>in</strong>mates held <strong>in</strong> <strong>the</strong> NSW correcti<strong>on</strong>al system as at 30 June<br />
2000:<br />
Most serious offence<br />
category<br />
Most Serious Offence of NSW Inmates As At 30 June 2000<br />
Male Inmates Female Inmates Total<br />
Murder 455 6.6% 21 4.6% 476 6.5%<br />
Attempt Murder 71 1.0% 4 0.9% 75 1.0%<br />
C<strong>on</strong>spiracy to Murder 11 0.2% 2 0.4% 13 0.2%<br />
Manslaughter 95 1.4% 17 3.7% 112 1.5%<br />
Major Assault 549 8.0% 20 4.4% 569 7.8%<br />
O<strong>the</strong>r Assault 331 4.8% 25 5.5% 356 4.9%<br />
Rape 5 0.1% - - 5 0.1%<br />
Serious Sexual Assault 442 6.4% 1 0.2% 443 6.0%<br />
Incest/Carnal Knowledge 112 1.6% 1 0.2% 113 1.5%<br />
Indecent Assault 83 1.2% - - 83 1.1%<br />
Buggery/bestiality 26 0.4% - - 26 0.4%<br />
Robbery with major assault 750 10.9% 40 8.8% 790 10.8%<br />
O<strong>the</strong>r robbery 347 5.0% 17 3.7% 364 5.0%<br />
Fraud 239 3.5% 40 8.8% 279 3.8%<br />
Break, Enter and Steal 781 11.4% 46 10.1% 827 11.3%<br />
O<strong>the</strong>r steal 533 7.8% 59 13.0% 592 8.1%<br />
Driv<strong>in</strong>g/traffic 346 5.0% 12 2.6% 358 4.9%<br />
Offences aga<strong>in</strong>st order 394 5.7% 37 8.2% 431 5.9%<br />
Breach of parole/licence 323 4.7% 30 6.6% 353 4.8%<br />
Drug offences 802 11.7% 68 15.0% 870 11.9%<br />
O<strong>the</strong>r offences 181 2.6% 14 3.1% 195 2.7%<br />
Total 100% 100% 100%<br />
Source: Department of Corrective Services Submissi<strong>on</strong> No. 63<br />
28 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
4.39 The breakdown of <strong>the</strong> most serious offences of NSW <strong>in</strong>mates is shown below <strong>in</strong> chart<br />
form:<br />
Most Serious Offence of NSW Inmates<br />
(<strong>in</strong>clud<strong>in</strong>g Periodic Deta<strong>in</strong>ees)<br />
30 June 1999<br />
Driv<strong>in</strong>g/Traffic<br />
7.3%<br />
Aga<strong>in</strong>st Good<br />
Order<br />
7.9%<br />
Drug<br />
11.2%<br />
Property<br />
21.1%<br />
O<strong>the</strong>r<br />
2.5%<br />
Homicide<br />
7.7%<br />
Fraud<br />
5.1%<br />
Assault<br />
13.5%<br />
Robbery<br />
14.3%<br />
Sexual Assault<br />
9.3%<br />
Research & Statistics, NSW Department of Corrective Services<br />
Source: NSW Pris<strong>on</strong> Census<br />
Length of sentences<br />
4.40 Research by Joanne Baker of <strong>the</strong> Bureau of Crime Statistics and Research entitled Are <strong>the</strong><br />
Courts becom<strong>in</strong>g more lenient? Recent trends <strong>in</strong> c<strong>on</strong>victi<strong>on</strong>s and penalties <strong>in</strong> NSW higher and Local<br />
Courts, 63 has c<strong>on</strong>cluded that <strong>the</strong> percentage of pris<strong>on</strong>ers sentenced to impris<strong>on</strong>ment has<br />
rema<strong>in</strong>ed stable or <strong>in</strong>creased between 1990 and 1997 <strong>in</strong> NSW <strong>in</strong> each category of offence.<br />
She also c<strong>on</strong>cluded that <strong>the</strong> length of pris<strong>on</strong> sentences imposed generally rema<strong>in</strong>ed stable<br />
between 1990 and 1997.<br />
4.41 Although sentences may be <strong>in</strong>creas<strong>in</strong>g <strong>in</strong> severity, it is clear that many pris<strong>on</strong>ers c<strong>on</strong>t<strong>in</strong>ue to<br />
be impris<strong>on</strong>ed for very short sentences. The follow<strong>in</strong>g chart shows <strong>the</strong> sentence length of<br />
recepti<strong>on</strong>s <strong>in</strong> 2000:<br />
63 Crime and Justice Bullet<strong>in</strong> no 40, November 1998.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 29
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
4.42 The chart illustrates that <strong>the</strong> majority of <strong>in</strong>mates pass<strong>in</strong>g through <strong>the</strong> pris<strong>on</strong> system are<br />
sentenced to less than six m<strong>on</strong>ths impris<strong>on</strong>ment. If a snapshot is taken <strong>on</strong> any <strong>on</strong>e<br />
particular day short term pris<strong>on</strong>ers are a m<strong>in</strong>ority but over a year <strong>the</strong>y represent <strong>the</strong><br />
majority of pris<strong>on</strong>ers pass<strong>in</strong>g through <strong>the</strong> system. Pris<strong>on</strong>ers serv<strong>in</strong>g short term sentences<br />
have <strong>in</strong>creased <strong>in</strong> number significantly s<strong>in</strong>ce 1995, as shown by <strong>the</strong> follow<strong>in</strong>g table:<br />
People Start<strong>in</strong>g Custodial Episodes: 1995/96 to 2000/01<br />
Sentence Length 1995/96 1996/97 1997/98 1998/99 1999/00 2000/01 TOTAL<br />
0-3 mths 2233 2417 2515 3008 3636 3029 16838<br />
3-6 mths 1364 1470 1566 1874 2009 1982 10265<br />
6-12 mths 1243 1315 1337 1407 1480 1590 8372<br />
1-2 yr 606 649 649 668 742 805 4119<br />
2+ yr 482 481 481 609 611 598 3307<br />
Total 5928 6332 6332 7566 8478 8004 42901<br />
4.43 The short period for which <strong>the</strong> majority of <strong>in</strong>mates are sentenced raises <strong>the</strong> questi<strong>on</strong> as to<br />
whe<strong>the</strong>r pris<strong>on</strong> was <strong>the</strong> appropriate sentence for some of <strong>the</strong>se short term <strong>in</strong>mates. This<br />
issue is discussed fur<strong>the</strong>r <strong>in</strong> chapters Six and Seven of this report.<br />
Repeat Offenders<br />
4.44 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was told by Dr Mat<strong>the</strong>ws of Correcti<strong>on</strong>s Health that a significant number<br />
of <strong>the</strong> recepti<strong>on</strong>s <strong>in</strong>to <strong>the</strong> pris<strong>on</strong> system come from relatively small core of multiple repeat<br />
offenders.<br />
…In <strong>the</strong> last four years, 24,000 people have come <strong>on</strong>ce; 7,200 have come twice;<br />
3404 have come three times; and so <strong>on</strong> down <strong>the</strong> list. A total number of 38,626<br />
pers<strong>on</strong>s came to gaol between June 1995 and June 1999. These figures are now<br />
about two years out of date, but I do not th<strong>in</strong>k anyth<strong>in</strong>g much has changed apart<br />
from <strong>the</strong> numbers. This is over a four year period.<br />
You have to remember that many of <strong>the</strong>se people could not come back because<br />
<strong>the</strong>y had not got out <strong>in</strong> order to come back. So if you <strong>the</strong>n do <strong>the</strong> numbers, you<br />
will f<strong>in</strong>d that you have 3,500 people with an average of five <strong>in</strong>carcerati<strong>on</strong>s <strong>in</strong> four<br />
years. So, you have 17,500 episodes of recepti<strong>on</strong>. Maybe this is a group that we<br />
should be look<strong>in</strong>g at as hav<strong>in</strong>g special needs. 64<br />
64 Dr Mat<strong>the</strong>ws Evidence, 12 March 2001, p 36.<br />
30 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
4.45 Dr Mat<strong>the</strong>ws provided <strong>the</strong> follow<strong>in</strong>g table show<strong>in</strong>g <strong>the</strong> level of repeat offenders held <strong>in</strong><br />
custody:<br />
Trends <strong>in</strong> Impris<strong>on</strong>ment: Last 4 Years<br />
Number of People<br />
Number of episodes <strong>in</strong> Custody<br />
24,472<br />
7213<br />
3404<br />
1737<br />
820<br />
465<br />
515<br />
1<br />
2<br />
3<br />
4<br />
5<br />
6<br />
More than 6 episodes of impris<strong>on</strong>ment<br />
Total of 38,626 pers<strong>on</strong>s have spent some time <strong>in</strong> a full time custody between June 1995 and June<br />
1999<br />
4.46 The table shows significant numbers of pris<strong>on</strong>ers have had at least two episodes <strong>in</strong> custody,<br />
and more than 3,000 offenders served four or more terms of impris<strong>on</strong>ment between 1995<br />
and 1999.<br />
Instituti<strong>on</strong>al Security Classificati<strong>on</strong> of Inmates<br />
4.47 As discussed <strong>in</strong> Chapter Two, <strong>in</strong>mates are classified accord<strong>in</strong>g to different levels of<br />
security. Set out below <strong>in</strong> graphical form is a breakdown of <strong>in</strong>stituti<strong>on</strong>al security<br />
classificati<strong>on</strong> of pris<strong>on</strong>ers as at June 2000.<br />
4.48 Significant numbers of serious offenders are classified as maximum security, but <strong>the</strong><br />
majority (53%) of pris<strong>on</strong>ers are ei<strong>the</strong>r m<strong>in</strong>imum security or <strong>on</strong> periodic detenti<strong>on</strong>.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 31
LEGISLATIVE COUNCIL<br />
Inquiry <strong>on</strong> <strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Sentenced/unsentenced <strong>in</strong>mates<br />
4.49 As will be discussed <strong>in</strong> Chapter Six, <strong>the</strong> number of pris<strong>on</strong>ers <strong>on</strong> remand await<strong>in</strong>g sentence<br />
has a significant impact <strong>on</strong> overall pris<strong>on</strong> numbers. Set out below <strong>in</strong> graphical form is a<br />
breakdown of <strong>the</strong> sentenced/unsentenced status of <strong>in</strong>mates, as at June 2000 (“PD” refers<br />
to periodic detenti<strong>on</strong>.)<br />
4.50 It can be seen that <strong>the</strong> unsentenced male populati<strong>on</strong> makes a significant c<strong>on</strong>tributi<strong>on</strong> to <strong>the</strong><br />
overall pris<strong>on</strong> populati<strong>on</strong>, account<strong>in</strong>g for almost a quarter of <strong>the</strong> total.<br />
C<strong>on</strong>clusi<strong>on</strong><br />
4.51 The pris<strong>on</strong> populati<strong>on</strong> c<strong>on</strong>sists of men and women who are <strong>on</strong> average of lower socioec<strong>on</strong>omic<br />
status, of poorer health and of lower levels of educati<strong>on</strong> than <strong>the</strong> rest of <strong>the</strong><br />
populati<strong>on</strong>. Indigenous men and women and those with an <strong>in</strong>tellectual disability or a<br />
mental illness are significantly over represented. The average age of <strong>the</strong> <strong>in</strong>mate populati<strong>on</strong><br />
is <strong>in</strong>creas<strong>in</strong>g. Although significant numbers of <strong>in</strong>mates have been sentenced for serious<br />
offences and are <strong>in</strong> maximum security classified <strong>in</strong>stituti<strong>on</strong>s, <strong>the</strong> majority of pris<strong>on</strong>ers who<br />
pass through <strong>the</strong> system serve sentences of less than six m<strong>on</strong>ths and are <strong>in</strong> m<strong>in</strong>imum<br />
security or serv<strong>in</strong>g periodic detenti<strong>on</strong>. Almost a quarter of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> are<br />
await<strong>in</strong>g sentence.<br />
32 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Chapter 5<br />
Analysis of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong><br />
Introducti<strong>on</strong><br />
5.1 Part One of this <strong>Report</strong> presented a profile of <strong>the</strong> pris<strong>on</strong> system and <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>,<br />
and documented <strong>the</strong> <strong>in</strong>crease <strong>in</strong> this populati<strong>on</strong> <strong>in</strong> recent years. Part Two c<strong>on</strong>siders<br />
dimensi<strong>on</strong>s of how this can be addressed. In this chapter <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease are<br />
analysed. In many cases recommendati<strong>on</strong>s are made for fur<strong>the</strong>r research so that <strong>the</strong> factors<br />
caus<strong>in</strong>g <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> can be more effectively targeted. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
has not been provided any evidence which clearly l<strong>in</strong>ks <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> to <strong>in</strong>creases <strong>in</strong> <strong>the</strong> crime rate.<br />
5.2 As outl<strong>in</strong>ed <strong>in</strong> Chapter Three of this report, <strong>the</strong>re has been a steady <strong>in</strong>crease <strong>in</strong> <strong>the</strong> NSW<br />
pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> recent years, with significant <strong>in</strong>creases from 1989 and more recently<br />
from June 1998. S<strong>in</strong>ce 1998 <strong>the</strong> rate of impris<strong>on</strong>ment per 100,000 populati<strong>on</strong> has<br />
<strong>in</strong>creased from 100.6 to 112.7 <strong>in</strong> June 2000. Fur<strong>the</strong>rmore, recent evidence from<br />
representatives of <strong>the</strong> Department of Corrective Services suggests that <strong>the</strong> number of<br />
pris<strong>on</strong>ers <strong>in</strong> NSW is likely to c<strong>on</strong>t<strong>in</strong>ue to <strong>in</strong>crease through 2001/2002 and 2002/2003.<br />
General Factors: immediate and underly<strong>in</strong>g causes<br />
5.3 As outl<strong>in</strong>ed <strong>in</strong> <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong>, <strong>the</strong>re is no s<strong>in</strong>gle factor that has caused <strong>the</strong><br />
<strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. Ra<strong>the</strong>r it is an <strong>in</strong>teracti<strong>on</strong> between a matrix of factors<br />
that has been resp<strong>on</strong>sible for <strong>the</strong> <strong>in</strong>crease. Some of <strong>the</strong> factors identified by <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> its Interim <strong>Report</strong> <strong>in</strong>clude: patterns of offend<strong>in</strong>g; polic<strong>in</strong>g practices; legislative<br />
changes; tougher sentences; guidel<strong>in</strong>e judgments; <strong>in</strong>creased drug use, particularly hero<strong>in</strong>;<br />
<strong>in</strong>creas<strong>in</strong>g poverty and disadvantage; and <strong>the</strong> extent of <strong>the</strong> availability and accessibility of<br />
services. 65<br />
5.4 The submissi<strong>on</strong> received from <strong>the</strong> Department of Corrective Services dist<strong>in</strong>guishes<br />
between immediate causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> from underly<strong>in</strong>g causes of<br />
<strong>the</strong> <strong>in</strong>crease. Immediate causes are listed as:<br />
• <strong>the</strong> number of pers<strong>on</strong>s received <strong>on</strong> remand;<br />
• <strong>the</strong> length of time <strong>the</strong>y stay <strong>on</strong> remand;<br />
• <strong>the</strong> number of pers<strong>on</strong>s start<strong>in</strong>g a sentence of impris<strong>on</strong>ment; and<br />
• <strong>the</strong> length of time <strong>the</strong>y serve. 66<br />
65 Interim <strong>Report</strong>, p 28.<br />
66 Department of Corrective Services, Submissi<strong>on</strong> 63, p 10.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 33
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.5 Possible underly<strong>in</strong>g causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> are identified as:<br />
• crime rate;<br />
• police activity;<br />
• court activity; and<br />
• breach of orders. 67<br />
5.6 Dur<strong>in</strong>g <strong>the</strong> course of stage two of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s <strong>in</strong>quiry, particular attenti<strong>on</strong> has been<br />
given to <strong>the</strong> follow<strong>in</strong>g factors and <strong>the</strong>ir <strong>in</strong>fluence up<strong>on</strong> <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong>:<br />
• police activity;<br />
• crime rates;<br />
• changes <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>, and underly<strong>in</strong>g factors that might be<br />
c<strong>on</strong>tribut<strong>in</strong>g to those changes;<br />
• court activity;<br />
• severity of sentences, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> <strong>in</strong>fluence of guidel<strong>in</strong>es judgments; and<br />
• breach of n<strong>on</strong>-custodial orders.<br />
Police activity<br />
Arrest rates<br />
5.7 If <strong>the</strong>re are more police officers <strong>the</strong>re is <strong>the</strong> potential for a greater level of police activity,<br />
regardless of whe<strong>the</strong>r actual crime is <strong>in</strong>creas<strong>in</strong>g. The submissi<strong>on</strong> from Department of<br />
Corrective Services refers to <strong>the</strong> effect <strong>on</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> of <strong>in</strong>creases <strong>in</strong> <strong>the</strong> number<br />
of police <strong>in</strong> NSW and changes <strong>in</strong> police activity, measured through arrest rates.<br />
The Police Service has also reported that <strong>the</strong> proporti<strong>on</strong> of police <strong>in</strong> <strong>the</strong> fr<strong>on</strong>t l<strong>in</strong>e<br />
had <strong>in</strong>creased as follows s<strong>in</strong>ce 1996:<br />
1996 74% of police “<strong>in</strong> fr<strong>on</strong>t l<strong>in</strong>e”<br />
1997 83%<br />
1998 85%<br />
…<strong>the</strong> results of major operati<strong>on</strong>s by <strong>the</strong> Police Service <strong>in</strong> 1998-99…dem<strong>on</strong>strate<br />
that major police acti<strong>on</strong> often leads directly to greater numbers of arrests. 68<br />
67 Ibid, p 20.<br />
34 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
5.8 The Bureau of Crime Statistics and Research (BOCSAR) has provided evidence to <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> support of this explanati<strong>on</strong>. It advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that <strong>the</strong> average<br />
number of pers<strong>on</strong>s arrested per m<strong>on</strong>th by NSW police has <strong>in</strong>creased by 13% over <strong>the</strong> last<br />
five years. The numbers arrested as a m<strong>on</strong>thly average <strong>in</strong> NSW over <strong>the</strong> period are as<br />
follows:<br />
• 1996 – 9,900 pers<strong>on</strong>s per m<strong>on</strong>th average.<br />
• 1997 – 9,900 (stable)<br />
• 1998 – 11,000 (+11%)<br />
• 1999 – 12,000 (+10%)<br />
• 2000 – 11,200 (-7%)<br />
5.9 The largest <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of arrests <strong>in</strong> recent years occurred <strong>in</strong> <strong>the</strong> period from<br />
January 1998 to December 1999, co<strong>in</strong>cid<strong>in</strong>g with <strong>the</strong> period when <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong><br />
started to <strong>in</strong>crease significantly for <strong>the</strong> sec<strong>on</strong>d time.<br />
Crim<strong>in</strong>al charges com<strong>in</strong>g before <strong>the</strong> courts<br />
5.10 The results of <strong>in</strong>creased police activity has resulted <strong>in</strong> a 22% <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of<br />
cases com<strong>in</strong>g before <strong>the</strong> NSW courts s<strong>in</strong>ce 1995/96, result<strong>in</strong>g <strong>in</strong> approximately 20,000<br />
pers<strong>on</strong>s be<strong>in</strong>g dealt with each year. This is shown by <strong>the</strong> follow<strong>in</strong>g data produced by<br />
BOCSAR:<br />
Number of cases registered <strong>in</strong> NSW Courts<br />
1994-95 1995-96 1996-97 1997-98 1998-99<br />
Local Court 197,071 211,460 228,671 230,825 242,222<br />
District Court 4,108 3,751 3,622 3,896 3,450<br />
Supreme Court 93 90 89 100 82<br />
Total 201,272 215,301 232,382 234,821 245,754<br />
Source: Key trends <strong>in</strong> Crime and Justice – NSW – 1999<br />
68 Department of Corrective Services, Submissi<strong>on</strong> 63 pp 20-21.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 35
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Number of pers<strong>on</strong>s dealt with by <strong>the</strong> courts (disposals)<br />
1995/96 1996/97 1997/98 1998/99<br />
Local 106,676 114,359 110,214 127,430<br />
District 4,324 3,845 3,418 3,803<br />
Supreme 75 76 87 111<br />
Total 111,075 118,280 113,719 131,344<br />
Source: Key trends <strong>in</strong> Crime and Justice – NSW – 1999<br />
Police Charges<br />
5.11 Dur<strong>in</strong>g <strong>the</strong> <strong>in</strong>quiry, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> heard evidence regard<strong>in</strong>g <strong>the</strong> impact <strong>on</strong> <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> of <strong>the</strong> police “over-charg<strong>in</strong>g” a term used <strong>in</strong> reference to <strong>the</strong> practice of lay<strong>in</strong>g<br />
<strong>the</strong> most serious charge which could apply <strong>in</strong> any given case. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> also received<br />
evidence of <strong>the</strong> practice of execut<strong>in</strong>g warrants, or lay<strong>in</strong>g fur<strong>the</strong>r charges, dur<strong>in</strong>g <strong>the</strong> last few<br />
weeks of an <strong>in</strong>mate’s sentence ra<strong>the</strong>r than determ<strong>in</strong><strong>in</strong>g whe<strong>the</strong>r <strong>the</strong>re are any outstand<strong>in</strong>g<br />
warrants at <strong>the</strong> time of arrest. Mr Doug Humphreys, Director, Crim<strong>in</strong>al Law, Legal Aid<br />
Commissi<strong>on</strong> of New South Wales told <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that<br />
…it is a very effective way of keep<strong>in</strong>g a target—if I can use that term—<strong>in</strong> custody<br />
for a l<strong>on</strong>ger period of time…because <strong>in</strong>evitably that pers<strong>on</strong> will be bail refused.<br />
We can do noth<strong>in</strong>g to force police to do that. It would seem to me as a matter of<br />
policy, however, that that is completely and utterly undesirable. 69<br />
5.12 Mr Humphreys argued that <strong>the</strong> Department of Corrective Services should be under an<br />
obligati<strong>on</strong> to ensure that all warrants are called <strong>in</strong> as early as possible.<br />
5.13 These matters are fur<strong>the</strong>r addressed later <strong>in</strong> this chapter <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> remand<br />
populati<strong>on</strong>, bail and sentenc<strong>in</strong>g issues.<br />
Crime rates<br />
5.14 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has not been presented with any evidence establish<strong>in</strong>g a l<strong>in</strong>k between <strong>the</strong><br />
crime rate and <strong>the</strong> recent <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. Informati<strong>on</strong> from <strong>the</strong><br />
Australian Institute of Crim<strong>in</strong>ology shows that <strong>the</strong> rate of impris<strong>on</strong>ment over recent years<br />
<strong>in</strong> Australia has been <strong>in</strong>creas<strong>in</strong>g at a greater rate than <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> rate of crime. The<br />
Institute has reported that <strong>the</strong> nati<strong>on</strong>al trend to more and l<strong>on</strong>ger gaol sentences has arisen<br />
69 Humphreys Evidence 19 October 2000.<br />
36 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
dur<strong>in</strong>g a decade <strong>in</strong> which crime rates have been broadly stable, despite <strong>in</strong>creases <strong>in</strong> drugrelated<br />
crimes. 74<br />
5.15 The crime statistics from BOCSAR, reproduced below <strong>in</strong> this secti<strong>on</strong>, seem to <strong>in</strong>dicate that<br />
<strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> from June 1998 <strong>in</strong> NSW cannot readily be attributed<br />
to changes <strong>in</strong> <strong>the</strong> <strong>in</strong>cidence of crime. Any significant <strong>in</strong>creases <strong>in</strong> <strong>the</strong> rates of crime, <strong>in</strong><br />
relati<strong>on</strong> to offences such as assault, robbery and break and enter, appeared to occur well<br />
before <strong>the</strong> rate of <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. The period of <strong>the</strong> most recent<br />
<strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> has been marked by a broadly stable crime rate accord<strong>in</strong>g<br />
to official measures. 75<br />
5.16 BOCSAR publishes a range of reports <strong>on</strong> crime statistics and trends <strong>in</strong> crime and justice.<br />
Reproduced below is a summary of trends <strong>in</strong> recorded crim<strong>in</strong>al <strong>in</strong>cidents, cover<strong>in</strong>g <strong>the</strong><br />
period 1995-1999, and <strong>in</strong>clud<strong>in</strong>g both <strong>the</strong> actual number of <strong>in</strong>cidents and a rate per 100,000<br />
populati<strong>on</strong>.<br />
Table 1.1: Summary of trends <strong>in</strong> recorded crim<strong>in</strong>al <strong>in</strong>cidents,<br />
by offence type<br />
Type of Offence 1995 1996 1997 1998 1999 2000<br />
No of recorded <strong>in</strong>cidents<br />
Murder* 119 106 112 100 121 101<br />
Assault 39132 48869 54303 58672 57559 61338<br />
Sexual assault 2272 2973 3601 3291 2956 3504<br />
Indecent assault/o<strong>the</strong>r sexual offences 4337 5211 6156 5310 4483 3686<br />
Robbery without a weap<strong>on</strong> 4518 4952 6487 6503 6413 6972<br />
Robbery with a firearm 677 824 1139 919 696 655<br />
Robbery with a weap<strong>on</strong> not a firearm 1465 1894 3381 4382 3515 3660<br />
Break and enter dwell<strong>in</strong>g 61336 74546 79838 85768 77178 80843<br />
Break and enter n<strong>on</strong>-dwell<strong>in</strong>g 40393 43551 45467 48772 45551 49569<br />
Motor vehicle <strong>the</strong>ft 47093 49206 55556 53866 48224 52279<br />
Steal from motor vehicle 55896 63771 71079 75258 75497 89576<br />
Steal from retail store 22957 22619 21492 21112 20947 21066<br />
Steal from dwell<strong>in</strong>g 25390 28420 28586 30984 30141 31673<br />
Steal from pers<strong>on</strong> 9827 9939 10864 11631 11542 12761<br />
Fraud 17490 21702 23933 26224 25835 26436<br />
Malicious damage to property 71817 78853 79731 89685 91577 93381<br />
74 Carach and Grant Australian Correcti<strong>on</strong>s: Ma<strong>in</strong> Demographic Characteristics of Pris<strong>on</strong> Populati<strong>on</strong>s April 2000, Australia<br />
Institute of Crim<strong>in</strong>ology.<br />
75 The level of crime is difficult to determ<strong>in</strong>e and an area of great c<strong>on</strong>troversy. There have been a range of<br />
committee <strong>in</strong>quiries over recent years which have exam<strong>in</strong>ed <strong>the</strong>se issues of measurement of crime and its<br />
causes. Particular attenti<strong>on</strong> is drawn to <strong>the</strong> work of <strong>the</strong> Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, <strong>in</strong> its <strong>in</strong>quiry<br />
<strong>in</strong>to Crime Preventi<strong>on</strong> through Social Support (First <strong>Report</strong> 1999).<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 37
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Rate per 100,000 populati<strong>on</strong><br />
Murder* 1.9 1.7 1.8 1.6 1.9 1.6<br />
Assault 640.2 787.6 865.7 926.4 897.7 949<br />
Sexual assault 37.2 47.9 57.4 52.0 46.1 54.2<br />
Indecent assault/o<strong>the</strong>r sexual offences 71.0 84.0 98.1 83.8 69.9 57<br />
Robbery without a weap<strong>on</strong> 73.9 79.8 103.4 102.7 100.0 107.9<br />
Robbery with a firearm 11.1 13.3 18.2 14.5 10.9 10.1<br />
Robbery with a weap<strong>on</strong> not a firearm 24.0 30.5 53.9 69.2 54.8 56.6<br />
Break and enter dwell<strong>in</strong>g 1003.5 1201.4 1272.8 1354.2 1203.7 1250.8<br />
Break and enter n<strong>on</strong>-dwell<strong>in</strong>g 660.9 701.9 724.8 770.1 710.4 766.9<br />
Motor vehicle <strong>the</strong>ft 770.5 793.0 885.7 850.5 752.1 808.8<br />
Steal from motor vehicle 914.5 1027.8 1133.1 1192.0 1207.4 1385.9<br />
Steal from retail store 375.6 364.5 342.6 333.3 326.7 325.9<br />
Steal from dwell<strong>in</strong>g 415.4 458.0 455.7 489.2 470.1 490<br />
Steal from pers<strong>on</strong> 160.8 160.2 173.2 183.6 180.0 1974<br />
Fraud 286.1 349.8 381.5 414.0 402.9 409<br />
Malicious damage to property 1175.0 1270.9 1271.1 1416.0 1428.3 1444.8<br />
For murder, <strong>the</strong> data are counts of recorded victims, not <strong>in</strong>cidents<br />
Source: Key Trends <strong>in</strong> Crime and Justice NSW 1999, p7, NSW Recorded Crime Statistics 2000.<br />
5.17 The trends <strong>in</strong> each of <strong>the</strong>se categories of crime for <strong>the</strong> last five years, <strong>in</strong>clud<strong>in</strong>g for 1999-<br />
2000, are summarised <strong>in</strong> <strong>the</strong> tables reproduced below:<br />
Table 1. Trend tests and annual percentage changes <strong>in</strong> number of recorded crim<strong>in</strong>al <strong>in</strong>cidents<br />
Offence category<br />
% Change <strong>in</strong> recorded crime,<br />
1998-1999<br />
% Change <strong>in</strong> recorded crime,<br />
1999-2000<br />
Murder no significant trend no significant trend<br />
Assault no significant trend no significant trend<br />
Sexual Assault decrease of 10.2% no significant trend<br />
Indecent assault, act of<br />
<strong>in</strong>decency, o<strong>the</strong>r sexual<br />
offences<br />
decrease of 15.6%<br />
no significant trend<br />
Robbery without a weap<strong>on</strong> no significant trend no significant trend<br />
Robbery with a firearm decrease of 24.3% no significant trend<br />
Robbery with a weap<strong>on</strong> not a<br />
firearm<br />
decrease of 19.8%<br />
no significant trend<br />
Break and enter - dwell<strong>in</strong>g decrease of 10.0% no significant trend<br />
Break and enter - n<strong>on</strong> dwell<strong>in</strong>g decrease of 6.6% <strong>in</strong>crease of 8.1%<br />
Motor vehicle <strong>the</strong>ft decrease of 10.5% <strong>in</strong>crease of 8.2%<br />
Steal from motor vehicle no significant trend <strong>in</strong>crease of 15.2%<br />
Steal from retail store no significant trend no significant trend<br />
Steal from dwell<strong>in</strong>g no significant trend no significant trend<br />
Steal from pers<strong>on</strong> no significant trend no significant trend<br />
Fraud no significant trend no significant trend<br />
Malicious damage to property no significant trend no significant trend<br />
38 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Table 2. Trend tests and annual percentage changes <strong>in</strong> number of recorded crim<strong>in</strong>al <strong>in</strong>cidents, 1995-1996 to<br />
1997-1998.<br />
Offence category<br />
% Change <strong>in</strong><br />
recorded crime,<br />
1995-1996<br />
% Change <strong>in</strong><br />
recorded crime,<br />
1996-1997<br />
% Change <strong>in</strong><br />
recorded crime,<br />
1997-1998<br />
Murder no significant trend no significant trend no significant trend<br />
Assault <strong>in</strong>crease of 22.5% <strong>in</strong>crease of 8.7% <strong>in</strong>crease of 6.2%<br />
Sexual Assault <strong>in</strong>crease of 23.3% no significant trend decrease of 14.1%<br />
Indecent assault, act of<br />
<strong>in</strong>decency, o<strong>the</strong>r sexual<br />
offences<br />
no significant trend no significant trend decrease of 18.7%<br />
Robbery without a weap<strong>on</strong> <strong>in</strong>crease of 8.4% <strong>in</strong>crease of 29.5% no significant trend<br />
Robbery with a firearm no significant trend <strong>in</strong>crease of 33.4% no significant trend<br />
Robbery with a weap<strong>on</strong> not<br />
a firearm<br />
<strong>in</strong>crease of 27.8% <strong>in</strong>crease of 76.8% <strong>in</strong>crease of 29.7%<br />
Break and enter – dwell<strong>in</strong>g <strong>in</strong>crease of 20.9% <strong>in</strong>crease of 6.5% <strong>in</strong>crease of 7.0%<br />
Break and enter - n<strong>on</strong><br />
dwell<strong>in</strong>g<br />
<strong>in</strong>crease of 7.0% <strong>in</strong>crease of 3.4% <strong>in</strong>crease of 6.8%<br />
Motor vehicle <strong>the</strong>ft <strong>in</strong>crease of 4.1% <strong>in</strong>crease of 12.5% no significant trend<br />
Steal from motor vehicle <strong>in</strong>crease of 13.6% <strong>in</strong>crease of 10.9% <strong>in</strong>crease of 5.9%<br />
Steal from retail store no significant trend decrease of 5.7% no significant trend<br />
Steal from dwell<strong>in</strong>g <strong>in</strong>crease of 11.3% no significant trend <strong>in</strong>crease of 7.7%<br />
Steal from pers<strong>on</strong> no significant trend no significant trend no significant trend<br />
Fraud <strong>in</strong>crease of 17.2% no significant trend no significant trend<br />
Malicious damage <strong>in</strong>crease of 9.0% no significant trend <strong>in</strong>crease of 11.9%<br />
5.18 The tables <strong>in</strong>dicate no significant <strong>in</strong>creases <strong>in</strong> recorded <strong>in</strong>cidents of crime <strong>in</strong> <strong>the</strong> years <strong>in</strong><br />
which <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> rose most rapidly, <strong>in</strong> <strong>the</strong> two years from June 1998. The<br />
<strong>in</strong>crease <strong>in</strong> recorded <strong>in</strong>cidents was significant <strong>in</strong> some categories <strong>in</strong> <strong>the</strong> years prior to that<br />
period.<br />
5.19 However, <strong>the</strong> figures above are recorded <strong>in</strong>cidents, that is crimes which are reported to <strong>the</strong><br />
police. If more people report crimes to <strong>the</strong> police, <strong>in</strong>creases may reflect this ra<strong>the</strong>r than<br />
actual <strong>in</strong>creases <strong>in</strong> <strong>the</strong> <strong>in</strong>cidence of crime. If police numbers <strong>in</strong>crease, this is likely to result<br />
<strong>in</strong> more detecti<strong>on</strong> of crime and hence more recorded crime <strong>in</strong> many categories.<br />
5.20 An alternative approach to <strong>the</strong> measurement of <strong>the</strong> <strong>in</strong>cidence of crime is <strong>the</strong> use of<br />
victimisati<strong>on</strong> surveys, which ask whe<strong>the</strong>r a pers<strong>on</strong> has been a victim of crime whe<strong>the</strong>r or<br />
not it was reported. This approach is adopted by <strong>the</strong> Australian Bureau of Statistics:<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 39
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Table 1.1: Summary of trends <strong>in</strong> percentage rate of victimisati<strong>on</strong><br />
Type of Offence 1994 1995 1996 1997 1999*<br />
Year<br />
Assault 2.4 2.7 3.0 3.2 3.7<br />
Sexual assault 0.7 0.5 0.4 0.6 0.7<br />
Robbery n.a. n.a. n.a. n.a. 1.2<br />
Break and enter 4.5 5.3 4.6 5.6 5.6<br />
Motor vehicle <strong>the</strong>ft 2.1 2.1 2.0 2.0 2.2<br />
*data for 1998 is not available because of a change <strong>in</strong> questi<strong>on</strong> word<strong>in</strong>g for that year which made<br />
comparis<strong>on</strong>s with earlier years unreliable. 2000 Data not currently available.<br />
Source: ABS Crime and Safety NSW surveys.<br />
5.21 This table <strong>in</strong>dicates <strong>the</strong>re was no significant percentage <strong>in</strong>crease <strong>in</strong> victims of crime as <strong>in</strong><br />
<strong>the</strong> most comm<strong>on</strong> categories of offences dur<strong>in</strong>g <strong>the</strong> period <strong>in</strong> which <strong>the</strong> NSW pris<strong>on</strong><br />
populati<strong>on</strong> has significantly <strong>in</strong>creased. As with <strong>the</strong> figures regard<strong>in</strong>g reported crime, <strong>the</strong>y<br />
are not c<strong>on</strong>clusive that <strong>the</strong>re has not been an <strong>in</strong>crease <strong>in</strong> crime; but <strong>the</strong>y certa<strong>in</strong>ly do not<br />
show any evidence to directly l<strong>in</strong>k <strong>the</strong> rise <strong>in</strong> pris<strong>on</strong> numbers to a rise <strong>in</strong> crime.<br />
5.22 The complexity of <strong>the</strong> relati<strong>on</strong>ship between crime rates and <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong> was<br />
raised dur<strong>in</strong>g <strong>the</strong> Inquiry (see below <strong>in</strong> this chapter). From <strong>the</strong> evidence provided dur<strong>in</strong>g<br />
this <strong>in</strong>quiry, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes that, of all <strong>the</strong> possible factors, an <strong>in</strong>crease <strong>in</strong> crime is<br />
<strong>on</strong>e of <strong>the</strong> least likely causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Remand<br />
<strong>Increase</strong> <strong>in</strong> <strong>the</strong> number of <strong>in</strong>mates <strong>on</strong> remand<br />
5.23 A pers<strong>on</strong> is remanded <strong>in</strong> custody if he or she has been refused bail or can not meet bail<br />
c<strong>on</strong>diti<strong>on</strong>s. Bail is basically an agreement to attend court to answer a crim<strong>in</strong>al charge at a<br />
specified time, ra<strong>the</strong>r than enter<strong>in</strong>g <strong>in</strong>to custody <strong>in</strong> <strong>the</strong> <strong>in</strong>terim. As a general pr<strong>in</strong>ciple,<br />
<strong>the</strong>re is a presumpti<strong>on</strong> <strong>in</strong> favour of bail, based up<strong>on</strong> <strong>the</strong> presumpti<strong>on</strong> of <strong>in</strong>nocence.<br />
However, as <strong>in</strong>dicated below, that presumpti<strong>on</strong> has been removed <strong>in</strong> relati<strong>on</strong> to certa<strong>in</strong><br />
offences.<br />
5.24 There has been a significant <strong>in</strong>crease <strong>in</strong> <strong>the</strong> size of <strong>the</strong> unsentenced pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong><br />
recent years. As at 30 June 2001 <strong>the</strong> number of <strong>in</strong>mates <strong>on</strong> remand was 2,188. The Inmate<br />
Statistics July 1999 to June 2000 published by <strong>the</strong> Department of Corrective Services <strong>in</strong>dicate<br />
that <strong>the</strong> total number of unsentenced <strong>in</strong>mates has risen by 74.7% s<strong>in</strong>ce 1995. 76 Not <strong>on</strong>ly is<br />
<strong>the</strong> number of pers<strong>on</strong>s <strong>on</strong> remand <strong>in</strong>creas<strong>in</strong>g, but <strong>the</strong> proporti<strong>on</strong> of <strong>the</strong> whole pris<strong>on</strong><br />
populati<strong>on</strong> has also <strong>in</strong>creased from 18.7% to 28.6% <strong>in</strong> <strong>the</strong> same period. 77<br />
76 Inmate Statistics (Weekly States) July 1999 to June 2000 p5.<br />
77 Ibid p4<br />
40 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
5.25 The follow<strong>in</strong>g table shows <strong>the</strong> number of pris<strong>on</strong>ers present <strong>on</strong> <strong>the</strong> last Sunday of <strong>the</strong><br />
f<strong>in</strong>ancial year for <strong>the</strong> years 1995 – 2000, with those <strong>on</strong> remand highlighted. 78 , 79<br />
25/6/95 27/6/96 28/6/97 29/6/98 30/6/99 25/6/00<br />
Full-time custody 6407 6261 6374 6452 7240 7328<br />
Unsentenced 1201 1278 1272 1451 1862 2098<br />
Sentenced 5206 4983 5102 5001 5378 5230<br />
5.26 It can be seen <strong>the</strong>re is a significant <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>, both <strong>in</strong> absolute<br />
terms and as a proporti<strong>on</strong> of <strong>the</strong> total pris<strong>on</strong> populati<strong>on</strong>.<br />
5.27 The follow<strong>in</strong>g graph shows <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> male <strong>in</strong>mate remand populati<strong>on</strong> over <strong>the</strong><br />
years:<br />
(A similar upwards pattern is shown for female <strong>in</strong>mates).<br />
5.28 This clearly shows <strong>the</strong> <strong>in</strong>crease s<strong>in</strong>ce 1995, and especially from 1997, has been a major<br />
c<strong>on</strong>tributor to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> over that time. Evidence received by<br />
<strong>the</strong> committee from Mr Sim<strong>on</strong> Eyland, Department of Corrective Services, and from Ms<br />
Marilyn Chilvers, BOCSAR, shows that while <strong>the</strong>re was a growth of 12.7% over <strong>the</strong> past<br />
f<strong>in</strong>ancial year <strong>in</strong> <strong>the</strong> unsentenced populati<strong>on</strong>, <strong>the</strong> sentenced populati<strong>on</strong> decreased by 2.8%.<br />
The rise <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> as a proporti<strong>on</strong> of <strong>the</strong> total full time <strong>in</strong>mates has<br />
resulted <strong>in</strong> a corresp<strong>on</strong>d<strong>in</strong>g rise <strong>in</strong> <strong>the</strong> actual number of <strong>in</strong>mates <strong>in</strong> custody.<br />
78 NSW Department of Corrective Services, Inmate Statistics (Weekly States) July 1999 to June 2000 p 4<br />
79 The unsentenced populati<strong>on</strong> is comprised predom<strong>in</strong>antly of remandees but also <strong>in</strong>cludes appellants and<br />
deportees.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 41
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.29 It is clear that <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g remand populati<strong>on</strong> is a major immediate cause of <strong>the</strong> <strong>in</strong>crease<br />
<strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. What is less clear is what underly<strong>in</strong>g factors are caus<strong>in</strong>g <strong>the</strong><br />
<strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>.<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Bail refusal<br />
5.30 One factor c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> may be that more<br />
pris<strong>on</strong>ers are be<strong>in</strong>g refused bail. BOCSAR advises that <strong>the</strong>re was a statistically significant<br />
upward trend <strong>in</strong> <strong>the</strong> proporti<strong>on</strong> of pers<strong>on</strong>s for whom bail was refused <strong>in</strong> <strong>the</strong> lower courts<br />
and an even greater <strong>in</strong>crease <strong>in</strong> pers<strong>on</strong>s refused bail <strong>in</strong> <strong>the</strong> District Court. In evidence to<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, Marilyn Chilvers, NSW Bureau of Crime Statistics and Research advised<br />
that:<br />
In <strong>the</strong> Local courts <strong>the</strong>re was a significant upward trend <strong>in</strong> <strong>the</strong> proporti<strong>on</strong> of<br />
pers<strong>on</strong>s refused bail <strong>in</strong> cases f<strong>in</strong>alised <strong>in</strong> <strong>the</strong> local courts (over a five year period<br />
end<strong>in</strong>g <strong>in</strong> June 2000). That <strong>in</strong>creased from 4 per cent of pers<strong>on</strong>s <strong>in</strong> 1995-96 up to<br />
4.9 per cent of pers<strong>on</strong>s <strong>in</strong> 1999-2000, an average <strong>in</strong>crease of 23 per cent. In <strong>the</strong><br />
District Court <strong>the</strong>re was a significant upward trend <strong>in</strong> <strong>the</strong> proporti<strong>on</strong> of people<br />
who were refused bail <strong>in</strong> cases f<strong>in</strong>alised over five years, and it <strong>in</strong>creased from 26.4<br />
per cent of pers<strong>on</strong>s <strong>in</strong> 1995-96 up to 34.1 per cent, that is a 29 per cent <strong>in</strong>crease 80<br />
5.31 The follow<strong>in</strong>g table shows <strong>the</strong> number of pers<strong>on</strong>s refused bail <strong>in</strong> <strong>the</strong> Local and Higher<br />
Courts between 1994 and 1999:<br />
Trends <strong>in</strong> pers<strong>on</strong>s <strong>on</strong> remand at <strong>the</strong> time <strong>the</strong>ir Court case was f<strong>in</strong>alised and total<br />
f<strong>in</strong>alisati<strong>on</strong>s, NSW Local and Higher Courts, 1994 to 1999<br />
Local Court<br />
1994 1995 1996 1997 1998 1999<br />
bail refused 3,552 4,075 4,581 4,884 5,374 6,415<br />
bail refused (%) 3.56 3.97 4.14 4.37 4.61 4.87<br />
f<strong>in</strong>alisati<strong>on</strong>s (total) 99,663 102,617 110,773 111,686 116,598 131,833<br />
Higher Courts<br />
bail refused 1,195 1,066 1,075 1,063 1,330 1,358<br />
bail refused % 24.51 25.80 28.35 29.26 33.27 34.71<br />
bail not met 30 30 34 33 31 22<br />
bail not met % 0.64 0.73 0.90 0.91 0.78 0.56<br />
f<strong>in</strong>alisati<strong>on</strong>s (total) 4,876 4,131 3,792 3,699 3,998 3,912<br />
BOCSAR, 2000, <strong>Increase</strong>s <strong>in</strong> <strong>the</strong> NSW Remand Populati<strong>on</strong>, Crime and Justice Statistics, Issue no 9, p5<br />
5.32 Dur<strong>in</strong>g <strong>the</strong> Inquiry <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was advised that <strong>on</strong>e reas<strong>on</strong> for <strong>the</strong> high rate of bail<br />
refusal is <strong>the</strong> police practice of “over-charg<strong>in</strong>g”. The Senior Public Defender referred to<br />
this practice <strong>in</strong> his submissi<strong>on</strong> stat<strong>in</strong>g that:<br />
<strong>the</strong> practice of lay<strong>in</strong>g <strong>the</strong> most serious charge which may possibly apply to any<br />
given fact or situati<strong>on</strong> has become normal police procedure…The populati<strong>on</strong> of<br />
80 Chilvers Evidence 12 March, 2001.<br />
42 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
remand pris<strong>on</strong>ers is particularly subject to <strong>the</strong> <strong>in</strong>fluence of a police tendency to<br />
overcharge. 81<br />
5.33 Mr Doug Humphreys, Director, Crim<strong>in</strong>al Law, Legal Aid Commissi<strong>on</strong> of New South<br />
Wales advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
…police will always select <strong>the</strong> most serious charge to proceed with, and <strong>the</strong>y will<br />
<strong>the</strong>n charge a number of lesser alternatives so that <strong>the</strong>re is at least <strong>on</strong>e charge that<br />
<strong>the</strong> pers<strong>on</strong> ultimately pleads guilty <strong>on</strong>. 82<br />
5.34 Mr Humphreys advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that “over-charg<strong>in</strong>g” can have an impact <strong>on</strong> <strong>the</strong><br />
likelihood of an offender be<strong>in</strong>g granted bail if <strong>the</strong> pers<strong>on</strong> is charged with an offence where<br />
<strong>the</strong>re is no presumpti<strong>on</strong> <strong>in</strong> favour of bail:<br />
If <strong>the</strong> pers<strong>on</strong> is charged with armed robbery <strong>the</strong>re is no presumpti<strong>on</strong> <strong>in</strong> favour of<br />
bail. If <strong>the</strong> pers<strong>on</strong> is charged with ‘steal from <strong>the</strong> pers<strong>on</strong>’ <strong>the</strong>re is ei<strong>the</strong>r a<br />
presumpti<strong>on</strong> <strong>in</strong> favour of bail or <strong>the</strong>re is no presumpti<strong>on</strong> <strong>on</strong>e way or <strong>the</strong> o<strong>the</strong>r,<br />
and that can be <strong>the</strong> difference ..it significantly alters <strong>the</strong> situati<strong>on</strong>. 83<br />
5.35 A fur<strong>the</strong>r possible cause of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> bail refusals may be found <strong>in</strong> <strong>the</strong> <strong>in</strong>dividual<br />
decisi<strong>on</strong>s made by magistrates and judges. However a recent report by <strong>the</strong> Australian<br />
Institute of Crim<strong>in</strong>ology Factors Affect<strong>in</strong>g Remand <strong>in</strong> Custody, challenges <strong>the</strong> view that bail<br />
refusal is a result of decisi<strong>on</strong>s by magistrates.<br />
Whilst <strong>the</strong> end po<strong>in</strong>t of <strong>the</strong> judicial process <strong>in</strong>volves <strong>the</strong> judicial officer as <strong>the</strong><br />
ultimate decisi<strong>on</strong>-maker, <strong>the</strong> literature suggests that his or her role <strong>in</strong> <strong>the</strong> process<br />
as a whole is largely supervisory and <strong>on</strong>ly an active actor <strong>in</strong> a small proporti<strong>on</strong> of<br />
<strong>the</strong> reman <strong>in</strong> custody decisi<strong>on</strong>s. 84<br />
5.36 The AIC report states that evidence for this is found <strong>in</strong> <strong>the</strong> empirical studies <strong>in</strong> three major<br />
ways:<br />
• The small number of c<strong>on</strong>tested decisi<strong>on</strong>s <strong>in</strong> <strong>the</strong> judicial process - <strong>in</strong> particular,<br />
AIC cites research which reveals that for approximately 25 per cent of those<br />
remanded <strong>in</strong> custody, impris<strong>on</strong>ment had occurred “without any discussi<strong>on</strong><br />
about bail hav<strong>in</strong>g taken place <strong>in</strong> court”;<br />
• The brevity of <strong>the</strong> judicial bail applicati<strong>on</strong> process – <strong>the</strong> implicati<strong>on</strong> of which<br />
is that <strong>the</strong> bail decisi<strong>on</strong> is not based <strong>on</strong> what happens <strong>in</strong> court, but what has<br />
happened prior to <strong>the</strong> hear<strong>in</strong>g;<br />
81 Mr John Nichols<strong>on</strong> SC, Submissi<strong>on</strong> 90 (supplementary) p 1.<br />
82 Humphreys Evidence, 19 October, 2001.<br />
83 Humphreys Evidence 19 October, 2001<br />
84 AIC Factors Affect<strong>in</strong>g Remand <strong>in</strong> Custody October 2000, p13. The AIC report refers to research from <strong>the</strong> UK<br />
which c<strong>on</strong>cluded that “<strong>in</strong> reality, <strong>the</strong> decisi<strong>on</strong> mak<strong>in</strong>g process is largely an adm<strong>in</strong>istrative process c<strong>on</strong>ducted<br />
<strong>in</strong> private by participants o<strong>the</strong>r than <strong>the</strong> magistracy accord<strong>in</strong>g to discreti<strong>on</strong>ary and hidden rules. This process<br />
is generally characterised by unc<strong>on</strong>tested remand hear<strong>in</strong>gs where <strong>the</strong> effective decisi<strong>on</strong>s are made out of<br />
court, by professi<strong>on</strong>al participants, prior to <strong>the</strong> court hear<strong>in</strong>g. The magistrates’ role is limited simply to<br />
“rubber stamp<strong>in</strong>g” <strong>the</strong>ir recommendati<strong>on</strong>s <strong>in</strong> <strong>the</strong> majority of cases”.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 43
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
• The high degree of probability that judicial decisi<strong>on</strong>s merely c<strong>on</strong>firm decisi<strong>on</strong>s<br />
already made about remand <strong>in</strong> custody - <strong>in</strong> particular, research dem<strong>on</strong>strates a<br />
c<strong>on</strong>sistency between judicial decisi<strong>on</strong>s <strong>on</strong> bail and <strong>the</strong> decisi<strong>on</strong> of police with<br />
respect to police bail and also, if <strong>the</strong> prosecutor and defence counsel agree,<br />
<strong>the</strong>n it requires excepti<strong>on</strong>al reas<strong>on</strong>s for <strong>the</strong> magistrate to challenge that<br />
positi<strong>on</strong>s. 85<br />
5.37 In <strong>Increase</strong>s <strong>in</strong> <strong>the</strong> NSW Remand Populati<strong>on</strong>, BOCSAR c<strong>on</strong>cludes that, <strong>the</strong>re are several factors<br />
c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of pers<strong>on</strong>s refused bail:<br />
Firstly, <strong>the</strong> overall number of pers<strong>on</strong>s appear<strong>in</strong>g <strong>in</strong> <strong>the</strong> Local Court has <strong>in</strong>creased.<br />
Sec<strong>on</strong>dly, <strong>the</strong>re has been an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of pers<strong>on</strong>s appear<strong>in</strong>g for some<br />
offences with a high rate of bail refusal. Thirdly, <strong>the</strong>re are <strong>in</strong>dicati<strong>on</strong>s that police<br />
and magistrates are becom<strong>in</strong>g less will<strong>in</strong>g to grant bail. F<strong>in</strong>ally, court delay has<br />
<strong>in</strong>creased <strong>in</strong> <strong>the</strong> Higher Courts. 86<br />
5.38 Accord<strong>in</strong>g to <strong>the</strong> statistics given to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, nearly 71 per cent of <strong>in</strong>mates who are<br />
remanded <strong>in</strong> custody for periods of less than 30 days are discharged without receiv<strong>in</strong>g a<br />
custodial sentence. This appears to be a very high number of people be<strong>in</strong>g deta<strong>in</strong>ed <strong>in</strong><br />
custody without bail, unnecessarily, s<strong>in</strong>ce <strong>the</strong>re should be a high correlati<strong>on</strong> of be<strong>in</strong>g held<br />
without bail and <strong>the</strong> likelihood of receiv<strong>in</strong>g a custodial sentence. This appears to provide<br />
more evidence that research <strong>in</strong>to bail is warranted.<br />
Number of <strong>in</strong>mates held <strong>on</strong> Remand <strong>in</strong> Custody and discharged with a custodial<br />
sentence <strong>in</strong> 1998-99<br />
Females<br />
Number held <strong>in</strong> custody<br />
<strong>on</strong> Remand for less than<br />
30 days<br />
Females<br />
Discharged without a<br />
custodial sentence after<br />
less than 30 days <strong>in</strong><br />
custody<br />
Males<br />
Number held <strong>in</strong> custody<br />
<strong>on</strong> Remand for less than<br />
30 days<br />
Males<br />
Discharged without a<br />
custodial sentence after<br />
less than 30 days <strong>in</strong><br />
custody<br />
829 614 (75%) 5810 4097 (70.5%)<br />
Department of Corrective Service, Submissi<strong>on</strong> No 63, p11-12<br />
5.39 There may be additi<strong>on</strong>al factors <strong>in</strong>fluenc<strong>in</strong>g <strong>the</strong> <strong>in</strong>crease <strong>in</strong> bail refusal. For example,<br />
BOCSAR has identified a significant downward trend <strong>in</strong> <strong>the</strong> proporti<strong>on</strong> of pers<strong>on</strong>s hav<strong>in</strong>g<br />
legal representati<strong>on</strong>. 87 It may be that this is hav<strong>in</strong>g an <strong>in</strong>fluence <strong>on</strong> <strong>the</strong> outcome of<br />
decisi<strong>on</strong>s about bail.<br />
5.40 There has clearly been a significant <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>, attributable at least<br />
<strong>in</strong> part to <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g rate of bail refusal. What is not clear, at this stage, is <strong>the</strong> exact<br />
reas<strong>on</strong>s beh<strong>in</strong>d <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g rate of bail refusal. In view of <strong>the</strong> significant c<strong>on</strong>tributi<strong>on</strong> of<br />
<strong>the</strong> remand populati<strong>on</strong> to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>, and <strong>the</strong> c<strong>on</strong>sequent<br />
<strong>in</strong>creased cost to <strong>the</strong> pris<strong>on</strong> system, <strong>the</strong>re would be obvious benefit <strong>in</strong> this issue be<strong>in</strong>g <strong>the</strong><br />
subject of specific and detailed study.<br />
85 Ibid pp 13-14.<br />
86 BOCSAR, 2000, <strong>Increase</strong>s <strong>in</strong> <strong>the</strong> NSW Remand Populati<strong>on</strong>, Crime and Justice Statistics, Issue no 9, p6<br />
87 NSW Bureau of Crime Statistics and Research, Key Trends <strong>in</strong> Crime and justice – NSW – 1999, p 33.<br />
44 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Recommendati<strong>on</strong> 2<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research<br />
<strong>in</strong>vestigate and report <strong>on</strong> <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> rate of bail refusal and its<br />
c<strong>on</strong>sequent impact up<strong>on</strong> <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> <strong>in</strong> <strong>the</strong> NSW pris<strong>on</strong><br />
system.<br />
5.41 The cost of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> pers<strong>on</strong>s refused bail is very significant. Pers<strong>on</strong>s held <strong>in</strong> custody<br />
<strong>on</strong> remand are c<strong>on</strong>ta<strong>in</strong>ed under maximum security which is <strong>the</strong> most expensive form of<br />
custody at $64,485 per annum (see Chapter Six). Any improvement result<strong>in</strong>g <strong>in</strong> <strong>the</strong><br />
identificati<strong>on</strong> of causes of unnecessary bail refusal would lead to significant sav<strong>in</strong>gs <strong>in</strong><br />
government expenditure.<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Changes to Bail Act<br />
5.42 A number of witnesses and submissi<strong>on</strong>s argued that changes to <strong>the</strong> Bail Act 1978 were<br />
resp<strong>on</strong>sible for <strong>the</strong> <strong>in</strong>creased rate of people held <strong>on</strong> remand. For example, Mr Doug<br />
Humphreys, Director, Crim<strong>in</strong>al Law Divisi<strong>on</strong>, Legal Aid Commissi<strong>on</strong>, stated:<br />
I believe that <strong>the</strong>re have been a number of changes, particularly to <strong>the</strong> Bail Act,<br />
over a period, which has meant that people who were o<strong>the</strong>rwise entitled to bail<br />
now do not get it. For example, <strong>the</strong>re is now a presumpti<strong>on</strong>, as I understand it,<br />
aga<strong>in</strong>st bail <strong>in</strong> relati<strong>on</strong> to a murder charge. That was brought <strong>in</strong> by Parliament<br />
some years ago…Some of those people are found not guilty of offences. Some of<br />
those people are found guilty of a lesser offence than murder. If it is a<br />
manslaughter charge it can result <strong>in</strong> circumstances <strong>in</strong> which that pers<strong>on</strong> will<br />
receive a n<strong>on</strong>-custodial sentence. That is <strong>on</strong>e example at <strong>the</strong> extreme end of where<br />
<strong>the</strong>re has been a change to <strong>the</strong> Bail Act. 88<br />
5.43 Mr John North, <strong>the</strong>n President of <strong>the</strong> NSW Law Society addressed this issue:<br />
…<strong>the</strong> reas<strong>on</strong> that <strong>the</strong> Law Society is quite upset about changes to <strong>the</strong> Bail Act that<br />
have been made over <strong>the</strong> years is that be<strong>in</strong>g <strong>on</strong> remand with bail refused is <strong>on</strong>e of<br />
<strong>the</strong> worst possible features of a civilised society. A pers<strong>on</strong> should <strong>on</strong>ly be refused<br />
bail if <strong>the</strong> pers<strong>on</strong> is unlikely to turn up for court or is likely to be a danger to <strong>the</strong><br />
community and commit fur<strong>the</strong>r crimes. S<strong>in</strong>ce <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> of <strong>the</strong> changes to<br />
<strong>the</strong> Bail Act to <strong>in</strong>crease <strong>the</strong> number of matters for which <strong>the</strong> presumpti<strong>on</strong> <strong>in</strong><br />
favour of bail is no l<strong>on</strong>ger open, some 20 per cent of <strong>the</strong> full-time gaol populati<strong>on</strong><br />
<strong>in</strong> custody is <strong>on</strong> remand. In a civilised society, that is a terrible th<strong>in</strong>g, because<br />
many of those people eventually will not be c<strong>on</strong>victed. There is no recourse for<br />
<strong>the</strong>m usually, unless <strong>the</strong> prosecuti<strong>on</strong> was frivolous or vexatious.<br />
Those people <strong>on</strong> remand can spend up to 18 m<strong>on</strong>ths or more await<strong>in</strong>g a trial. The<br />
Law Society feels that <strong>the</strong> discreti<strong>on</strong> must be given back to <strong>the</strong> courts to enable<br />
<strong>the</strong>m to decide <strong>in</strong> each <strong>in</strong>dividual case whe<strong>the</strong>r those matters that determ<strong>in</strong>e bail<br />
are <strong>in</strong>deed met: namely, is <strong>the</strong> pers<strong>on</strong> go<strong>in</strong>g to turn up for trial? Is <strong>the</strong> pers<strong>on</strong><br />
go<strong>in</strong>g to run away overseas or disappear <strong>in</strong>terstate? Or, if let out, will <strong>the</strong> pers<strong>on</strong><br />
commit more crimes? We have an <strong>in</strong>creas<strong>in</strong>gly proscriptive Bail Act <strong>in</strong> respect of<br />
88 Humphrey’s Evidence 19 October 2000, p 50.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 45
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
certa<strong>in</strong> crimes, such as drug and customs offences. Sometimes those offences are<br />
difficult for <strong>the</strong> courts to prove, and people who should not be <strong>in</strong> gaol spend a<br />
l<strong>on</strong>g time <strong>in</strong> gaol. 89<br />
5.44 In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> John Carty Pr<strong>in</strong>cipal Solicitor, Wiradjuri Aborig<strong>in</strong>al Legal<br />
Service, Wagga Wagga stated:<br />
Ano<strong>the</strong>r factor is <strong>the</strong> tendency to be overcautious with bail determ<strong>in</strong>ati<strong>on</strong>s. A lot<br />
of people have been refused bail <strong>in</strong>itially and <strong>the</strong>y are eventually gett<strong>in</strong>g bail <strong>in</strong> <strong>the</strong><br />
Supreme Court, often after spend<strong>in</strong>g many m<strong>on</strong>ths <strong>on</strong> remand. The reas<strong>on</strong> given<br />
for refus<strong>in</strong>g bail is <strong>the</strong> offence, <strong>on</strong> <strong>the</strong> face of it, is serious and, if c<strong>on</strong>victed, <strong>the</strong><br />
defendant would be likely to receive a custodial sentence. That is often <strong>the</strong> <strong>on</strong>ly<br />
justificati<strong>on</strong> given for <strong>the</strong> refusal of bail … Many of our clients who might have a<br />
bad record and <strong>the</strong>y are charged with offences where <strong>the</strong>re is no presumpti<strong>on</strong><br />
aga<strong>in</strong>st bail, <strong>the</strong>y are not <strong>on</strong> bail for anyth<strong>in</strong>g else and <strong>the</strong> bail refusal is justified<br />
simply by <strong>the</strong> comment, "You are likely to be sentenced to a custodial sentence if<br />
c<strong>on</strong>victed, <strong>the</strong>refore we are go<strong>in</strong>g to refuse bail"...The most important issue with<br />
bail is not what <strong>the</strong> eventual sentence will be but, number <strong>on</strong>e, whe<strong>the</strong>r <strong>the</strong>y are<br />
likely to turn up at court and, number two, whe<strong>the</strong>r <strong>the</strong>re is an unacceptable risk<br />
that <strong>the</strong>y are go<strong>in</strong>g to commit fur<strong>the</strong>r offences. 90<br />
5.45 Legislative change may have c<strong>on</strong>tributed to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>. Under<br />
<strong>the</strong> Bail Act 1978 <strong>the</strong>re is a presumpti<strong>on</strong> <strong>in</strong> favour of bail <strong>in</strong> certa<strong>in</strong> circumstances,<br />
particularly for those offences which are not punishable by a sentence of impris<strong>on</strong>ment.<br />
The Act also sets out <strong>the</strong> circumstances under which <strong>the</strong>re is a presumpti<strong>on</strong> aga<strong>in</strong>st bail.<br />
On 12 December 1998 <strong>the</strong> Bail Amendment Act 1998 commenced. This Act <strong>in</strong>creased <strong>the</strong><br />
number of offences for which <strong>the</strong>re is no presumpti<strong>on</strong> of bail. Secti<strong>on</strong> 9 of <strong>the</strong> Bail Act<br />
1978 sets out <strong>the</strong> offences for which <strong>the</strong>re is an excepti<strong>on</strong> to <strong>the</strong> presumpti<strong>on</strong> <strong>in</strong> favour of<br />
bail for certa<strong>in</strong> offences under <strong>the</strong> Crimes Act 1900. These offences <strong>in</strong>clude: c<strong>on</strong>spiracy to<br />
murder; attempted murder; and send<strong>in</strong>g a document threaten<strong>in</strong>g to kill or <strong>in</strong>flict bodily<br />
harm or death; certa<strong>in</strong> offences under <strong>the</strong> Drug Misuse and Traffick<strong>in</strong>g Act 1985; certa<strong>in</strong><br />
domestic violence offences; and offences of c<strong>on</strong>traven<strong>in</strong>g apprehended domestic violence<br />
orders.<br />
5.46 In view of <strong>the</strong> significance of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> <strong>in</strong> terms of <strong>the</strong><br />
<strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> as a whole, <strong>the</strong>re would be benefit <strong>in</strong> <strong>the</strong> effect of <strong>the</strong> new<br />
secti<strong>on</strong> 9 of <strong>the</strong> Bail Act be<strong>in</strong>g reviewed.<br />
Recommendati<strong>on</strong> 3<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research<br />
specifically review <strong>the</strong> impact of <strong>the</strong> excepti<strong>on</strong>s to <strong>the</strong> presumpti<strong>on</strong> <strong>in</strong> favour of bail<br />
now provided for <strong>in</strong> secti<strong>on</strong> 9 of <strong>the</strong> Bail Act.<br />
89 North Evidence, 20 October, 2000.<br />
90 Carty Evidence 24 October, 2000, pp 6, 14.<br />
46 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Pers<strong>on</strong>s unable to<br />
meet bail c<strong>on</strong>diti<strong>on</strong>s<br />
5.47 If more people are unable to meet bail c<strong>on</strong>diti<strong>on</strong>s this will lead to <strong>in</strong>creases <strong>in</strong> <strong>the</strong> remand<br />
populati<strong>on</strong>. Evidence was received that many people are unable to meet bail c<strong>on</strong>diti<strong>on</strong>s<br />
imposed by <strong>the</strong> court. Representatives of <strong>the</strong> Aborig<strong>in</strong>al and Torres Strait Islander<br />
Commissi<strong>on</strong>, <strong>in</strong>digenous community members <strong>in</strong> Wagga Wagga (Wiradjuri country), Mr<br />
John Carty of <strong>the</strong> Wiradjuri Aborig<strong>in</strong>al Legal Service and representatives from <strong>the</strong> Sydney<br />
Regi<strong>on</strong>al Aborig<strong>in</strong>al Corporati<strong>on</strong> Legal Services all referred to impediments to <strong>the</strong>ir clients<br />
obta<strong>in</strong><strong>in</strong>g bail <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> need to obta<strong>in</strong> appropriate accommodati<strong>on</strong>; and <strong>the</strong> <strong>in</strong>ability<br />
for some to satisfy bail c<strong>on</strong>diti<strong>on</strong>s, particularly where f<strong>in</strong>ancial c<strong>on</strong>diti<strong>on</strong>s are imposed.<br />
5.48 Mr Douglas Humphreys, Director, Crim<strong>in</strong>al Law, Legal Aid Commissi<strong>on</strong> of New South<br />
Wales, advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
Many people we see are simply unable to meet <strong>the</strong> bail c<strong>on</strong>diti<strong>on</strong>s imposed up<strong>on</strong><br />
<strong>the</strong>m. In <strong>the</strong> submissi<strong>on</strong> I have talked about <strong>the</strong> impositi<strong>on</strong> of a cash penalty and<br />
<strong>the</strong> impositi<strong>on</strong> of an acceptable pers<strong>on</strong> to show that he or she can deposit cash.<br />
Many magistrates will sometimes impose c<strong>on</strong>diti<strong>on</strong>s whereby, although bail is<br />
granted, people are simply unable to meet that bail because of <strong>the</strong>ir circumstances.<br />
If we look at Aborig<strong>in</strong>al people and some o<strong>the</strong>r people of low socioec<strong>on</strong>omic<br />
circumstances, to impose even a $500 cash deposit is simply bey<strong>on</strong>d <strong>the</strong>ir means. I<br />
th<strong>in</strong>k that is someth<strong>in</strong>g we need to look at. There is also a shortage of<br />
accommodati<strong>on</strong>. If accommodati<strong>on</strong> becomes a questi<strong>on</strong> as to where are <strong>the</strong>y<br />
go<strong>in</strong>g to stay and what are <strong>the</strong>y go<strong>in</strong>g to do, unless you can put forward some<br />
positive alternative <strong>the</strong>n you are simply unable to c<strong>on</strong>v<strong>in</strong>ce a magistrate to grant<br />
bail. 92<br />
5.49 Research by <strong>the</strong> NSW Bureau of Crime Statistics and Research states that it is changes <strong>in</strong><br />
will<strong>in</strong>gness to grant bail, ra<strong>the</strong>r than changes <strong>in</strong> ability to meet it, that account for <strong>the</strong><br />
<strong>in</strong>crease <strong>in</strong> bail refusals <strong>in</strong> <strong>the</strong> higher courts:<br />
Local Court data does not permit any dist<strong>in</strong>cti<strong>on</strong> between defendants unable to<br />
meet <strong>the</strong>ir bail c<strong>on</strong>diti<strong>on</strong>s and defendants refused bail. Records from <strong>the</strong> Higher<br />
Courts allow <strong>the</strong> separate identificati<strong>on</strong> of such pers<strong>on</strong>s. The number and<br />
proporti<strong>on</strong> of pers<strong>on</strong>s <strong>on</strong> remand at <strong>the</strong> time of f<strong>in</strong>alisati<strong>on</strong> because <strong>the</strong>y have not<br />
been able to meet <strong>the</strong>ir bail c<strong>on</strong>diti<strong>on</strong>s is small and has rema<strong>in</strong>ed steady s<strong>in</strong>ce<br />
1994. There were 31 such pers<strong>on</strong>s out of <strong>the</strong> total of 4871 pers<strong>on</strong>s appear<strong>in</strong>g <strong>in</strong><br />
1994 and 22 out of 3912 appearances <strong>in</strong> 1999. 93<br />
5.50 Chapter Seven will discuss alternatives to impris<strong>on</strong>ment, <strong>in</strong>clud<strong>in</strong>g various programs<br />
underway which have <strong>the</strong> effect of divert<strong>in</strong>g people who would o<strong>the</strong>rwise f<strong>in</strong>d <strong>the</strong>mselves<br />
<strong>on</strong> remand: for example <strong>the</strong> psychiatric assessment service. It may be that <strong>the</strong>re is a<br />
potential role for <strong>the</strong> Department of Corrective Services (or ano<strong>the</strong>r relevant agency) to<br />
92 Humphrey’s Evidence 19 October 2000.<br />
93 BOCSAR, 2000, <strong>Increase</strong>s <strong>in</strong> <strong>the</strong> NSW Remand Populati<strong>on</strong>, Crime and Justice Statistics, Issue paper no 9, p 5.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 47
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
provide an assessment and advocacy service at <strong>the</strong> po<strong>in</strong>t at which decisi<strong>on</strong>s are made about<br />
bail.<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: Length of time <strong>on</strong><br />
remand<br />
5.51 L<strong>on</strong>ger pris<strong>on</strong> stays are <strong>on</strong>e factor which will have an impact <strong>on</strong> <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong>.<br />
This is <strong>the</strong> case for both <strong>the</strong> unsentenced and sentenced populati<strong>on</strong>.<br />
5.52 Mr Sim<strong>on</strong> Eyland, Department of Corrective Services, Research and Statistics Unit advised<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that:<br />
• 65 per cent of male remandees spend less than 30 days <strong>in</strong> custody; and<br />
• 72 per cent of female remandees spend less than 30 days <strong>in</strong> custody. 94<br />
5.53 The follow<strong>in</strong>g table sets out <strong>the</strong> length of time spent <strong>on</strong> remand for <strong>in</strong>mates received <strong>in</strong><br />
NSW correcti<strong>on</strong>al centres <strong>in</strong> 2000: 95<br />
0-1 day 2-7 days 8-30 days 31+ days<br />
Male 1180 2209 2377 3109<br />
Female 211 379 325 353<br />
Source: Department of Corrective Services Research and Statistics Unit<br />
5.54 The length of time spent <strong>on</strong> remand will be heavily <strong>in</strong>fluenced by factors such as court<br />
process<strong>in</strong>g times, which are c<strong>on</strong>sidered <strong>in</strong> <strong>the</strong> secti<strong>on</strong> below.<br />
Factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>: C<strong>on</strong>clusi<strong>on</strong><br />
5.55 The <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> is a very significant cause of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>. What is less clear is <strong>the</strong> causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand<br />
populati<strong>on</strong>, although factors such as <strong>in</strong>creased bail refusals, changes to <strong>the</strong> Bail Act, <strong>in</strong>ability<br />
to meet bail c<strong>on</strong>diti<strong>on</strong>s and <strong>in</strong>creased length of periods <strong>on</strong> remand are all likely<br />
c<strong>on</strong>tributors. A research project <strong>in</strong>vestigat<strong>in</strong>g <strong>the</strong>se issues, as recommended above, is<br />
c<strong>on</strong>sidered by <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to be a high priority.<br />
Process<strong>in</strong>g of cases by <strong>the</strong> courts<br />
5.56 The way <strong>in</strong> which courts process cases can have a significant impact <strong>on</strong> <strong>in</strong>creas<strong>in</strong>g <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>. This can be through:<br />
• <strong>Increase</strong>d c<strong>on</strong>victi<strong>on</strong> rates;<br />
94 Eyland Evidence 12 March 2001.<br />
95 Eyland, Tabled document Evidence 12 March, 2001.<br />
48 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
• <strong>Increase</strong>d use of pris<strong>on</strong> sentences over alternatives;<br />
• L<strong>on</strong>ger pris<strong>on</strong> sentences, <strong>in</strong>clud<strong>in</strong>g use of guidel<strong>in</strong>e judgements;<br />
• <strong>Increase</strong>d revocati<strong>on</strong> of orders for periodic detenti<strong>on</strong>, home detenti<strong>on</strong> and<br />
parole orders; and<br />
• Delays <strong>in</strong> process<strong>in</strong>g cases lead<strong>in</strong>g to <strong>in</strong>creased time spent <strong>on</strong> remand.<br />
<strong>Increase</strong>d C<strong>on</strong>victi<strong>on</strong> Rates<br />
5.57 As previously stated, <strong>the</strong>re has been an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of cases processed by courts<br />
and an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> c<strong>on</strong>victi<strong>on</strong> rates <strong>in</strong> <strong>the</strong> courts. The NSW Bureau of Crime Statistics<br />
and Research provided <strong>the</strong> follow<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>cern<strong>in</strong>g cases<br />
processed by <strong>the</strong> Courts:<br />
• In <strong>the</strong> Local Courts <strong>the</strong>re was an overall annual <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of cases<br />
processed by <strong>the</strong> Courts (f<strong>in</strong>alisati<strong>on</strong>s) of 22% between 1995/96 and 1999/2000.<br />
• In <strong>the</strong> District Court <strong>the</strong>re was no significant quarterly trend <strong>in</strong> <strong>the</strong> number of<br />
pers<strong>on</strong>s whose cases were f<strong>in</strong>alised and a small decrease of 6% over <strong>the</strong> five years<br />
to June 2000.<br />
• In <strong>the</strong> Local Court <strong>the</strong>re was a slight <strong>in</strong>crease <strong>in</strong> <strong>the</strong> overall c<strong>on</strong>victi<strong>on</strong> rate with<br />
<strong>the</strong> <strong>in</strong>crease mostly for males. In <strong>the</strong> Higher Court <strong>the</strong> <strong>in</strong>crease was higher for<br />
females than for males.<br />
5.58 The follow<strong>in</strong>g table provided by BOCSAR sets out <strong>the</strong> c<strong>on</strong>victi<strong>on</strong> rate <strong>in</strong> <strong>the</strong> NSW Local<br />
and Higher Courts:<br />
C<strong>on</strong>victi<strong>on</strong> rate – NSW Local Courts<br />
Year % Males % Females % Total<br />
1998 86.0 88.0 86.3<br />
1999 88.0 88.8 88.1<br />
C<strong>on</strong>victi<strong>on</strong> rate – NSW Higher Courts<br />
Year % Males % Females % Total<br />
1998 68.8 69.4 68.9<br />
1999 71.9 75.6 72.2<br />
5.59 BOCSAR provided <strong>the</strong> follow<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> c<strong>on</strong>victed pers<strong>on</strong>s<br />
impris<strong>on</strong>ed by <strong>the</strong> Courts:<br />
• In <strong>the</strong> Local Court, <strong>the</strong>re was no significant upward or downward trend <strong>in</strong> <strong>the</strong><br />
percentage of c<strong>on</strong>victed pers<strong>on</strong>s impris<strong>on</strong>ed from <strong>the</strong> Local Courts. However <strong>the</strong><br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 49
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
percentage of c<strong>on</strong>victed males impris<strong>on</strong>ed fell by 6% between 1998/99 and<br />
1999/2000.<br />
• In <strong>the</strong> District <strong>the</strong>re was a significant upward trend <strong>in</strong> <strong>the</strong> percentage of<br />
c<strong>on</strong>victed pers<strong>on</strong>s impris<strong>on</strong>ed from <strong>the</strong> District court for both males and females<br />
over <strong>the</strong> five years to June 2000 but no significant trend <strong>in</strong> <strong>the</strong> two years to June<br />
2000.<br />
• In <strong>the</strong> Supreme Court <strong>the</strong>re was no significant trend ei<strong>the</strong>r s<strong>in</strong>ce 1995 or <strong>the</strong> last<br />
2 years.<br />
5.60 <strong>Increase</strong>d c<strong>on</strong>victi<strong>on</strong> rates do not provide a clear explanati<strong>on</strong> for <strong>the</strong> <strong>in</strong>crease of <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong>: if <strong>the</strong>re is any significant <strong>in</strong>fluence it would appear to come from factors such<br />
as <strong>the</strong> <strong>in</strong>crease <strong>in</strong> numbers of people be<strong>in</strong>g processed by <strong>the</strong> courts and decisi<strong>on</strong>s such as<br />
those <strong>on</strong> bail.<br />
Court Delays and <strong>in</strong>fluence <strong>on</strong> Remand populati<strong>on</strong><br />
5.61 Delay is a factor <strong>in</strong> <strong>the</strong> higher courts, accord<strong>in</strong>g to <strong>the</strong> NSW Bureau of Crime Statistics and<br />
Research. As at 30 June 1999, <strong>the</strong> median delay from committal to outcome for matters<br />
f<strong>in</strong>alised <strong>in</strong> <strong>the</strong> District Court was approximately 400 days, and for matters f<strong>in</strong>alised <strong>in</strong> <strong>the</strong><br />
Supreme Court it was just under 600 days. This delay will no doubt effect <strong>the</strong> number of<br />
<strong>in</strong>mates <strong>on</strong> remand.<br />
5.62 However, <strong>the</strong> impact up<strong>on</strong> <strong>the</strong> pris<strong>on</strong> numbers overall should not be overstated, as a high<br />
proporti<strong>on</strong> of pers<strong>on</strong>s whose matters are f<strong>in</strong>alised <strong>in</strong> <strong>the</strong> higher courts are c<strong>on</strong>victed and<br />
<strong>the</strong>ir custodial sentence <strong>in</strong>cludes <strong>the</strong> time spent <strong>on</strong> remand. The impact of this would be to<br />
<strong>in</strong>crease <strong>the</strong> remand populati<strong>on</strong> <strong>in</strong> proporti<strong>on</strong> to <strong>the</strong> sentenced populati<strong>on</strong>, and it would<br />
also have an effect up<strong>on</strong> <strong>the</strong> progress which an <strong>in</strong>mate makes through <strong>the</strong> classificati<strong>on</strong><br />
system.<br />
Severity of court decisi<strong>on</strong>s<br />
5.63 L<strong>on</strong>ger sentences will clearly add to <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> even if c<strong>on</strong>victi<strong>on</strong><br />
rates are stable. In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> Sim<strong>on</strong> Eyland of <strong>the</strong> Research and Statistics<br />
Unit of <strong>the</strong> Department of Corrective Services stated that, while <strong>the</strong>re was a decrease <strong>in</strong> <strong>the</strong><br />
sentenced populati<strong>on</strong> <strong>in</strong> 1999-2000 f<strong>in</strong>ancial year by 2.8 per cent, those that are sentenced<br />
to a term of impris<strong>on</strong>ment are be<strong>in</strong>g given l<strong>on</strong>ger sentences. 96<br />
5.64 The NSW Bureau of Crime Statistics and Research provided to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>the</strong><br />
follow<strong>in</strong>g <strong>in</strong>formati<strong>on</strong>:<br />
• In <strong>the</strong> Local Court, for both males and females <strong>the</strong>re was a significant upward<br />
trend <strong>in</strong> <strong>the</strong> average m<strong>in</strong>imum/fixed term of impris<strong>on</strong>ment for pers<strong>on</strong>s<br />
sentenced to impris<strong>on</strong>ment by <strong>the</strong> Local Courts over <strong>the</strong> five years to June 2000.<br />
However, over <strong>the</strong> two years to June 2000, <strong>the</strong>re was no significant trend.<br />
96 Eyland, Evidence 12 March, 2001.<br />
50 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
• In <strong>the</strong> District Court, for both males and females, <strong>the</strong>re was no significant trend<br />
<strong>in</strong> <strong>the</strong> average m<strong>in</strong>imum/fixed term of impris<strong>on</strong>ment for pers<strong>on</strong>s sentenced to<br />
impris<strong>on</strong>ment <strong>in</strong> <strong>the</strong> five years to June 2000. However, <strong>in</strong> <strong>the</strong> two years to June<br />
2000 <strong>the</strong>re was a significant downward trend for males(though not for females).<br />
• In <strong>the</strong> Supreme Court, <strong>the</strong>re was no significant trend over ei<strong>the</strong>r 5 years or 2<br />
years.<br />
5.65 The follow<strong>in</strong>g chart shows <strong>the</strong> aggregate sentences length be<strong>in</strong>g served as at 30 June 2000.<br />
Inmate Census 2000<br />
Life/Forensic Patient<br />
2.6%<br />
10+ yrs<br />
12.7%<br />
5-10 yrs<br />
22%<br />
Aggrate Sentence<br />
2-5 yrs<br />
25.1%<br />
Number of <strong>in</strong>mates<br />
1-2 yrs<br />
13.7%<br />
6-12 mths<br />
15.4%<br />
Less than 6 mths<br />
8.5%<br />
0 100 200 300 400 500 600 700 800 900 1000 1100 1200 1300 1400 1500 1600<br />
Number of Inmates<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 51
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.66 The follow<strong>in</strong>g graph shows <strong>the</strong> aggregate sentence length for <strong>the</strong> years 1996 – 2000 at 30<br />
June for each year.<br />
Aggregate Sentence<br />
SELECT COMMITTEE<br />
5.71 There has been a level of debate about <strong>the</strong> impact of guidel<strong>in</strong>e judgements. On <strong>the</strong> <strong>on</strong>e<br />
hand, guidel<strong>in</strong>e judgements will ensure c<strong>on</strong>sistency and appropriate sentences are handed<br />
down result<strong>in</strong>g <strong>in</strong> fewer Crown appeals, while <strong>on</strong> <strong>the</strong> o<strong>the</strong>r hand, it is argued that guidel<strong>in</strong>e<br />
judgements generally fix sentences at a higher level and <strong>the</strong>y remove judicial discreti<strong>on</strong> so<br />
that, <strong>the</strong> questi<strong>on</strong> <strong>in</strong> most cases is not whe<strong>the</strong>r <strong>the</strong> pers<strong>on</strong> should be impris<strong>on</strong>ed but for<br />
how l<strong>on</strong>g. 97<br />
5.72 The submissi<strong>on</strong> from <strong>the</strong> Department of Corrective Services suggests that guidel<strong>in</strong>e<br />
judgments may start to affect <strong>the</strong> rise <strong>in</strong> <strong>the</strong> <strong>in</strong>mate populati<strong>on</strong>. 98<br />
5.73 The follow<strong>in</strong>g graphs, developed by <strong>the</strong> Judicial Commissi<strong>on</strong> of New South Wales reveal<br />
<strong>the</strong> sentenc<strong>in</strong>g patterns before and after <strong>the</strong> decisi<strong>on</strong>s <strong>in</strong> R v Jurisic and R v Henry and ors for<br />
<strong>the</strong> offence of dangerous driv<strong>in</strong>g occasi<strong>on</strong><strong>in</strong>g death.<br />
97 See Judicial Officers’ Bullet<strong>in</strong>, September 1999, Volume 11, Number 8, page 59 and Judicial Officers’ Bullet<strong>in</strong>,<br />
December 1999, Volume 11, Number 11.<br />
98 Department of Corrective Services, Submissi<strong>on</strong> 63, p 24.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 53
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
54 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 55
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.74 The graph relat<strong>in</strong>g to Jurisic shows that prior to <strong>the</strong> implementati<strong>on</strong> of <strong>the</strong> guidel<strong>in</strong>e<br />
judgement, <strong>the</strong> offence for dangerous driv<strong>in</strong>g occasi<strong>on</strong><strong>in</strong>g death attracted sentences of<br />
periodic detenti<strong>on</strong>, home detenti<strong>on</strong> and impris<strong>on</strong>ment. The graph depict<strong>in</strong>g <strong>the</strong> situati<strong>on</strong><br />
after Jurisic reveals that all c<strong>on</strong>victi<strong>on</strong>s for dangerous driv<strong>in</strong>g occasi<strong>on</strong><strong>in</strong>g death have<br />
attracted a pris<strong>on</strong> sentence.<br />
5.75 A similar “before and after” graph has been provided for <strong>the</strong> offence of armed robbery or<br />
robbery <strong>in</strong> company. In <strong>the</strong> five years prior to <strong>the</strong> case of Henry and ors, 82% of offenders<br />
attracted pris<strong>on</strong> sentences. After Henry and ors, (May 1999) 91% of cases have attracted a<br />
pris<strong>on</strong> sentence.<br />
Breach of orders<br />
5.76 The submissi<strong>on</strong> from <strong>the</strong> Department of Corrective Services states that:<br />
If a periodic deta<strong>in</strong>ee, home deta<strong>in</strong>ee, or parolee breaches his/her order, <strong>the</strong> court<br />
or Parole Board (as <strong>the</strong> case may be) is likely to revoke <strong>the</strong> order and issue a<br />
warrant for <strong>the</strong> apprehensi<strong>on</strong> of <strong>the</strong> offender and his/her return to pris<strong>on</strong>. If a<br />
pers<strong>on</strong> servic<strong>in</strong>g a community service order or a pers<strong>on</strong> under a b<strong>on</strong>d breaches<br />
<strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s of <strong>the</strong> order or b<strong>on</strong>d, <strong>the</strong> court may sentence <strong>the</strong> offender to<br />
impris<strong>on</strong>ment. 99<br />
5.77 In February 1999 an amendment to <strong>the</strong> Periodic Detenti<strong>on</strong> of Pris<strong>on</strong>ers Act 1981 shifted <strong>the</strong><br />
functi<strong>on</strong> of cancell<strong>in</strong>g orders from <strong>the</strong> courts to <strong>the</strong> Parole Board.<br />
5.78 There appears to have been an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of cancellati<strong>on</strong>s of periodic<br />
detenti<strong>on</strong> orders, home detenti<strong>on</strong> orders and parole <strong>in</strong> recent years. The submissi<strong>on</strong> from<br />
<strong>the</strong> Department of Corrective Services states that:<br />
There was an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of cancellati<strong>on</strong>s of periodic detenti<strong>on</strong> orders<br />
<strong>in</strong> 1999. The Parole Board made <strong>in</strong>itial determ<strong>in</strong>ati<strong>on</strong>s to cancel 1126 orders <strong>in</strong><br />
<strong>the</strong> 12 m<strong>on</strong>ths from 1 February 1999. The courts cancelled 424 orders <strong>in</strong> 1997-<br />
98. The Board later reviewed its decisi<strong>on</strong>s to cancel 588 of <strong>the</strong>se orders, as<br />
required by law. Of <strong>the</strong> cases reviewed, <strong>the</strong> decisi<strong>on</strong> to cancel <strong>the</strong> order was<br />
resc<strong>in</strong>ded <strong>on</strong> 125 occasi<strong>on</strong>s and cancellati<strong>on</strong> was c<strong>on</strong>firmed <strong>in</strong> <strong>the</strong> o<strong>the</strong>r 463 cases.<br />
Of <strong>the</strong> cases <strong>in</strong> which cancellati<strong>on</strong> was c<strong>on</strong>firmed, <strong>on</strong> 25 occasi<strong>on</strong>s <strong>the</strong> rema<strong>in</strong>der<br />
of an offender’s sentence was c<strong>on</strong>verted to an order for home detenti<strong>on</strong>.<br />
In 1999 <strong>the</strong> parole Board revoked <strong>the</strong> home detenti<strong>on</strong> orders of 86 offenders<br />
which was 17 more than <strong>in</strong> <strong>the</strong> previous years.<br />
In 1999, <strong>the</strong> Parole Board revoked <strong>the</strong> parole of 1159 offenders which was 223<br />
more than <strong>in</strong> <strong>the</strong> previous year. 100<br />
99 Department of Corrective Services, Submissi<strong>on</strong> 63, p 24.<br />
100 Department of Corrective Services, Submissi<strong>on</strong> 63, p 26.<br />
56 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
5.79 The Department <strong>in</strong> its supplementary submissi<strong>on</strong> advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that:<br />
The vast majority of revocati<strong>on</strong>s were for failure to comply with <strong>the</strong> terms of <strong>the</strong><br />
periodic detenti<strong>on</strong> order. A small number were revoked due to <strong>the</strong> impositi<strong>on</strong> of a<br />
subsequent full-time sentence. 101<br />
5.80 A number of submissi<strong>on</strong>s and witnesses have raised c<strong>on</strong>cerns about <strong>the</strong> changes to <strong>the</strong><br />
Periodic Detenti<strong>on</strong> Act. For example, Mr John North, Law Society of New South Wales <strong>in</strong><br />
evidence stated that <strong>the</strong> changes have resulted <strong>in</strong> an <strong>in</strong>creas<strong>in</strong>g number of breaches and<br />
that fewer magistrates and judges order<strong>in</strong>g periodic detenti<strong>on</strong> because of <strong>the</strong> impressi<strong>on</strong><br />
that it was not work<strong>in</strong>g. 102<br />
5.81 In its submissi<strong>on</strong> <strong>the</strong> Law Society states that <strong>the</strong> lack of discreti<strong>on</strong> <strong>in</strong> <strong>the</strong> exist<strong>in</strong>g<br />
provisi<strong>on</strong>s, <strong>in</strong> particular, <strong>the</strong> <strong>in</strong>ability to be granted bail between revocati<strong>on</strong> of an order and<br />
a Parole Board hear<strong>in</strong>g, can lead to <strong>in</strong>justice and unnecessary detenti<strong>on</strong> <strong>in</strong> full-time custody.<br />
The Law Society states:<br />
The Law Society recommends that provisi<strong>on</strong> be made for people arrested <strong>on</strong><br />
warrants issued up<strong>on</strong> revocati<strong>on</strong> of a Periodic Dentati<strong>on</strong>, Home Detenti<strong>on</strong> or<br />
Parole order to be brought before <strong>the</strong> court if <strong>the</strong>y wish to seek bail, and that an<br />
appropriate amendment be made to <strong>the</strong> Bail Regulati<strong>on</strong> 1994 to prescribe <strong>the</strong><br />
period between revocati<strong>on</strong> of an order and <strong>the</strong> review hear<strong>in</strong>g for <strong>the</strong> purposes of<br />
secti<strong>on</strong> 6(h) of <strong>the</strong> Bail Act 1978. 103<br />
5.82 The South Eastern Aborig<strong>in</strong>al Legal Service claimed that change to revocati<strong>on</strong>s of periodic<br />
detenti<strong>on</strong> orders has had “disastrous effects for Aborig<strong>in</strong>al impris<strong>on</strong>ment”. The submissi<strong>on</strong><br />
states that, previously, if circumstances required some leniency, Magistrates would give <strong>the</strong><br />
pers<strong>on</strong> a fur<strong>the</strong>r chance to complete <strong>the</strong>ir sentence. 104<br />
5.83 Accord<strong>in</strong>g to <strong>the</strong> Parole Board, leniency can be exercised. In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>,<br />
Graham Egan, Secretary of <strong>the</strong> NSW Parole Board, expla<strong>in</strong>ed that <strong>the</strong> Board’s aim is to<br />
keep people out of pris<strong>on</strong>. Mr Egan stated that <strong>the</strong> Periodic Detenti<strong>on</strong> Review <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
c<strong>on</strong>siders each case <strong>on</strong> its merit when c<strong>on</strong>sider<strong>in</strong>g whe<strong>the</strong>r to make an applicati<strong>on</strong> to <strong>the</strong><br />
Parole Board for revocati<strong>on</strong> of <strong>the</strong> order.<br />
The committee must try to balance <strong>the</strong> spirit of <strong>the</strong> periodic detenti<strong>on</strong> legislati<strong>on</strong><br />
to divert people from gaol with <strong>the</strong> fact that <strong>the</strong>y have been sentenced by a court<br />
and have to do that order. So, each case is looked at. I can th<strong>in</strong>k of <strong>on</strong>e pers<strong>on</strong> we<br />
have been m<strong>on</strong>itor<strong>in</strong>g s<strong>in</strong>ce April last year. After be<strong>in</strong>g spoken to he has<br />
c<strong>on</strong>t<strong>in</strong>ued to attend every time or has applied for and obta<strong>in</strong>ed <strong>the</strong> appropriate<br />
leave. 105<br />
101 Department of Corrective Services, Submissi<strong>on</strong> 63, p 2.<br />
102 North, Evidence, 20 October, 2000, p 6.<br />
103 Law Society of New South Wales, Submissi<strong>on</strong> 93, p 28.<br />
104 South Eastern Aborig<strong>in</strong>al Legal Service, Submissi<strong>on</strong> 37.<br />
105 Egan, Evidence, 19 October, 2000.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.84 Accord<strong>in</strong>g to Mr Egan it would be “very rare” for a pers<strong>on</strong> to be immediately <strong>in</strong>carcerated<br />
for simply miss<strong>in</strong>g three periodic detenti<strong>on</strong> attendances. He advised:<br />
The committee rarely applies for revocati<strong>on</strong> <strong>on</strong> three because <strong>the</strong> pers<strong>on</strong> has just<br />
come to notice. A chance is given for <strong>the</strong>m to do someth<strong>in</strong>g. 106<br />
5.85 The Government, <strong>in</strong> its resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong>, advised that <strong>the</strong><br />
Department of Corrective Services is work<strong>in</strong>g <strong>on</strong> strategies to overcome <strong>the</strong> number of<br />
people not attend<strong>in</strong>g periodic detenti<strong>on</strong>. The recommendati<strong>on</strong> below would also assist.<br />
Recommendati<strong>on</strong> 4<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bail Regulati<strong>on</strong> 1994 be amended to make provisi<strong>on</strong><br />
for <strong>the</strong> prompt determ<strong>in</strong>ati<strong>on</strong> of <strong>the</strong> revocati<strong>on</strong> of periodic detenti<strong>on</strong>, home detenti<strong>on</strong> or<br />
parole orders <strong>in</strong> order to m<strong>in</strong>imise <strong>the</strong> number of offenders remanded <strong>in</strong>to custody and<br />
<strong>the</strong> length of time spent <strong>on</strong> remand.<br />
5.86 Measures to <strong>in</strong>crease <strong>the</strong> attractiveness and use of periodic detenti<strong>on</strong> and home detenti<strong>on</strong><br />
as an alternative to full time <strong>in</strong>carcerati<strong>on</strong> are discussed <strong>in</strong> Chapter Seven of this report. In<br />
that chapter <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Judicial Commissi<strong>on</strong> undertake a survey<br />
of judicial officers to ascerta<strong>in</strong> <strong>the</strong>ir views <strong>on</strong> periodic detenti<strong>on</strong> and home detenti<strong>on</strong>, and<br />
steps which may <strong>in</strong>crease <strong>the</strong> level of c<strong>on</strong>fidence of judicial officers <strong>in</strong> <strong>the</strong> appropriateness<br />
of <strong>the</strong>se as sentenc<strong>in</strong>g alternatives to full time <strong>in</strong>carcerati<strong>on</strong>.<br />
The Complexity of <strong>the</strong> causes of <strong>the</strong> <strong>in</strong>crease<br />
Research Needs<br />
5.87 This chapter has outl<strong>in</strong>ed <strong>the</strong> evidence which has been received by <strong>the</strong> committee <strong>in</strong><br />
relati<strong>on</strong> to factors which may have <strong>in</strong>fluenced <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Clearly, <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> has been <strong>the</strong> major factor c<strong>on</strong>tribut<strong>in</strong>g<br />
directly to <strong>the</strong> overall <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> recent years. Some possible<br />
underly<strong>in</strong>g causes for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong> have been discussed, as have<br />
possible underly<strong>in</strong>g causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> sentenced populati<strong>on</strong>. However, it has<br />
not been possible, <strong>on</strong> <strong>the</strong> basis of <strong>the</strong> evidence received by <strong>the</strong> committee, to clearly<br />
attribute specific numbers to each underly<strong>in</strong>g cause.<br />
5.88 The Bureau of Crime Statistics and Research c<strong>on</strong>cedes that attempt<strong>in</strong>g to quantify or assess<br />
<strong>the</strong> changes <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> is a complex task. It argues that:<br />
At <strong>the</strong> moment research can answer some questi<strong>on</strong>s about changes <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> but not o<strong>the</strong>rs. It can also answer some questi<strong>on</strong>s about changes <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong> much more easily than o<strong>the</strong>rs. As a general rule, <strong>the</strong> fur<strong>the</strong>r<br />
back down <strong>the</strong> causal cha<strong>in</strong> you want to go, <strong>the</strong> harder it is to determ<strong>in</strong>e whe<strong>the</strong>r a<br />
106 Egan, Evidence 19 October 2001.<br />
58 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
factor exerted an impact <strong>on</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. Thus, it is relatively easy to<br />
determ<strong>in</strong>e whe<strong>the</strong>r a pris<strong>on</strong> populati<strong>on</strong> has grown because more people are be<strong>in</strong>g<br />
sent to pris<strong>on</strong> or people are stay<strong>in</strong>g <strong>in</strong> pris<strong>on</strong> l<strong>on</strong>ger than <strong>the</strong>y used to. It is harder<br />
to determ<strong>in</strong>e whe<strong>the</strong>r <strong>in</strong>creases <strong>in</strong> <strong>the</strong> crime rate have led to <strong>in</strong>creases <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>. Whe<strong>the</strong>r <strong>on</strong>e needs more data to answer questi<strong>on</strong>s about<br />
changes <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> depends up<strong>on</strong> <strong>the</strong> precise questi<strong>on</strong>s be<strong>in</strong>g<br />
asked. 107<br />
5.89 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was provided with a comprehensive list of possible factors from <strong>the</strong> NSW<br />
Bureau of Crime Statistics and Research. BOCSAR regards <strong>the</strong> list as illustrative ra<strong>the</strong>r than<br />
exhaustive. The ma<strong>in</strong> factors are identified by <strong>the</strong> Bureau as follows:<br />
• <strong>Increase</strong>d crim<strong>in</strong>al activity;<br />
• change <strong>in</strong> offence mix of current crim<strong>in</strong>al activity – more serious crimes;<br />
• <strong>in</strong>crease <strong>in</strong> number of pers<strong>on</strong>s charged by police and processed to Court;<br />
• change <strong>in</strong> offence mix of offenders apprehended;<br />
• <strong>in</strong>crease <strong>in</strong> <strong>the</strong> rate of people remanded <strong>in</strong> custody by police or courts;<br />
− change <strong>in</strong> offence profile of offenders<br />
− change <strong>in</strong> crim<strong>in</strong>al history/social backgrounds of offenders apprehended<br />
− tighter bail c<strong>on</strong>diti<strong>on</strong>s<br />
− change <strong>in</strong> offender impecuniousness<br />
− <strong>in</strong>creased offend<strong>in</strong>g <strong>on</strong> bail<br />
− tougher polic<strong>in</strong>g of bail;<br />
• <strong>in</strong>creased court c<strong>on</strong>gesti<strong>on</strong> (leng<strong>the</strong>n<strong>in</strong>g stays <strong>on</strong> remand);<br />
− <strong>in</strong>creased case complexity<br />
− <strong>in</strong>creased court workload<br />
− change <strong>in</strong> offence mix<br />
− change <strong>in</strong> plea rate (eg through <strong>in</strong>creased penalties)<br />
− reduced court efficiency (eg. more adjournments)<br />
− reduced court capacity;<br />
• <strong>Increase</strong>d number of impris<strong>on</strong>ments;<br />
− tougher sentenc<strong>in</strong>g policies<br />
− change <strong>in</strong> offence mix<br />
− change <strong>in</strong> offender profile<br />
− <strong>in</strong>creased c<strong>on</strong>victi<strong>on</strong> rate<br />
− <strong>in</strong>creased court workload<br />
− changes to summary/<strong>in</strong>dictable offence divisi<strong>on</strong>;<br />
• L<strong>on</strong>ger pris<strong>on</strong> terms;<br />
− tougher sentenc<strong>in</strong>g policies<br />
− change <strong>in</strong> offence mix<br />
− change <strong>in</strong> offender profiles<br />
− tougher parole policies<br />
107 BOCSAR, 9 April , 2001 – document supplied at meet<strong>in</strong>g with John Ryan.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.90 From this list <strong>the</strong> Bureau fur<strong>the</strong>r determ<strong>in</strong>ed that <strong>the</strong> follow<strong>in</strong>g factors are a basic set which<br />
would allow <strong>on</strong>e to answer most questi<strong>on</strong>s about changes <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>:<br />
• remand recepti<strong>on</strong>s<br />
− offence profile<br />
− offender profile (crim<strong>in</strong>al history)<br />
− source and result of bail hear<strong>in</strong>g<br />
• remand populati<strong>on</strong><br />
− offender plea<br />
− court listed for hear<strong>in</strong>g<br />
− offence details<br />
• pris<strong>on</strong> recepti<strong>on</strong>s<br />
− new vs return<strong>in</strong>g pris<strong>on</strong>ers<br />
− offence details<br />
− length of sentence, n<strong>on</strong>-parole period<br />
− crim<strong>in</strong>al history<br />
• pris<strong>on</strong> populati<strong>on</strong><br />
− offence details<br />
− length of sentence, n<strong>on</strong>-parole period<br />
crim<strong>in</strong>al history.<br />
5.91 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> also believes <strong>the</strong> role of <strong>the</strong> police, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> impact of police numbers,<br />
police charg<strong>in</strong>g practices and general polic<strong>in</strong>g strategy needs to be <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> key<br />
factors to be studied.<br />
5.92 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> understands <strong>the</strong> complexity of analys<strong>in</strong>g changes <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Never<strong>the</strong>less <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>siders that <strong>the</strong> ability to quantify <strong>the</strong> relevant factors<br />
would have significant implicati<strong>on</strong>s for future policy and cost decisi<strong>on</strong>s. Based <strong>on</strong> <strong>the</strong><br />
research and evidence provided to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> it appears that legislative and policy<br />
changes are an identifiable factor <strong>in</strong> <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong> but it is difficult<br />
to quantify <strong>the</strong> extent of that impact.<br />
5.93 Given <strong>the</strong> c<strong>on</strong>siderable f<strong>in</strong>ancial and social costs of impris<strong>on</strong>ment, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
c<strong>on</strong>siders that policy makers and legislators should have access to reliable data and analysis<br />
which would illustrate which factors have had, and are likely to have, <strong>the</strong> greatest impact <strong>on</strong><br />
<strong>the</strong> size of <strong>the</strong> pris<strong>on</strong>er populati<strong>on</strong>.<br />
5.94 In <strong>the</strong> ma<strong>in</strong>, <strong>the</strong> difficulty does not seem to be so much <strong>on</strong>e of <strong>the</strong> lack of data, as <strong>the</strong><br />
compilati<strong>on</strong> and <strong>in</strong>terrogati<strong>on</strong> of that data. 108 That is, who receives <strong>the</strong> data, and <strong>the</strong><br />
questi<strong>on</strong>s which are sought to be answered.<br />
108 Although some gaps or problems have been identified. For example, evidence provided to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong><br />
<strong>the</strong> profile of offenders <strong>in</strong> NSW crim<strong>in</strong>al justice system shows that <strong>the</strong>re is a lack of reliable data <strong>on</strong> certa<strong>in</strong><br />
profile characteristics. In particular <strong>the</strong> debate c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> number of <strong>in</strong>tellectually disabled <strong>in</strong>mates<br />
highlights <strong>the</strong> need for a specific prevalence study to determ<strong>in</strong>e numbers. Full knowledge of <strong>in</strong>mate numbers<br />
will assist <strong>in</strong> <strong>the</strong> allocati<strong>on</strong> of resources and <strong>the</strong> provisi<strong>on</strong> of services to <strong>in</strong>mates with an <strong>in</strong>tellectual disability.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> notes that <strong>the</strong> Department plans to c<strong>on</strong>duct such a study.<br />
60 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Recommendati<strong>on</strong> 5<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services adopt a coord<strong>in</strong>at<strong>in</strong>g<br />
and m<strong>on</strong>itor<strong>in</strong>g role for <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> adult crim<strong>in</strong>al justice system and<br />
that, with <strong>the</strong> Bureau of Crime Statistics and Research, <strong>the</strong> Department ensure <strong>the</strong> full<br />
shar<strong>in</strong>g of data between all departments and agencies <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system and<br />
regularly review and report up<strong>on</strong> both <strong>the</strong> direct and underly<strong>in</strong>g causes of changes <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>.<br />
Informati<strong>on</strong> relat<strong>in</strong>g to judicial decisi<strong>on</strong>s<br />
5.95 One comment regularly made to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> by those with<strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system<br />
was that <strong>the</strong>re is wide diversity <strong>in</strong> judicial sentenc<strong>in</strong>g practices, and <strong>in</strong> particular <strong>the</strong> use of<br />
impris<strong>on</strong>ment. Chapter Seven of this report c<strong>on</strong>ta<strong>in</strong>s a recommendati<strong>on</strong> for a scal<strong>in</strong>g study<br />
which would exam<strong>in</strong>e <strong>the</strong> way <strong>in</strong> which judges and magistrates perceive <strong>the</strong> severity of<br />
alternatives to full time custodial sentences. However <strong>the</strong>re is also a need for improved<br />
access to <strong>in</strong>formati<strong>on</strong> <strong>on</strong> how sentenc<strong>in</strong>g practices differ <strong>in</strong> courts <strong>in</strong> different districts<br />
with<strong>in</strong> NSW.<br />
5.96 The New South Wales Parliament has recently passed <strong>the</strong> C<strong>on</strong>sumer, Trader and Tenancy Bill,<br />
which establishes an <strong>in</strong>tegrated dispute resoluti<strong>on</strong> tribunal and <strong>in</strong>troduces measures to<br />
ensure quality, c<strong>on</strong>sistency and efficiency of decisi<strong>on</strong> mak<strong>in</strong>g by Tribunal Members. This<br />
<strong>in</strong>cludes mechanisms for <strong>the</strong> exchange of <strong>in</strong>formati<strong>on</strong> between <strong>the</strong> Director-General of<br />
Fair Trad<strong>in</strong>g and <strong>the</strong> Tribunal Chairpers<strong>on</strong>.<br />
5.97 The M<strong>in</strong>ister for Fair Trad<strong>in</strong>g, <strong>the</strong> H<strong>on</strong> John Watk<strong>in</strong>s, stated <strong>in</strong> his sec<strong>on</strong>d read<strong>in</strong>g speech<br />
<strong>on</strong> 23 October 2001:<br />
The provisi<strong>on</strong>s will operate <strong>in</strong> <strong>the</strong> follow<strong>in</strong>g way. First of all <strong>the</strong> Director-General<br />
and <strong>the</strong> chairpers<strong>on</strong> of <strong>the</strong> tribunal will be able to enter <strong>in</strong>to arrangements where<br />
<strong>in</strong>formati<strong>on</strong> is exchanged by agreement. Sec<strong>on</strong>dly, <strong>the</strong> tribunal will have a power<br />
to voluntarily provide reports <strong>on</strong> important matters or issues which relate to<br />
matters of public <strong>in</strong>terest. The third provisi<strong>on</strong> will be <strong>on</strong>e allow<strong>in</strong>g <strong>the</strong> Director-<br />
General to request <strong>in</strong>formati<strong>on</strong> from <strong>the</strong> chairpers<strong>on</strong> <strong>on</strong> matters relat<strong>in</strong>g to <strong>the</strong><br />
director-general’s general <strong>in</strong>vestigative powers.<br />
The M<strong>in</strong>ister states that a central aim of <strong>the</strong> legislati<strong>on</strong> is to provide for c<strong>on</strong>sistent<br />
and high quality decisi<strong>on</strong> mak<strong>in</strong>g by tribunal members and that all tribunal<br />
members will have to enter <strong>in</strong>to performance agreements and agree to abide by a<br />
code of c<strong>on</strong>duct. An <strong>in</strong>dependent peer review panel will oversee <strong>the</strong> educati<strong>on</strong>,<br />
tra<strong>in</strong><strong>in</strong>g and discipl<strong>in</strong>ary aspects of <strong>the</strong> tribunal’s operati<strong>on</strong>s.<br />
Also, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> notes c<strong>on</strong>cerns raised about <strong>the</strong> way <strong>in</strong> which <strong>the</strong> Department of Corrective Services<br />
determ<strong>in</strong>es cultural and l<strong>in</strong>guistic background and that it may c<strong>on</strong>tribute to a lack of clarity <strong>in</strong> this area. For<br />
example Mr Isileli Tuitavuici, Pris<strong>on</strong>er Advocate, CRC Justice Support and Official Visitor to <strong>the</strong><br />
Department of Corrective Services, stated <strong>in</strong> evidence that identificati<strong>on</strong> based <strong>on</strong> passports is <strong>in</strong>adequate <strong>in</strong><br />
determ<strong>in</strong><strong>in</strong>g ethnicity and Ms Violet Roumeliotis commented that <strong>in</strong>formati<strong>on</strong> is not requested from <strong>the</strong><br />
<strong>in</strong>mates <strong>in</strong> a regular and standardised way but relies <strong>on</strong> staff assessment.<br />
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5.98 While recognis<strong>in</strong>g that judicial <strong>in</strong>dependence is paramount and that this model may not<br />
easily be transferable, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> never<strong>the</strong>less c<strong>on</strong>siders that <strong>the</strong> measures <strong>in</strong>troduced<br />
to exchange <strong>in</strong>formati<strong>on</strong> so as to encourage quality, c<strong>on</strong>sistency and efficiency of decisi<strong>on</strong><br />
mak<strong>in</strong>g should be c<strong>on</strong>sidered for applicati<strong>on</strong> <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system. Informati<strong>on</strong><br />
<strong>on</strong> sentenc<strong>in</strong>g practice, (as well as how <strong>the</strong> courts perceive <strong>the</strong> severity of different<br />
penalties, covered <strong>in</strong> Chapter Seven), as <strong>the</strong> potential to provide valuable <strong>in</strong>formati<strong>on</strong> for<br />
both <strong>the</strong> development of policy and legislative proposals and <strong>in</strong> assist<strong>in</strong>g <strong>the</strong> Department<br />
of Corrective Service <strong>in</strong> co-ord<strong>in</strong>at<strong>in</strong>g and m<strong>on</strong>itor<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> potential growth<br />
<strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 6<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Judicial Commissi<strong>on</strong> or ano<strong>the</strong>r agency<br />
c<strong>on</strong>duct regular studies of sentenc<strong>in</strong>g patterns <strong>in</strong> courts <strong>in</strong> specific districts, and that<br />
<strong>the</strong> results of <strong>the</strong>se studies be made available to policymakers to assist <strong>in</strong><br />
understand<strong>in</strong>g <strong>the</strong> impact of legislative and policy changes <strong>on</strong> <strong>the</strong> future pris<strong>on</strong><br />
populati<strong>on</strong>.<br />
Whole of Government Approach<br />
5.99 The Department of Corrective Services has described itself as a “downstream” agency <strong>in</strong><br />
<strong>the</strong> crim<strong>in</strong>al justice system. The questi<strong>on</strong> must <strong>the</strong>refore be asked as to whe<strong>the</strong>r <strong>the</strong><br />
Department of Corrective Services, and c<strong>on</strong>siderati<strong>on</strong> of <strong>the</strong> impact of policy and<br />
legislative decisi<strong>on</strong>s up<strong>on</strong> <strong>the</strong> pris<strong>on</strong> system generally, is always given an adequate role <strong>in</strong><br />
decisi<strong>on</strong>s which are made about <strong>the</strong>se issues. It may be that <strong>the</strong> Department of Corrective<br />
Services could play a more proactive role <strong>in</strong> relati<strong>on</strong> to decisi<strong>on</strong>s that are made about <strong>the</strong><br />
crim<strong>in</strong>al justice system.<br />
5.100 The Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, <strong>in</strong> its report, Crime Preventi<strong>on</strong> Through Social<br />
Support, highlighted <strong>the</strong> importance of a whole of government resp<strong>on</strong>se to crime<br />
preventi<strong>on</strong>. As well as <strong>the</strong> resp<strong>on</strong>sibilities of government departments, <strong>the</strong> report<br />
highlighted <strong>the</strong> importance of <strong>in</strong>volv<strong>in</strong>g <strong>the</strong> community and every relevant stakeholder to<br />
ensure that a systematic and thorough approach to <strong>the</strong> preventi<strong>on</strong> of crime is taken. 110<br />
5.101 It is <strong>the</strong> committee’s view that greater liais<strong>on</strong> between all <strong>the</strong> key agencies whose policies<br />
and acti<strong>on</strong>s impact <strong>on</strong> impris<strong>on</strong>ment rates is required and that, as recommended above, <strong>the</strong><br />
Department of Corrective Services should adopt a co-ord<strong>in</strong>at<strong>in</strong>g and m<strong>on</strong>itor<strong>in</strong>g role for<br />
<strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> adult crim<strong>in</strong>al justice system.<br />
5.102 It is understood that <strong>the</strong>re are a number of high level forums with<strong>in</strong> Government at which<br />
issues c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong> crim<strong>in</strong>al justice system are discussed and at which decisi<strong>on</strong>s are<br />
made. Examples <strong>in</strong>clude <strong>the</strong> system of Cab<strong>in</strong>et sub-committees and <strong>the</strong> Premier’s Council<br />
<strong>on</strong> Crime Preventi<strong>on</strong>. It is important that <strong>the</strong> Department of Corrective Services be given<br />
“a seat at <strong>the</strong> table” so that its voice may be heard <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> ec<strong>on</strong>omic and social<br />
110 Resource Manual NSW Crime Preventi<strong>on</strong> Divisi<strong>on</strong>, Attorney General’s Department, 1997, p.2, cited <strong>in</strong><br />
Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, First report <strong>in</strong>to Crime Preventi<strong>on</strong> Through Social Support, 1999, p. 65.<br />
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impact of policy and legislative decisi<strong>on</strong>s. Some of <strong>the</strong> specific issues <strong>on</strong> which <strong>the</strong> voices<br />
of <strong>the</strong> Department should be heard <strong>in</strong>clude:<br />
• any policies be<strong>in</strong>g pursued by o<strong>the</strong>r agencies that may impact <strong>on</strong> pris<strong>on</strong>er<br />
numbers;<br />
• any <strong>in</strong>itiatives o<strong>the</strong>r agencies are undertak<strong>in</strong>g to prevent rises <strong>in</strong> <strong>the</strong> pris<strong>on</strong>er<br />
populati<strong>on</strong>;<br />
• how <strong>the</strong>y can, as <strong>in</strong>dividual agencies and as a collective group, m<strong>on</strong>itor significant<br />
rises <strong>in</strong> impris<strong>on</strong>ment rates;<br />
• what <strong>in</strong>itiatives are occurr<strong>in</strong>g <strong>in</strong> o<strong>the</strong>r jurisdicti<strong>on</strong>s that have had reduced<br />
impris<strong>on</strong>ment rates; and<br />
• <strong>the</strong> impact of legislati<strong>on</strong> and judicial decisi<strong>on</strong>s.<br />
Recommendati<strong>on</strong> 7<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Premier ensure that <strong>the</strong> M<strong>in</strong>ister for Corrective<br />
Services is represented <strong>on</strong> any Cab<strong>in</strong>et sub-committees which have a decisi<strong>on</strong> mak<strong>in</strong>g<br />
role <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> crim<strong>in</strong>al justice system, so as to ensure that <strong>the</strong> implicati<strong>on</strong>s of<br />
any such decisi<strong>on</strong>s for <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> and <strong>the</strong> ec<strong>on</strong>omic and social impacts of<br />
those decisi<strong>on</strong>s are given full c<strong>on</strong>siderati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 8<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services be given an<br />
active role <strong>in</strong> <strong>the</strong> Premier’s Council <strong>on</strong> Crime Preventi<strong>on</strong> and any similar bodies<br />
which have a role <strong>in</strong> <strong>the</strong> development of policy of legislative proposals <strong>in</strong> relati<strong>on</strong> to<br />
<strong>the</strong> crim<strong>in</strong>al justice system, so as to ensure that <strong>the</strong> implicati<strong>on</strong>s of any such decisi<strong>on</strong>s<br />
for <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> and <strong>the</strong> ec<strong>on</strong>omic and social impacts of those decisi<strong>on</strong>s are<br />
given full c<strong>on</strong>siderati<strong>on</strong>.<br />
C<strong>on</strong>clusi<strong>on</strong><br />
5.103 The causes of <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> are complex. The immediate causes<br />
appear to be a major <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>, l<strong>on</strong>ger sentences and <strong>in</strong>creased<br />
police activity. The underly<strong>in</strong>g causes of <strong>the</strong>se factors are, however, more complex.<br />
Regard<strong>in</strong>g <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong> remand populati<strong>on</strong>, it appears <strong>in</strong>creased bail refusals, changes<br />
to <strong>the</strong> Bail Act remov<strong>in</strong>g a presumpti<strong>on</strong> of bail <strong>in</strong> many cases, and <strong>the</strong> <strong>in</strong>ability of people to<br />
meet bail c<strong>on</strong>diti<strong>on</strong>s have all had an impact. There is, however, <strong>the</strong> need for research to<br />
identify and quantify what impact <strong>the</strong>se and o<strong>the</strong>r factors have had. Regard<strong>in</strong>g <strong>in</strong>creased<br />
police activity it may be that <strong>in</strong>creased police numbers and <strong>the</strong> practise of “over-charg<strong>in</strong>g”<br />
are important factors. If <strong>the</strong> <strong>in</strong>creased number of arrests is due to an <strong>in</strong>crease <strong>in</strong> crime<br />
<strong>the</strong>re has been no evidence from agencies such as <strong>the</strong> Bureau of Crime Statistics and<br />
Research to support this as an underly<strong>in</strong>g cause of <strong>the</strong> <strong>in</strong>creased pris<strong>on</strong> populati<strong>on</strong>.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
5.104 From <strong>the</strong> analysis <strong>in</strong> this chapter it is apparent that <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> can fluctuate<br />
c<strong>on</strong>siderably as a result of legislative, judicial and policy changes, irrespective of any<br />
changes <strong>in</strong> actual crimes committed. The impact of guidel<strong>in</strong>e judgements <strong>on</strong> <strong>in</strong>creased use<br />
of impris<strong>on</strong>ment is <strong>on</strong>e recent example which is likely to see more offenders impris<strong>on</strong>ed <strong>in</strong><br />
future for crimes which previously would have seen some rema<strong>in</strong> under alternative<br />
sentenc<strong>in</strong>g arrangements. This raises <strong>the</strong> issue about how decisi<strong>on</strong>s should be made as to<br />
who should be <strong>in</strong>carcerated; this is <strong>the</strong> subject of <strong>the</strong> next chapter.<br />
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Chapter 6<br />
Incarcerati<strong>on</strong><br />
Introducti<strong>on</strong><br />
6.1 The ris<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> means that <strong>in</strong>creas<strong>in</strong>g resources need to be allocated to<br />
manag<strong>in</strong>g pris<strong>on</strong>ers dur<strong>in</strong>g <strong>the</strong>ir sentences. Programs run with<strong>in</strong> pris<strong>on</strong> have to<br />
accommodate a greater number of potential participants; post release and transiti<strong>on</strong><br />
programs have to expand and case management of pris<strong>on</strong>ers becomes more <strong>on</strong>erous. This<br />
chapter exam<strong>in</strong>es some of <strong>the</strong> issues aris<strong>in</strong>g from <strong>in</strong>carcerat<strong>in</strong>g pris<strong>on</strong>ers, beg<strong>in</strong>n<strong>in</strong>g with a<br />
survey of how views of policymakers have changed over <strong>the</strong> years regard<strong>in</strong>g <strong>the</strong> purpose<br />
and <strong>in</strong>tended outcomes of <strong>in</strong>carcerati<strong>on</strong>. The Chapter <strong>the</strong>n c<strong>on</strong>siders specific programs<br />
with<strong>in</strong> pris<strong>on</strong> and programs to assist <strong>the</strong> transiti<strong>on</strong> <strong>in</strong>to <strong>the</strong> community.<br />
Chang<strong>in</strong>g sentenc<strong>in</strong>g policies: impact <strong>on</strong> <strong>the</strong> aims of <strong>in</strong>carcerati<strong>on</strong><br />
6.2 The policy objectives of <strong>in</strong>carcerati<strong>on</strong> are outl<strong>in</strong>ed <strong>in</strong> Chapter Two. In summary, <strong>the</strong>y are:<br />
denunciati<strong>on</strong>, retributi<strong>on</strong>, <strong>in</strong>capacitati<strong>on</strong> and rehabilitati<strong>on</strong>. Over time governments and<br />
political parties aspir<strong>in</strong>g to govern, <strong>in</strong>fluenced by c<strong>on</strong>temporaneous community values,<br />
public c<strong>on</strong>cern and <strong>the</strong> media, have emphasised some of <strong>the</strong>se policy objectives more than<br />
o<strong>the</strong>rs. As sentenc<strong>in</strong>g policy has <strong>the</strong> capacity to <strong>in</strong>fluence <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>,<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has surveyed select academic literature <strong>in</strong> order to identify <strong>the</strong> extent to<br />
which particular sentenc<strong>in</strong>g policies have been successful. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has also<br />
attempted to exam<strong>in</strong>e <strong>the</strong> impact sentenc<strong>in</strong>g <strong>in</strong>itiatives have had <strong>on</strong> <strong>the</strong> NSW pris<strong>on</strong><br />
populati<strong>on</strong>.<br />
The Shift Away from Incarcerati<strong>on</strong> as Rehabilitati<strong>on</strong><br />
6.3 Dur<strong>in</strong>g <strong>the</strong> earlier part of <strong>the</strong> twentieth century up until <strong>the</strong> 1970’s, <strong>the</strong> prevail<strong>in</strong>g view of<br />
law and justice policy makers was that <strong>in</strong>dividual offenders required reform or<br />
rehabilitati<strong>on</strong>. This view began to change dur<strong>in</strong>g <strong>the</strong> 1970s:<br />
“The belief now <strong>in</strong> vogue is that <strong>the</strong>y require c<strong>on</strong>trol”. 111<br />
6.4 Greater emphasis has been given to <strong>the</strong> use of <strong>in</strong>carcerati<strong>on</strong> as a crime c<strong>on</strong>trol tool s<strong>in</strong>ce<br />
<strong>the</strong> work of academics like S & R Sh<strong>in</strong>nar was published <strong>in</strong> 1975. Sh<strong>in</strong>nar and Sh<strong>in</strong>nar<br />
developed a ma<strong>the</strong>matical model to study <strong>the</strong> relati<strong>on</strong>ship between impris<strong>on</strong>ment and<br />
crime rates propos<strong>in</strong>g that an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> could reduce <strong>the</strong> crime rate<br />
by 20 percent. 112 Around <strong>the</strong> same time an exhaustive study by sociologist Robert<br />
Mart<strong>in</strong>s<strong>on</strong> exam<strong>in</strong>ed every available report <strong>on</strong> rehabilitati<strong>on</strong> techniques published <strong>in</strong><br />
English from 1945 to 1967, draw<strong>in</strong>g <strong>on</strong> 231 studies. He found that:<br />
111 Todd R Clear, Backfire: “When Incarcerati<strong>on</strong> <strong>Increase</strong>s Crime” , Florida State University, Internet<br />
www.doc.state.ok.us/Docs/OCJRC/Oejre96/Ocjrc7.htm (accessed June 2001).<br />
112 Sh<strong>in</strong>nar, S and Sh<strong>in</strong>nar R, “The Effects of <strong>the</strong> Crim<strong>in</strong>al Justice System <strong>on</strong> <strong>the</strong> C<strong>on</strong>trol of Crime: a quantitative<br />
approach” Law and Society Review , 9, 581 –611 (1975).<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
“with few and isolated excepti<strong>on</strong>s, <strong>the</strong> rehabilitative efforts that have been<br />
reported so far have had no appreciable effect <strong>on</strong> recidivism.” 113<br />
6.5 While Mart<strong>in</strong>s<strong>on</strong> had <strong>in</strong>tended his study to result <strong>in</strong> less impris<strong>on</strong>ment, his work had <strong>the</strong><br />
opposite impact. .114 Pris<strong>on</strong> policies <strong>in</strong> <strong>the</strong> United States became <strong>in</strong>creas<strong>in</strong>gly punitive<br />
focuss<strong>in</strong>g <strong>on</strong> <strong>the</strong> rema<strong>in</strong><strong>in</strong>g purposes of impris<strong>on</strong>ment; retributi<strong>on</strong>, denunciati<strong>on</strong> and<br />
<strong>in</strong>capacitati<strong>on</strong>. The attitude might be best summed up <strong>in</strong> what became a sem<strong>in</strong>al statement<br />
<strong>in</strong> <strong>the</strong> United States <strong>in</strong> regard to impris<strong>on</strong>ment published <strong>in</strong> The New York Times <strong>in</strong> 1996<br />
by academic John J. Dilulio, “Pris<strong>on</strong>s are a Barga<strong>in</strong>, by Any Measure”.<br />
But if <strong>the</strong> questi<strong>on</strong> is how to restra<strong>in</strong> known crim<strong>in</strong>als from murder<strong>in</strong>g, rap<strong>in</strong>g,<br />
robb<strong>in</strong>g, assault<strong>in</strong>g and steal<strong>in</strong>g, <strong>the</strong>n <strong>in</strong>carcerati<strong>on</strong> is a soluti<strong>on</strong>, and a highly cost<br />
effective <strong>on</strong>e. On average, it costs about $25,000 a year to keep a c<strong>on</strong>victed<br />
crim<strong>in</strong>al <strong>in</strong> pris<strong>on</strong>. For that m<strong>on</strong>ey, society gets four benefits: impris<strong>on</strong>ment<br />
punishes offender and expresses society’s moral disapproval. It teaches fel<strong>on</strong>s and<br />
would be fel<strong>on</strong>s a less<strong>on</strong>: Do crime, do time. Pris<strong>on</strong>ers get drug treatment and<br />
educati<strong>on</strong>. And as <strong>the</strong> columnist Ben Wattenburg has noted, “A thug <strong>in</strong> pris<strong>on</strong><br />
can’t shoot your sister. ” 115<br />
6.6 Dur<strong>in</strong>g <strong>the</strong> last 30 years, sentenc<strong>in</strong>g policies overseas, led by <strong>the</strong> United States have been<br />
characterised by a susta<strong>in</strong>ed attack <strong>on</strong> judicial <strong>in</strong>dependence <strong>in</strong> sentenc<strong>in</strong>g, <strong>the</strong> reducti<strong>on</strong> or<br />
elim<strong>in</strong>ati<strong>on</strong> of parole and <strong>the</strong> impositi<strong>on</strong> of more rigorous guidel<strong>in</strong>es. Offender based<br />
sentenc<strong>in</strong>g has been changed to <strong>on</strong>e that is more offence based. Executive <strong>in</strong>put <strong>in</strong>to <strong>the</strong><br />
sentenc<strong>in</strong>g process has been <strong>in</strong>troduced or <strong>in</strong>creased by means of sentenc<strong>in</strong>g commissi<strong>on</strong>s<br />
or councils. One-, two- and three-strikes laws have proliferated as have mandatory and<br />
m<strong>in</strong>ium sentences, many of which over-rode or displaced sentenc<strong>in</strong>g guidel<strong>in</strong>es which have<br />
been carefully crafted by judicial officers. Capital punishment has been re<strong>in</strong>troduced and<br />
c<strong>on</strong>t<strong>in</strong>ues to ga<strong>in</strong> <strong>in</strong> popularity. N<strong>on</strong>-custodial but punitive schemes such as <strong>in</strong>tensive<br />
supervisi<strong>on</strong> orders, house arrest, electr<strong>on</strong>ic m<strong>on</strong>itor<strong>in</strong>g, boot camps and public sham<strong>in</strong>g<br />
rituals have also been developed <strong>in</strong> <strong>the</strong> United States. 116<br />
113 Robert Mart<strong>in</strong>s<strong>on</strong>, “What Works? Questi<strong>on</strong>s and Answers about Pris<strong>on</strong> Reform” The Public Interest Spr<strong>in</strong>g<br />
1974 pp 22-54.<br />
114 There have of course been numerous resp<strong>on</strong>ses to Mart<strong>in</strong>s<strong>on</strong>’s c<strong>on</strong>troversial work. Associate Professor Rick<br />
Sarre, University of South Australia, “Bey<strong>on</strong>d ‘What Works?’ A 25 Year Jubilee Retrospective of Robert<br />
Mart<strong>in</strong>s<strong>on</strong>”, paper presented at an Australian Institute of Crim<strong>in</strong>ology C<strong>on</strong>ference , 9-10 December 1999 <strong>on</strong><br />
The History of Crime, Polic<strong>in</strong>g and Punishment. Also K. Howells and A. Day, The Rehabilitati<strong>on</strong> of Offenders:<br />
Internati<strong>on</strong>al Perspectives Applied to Australian Correcti<strong>on</strong>al Systems. AIC Publicati<strong>on</strong> May 1999.<br />
115 John J. Dilulio, Jr. “Pris<strong>on</strong>s Are a Barga<strong>in</strong>, By Any Measure,” New York Times 16 January 1996. (Professor<br />
Dilulio has had a change of heart <strong>in</strong> recent times and now is <strong>on</strong>e of America’s most prom<strong>in</strong>ent advocates for<br />
a less punitive approach to c<strong>on</strong>troll<strong>in</strong>g <strong>the</strong> illicit drug trade).<br />
116 Arie Freiberg, “Three Strikes and You’re Out-It’s Not Cricket: Col<strong>on</strong>isati<strong>on</strong> and Resistance <strong>in</strong> Australian<br />
Sentenc<strong>in</strong>g”, <strong>in</strong> M. T<strong>on</strong>ry and R. Frase (eds) Sentenc<strong>in</strong>g Policy <strong>in</strong> Comparative Internati<strong>on</strong>al Perspective, New York<br />
(1998).<br />
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Australian Policies S<strong>in</strong>ce <strong>the</strong> 1980s<br />
6.7 Accord<strong>in</strong>g to Professor of Crim<strong>in</strong>ology at <strong>the</strong> University of Melbourne, Arie Freiberg,<br />
<strong>the</strong>se polices have had an <strong>in</strong>fluence <strong>in</strong> Australia, but most jurisdicti<strong>on</strong>s have offered some<br />
resistance to trends established <strong>in</strong> <strong>the</strong> United States. 117<br />
6.8 One trend from <strong>the</strong> United States, which has been largely resisted <strong>in</strong> NSW and <strong>the</strong> rest of<br />
Australia, has been moves to reduce judicial discreti<strong>on</strong>. The NSW Law Reform<br />
Commissi<strong>on</strong> <strong>in</strong> its report Sentenc<strong>in</strong>g, stated:<br />
The Commissi<strong>on</strong> argued that <strong>the</strong> existence of a wide judicial discreti<strong>on</strong> is essential<br />
to do<strong>in</strong>g justice <strong>in</strong> <strong>the</strong> <strong>in</strong>dividual case. A po<strong>in</strong>t which <strong>the</strong> Chief Justices of NSW,<br />
Victoria and Western Australia, as well as <strong>the</strong> Lord Chief Justice of England, have<br />
recently felt it necessary to assert extra-curially. We <strong>the</strong>refore, rejected any<br />
approach to <strong>the</strong> “reform” of sentenc<strong>in</strong>g law which would c<strong>on</strong>stra<strong>in</strong> <strong>the</strong> exercise of<br />
judicial discreti<strong>on</strong> ei<strong>the</strong>r by <strong>the</strong> codificati<strong>on</strong> of comm<strong>on</strong> law pr<strong>in</strong>ciples, <strong>the</strong><br />
creati<strong>on</strong> of sancti<strong>on</strong> hierarchies, or <strong>the</strong> specificati<strong>on</strong> of tariffs (especially for terms<br />
of impris<strong>on</strong>ment) for each offence. 118<br />
6.9 There have been some more recent divergences from this trend, mostly <strong>in</strong> jurisdicti<strong>on</strong>s<br />
o<strong>the</strong>r than NSW.<br />
6.10 The most significant copy<strong>in</strong>g of overseas sentenc<strong>in</strong>g policy <strong>in</strong> NSW occurred <strong>in</strong> 1989,<br />
when <strong>the</strong> Gre<strong>in</strong>er Government <strong>in</strong>troduced <strong>the</strong> Sentenc<strong>in</strong>g Act 1989 and <strong>the</strong> Crimes (Life<br />
Sentences) Amendment Act 1989. This legislati<strong>on</strong> implemented <strong>the</strong> policy referred to as<br />
“truth-<strong>in</strong>-sentenc<strong>in</strong>g”, abolish<strong>in</strong>g remissi<strong>on</strong>s (time taken off an offender’s custodial<br />
sentence for good behaviour through an adm<strong>in</strong>istrative procedure) and creat<strong>in</strong>g a term of<br />
impris<strong>on</strong>ment, imposed at <strong>the</strong> discreti<strong>on</strong> of a judge, last<strong>in</strong>g for <strong>the</strong> rema<strong>in</strong>der of <strong>the</strong><br />
offender’s natural life.<br />
6.11 The aboliti<strong>on</strong> of remissi<strong>on</strong>s corresp<strong>on</strong>ded with a steep <strong>in</strong>crease <strong>in</strong> <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong>. The daily average pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong>creased from 4,124 <strong>in</strong> 1988 to 6,056 <strong>in</strong><br />
1992. 119 O<strong>the</strong>r jurisdicti<strong>on</strong>s <strong>in</strong> Australia have followed with similar provisi<strong>on</strong>s but have not<br />
experienced <strong>the</strong> same impact <strong>in</strong> <strong>the</strong> size of <strong>the</strong>ir pris<strong>on</strong> populati<strong>on</strong>s. For example, Victoria<br />
abolished remissi<strong>on</strong>s <strong>in</strong> 1992, by <strong>the</strong> provisi<strong>on</strong>s of <strong>the</strong> Sentenc<strong>in</strong>g Act 1991 (Vic), but unlike<br />
NSW, <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> did not <strong>in</strong>crease significantly afterwards. Secti<strong>on</strong> 10 of <strong>the</strong><br />
Sentenc<strong>in</strong>g Act c<strong>on</strong>ta<strong>in</strong>ed a provisi<strong>on</strong> that required <strong>the</strong> courts to c<strong>on</strong>struct <strong>the</strong> new sentences<br />
<strong>in</strong> such a manner that would not <strong>in</strong>crease <strong>the</strong> time a pris<strong>on</strong>er actually spent <strong>in</strong> custody. 120<br />
117 A Freiberg, Op Cit, and A Freiberg, “Expla<strong>in</strong><strong>in</strong>g <strong>Increase</strong>s <strong>in</strong> Impris<strong>on</strong>ment Rates” , paper presented at AIC<br />
C<strong>on</strong>ference, Mapp<strong>in</strong>g <strong>the</strong> Boundaries of Australia’s Crim<strong>in</strong>al Justice System, Canberra, 22-23 March 1999.<br />
118 NSW Law Reform Commissi<strong>on</strong> <strong>Report</strong> 79, Sentenc<strong>in</strong>g pages 6-7. See also page 12, where <strong>the</strong> Commissi<strong>on</strong><br />
specifically refers to sentenc<strong>in</strong>g guidel<strong>in</strong>es <strong>in</strong> <strong>the</strong> United States and specifically rejected <strong>the</strong>m, stat<strong>in</strong>g that <strong>the</strong>y<br />
were “<strong>in</strong>appropriate for <strong>the</strong> Australian c<strong>on</strong>text”, describ<strong>in</strong>g <strong>the</strong>m also as “noth<strong>in</strong>g short of a disaster” which<br />
has “attracted virtually unanimous judicial and academic c<strong>on</strong>demnati<strong>on</strong>.”<br />
119 Department of Corrective Services Statistical Publicati<strong>on</strong> No 21, September 2000, p 6.<br />
120 Secti<strong>on</strong> 10 (1) was <strong>in</strong> <strong>the</strong> follow<strong>in</strong>g terms: "When sentenc<strong>in</strong>g an offender to a term of impris<strong>on</strong>ment a court<br />
must c<strong>on</strong>sider whe<strong>the</strong>r <strong>the</strong> sentence it proposes would result <strong>in</strong> <strong>the</strong> offender spend<strong>in</strong>g more time <strong>in</strong> custody,<br />
<strong>on</strong>ly because of <strong>the</strong> aboliti<strong>on</strong> of remissi<strong>on</strong> entitlements by secti<strong>on</strong> 3 (1) of <strong>the</strong> Correcti<strong>on</strong>s (Remissi<strong>on</strong>s) Act<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
6.12 The <strong>in</strong>troducti<strong>on</strong> of <strong>in</strong>determ<strong>in</strong>ate life sentences may have an impact <strong>on</strong> <strong>the</strong> size of <strong>the</strong><br />
NSW pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> <strong>the</strong> l<strong>on</strong>g term, as discussed <strong>in</strong> Chapter Five. Between January<br />
1990 and March 1998, 14 offenders received sentences of penal servitude for life. In <strong>the</strong><br />
period between 1990 and 1998, two of <strong>the</strong>se sentences had been overturned <strong>on</strong> appeal, and<br />
two of <strong>the</strong> <strong>in</strong>dividuals had died <strong>in</strong> pris<strong>on</strong> .121 . Until that time <strong>the</strong> l<strong>on</strong>gest sentence ever<br />
imposed <strong>on</strong> an offender <strong>in</strong> NSW was a period of 28 years, whilst <strong>the</strong> average term served<br />
for life had been somewhere between 11 to 14 years. 122 Some of <strong>the</strong> <strong>in</strong>dividuals sentenced<br />
to life impris<strong>on</strong>ment without <strong>the</strong> possibility of release have life expectancies of up to 40<br />
years. The number of <strong>the</strong>se pris<strong>on</strong>ers is too small to have a significant impact <strong>on</strong> <strong>the</strong> size<br />
of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. Also, <strong>the</strong> crimes <strong>in</strong>volved were such that <strong>the</strong> <strong>in</strong>dividuals<br />
c<strong>on</strong>cerned would probably still have been <strong>in</strong> pris<strong>on</strong> now, regardless of harsher penalties<br />
provided by Crimes (Life Sentences) Amendment Act, 1989.<br />
6.13 In 1994, <strong>the</strong> Fahey Government <strong>in</strong>troduced <strong>the</strong> Community Protecti<strong>on</strong> Act, as a means of<br />
prevent<strong>in</strong>g <strong>the</strong> release of <strong>on</strong>e particular <strong>in</strong>dividual. The law was struck down by <strong>the</strong> High<br />
Court <strong>on</strong> <strong>the</strong> grounds that it improperly attempted to <strong>in</strong>vest <strong>the</strong> state court with a n<strong>on</strong>judicial<br />
power. 123 The Carr Government’s Crimes Amendment (Mandatory Life Sentences) Bill<br />
1995 <strong>in</strong>troduced amendments to <strong>the</strong> Crimes Act 1900 to reduce <strong>the</strong> discreti<strong>on</strong> of a judge to<br />
impose any sentence o<strong>the</strong>r than a life sentence without any chance of release for murder <strong>in</strong><br />
certa<strong>in</strong> def<strong>in</strong>ed circumstances. It also amended <strong>the</strong> Drug Misuse and Traffick<strong>in</strong>g Act 1985 to<br />
provide for a mandatory life sentence for traffick<strong>in</strong>g <strong>in</strong> large commercial quantities of illicit<br />
drugs. However, <strong>the</strong> provisi<strong>on</strong>s of <strong>the</strong>se laws were carefully crafted to replicate precedents<br />
that had already been set <strong>in</strong> NSW Courts. Their impact was more to ensure c<strong>on</strong>sistency<br />
ra<strong>the</strong>r than <strong>in</strong>crease <strong>the</strong> number of people <strong>on</strong> whom <strong>the</strong> penalty was imposed.<br />
6.14 Legislati<strong>on</strong> has also been <strong>in</strong>troduced <strong>in</strong> NSW to <strong>in</strong>crease penalties of impris<strong>on</strong>ment <strong>in</strong><br />
resp<strong>on</strong>se to a peak of public c<strong>on</strong>cern about specific crimes. They <strong>in</strong>clude:<br />
• Crimes (Domestic Violence) Amendment Act 1993, <strong>in</strong>creased penalties for breach<strong>in</strong>g a<br />
Domestic Violence Order to 2 years impris<strong>on</strong>ment.<br />
• Crimes (Dangerous Driv<strong>in</strong>g Offences) 1994, doubled impris<strong>on</strong>ment penalties for culpable<br />
driv<strong>in</strong>g to 10 years when <strong>the</strong> offence was committed whilst speed<strong>in</strong>g at more than 45<br />
kilometres over <strong>the</strong> speed limit or when <strong>the</strong> driver was under <strong>the</strong> <strong>in</strong>fluence of alcohol.<br />
• Crimes (Threats and Stalk<strong>in</strong>g) Amendment Act 1994, <strong>in</strong>creased <strong>the</strong> maximum penalty for this<br />
offence from two years impris<strong>on</strong>ment to five years, and created a new offence of<br />
send<strong>in</strong>g a letter threaten<strong>in</strong>g to kill a pers<strong>on</strong>, sett<strong>in</strong>g a penalty of 10 years impris<strong>on</strong>ment.<br />
• Bushfires Amendment Act 1994, <strong>in</strong>creased <strong>the</strong> penalty for sett<strong>in</strong>g fire to ano<strong>the</strong>r pers<strong>on</strong>’s<br />
land or property or allow<strong>in</strong>g fire to escape from property so as to cause damage to<br />
1991, than he or she would have spent had he or she been sentenced before <strong>the</strong> commencement of that<br />
secti<strong>on</strong> for a similar offence <strong>in</strong> similar circumstances." Secti<strong>on</strong> 10 of <strong>the</strong> Sentenc<strong>in</strong>g Act 1991 has now expired<br />
by a sunset provisi<strong>on</strong> <strong>on</strong> 22 April 1997. The Statutes Amendment (Truth-<strong>in</strong>-Sentenc<strong>in</strong>g) Act 1994, which abolished<br />
remissi<strong>on</strong>s <strong>in</strong> South Australia c<strong>on</strong>ta<strong>in</strong>ed similar provisi<strong>on</strong>s.<br />
121 John Anders<strong>on</strong>, “Sentenc<strong>in</strong>g for Life In NSW”, paper presented at ANZOC C<strong>on</strong>ference 1998.<br />
122 A Freiberg, “The Mean<strong>in</strong>g of Life: A Study of Life Sentences <strong>in</strong> Australia” paper published by AIC, 1975 and<br />
I. Potas, Life Impris<strong>on</strong>ment <strong>in</strong> Australia, Trends and Issues <strong>in</strong> Crime and Crim<strong>in</strong>al Justice, August 1989.<br />
123 Kable (1996) 138 ALR 577.<br />
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ano<strong>the</strong>r pers<strong>on</strong>s land or property from 12 m<strong>on</strong>ths impris<strong>on</strong>ment to a maximum of five<br />
years.<br />
• Crimes (Home Invasi<strong>on</strong>s) Amendment Act 1994, <strong>in</strong>creased penalties for burglary from 10 or<br />
14 years impris<strong>on</strong>ment, to a maximum penalty of 25 years impris<strong>on</strong>ment depend<strong>in</strong>g <strong>on</strong><br />
whe<strong>the</strong>r <strong>the</strong> robbery was carried out us<strong>in</strong>g ei<strong>the</strong>r threats of corporal violence, caus<strong>in</strong>g<br />
bodily harm or with firearms.<br />
• Crimes (Dogs) Amendment Act 1994, created a new offence of us<strong>in</strong>g a dog to cause actual<br />
or grievous bodily harm, with a penalty of five years impris<strong>on</strong>ment.<br />
• Crimes Amendment (Child Pornography) Act 1995, <strong>in</strong>troduced a new offence of possess<strong>in</strong>g<br />
child pornography with a penalty of up to 12 m<strong>on</strong>ths impris<strong>on</strong>ment.<br />
• Crimes Amendment (Assault of Police Officers) Act 1997, <strong>in</strong>creased penalties for assaults <strong>on</strong><br />
police officers, mak<strong>in</strong>g <strong>the</strong> penalties greater than those for assault<strong>in</strong>g o<strong>the</strong>r members of<br />
<strong>the</strong> public. The Act <strong>in</strong>creased <strong>the</strong> maximum term of impris<strong>on</strong>ment for assault of police<br />
officers to five years, occasi<strong>on</strong><strong>in</strong>g actual bodily harm to seven years and a maximum of<br />
12 years for caus<strong>in</strong>g grievous bodily harm.<br />
• Sentenc<strong>in</strong>g Legislati<strong>on</strong> Fur<strong>the</strong>r Amendment Act 1997, required <strong>the</strong> Supreme Court to have<br />
regard to recommendati<strong>on</strong>s made by <strong>the</strong> orig<strong>in</strong>al sentenc<strong>in</strong>g judge when c<strong>on</strong>sider<strong>in</strong>g<br />
applicati<strong>on</strong>s for a re-determ<strong>in</strong>ati<strong>on</strong> of sentences.<br />
• Summary Offences Amendment Act 1997, doubled <strong>the</strong> penalty for carry<strong>in</strong>g an offensive<br />
implement, which was redef<strong>in</strong>ed to <strong>in</strong>clude a knife <strong>in</strong> a public place, from <strong>on</strong>e year to<br />
two years.<br />
• Crimes Amendment (Offensive Weap<strong>on</strong>s) Act 1999, <strong>in</strong>creased <strong>the</strong> maximum penalties of<br />
impris<strong>on</strong>ment for break<strong>in</strong>g and enter<strong>in</strong>g with an offensive weap<strong>on</strong> from 14 years to 20<br />
years.<br />
• Crimes Amendment (Computer Offences) Act 2001, created new offences designed to punish<br />
computer “hackers” with maximum sentences of up to 10 years impris<strong>on</strong>ment, and<br />
credit card fraud with a computer with sentences of up to five years impris<strong>on</strong>ment.<br />
• Crimes Amendment (Aggravated Sexual Assault <strong>in</strong> Company) Act 2001, created a new offence<br />
of aggravated sexual assault <strong>in</strong> <strong>the</strong> company and with <strong>the</strong> use or threat of violence, or<br />
aga<strong>in</strong>st a victim with a serious physical or <strong>in</strong>tellectual disability, with a maximum penalty<br />
of life impris<strong>on</strong>ment with out opportunity of release.<br />
6.15 In c<strong>on</strong>trast, <strong>the</strong>re have also been moves <strong>in</strong> o<strong>the</strong>r areas to reduce penalties or decrim<strong>in</strong>alise<br />
certa<strong>in</strong> offences. Examples <strong>in</strong>clude:<br />
• The F<strong>in</strong>es Act 1996, which diverted f<strong>in</strong>e defaulters from <strong>the</strong> pris<strong>on</strong> system. In<br />
<strong>the</strong> year prior to its commencement 4474 f<strong>in</strong>e defaulters had served pris<strong>on</strong><br />
sentences. 124<br />
124 Department of Corrective Services, Submissi<strong>on</strong> 63 p28.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
• The Young Offenders Act 1997, which <strong>in</strong>troduced formal cauti<strong>on</strong>s and community<br />
youth c<strong>on</strong>ferenc<strong>in</strong>g for young people to divert <strong>the</strong>m from <strong>the</strong> crim<strong>in</strong>al justice<br />
system wherever possible.<br />
• The Disorderly Houses Amendment Act 1995 which abolished <strong>the</strong> offence of liv<strong>in</strong>g<br />
off <strong>the</strong> earn<strong>in</strong>gs of prostituti<strong>on</strong>.<br />
6.16 It is difficult without fur<strong>the</strong>r and more detailed research to establish exactly what impact<br />
<strong>the</strong> above <strong>in</strong>creases to maximum penalties have had <strong>on</strong> <strong>in</strong>creas<strong>in</strong>g <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> <strong>in</strong> NSW. Each measure is narrowly targeted and likely to make <strong>on</strong>ly a marg<strong>in</strong>al<br />
<strong>in</strong>crease to <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> that is difficult to detect. Taken <strong>in</strong>dividually, many of <strong>the</strong><br />
penalties were argued to be justified <strong>in</strong> terms of <strong>the</strong> purpose of <strong>in</strong>capacitati<strong>on</strong> by target<strong>in</strong>g<br />
serious offenders. Additi<strong>on</strong>ally, when <strong>the</strong> list above is cross-referenced to details published<br />
for <strong>the</strong> most serious offence for which <strong>in</strong>mates are impris<strong>on</strong>ed (see chapter Four), <strong>the</strong>y do<br />
not appear to have had a significant impact, although <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has not <strong>in</strong>vestigated<br />
this <strong>in</strong> depth.<br />
Guidel<strong>in</strong>e Judgements<br />
6.17 In October 1998, <strong>the</strong> full NSW Court of Crim<strong>in</strong>al Appeal, presided over by Chief Justice<br />
Spigelman handed down <strong>the</strong> State’s first guidel<strong>in</strong>e judgement. The impact of this<br />
development has already been referred to <strong>in</strong> Chapter Five. The Chief Judge went <strong>in</strong>to<br />
some length to expla<strong>in</strong> that <strong>the</strong> formal step of issu<strong>in</strong>g guidel<strong>in</strong>e judgments was a logical<br />
development of l<strong>on</strong>gstand<strong>in</strong>g practise. However he also acknowledged that <strong>the</strong> practice<br />
was be<strong>in</strong>g undertaken <strong>in</strong> resp<strong>on</strong>se to public c<strong>on</strong>cern, so that such judgments may re<strong>in</strong>force<br />
public c<strong>on</strong>fidence <strong>in</strong> <strong>the</strong> <strong>in</strong>tegrity of <strong>the</strong> process of sentenc<strong>in</strong>g. The judgement drew<br />
heavily <strong>on</strong> practice <strong>in</strong> <strong>the</strong> United K<strong>in</strong>gdom and expressly rejected <strong>the</strong> “grid” sentenc<strong>in</strong>g<br />
practices that had been imposed by some legislatures <strong>in</strong> <strong>the</strong> United States to limit judicial<br />
discreti<strong>on</strong>:<br />
The critical difference between judicial guidel<strong>in</strong>es and statutory guidel<strong>in</strong>es -<br />
whe<strong>the</strong>r m<strong>in</strong>imum penalties or a grid system - is <strong>the</strong> flexibility of <strong>the</strong> former.<br />
There is provisi<strong>on</strong> for <strong>the</strong> special or excepti<strong>on</strong>al case. There is recogniti<strong>on</strong> that<br />
sentenc<strong>in</strong>g must serve <strong>the</strong> objective of rehabilitati<strong>on</strong>, as well as <strong>the</strong> objectives of<br />
denunciati<strong>on</strong> and deterrence. A trial judge can resp<strong>on</strong>d appropriately to all <strong>the</strong><br />
circumstances of a particular case. … (and) .. The preservati<strong>on</strong> of a broad<br />
sentenc<strong>in</strong>g discreti<strong>on</strong> is central to <strong>the</strong> ability of <strong>the</strong> crim<strong>in</strong>al courts to ensure<br />
justice is d<strong>on</strong>e <strong>in</strong> all <strong>the</strong> extraord<strong>in</strong>ary variety of circumstances of <strong>in</strong>dividual<br />
offences and <strong>in</strong>dividual offender. 125<br />
6.18 Reference has already been made <strong>in</strong> Chapter Five of <strong>the</strong> possible impact that guidel<strong>in</strong>e<br />
judgements have had, and are likely to have <strong>in</strong> <strong>the</strong> future <strong>on</strong> <strong>in</strong>creas<strong>in</strong>g <strong>the</strong> size of <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong>. The <strong>in</strong>creased penalties may, however, <strong>on</strong>ly have an impact <strong>on</strong> a limited<br />
number of offenders.<br />
125 Spigelman CJ, 1998 Jurisic (Christopher Tom) NSW CCA 12-Oct-1998.<br />
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SELECT COMMITTEE<br />
Evidence of Effectiveness of Incapacitati<strong>on</strong><br />
6.19 One purpose of <strong>in</strong>creas<strong>in</strong>g impris<strong>on</strong>ment penalties is to deter people from committ<strong>in</strong>g<br />
particular crimes or to keep <strong>the</strong>m <strong>in</strong> gaol for sufficient time to ext<strong>in</strong>guish <strong>the</strong>ir desire to<br />
commit <strong>the</strong>se crimes. There has been a significant amount of research d<strong>on</strong>e to test whe<strong>the</strong>r<br />
keep<strong>in</strong>g people <strong>in</strong> gaol prevents crime.<br />
6.20 Initially <strong>the</strong>re were a number of researchers who gave support to <strong>the</strong> proposal that keep<strong>in</strong>g<br />
people <strong>in</strong> gaol significantly prevented crime. These <strong>in</strong>cluded studies by J. Cohen, “The<br />
Incapacitive Effect of Impris<strong>on</strong>ment: A Critical review of <strong>the</strong> Literature” 126 and James Q.<br />
Wils<strong>on</strong>, Th<strong>in</strong>k<strong>in</strong>g About Crime (1975) 127 . Wils<strong>on</strong> for example suggested that a reducti<strong>on</strong> of<br />
up to 20 percent <strong>in</strong> <strong>the</strong> robbery rate was possible by follow<strong>in</strong>g a strategy of impris<strong>on</strong><strong>in</strong>g<br />
serious offenders.<br />
6.21 Most of <strong>the</strong> research which has been d<strong>on</strong>e to calculate <strong>the</strong> deterrent effect of<br />
impris<strong>on</strong>ment has used ma<strong>the</strong>matical models of <strong>the</strong> crime habits of crim<strong>in</strong>als based <strong>on</strong><br />
various surveys of actual <strong>in</strong>dividual crim<strong>in</strong>al histories. Informati<strong>on</strong> about crim<strong>in</strong>al histories<br />
was ga<strong>the</strong>red by self-report<strong>in</strong>g surveys of <strong>in</strong>mates or by exam<strong>in</strong><strong>in</strong>g files. The researchers<br />
“tested” <strong>the</strong> likely impact <strong>on</strong> crime rates that lock<strong>in</strong>g similar <strong>in</strong>dividuals up might have, for<br />
various periods of time. In most <strong>in</strong>stances <strong>the</strong> researchers assumed that gaol had no<br />
rehabilitative effect at all. The sole impact of <strong>in</strong>carcerati<strong>on</strong> was that it denied crim<strong>in</strong>als <strong>the</strong><br />
opportunity to commit crime at <strong>the</strong> same rate <strong>in</strong>dicated by <strong>the</strong>ir crim<strong>in</strong>al histories.<br />
6.22 Many of <strong>the</strong>se studies were exam<strong>in</strong>ed by <strong>the</strong> NSW Bureau of Crime Statistics and Research<br />
<strong>in</strong> a study by Janet Chan, Senior Lecturer of <strong>the</strong> School of Social Science and Policy at <strong>the</strong><br />
University of New South Wales published <strong>in</strong> 1995. Ms Chan c<strong>on</strong>cluded:<br />
The research suggests that estimates of <strong>the</strong> impact of … <strong>in</strong>capacitati<strong>on</strong> vary<br />
c<strong>on</strong>siderably from <strong>on</strong>e study to ano<strong>the</strong>r and depend<strong>in</strong>g <strong>on</strong> <strong>the</strong> severity of <strong>the</strong><br />
policy. However, a modest reducti<strong>on</strong> <strong>in</strong> crime <strong>in</strong>volves pay<strong>in</strong>g a high price <strong>in</strong><br />
terms of <strong>in</strong>creases <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>: a ten- percent decrease <strong>in</strong> crime<br />
typically requires a doubl<strong>in</strong>g of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. (More) <str<strong>on</strong>g>Select</str<strong>on</strong>g>ive<br />
<strong>in</strong>capacitati<strong>on</strong> promises a better trade off by target<strong>in</strong>g offenders who have high<br />
rates of offend<strong>in</strong>g. Such policies, however, punish offenders <strong>on</strong> <strong>the</strong> basis of<br />
predicti<strong>on</strong>, an exercise heavily criticised both <strong>on</strong> technical and ethical grounds.<br />
The attracti<strong>on</strong>s of such policies are c<strong>on</strong>siderably diluted when crime reducti<strong>on</strong><br />
benefits were found to be more modest than <strong>in</strong>itially claimed and <strong>the</strong> rate of “false<br />
positives” unacceptably high.<br />
In c<strong>on</strong>clusi<strong>on</strong>, it is important to po<strong>in</strong>t out that <strong>the</strong> models used to evaluate <strong>the</strong><br />
effectiveness of <strong>in</strong>capacitati<strong>on</strong> are based <strong>on</strong> a number of assumpti<strong>on</strong>s, which may<br />
<strong>in</strong> fact be false. For example, <strong>the</strong> assumpti<strong>on</strong> that offenders sentenced to<br />
impris<strong>on</strong>ment are not replaced by o<strong>the</strong>r offenders may not hold for activities such<br />
as drug traffick<strong>in</strong>g or property crime where a market for <strong>the</strong> illegal substance or<br />
stolen goods exists. The assumpti<strong>on</strong> that <strong>in</strong>dividual offend<strong>in</strong>g rates are stable over<br />
<strong>the</strong>ir “crim<strong>in</strong>al careers” has also been challenged by some research f<strong>in</strong>d<strong>in</strong>gs. Any<br />
126 In Blumste<strong>in</strong>, et al. (eds) Deterrence and Incapacitati<strong>on</strong>, Wash<strong>in</strong>gt<strong>on</strong> (1978).<br />
127 Sec<strong>on</strong>d Editi<strong>on</strong> published by Basic Books, New York (1983).<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
violati<strong>on</strong> of <strong>the</strong>se assumpti<strong>on</strong>s would lead to a lower estimate of <strong>the</strong> <strong>in</strong>capacitative<br />
effect of impris<strong>on</strong>ment. 128<br />
6.23 More recently, some researchers have started to exam<strong>in</strong>e <strong>the</strong> <strong>in</strong>direct negative impact that<br />
impris<strong>on</strong>ment has <strong>on</strong> families and communities. They speculate that <strong>in</strong>creas<strong>in</strong>g rates of<br />
impris<strong>on</strong>ment may <strong>in</strong> fact cause more crime. 129<br />
Increas<strong>in</strong>g Costs of Incarcerati<strong>on</strong><br />
6.24 The c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g <strong>in</strong>crease <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> forecasts a significant and <strong>in</strong>creas<strong>in</strong>g<br />
f<strong>in</strong>ancial cost to New South Wales.<br />
6.25 The cost per <strong>in</strong>mate per day by security classificati<strong>on</strong> as stated <strong>in</strong> <strong>the</strong> Department of<br />
Corrective Services’ Annual <strong>Report</strong> 1999/2000 is:<br />
Maximum security:<br />
Medium security:<br />
M<strong>in</strong>imum security:<br />
$181.14 per day – $64,485.84 per annum<br />
$163.19 per day – $58,095.64 per annum<br />
$138.93 per day – $49,459.08 per annum<br />
6.26 The Department of Corrective Service’s Annual <strong>Report</strong> 1998/99 reports that <strong>the</strong> average<br />
cost per offender per day when complet<strong>in</strong>g a community based program delivered by <strong>the</strong><br />
Probati<strong>on</strong> and Parole Services is $8.63. 130<br />
Fund<strong>in</strong>g of Department of Corrective Services<br />
6.27 The 1999/2000 Annual <strong>Report</strong> shows that for <strong>the</strong> year ended 30 June 2000, <strong>the</strong><br />
Department of Corrective Services net expenditure was $549.6 milli<strong>on</strong>, with a total<br />
Government c<strong>on</strong>tributi<strong>on</strong> of $507.7 milli<strong>on</strong>.<br />
6.28 In <strong>the</strong> 2001-2002 Budget Papers <strong>the</strong> Government notes that <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g full time <strong>in</strong>mate<br />
populati<strong>on</strong> has impacted <strong>on</strong> expenditure trends with<strong>in</strong> <strong>the</strong> Department of Corrective<br />
Services over recent years:<br />
One of <strong>the</strong> key strategic issues <strong>in</strong> 2001-02 fac<strong>in</strong>g <strong>the</strong> Department is <strong>the</strong> predicted<br />
growth <strong>in</strong> <strong>the</strong> full time <strong>in</strong>mate populati<strong>on</strong> <strong>in</strong> comparis<strong>on</strong> to current and proposed<br />
facility operati<strong>on</strong>al capacity. 131<br />
6.29 The Budget Estimates Papers for 2001/2002 estimate expenditure for 2000-2001 as $531.5<br />
milli<strong>on</strong> and allocates $560.3 milli<strong>on</strong> for 2001-2002. 132<br />
128 Janet Chan, Crime and Justice Bullet<strong>in</strong>, NSW BOCSAR, September 1995.<br />
129 Todd R Clear, “Backfire: When Incarcerati<strong>on</strong> <strong>Increase</strong>s Crime” accessed from <strong>the</strong> Internet <strong>on</strong><br />
www.doc.state.ok.us/DOCS/OCJRC/Ocjrc96/Ocjrc7.htm<br />
130 Department of Corrective Services, Annual <strong>Report</strong> 1998/99.<br />
131 Budget Paper No. 3 2000-2001, Vol 1, 7-5; 7-6.<br />
132 Budget Paper No. 3 2000-2001, Vol 1, 7-28.<br />
72 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
6.30 The proporti<strong>on</strong> of expenditure <strong>on</strong> <strong>the</strong> Department’s programs are:<br />
• community supervisi<strong>on</strong> - 10%,<br />
• c<strong>on</strong>ta<strong>in</strong>ment and care of <strong>in</strong>mates - 73%; and<br />
• assessment, classificati<strong>on</strong> and development of <strong>in</strong>mates - 17%. 133<br />
6.31 The Budget Papers note that provisi<strong>on</strong> has been made <strong>in</strong> 2001-02 for <strong>the</strong> follow<strong>in</strong>g items:<br />
• Fund<strong>in</strong>g for <strong>the</strong> expansi<strong>on</strong> of <strong>the</strong> Department’s correcti<strong>on</strong>al bed capacity to cope<br />
with <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>in</strong>mate numbers estimated to cost $8 milli<strong>on</strong> <strong>in</strong> 2001-02.<br />
• 200 Bed Parklea Metropolitan Remand Centre – <strong>the</strong> centre will provide 200 new<br />
beds for young offenders at a cost of $36.6milli<strong>on</strong> ($19 milli<strong>on</strong> <strong>in</strong> 2001-2002).<br />
• 350 Bed Mid North Coast Correcti<strong>on</strong>al Centre at Kempsey - this project <strong>in</strong>volves<br />
<strong>the</strong> c<strong>on</strong>structi<strong>on</strong> of a new purpose built multi-classificati<strong>on</strong> Correcti<strong>on</strong>al Centre<br />
for male and female <strong>in</strong>mates at an estimated cost of $70 milli<strong>on</strong> ($20 milli<strong>on</strong> <strong>in</strong><br />
2001-2002).<br />
• 200 Bed Metropolitan Women’s Correcti<strong>on</strong>al Centre – <strong>the</strong> c<strong>on</strong>structi<strong>on</strong> of a new<br />
purpose built Correcti<strong>on</strong>al Centre for female <strong>in</strong>mates. The Centre will provide<br />
200 new beds and operate as a multi-classificati<strong>on</strong> Centre, enabl<strong>in</strong>g Mulawa<br />
Correcti<strong>on</strong>al Centre to cater specifically for remand and special needs female<br />
<strong>in</strong>mates. The estimated total cost for <strong>the</strong> project is $48 milli<strong>on</strong> ($20 milli<strong>on</strong> <strong>in</strong><br />
2001-2002.)<br />
• Infrastructure Upgrade for Silverwater Correcti<strong>on</strong>al Complex – c<strong>on</strong>structi<strong>on</strong> of a<br />
new gatehouse, adm<strong>in</strong>istrati<strong>on</strong> facilities and visitors’ centre and will provide<br />
additi<strong>on</strong>al program space for <strong>in</strong>mates. The estimated total cost of <strong>the</strong> project is<br />
$55 milli<strong>on</strong> ($2.8 milli<strong>on</strong> <strong>in</strong> 2001-2002).<br />
• Goulburn Redevelopment – Stage Two – A new <strong>in</strong>tensive case management<br />
facility for seventy-five <strong>in</strong>mates is currently be<strong>in</strong>g c<strong>on</strong>structed with<strong>in</strong> an<br />
extensi<strong>on</strong> of <strong>the</strong> secure perimeter wall and a new visit<strong>in</strong>g facility, new gatehouse,<br />
c<strong>on</strong>trol room, adm<strong>in</strong>istrati<strong>on</strong> build<strong>in</strong>g and accommodati<strong>on</strong> for <strong>the</strong> Emergency<br />
Unit. The estimated total cost $41 milli<strong>on</strong> ($7.1 milli<strong>on</strong> <strong>in</strong> 2001-2002).<br />
• L<strong>on</strong>g Bay Redevelopment – <strong>the</strong> redevelopment will cater for <strong>the</strong>rapeutic special<br />
needs programs such as those for sex offenders, violent offenders, <strong>in</strong>mates with<br />
<strong>in</strong>tellectual disabilities, those at high risk of suicide, medical transients and<br />
offenders with major drug and/or alcohol problems. The estimated total cost of<br />
<strong>the</strong> project is $36.4 milli<strong>on</strong> ($7 milli<strong>on</strong> <strong>in</strong> 2001-2002). 134<br />
133 Department of Corrective Services, Annual <strong>Report</strong> 1999-2000, p34.<br />
134 Budget Paper No. 3 2000-2001, Vol 1, 7-6.- 7-8.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 73
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Trends <strong>in</strong> Increas<strong>in</strong>g Costs of Incarcerati<strong>on</strong><br />
6.32 The <strong>in</strong>creas<strong>in</strong>g costs of a ris<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> are more apparent if studied over time.<br />
The accompany<strong>in</strong>g graph <strong>in</strong>dicates that <strong>the</strong> total annual expenses for <strong>the</strong> Department of<br />
Corrective Services has <strong>in</strong>creased by 37 per cent <strong>in</strong> real terms s<strong>in</strong>ce 1994, equat<strong>in</strong>g to<br />
approximately $145 milli<strong>on</strong> additi<strong>on</strong>al expenditure a year <strong>in</strong> current terms.<br />
$500<br />
$400<br />
Total Expenses <strong>in</strong> Real Terms<br />
$milli<strong>on</strong><br />
$300<br />
$200<br />
$100<br />
$0<br />
1994 1995 1996 1997 1998 1999 2000<br />
Source: Annual <strong>Report</strong>s, ABS <strong>in</strong>flati<strong>on</strong> data, calculated by <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, verified by Corrective Services f<strong>in</strong>ance<br />
secti<strong>on</strong>.<br />
6.33 As at 30 June 2000 <strong>the</strong> Department of Corrective Services had 4,906 full time equivalent<br />
employees. Each year <strong>the</strong> Department of Corrective Services Annual <strong>Report</strong>s publishes<br />
statistics <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> employment of staff by category. The categories are “custody of<br />
<strong>in</strong>mates and deta<strong>in</strong>ees”, “community supervisi<strong>on</strong>” and “<strong>in</strong>tensive community supervisi<strong>on</strong>”<br />
(<strong>the</strong> Probati<strong>on</strong> and Parole Service). At 30 June 2000 <strong>the</strong>re were 3,402 custodial staff. 69%<br />
of <strong>the</strong> Department’s total staff were classified as “Operati<strong>on</strong>al – custodial”, compared to<br />
<strong>on</strong>ly 9 % classified as “Operati<strong>on</strong>al – community supervisi<strong>on</strong>”. 135<br />
6.34 As illustrated <strong>in</strong> <strong>the</strong> accompany<strong>in</strong>g graph, over time it would appear that <strong>the</strong> numbers of<br />
staff employed <strong>in</strong> <strong>the</strong> various categories of service for <strong>the</strong> Department of Corrective<br />
Services has rema<strong>in</strong>ed stable despite <strong>the</strong> <strong>in</strong>crease <strong>in</strong> pris<strong>on</strong> numbers:<br />
135 Department of Corrective Services, Annual <strong>Report</strong> 1999/2000, pp 30, 57.<br />
74 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Equivalent Full TIme Staff<br />
5000<br />
4000<br />
3000<br />
2000<br />
1000<br />
0<br />
DCS Staff by Category<br />
1996 1997 1998 1999 2000<br />
Custody of<br />
Inmates<br />
Community<br />
Supervisi<strong>on</strong><br />
Home<br />
Detenti<strong>on</strong><br />
Source: Annual <strong>Report</strong>s, calculated by <str<strong>on</strong>g>Committee</str<strong>on</strong>g>.<br />
6.35 The Department of Corrective Services has also published details of its expenditure<br />
accord<strong>in</strong>g to three programs: care and c<strong>on</strong>ta<strong>in</strong>ment of <strong>in</strong>mates, assessment, classificati<strong>on</strong><br />
and development of <strong>in</strong>mates and alternatives to custody. 136 The figures published <strong>in</strong><br />
Annual <strong>Report</strong>s from 1994 to 2000 have been displayed <strong>in</strong> an accompany<strong>in</strong>g graph:<br />
Program Expenditure<br />
$400,000<br />
$300,000<br />
Care &<br />
C<strong>on</strong>ta<strong>in</strong>ment<br />
$200,000<br />
$100,000<br />
Development<br />
$0<br />
1993<br />
1994<br />
1995<br />
1996<br />
1997<br />
1998<br />
1999<br />
2000<br />
Alternatives<br />
to Custody<br />
Note: The break <strong>in</strong> <strong>the</strong> graph is caused by <strong>the</strong> Department not publish<strong>in</strong>g comparable statistics <strong>in</strong><br />
<strong>the</strong> 1997/1998 Annual <strong>Report</strong>. 137<br />
6.36 These details appear to <strong>in</strong>dicate that while <strong>the</strong> numbers of staff employed <strong>in</strong> <strong>the</strong> various<br />
categories of work with<strong>in</strong> <strong>the</strong> Department have rema<strong>in</strong>ed stable, <strong>the</strong> expense of keep<strong>in</strong>g<br />
<strong>in</strong>mates <strong>in</strong> full time custody has <strong>in</strong>creased sharply. The <strong>in</strong>crease <strong>in</strong> expenditure for full time<br />
custody appears to rise more sharply than <strong>the</strong> o<strong>the</strong>r programs and appears to corresp<strong>on</strong>d<br />
with <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g numbers of <strong>in</strong>mates <strong>in</strong> full time custody. By comparis<strong>on</strong> <strong>the</strong> programs<br />
relat<strong>in</strong>g to alternatives to full time custody have rema<strong>in</strong>ed stable despite a similar <strong>in</strong>crease <strong>in</strong><br />
<strong>the</strong> number of people be<strong>in</strong>g sentenced to <strong>the</strong>se alternatives. The analysis of <strong>the</strong> trends <strong>in</strong><br />
spend<strong>in</strong>g illustrates fur<strong>the</strong>r <strong>the</strong> f<strong>in</strong>ancial benefits of divert<strong>in</strong>g as many <strong>in</strong>dividuals as<br />
possible from full time custody to alternative sancti<strong>on</strong>s.<br />
136 See notes <strong>on</strong> Programs <strong>in</strong> Department of Corrective Services Annual <strong>Report</strong>, 1999/2000 page 49.<br />
137 Statistics shown <strong>in</strong> graphs are taken from figures published <strong>in</strong> <strong>the</strong> published Annual <strong>Report</strong>s of <strong>the</strong><br />
Department of Corrective Services from 1994/95 – 1999-2000.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 75
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Inmate management<br />
Aims of Throughcare Program<br />
6.37 The Department of Corrective Services advises that overall management of <strong>the</strong> offender<br />
populati<strong>on</strong> is through a systematic and co-ord<strong>in</strong>ated approach referred to as Throughcare<br />
which manages offenders from <strong>the</strong>ir first c<strong>on</strong>tact with <strong>the</strong> Department to <strong>the</strong> completi<strong>on</strong><br />
of <strong>the</strong>ir supervisi<strong>on</strong> and transiti<strong>on</strong> back to <strong>the</strong> community. The aims of Throughcare are:<br />
• to ensure thorough coord<strong>in</strong>ati<strong>on</strong> of all areas of <strong>the</strong> Department that provide<br />
direct service delivery to offenders before, dur<strong>in</strong>g and after custody; and<br />
• to develop and establish core programs which reduce <strong>the</strong> likelihood of fur<strong>the</strong>r<br />
offend<strong>in</strong>g.<br />
6.38 Once <strong>in</strong> pris<strong>on</strong>, <strong>in</strong>mates enter a system of case management and classificati<strong>on</strong>. The<br />
Department of Corrective Services advises that while <strong>the</strong> process of case management and<br />
classificati<strong>on</strong> are not explicitly stated <strong>in</strong> legislati<strong>on</strong>, <strong>the</strong> rudimentary pr<strong>in</strong>ciples are c<strong>on</strong>ta<strong>in</strong>ed<br />
<strong>in</strong> Part 3 of <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 1999 which deals with <strong>the</strong> treatment<br />
of <strong>in</strong>mates and <strong>the</strong>ir separati<strong>on</strong> <strong>in</strong>to classes. The term classificati<strong>on</strong> derives from this<br />
separati<strong>on</strong> and refers to more than <strong>the</strong> assignment of security categories.<br />
Case management is a collaborative, multi-discipl<strong>in</strong>ary system of management<br />
which is used to assess, plan, implement, m<strong>on</strong>itor and evaluate programs and<br />
services developed to meet an <strong>in</strong>dividual <strong>in</strong>mate’s assessed crim<strong>in</strong>ogenic and risk<br />
needs, hav<strong>in</strong>g regard to community expectati<strong>on</strong>s. As a management structure it<br />
coord<strong>in</strong>ates <strong>the</strong> processes of assessment, case plann<strong>in</strong>g, classificati<strong>on</strong> and security,<br />
as well as l<strong>in</strong>k<strong>in</strong>g <strong>the</strong> roles of <strong>in</strong>dividual staff, for example Case Officers and<br />
Inmate Development Services (IDS) - <strong>in</strong>to teams.<br />
Central to <strong>the</strong> case management process is <strong>the</strong> formulati<strong>on</strong> of a case plan for each<br />
<strong>in</strong>mate who is received <strong>in</strong>to custody. There is an important l<strong>in</strong>k between <strong>the</strong> case<br />
plan and classificati<strong>on</strong>.<br />
The Department assesses <strong>the</strong> risk presented by each <strong>in</strong>mate with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text of<br />
its duty of care towards <strong>the</strong> <strong>in</strong>mate. A fundamental comp<strong>on</strong>ent of <strong>the</strong> assessment<br />
process is <strong>the</strong> identificati<strong>on</strong> of <strong>the</strong> factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> offend<strong>in</strong>g behaviour<br />
(crim<strong>in</strong>ogenic needs). The assessment forms <strong>the</strong> foundati<strong>on</strong> of <strong>the</strong> case plan,<br />
prescrib<strong>in</strong>g <strong>the</strong> developmental programs which will be implemented dur<strong>in</strong>g <strong>the</strong><br />
period of <strong>in</strong>carcerati<strong>on</strong>. This l<strong>in</strong>ks <strong>in</strong>to <strong>the</strong> classificati<strong>on</strong> process which is an<br />
outcome of case management. 138<br />
138 Department of Corrective Services, Submissi<strong>on</strong> 63 (Supplementary submissi<strong>on</strong>).<br />
76 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Classificati<strong>on</strong> System and Case Management<br />
6.39 Inmate classificati<strong>on</strong> is grounded <strong>in</strong> <strong>the</strong> belief that:<br />
• <strong>the</strong>re are differences <strong>in</strong> levels of risk between <strong>in</strong>mates that can be identified or<br />
measured, and<br />
• that separati<strong>on</strong> of different categories of offenders is desirable.<br />
6.40 Clause 10 and 11 of <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) (Correcti<strong>on</strong>al Centre Rout<strong>in</strong>e)<br />
Regulati<strong>on</strong> 1995 sets out <strong>the</strong> classificati<strong>on</strong> system for men and women <strong>in</strong> New South Wales<br />
correcti<strong>on</strong>al facilities.<br />
6.41 Dr Leo Keliher, Commissi<strong>on</strong>er, NSW Department of Corrective Services advised <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> that approximately 90 per cent of <strong>in</strong>mates proceed through <strong>the</strong> classificati<strong>on</strong><br />
system from start to f<strong>in</strong>ish. Excepti<strong>on</strong>s to this <strong>in</strong>clude those <strong>in</strong>mates c<strong>on</strong>victed of a very<br />
serious crime. For example, a pers<strong>on</strong> who is sentenced to <strong>the</strong> term of his natural life, will<br />
not be eligible for work release or C3 m<strong>in</strong>imum security classificati<strong>on</strong>; also those who are<br />
sentenced for a relatively serious violent crimes but for a relatively short period will be<br />
<strong>in</strong>eligible. The violent offender may spend <strong>the</strong> entire time as a maximum security <strong>in</strong>mate.<br />
Dr Keliher fur<strong>the</strong>r advised:<br />
We believe that by offer<strong>in</strong>g <strong>the</strong> classificati<strong>on</strong> system, as it stands as a process, that<br />
really gets around <strong>the</strong> issue of remissi<strong>on</strong>s. People will strive to get a m<strong>in</strong>imum<br />
security classificati<strong>on</strong> so that <strong>the</strong>y can have l<strong>on</strong>ger hours out of cells, <strong>the</strong>y can have<br />
<strong>the</strong> opportunity to go outside <strong>the</strong> walls of <strong>the</strong> gaol to work, <strong>the</strong>y can have <strong>the</strong><br />
opportunity to engage <strong>in</strong> work release programs, educati<strong>on</strong> leave programs and so<br />
<strong>on</strong>, and we believe that that is <strong>the</strong> encouragement that needs to be put <strong>in</strong> place,<br />
but <strong>the</strong> vast majority, as I say, of <strong>in</strong>mates do have <strong>the</strong> opportunity to start at <strong>the</strong><br />
top of <strong>the</strong> classificati<strong>on</strong> and work <strong>the</strong>ir way through, and some of our most<br />
notorious <strong>in</strong>mates have d<strong>on</strong>e that. 139<br />
6.42 The Department of Corrective Services advises that, <strong>in</strong> practice, <strong>the</strong> Commissi<strong>on</strong>er has<br />
delegated <strong>the</strong> resp<strong>on</strong>sibility for <strong>the</strong> classificati<strong>on</strong> of <strong>in</strong>mates to <strong>the</strong> Case Management<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g>, chaired by a Manager Classificati<strong>on</strong>, from <strong>the</strong> Inmate Classificati<strong>on</strong> & Case<br />
Management Branch. The <strong>on</strong>ly excepti<strong>on</strong> of those managed by <strong>the</strong> Serious Offenders<br />
Review Council.<br />
ICAC <strong>Report</strong><br />
6.43 In March 1999 <strong>the</strong> Independent Commissi<strong>on</strong> Aga<strong>in</strong>st Corrupti<strong>on</strong> released its research<br />
report <strong>in</strong>to <strong>the</strong> Department’s case management of <strong>in</strong>mates <strong>in</strong> full-time custody entitled Case<br />
Management <strong>in</strong> NSW Correcti<strong>on</strong>al Centres. The ICAC report listed a number of views of both<br />
<strong>in</strong>mates and staff about case management. The criticisms by <strong>in</strong>mates <strong>in</strong>cluded:<br />
• Difficult to access case files<br />
139 Keliher, Evidence, 12 February, 2000, p 55.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 77
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
• Lack of c<strong>on</strong>sultati<strong>on</strong> <strong>on</strong> case plans<br />
• Delays <strong>in</strong> preparati<strong>on</strong> of reports<br />
• Effects of classificati<strong>on</strong> and movement decisi<strong>on</strong>s<br />
• Inability to access Inmate Development Services (IDS) staff and employment<br />
opportunities<br />
• Disputes with staff affect<strong>in</strong>g outcomes<br />
The criticisms by staff <strong>in</strong>cluded:<br />
• Lack of time and resources<br />
• Difficulties <strong>in</strong> access<strong>in</strong>g IDS staff<br />
• Difficulties <strong>in</strong> <strong>in</strong>teracti<strong>on</strong> with <strong>in</strong>mates<br />
6.44 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> made two recommendati<strong>on</strong>s <strong>in</strong> its Interim <strong>Report</strong> <strong>in</strong> relati<strong>on</strong> to case<br />
management based <strong>on</strong> <strong>the</strong> evidence received and <strong>on</strong> <strong>the</strong> f<strong>in</strong>d<strong>in</strong>gs of <strong>the</strong> ICAC report. In<br />
essence, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommended that <strong>the</strong> M<strong>in</strong>ister for Corrective Services implement<br />
<strong>the</strong> revised model of case management based <strong>on</strong> <strong>the</strong> ICAC report and that <strong>the</strong> M<strong>in</strong>ister<br />
ensure that a case management plan is developed for each new <strong>in</strong>mate. In resp<strong>on</strong>se, <strong>the</strong><br />
M<strong>in</strong>ister stated that case management had been re<strong>in</strong>vigorated <strong>in</strong> 1999 follow<strong>in</strong>g <strong>the</strong> ICAC<br />
report and that <strong>the</strong> Senior Assistant Commissi<strong>on</strong>er and Assistant Commissi<strong>on</strong>er Inmate<br />
Services had pers<strong>on</strong>ally addressed staff at <strong>the</strong> majority of correcti<strong>on</strong>al centres to re<strong>in</strong>force<br />
Departmental expectati<strong>on</strong>s with regard to case management. 140<br />
Recent Criticisms of Case Management<br />
6.45 S<strong>in</strong>ce complet<strong>in</strong>g its Interim <strong>Report</strong>, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has heard fur<strong>the</strong>r criticisms of <strong>the</strong> case<br />
management system from <strong>in</strong>mates <strong>in</strong>clud<strong>in</strong>g that <strong>the</strong>y had not met <strong>the</strong>ir case manager or<br />
had not seen <strong>the</strong>ir case manager s<strong>in</strong>ce first enter<strong>in</strong>g pris<strong>on</strong>. O<strong>the</strong>r <strong>in</strong>mates stated that <strong>the</strong><br />
need to transfer <strong>in</strong>mates between pris<strong>on</strong>s <strong>in</strong>terrupted case management plans.<br />
6.46 One pris<strong>on</strong>er at Junee Correcti<strong>on</strong>al Centre told <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> evidence that:<br />
case management…would work if <strong>the</strong>y had enough pris<strong>on</strong> officers to look after a<br />
small number of <strong>in</strong>mates. They have <strong>on</strong>e pris<strong>on</strong> officer to about 30 <strong>in</strong>mates and<br />
he doesn’t have <strong>the</strong> time and most of <strong>the</strong>m do not care. They just fill out <strong>the</strong><br />
paperwork and do not even bo<strong>the</strong>r serv<strong>in</strong>g <strong>in</strong>mates anyway. 141<br />
6.47 The Inspector-General of Corrective Services, L<strong>in</strong>dsey Le Compte, stated <strong>in</strong> his Annual<br />
<strong>Report</strong> for <strong>the</strong> year ended 30 June 2000 that both <strong>in</strong>mates and staff had <strong>in</strong>dicated to him<br />
that <strong>the</strong> problems identified by <strong>the</strong> ICAC report were still evident. 142 The Inspector-<br />
140 Government Resp<strong>on</strong>se 19 February 2001 p 3.<br />
141 Inmate Evidence 24 October 2000.<br />
142 Inspector-General of Corrective Services, Annual <strong>Report</strong> for year ended 30 June 2001, p 12.<br />
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SELECT COMMITTEE<br />
General c<strong>on</strong>sidered that, while <strong>the</strong> Department had taken acti<strong>on</strong> to address <strong>the</strong> issues<br />
identified by ICAC, a detailed strategic plan to address <strong>the</strong> difficulties of case management<br />
was needed. He also called for <strong>the</strong> availability of effective management <strong>in</strong>formati<strong>on</strong> so that<br />
o<strong>the</strong>r impacts <strong>on</strong> case management such as <strong>the</strong> classificati<strong>on</strong> process, movements and<br />
programs and services available at correcti<strong>on</strong>al centres were able to be more effectively<br />
<strong>in</strong>tegrated. The Inspector-General proposed to review <strong>the</strong> implementati<strong>on</strong> of <strong>the</strong> ICAC<br />
recommendati<strong>on</strong>s and to assess opti<strong>on</strong>s <strong>in</strong> relati<strong>on</strong> to <strong>in</strong>formati<strong>on</strong> flow, performance<br />
<strong>in</strong>dicators and <strong>the</strong> transparency and accountability of <strong>the</strong> system.<br />
6.48 In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> 12 June 2001, Assistant Commissi<strong>on</strong>er Inmate<br />
Development Services, Mr Luke Grant c<strong>on</strong>firmed <strong>the</strong> commitment of <strong>the</strong> Department of<br />
Corrective Services to case management. He stated:<br />
I am very disappo<strong>in</strong>ted to hear that <strong>in</strong>mates are not aware who <strong>the</strong>ir case officers<br />
are and I had really hoped that that wasn't <strong>the</strong> case across <strong>the</strong> system. I would be<br />
surprised if that is <strong>the</strong> case everywhere. The system of case management has been<br />
a very difficult process to implement because such a fundamental change to <strong>the</strong><br />
way we do bus<strong>in</strong>ess <strong>in</strong> correcti<strong>on</strong>s <strong>in</strong>volves custodial staff car<strong>in</strong>g for a group of<br />
identified <strong>in</strong>mates and all staff hav<strong>in</strong>g such a case load and it also, as you imply has<br />
a comp<strong>on</strong>ent of programm<strong>in</strong>g, case plann<strong>in</strong>g or participat<strong>in</strong>g <strong>in</strong> programs that<br />
will, ultimately ideally result <strong>in</strong> a reducti<strong>on</strong> <strong>in</strong> offend<strong>in</strong>g.<br />
We are very c<strong>on</strong>cerned about case management and <strong>in</strong> fact <strong>in</strong> terms of <strong>the</strong><br />
resources we are putt<strong>in</strong>g <strong>in</strong> to try and make it work. We have an offl<strong>in</strong>e team, a<br />
multidiscipl<strong>in</strong>ary team, called a correcti<strong>on</strong>s operati<strong>on</strong>al support team. The whole<br />
functi<strong>on</strong> of that team is to improve <strong>the</strong> implementati<strong>on</strong> of case management and<br />
m<strong>on</strong>itor <strong>the</strong> implementati<strong>on</strong> of case management state wide and develop<br />
resources so that staff develop <strong>the</strong> skills to do what we want. In terms of <strong>in</strong>mates<br />
and <strong>the</strong>ir own awareness of what’s happen<strong>in</strong>g to <strong>the</strong>m, we have a number of<br />
strategies <strong>in</strong> place for that. One of <strong>the</strong>se is a multimedia unit and <strong>the</strong> process of<br />
develop<strong>in</strong>g videos.<br />
We have d<strong>on</strong>e two videos now. One of <strong>the</strong>m is what to expect <strong>in</strong> your first 24<br />
hours. That is written <strong>in</strong>to six languages. A lot of <strong>the</strong> <strong>on</strong>us we th<strong>in</strong>k should also be<br />
<strong>on</strong> <strong>in</strong>mates seek<strong>in</strong>g out programs and seek<strong>in</strong>g out <strong>the</strong> services of <strong>the</strong>ir case officer.<br />
The sec<strong>on</strong>d video is to carry people <strong>in</strong>to <strong>the</strong>ir next part of <strong>the</strong>ir sentence—an<br />
<strong>in</strong>ducti<strong>on</strong> video to be shown to all <strong>in</strong>mates and, aga<strong>in</strong>, it is <strong>in</strong> six languages as well<br />
is aimed towards expla<strong>in</strong><strong>in</strong>g am<strong>on</strong>gst o<strong>the</strong>r th<strong>in</strong>gs how case management should<br />
operate. 143<br />
6.49 It appears to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that despite <strong>the</strong> Department’s commitment to case<br />
management it is struggl<strong>in</strong>g to make Throughcare work effectively under <strong>the</strong> pressure of <strong>the</strong><br />
<strong>in</strong>creas<strong>in</strong>g numbers of pris<strong>on</strong>ers <strong>in</strong>carcerated. Greater resources and <strong>in</strong>creased priority to<br />
<strong>the</strong> problem still needs to be given. Effective case management is <strong>the</strong> foundati<strong>on</strong> for<br />
ensur<strong>in</strong>g <strong>in</strong>dividual pris<strong>on</strong>ers participate <strong>in</strong> appropriate programs.<br />
143 Grant Evidence 12 June 2001.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 79
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Recommendati<strong>on</strong> 9<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services give very high<br />
priority to <strong>the</strong> implementati<strong>on</strong> and evaluati<strong>on</strong> of case management <strong>in</strong> its Corporate<br />
Plan. The Department should be required to report back to Parliament <strong>in</strong> 12 m<strong>on</strong>ths<br />
time <strong>on</strong> how it has measured progress <strong>on</strong> address<strong>in</strong>g problems identified by ICAC,<br />
<strong>the</strong> Inspector General of Corrective Services and this <str<strong>on</strong>g>Committee</str<strong>on</strong>g>.<br />
Pris<strong>on</strong> programs<br />
6.50 As noted <strong>in</strong> <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong>, academic, anecdotal and statistical evidence<br />
<strong>in</strong>dicates that pris<strong>on</strong> is generally <strong>in</strong>effective <strong>in</strong> terms of rehabilitati<strong>on</strong> and often has a<br />
destructive effect <strong>on</strong> <strong>in</strong>dividuals who are <strong>in</strong>carcerated and <strong>on</strong> <strong>the</strong>ir families.<br />
6.51 There is a high rate of recidivism am<strong>on</strong>g offenders. Accord<strong>in</strong>g to <strong>the</strong> Comm<strong>on</strong>wealth<br />
Government’s <strong>Report</strong> <strong>on</strong> Government Services 2000, 62% of pris<strong>on</strong>ers had been previously<br />
impris<strong>on</strong>ed and most re-offend <strong>in</strong> <strong>the</strong> first three m<strong>on</strong>ths of release. Dr Richard Mat<strong>the</strong>ws,<br />
CEO of <strong>the</strong> Correcti<strong>on</strong>s Health Service advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that for <strong>the</strong> majority of<br />
<strong>in</strong>mates who are sentenced to six m<strong>on</strong>ths or less, it is unrealistic to expect rehabilitati<strong>on</strong> to<br />
occur dur<strong>in</strong>g <strong>the</strong>ir pris<strong>on</strong> sentence. Dr Mat<strong>the</strong>ws stated:<br />
People have unrealistic expectati<strong>on</strong>s about rehabilitati<strong>on</strong> <strong>in</strong> gaol and <strong>the</strong>re are<br />
three reas<strong>on</strong>s why <strong>the</strong>y are unrealistic. First, <strong>in</strong> adult <strong>in</strong>stituti<strong>on</strong>s, when people<br />
arrive for <strong>the</strong> first time, <strong>the</strong>re are already 18 years m<strong>in</strong>imum of history beh<strong>in</strong>d<br />
<strong>the</strong>m. That history often <strong>in</strong>volves <strong>the</strong> family use of drugs, parental abuse,<br />
alcoholism, violence… Then <strong>the</strong>y are <strong>in</strong> for a very short period of time and later<br />
<strong>the</strong>y return to <strong>the</strong> same envir<strong>on</strong>ment. It is actually unrealistic to expect that very<br />
much that you do <strong>in</strong>side will make much difference to what people do when <strong>the</strong>y<br />
get out unless <strong>the</strong>y are sentenced for a reas<strong>on</strong>able period of time. 144<br />
6.52 Programs <strong>in</strong> pris<strong>on</strong>s are <strong>the</strong> resp<strong>on</strong>sibility of <strong>the</strong> Inmate Management Divisi<strong>on</strong>. The<br />
Inmate Management Divisi<strong>on</strong> places emphasis <strong>on</strong>:<br />
• Manag<strong>in</strong>g Offenders – safely and effectively manage offenders while<br />
enforc<strong>in</strong>g <strong>the</strong> orders of <strong>the</strong> court and discharg<strong>in</strong>g <strong>the</strong> duty of care;<br />
• Reduc<strong>in</strong>g Offend<strong>in</strong>g Behaviour – provide opportunities and<br />
encouragement for offenders to acquire <strong>in</strong>sights and skills to positively<br />
address deficits or addicti<strong>on</strong>s associated with offend<strong>in</strong>g behaviour.<br />
The Inmate Management Divisi<strong>on</strong> c<strong>on</strong>sists of:<br />
• Psychological Services;<br />
• Alcohol and O<strong>the</strong>r Drugs/HIV and Health Promoti<strong>on</strong> Unit<br />
(AOD/HHPU);<br />
• Welfare Services;<br />
144 Mat<strong>the</strong>ws Evidence 12 March 2001.<br />
80 F<strong>in</strong>al <strong>Report</strong> - November 2001
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• <strong>the</strong> Adult Educati<strong>on</strong> and Vocati<strong>on</strong>al Tra<strong>in</strong><strong>in</strong>g Institute (AEVTI)<br />
• <strong>the</strong> Chapla<strong>in</strong>cy;<br />
• Corrective Services Industries (CSI);<br />
• Inmate Classificati<strong>on</strong> and Programs;<br />
• Community Grants Program. 145<br />
6.53 Programs offered to eligible male <strong>in</strong>mates <strong>in</strong>clude educati<strong>on</strong>, <strong>in</strong>dustry, drug and alcohol<br />
programs, mental health, welfare and pre-release programs. There are also violence<br />
preventi<strong>on</strong> programs, sex offender programs and young offenders programs. Indigenous<br />
and culturally specific programs are also available.<br />
6.54 The Productivity Commissi<strong>on</strong> <strong>Report</strong> of Government Services 2001 notes that a key policy issue<br />
for corrective services across Australia <strong>in</strong> 1999-2000 was <strong>the</strong> c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g focus <strong>on</strong> policies<br />
and programs that address <strong>the</strong> transiti<strong>on</strong> from custody to community, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong><br />
c<strong>on</strong>t<strong>in</strong>uity of services between full-time custody and community correcti<strong>on</strong>s. A crucial part<br />
of <strong>the</strong> transiti<strong>on</strong> is ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g l<strong>in</strong>ks with families, and <strong>the</strong> provisi<strong>on</strong> of facilities and<br />
services to assist <strong>the</strong> transiti<strong>on</strong>.<br />
6.55 The Productivity Commissi<strong>on</strong> reports that a new framework of performance <strong>in</strong>dicators has<br />
been approved by Corrective Services adm<strong>in</strong>istrators and endorsed by Australian<br />
Corrective Services M<strong>in</strong>isters. Performance is reported aga<strong>in</strong>st six key result areas:<br />
c<strong>on</strong>ta<strong>in</strong>ment, community, reparati<strong>on</strong>, offender programs and advice to sentenc<strong>in</strong>g and<br />
releas<strong>in</strong>g authorities. The objectives for corrective services related to offender programs is<br />
to provide programs and opportunities that address <strong>the</strong> causes of offend<strong>in</strong>g and maximise<br />
<strong>the</strong> chances of successful re-<strong>in</strong>tegrati<strong>on</strong> <strong>in</strong>to <strong>the</strong> community.<br />
6.56 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> notes that <strong>the</strong> Department of Corrective Services is currently undertak<strong>in</strong>g,<br />
or plann<strong>in</strong>g to undertake evaluati<strong>on</strong>s of various pris<strong>on</strong>-based programs. These are<br />
presented <strong>in</strong> <strong>the</strong> table below, toge<strong>the</strong>r with completi<strong>on</strong> dates:<br />
Program Completi<strong>on</strong> Date Status<br />
Evaluati<strong>on</strong> of pris<strong>on</strong>-based drug free w<strong>in</strong>g programs August 2002 Current<br />
Evaluati<strong>on</strong> of a pris<strong>on</strong>-based pre-release alcohol and o<strong>the</strong>r<br />
drug <strong>the</strong>rapeutic community<br />
Evaluati<strong>on</strong> and development of <strong>the</strong> Violence Preventi<strong>on</strong><br />
Program (VPP) at Malabar Special Programs Centre and <strong>the</strong><br />
High Risk Management Unit (Goulburn)<br />
Evaluati<strong>on</strong> of a first tier alcohol and violence preventi<strong>on</strong><br />
program<br />
November 2002<br />
Ongo<strong>in</strong>g<br />
TBA<br />
Current<br />
Current<br />
Under<br />
c<strong>on</strong>siderati<strong>on</strong><br />
Evaluati<strong>on</strong> of <strong>the</strong> <strong>the</strong>rapeutic units for ‘at risk’ <strong>in</strong>mates Ongo<strong>in</strong>g Current<br />
Prelim<strong>in</strong>ary evaluati<strong>on</strong> of data collecti<strong>on</strong> and distributi<strong>on</strong><br />
procedures for Sex Offender Programs <strong>the</strong>rapeutic Units<br />
Sex Offender Treatment: The CUBIT and CORE programs <strong>in</strong><br />
NSW correcti<strong>on</strong>al facilities<br />
Ongo<strong>in</strong>g<br />
December 2001<br />
Current<br />
Current<br />
145 Department of Corrective Services Submissi<strong>on</strong> 63 p 39.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 81
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Program Completi<strong>on</strong> Date Status<br />
Basic educati<strong>on</strong> and literacy levels of <strong>in</strong>mates from recepti<strong>on</strong><br />
to discharge<br />
June 2002<br />
Await<strong>in</strong>g fund<strong>in</strong>g<br />
Evaluati<strong>on</strong> of <strong>the</strong> Restorative Justice Program June 2002 Current<br />
Evaluati<strong>on</strong> of <strong>the</strong> Aborig<strong>in</strong>al Sec<strong>on</strong>d Chance Program Ongo<strong>in</strong>g Await<strong>in</strong>g fund<strong>in</strong>g<br />
Evaluati<strong>on</strong> of Bolwara House Transiti<strong>on</strong>al Centre Ongo<strong>in</strong>g To commence <strong>on</strong><br />
program start<strong>in</strong>g<br />
Source: NSW Department of Corrective Service, Research Program 2001-2002<br />
6.57 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> supports <strong>the</strong> need for such evaluati<strong>on</strong>s, as it has seen few examples of<br />
useful evaluati<strong>on</strong>s of pris<strong>on</strong> programs, with some excepti<strong>on</strong>s such as that of <strong>the</strong> methad<strong>on</strong>e<br />
program. 146 Pris<strong>on</strong> activists and <strong>in</strong>mates dur<strong>in</strong>g <strong>the</strong> <strong>in</strong>quiry raised c<strong>on</strong>cerns about <strong>the</strong><br />
availability of certa<strong>in</strong> programs <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> limitati<strong>on</strong> or lack of programs <strong>in</strong> some pris<strong>on</strong>s<br />
and relat<strong>in</strong>g to time served and length of sentence. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was advised by <strong>in</strong>mates<br />
that, <strong>in</strong> <strong>the</strong> case of lengthy sentences, some <strong>in</strong>mates can experience an <strong>in</strong>tense period of<br />
participati<strong>on</strong> <strong>in</strong> programs at <strong>the</strong> beg<strong>in</strong>n<strong>in</strong>g of <strong>the</strong>ir sentence, followed by a l<strong>on</strong>g period of<br />
<strong>in</strong>attenti<strong>on</strong> until <strong>the</strong> f<strong>in</strong>al six m<strong>on</strong>ths.<br />
Drugs and alcohol<br />
6.58 As stated <strong>in</strong> Chapter Four, a significant percentage of <strong>in</strong>mates have an alcohol or o<strong>the</strong>r<br />
drug substance use problem. The Alcohol and O<strong>the</strong>r Drug Health Promoti<strong>on</strong> Service has<br />
implemented various strategies to address <strong>the</strong> needs of those <strong>in</strong>mates. The Department of<br />
Corrective Services submissi<strong>on</strong> states:<br />
These strategies range from <strong>the</strong> Core AOD HHPU Programs, Peer Support<br />
Programs and <strong>the</strong> c<strong>on</strong>tributi<strong>on</strong>s of various community organisati<strong>on</strong>s to <strong>the</strong> more<br />
specialised and <strong>in</strong>tense programs that will address <strong>the</strong> issues of relapse and<br />
recidivism for <strong>in</strong>mates with high <strong>in</strong>cidence of relapse. 147<br />
6.59 Drug Free W<strong>in</strong>gs have been established <strong>in</strong> three Correcti<strong>on</strong>al Centres: Parramatta, Emu<br />
Pla<strong>in</strong>s and Cessnock. Inmates who enter <strong>the</strong>se w<strong>in</strong>gs are selected through an assessment<br />
criteria which <strong>in</strong>cludes hav<strong>in</strong>g rema<strong>in</strong><strong>in</strong>g time to serve of not less than 3 m<strong>on</strong>ths and no<br />
more than 6 m<strong>on</strong>ths. Inmates are required to sign a c<strong>on</strong>tract <strong>in</strong> relati<strong>on</strong> to participati<strong>on</strong> <strong>in</strong><br />
<strong>the</strong> program and are subject to random ur<strong>in</strong>e analysis test<strong>in</strong>g. This program will work<br />
under <strong>the</strong> umbrella of harm m<strong>in</strong>imisati<strong>on</strong>, that is, <strong>the</strong>re will be a hierarchy of punishments<br />
and <strong>the</strong> use of relapse preventi<strong>on</strong> tools as an educati<strong>on</strong> strategy. The W<strong>in</strong>gs operate with<strong>in</strong><br />
<strong>the</strong> normal gaol rout<strong>in</strong>e and <strong>the</strong> programs and services attached to <strong>the</strong>se W<strong>in</strong>gs have <strong>the</strong><br />
l<strong>on</strong>g term aim of reduc<strong>in</strong>g offend<strong>in</strong>g behaviours.<br />
6.60 The Alcohol and O<strong>the</strong>r Drug Therapeutic Unit at L<strong>on</strong>g Bay Correcti<strong>on</strong>al Centre, called<br />
Ngara Nura, which has been operat<strong>in</strong>g s<strong>in</strong>ce November 2000, accommodates forty men at<br />
<strong>the</strong> pre-release stage of <strong>the</strong>ir sentence. It illustrates <strong>the</strong> use of pris<strong>on</strong> programs pre-release<br />
and l<strong>in</strong>ks with community based agencies:<br />
146 Dolan, Wodak and Hall, “Methad<strong>on</strong>e ma<strong>in</strong>tenance treatment reduces hero<strong>in</strong> <strong>in</strong>jecti<strong>on</strong> <strong>in</strong> NSW pris<strong>on</strong>s” Drug<br />
and Alcohol Review 1998, v17, pp 153-158.<br />
147 Department of Corrective Services, Submissi<strong>on</strong> 63 p 49.<br />
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SELECT COMMITTEE<br />
These <strong>in</strong>mates must be <strong>in</strong> <strong>the</strong> last 12 - 14 weeks of <strong>the</strong>ir sentence. The program<br />
c<strong>on</strong>tent is based <strong>on</strong> <strong>in</strong>creas<strong>in</strong>g l<strong>in</strong>ks to <strong>the</strong> community through facilitat<strong>in</strong>g social<br />
support networks and us<strong>in</strong>g <strong>the</strong> services of agencies such as <strong>the</strong> Department of<br />
Hous<strong>in</strong>g, TAFE and Centrel<strong>in</strong>k, as well as n<strong>on</strong> government agencies <strong>in</strong>volved <strong>in</strong><br />
<strong>the</strong> pris<strong>on</strong>er rehabilitati<strong>on</strong>. There is a str<strong>on</strong>g family rec<strong>on</strong>ciliati<strong>on</strong> comp<strong>on</strong>ent <strong>in</strong><br />
this program. It has been extensively researched with all programs <strong>in</strong> this unit<br />
based <strong>on</strong> a cognitive behavioural framework. The program-will be evaluated as<br />
recommended from <strong>the</strong> Drug Summit with <strong>the</strong> overall evaluati<strong>on</strong> framework<br />
be<strong>in</strong>g directed from <strong>the</strong> Office of Drug Policy. 148<br />
6.61 All programs <strong>in</strong> this unit are educati<strong>on</strong>al, <strong>the</strong>rapeutic and cognitively based. The<br />
Department of Corrective Service submissi<strong>on</strong> states that <strong>the</strong>se <strong>in</strong>tensive programs have<br />
been well researched and, whilst it is acknowledged that addicti<strong>on</strong> is a complex issue with<br />
many variables, <strong>the</strong> whole of community approach to service provisi<strong>on</strong> looks promis<strong>in</strong>g <strong>in</strong><br />
terms of successful outcomes. As noted above, <strong>the</strong> Department of Corrective Services will<br />
be evaluat<strong>in</strong>g <strong>the</strong> Drug Free W<strong>in</strong>g projects and pris<strong>on</strong>-based alcohol and o<strong>the</strong>r drugs<br />
programs.<br />
Programs for Sex Offenders<br />
6.62 One of <strong>the</strong> most <strong>in</strong>tensive programs with<strong>in</strong> <strong>the</strong> Department of Corrective Services aimed<br />
at reduc<strong>in</strong>g offend<strong>in</strong>g behaviour are <strong>the</strong> sex offender programs. The current highly<br />
structured programs have <strong>the</strong>ir orig<strong>in</strong>s <strong>in</strong> a review of sex offender programs undertaken<br />
dur<strong>in</strong>g 1994/1995 by a senior departmental cl<strong>in</strong>ical psychologist. A “comprehensive” sex<br />
offender program was developed and implemented dur<strong>in</strong>g <strong>the</strong> 1995/1996 f<strong>in</strong>ancial year at<br />
<strong>the</strong> former Cooma Correcti<strong>on</strong>al Centre. The program was fur<strong>the</strong>r developed dur<strong>in</strong>g 1996<br />
to <strong>in</strong>clude both a 16 week <strong>in</strong>tensive <strong>the</strong>rapy whilst <strong>in</strong>mates were <strong>in</strong> custody and a<br />
community stage. O<strong>the</strong>r, less structured, programs were offered at <strong>the</strong> Kirkc<strong>on</strong>nell Centre<br />
at Bathurst and <strong>the</strong> St Heliers Centre at Muswellbrook.<br />
6.63 Plans were <strong>in</strong>itiated to move <strong>the</strong> program to Sydney at L<strong>on</strong>g Bay because of <strong>the</strong> difficulty<br />
of attract<strong>in</strong>g specialist staff outside <strong>the</strong> Sydney metropolitan area. The <strong>in</strong>tensive program<br />
was suspended dur<strong>in</strong>g 1997 whilst it was moved to <strong>the</strong> develop<strong>in</strong>g Special Purpose Centre<br />
at L<strong>on</strong>g Bay. Eight staff were employed for what was to become a more extensive<br />
program. In 1998 <strong>the</strong> Department commenced screen<strong>in</strong>g <strong>in</strong>mates for its Custody Based<br />
Intensive Therapy (CUBIT) program at L<strong>on</strong>g Bay, <strong>in</strong>itially under <strong>the</strong> supervisi<strong>on</strong> of a<br />
<strong>the</strong>rapeutic c<strong>on</strong>sultant sec<strong>on</strong>ded from overseas. The program started with seven <strong>in</strong>mates<br />
<strong>in</strong> February 1999, build<strong>in</strong>g to 16 <strong>in</strong>mates by <strong>the</strong> end of June. The <strong>the</strong>rapy is now designed<br />
to last an average of 44 weeks to be c<strong>on</strong>ducted as <strong>the</strong> <strong>in</strong>mates near <strong>the</strong> end of <strong>the</strong>ir<br />
sentence.<br />
6.64 The sex offender treatment program run at Junee Correcti<strong>on</strong>al Centre - NETT SORT - is<br />
c<strong>on</strong>sidered a low <strong>in</strong>tensity treatment program by <strong>the</strong> Department of Corrective Services.<br />
Recently <strong>the</strong> Department <strong>in</strong> c<strong>on</strong>sultati<strong>on</strong> with Junee Correcti<strong>on</strong>al Centre have put<br />
guidel<strong>in</strong>es <strong>in</strong> place so that <strong>on</strong>ly lower risk sex offenders participate <strong>in</strong> <strong>the</strong> program. Junee<br />
Correcti<strong>on</strong>al Centre will assess offenders prior to acceptance <strong>in</strong>to a program. Moderate and<br />
high risk offenders at Junee Correcti<strong>on</strong>al Centre will now be referred directly to CUBIT.<br />
Lower risk sexual offenders will be able to undertake an appropriate treatment program<br />
148 Department of Corrective Services, Submissi<strong>on</strong> 63 (Supplementary).<br />
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(matched to <strong>the</strong>ir level of risk) ei<strong>the</strong>r at Junee Correcti<strong>on</strong>al Centre (NETT SORT) or<br />
with<strong>in</strong> Department of Corrective Services (CORE).<br />
6.65 The M<strong>in</strong>ister for Corrective Services provided <strong>the</strong> follow<strong>in</strong>g outl<strong>in</strong>e of <strong>the</strong> sex offender<br />
programs operated by <strong>the</strong> Department of Corrective Services:<br />
The sex offender treatment programs with<strong>in</strong> <strong>the</strong> Department of Corrective<br />
Services have been developed based <strong>on</strong> <strong>in</strong>ternati<strong>on</strong>al best practice and are based<br />
<strong>on</strong> research f<strong>in</strong>d<strong>in</strong>gs about effective correcti<strong>on</strong>al programm<strong>in</strong>g. The literature is<br />
very clear <strong>on</strong> what c<strong>on</strong>stitutes appropriate treatment services for such offenders.<br />
Empirical f<strong>in</strong>d<strong>in</strong>gs clearly dem<strong>on</strong>strate that effective correcti<strong>on</strong>al programm<strong>in</strong>g<br />
follow <strong>the</strong> risk, needs and resp<strong>on</strong>sivity pr<strong>in</strong>ciples. This means that:<br />
1. programs target <strong>the</strong> crim<strong>in</strong>ogenic factors that lead to <strong>the</strong> offend<strong>in</strong>g<br />
behaviour, as opposed to target<strong>in</strong>g o<strong>the</strong>r issues unrelated to <strong>the</strong> offend<strong>in</strong>g<br />
behaviour (need pr<strong>in</strong>ciple);<br />
2. are delivered at an <strong>in</strong>tensity that matches <strong>the</strong> risk level of <strong>the</strong> offender (risk<br />
pr<strong>in</strong>ciple);<br />
3. use modes of treatment that have been shown to be effective with <strong>the</strong><br />
crim<strong>in</strong>al populati<strong>on</strong> (resp<strong>on</strong>sivity pr<strong>in</strong>ciple).<br />
The Department of Corrective Services offers programs to meet all levels of risk<br />
and needs - high, moderate and low. These are:<br />
• <strong>the</strong> CUBIT high <strong>in</strong>tensity program for high risk offenders - ten m<strong>on</strong>ths<br />
residential;<br />
• CUBIT moderate <strong>in</strong>tensity program for moderate risk offenders - eight<br />
m<strong>on</strong>ths residential;<br />
• CORE (CUBIT outreach) lower <strong>in</strong>tensity program for lower risk offenders -<br />
five m<strong>on</strong>ths n<strong>on</strong> residential. 149<br />
6.66 The M<strong>in</strong>ister for Corrective Services also advised that <strong>the</strong> sex offender treatment programs<br />
run by <strong>the</strong> NSW Department of Corrective Services are based <strong>on</strong> standards written by <strong>the</strong><br />
Correcti<strong>on</strong>al Service of Canada which, <strong>in</strong> brief, are:<br />
• Assessment of sex offenders shall focus <strong>on</strong> offender risk/need,<br />
resp<strong>on</strong>sivity/treatability and <strong>the</strong> management of risk.<br />
• Tim<strong>in</strong>g, durati<strong>on</strong>, focus and <strong>in</strong>tensity of services based <strong>on</strong> offender’s level of<br />
risk, need, resp<strong>on</strong>sivity.<br />
• Treatment of sex offenders is a <strong>the</strong>rapeutic and structured <strong>in</strong>terventi<strong>on</strong> aimed<br />
at <strong>the</strong> reducti<strong>on</strong> of <strong>the</strong> risk to reoffend sexually.<br />
• Group treatment is <strong>the</strong> preferred treatment modality. Cognitive-behaviour<br />
<strong>the</strong>rapy approach.<br />
• Treatment goals: m<strong>in</strong>imisati<strong>on</strong> and rati<strong>on</strong>alisati<strong>on</strong>, attitudes and cognitive<br />
distorti<strong>on</strong>s, social competence skills, sexuality, offender victimisati<strong>on</strong>, victim<br />
awareness, deviant arousal and fantasy, anger management, relapse<br />
preventi<strong>on</strong>.<br />
149 Department of Corrective Services, Submissi<strong>on</strong> 63 (supplementary).<br />
84 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
• Program <strong>in</strong>tensity is l<strong>in</strong>ked to offender risk need. High <strong>in</strong>tensity programs<br />
recommended for offenders assessed as higher risk. Usually delivered <strong>in</strong><br />
specialised unit. Moderate <strong>in</strong>tensity, low <strong>in</strong>tensity, ma<strong>in</strong>tenance <strong>in</strong> custody,<br />
ma<strong>in</strong>tenance <strong>in</strong> community. 150<br />
6.67 Some provisi<strong>on</strong> has now been made for an Aborig<strong>in</strong>al worker with<strong>in</strong> <strong>the</strong> program to liaise<br />
with communities across <strong>the</strong> state to raise awareness of issues related to sex offender<br />
treatment, and <strong>in</strong> supervis<strong>in</strong>g and support<strong>in</strong>g treatment ga<strong>in</strong>s after <strong>the</strong> offender’s release.<br />
6.68 Whilst <strong>the</strong> sex offender programs are now well developed and operat<strong>in</strong>g c<strong>on</strong>sistently <strong>the</strong>y<br />
are still quite new. It addresses <strong>the</strong> needs of about 10 per cent of male <strong>in</strong>mates <strong>in</strong> full time<br />
custody. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has not been provided with any data <strong>in</strong>dicat<strong>in</strong>g <strong>the</strong> effectiveness<br />
of <strong>the</strong> sex offender programs and <strong>on</strong>ly scant details are available for public scrut<strong>in</strong>y <strong>on</strong> a<br />
regular basis <strong>in</strong> <strong>the</strong> Department’s Annual <strong>Report</strong>s.<br />
6.69 The Department of Corrective Services is currently evaluat<strong>in</strong>g <strong>the</strong> CUBIT and CORE<br />
programs. The evaluati<strong>on</strong>s will be completed <strong>in</strong> December 2001. The Department<br />
provided <strong>the</strong> follow<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> evaluati<strong>on</strong> of <strong>the</strong>se programs:<br />
It is important to assess whe<strong>the</strong>r <strong>the</strong> sex offender treatment programs are lead<strong>in</strong>g<br />
to <strong>the</strong> required changes <strong>in</strong> crim<strong>in</strong>ogenic needs of offenders and whe<strong>the</strong>r <strong>the</strong><br />
programs are lead<strong>in</strong>g <strong>in</strong> <strong>the</strong> l<strong>on</strong>ger term to a reducti<strong>on</strong> <strong>in</strong> recidivism.<br />
To determ<strong>in</strong>e whe<strong>the</strong>r <strong>the</strong> program is lead<strong>in</strong>g to changes <strong>in</strong> dynamic risk factors<br />
(also known as crim<strong>in</strong>ogenic needs), evaluati<strong>on</strong> of pre/post treatment measures is<br />
needed. Several prelim<strong>in</strong>ary studies have been c<strong>on</strong>ducted exam<strong>in</strong><strong>in</strong>g a range of<br />
treatment measures. A prelim<strong>in</strong>ary evaluati<strong>on</strong> of <strong>the</strong> impact of <strong>the</strong> sex offender<br />
treatment programs (CUBIT, CORE) <strong>on</strong> <strong>the</strong> cognitive distorti<strong>on</strong>s of sexual<br />
offenders found that both offence specific and general cognitive distorti<strong>on</strong>s had<br />
been reduced post treatment. Numbers <strong>in</strong> <strong>the</strong> sample were still small given that<br />
<strong>the</strong> program is <strong>on</strong>ly now achiev<strong>in</strong>g full capacity (permanent CUBIT began <strong>in</strong><br />
January, 2001). However, results of <strong>the</strong> studies are encourag<strong>in</strong>g as <strong>in</strong>ternati<strong>on</strong>al<br />
research shows that <strong>the</strong> successful reducti<strong>on</strong> of those dynamic factors leads to a<br />
reducti<strong>on</strong> of sexual recidivism <strong>in</strong> treated sexual offenders. 151<br />
6.70 In regard to whe<strong>the</strong>r <strong>the</strong> programs led to any reducti<strong>on</strong> <strong>in</strong> offend<strong>in</strong>g behaviour, <strong>the</strong><br />
Department said:<br />
This requires exam<strong>in</strong>ati<strong>on</strong> of recidivism rates for treated offenders compared to<br />
matched untreated offenders. This will be a l<strong>on</strong>g term study. Given <strong>the</strong> recency of<br />
<strong>the</strong> programs no data is available at this stage. However, this research is seen as<br />
crucial and is planned for when sufficient numbers have been through <strong>the</strong><br />
treatment programs. A database is be<strong>in</strong>g established to c<strong>on</strong>ta<strong>in</strong> comprehensive<br />
<strong>in</strong>formati<strong>on</strong> <strong>on</strong> all sex offenders with<strong>in</strong> <strong>the</strong> NSW Correcti<strong>on</strong>al system. 152<br />
150 Ibid.<br />
151 Ibid.<br />
152 Ibid.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 85
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6.71 The Australian Institute of Crim<strong>in</strong>ology reported <strong>in</strong> November 1999 that <strong>in</strong>itial estimates<br />
of a cost-benefit analysis of child sex-offender treatment programs for male offenders <strong>in</strong><br />
correcti<strong>on</strong>al services suggest that:<br />
with<strong>in</strong> plausible parameters, <strong>the</strong> costs of such programs are likely to be more than<br />
compensated by <strong>the</strong> benefits which <strong>the</strong>y produce (<strong>in</strong> terms of costs<br />
forg<strong>on</strong>e)…The exploratory work also suggests that, despite <strong>the</strong>se difficulties, <strong>the</strong><br />
magnitude of <strong>the</strong> problem of child sexual abuse generally, and offences by<br />
recidivists <strong>in</strong> particular, is such that its costs are substantial and <strong>the</strong> associated<br />
benefits to be achieved from appropriate treatment programs high. 153<br />
6.72 While <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> welcomes <strong>the</strong> delivery of <strong>the</strong>se programs, it is c<strong>on</strong>cerned that <strong>the</strong><br />
programs, because <strong>the</strong>y are new, have not had any opportunity to be evaluated for <strong>the</strong>ir<br />
effectiveness <strong>in</strong> reduc<strong>in</strong>g recidivism, as is <strong>the</strong> case with many o<strong>the</strong>r of <strong>the</strong> Department’s<br />
<strong>in</strong>mate programs. The Department’s submissi<strong>on</strong> states that <strong>the</strong> evaluati<strong>on</strong> of <strong>the</strong> program<br />
will:<br />
need to be managed for <strong>the</strong> next 15-20 years to ensure reliable results. 154<br />
6.73 This time frame may be valid to judge <strong>the</strong> overall effectiveness of <strong>the</strong> program. However<br />
<strong>the</strong>re should be useful results obta<strong>in</strong>ed much earlier for <strong>the</strong> Department to be assured that<br />
<strong>the</strong> programs are head<strong>in</strong>g <strong>in</strong> <strong>the</strong> right directi<strong>on</strong>. For <strong>in</strong>stance, if offenders are immediately<br />
re-offend<strong>in</strong>g up<strong>on</strong> release at <strong>the</strong>ir previous rate <strong>the</strong>ir may be less<strong>on</strong>s able to be drawn to<br />
assist modificati<strong>on</strong> of <strong>the</strong> program.<br />
Recommendati<strong>on</strong> 10<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department produce and release prelim<strong>in</strong>ary<br />
f<strong>in</strong>d<strong>in</strong>gs of its l<strong>on</strong>g term evaluati<strong>on</strong> of <strong>the</strong> Sex Offender programs, so as to assist<br />
modificati<strong>on</strong>s of <strong>the</strong>se programs.<br />
6.74 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited <strong>the</strong> Junee Correcti<strong>on</strong> Centre that accommodates a substantial<br />
number of sex offender <strong>in</strong>mates, many of whom require some level of protecti<strong>on</strong>. In<br />
March 2001, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>ducted a site visit to L<strong>on</strong>g Bay Correcti<strong>on</strong>al Centre and<br />
met with <strong>the</strong> staff of <strong>the</strong> Malabar Special Programs Centre operat<strong>in</strong>g <strong>the</strong> CUBIT program<br />
and a number of <strong>in</strong>mates participat<strong>in</strong>g <strong>in</strong> <strong>the</strong> program. Inmates reported <strong>the</strong> course to be<br />
challeng<strong>in</strong>g both <strong>in</strong> terms of <strong>the</strong> large volume of work which <strong>the</strong>y were required to<br />
complete and <strong>in</strong> psychological terms. Participants stated that <strong>the</strong> program forced <strong>the</strong>m to<br />
c<strong>on</strong>fr<strong>on</strong>t <strong>the</strong>ir offend<strong>in</strong>g behaviour and <strong>the</strong> impact <strong>on</strong> victims.<br />
Violence Preventi<strong>on</strong> Program<br />
6.75 The Department of Corrective Service Annual <strong>Report</strong> 1999/2000 states that research by <strong>the</strong><br />
Department <strong>in</strong>dicates that 48 per cent of <strong>in</strong>mates are <strong>in</strong> pris<strong>on</strong> for violence-related crime.<br />
The Annual <strong>Report</strong> states that, at <strong>the</strong> time of report<strong>in</strong>g, <strong>the</strong> Department employed<br />
153 D<strong>on</strong>ato R & Shanahan M, ‘The Ec<strong>on</strong>omics of Implement<strong>in</strong>g Intensive In-pris<strong>on</strong> Sex-offender Treatment<br />
Programs, Australian Institute of Crim<strong>in</strong>ology, November 1999: 134, p 5.<br />
154 Department of Corrective Services, Submissi<strong>on</strong> 63 p 45.<br />
86 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
approximately 300 psychologists, welfare and drug and alcohol staff who work with<br />
<strong>in</strong>mates to help <strong>the</strong>m address <strong>the</strong>ir violent behaviour.<br />
6.76 Early violence preventi<strong>on</strong> programs were developed by cl<strong>in</strong>ical service staff <strong>in</strong> 1995. Like<br />
<strong>the</strong> sex offender program, <strong>the</strong> l<strong>on</strong>g-term plan of <strong>the</strong> Department has been to establish <strong>the</strong><br />
more <strong>in</strong>tensive violent offenders programs <strong>in</strong> <strong>the</strong> Special Purposes Centre at L<strong>on</strong>g Bay.<br />
6.77 The first programs were commenced at L<strong>on</strong>g Bay gaol <strong>in</strong> <strong>the</strong> Alexander Mac<strong>on</strong>ochie centre<br />
<strong>in</strong> June 1996. The 14-week residential program provided for 10 volunteer <strong>in</strong>mates and was<br />
supervised by a senior psychologist. There were four <strong>in</strong>takes “averag<strong>in</strong>g 10 maximum<br />
security <strong>in</strong>mates” for each course. In 1998, <strong>the</strong> <strong>in</strong>tensive program was still <strong>on</strong>ly servic<strong>in</strong>g<br />
31 <strong>in</strong>mates a year, 155 while o<strong>the</strong>r less <strong>in</strong>tensive programs treated about 90 additi<strong>on</strong>al<br />
<strong>in</strong>mates.<br />
6.78 In May 1999, <strong>the</strong> <strong>in</strong>tensive programs were suspended “pend<strong>in</strong>g a review and restructure”.<br />
Dur<strong>in</strong>g <strong>the</strong> next year a multi-agency M<strong>in</strong>isterial Reference <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was established with<br />
representatives of <strong>the</strong> Department of Corrective Services, <strong>the</strong> NSW Police Service, <strong>the</strong> Law<br />
Society, Victims of Crime Bureau, <strong>the</strong> Anti-Discrim<strong>in</strong>ati<strong>on</strong> Board, Aborig<strong>in</strong>al Justice<br />
Advisory Council, <strong>the</strong> Department of Health and WorkCover to review policies and<br />
programs and address <strong>the</strong> issue of violence based <strong>on</strong> race, sexuality and culture.<br />
6.79 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> met with staff and <strong>in</strong>mates participat<strong>in</strong>g <strong>in</strong> <strong>the</strong> program at <strong>the</strong> Special<br />
Purpose Centre at L<strong>on</strong>g Bay <strong>in</strong> March 2001. The Violence Preventi<strong>on</strong> Program at <strong>the</strong><br />
Centre is a four stage process. Inmates reported a high level of satisfacti<strong>on</strong> with <strong>the</strong><br />
program to date, although this does not mean <strong>the</strong> programs are necessarily effective. The<br />
Department of Corrective Services has advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that no evaluati<strong>on</strong> of <strong>the</strong><br />
Violence Preventi<strong>on</strong> Program has taken place to date, but will commence as so<strong>on</strong> as <strong>the</strong><br />
four stages are operati<strong>on</strong>al.<br />
6.80 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> is c<strong>on</strong>cerned that <strong>the</strong> Department does not yet have a well-established<br />
program to treat violent offenders, with a record of c<strong>on</strong>t<strong>in</strong>uity or dem<strong>on</strong>strated impact <strong>on</strong><br />
reduc<strong>in</strong>g recidivism.<br />
Correcti<strong>on</strong>al Industries<br />
6.81 The Department of Corrective Services advises <strong>in</strong> its submissi<strong>on</strong> that <strong>the</strong> overwhelm<strong>in</strong>g<br />
proporti<strong>on</strong> of <strong>in</strong>mates who enter <strong>the</strong> correcti<strong>on</strong>al system, particularly those with<strong>in</strong><br />
disadvantaged groups, have acute educati<strong>on</strong> and vocati<strong>on</strong>al deficiencies with limited<br />
employment skills and associated social deficiencies. The Department states:<br />
The provisi<strong>on</strong> of <strong>in</strong>mate educati<strong>on</strong>, vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g and work skills is <strong>the</strong>refore<br />
regarded as an important correcti<strong>on</strong>al endeavour and a key to secur<strong>in</strong>g <strong>the</strong> social<br />
and ec<strong>on</strong>omic <strong>in</strong>dependence for <strong>in</strong>mates to facilitate <strong>the</strong>ir successful return to <strong>the</strong><br />
community. 156<br />
155 DCS Annual <strong>Report</strong> 1998/99 p 24.<br />
156 Department of Corrective Services, Submissi<strong>on</strong> 63, p 58.<br />
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6.82 Inmates are <strong>in</strong>volved <strong>in</strong> a range of service <strong>in</strong>dustry functi<strong>on</strong>s to provide for <strong>the</strong> selfsufficiency<br />
of <strong>the</strong> correcti<strong>on</strong>al system, for example, food services, build<strong>in</strong>g ma<strong>in</strong>tenance,<br />
clerical activities and landscap<strong>in</strong>g. Inmates also work <strong>in</strong> commercial based bus<strong>in</strong>ess units<br />
which market products and services as Corrective Service Industries and <strong>on</strong> community<br />
bases programs immediately prior to release <strong>in</strong>clud<strong>in</strong>g work release programs.<br />
6.83 The objectives of NSW Correcti<strong>on</strong>al Industries (CIs) are as follows:<br />
• to help rehabilitate <strong>in</strong>mates, by provid<strong>in</strong>g <strong>the</strong>m with work related skills and<br />
experience needed to enhance <strong>the</strong>ir ability to f<strong>in</strong>d and reta<strong>in</strong> a job and lead<br />
productive lives <strong>on</strong> release;<br />
• to keep <strong>in</strong>mates occupied, and <strong>the</strong>refore facilitate <strong>in</strong>mate management, by<br />
m<strong>in</strong>imis<strong>in</strong>g undesirable <strong>in</strong>mate behaviour associated with <strong>in</strong>mate idleness and<br />
boredom;<br />
• to reduce <strong>the</strong> costs of runn<strong>in</strong>g pris<strong>on</strong>s, through <strong>the</strong> productive utilisati<strong>on</strong> of<br />
<strong>in</strong>mate labour. 157<br />
6.84 Sales by Corrective Services Industries rose to $25.5 milli<strong>on</strong> dur<strong>in</strong>g 1999/2000, an <strong>in</strong>crease<br />
of $5.3 milli<strong>on</strong> over 1998/99.<br />
6.85 The Department of Corrective Services’ Annual <strong>Report</strong> 1999/2000 states that dur<strong>in</strong>g that<br />
year <strong>in</strong>mates worked <strong>on</strong> a variety of projects, <strong>in</strong>clud<strong>in</strong>g:<br />
• a school refurbishment project at St Heliers Correcti<strong>on</strong>al Centre that refurbishes<br />
an average of two classrooms of furniture daily<br />
• at Cessnock Correcti<strong>on</strong>al Centre refurbishment of 16 demountable build<strong>in</strong>gs that<br />
were to form part of <strong>the</strong> media village for <strong>the</strong> Sydney Olympics<br />
• up to 40 <strong>in</strong>mates repair slightly faulty appliances at Bathurst Correcti<strong>on</strong>al Centre.<br />
6.86 In June 2001 <strong>the</strong> Audit Office of New South Wales completed its performance audit of <strong>the</strong><br />
Department of Corrective Services NSW Correcti<strong>on</strong>al Industries. The Audit Office report<br />
states that, al<strong>on</strong>g with o<strong>the</strong>r rehabilitative programs run by <strong>the</strong> Department, Correcti<strong>on</strong>al<br />
Industries can help to reduce re-offend<strong>in</strong>g:<br />
Research shows a l<strong>in</strong>k between unemployment and crim<strong>in</strong>al activity. 44% of<br />
<strong>in</strong>mates have histories of l<strong>on</strong>g term unemployment prior to impris<strong>on</strong>ment<br />
Overseas studies <strong>in</strong>dicate that ex-<strong>in</strong>mates who f<strong>in</strong>d stable jobs have half <strong>the</strong><br />
probability of re-c<strong>on</strong>victi<strong>on</strong> compared to those <strong>in</strong>mates who were unemployed.<br />
By develop<strong>in</strong>g <strong>in</strong>mate skills to enhance <strong>the</strong>ir chances of f<strong>in</strong>d<strong>in</strong>g and reta<strong>in</strong><strong>in</strong>g<br />
employment <strong>on</strong> release, CIs can assist to reduce <strong>the</strong> likelihood of re-offend<strong>in</strong>g. 158<br />
157 The Audit Office of New South Wales, Performance Audit report: Department of Corrective Services: NSW correcti<strong>on</strong>al<br />
<strong>in</strong>dustries, June 2001, p 2.<br />
158 Ibid.<br />
88 F<strong>in</strong>al <strong>Report</strong> - November 2001
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6.87 The Audit Office acknowledges <strong>the</strong> notable achievements of CIs. The proporti<strong>on</strong> of<br />
<strong>in</strong>mates employed <strong>in</strong> correcti<strong>on</strong>al Industry programs has generally matched <strong>the</strong> Nati<strong>on</strong>al<br />
Performance Indicator of 65%. The Audit Office report states that, over <strong>the</strong> past ten<br />
years, CIs have grown to employ approximately 63% of <strong>the</strong> <strong>in</strong>mate populati<strong>on</strong> which is at<br />
world best practice level.<br />
6.88 The Audit Officer found CIs to be effective <strong>in</strong> terms of keep<strong>in</strong>g <strong>the</strong> maximum number of<br />
<strong>in</strong>mates occupied (<strong>in</strong> order to facilitate <strong>in</strong>mate management). However, <strong>the</strong> report also<br />
states that CIs should tackle even more challeng<strong>in</strong>g issues. The performance audit found<br />
that <strong>in</strong> order to optimise <strong>the</strong> development of <strong>in</strong>mates for employability purposes fur<strong>the</strong>r<br />
acti<strong>on</strong>s are needed to improve CIs’ effectiveness such as provid<strong>in</strong>g <strong>in</strong>mates with broader<br />
foundati<strong>on</strong>al employability skills which are transferable to a wide variety of work.<br />
Educati<strong>on</strong><br />
6.89 As noted <strong>in</strong> Chapter Four of this report:<br />
• 60% of <strong>in</strong>mates are not functi<strong>on</strong>ally literate or numerate<br />
• 44% are l<strong>on</strong>g term unemployed, and<br />
• 60% did not complete year 10. 159<br />
6.90 The Department of Corrective Services’ Adult Educati<strong>on</strong> and Vocati<strong>on</strong>al Tra<strong>in</strong><strong>in</strong>g Institute<br />
(AEVTI) is a registered tra<strong>in</strong><strong>in</strong>g organisati<strong>on</strong> resp<strong>on</strong>sible for <strong>the</strong> development, delivery and<br />
evaluati<strong>on</strong> for educati<strong>on</strong>al, recreati<strong>on</strong>al and library programs for <strong>in</strong>mates <strong>in</strong> correcti<strong>on</strong>al<br />
centres. The Department of Corrective Services’ submissi<strong>on</strong> states that <strong>in</strong> develop<strong>in</strong>g<br />
programs, AEVTI staff take account of:<br />
• <strong>the</strong> special needs of <strong>the</strong> <strong>in</strong>mate populati<strong>on</strong>;<br />
• c<strong>on</strong>stra<strong>in</strong>ts associated with security, accommodati<strong>on</strong>, resource availability, special<br />
management programs, <strong>in</strong>mate employment and <strong>in</strong>stituti<strong>on</strong>al rout<strong>in</strong>es; and<br />
• <strong>the</strong> availability of expertise with<strong>in</strong> <strong>the</strong> Department and from external providers<br />
<strong>in</strong>clud<strong>in</strong>g TAFE NSW and a range of o<strong>the</strong>r community providers.<br />
6.91 The Department of Corrective Service Annual <strong>Report</strong> 1999/2000 reports that up to 47 per<br />
cent of <strong>in</strong>mates were enrolled <strong>in</strong> educati<strong>on</strong> programs each m<strong>on</strong>th under <strong>the</strong> Department’s<br />
program. $9.1 milli<strong>on</strong> was provided to a broad range of educati<strong>on</strong> and vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g<br />
programs for offenders.<br />
6.92 A review of educati<strong>on</strong> and vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g <strong>in</strong> NSW corrective centres <strong>in</strong> November<br />
1999 was made with <strong>the</strong> aim of assist<strong>in</strong>g development of future directi<strong>on</strong>s for educati<strong>on</strong><br />
and tra<strong>in</strong><strong>in</strong>g of <strong>in</strong>mates. The review stated that:<br />
159 Department of Corrective Service Submissi<strong>on</strong> 63.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 89
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
The correlati<strong>on</strong> between low socio-ec<strong>on</strong>omic status and impris<strong>on</strong>ment is well<br />
documented. One of <strong>the</strong> key challenges is to meet <strong>the</strong> enormous needs of a<br />
diverse populati<strong>on</strong> and to develop and deliver programs and <strong>the</strong>rapeutic<br />
<strong>in</strong>terventi<strong>on</strong>s to address some of <strong>the</strong> issues relat<strong>in</strong>g to offend<strong>in</strong>g behaviour. 160<br />
6.93 The review c<strong>on</strong>cluded that core educati<strong>on</strong> provisi<strong>on</strong> <strong>in</strong> correcti<strong>on</strong>al facilitates should be <strong>in</strong><br />
<strong>the</strong> area of vocati<strong>on</strong>al educati<strong>on</strong>, where possible accredited. Literacy and numeracy<br />
educati<strong>on</strong> and ESL are vital elements of <strong>the</strong> educati<strong>on</strong>al programs but should be<br />
undertaken largely with<strong>in</strong> <strong>the</strong> c<strong>on</strong>text of vocati<strong>on</strong>al courses, broadly def<strong>in</strong>ed as those<br />
lead<strong>in</strong>g to some possibility of employment.<br />
6.94 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong> noted <strong>the</strong> disparity of wages between <strong>in</strong>mates undertak<strong>in</strong>g<br />
full-time work and those undertak<strong>in</strong>g full-time study. The review c<strong>on</strong>sidered that l<strong>in</strong>k<strong>in</strong>g of<br />
TAFE courses and <strong>in</strong>dustry overcomes <strong>on</strong>e of <strong>the</strong> problems which restricts <strong>the</strong> appeal of<br />
educati<strong>on</strong> – <strong>the</strong> amount of m<strong>on</strong>ey earned by <strong>in</strong>mates. This issue is c<strong>on</strong>sidered aga<strong>in</strong> <strong>in</strong><br />
Chapter Eight of this current report.<br />
6.95 One issue which has emerged <strong>in</strong> evidence and c<strong>on</strong>versati<strong>on</strong>s with <strong>in</strong>mates dur<strong>in</strong>g this<br />
<strong>in</strong>quiry is <strong>the</strong> impact of <strong>in</strong>creased pris<strong>on</strong> numbers <strong>on</strong> disrupt<strong>in</strong>g <strong>the</strong> c<strong>on</strong>t<strong>in</strong>uity of educati<strong>on</strong><br />
programs. In <strong>on</strong>e <strong>in</strong>stance <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> heard from a pris<strong>on</strong>er who had almost<br />
completed a significant course, <strong>on</strong>ly to be relocated to ano<strong>the</strong>r pris<strong>on</strong> due to<br />
accommodati<strong>on</strong> pressures.<br />
6.96 The NSW Teachers Federati<strong>on</strong> submissi<strong>on</strong> states that given <strong>the</strong> <strong>in</strong>mate profile, <strong>the</strong><br />
importance of educati<strong>on</strong> cannot be overestimated <strong>in</strong> assist<strong>in</strong>g with rehabilitati<strong>on</strong> and<br />
re<strong>in</strong>tegrati<strong>on</strong> to <strong>the</strong> community. 161 The Federati<strong>on</strong> notes that <strong>the</strong>re is a lack of post-release<br />
<strong>in</strong>formati<strong>on</strong> about <strong>in</strong>mates. A l<strong>on</strong>gitud<strong>in</strong>al study of <strong>in</strong>mates post-release, would provide<br />
<strong>in</strong>formati<strong>on</strong> about <strong>the</strong> impact of educati<strong>on</strong> <strong>on</strong> recidivism and <strong>the</strong> impact of educati<strong>on</strong><br />
programs <strong>on</strong> <strong>in</strong>mate’s ability to f<strong>in</strong>d employment and to access fur<strong>the</strong>r educati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 11<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services <strong>in</strong>clude <strong>in</strong> future<br />
research programs a l<strong>on</strong>g term study <strong>on</strong> <strong>the</strong> impact of its educati<strong>on</strong> programs <strong>on</strong><br />
recidivism.<br />
Difficulties <strong>in</strong> Program Delivery<br />
Short Term Pris<strong>on</strong>ers<br />
6.97 One of <strong>the</strong> major problems <strong>in</strong> deliver<strong>in</strong>g programs with<strong>in</strong> pris<strong>on</strong> is that a significant<br />
proporti<strong>on</strong> of <strong>the</strong> populati<strong>on</strong> is <strong>in</strong>carcerated for periods of less than six m<strong>on</strong>ths. Most<br />
courses can not be completed with<strong>in</strong> <strong>the</strong> six-m<strong>on</strong>th time frame, particularly with delays<br />
such as that required to apply for courses. This means that those pris<strong>on</strong>ers most <strong>in</strong> need of<br />
160 G<strong>on</strong>sczi, A (1999), Review of educati<strong>on</strong> and vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g, NSW Department of Corrective Services.<br />
161 NSW Teachers Federati<strong>on</strong>, Submissi<strong>on</strong> 69.<br />
90 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
programs to assist <strong>the</strong>ir rehabilitati<strong>on</strong> and <strong>in</strong>tegrati<strong>on</strong> <strong>in</strong>to <strong>the</strong> community have least access<br />
to programs to assist this rehabilitati<strong>on</strong>.<br />
6.98 Some notable aspects of this problem <strong>in</strong>clude:<br />
• Case management plans are reviewed every six m<strong>on</strong>ths – so short term offenders<br />
do not have <strong>the</strong>ir plan reviewed dur<strong>in</strong>g <strong>the</strong>ir impris<strong>on</strong>ment. 162<br />
• Some <strong>in</strong>tensive pre release courses, such as <strong>the</strong> Alcohol and o<strong>the</strong>r Drugs (AOD)<br />
course at L<strong>on</strong>g Bay, is <strong>on</strong>ly offered to pris<strong>on</strong>ers <strong>in</strong> <strong>the</strong> last 14 weeks of <strong>the</strong>ir<br />
sentence, effectively exclud<strong>in</strong>g many short term pris<strong>on</strong>ers from apply<strong>in</strong>g for <strong>the</strong><br />
course. 163<br />
• Most short term pris<strong>on</strong>ers are not eligible for <strong>the</strong> type of support provided by<br />
programs organised by <strong>the</strong> Probati<strong>on</strong> and Parole service. 164<br />
6.99 Problems such as <strong>the</strong>se raise <strong>the</strong> questi<strong>on</strong> as to what purpose is served by <strong>in</strong>carcerati<strong>on</strong> for<br />
such short sentences when access to suitable programs address<strong>in</strong>g offend<strong>in</strong>g behaviour,<br />
offered with<strong>in</strong> <strong>the</strong> community, may be more effective. This is c<strong>on</strong>sidered fur<strong>the</strong>r <strong>in</strong><br />
Chapter Seven.<br />
Overcrowd<strong>in</strong>g of Pris<strong>on</strong> Facilities<br />
6.100 Dr Mat<strong>the</strong>ws from Correcti<strong>on</strong>s Health outl<strong>in</strong>ed ways <strong>in</strong> which <strong>the</strong> recent growth <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong> has c<strong>on</strong>tributed to difficulties <strong>in</strong> deliver<strong>in</strong>g programs:<br />
The system is full. So every time an <strong>in</strong>mate <strong>in</strong> Lithgow has to come down to<br />
Sydney for court, some<strong>on</strong>e has to go <strong>the</strong> o<strong>the</strong>r way because <strong>the</strong>re has to be<br />
virtually a body <strong>in</strong> every bed. If <strong>the</strong>re is no-<strong>on</strong>e suitable to go directly <strong>the</strong> o<strong>the</strong>r<br />
way, sometimes <strong>the</strong>re has to be a quadruple shuffle. That is to satisfy <strong>the</strong><br />
demands of <strong>the</strong> court, which is someth<strong>in</strong>g that Corrective Services has to do. So<br />
we get separate movements for medical treatment: we br<strong>in</strong>g people to L<strong>on</strong>g Bay<br />
to get <strong>the</strong>m specialist treatment at Pr<strong>in</strong>ce of Wales (Hospital). So, if we pluck<br />
some<strong>on</strong>e out of Cessnock to come down to <strong>the</strong> orthopaedic surge<strong>on</strong>, some<strong>on</strong>e<br />
has to go <strong>the</strong> o<strong>the</strong>r way. And <strong>the</strong>n, of course, <strong>the</strong>re are adm<strong>in</strong>istrative moves for<br />
legitimate reas<strong>on</strong>s, and <strong>the</strong>re are security moves for legitimate reas<strong>on</strong>s as well. It is<br />
very difficult to reduce <strong>the</strong> movements, even though often to <strong>the</strong> <strong>in</strong>mates and to<br />
o<strong>the</strong>rs <strong>the</strong>y appear to be capricious. 165<br />
6.101 The Productivity Commissi<strong>on</strong> reports that <strong>the</strong> <strong>in</strong>ternati<strong>on</strong>ally agreed standard for pris<strong>on</strong><br />
utilisati<strong>on</strong>, which is a measure for pris<strong>on</strong> overcrowd<strong>in</strong>g, is between 85-95 per cent. The<br />
rate of pris<strong>on</strong> utilisati<strong>on</strong> <strong>in</strong> NSW exceeds 100 per cent. 166<br />
162 Department of Corrective Services, Submissi<strong>on</strong> 63 p 37.<br />
163 Ibid p 49.<br />
164 Department of Corrective Services, Submissi<strong>on</strong> 63 Appendix 15.<br />
165 Mat<strong>the</strong>ws Evidence 12 March 2001 p 24.<br />
166 Productivity Commissi<strong>on</strong>, <strong>Report</strong> <strong>on</strong> Government Services 2001 p 468.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
6.102 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was also advised some <strong>the</strong>rapeutic programs at <strong>the</strong> L<strong>on</strong>g Bay Complex had<br />
been disrupted because of <strong>the</strong> need to “keep 150 beds open for remandees, many <strong>on</strong><br />
protecti<strong>on</strong>”. 167<br />
6.103 If programs are to be delivered efficiently to <strong>in</strong>mates <strong>in</strong> order to maximise <strong>the</strong>ir potential<br />
rehabilitati<strong>on</strong>, it is essential to address overcrowd<strong>in</strong>g <strong>in</strong> NSW pris<strong>on</strong>s. If it is not possible<br />
to reduce <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> by changes <strong>in</strong> Government policy, <strong>the</strong> <strong>on</strong>ly alternative will<br />
be to significantly <strong>in</strong>crease expenditure to build more gaols. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> would be<br />
c<strong>on</strong>cerned if <strong>the</strong> Government were to pursue a policy that sought to deal with <strong>the</strong> <strong>in</strong>crease<br />
<strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> solely by c<strong>on</strong>struct<strong>in</strong>g additi<strong>on</strong>al pris<strong>on</strong> accommodati<strong>on</strong>. One<br />
specific suggesti<strong>on</strong> for reduc<strong>in</strong>g <strong>the</strong> number of short-term recepti<strong>on</strong>s is outl<strong>in</strong>ed <strong>in</strong> Chapter<br />
Seven.<br />
Inmates with special needs<br />
6.104 The secti<strong>on</strong> below provides a brief account of some significant programs aimed at <strong>in</strong>mates<br />
with special needs. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> welcomes some of <strong>the</strong> <strong>in</strong>novative programs offered.<br />
However <strong>the</strong> approach of this report overall is to questi<strong>on</strong> whe<strong>the</strong>r too many of <strong>the</strong>se<br />
<strong>in</strong>mates with special needs are <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system, when <strong>the</strong>ir offend<strong>in</strong>g behaviour would<br />
be better addressed without <strong>in</strong>carcerati<strong>on</strong> as <strong>the</strong> sancti<strong>on</strong>.<br />
Inmates with mental illness<br />
6.105 The Department of Corrective Services advised that <strong>the</strong> Department of Health, through<br />
<strong>the</strong> Correcti<strong>on</strong>s Health Service, provides mental health services to <strong>in</strong>mates throughout<br />
NSW correcti<strong>on</strong>al centres. Health cl<strong>in</strong>ics are provided at each correcti<strong>on</strong>al centre and <strong>the</strong>y<br />
are staffed by nurses with c<strong>on</strong>sultati<strong>on</strong> provided by psychiatrists <strong>on</strong> a regular basis. Male<br />
<strong>in</strong>mates requir<strong>in</strong>g <strong>in</strong>-patient assessment and treatment are admitted to L<strong>on</strong>g Bay Hospital.<br />
6.106 L<strong>on</strong>g Bay Hospital also provides facilities for offenders who are under <strong>the</strong> jurisdicti<strong>on</strong> of<br />
<strong>the</strong> Mental Health Review Tribunal where <strong>the</strong>y:<br />
• have been found ‘unfit to be tried’ <strong>on</strong> <strong>the</strong> basis of mental illness, <strong>in</strong>tellectual<br />
disability, bra<strong>in</strong> damage or o<strong>the</strong>r related cause, or<br />
• are found not guilty by reas<strong>on</strong> of mental illness, or<br />
• are transferred from <strong>the</strong> correcti<strong>on</strong>al system to <strong>the</strong> hospital system because of<br />
mental illness.<br />
6.107 In September 2001 <strong>the</strong> Premier announced a $1.5 milli<strong>on</strong> plan for a new Mental Health<br />
Unit at <strong>the</strong> Metropolitan Remand and Recepti<strong>on</strong> Centre (MRRC) at Silverwater. 168<br />
167 Department of Corrective Services Submissi<strong>on</strong> 63 (supplementary).<br />
168 H<strong>on</strong> RJ Carr MP, Premier, “Carr announces 1,805 new places for NSW pris<strong>on</strong> system” Press Release 2<br />
September 2001.<br />
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SELECT COMMITTEE<br />
6.108 Unfortunately <strong>in</strong> some areas of NSW pris<strong>on</strong> facilities provide <strong>the</strong> <strong>on</strong>ly opportunity for<br />
readily accessible treatment. In its Crime Preventi<strong>on</strong> Through Social Support: Sec<strong>on</strong>d <strong>Report</strong> <strong>the</strong><br />
Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice reported <strong>on</strong> <strong>in</strong>stances <strong>in</strong> rural areas where a<br />
magistrate had sentenced people with mental illness because it was <strong>the</strong> <strong>on</strong>ly place <strong>the</strong>y<br />
would receive proper treatment programs for <strong>the</strong>ir offend<strong>in</strong>g; and of delays for psychiatric<br />
assessments lead<strong>in</strong>g to mentally ill pers<strong>on</strong>s be<strong>in</strong>g held <strong>on</strong> remand. 169<br />
Forensic Patients<br />
6.109 Forensic patients are people who have been accused of a crim<strong>in</strong>al offence, but <strong>the</strong> courts<br />
have found that <strong>the</strong>y are ei<strong>the</strong>r not fit to plead or <strong>the</strong>y have been found not guilty because<br />
of a mental illness. They become subject to <strong>the</strong> management of <strong>the</strong> Mental Health Review<br />
Tribunal accord<strong>in</strong>g to <strong>the</strong> provisi<strong>on</strong>s of <strong>the</strong> Mental Health Act. If <strong>the</strong> offence is of a less<br />
serious nature, <strong>the</strong> Tribunal can recommend that <strong>the</strong> <strong>in</strong>mate be transferred to a community<br />
based unit such as Kestrel or Bunya, which are facilities operated by <strong>the</strong> NSW Department<br />
of Health. Such a recommendati<strong>on</strong> also has to meet with <strong>the</strong> approval of both <strong>the</strong> M<strong>in</strong>ister<br />
for Health and <strong>the</strong> M<strong>in</strong>ister for Corrective Services. If <strong>the</strong> offence is more serious, and <strong>the</strong><br />
<strong>in</strong>mate requires a high level of security, <strong>the</strong> <strong>in</strong>mate will probably rema<strong>in</strong> at <strong>the</strong> L<strong>on</strong>g Bay<br />
Hospital. Currently <strong>the</strong>re are 120 beds <strong>in</strong> <strong>the</strong> forensic hospital at L<strong>on</strong>g Bay Hospital.<br />
6.110 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> received evidence from Le<strong>on</strong>ie Manns, Chairpers<strong>on</strong> of <strong>the</strong> Disability<br />
Council, that NSW was <strong>the</strong> <strong>on</strong>ly state <strong>in</strong> Australia that was unable to comply with <strong>the</strong><br />
provisi<strong>on</strong>s of <strong>the</strong> Nati<strong>on</strong>al Medical Health Forensic Policy. She also <strong>in</strong>formed <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> that <strong>in</strong> most western countries and all o<strong>the</strong>r states of Australia, it is c<strong>on</strong>sidered<br />
<strong>in</strong>appropriate to accommodate forensic patients with<strong>in</strong> <strong>the</strong> grounds of a gaol. 170<br />
6.111 The Department of Corrective Services c<strong>on</strong>curs with that op<strong>in</strong>i<strong>on</strong>. The Department stated<br />
<strong>in</strong> a submissi<strong>on</strong> to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that a number of people held <strong>in</strong> NSW pris<strong>on</strong>s should be<br />
housed <strong>in</strong> community opti<strong>on</strong>s as occurs <strong>in</strong> Victoria:<br />
There are a significant number of <strong>in</strong>mates each year who would be appropriate for<br />
community opti<strong>on</strong>s if <strong>the</strong>y were available. As well <strong>the</strong>re are a small number of<br />
<strong>in</strong>mates (approximately 5-6 per year) for whom gaol is completely <strong>in</strong>appropriate.<br />
They mostly functi<strong>on</strong> with<strong>in</strong> <strong>the</strong> moderate range of disability. The development<br />
of community opti<strong>on</strong>s is essential for <strong>the</strong>se offenders, as <strong>the</strong>y are vulnerable even<br />
with<strong>in</strong> <strong>the</strong> separate units available with<strong>in</strong> <strong>the</strong> correcti<strong>on</strong>al centres.<br />
In Victoria, <strong>the</strong>re are provisi<strong>on</strong>s with<strong>in</strong> <strong>the</strong> Sentenc<strong>in</strong>g Act for recommendati<strong>on</strong>s<br />
to be made to <strong>the</strong> court for offenders with <strong>in</strong>tellectual disabilities to be directed to<br />
reside <strong>in</strong> secure facilities outside <strong>the</strong> custodial system. Secure units have been<br />
developed <strong>in</strong> <strong>the</strong> community by <strong>the</strong> Statewide Forensic Service. At present <strong>the</strong><br />
Victorian Disability Service legislati<strong>on</strong> is under review and <strong>on</strong>e of <strong>the</strong> issues for<br />
c<strong>on</strong>siderati<strong>on</strong> is whe<strong>the</strong>r this legislati<strong>on</strong> should <strong>in</strong>clude a capacity to deta<strong>in</strong>.<br />
Victoria thus has two separate disability opti<strong>on</strong>s with<strong>in</strong> <strong>the</strong> custodial envir<strong>on</strong>ment<br />
as well as secure community opti<strong>on</strong>s for offenders with <strong>in</strong>tellectual disabilities. 171<br />
169 Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, Crime Preventi<strong>on</strong> Through Social Support: Sec<strong>on</strong>d <strong>Report</strong>, August 2000, p<br />
84.<br />
170 Manns Evidence 12 March 2001 p 55.<br />
171 Department of Corrective Services, Submissi<strong>on</strong> 63 p 53.<br />
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6.112 Dr Richard Mat<strong>the</strong>ws from <strong>the</strong> Correcti<strong>on</strong>s Health Service developed this proposal fur<strong>the</strong>r:<br />
I am particularly impressed by <strong>the</strong> Mas<strong>on</strong> Cl<strong>in</strong>ic <strong>in</strong> Auckland and, <strong>in</strong>deed, by new<br />
facilities <strong>in</strong> Victoria – <strong>the</strong> Thomas Embl<strong>in</strong>g Hospital, which is an assessment<br />
hospital for mentally ill people; and <strong>the</strong> forensic care, where people who are<br />
formally certified under <strong>the</strong> Mental Health Act are held <strong>in</strong> a secure facility run by<br />
Health, ra<strong>the</strong>r than a pris<strong>on</strong>. My pers<strong>on</strong>al view is that some<strong>on</strong>e who formally<br />
becomes forensic that <strong>the</strong>y should be held <strong>in</strong> a secure facility run by Health.<br />
Indeed, we have put <strong>in</strong> a submissi<strong>on</strong> jo<strong>in</strong>tly to our department and <strong>the</strong><br />
Department of Corrective Services that such a facility should be built. We have a<br />
reas<strong>on</strong>able commitment that when funds are available that will happen. When <strong>the</strong><br />
funds will be available, I do not know, but we will <strong>the</strong>n be seek<strong>in</strong>g to provide a<br />
better envir<strong>on</strong>ment for forensic patients that <strong>the</strong>y are currently gett<strong>in</strong>g. 172<br />
6.113 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has been <strong>in</strong>formed that plann<strong>in</strong>g for alternative facilities for forensic<br />
patients has been undertaken at senior levels of a number of Government Departments<br />
<strong>in</strong>clud<strong>in</strong>g <strong>the</strong> NSW Department of Health, <strong>the</strong> Department of Corrective Services and <strong>the</strong><br />
Attorney General’s Department. A detailed proposal is now wait<strong>in</strong>g for fund<strong>in</strong>g approval<br />
from <strong>the</strong> NSW Treasury.<br />
Recommendati<strong>on</strong> 12<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> NSW Government give urgent priority to<br />
fund<strong>in</strong>g proposals that will enable NSW to comply with <strong>the</strong> Nati<strong>on</strong>al Medical Health<br />
Forensic Policy by hous<strong>in</strong>g forensic <strong>in</strong>mates <strong>in</strong> secure community based facilities.<br />
Inmates with Intellectual Disabilities<br />
6.114 Chapter Four discussed <strong>the</strong> difficulties of people with <strong>in</strong>tellectual disabilities <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
system. The Disability Unit was established <strong>in</strong> 1999 to address <strong>the</strong> additi<strong>on</strong>al needs of<br />
<strong>in</strong>mates with disabilities.<br />
6.115 The Department advises that many <strong>in</strong>mates with an <strong>in</strong>tellectual disability are vulnerable<br />
with<strong>in</strong> <strong>the</strong> custodial envir<strong>on</strong>ment. To address this it has provided separate units to cater<br />
for <strong>the</strong> most vulnerable of <strong>the</strong>se <strong>in</strong>mates s<strong>in</strong>ce 1989:<br />
Inmates with an <strong>in</strong>tellectual disability are managed <strong>in</strong> both separate units and <strong>in</strong><br />
ma<strong>in</strong>stream custodial centres across <strong>the</strong> state. The development of an <strong>in</strong>mate’s<br />
case plan and <strong>the</strong>ir placement is decided <strong>on</strong> an <strong>in</strong>dividual basis with c<strong>on</strong>siderati<strong>on</strong><br />
to such issues as assessed level of disability, <strong>in</strong>terpers<strong>on</strong>al skills, age, availability of<br />
family c<strong>on</strong>tact and general vulnerability with<strong>in</strong> <strong>the</strong> correcti<strong>on</strong>al envir<strong>on</strong>ment.<br />
Inmates identified as hav<strong>in</strong>g an <strong>in</strong>tellectual disability are registered <strong>on</strong> <strong>the</strong><br />
Disability Services Unit data system. Staff of <strong>the</strong> Disability Unit are alerted if an<br />
<strong>in</strong>mate returns to custody and this enables <strong>the</strong> Department to draw <strong>on</strong> its past<br />
experience <strong>in</strong> <strong>the</strong> management of <strong>the</strong> <strong>in</strong>mate.<br />
172 Mat<strong>the</strong>ws Evidence 12 March 2001 p 45.<br />
94 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
The Department’s Disability Acti<strong>on</strong> Plan addresses <strong>the</strong> development of services<br />
and programs for pers<strong>on</strong> with a range of disabilities with<strong>in</strong> <strong>the</strong> Department Both<br />
offenders and staff. Intellectual disability is <strong>on</strong>e of <strong>the</strong> areas addressed. 173<br />
6.116 The Department is currently negotiat<strong>in</strong>g with <strong>the</strong> Correcti<strong>on</strong>s Health Service to <strong>in</strong>clude a<br />
test for <strong>in</strong>tellectual disability <strong>in</strong> <strong>the</strong>ir major health survey of <strong>in</strong>mates. Some issues still need<br />
to be f<strong>in</strong>alised <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> methodology and <strong>the</strong> durati<strong>on</strong> of <strong>the</strong> survey. The f<strong>in</strong>d<strong>in</strong>gs will<br />
assist both Department of Correcti<strong>on</strong>s Services and <strong>the</strong> Corrective Health Service to<br />
provide improved services to <strong>in</strong>mates with <strong>in</strong>tellectual disability and to provide o<strong>the</strong>r<br />
agencies, such as <strong>the</strong> Age<strong>in</strong>g and Disability Department and <strong>the</strong> Department of Health,<br />
with <strong>in</strong>formati<strong>on</strong> about services needed for <strong>in</strong>mates up<strong>on</strong> release. 174<br />
Inmates from N<strong>on</strong> English Speak<strong>in</strong>g Backgrounds<br />
6.117 To address <strong>the</strong> needs of pris<strong>on</strong>ers from n<strong>on</strong>-English speak<strong>in</strong>g backgrounds <strong>the</strong><br />
Department <strong>in</strong> 1992 established a Policy & Project Officer, Ethnic Affairs positi<strong>on</strong>. The<br />
Department encourages <strong>the</strong> participati<strong>on</strong> of members of ethnic and religious communities<br />
to play a role <strong>in</strong> <strong>the</strong> development and implementati<strong>on</strong> of Departmental policies, programs<br />
and services and to provide pre and post release services. The project officer collects data<br />
regard<strong>in</strong>g accredited <strong>in</strong>terpreter usage to identify <strong>the</strong> needs of offenders from diverse<br />
cultural, religious and l<strong>in</strong>guistic backgrounds.<br />
Inmates from Indigenous Backgrounds<br />
6.118 Chapter Four of this report exam<strong>in</strong>ed <strong>in</strong> detail <strong>the</strong> over representati<strong>on</strong> of Indigenous<br />
pers<strong>on</strong>s <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system, and <strong>the</strong> potential to reduce <strong>the</strong>ir impris<strong>on</strong>ment rate. The<br />
Department has a discrete Indigenous Services Unit and a comprehensive policy, <strong>the</strong><br />
Indigenous Offenders Acti<strong>on</strong> Plan. The policy is developed <strong>in</strong> resp<strong>on</strong>se to <strong>the</strong><br />
disproporti<strong>on</strong>ate <strong>in</strong>carcerati<strong>on</strong> of Aborig<strong>in</strong>al offenders, <strong>the</strong> greater risks <strong>the</strong>y face <strong>in</strong><br />
custody, <strong>the</strong> need to provide alternatives to full-time custody and to ensure that services are<br />
provided <strong>in</strong> a culturally appropriate manner.<br />
6.119 In Chapter Seven issues are c<strong>on</strong>sidered regard<strong>in</strong>g <strong>the</strong> under representati<strong>on</strong> of Indigenous<br />
offenders <strong>in</strong> home detenti<strong>on</strong> and <strong>the</strong> Drug Court. With <strong>the</strong> high rate of <strong>in</strong>carcerati<strong>on</strong> of<br />
Indigenous offenders it is particularly important that full advantage is taken of alternative<br />
sentenc<strong>in</strong>g opti<strong>on</strong>s for this group. Two recommendati<strong>on</strong>s are raised <strong>in</strong> that Chapter to<br />
attempt to address <strong>the</strong> specific difficulties faced by this group <strong>in</strong> participat<strong>in</strong>g <strong>in</strong> home<br />
detenti<strong>on</strong> and <strong>in</strong> Drug Court programs.<br />
“E” Classificati<strong>on</strong> Pris<strong>on</strong>ers<br />
6.120 One of <strong>the</strong> issues identified <strong>in</strong> <strong>the</strong> first stage of this <strong>in</strong>quiry was <strong>the</strong> difficulties <strong>in</strong> deliver<strong>in</strong>g<br />
programs to pris<strong>on</strong>ers classified as “E” because of a previous escape attempt, even if that<br />
attempt was <strong>in</strong> an earlier sentence. They are classified as maximum security regardless of<br />
173 Department of Corrective Services, Submissi<strong>on</strong> 63 (Supplementary).<br />
174 Corresp<strong>on</strong>dence from M<strong>in</strong>ister for Corrective Services, H<strong>on</strong> John Watk<strong>in</strong>s MP, not dated.<br />
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<strong>the</strong> seriousness of <strong>the</strong> offence for which <strong>the</strong>y were orig<strong>in</strong>ally charged. Accord<strong>in</strong>g to <strong>the</strong><br />
provisi<strong>on</strong>s of <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) (Correcti<strong>on</strong> Centre Rout<strong>in</strong>e) Regulati<strong>on</strong> 1995,<br />
<strong>in</strong>mates with an “E” classificati<strong>on</strong> cannot do any program while <strong>the</strong>y are <strong>in</strong> custody that<br />
requires <strong>the</strong>m to move outside a secure physical barrier, even if <strong>the</strong>y are <strong>in</strong> <strong>the</strong> company or<br />
supervisi<strong>on</strong> of a custodial officer. This has a great impact <strong>on</strong> <strong>the</strong>ir capacity to participate <strong>in</strong><br />
vocati<strong>on</strong>al programs, and of course, work release schemes.<br />
6.121 As advised <strong>in</strong> <strong>the</strong> Government Resp<strong>on</strong>se to <strong>the</strong> Interim <strong>Report</strong>, such pris<strong>on</strong>ers are not able<br />
to apply for courses or programs until <strong>the</strong>y are 50% of <strong>the</strong> way through <strong>the</strong>ir sentence.<br />
This halves <strong>the</strong> length of time <strong>the</strong>y are able to participate <strong>in</strong> programs which may assist<br />
<strong>the</strong>ir rehabilitati<strong>on</strong>. For pris<strong>on</strong>ers serv<strong>in</strong>g shorter terms, such as six to 12 m<strong>on</strong>ths, it may<br />
exclude <strong>the</strong>m altoge<strong>the</strong>r from participati<strong>on</strong> <strong>in</strong> programs. For example if an <strong>in</strong>mate has<br />
been sentenced for two years, <strong>the</strong>y are unable to apply for a review of <strong>the</strong>ir “E”<br />
classificati<strong>on</strong> until <strong>the</strong>y have served 12 m<strong>on</strong>ths. They are often released from pris<strong>on</strong> when<br />
<strong>the</strong>y have completed 18 m<strong>on</strong>ths. This leaves <strong>on</strong>ly six m<strong>on</strong>ths, if <strong>the</strong>ir applicati<strong>on</strong> for<br />
review is accepted, to participate <strong>in</strong> programs. Frequently <strong>the</strong>ir sentence is over before<br />
<strong>the</strong>se procedures are completed.<br />
6.122 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has received submissi<strong>on</strong>s about this issue from <strong>the</strong> Aborig<strong>in</strong>al Legal<br />
Service and <strong>the</strong> NSW Law Society. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was <strong>in</strong>formed that this is an issue which<br />
particularly affects <strong>in</strong>mates with an <strong>in</strong>digenous background:<br />
CHAIR: What are <strong>the</strong> blockages to Aborig<strong>in</strong>al women, or Aborig<strong>in</strong>al men, for<br />
that matter, hav<strong>in</strong>g difficulty gett<strong>in</strong>g through <strong>the</strong> classificati<strong>on</strong> system? You made<br />
<strong>the</strong> po<strong>in</strong>t earlier, Ms Hopk<strong>in</strong>s, that Aborig<strong>in</strong>al women are not gett<strong>in</strong>g through <strong>the</strong><br />
classificati<strong>on</strong> system. I am w<strong>on</strong>der<strong>in</strong>g, if that is <strong>the</strong> case, why it is?<br />
Ms HOPKINS: If I could just deal with men and women toge<strong>the</strong>r firstly, <strong>on</strong>e of<br />
<strong>the</strong> big problems with <strong>the</strong> classificati<strong>on</strong> system is this E classificati<strong>on</strong>. If you have<br />
ever escaped, you cannot <strong>the</strong>n ever get through <strong>the</strong> classificati<strong>on</strong> system. It is like<br />
a mark tattooed <strong>on</strong> your forehead. It seems to be an outdated, outmoded system<br />
that has to go. So many of our clients because of <strong>the</strong>ir relati<strong>on</strong>ship with <strong>the</strong> police<br />
also have got an escape somewhere <strong>on</strong> <strong>the</strong>ir record, which means that <strong>the</strong>y are not<br />
go<strong>in</strong>g to be able to get work release 10 years later. 175<br />
6.123 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recognises that for some high risk pris<strong>on</strong>ers an “E” classificati<strong>on</strong> and<br />
restricted access to programs such as work release is appropriate. However <strong>the</strong><br />
classificati<strong>on</strong> system needs to properly dist<strong>in</strong>guish between such pris<strong>on</strong>ers as those for<br />
whom <strong>the</strong> restricti<strong>on</strong>s <strong>on</strong> participati<strong>on</strong> <strong>in</strong> programs is unnecessary.<br />
Recommendati<strong>on</strong> 13<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department review <strong>the</strong> impact of “E” (previous<br />
escape) classificati<strong>on</strong>s <strong>on</strong> <strong>the</strong> ability of pris<strong>on</strong>ers to participate <strong>in</strong> programs to address<br />
<strong>the</strong>ir offend<strong>in</strong>g behaviour. Procedures should be exam<strong>in</strong>ed to determ<strong>in</strong>e whe<strong>the</strong>r<br />
modificati<strong>on</strong>s to current restricti<strong>on</strong>s can be made so as to assist access to programs<br />
for pris<strong>on</strong>ers who are not c<strong>on</strong>sidered high risk <strong>in</strong> <strong>the</strong>ir current term.<br />
175 Hopk<strong>in</strong>s, Evidence 23 February 2000.<br />
96 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Restorative Justice<br />
6.124 The aim of restorative justice is to encourage offenders to take resp<strong>on</strong>sibility for <strong>the</strong>ir<br />
acti<strong>on</strong>s, acknowledge <strong>the</strong>ir impact <strong>on</strong> <strong>the</strong> victims, and, as a c<strong>on</strong>sequence, change <strong>the</strong>ir<br />
behaviour. Its pr<strong>in</strong>ciples have been used to c<strong>on</strong>siderable effect <strong>in</strong> juvenile justice, both <strong>in</strong><br />
NSW and overseas.<br />
6.125 The Restorative Justice Unit with<strong>in</strong> <strong>the</strong> Department of Corrective Services, established <strong>in</strong><br />
1999, operates a victim-offender c<strong>on</strong>ferenc<strong>in</strong>g program under which offenders and victims,<br />
families and supports can be brought toge<strong>the</strong>r and to give <strong>the</strong> offender an opportunity to<br />
make reparati<strong>on</strong>. The post-sentenc<strong>in</strong>g scheme is available to <strong>in</strong>mates and to offenders <strong>on</strong><br />
probati<strong>on</strong> or parole.<br />
6.126 The Unit has designed a victim awareness program for both <strong>in</strong>mates and people under<br />
community supervisi<strong>on</strong>. The Unit also operates a victims register under <strong>the</strong> Victims Rights<br />
Act under which victims have a right to know about an <strong>in</strong>mates’ applicati<strong>on</strong> for parole or<br />
any moves that might see <strong>the</strong> offender <strong>in</strong> <strong>the</strong> community.<br />
6.127 Ms Rh<strong>on</strong>da Booby, Director of <strong>the</strong> Restorative Justice Unit, stated that <strong>the</strong> purpose of <strong>the</strong><br />
Unit is to:<br />
promote victims’ issues with<strong>in</strong> <strong>the</strong> department but also to have offenders accept<br />
or acknowledge resp<strong>on</strong>sibility for <strong>the</strong> offence and also for <strong>the</strong>m to stop<br />
m<strong>in</strong>imis<strong>in</strong>g <strong>the</strong> offence. 176<br />
6.128 Dur<strong>in</strong>g her evidence <strong>in</strong> March 2001, Ms Booby stated that s<strong>in</strong>ce its first c<strong>on</strong>ference <strong>in</strong><br />
November 1999, <strong>the</strong> Unit had received 105 referrals and had c<strong>on</strong>ducted 10 <strong>in</strong>terventi<strong>on</strong>s.<br />
Some <strong>in</strong>terventi<strong>on</strong>s were not c<strong>on</strong>ferences but c<strong>on</strong>sisted of <strong>the</strong> victims and offenders<br />
meet<strong>in</strong>g with a mediator. Ms Booby described <strong>the</strong> process for arrang<strong>in</strong>g c<strong>on</strong>ferences:<br />
The referrals can come from <strong>the</strong> victims or <strong>the</strong> offenders. Most of ours have<br />
come from <strong>the</strong> offenders. After that, we make an assessment of <strong>the</strong> offender<br />
based <strong>on</strong> <strong>in</strong>formati<strong>on</strong> that is available to Corrective Services. Included <strong>in</strong> that is<br />
<strong>the</strong> offender's motivati<strong>on</strong>, what <strong>the</strong> offender has been do<strong>in</strong>g whilst <strong>in</strong> custody, his<br />
or her ability to empathise with <strong>the</strong> victim, and <strong>the</strong> offender's understand<strong>in</strong>g of<br />
what <strong>the</strong> offence <strong>in</strong>volved. If we assess <strong>the</strong> offender as be<strong>in</strong>g suitable for<br />
c<strong>on</strong>ferenc<strong>in</strong>g, we will <strong>the</strong>n approached <strong>the</strong> victim. The first c<strong>on</strong>tract we make with<br />
<strong>the</strong> victim is by way of letter, say<strong>in</strong>g, "This offender wants to meet with you to talk<br />
about what it is he/she did and anyth<strong>in</strong>g that can help to reduce <strong>the</strong> harm." Then<br />
we will follow that up with teleph<strong>on</strong>e calls and visits, if <strong>the</strong> victim is will<strong>in</strong>g to<br />
enterta<strong>in</strong> visits. We proceed from <strong>the</strong>re. 177<br />
6.129 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> supports <strong>the</strong> c<strong>on</strong>cept of <strong>the</strong> Restorative Justice Unit as a very important<br />
<strong>in</strong>itiative which should be given every opportunity by <strong>the</strong> Department to make an impact<br />
<strong>on</strong> recidivism.<br />
176 Booby Evidence 12 March, 2001.<br />
177 Ibid.<br />
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Release and Transiti<strong>on</strong> to <strong>the</strong> Community<br />
6.130 Release <strong>in</strong>to <strong>the</strong> community is recognised as a critical time for offenders. Recidivism rates<br />
are high as is <strong>the</strong> <strong>in</strong>cidence of drug related deaths and suicide for recently released pris<strong>on</strong>ers<br />
(see Chapter Eight).<br />
6.131 Supervisi<strong>on</strong> post release is provided by <strong>the</strong> Department of Corrective Services through a<br />
range of programs and orders which aim to ease <strong>in</strong>mates back <strong>in</strong>to <strong>the</strong> community. These<br />
<strong>in</strong>clude parole, work and educati<strong>on</strong> release and transiti<strong>on</strong>al centres.<br />
6.132 The Department operates external pre-release programs for m<strong>in</strong>imum security <strong>in</strong>mates<br />
who meet <strong>the</strong> criteria set out <strong>in</strong> secti<strong>on</strong> 18 of <strong>the</strong> Department’s Operati<strong>on</strong>s Procedures<br />
Manual. The programs, <strong>in</strong>clud<strong>in</strong>g work release, day and weekend leave and educati<strong>on</strong><br />
leave, aim to ease <strong>in</strong>mates’ transiti<strong>on</strong> <strong>in</strong>to <strong>the</strong> community through employment and<br />
c<strong>on</strong>solidati<strong>on</strong> of <strong>the</strong>ir relati<strong>on</strong>ship with family and friends. These external programs<br />
require a range of m<strong>on</strong>itor<strong>in</strong>g and support to ma<strong>in</strong>ta<strong>in</strong> <strong>the</strong> security and <strong>in</strong>tegrity of<br />
programs.<br />
6.133 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> its Interim <strong>Report</strong> discussed some of <strong>the</strong> problems aris<strong>in</strong>g from <strong>the</strong> way <strong>in</strong><br />
which pris<strong>on</strong>ers are released <strong>in</strong>to <strong>the</strong> community with <strong>in</strong>adequate preparati<strong>on</strong>. The<br />
Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice <strong>in</strong> its Crime Preventi<strong>on</strong> Through Social Support: Sec<strong>on</strong>d<br />
<strong>Report</strong> also discussed at length <strong>the</strong> way gaps and lack of resources for post release programs<br />
c<strong>on</strong>tributed to pris<strong>on</strong>er recidivism. 178<br />
Parole<br />
6.134 Parole refers to <strong>the</strong> discharge of a pris<strong>on</strong>er from custody after <strong>the</strong> expirati<strong>on</strong> of <strong>the</strong><br />
m<strong>in</strong>imum term of <strong>the</strong> sentence. The <strong>in</strong>tenti<strong>on</strong> is that <strong>the</strong> offender will serve <strong>the</strong> rema<strong>in</strong><strong>in</strong>g<br />
porti<strong>on</strong> of <strong>the</strong>ir sentence under supervisi<strong>on</strong> <strong>in</strong> <strong>the</strong> community.<br />
6.135 The aim of parole is to m<strong>on</strong>itor offend<strong>in</strong>g related behaviour and <strong>in</strong>fluence change through<br />
planned and <strong>in</strong>dividualised <strong>in</strong>terventi<strong>on</strong>. When released to parole supervisi<strong>on</strong> <strong>the</strong> offender<br />
is subject to c<strong>on</strong>diti<strong>on</strong>s to be of good behaviour and not to re-offend, and may be required<br />
to undertake such th<strong>in</strong>gs as specified counsell<strong>in</strong>g or treatment.<br />
6.136 The benefits of parole <strong>in</strong>clude:<br />
• eas<strong>in</strong>g <strong>the</strong> transiti<strong>on</strong> from pris<strong>on</strong> to <strong>the</strong> community,<br />
• a reducti<strong>on</strong> <strong>in</strong> recidivism through supervisi<strong>on</strong>; and<br />
• <strong>the</strong> ec<strong>on</strong>omic advantage (as <strong>the</strong> cost of community supervisi<strong>on</strong> is low compared<br />
to <strong>the</strong> cost of <strong>in</strong>carcerati<strong>on</strong>).<br />
6.137 Criticism of parole <strong>in</strong>cludes:<br />
• <strong>the</strong> perceived leniency <strong>on</strong> offenders,<br />
178 Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice <strong>in</strong> its Crime Preventi<strong>on</strong> Through Social Support: Sec<strong>on</strong>d <strong>Report</strong> ,Chapter 7.<br />
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• <strong>the</strong> percepti<strong>on</strong> that <strong>the</strong> deterrent effect of impris<strong>on</strong>ment is weakened, and<br />
• <strong>the</strong> fear of a threat to public safety, particularly for victims.<br />
6.138 Under amendments to <strong>the</strong> Sentenc<strong>in</strong>g Act 1989, enacted by Parliament <strong>in</strong> 1999, when a court<br />
imposes a sentence of impris<strong>on</strong>ment it must first set <strong>the</strong> maximum term of <strong>the</strong> sentence to<br />
be imposed. It may <strong>the</strong>n set a n<strong>on</strong>-parole period, which is <strong>the</strong> m<strong>in</strong>imum amount of time<br />
<strong>the</strong> pris<strong>on</strong>er must be kept <strong>in</strong> detenti<strong>on</strong> <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> offence. In <strong>the</strong> ord<strong>in</strong>ary course of<br />
events, <strong>the</strong> n<strong>on</strong>-parole period will be three quarters of <strong>the</strong> term of <strong>the</strong> sentence unless <strong>the</strong><br />
court decides <strong>the</strong>re are special circumstances, <strong>in</strong> which case it can impose a lesser n<strong>on</strong>parole<br />
period. If <strong>the</strong> court decides to impose a n<strong>on</strong>-parole period that is less than 75 per<br />
cent of <strong>the</strong> maximum, it must record its reas<strong>on</strong>s for do<strong>in</strong>g so.<br />
6.139 A court may not set a n<strong>on</strong>-parole period for a term of impris<strong>on</strong>ment which is six m<strong>on</strong>ths<br />
or less. This means that a significant number of <strong>the</strong> <strong>in</strong>mates sentenced to full time custody<br />
do not have a period of supervisi<strong>on</strong> by <strong>the</strong> Probati<strong>on</strong> and Parole Service after <strong>the</strong>y are<br />
released. Whilst a period of probati<strong>on</strong> is part of <strong>the</strong> sentence for an <strong>in</strong>mate, it br<strong>in</strong>gs with it<br />
assistance with welfare support services, such as hous<strong>in</strong>g assistance and counsell<strong>in</strong>g, which<br />
greatly assist <strong>the</strong> transiti<strong>on</strong> back to <strong>the</strong> community. Offenders who are sentenced to<br />
periods of impris<strong>on</strong>ment of three years or less have a parole period set by <strong>the</strong> court, which<br />
triggers <strong>the</strong>ir “automatic” release from custody.<br />
6.140 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was <strong>in</strong>formed <strong>in</strong> evidence by <strong>the</strong> Probati<strong>on</strong> and Parole Service that <strong>on</strong>ly a<br />
small proporti<strong>on</strong> of people, amount<strong>in</strong>g to about 20 per cent of <strong>the</strong> 18,000 <strong>in</strong>mates who are<br />
discharged from gaol each year, have an active <strong>in</strong>volvement with <strong>the</strong> Probati<strong>on</strong> and Parole<br />
Service after <strong>the</strong>ir release. 179 This perhaps is a fur<strong>the</strong>r disadvantage to <strong>the</strong> practice of<br />
sentenc<strong>in</strong>g <strong>in</strong>mates to periods of impris<strong>on</strong>ment of less than six m<strong>on</strong>ths. They often miss<br />
out <strong>on</strong> <strong>in</strong>tensive programs <strong>in</strong> gaol, and <strong>the</strong>y do not get access to programs after <strong>the</strong>y are<br />
released.<br />
6.141 Offenders sentenced to periods of impris<strong>on</strong>ment l<strong>on</strong>ger than three years have <strong>the</strong>ir date of<br />
release determ<strong>in</strong>ed by <strong>the</strong> Parole Board. The criteria used to determ<strong>in</strong>e parole applicati<strong>on</strong>s<br />
is laid out <strong>in</strong> s135 of <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of Sentences) Act 1999. The M<strong>in</strong>ister provided<br />
<strong>the</strong> follow<strong>in</strong>g <strong>in</strong>formati<strong>on</strong> from Secretary of <strong>the</strong> Parole Board:<br />
The primary criteri<strong>on</strong> is <strong>the</strong> public <strong>in</strong>terest. The Act says that <strong>the</strong> Board may not<br />
make a parole order, unless it has decided that <strong>the</strong> release of <strong>the</strong> offender is<br />
appropriate, hav<strong>in</strong>g regard to <strong>the</strong> pr<strong>in</strong>ciple that <strong>the</strong> public <strong>in</strong>terest is of primary<br />
importance.<br />
The process for determ<strong>in</strong><strong>in</strong>g parole applicati<strong>on</strong>s centres <strong>on</strong> an <strong>in</strong>itial private<br />
determ<strong>in</strong>ati<strong>on</strong> “<strong>on</strong> <strong>the</strong> papers” by <strong>the</strong> Board. The Board ga<strong>the</strong>rs reports from a<br />
number of people. These always <strong>in</strong>clude a pre-release report from a parole officer,<br />
an assessment by <strong>the</strong> custodial staff and <strong>the</strong> remarks of <strong>the</strong> sentenc<strong>in</strong>g judge.<br />
Accord<strong>in</strong>g to <strong>the</strong> needs of <strong>the</strong> <strong>in</strong>dividual under c<strong>on</strong>siderati<strong>on</strong>, <strong>the</strong>re may also be<br />
reports from a psychologist or a drug worker.<br />
If <strong>the</strong> Board decides to make an order for release to parole, <strong>the</strong> order is made and<br />
<strong>the</strong> offender is released <strong>on</strong> <strong>the</strong> approved date.<br />
179 MacD<strong>on</strong>ald Evidence 28 March 2000 p 41.<br />
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If <strong>the</strong> Board <strong>in</strong>tends to refuse parole, before it makes a f<strong>in</strong>al decisi<strong>on</strong>, it notifies<br />
<strong>the</strong> offender, gives him or her a copy of all <strong>the</strong> material before <strong>the</strong> Board and<br />
<strong>in</strong>vites <strong>the</strong> offender to appear before <strong>the</strong> Board, at a public hear<strong>in</strong>g, with legal<br />
representati<strong>on</strong>, if desired. After hear<strong>in</strong>g all submissi<strong>on</strong>s, at <strong>the</strong> public hear<strong>in</strong>g, <strong>the</strong><br />
Board makes a decisi<strong>on</strong>. If <strong>the</strong> decisi<strong>on</strong> is to refuse parole, <strong>the</strong> Board states <strong>the</strong><br />
reas<strong>on</strong>s and sets a future date for ano<strong>the</strong>r parole c<strong>on</strong>siderati<strong>on</strong>. That future date<br />
must be no l<strong>on</strong>ger than <strong>on</strong>e year or three years for serious offenders. 180<br />
6.142 Dur<strong>in</strong>g a visit to a correcti<strong>on</strong>al facility, <strong>in</strong>mates advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that <strong>in</strong> some cases<br />
<strong>the</strong> relati<strong>on</strong>ship between pris<strong>on</strong> programs and parole was not clear and it was <strong>the</strong>ir<br />
percepti<strong>on</strong> that <strong>in</strong>mates were be<strong>in</strong>g denied parole if <strong>the</strong>y had not undertaken certa<strong>in</strong><br />
courses.<br />
6.143 The Department advised that <strong>the</strong> Parole Board does tend to have a higher expectati<strong>on</strong> than<br />
<strong>the</strong> offender that an offender has d<strong>on</strong>e someth<strong>in</strong>g <strong>in</strong> custody to address <strong>the</strong> offend<strong>in</strong>g<br />
behaviour. The Department advises that <strong>the</strong> likelihood of parole is greater if <strong>the</strong>re has<br />
been participati<strong>on</strong> <strong>in</strong> programs. 181 Participati<strong>on</strong> <strong>in</strong> pris<strong>on</strong> <strong>in</strong>dustries also helps <strong>the</strong> Board<br />
ga<strong>in</strong> an overall positive picture, however would not be a determ<strong>in</strong><strong>in</strong>g factor <strong>in</strong> <strong>the</strong> decisi<strong>on</strong><br />
of <strong>the</strong> Board.<br />
The Probati<strong>on</strong> and Parole Service<br />
6.144 The NSW Probati<strong>on</strong> and Parole Service carry out <strong>the</strong> supervisi<strong>on</strong> of offenders who have<br />
been released to <strong>the</strong> community. Most of <strong>the</strong> 460 staff have tertiary qualificati<strong>on</strong>s <strong>in</strong> social<br />
work, drug and alcohol counsell<strong>in</strong>g, psychiatric or related services. They broker treatment<br />
for offenders with community agencies and also provide a number of <strong>in</strong>terventi<strong>on</strong><br />
programs particularly <strong>in</strong> <strong>the</strong> areas of alcohol and drug relapse preventi<strong>on</strong>, domestic<br />
violence and family work. Some of <strong>the</strong>se programs are;<br />
• Parole Group – Offenders participate <strong>in</strong> specifically tailored programs which<br />
address issues such as community re-<strong>in</strong>tegrati<strong>on</strong>, goal identificati<strong>on</strong>, pers<strong>on</strong>al and<br />
social development.<br />
• Drug and Alcohol Program – Offenders are presented with <strong>the</strong> physiological and<br />
social implicati<strong>on</strong>s of substance abuse<br />
• Dependency and Lifestyle Program - Offenders are educated <strong>in</strong> <strong>the</strong> benefits of a<br />
lifestyle free from substance abuse.<br />
• Relapse Preventi<strong>on</strong> Program – Offenders are taught <strong>the</strong> skills to prevent <strong>the</strong>ir<br />
return to a substance dependent lifestyle.<br />
• Liv<strong>in</strong>g without Violence Program – Offenders learn pers<strong>on</strong>al skills to assist <strong>the</strong>m<br />
to resolve problems and relati<strong>on</strong>ship issues without recourse to violence.<br />
180 Department of Corrective Services, Submissi<strong>on</strong> 63 (supplementary).<br />
181 Submissi<strong>on</strong> 63 (supplementary).<br />
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• Pers<strong>on</strong>al Development Program – Offenders deal with a variety of<br />
pers<strong>on</strong>al, social and legal issues to assist <strong>the</strong>ir pers<strong>on</strong>al development.<br />
• Anger and Aggressi<strong>on</strong> Program – Offenders learn to deal with <strong>the</strong>ir anger<br />
without recourse to anti social behaviour.<br />
• Dr<strong>in</strong>k Driv<strong>in</strong>g Program – Offenders are presented with <strong>the</strong> legal issues and<br />
ramificati<strong>on</strong>s of dr<strong>in</strong>k driv<strong>in</strong>g <strong>in</strong> a framework, which addresses behaviour and<br />
attitude.<br />
• Traffic Offenders Program – Offenders are presented with <strong>the</strong> legal issues of<br />
traffic offend<strong>in</strong>g <strong>in</strong> an envir<strong>on</strong>ment that utilises <strong>the</strong> expertise of relevant<br />
community groups (eg Police and visits from members of families of pers<strong>on</strong>s<br />
killed <strong>in</strong> vehicle accidents).<br />
6.145 The programs appear to be a valuable means of address<strong>in</strong>g offend<strong>in</strong>g behaviour. However<br />
<strong>the</strong> M<strong>in</strong>ister for Corrective Services advised <strong>in</strong> resp<strong>on</strong>se to a Questi<strong>on</strong> <strong>on</strong> Notice, dur<strong>in</strong>g<br />
<strong>the</strong> 2001 Budget Estimates, that data outl<strong>in</strong><strong>in</strong>g <strong>the</strong> current rate of participati<strong>on</strong> <strong>in</strong> <strong>the</strong>se<br />
programs by clients of <strong>the</strong> Probati<strong>on</strong> and Parole Service was not available. 182<br />
6.146 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> notes that <strong>the</strong> development of key performance <strong>in</strong>dicators is listed for<br />
development <strong>in</strong> <strong>the</strong> Department’s Corporate Plan. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong><br />
data collecti<strong>on</strong> relat<strong>in</strong>g to <strong>the</strong> rate <strong>in</strong> which clients of <strong>the</strong> Parole Service participate <strong>in</strong> <strong>the</strong>ir<br />
programs is <strong>on</strong>e of <strong>the</strong> measures to be developed.<br />
6.147 The Probati<strong>on</strong> and Parole Service also arrange and supervise o<strong>the</strong>r community based<br />
sentences such as Community Service Orders, Home Detenti<strong>on</strong>, probati<strong>on</strong>ary periods<br />
imposed by courts as an alternative to a sentence of impris<strong>on</strong>ment. Probati<strong>on</strong> and Parole<br />
staff have made a number of submissi<strong>on</strong>s to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> regard<strong>in</strong>g <strong>the</strong> difficulty of<br />
f<strong>in</strong>d<strong>in</strong>g appropriate services for people with mental illness and <strong>in</strong>tellectual disabilities with<strong>in</strong><br />
<strong>the</strong> community. They have also reported that f<strong>in</strong>d<strong>in</strong>g appropriate activities which<br />
offenders with mental illness and <strong>in</strong>tellectual disability can participate <strong>in</strong>, as part of a<br />
Community Service Order is also frequently very difficult. They have told <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
that this sometime limits <strong>the</strong> capacity of a court to sentence offenders with mental illness<br />
or <strong>in</strong>tellectual impairment <strong>in</strong>to n<strong>on</strong>-custodial opti<strong>on</strong>s. The follow<strong>in</strong>g example was given to<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
JD is a 29-year-old man whose mild <strong>in</strong>tellectual disability resulted from a hypoxic<br />
accident follow<strong>in</strong>g an anaes<strong>the</strong>tic for <strong>the</strong> repair of a broken arm at 7 years. He<br />
attended special schools and is <strong>on</strong> <strong>the</strong> Disability Support Pensi<strong>on</strong>.<br />
JD has spent 2 periods <strong>in</strong> custody for armed robbery of a bank and a supermarket<br />
between 1993-1994, and <strong>in</strong> 1996-1998. After his release <strong>in</strong> 1998, he breached<br />
parole and served an additi<strong>on</strong>al 6 m<strong>on</strong>ths at Goulburn Disability Unit.<br />
Prior to his release <strong>on</strong> parole from Goulburn disability unit <strong>in</strong> 1998 extensive<br />
efforts were made by staff of <strong>the</strong> unit, and staff of <strong>the</strong> Probati<strong>on</strong> and parole<br />
Service, JD’s mo<strong>the</strong>r and o<strong>the</strong>rs to f<strong>in</strong>d appropriate post release opti<strong>on</strong>s for this<br />
182 M<strong>in</strong>ister for Corrective Services, Resp<strong>on</strong>ses to Questi<strong>on</strong>s <strong>on</strong> Notice, Budget Estimates GPSC 3, p 58.<br />
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man – without success. Meet<strong>in</strong>gs were held with<strong>in</strong> <strong>the</strong> community <strong>in</strong>to which he<br />
was to return were written to executive staff of appropriate departments, and n<strong>on</strong>government<br />
agencies were approached.<br />
JD was released to live with his mo<strong>the</strong>r without appropriate support, after a short<br />
time he stole a small item, when not arrested for this <strong>in</strong>cident he approached <strong>the</strong><br />
parole officer with a knife and threatened that he would use it unless he was<br />
returned to custody.<br />
He was released at <strong>the</strong> expiry of his sentence <strong>on</strong> 20/10/98.<br />
He is presently <strong>on</strong> remand for ano<strong>the</strong>r bank robbery and is housed <strong>in</strong> <strong>the</strong><br />
Disability Unit at <strong>the</strong> Sydney Police Centre.<br />
JD would not be a significant threat to <strong>the</strong> community if appropriate support<br />
opti<strong>on</strong>s were available. After extensive attempts, it has not been possible to locate<br />
such services. 183<br />
6.148 Probati<strong>on</strong> and Parole also provide a bail assessment program, which is used to supervise<br />
people <strong>on</strong> bail as an alternative to <strong>the</strong>m be<strong>in</strong>g held <strong>in</strong> custody. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was advised<br />
however that <strong>the</strong> numbers are relatively small and it is not highly used by <strong>the</strong> judiciary. The<br />
program was withdrawn purely due to its lack of use. 184<br />
6.149 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> is c<strong>on</strong>cerned that lack of community based facilities for mentally ill people<br />
and for people with <strong>in</strong>tellectual disabilities may be c<strong>on</strong>tribut<strong>in</strong>g to crime <strong>in</strong> <strong>the</strong> community<br />
and result<strong>in</strong>g <strong>in</strong> <strong>the</strong> impris<strong>on</strong>ment of disadvantaged pers<strong>on</strong>s.<br />
6.150 The Service is also resp<strong>on</strong>sible for writ<strong>in</strong>g pre-sentence assessment reports to assist judges<br />
and magistrates <strong>in</strong> determ<strong>in</strong><strong>in</strong>g appropriate sentences. The number of reports prepared for<br />
<strong>the</strong> Courts system has <strong>in</strong>creased from 17,931 <strong>in</strong> 1995/96 to 23,824 <strong>in</strong> 1999/00. 185<br />
6.151 Dur<strong>in</strong>g <strong>the</strong> Budget Estimates 2001, <strong>the</strong> M<strong>in</strong>ister for Corrective Services was asked whe<strong>the</strong>r<br />
<strong>the</strong> Department of Corrective Services had or planned to have a measure of how often<br />
recommendati<strong>on</strong>s by Parole Service to divert offenders from custody were accepted by <strong>the</strong><br />
Courts. He advised that <strong>the</strong> Department did not plan to <strong>in</strong>troduce such a measure, because<br />
“all sentenc<strong>in</strong>g opti<strong>on</strong>s are canvassed <strong>in</strong> <strong>the</strong> reports.” 186<br />
6.152 A measure of <strong>the</strong> effectiveness <strong>in</strong> promot<strong>in</strong>g <strong>the</strong> diversi<strong>on</strong> of offenders from full time<br />
custody should be developed s<strong>in</strong>ce this purpose is <strong>on</strong>e of <strong>the</strong> major reas<strong>on</strong>s that <strong>the</strong> reports<br />
are prepared and provided. In <strong>the</strong> same Resp<strong>on</strong>se to Questi<strong>on</strong>s <strong>on</strong> Notice, <strong>the</strong> M<strong>in</strong>ister<br />
also advised that <strong>the</strong> Court Advice Program is currently be<strong>in</strong>g reviewed. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
looks forward to <strong>the</strong> review of <strong>the</strong> Advice program be<strong>in</strong>g published.<br />
183 Department of Corrective Services Submissi<strong>on</strong> 63 p106. Similar comments were made by an officer of <strong>the</strong><br />
Graft<strong>on</strong> Probati<strong>on</strong> and Parole Service, Mr Ozols dur<strong>in</strong>g <strong>the</strong> hear<strong>in</strong>g c<strong>on</strong>ducted at Graft<strong>on</strong> Gaol, 29 March<br />
2000, pages 39-50, and to <strong>the</strong> Chair by staff of <strong>the</strong> Campbelltown Probati<strong>on</strong> and Parole Service dur<strong>in</strong>g a visit<br />
<strong>the</strong>re <strong>on</strong> 7 September 2001 at which no transcript was taken.<br />
184 McD<strong>on</strong>ald Evidence 28 March 2000 p 48.<br />
185 Department of Corrective Services, Annual <strong>Report</strong> 1999/00 p 24.<br />
186 Resp<strong>on</strong>se to Questi<strong>on</strong>s <strong>on</strong> Notice dur<strong>in</strong>g Budget Estimates for GPSC No3 by <strong>the</strong> M<strong>in</strong>ister for Corrective<br />
Services, p58.<br />
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6.153 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong> recommended a Separate Community Correcti<strong>on</strong>s Divisi<strong>on</strong><br />
be established with<strong>in</strong> <strong>the</strong> Department of Corrective Services to raise <strong>the</strong> status of<br />
community based correcti<strong>on</strong>s with<strong>in</strong> an agency dom<strong>in</strong>ated by a “culture of<br />
impris<strong>on</strong>ment”. 187 In <strong>the</strong> Government Resp<strong>on</strong>se to <strong>the</strong> Interim <strong>Report</strong>, <strong>the</strong> M<strong>in</strong>ister advised<br />
that <strong>the</strong> Probati<strong>on</strong> and Parole Service already serves this functi<strong>on</strong>. 188<br />
6.154 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong>tended that <strong>the</strong> Probati<strong>on</strong> and Parole Service should play a lead<strong>in</strong>g role<br />
<strong>in</strong> <strong>the</strong> proposed new Divisi<strong>on</strong> of Community Correcti<strong>on</strong>s. The Probati<strong>on</strong> and Parole<br />
Service has <strong>on</strong>ly recently been “returned” to <strong>the</strong> Department of Corrective Services. Until<br />
1995, it was a part of <strong>the</strong> Attorney General’s Department, operat<strong>in</strong>g with<strong>in</strong> Court Services.<br />
6.155 There are a variety of differences between services, culture and requirements of community<br />
correcti<strong>on</strong>s to those of <strong>the</strong> full time custody program with<strong>in</strong> Corrective Services. For<br />
example, <strong>the</strong> operati<strong>on</strong>al duties of pris<strong>on</strong> officers require <strong>the</strong>m to wear uniforms, use<br />
“military” style discipl<strong>in</strong>e and work place titles and even carry weap<strong>on</strong>s. Probati<strong>on</strong> and<br />
Parole officers do not wear uniforms and <strong>the</strong>ir workplace culture resembles more of a<br />
“<strong>the</strong>rapeutic pers<strong>on</strong>al services” model. There is a greater emphasis <strong>in</strong> c<strong>on</strong>ta<strong>in</strong><strong>in</strong>g and<br />
c<strong>on</strong>troll<strong>in</strong>g <strong>in</strong>mates <strong>in</strong> pris<strong>on</strong>s, where as rehabilitati<strong>on</strong> has a more paramount role <strong>in</strong><br />
community correcti<strong>on</strong>s.<br />
6.156 The management and resource needs of <strong>the</strong> smaller community correcti<strong>on</strong> branch can be<br />
easily “swamped” by <strong>the</strong> larger and more expensive requirements of <strong>the</strong> larger full time<br />
custody program. Of <strong>the</strong> 4,906 people work<strong>in</strong>g for <strong>the</strong> Department of Corrective Services<br />
<strong>in</strong> 1999/2000, about 87 percent of <strong>the</strong>m perform tasks associated with provid<strong>in</strong>g full time<br />
custody of <strong>in</strong>mates. By comparis<strong>on</strong>, 13 per cent provide community supervisi<strong>on</strong>. N<strong>in</strong>ety<br />
percent of <strong>the</strong> total expenditure of <strong>the</strong> Department of Corrective Services is allocated to<br />
programs associated with hold<strong>in</strong>g <strong>in</strong>mates <strong>in</strong> full time custody or provid<strong>in</strong>g <strong>the</strong>m with<br />
assessment, classificati<strong>on</strong> and development services. Often <strong>the</strong> amounts allocated <strong>in</strong> <strong>the</strong><br />
capital works budget for build<strong>in</strong>g and renovat<strong>in</strong>g new pris<strong>on</strong>s equals <strong>the</strong> recurrent<br />
expenditure for community correcti<strong>on</strong>s. 189<br />
6.157 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes that <strong>the</strong> recommendati<strong>on</strong> <strong>in</strong> <strong>the</strong> Interim <strong>Report</strong> c<strong>on</strong>t<strong>in</strong>ues to have<br />
merit.<br />
Transiti<strong>on</strong>al Centres<br />
6.158 As noted <strong>in</strong> <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong>, <strong>the</strong> Department of Corrective Services currently<br />
operates <strong>the</strong> Parramatta Transiti<strong>on</strong>al Centre for women which provides a bridge between<br />
<strong>the</strong> <strong>in</strong>stituti<strong>on</strong>al rout<strong>in</strong>es of a correcti<strong>on</strong>al centre and <strong>the</strong> liv<strong>in</strong>g skills needed for <strong>the</strong><br />
community. Prelim<strong>in</strong>ary figures suggest that s<strong>in</strong>ce <strong>the</strong> open<strong>in</strong>g of <strong>the</strong> Transiti<strong>on</strong>al Centre <strong>in</strong><br />
1996, <strong>on</strong>ly <strong>on</strong>e woman out of <strong>the</strong> 84 who have been through <strong>the</strong> Centre has returned to<br />
custody.<br />
187 Interim <strong>Report</strong> pp 158-159.<br />
188 Government Resp<strong>on</strong>se, 19 February 2001 p 15.<br />
189 In 1999/2000, <strong>the</strong> capital works budget for <strong>the</strong> Department of Corrective Services was $60.9 milli<strong>on</strong>, while<br />
recurrent expenditure for <strong>the</strong> “Alternatives to Custody Program” was $49.4, Assessment, – DSC Annual<br />
<strong>Report</strong> 1999/2000.<br />
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6.159 The Department of Corrective Services is due to complete a sec<strong>on</strong>d Transiti<strong>on</strong>al Centre for<br />
women near <strong>the</strong> exist<strong>in</strong>g Centre at Emu Pla<strong>in</strong>s <strong>in</strong> early 2002. The Department, <strong>in</strong> its<br />
supplementary submissi<strong>on</strong> advised that<br />
c<strong>on</strong>siderati<strong>on</strong> is also be<strong>in</strong>g given to ei<strong>the</strong>r a Transiti<strong>on</strong> centre or h<strong>on</strong>our houses<br />
attached to Kempsey for Aborig<strong>in</strong>al men. The focus of this Transiti<strong>on</strong> Centre will<br />
be family rec<strong>on</strong>ciliati<strong>on</strong>. The Transiti<strong>on</strong> Centre will be designed so that families<br />
can be accommodated with <strong>in</strong>mates to specifically work <strong>on</strong> transiti<strong>on</strong> issues. This<br />
Transiti<strong>on</strong>al Centre is <strong>on</strong>ly at <strong>the</strong> c<strong>on</strong>ceptual stage. 190<br />
6.160 There appears to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to be a need for an expansi<strong>on</strong> <strong>in</strong> <strong>the</strong> numbers of <strong>the</strong>se<br />
transiti<strong>on</strong>al centres to many more facilities.<br />
Recommendati<strong>on</strong> 14<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends <strong>the</strong> Department of Corrective Services expand <strong>the</strong><br />
establishment of transiti<strong>on</strong>al centres, and that, where possible, <strong>the</strong>y be located outside<br />
but near to exist<strong>in</strong>g NSW Correcti<strong>on</strong>al facilities.<br />
Back End Home Detenti<strong>on</strong><br />
6.161 The ability to serve a period of home detenti<strong>on</strong> toward <strong>the</strong> end of a pris<strong>on</strong> sentence, is<br />
referred to as “back end” home detenti<strong>on</strong>. It was raised by The Law Society of NSW as a<br />
means to ease an offender’s transiti<strong>on</strong> <strong>in</strong>to <strong>the</strong> community, with <strong>the</strong> Society suggest<strong>in</strong>g that<br />
<strong>the</strong> home detenti<strong>on</strong> scheme be expanded to permit ‘back end’ home detenti<strong>on</strong>. 191 There is<br />
currently no provisi<strong>on</strong> for back-end home detenti<strong>on</strong> <strong>in</strong> New South Wales.<br />
6.162 In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, Ms Deborah Allen for <strong>the</strong> Department of Corrective<br />
Services stated:<br />
We are able to <strong>in</strong>troduce fr<strong>on</strong>t-end home detenti<strong>on</strong>. That is be<strong>in</strong>g taken up slowly<br />
by <strong>the</strong> judiciary. It rema<strong>in</strong>s to be seen whe<strong>the</strong>r <strong>the</strong> community would accept backend<br />
home detenti<strong>on</strong>. Our advice is that that is a lot more c<strong>on</strong>troversial. Back-end<br />
home detenti<strong>on</strong> is a scheme whereby <strong>in</strong>mates would do <strong>the</strong> last, say, 18 m<strong>on</strong>ths or<br />
so of <strong>the</strong>ir sentence <strong>in</strong> <strong>the</strong> same c<strong>on</strong>diti<strong>on</strong>s that <strong>the</strong> people <strong>on</strong> home detenti<strong>on</strong><br />
have now. For <strong>in</strong>stance, <strong>the</strong>y would have <strong>the</strong>ir electr<strong>on</strong>ic bracelets and so forth.<br />
There has been criticism of that sort of scheme because <strong>the</strong>re is a percepti<strong>on</strong> that<br />
it is re<strong>in</strong>troduc<strong>in</strong>g remissi<strong>on</strong>s… 192<br />
6.163 The Law Reform Commissi<strong>on</strong> c<strong>on</strong>sidered back-end home detenti<strong>on</strong> <strong>in</strong> its <strong>Report</strong> <strong>on</strong><br />
Sentenc<strong>in</strong>g <strong>in</strong> December 1996. Dur<strong>in</strong>g <strong>the</strong> Commissi<strong>on</strong>’s <strong>in</strong>quiry <strong>the</strong> Department put<br />
forward a submissi<strong>on</strong> expla<strong>in</strong><strong>in</strong>g how back-end home detenti<strong>on</strong> could work:<br />
The Department is exam<strong>in</strong><strong>in</strong>g whe<strong>the</strong>r to recommend to <strong>the</strong> M<strong>in</strong>ister for<br />
Corrective Services that <strong>the</strong> government <strong>in</strong>troduce legislati<strong>on</strong> to establish back-<br />
190 Department of Corrective Services, Submissi<strong>on</strong> 63 (supplementary) p5.<br />
191 The Law Society of NSW, Submissi<strong>on</strong> 93 p 20.<br />
192 Allen Evidence, 12 June, 2001.<br />
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end home detenti<strong>on</strong> as a sentenc<strong>in</strong>g opti<strong>on</strong>. In order to preserve <strong>the</strong> c<strong>on</strong>cept of<br />
truth <strong>in</strong> sentenc<strong>in</strong>g, any order for back-end home detenti<strong>on</strong> would have to be<br />
sancti<strong>on</strong>ed by a court.<br />
Care will have to be exercised <strong>in</strong> formulat<strong>in</strong>g <strong>the</strong> words which a court would use<br />
<strong>in</strong> sentenc<strong>in</strong>g a pers<strong>on</strong> to back-end home detenti<strong>on</strong>. If <strong>the</strong> sentence is couched <strong>in</strong><br />
terms of early release, <strong>the</strong> community would see <strong>the</strong> c<strong>on</strong>cept as a diluti<strong>on</strong> of truth<br />
<strong>in</strong> sentenc<strong>in</strong>g. If, <strong>on</strong> <strong>the</strong> o<strong>the</strong>r hand, <strong>the</strong> sentence is couched strictly <strong>in</strong> terms of<br />
impris<strong>on</strong>ment, <strong>the</strong> Department of Social Security may characterise <strong>the</strong> sentence as<br />
defacto impris<strong>on</strong>ment and refuse to pay social security benefits to pers<strong>on</strong>s <strong>on</strong><br />
home detenti<strong>on</strong>.<br />
The c<strong>on</strong>diti<strong>on</strong>s applicable to back-end home detenti<strong>on</strong> would be <strong>the</strong> same as <strong>the</strong><br />
c<strong>on</strong>diti<strong>on</strong>s applicable to <strong>in</strong>tensive community supervisi<strong>on</strong>. When <strong>the</strong> first part of<br />
such a sentence is about to expire, a court or a quasi-judicial body- eg <strong>the</strong><br />
Offenders Review Board – would have to decide whe<strong>the</strong>r <strong>in</strong> fact <strong>the</strong> offender<br />
should be permitted to serve <strong>the</strong> latter part of <strong>the</strong> sentence <strong>in</strong> home detenti<strong>on</strong>.<br />
It would be doubtful if an offender could “progress” from home detenti<strong>on</strong> to<br />
work release, or vice-versa. In any event, back-end home detenti<strong>on</strong> would<br />
provide an opportunity for employment <strong>in</strong> <strong>the</strong> same way that work release does.<br />
The time served <strong>in</strong> home detenti<strong>on</strong> would be quite separate from any time later<br />
served <strong>on</strong> parole. 193<br />
6.164 The Department of Corrective Services <strong>in</strong> a later submissi<strong>on</strong> to <strong>the</strong> Law Reform<br />
Commissi<strong>on</strong>’s Review stated that <strong>in</strong>troducti<strong>on</strong> of a back-end home detenti<strong>on</strong> scheme<br />
should not proceed before <strong>the</strong> fr<strong>on</strong>t-end scheme (<strong>in</strong>troduced <strong>in</strong> 1997) was properly<br />
assessed. 194<br />
6.165 The Law Reform Commissi<strong>on</strong> found that <strong>the</strong>re was general support for a back-end home<br />
detenti<strong>on</strong> scheme <strong>in</strong> New South Wales. However <strong>the</strong> divergence of op<strong>in</strong>i<strong>on</strong>s <strong>in</strong> <strong>the</strong><br />
submissi<strong>on</strong>s it received <strong>on</strong> how <strong>the</strong> scheme could work was thought to be <strong>in</strong>dicative of <strong>the</strong><br />
difficulties <strong>in</strong>volved <strong>in</strong> implement<strong>in</strong>g a satisfactory scheme lead<strong>in</strong>g <strong>the</strong> Commissi<strong>on</strong> to<br />
c<strong>on</strong>clude that back-end home detenti<strong>on</strong> should not be <strong>in</strong>troduced <strong>in</strong> New South Wales.<br />
6.166 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes <strong>the</strong>re is value <strong>in</strong> re-visit<strong>in</strong>g <strong>the</strong> back-end home detenti<strong>on</strong> proposal.<br />
The potential for home detenti<strong>on</strong> to reduce <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> and <strong>the</strong> ec<strong>on</strong>omic<br />
advantage over impris<strong>on</strong>ment is fur<strong>the</strong>r discussed <strong>in</strong> Chapter Seven. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> notes<br />
<strong>in</strong> that <strong>the</strong> Department is currently undertak<strong>in</strong>g a research project <strong>in</strong>to m<strong>on</strong>itor<strong>in</strong>g of <strong>the</strong><br />
Home Detenti<strong>on</strong> Scheme, due for completi<strong>on</strong> <strong>in</strong> June 2002. 195 Follow<strong>in</strong>g this, <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes <strong>the</strong> Department should urge <strong>the</strong> Government to re-exam<strong>in</strong>e <strong>the</strong> issue<br />
of back-end home detenti<strong>on</strong> as a way of reduc<strong>in</strong>g <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong>.<br />
193 Department of Corrective Services Submissi<strong>on</strong> to NSW Law Reform Commissi<strong>on</strong> Sentenc<strong>in</strong>g Review 4 September<br />
1995, p 15.<br />
194 Department of Corrective Services Submissi<strong>on</strong> to NSW Law Reform Commissi<strong>on</strong> Sentenc<strong>in</strong>g Review Discussi<strong>on</strong> Paper<br />
15 July 1996, p 27.<br />
195 Department of Corrective Service Research Program 2001-2002 p 19.<br />
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Recommendati<strong>on</strong> 15<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g <strong>the</strong> completi<strong>on</strong> of its current research<br />
<strong>in</strong>to <strong>the</strong> home detenti<strong>on</strong> scheme, <strong>the</strong> Department of Corrective Services re-exam<strong>in</strong>e<br />
proposals for back-end home detenti<strong>on</strong>.<br />
C<strong>on</strong>clusi<strong>on</strong><br />
6.167 S<strong>in</strong>ce <strong>the</strong> 1980s <strong>the</strong>re has been an <strong>in</strong>creas<strong>in</strong>g shift <strong>in</strong> sentenc<strong>in</strong>g policy to see<strong>in</strong>g <strong>the</strong><br />
purpose of pris<strong>on</strong> as <strong>in</strong>capacitati<strong>on</strong> ra<strong>the</strong>r than rehabilitati<strong>on</strong>. The adopti<strong>on</strong> of this<br />
purpose clearly favours l<strong>on</strong>ger sentences and <strong>in</strong>creased use of <strong>in</strong>carcerati<strong>on</strong> as a means to<br />
c<strong>on</strong>trol crime. This <strong>in</strong>creased use of <strong>in</strong>carcerati<strong>on</strong> leads to significant <strong>in</strong>creases <strong>in</strong><br />
expenditure <strong>on</strong> programs with<strong>in</strong> pris<strong>on</strong>s, which are much more expensive to deliver than<br />
community based programs. There are promis<strong>in</strong>g programs <strong>in</strong> some areas such as drug and<br />
alcohol programs, <strong>the</strong> Restorative Justice Unit and transiti<strong>on</strong> centres. However a lack of<br />
c<strong>on</strong>t<strong>in</strong>uity <strong>in</strong> programs has meant <strong>the</strong>re is almost noth<strong>in</strong>g known about <strong>the</strong> effectiveness of<br />
most programs <strong>in</strong> reduc<strong>in</strong>g recidivism. The case management program, which has already<br />
been <strong>in</strong>tensively reviewed <strong>on</strong> several occasi<strong>on</strong>s, still appears to be experienc<strong>in</strong>g problems<br />
under <strong>the</strong> weight of <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> numbers.<br />
6.168 All of <strong>the</strong> above suggests that greater exam<strong>in</strong>ati<strong>on</strong> needs to made of alternatives to pris<strong>on</strong><br />
sentences for suitable offenders. This is <strong>the</strong> subject of <strong>the</strong> next chapter, which<br />
supplements <strong>the</strong> c<strong>on</strong>siderati<strong>on</strong> of <strong>the</strong>se issues <strong>in</strong> <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong>.<br />
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Chapter 7<br />
Sentenc<strong>in</strong>g Alternatives and Diversi<strong>on</strong>ary<br />
Programs<br />
Introducti<strong>on</strong><br />
7.1 The pris<strong>on</strong> populati<strong>on</strong> could be substantially reduced if greater use was made of sentenc<strong>in</strong>g<br />
alternatives and diversi<strong>on</strong>ary programs. The first part of this chapter outl<strong>in</strong>es alternative<br />
sentenc<strong>in</strong>g opti<strong>on</strong>s currently available <strong>in</strong> New South Wales, <strong>in</strong>clud<strong>in</strong>g periodic detenti<strong>on</strong><br />
and suspended sentences and community correcti<strong>on</strong>s orders. The chapter also looks at <strong>the</strong><br />
availability, use and effectiveness of <strong>the</strong>se opti<strong>on</strong>s.<br />
7.2 The sec<strong>on</strong>d part of this Chapter outl<strong>in</strong>es mechanisms for divert<strong>in</strong>g appropriate offenders<br />
from pris<strong>on</strong> sentences <strong>in</strong>clud<strong>in</strong>g <strong>the</strong> NSW Drug Court, <strong>the</strong> Court Psychiatric Assessment<br />
Scheme and <strong>the</strong> MERIT Program and o<strong>the</strong>r diversi<strong>on</strong>ary programs.<br />
Sentenc<strong>in</strong>g Opti<strong>on</strong>s: N<strong>on</strong>-custodial sentences<br />
7.3 Full time custody is <strong>on</strong>ly <strong>on</strong>e sentenc<strong>in</strong>g opti<strong>on</strong> available to deal with an offender. In<br />
sentenc<strong>in</strong>g an offender, <strong>the</strong> court aims to make <strong>the</strong> punishment fit <strong>the</strong> crime and <strong>the</strong><br />
circumstances of <strong>the</strong> offender. This presupposes a range of alternatives and wide judicial<br />
discreti<strong>on</strong> <strong>in</strong> sentenc<strong>in</strong>g. Given <strong>the</strong> circumstances, a number of opti<strong>on</strong>s are available to a<br />
court when sentenc<strong>in</strong>g an offender. These <strong>in</strong>clude:<br />
• f<strong>in</strong>es,<br />
• probati<strong>on</strong> orders,<br />
• community service orders,<br />
• periodic detenti<strong>on</strong> orders,<br />
• home detenti<strong>on</strong> orders,<br />
• suspended sentences,<br />
• Drug Court orders, and<br />
• full time <strong>in</strong>carcerati<strong>on</strong>.<br />
Benefits of N<strong>on</strong>-Custodial Sentences<br />
7.4 The majority of c<strong>on</strong>victed offenders receive supervised or unsupervised n<strong>on</strong>-custodial<br />
sentences. Supervisi<strong>on</strong> of <strong>the</strong>se offenders is undertaken by <strong>the</strong> NSW Probati<strong>on</strong> and Parole<br />
Service, an arm of <strong>the</strong> Department of Corrective Services. As at 1 January 2001, <strong>the</strong>re were<br />
over 18,000 offenders under <strong>the</strong> supervisi<strong>on</strong> of <strong>the</strong> Probati<strong>on</strong> and Parole Service across<br />
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New South Wales. Luke Grant, Assistant Commissi<strong>on</strong>er for Inmate Management advised<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
There are three times as many people be<strong>in</strong>g managed <strong>in</strong> community opti<strong>on</strong>s as<br />
<strong>the</strong>re are <strong>in</strong> full-time custody. … In recent times <strong>the</strong>y have <strong>in</strong>troduced home<br />
detenti<strong>on</strong> that did not exist before, <strong>the</strong>y have <strong>in</strong>troduced suspended sentences<br />
(and) <strong>in</strong>creased <strong>the</strong> number of people <strong>on</strong> periodic detenti<strong>on</strong> as well. 196<br />
7.5 The practical benefit of n<strong>on</strong>-custodial sentences is significant <strong>in</strong> terms of <strong>the</strong> cost to <strong>the</strong><br />
community. The Department of Corrective Services reports that <strong>the</strong> average cost per<br />
offender per day when complet<strong>in</strong>g a community based program delivered by <strong>the</strong> Probati<strong>on</strong><br />
and Parole Services is $8.63, or $3,150 per year, compared to $138.93 per day ($49,458 per<br />
year) to keep a m<strong>in</strong>imum security <strong>in</strong>mate <strong>in</strong> full time custody. 197<br />
7.6 Dr T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> & Eileen Baldry argue that <strong>the</strong>re is a large pool of <strong>in</strong>mates who have<br />
committed relatively less serious crimes, n<strong>on</strong>-violent crimes who could be diverted from<br />
correcti<strong>on</strong>al centres (See Chapter Six, and below). The benefits of this <strong>in</strong> reduc<strong>in</strong>g <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong> are significant, particularly for specific groups such as <strong>in</strong>digenous<br />
pers<strong>on</strong>s. As discussed <strong>in</strong> Chapter Four, research by <strong>the</strong> Bureau of Crime Statistics and<br />
Research <strong>in</strong>dicates that <strong>the</strong> numbers of Aborig<strong>in</strong>al and Torres Strait Islanders <strong>in</strong> pris<strong>on</strong><br />
could be reduced by 54% if <strong>in</strong>digenous pris<strong>on</strong>ers currently given less than a six m<strong>on</strong>th<br />
sentence were given n<strong>on</strong>-custodial alternatives.<br />
7.7 The NSW Department of Juvenile Justice has, over <strong>the</strong> last decade, been successful <strong>in</strong><br />
achiev<strong>in</strong>g significant reducti<strong>on</strong>s <strong>in</strong> <strong>the</strong> rate of juveniles held <strong>in</strong> detenti<strong>on</strong>, to <strong>the</strong> extent that,<br />
by early 2000, <strong>on</strong>ly 350 juveniles were held <strong>in</strong> detenti<strong>on</strong> centres. 198 This has been achieved<br />
by extensive use of diversi<strong>on</strong>ary measures, <strong>in</strong>clud<strong>in</strong>g cauti<strong>on</strong><strong>in</strong>g and restorative justice<br />
models such as community youth c<strong>on</strong>ferenc<strong>in</strong>g. One of <strong>the</strong> pr<strong>in</strong>ciples used by <strong>the</strong><br />
Department has been to avoid “c<strong>on</strong>tam<strong>in</strong>ati<strong>on</strong>” of m<strong>in</strong>or or first time offenders with a<br />
hard core of more serious offenders. The benefits of this approach should be c<strong>on</strong>sidered<br />
when assess<strong>in</strong>g <strong>the</strong> benefits of n<strong>on</strong>-custodial programs and diversi<strong>on</strong>ary programs for adult<br />
offenders.<br />
7.8 In Crime Preventi<strong>on</strong> through Social Support: Sec<strong>on</strong>d <strong>Report</strong> <strong>the</strong> Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and<br />
Justice c<strong>on</strong>sidered <strong>the</strong> benefits of various n<strong>on</strong>-custodial opti<strong>on</strong>s while not<strong>in</strong>g <strong>the</strong>re were<br />
few adequate measures of <strong>the</strong> effectiveness of <strong>the</strong>se programs <strong>in</strong> reduc<strong>in</strong>g recidivism. 199 To<br />
that end it recommended an agency such as <strong>the</strong> Bureau of Crime Statistics and Research<br />
evaluate n<strong>on</strong>-custodial opti<strong>on</strong>s <strong>in</strong> terms of <strong>the</strong>ir success <strong>in</strong> reduc<strong>in</strong>g recidivism compared to<br />
<strong>the</strong> recidivism rate for those <strong>in</strong> full time custody for similar offences. The <str<strong>on</strong>g>Select</str<strong>on</strong>g><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> endorses <strong>the</strong> value of this recommendati<strong>on</strong>.<br />
196 Grant, Evidence, 12 June, 2001.<br />
197 Department of Corrective Services Annual <strong>Report</strong> 1999/00, p 34.<br />
198 Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice Crime Preventi<strong>on</strong> through Social Support: Sec<strong>on</strong>d <strong>Report</strong> August 2000 p67-<br />
72.<br />
199 Ibid p136.<br />
108 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
V<strong>in</strong>s<strong>on</strong> and Baldry Research: Divert<strong>in</strong>g less serious offenders<br />
7.9 In its Interim <strong>Report</strong>, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> presented results of research c<strong>on</strong>ducted Professor T<strong>on</strong>y<br />
V<strong>in</strong>s<strong>on</strong> and Dr Eileen Baldry of <strong>the</strong> University of New South Wales which attempted to<br />
determ<strong>in</strong>e if certa<strong>in</strong> groups could be removed from pris<strong>on</strong> by substitut<strong>in</strong>g o<strong>the</strong>r means of<br />
c<strong>on</strong>trol or punishment. In summary, <strong>the</strong> research showed that alternatives to custody<br />
could be found for over half <strong>the</strong> women <strong>in</strong> pris<strong>on</strong>. 200<br />
7.10 V<strong>in</strong>s<strong>on</strong> and Baldry have subsequently applied <strong>the</strong> same approach to <strong>the</strong> growth <strong>in</strong> <strong>the</strong><br />
number of male pris<strong>on</strong>ers. They exam<strong>in</strong>ed <strong>the</strong> <strong>in</strong>formati<strong>on</strong> for male remand deta<strong>in</strong>ees and<br />
male pris<strong>on</strong>ers <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> pris<strong>on</strong> census <strong>on</strong> 30 th June, 2000. V<strong>in</strong>s<strong>on</strong> and Baldry’s<br />
research c<strong>on</strong>sisted of a simple threefold rat<strong>in</strong>g (by a group of six NSW magistrates) of <strong>the</strong><br />
relative seriousness of different categories of offences: serious; middl<strong>in</strong>g serious; relatively<br />
less serious. V<strong>in</strong>s<strong>on</strong> and Baldry state:<br />
Apply<strong>in</strong>g <strong>the</strong> magistrates’ rat<strong>in</strong>gs to our unusually c<strong>on</strong>crete data c<strong>on</strong>cern<strong>in</strong>g ‘what<br />
<strong>the</strong>y are <strong>in</strong> for’, provides us with an objective basis for c<strong>on</strong>sider<strong>in</strong>g which groups<br />
currently <strong>in</strong> pris<strong>on</strong> could be removed, by substitut<strong>in</strong>g o<strong>the</strong>r means of c<strong>on</strong>trol or<br />
punishment, to <strong>the</strong> mutual advantage of <strong>the</strong> <strong>in</strong>dividuals, <strong>the</strong>ir families, and society<br />
generally. 201<br />
7.11 V<strong>in</strong>s<strong>on</strong> and Baldry state that <strong>the</strong> research shows that <strong>the</strong>re were a significant number of<br />
people <strong>in</strong> pris<strong>on</strong> <strong>on</strong> 30 June 2000 who had not committed crimes <strong>in</strong> <strong>the</strong> most serious<br />
offence category (<strong>in</strong>clud<strong>in</strong>g <strong>the</strong> offences such as assaults, bodily harm, crimes of violence,<br />
serious challenges to <strong>the</strong> authority of law and drug traffick<strong>in</strong>g) and who had not previously<br />
been <strong>in</strong> pris<strong>on</strong> for <strong>the</strong> same offence, and could <strong>the</strong>refore be c<strong>on</strong>sidered for some o<strong>the</strong>r<br />
form of c<strong>on</strong>trol or punishment.<br />
7.12 They found that, of <strong>the</strong> 1,360 remandees, 734 were be<strong>in</strong>g held for ma<strong>in</strong> offences that fell<br />
below <strong>the</strong> “most serious” grade of a three tiered classificati<strong>on</strong> of seriousness developed<br />
with <strong>the</strong> co-operati<strong>on</strong> of magistrates. Of <strong>the</strong>se, 238 had no history of previous<br />
impris<strong>on</strong>ment and a fur<strong>the</strong>r 127 had not been <strong>in</strong> pris<strong>on</strong> previously for <strong>the</strong> offence for<br />
which <strong>the</strong>y were now charged.<br />
7.13 Mov<strong>in</strong>g from <strong>the</strong> unsentenced to <strong>the</strong> sentenced populati<strong>on</strong>, V<strong>in</strong>s<strong>on</strong> and Baldry found that<br />
2,794 were serv<strong>in</strong>g sentences for less serious offences. Of <strong>the</strong>se, 717 of those <strong>on</strong> less<br />
serious offences had no history of previous impris<strong>on</strong>ment and a fur<strong>the</strong>r 525 had not served<br />
a previous pris<strong>on</strong> sentence for <strong>the</strong> offence for which <strong>the</strong>y were currently serv<strong>in</strong>g:<br />
This means that a pool of 2,794 pris<strong>on</strong>ers existed that might be c<strong>on</strong>sidered for<br />
forms of punishment o<strong>the</strong>r than impris<strong>on</strong>ment, and that of that number 717 had<br />
particular claims for such c<strong>on</strong>siderati<strong>on</strong> while ano<strong>the</strong>r 525 warranted close<br />
c<strong>on</strong>siderati<strong>on</strong>.<br />
Applicati<strong>on</strong> of <strong>the</strong> more str<strong>in</strong>gent standard of ‘no previous impris<strong>on</strong>ment’ to both<br />
<strong>the</strong> remand and impris<strong>on</strong>ed secti<strong>on</strong>s of <strong>the</strong> total populati<strong>on</strong> <strong>in</strong>dicates <strong>the</strong> existence<br />
of upwards of a thousand people <strong>in</strong> custody who, if <strong>the</strong> correcti<strong>on</strong>al authorities<br />
200 See Chapter Six, Interim <strong>Report</strong>.<br />
201 V<strong>in</strong>s<strong>on</strong> & Baldry Evidence 12/6/01 Tabled document Supplementary to Submissi<strong>on</strong> 41, p3.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 109
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
were committed to promot<strong>in</strong>g o<strong>the</strong>r forms of punishment, might not need to be<br />
<strong>the</strong>re. 202<br />
7.14 V<strong>in</strong>s<strong>on</strong> and Baldry’s research found that, based <strong>on</strong> <strong>the</strong>ir estimati<strong>on</strong>s, a total of 1,619 men,<br />
plus over 200 women (at <strong>the</strong> time of <strong>the</strong> studies) could have been diverted from custodial<br />
sancti<strong>on</strong>s.<br />
7.15 V<strong>in</strong>s<strong>on</strong> and Baldry advocate <strong>the</strong> establishment of bail and probati<strong>on</strong> hostels with <strong>in</strong>tensive<br />
supervisi<strong>on</strong> for <strong>in</strong>mates suitable for diversi<strong>on</strong> from impris<strong>on</strong>ment. In its Interim <strong>Report</strong>, <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> supported <strong>the</strong>se as realistic alternatives to impris<strong>on</strong>ment for certa<strong>in</strong> offenders.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> endorsed V<strong>in</strong>s<strong>on</strong> and Baldry’s f<strong>in</strong>d<strong>in</strong>gs that a significant number of<br />
offenders could be diverted from <strong>the</strong> pris<strong>on</strong> system and <strong>in</strong>to a structured, supervised and<br />
supportive envir<strong>on</strong>ment <strong>in</strong> <strong>the</strong> community. In this regard probati<strong>on</strong> hostels, like bail<br />
hostels would be used <strong>on</strong>ly as an alternative to full-time custody, <strong>in</strong> much <strong>the</strong> same way as<br />
sentencers utilise <strong>the</strong> home and periodic detenti<strong>on</strong> opti<strong>on</strong>s.<br />
7.16 In <strong>the</strong> Government’s resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong>, <strong>the</strong> Department of<br />
Corrective Services <strong>in</strong>dicated that it and <strong>the</strong> Bureau of Crime Statistics and Research will<br />
c<strong>on</strong>t<strong>in</strong>ue to research opti<strong>on</strong>s such as bail hostels/accommodati<strong>on</strong>, but <strong>in</strong>dicated a lack of<br />
enthusiasm for <strong>the</strong> c<strong>on</strong>cept. 203 This is discussed fur<strong>the</strong>r <strong>in</strong> Chapter Eight.<br />
Aboliti<strong>on</strong> of Short Sentences<br />
7.17 The NSW Department of Corrective Services has advised that a substantial proporti<strong>on</strong> of<br />
offenders be<strong>in</strong>g received <strong>in</strong>to full time custody are sentenced for less than six m<strong>on</strong>ths.<br />
Accord<strong>in</strong>g to statistics <strong>the</strong> Department has provided to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, which are set out<br />
<strong>in</strong> <strong>the</strong> accompany<strong>in</strong>g table, this trend has been fairly c<strong>on</strong>sistent s<strong>in</strong>ce 1995, but could be<br />
show<strong>in</strong>g an <strong>in</strong>creas<strong>in</strong>g trend. 204<br />
Pris<strong>on</strong>ers serv<strong>in</strong>g short sentences: Recepti<strong>on</strong>s <strong>in</strong>to custody<br />
F<strong>in</strong>ancial<br />
year<br />
Females Males Total less than six m<strong>on</strong>ths<br />
(% of all recepti<strong>on</strong>s)<br />
All recepti<strong>on</strong>s <strong>in</strong>to Custody,<br />
exclud<strong>in</strong>g f<strong>in</strong>e defaulters*<br />
95/96 367 3230 3597 (61%) 5928<br />
96/97 394 3493 3887 (61%) 6332<br />
97/98 430 3651 4081 (61%) 6594<br />
98/99 513 4369 4882 (65%) 7571<br />
99/00 699 4946 5645 (67%) 8478<br />
00/01 577 4434 5011 (63%) 8005<br />
Source: Department of Corrective Services, provided to <str<strong>on</strong>g>Committee</str<strong>on</strong>g> Chair.<br />
*After 1996 virtually no f<strong>in</strong>e defaulters were taken <strong>in</strong>to custody, hence <strong>the</strong> table excludes this category of<br />
offenders<br />
202 Tabled document 12/6/01 supplementary to Submissi<strong>on</strong> 41, V<strong>in</strong>s<strong>on</strong> & Baldry, pp 14-15.<br />
203 Government Resp<strong>on</strong>se 19 February 2001 p6.<br />
204 The figures for <strong>the</strong> year 2000/2001 may not be a useful guide as <strong>the</strong>y <strong>in</strong>clude m<strong>on</strong>ths <strong>in</strong> which <strong>the</strong> Olympic<br />
and Paralympic games were c<strong>on</strong>ducted <strong>in</strong> Sydney. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has been advised that dur<strong>in</strong>g those<br />
m<strong>on</strong>ths <strong>the</strong> number of arrests by Police and <strong>the</strong> number of recepti<strong>on</strong>s decl<strong>in</strong>ed sharply.<br />
110 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
7.18 At this time it is still difficult to state whe<strong>the</strong>r or not <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> of Secti<strong>on</strong> 5(2) of <strong>the</strong><br />
Crimes (Sentenc<strong>in</strong>g Adm<strong>in</strong>istrati<strong>on</strong>) Act has had any impact <strong>on</strong> <strong>the</strong> number of sentences for six<br />
m<strong>on</strong>ths or less which are imposed <strong>on</strong> offenders. Under those provisi<strong>on</strong>s a court that<br />
sentences an offender to impris<strong>on</strong>ment for 6 m<strong>on</strong>ths or less must make a written record of<br />
its reas<strong>on</strong>s for do<strong>in</strong>g so, <strong>in</strong>clud<strong>in</strong>g its reas<strong>on</strong>s for decid<strong>in</strong>g that no penalty o<strong>the</strong>r than<br />
impris<strong>on</strong>ment is appropriate. This provisi<strong>on</strong> has been <strong>in</strong> operati<strong>on</strong> s<strong>in</strong>ce 1 April 2000.<br />
7.19 The disruptive impact which <strong>the</strong> high proporti<strong>on</strong> of <strong>in</strong>mates stay<strong>in</strong>g <strong>in</strong> full time custody for<br />
periods of less than six m<strong>on</strong>ths has <strong>on</strong> <strong>the</strong> implementati<strong>on</strong> of programs and case<br />
management was outl<strong>in</strong>ed <strong>in</strong> Chapter Six.<br />
7.20 Recently <strong>the</strong> Attorney General <strong>in</strong> Western Australia announced that <strong>the</strong> Gallop<br />
Government would legislate to completely prohibit courts <strong>in</strong> that state from impos<strong>in</strong>g<br />
sentences of six m<strong>on</strong>ths or less. Western Australian Attorney General expla<strong>in</strong>ed that he<br />
wanted to :<br />
… take out of <strong>the</strong> pris<strong>on</strong> system those people who <strong>the</strong> judiciary thought might<br />
benefit from a short, sharp shock and that is, I th<strong>in</strong>k a fairly discredited <strong>the</strong>ory <strong>in</strong><br />
terms of <strong>in</strong>carcerati<strong>on</strong> th<strong>in</strong>k<strong>in</strong>g. We th<strong>in</strong>k that if somebody <strong>on</strong>ly warrants a<br />
sentence of six m<strong>on</strong>ths or less, <strong>the</strong>n <strong>the</strong>y should not be <strong>in</strong> pris<strong>on</strong>. They should be<br />
given effective work to do <strong>in</strong> <strong>the</strong> community and that will be <strong>the</strong> nature of <strong>the</strong>ir<br />
punishment. So that will be quite a significant reform and it will clearly give thrust<br />
to <strong>the</strong> sentenc<strong>in</strong>g legislati<strong>on</strong> to that often quoted statement that pris<strong>on</strong>s should be<br />
<strong>the</strong>re as a punishment of last resort – <strong>in</strong> o<strong>the</strong>r words for serious offenders. That<br />
is what pris<strong>on</strong>s should be for, not for <strong>the</strong> m<strong>in</strong>or offenders at <strong>the</strong> lower end of <strong>the</strong><br />
scale. 205<br />
7.21 The announcement was greeted with significant support. The WA Inspector of Custodial<br />
Services, Richard Hard<strong>in</strong>g commended <strong>the</strong> policy, describ<strong>in</strong>g it as “sensible” and he said<br />
that <strong>in</strong> <strong>the</strong> l<strong>on</strong>g run it would free <strong>the</strong> pris<strong>on</strong>s to focus more rightly <strong>on</strong> deliver<strong>in</strong>g<br />
appropriate programs to pris<strong>on</strong>ers most <strong>in</strong> need:<br />
The pris<strong>on</strong>s are clogged up by people com<strong>in</strong>g <strong>in</strong> for short periods – clogged up <strong>in</strong><br />
<strong>the</strong> sense of <strong>the</strong> amount of time that goes <strong>in</strong>to <strong>the</strong> recepti<strong>on</strong> processes and<br />
movements <strong>in</strong> and out of pris<strong>on</strong>. If <strong>the</strong> resources put <strong>in</strong>to such adm<strong>in</strong>istrati<strong>on</strong><br />
were freed up <strong>the</strong>y could be redirected <strong>in</strong>to manag<strong>in</strong>g and rehabilitat<strong>in</strong>g pris<strong>on</strong>ers<br />
who posed <strong>the</strong> biggest problems. 206<br />
7.22 The plan was also welcomed by <strong>the</strong> Western Australian Law Society, <strong>the</strong> Western<br />
Australian Auditor General and <strong>the</strong> media. The Editorial of The West Australian stated<br />
that<br />
The dislocati<strong>on</strong> caused to offenders be<strong>in</strong>g sent to jail for less than six m<strong>on</strong>ths is<br />
enormous. In many cases <strong>the</strong>y lose <strong>the</strong>ir jobs, <strong>the</strong>ir dependents lose a bread<br />
w<strong>in</strong>ner and <strong>the</strong>ir employment prospects <strong>on</strong> release are damaged. 207<br />
205 WA Hansard, Assembly – Estimates <str<strong>on</strong>g>Committee</str<strong>on</strong>g> B, Thursday 27 September 2001.<br />
206 West Australian 3 October 2001.<br />
207 Editorial, The West Australian 1 October 2001.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 111
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
7.23 The Sentenc<strong>in</strong>g Act <strong>in</strong> Western Australia already c<strong>on</strong>ta<strong>in</strong>s a provisi<strong>on</strong> <strong>in</strong> Secti<strong>on</strong> 86 that:<br />
A court must not sentence an offender to a term of 3 m<strong>on</strong>ths or less unless <strong>the</strong><br />
aggregate of <strong>the</strong> term imposed and any o<strong>the</strong>r term or terms imposed by <strong>the</strong> court<br />
is more than 3 m<strong>on</strong>ths; or <strong>the</strong> offender is already serv<strong>in</strong>g or is yet to serve ano<strong>the</strong>r<br />
term.<br />
7.24 Legislati<strong>on</strong> to extend this provisi<strong>on</strong> from three m<strong>on</strong>ths to six m<strong>on</strong>ths will not be a radical<br />
change for that state’s legal system. The WA Government was also able to provide<br />
Parliament and <strong>the</strong> media with details of <strong>the</strong> numbers of <strong>in</strong>mates who had been sentenced<br />
to terms of six m<strong>on</strong>ths or less and details of offences <strong>the</strong>y had been c<strong>on</strong>victed.<br />
7.25 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes that <strong>the</strong> problems, which <strong>the</strong> Western Australian Government is<br />
seek<strong>in</strong>g to address are very similar to <strong>the</strong> problems <strong>in</strong> NSW outl<strong>in</strong>ed <strong>in</strong> this <strong>Report</strong> <strong>in</strong><br />
NSW. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes that similar legislati<strong>on</strong> abolish<strong>in</strong>g sentences less periods of<br />
three m<strong>on</strong>ths or six m<strong>on</strong>ths should be researched and c<strong>on</strong>sidered.<br />
7.26 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believe that <strong>the</strong> NSW Government should c<strong>on</strong>sider enact<strong>in</strong>g legislati<strong>on</strong> to<br />
preclude full-time custodial sentences of six m<strong>on</strong>ths or less of full time custody <strong>in</strong> this<br />
State. The merits of such a proposal are that it would have a significant impact <strong>on</strong> <strong>the</strong> size<br />
of <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> NSW and it would enable better target<strong>in</strong>g of scarce<br />
resources <strong>in</strong> that <strong>the</strong> expensive opti<strong>on</strong> of full time custody should be reserved for more<br />
serious offenders, while <strong>the</strong> less expensive but very effective community based penalties are<br />
best employed <strong>on</strong> less serious offenders.<br />
7.27 It has also been very difficult for <strong>the</strong> Department of Corrective Services to prepare and<br />
implement effective case management and rehabilitati<strong>on</strong> plans for <strong>in</strong>mates who stay full<br />
time <strong>in</strong> pris<strong>on</strong> for less than six m<strong>on</strong>ths. F<strong>in</strong>ally, sentences of less than six m<strong>on</strong>ths do not<br />
<strong>in</strong>clude a period of supervisi<strong>on</strong> from <strong>the</strong> Probati<strong>on</strong> and Parole Service, and c<strong>on</strong>sequently<br />
<strong>the</strong> offenders’ return to <strong>the</strong> community after impris<strong>on</strong>ment can be more difficult and<br />
<strong>in</strong>crease <strong>the</strong> possibility that <strong>the</strong>y will re-offend.<br />
7.28 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>siders that <strong>the</strong> Government should <strong>in</strong>itiate a comprehensive research<br />
and public c<strong>on</strong>sultati<strong>on</strong> process aimed at <strong>in</strong>troduc<strong>in</strong>g legislati<strong>on</strong> <strong>in</strong> NSW to abolish full<br />
time custodial sentences of six m<strong>on</strong>ths or less, similar to that <strong>in</strong>troduced <strong>in</strong> Western<br />
Australia. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> is c<strong>on</strong>fident that fur<strong>the</strong>r research will provide endorsement for<br />
<strong>the</strong> proposal. If <strong>the</strong> public c<strong>on</strong>sultati<strong>on</strong> were supportive, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes that <strong>the</strong><br />
Government could <strong>in</strong>troduce legislative changes <strong>in</strong>to Parliament <strong>in</strong> a timeframe of between<br />
twelve to eighteen m<strong>on</strong>ths.<br />
112 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Recommendati<strong>on</strong> 16<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> NSW Attorney General commissi<strong>on</strong> research<br />
to <strong>in</strong>vestigate <strong>the</strong> impacts of abolish<strong>in</strong>g sentences of six m<strong>on</strong>ths or less <strong>in</strong> NSW, and<br />
table this research <strong>in</strong> Parliament. The research should c<strong>on</strong>sider:<br />
• <strong>the</strong> impact <strong>on</strong> <strong>the</strong> size of <strong>the</strong> NSW pris<strong>on</strong> populati<strong>on</strong>,<br />
• potential sav<strong>in</strong>gs to <strong>the</strong> NSW Budget,<br />
• <strong>the</strong> impact <strong>on</strong> <strong>the</strong> management of NSW Correcti<strong>on</strong>al Centres,<br />
• development of alternatives to full time custody<br />
• <strong>the</strong> impacts <strong>on</strong> o<strong>the</strong>r services such as <strong>the</strong> Probati<strong>on</strong> and Parole Service,<br />
• <strong>the</strong> profile of <strong>the</strong> <strong>in</strong>mates who are sentenced to less than six m<strong>on</strong>ths<br />
<strong>in</strong>clud<strong>in</strong>g <strong>the</strong>ir most serious offences, and<br />
• <strong>the</strong> number of <strong>in</strong>mates serv<strong>in</strong>g six m<strong>on</strong>ths or less who are male, female or<br />
<strong>in</strong>digenous.<br />
If <strong>the</strong> Research supports <strong>the</strong> <strong>in</strong>troducti<strong>on</strong> of measures to abolish short sentences <strong>the</strong><br />
proposal should be circulated <strong>in</strong> a Discussi<strong>on</strong> Paper for public c<strong>on</strong>sultati<strong>on</strong>.<br />
7.29 One useful way of proceed<strong>in</strong>g with research <strong>in</strong>to <strong>the</strong> impact of abolish<strong>in</strong>g short custodial<br />
sentences is <strong>the</strong> c<strong>on</strong>duct of a pilot project. The pilot project could target and divert to n<strong>on</strong><br />
custodial sancti<strong>on</strong>s those offenders identified as be<strong>in</strong>g from groups particularly<br />
disadvantaged <strong>in</strong> <strong>the</strong> pris<strong>on</strong> system and who would o<strong>the</strong>rwise receive full-time custodial<br />
sentences of three m<strong>on</strong>ths or less. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recognises that c<strong>on</strong>siderable thought<br />
would have to be given to legislative acti<strong>on</strong> required to implement <strong>the</strong> pilot study as well as<br />
c<strong>on</strong>sultati<strong>on</strong> to address community c<strong>on</strong>cerns.<br />
Recommendati<strong>on</strong> 17<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Government <strong>in</strong>itiate a pilot project which<br />
would select and divert a number of offenders who would o<strong>the</strong>rwise be sentenced to<br />
impris<strong>on</strong>ment for a period of three m<strong>on</strong>ths or less. Priority should be given to<br />
select<strong>in</strong>g women and <strong>in</strong>digenous <strong>in</strong>mates for <strong>the</strong> pilot study.<br />
Crimes (Sentenc<strong>in</strong>g Procedures) Act s5(1)<br />
7.30 Whatever <strong>the</strong> benefits of alternatives to custody, <strong>the</strong>re is ano<strong>the</strong>r reas<strong>on</strong> for <strong>the</strong>ir<br />
c<strong>on</strong>siderati<strong>on</strong>. Judges and magistrates are required by legislati<strong>on</strong> to c<strong>on</strong>sider opti<strong>on</strong>s to<br />
impris<strong>on</strong>ment when impos<strong>in</strong>g sentences of less than six m<strong>on</strong>ths. As previously stated <strong>in</strong><br />
Chapter 2, <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 c<strong>on</strong>ta<strong>in</strong>s a significant statement of<br />
pr<strong>in</strong>ciple <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> role of impris<strong>on</strong>ment. A court under s5(1) must not sentence an<br />
offender to impris<strong>on</strong>ment unless satisfied, hav<strong>in</strong>g c<strong>on</strong>sidered all possible alternatives, that<br />
no penalty o<strong>the</strong>r than impris<strong>on</strong>ment is appropriate and that, <strong>in</strong> relati<strong>on</strong> to sentences to<br />
impris<strong>on</strong>ment for 6 m<strong>on</strong>ths or less, <strong>the</strong> court “must <strong>in</strong>dicate to <strong>the</strong> offender, and make a<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
record of, its reas<strong>on</strong>s for do<strong>in</strong>g so, <strong>in</strong>clud<strong>in</strong>g its reas<strong>on</strong>s for decid<strong>in</strong>g that no penalty o<strong>the</strong>r<br />
than impris<strong>on</strong>ment is appropriate.”<br />
7.31 The programs c<strong>on</strong>sidered <strong>in</strong> <strong>the</strong> rest of this chapter provide details of <strong>the</strong> opti<strong>on</strong>s which<br />
are available to c<strong>on</strong>sider dur<strong>in</strong>g sentenc<strong>in</strong>g to give effect to <strong>the</strong> <strong>in</strong>tent of s5(1). There is<br />
also room for <strong>the</strong> government to revisit <strong>the</strong> problem of <strong>the</strong> number of pris<strong>on</strong>ers serv<strong>in</strong>g<br />
terms of less than six m<strong>on</strong>ths, as has been d<strong>on</strong>e by <strong>the</strong> new Western Australian<br />
government.<br />
Community based correcti<strong>on</strong>al orders<br />
Reas<strong>on</strong>s for low utilisati<strong>on</strong><br />
7.32 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> heard evidence that dur<strong>in</strong>g <strong>the</strong> period 1994 – 1999, when <strong>the</strong> pris<strong>on</strong>er<br />
populati<strong>on</strong> <strong>in</strong>creased dramatically, <strong>the</strong>re was a corresp<strong>on</strong>d<strong>in</strong>g decrease <strong>in</strong> community-based<br />
correcti<strong>on</strong>al orders. 208<br />
7.33 A number of submissi<strong>on</strong>s and witnesses advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that greater use could be<br />
made of n<strong>on</strong>-custodial sancti<strong>on</strong>s. One of <strong>the</strong> reas<strong>on</strong>s given for this is that <strong>the</strong> courts are<br />
reluctant to utilise community–based alternatives, perceiv<strong>in</strong>g <strong>the</strong>m to be a “soft”<br />
sentenc<strong>in</strong>g opti<strong>on</strong>. In evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, Ms Deborah Allen, Director of Strategy<br />
and Policy, Department of Corrective Services stated<br />
Not every judicial member is actually keen <strong>on</strong> alternatives to pris<strong>on</strong> <strong>in</strong> our<br />
experience. There is a certa<strong>in</strong> amount of community oppositi<strong>on</strong> to what is seen as<br />
be<strong>in</strong>g light <strong>on</strong> pris<strong>on</strong>ers. So, certa<strong>in</strong>ly <strong>in</strong> <strong>the</strong> past our attempts to <strong>in</strong>troduce<br />
alternatives to pris<strong>on</strong> have had to be d<strong>on</strong>e with<strong>in</strong> a climate where <strong>the</strong>re is not an<br />
enormous (amount) of community support for those sorts of programs. It is a bit<br />
of a balanc<strong>in</strong>g act I suppose. 209<br />
7.34 There seems to be little evidence <strong>on</strong> reas<strong>on</strong>s for failure to divert, however, D<strong>on</strong><br />
Wea<strong>the</strong>rburn, Director of <strong>the</strong> Bureau of Crime Statistics and Research, has stated that<br />
reas<strong>on</strong>s <strong>in</strong>clude:<br />
• Some observers have suggested that <strong>the</strong> sentenc<strong>in</strong>g practices of judicial officers<br />
can <strong>on</strong>ly be altered by clearly direct<strong>in</strong>g <strong>the</strong> required change <strong>in</strong> <strong>the</strong> exercise of <strong>the</strong>ir<br />
discreti<strong>on</strong>;<br />
• <strong>the</strong> lack of adm<strong>in</strong>istrative support and availability of opti<strong>on</strong>s (for example limited<br />
work available for community service orders and <strong>the</strong> limited availability of periodic<br />
detenti<strong>on</strong> centres <strong>in</strong> regi<strong>on</strong>al areas);<br />
• n<strong>on</strong>-custodial sentences are seen as alternatives to b<strong>on</strong>ds and f<strong>in</strong>es ra<strong>the</strong>r than as<br />
an alternative to impris<strong>on</strong>ment.<br />
208 Chilvers Evidence, 12 March, 2001. Ms Chilvers, of <strong>the</strong> NSW Bureau of Crime Statistics and Research advised<br />
that <strong>in</strong> <strong>the</strong> last two years <strong>the</strong> trend has been stable.<br />
209 Allen Evidence, 12 June, 2001.<br />
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• <strong>the</strong> tendency am<strong>on</strong>g judicial officers to move repeat offenders up to heavier<br />
sentences (regardless of <strong>the</strong> seriousness of <strong>the</strong> offence charged) results <strong>in</strong> <strong>on</strong>ly a<br />
small pool of those able to be diverted <strong>in</strong>to n<strong>on</strong>-custodial penalties; and<br />
• <strong>the</strong>re is a gap between <strong>the</strong> perceived severity of custodial versus n<strong>on</strong>-custodial<br />
penalties. 210<br />
7.35 Fundamental to V<strong>in</strong>s<strong>on</strong> and Baldry’s proposal for bail and probati<strong>on</strong> hostels as alternatives<br />
to impris<strong>on</strong>ment (see above) is that <strong>the</strong> judiciary and magistracy needs to be well-<strong>in</strong>formed<br />
about <strong>the</strong> exact nature and role of <strong>the</strong>se opti<strong>on</strong>s, and be c<strong>on</strong>fident that <strong>the</strong>re are services<br />
available to ensure <strong>the</strong>ir successful functi<strong>on</strong><strong>in</strong>g. In his evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> Professor<br />
V<strong>in</strong>s<strong>on</strong> expla<strong>in</strong>ed that critical to <strong>the</strong> success of <strong>the</strong>se opti<strong>on</strong>s is that <strong>the</strong>y need to be<br />
well def<strong>in</strong>ed, well packaged, so that <strong>the</strong> sentencers know exactly what it is that is<br />
be<strong>in</strong>g proffered. 211<br />
7.36 In order to better understand why <strong>the</strong> courts are not sentenc<strong>in</strong>g offenders to n<strong>on</strong>-custodial<br />
alternatives, fur<strong>the</strong>r <strong>in</strong>formati<strong>on</strong> is needed about how <strong>the</strong> courts perceive <strong>the</strong> severity of<br />
different penalties and <strong>the</strong> sensitivity of <strong>the</strong> general populati<strong>on</strong> to various n<strong>on</strong>-custodial<br />
opti<strong>on</strong>s. This would provide <strong>in</strong>formati<strong>on</strong> to assess <strong>the</strong> diversi<strong>on</strong>ary scope of each opti<strong>on</strong><br />
and which offenders are mostly likely to be regarded by <strong>the</strong> courts as potential candidates<br />
for diversi<strong>on</strong>.<br />
7.37 Speak<strong>in</strong>g of <strong>the</strong> difficulty of understand<strong>in</strong>g why n<strong>on</strong>-custodial opti<strong>on</strong>s were not used, Dr<br />
Wea<strong>the</strong>rburn of <strong>the</strong> Bureau of Crime Statistics and Research said:<br />
It would be preferable, never<strong>the</strong>less, to be able to formulate proposals for pris<strong>on</strong><br />
diversi<strong>on</strong>ary schemes <strong>on</strong> <strong>the</strong> basis of some understand<strong>in</strong>g of <strong>the</strong>ir potential to<br />
divert. This may sound a fanciful hope, but <strong>the</strong> crucial piece of <strong>in</strong>formati<strong>on</strong> we<br />
need to enable <strong>the</strong> required understand<strong>in</strong>g is not, at least <strong>in</strong> pr<strong>in</strong>ciple, that difficult<br />
to obta<strong>in</strong>. What is required is a standard scal<strong>in</strong>g study of how <strong>the</strong> courts perceive<br />
<strong>the</strong> severity of different amounts of different penalties vary<strong>in</strong>g <strong>in</strong> durati<strong>on</strong>. 212<br />
210 ”N<strong>on</strong>-custodial Sancti<strong>on</strong>s, Pris<strong>on</strong> Costs and Pris<strong>on</strong> Overcrowd<strong>in</strong>g” NSW Bureau of Crime Statistics and<br />
Research paper to AIC C<strong>on</strong>ference 1988 “Keep<strong>in</strong>g People out of Pris<strong>on</strong>s”pp 67-68.<br />
211 V<strong>in</strong>s<strong>on</strong> Evidence 12 June, 2001.<br />
212 Dr Wea<strong>the</strong>rburn, 1988 op cit p 74.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Recommendati<strong>on</strong> 18<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Judicial Commissi<strong>on</strong> c<strong>on</strong>duct a survey of<br />
Judges and Magistrates’ percepti<strong>on</strong> of <strong>the</strong> severity of different penalties vary<strong>in</strong>g <strong>in</strong><br />
durati<strong>on</strong>. This study should compare, for example, what judges and magistrates<br />
c<strong>on</strong>sider to be <strong>the</strong> periodic detenti<strong>on</strong> equivalent of twelve m<strong>on</strong>ths impris<strong>on</strong>ment, and<br />
<strong>the</strong> factors that may cause this assessment to vary.<br />
Completi<strong>on</strong> of community opti<strong>on</strong>s<br />
7.38 There is evidence that community opti<strong>on</strong>s are effective if compliance is taken as a measure<br />
of effectiveness. In his evidence to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>, Peter Macd<strong>on</strong>ald, <strong>the</strong>n Act<strong>in</strong>g Assistant<br />
Commissi<strong>on</strong>er of Probati<strong>on</strong> and Parole Services provided <strong>the</strong> follow<strong>in</strong>g <strong>in</strong>formati<strong>on</strong>:<br />
• about 87% of supervisi<strong>on</strong> orders, both probati<strong>on</strong> and parole, are successfully<br />
completed;<br />
• 82% of community service orders are successfully completed; and<br />
• about 79% of home detenti<strong>on</strong> orders are successfully completed. 213<br />
7.39 The Productivity Commissi<strong>on</strong>’s <strong>Report</strong> <strong>on</strong> Government Services 2000, notes that a key<br />
effectiveness <strong>in</strong>dicator relevant to <strong>the</strong> management of offenders <strong>in</strong> <strong>the</strong> community is <strong>the</strong><br />
successful completi<strong>on</strong> of orders. However, data needs to be <strong>in</strong>terpreted with cauti<strong>on</strong>. For<br />
example, a 100 per cent order completi<strong>on</strong> figure could mean ei<strong>the</strong>r excepti<strong>on</strong>ally high<br />
compliance or a failure to detect or act <strong>on</strong> breaches of compliance. The risk level of<br />
offender populati<strong>on</strong>s also needs to be c<strong>on</strong>sidered: high risk offenders experience higher<br />
levels of surveillance and have a greater likelihood of be<strong>in</strong>g detected and breached.<br />
Suspended Sentences<br />
7.40 Suspended sentences were not available <strong>in</strong> New South Wales between 1974 when <strong>the</strong>y<br />
were abolished until <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedure) Act 1999 commenced <strong>in</strong> early 2000.<br />
7.41 Now under <strong>the</strong> Act a court that imposes a sentence of impris<strong>on</strong>ment <strong>on</strong> an offender for a<br />
term of not more than 2 years may make an order suspend<strong>in</strong>g executi<strong>on</strong> of <strong>the</strong> sentence.<br />
The period of <strong>the</strong> suspensi<strong>on</strong>, which must be specified <strong>in</strong> <strong>the</strong> court order, is not to exceed<br />
<strong>the</strong> term of <strong>the</strong> sentence. The court may also direct that <strong>the</strong> offender be released from<br />
custody <strong>on</strong> c<strong>on</strong>diti<strong>on</strong> that <strong>the</strong> offender enters <strong>in</strong>to a good behaviour b<strong>on</strong>d for a term not<br />
exceed<strong>in</strong>g <strong>the</strong> term of <strong>the</strong> sentence.<br />
7.42 Under secti<strong>on</strong> 99 of <strong>the</strong> Act, if a court revokes <strong>the</strong> b<strong>on</strong>d for breach of <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s, <strong>the</strong><br />
secti<strong>on</strong> suspend<strong>in</strong>g <strong>the</strong> sentence ceases to have effect. The offender must <strong>the</strong>n service <strong>the</strong><br />
213 McD<strong>on</strong>ald Evidence 28 March 2000.<br />
116 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
whole of <strong>the</strong> orig<strong>in</strong>al sentence <strong>in</strong> pris<strong>on</strong>, or <strong>the</strong> court may make an order for <strong>the</strong> sentence<br />
to be served by way of periodic detenti<strong>on</strong> or home detenti<strong>on</strong>.<br />
7.43 The Department of Corrective Service <strong>in</strong> its submissi<strong>on</strong> states that <strong>the</strong> number of people<br />
receiv<strong>in</strong>g suspended sentences from 1 January 2001 to 30 April 2001 is:<br />
January 2001 203<br />
February 2001 267<br />
March 2001 356<br />
April 2001 270 214<br />
7.44 Clearly suspended sentenc<strong>in</strong>g opti<strong>on</strong>s are be<strong>in</strong>g used under <strong>the</strong> amendment to <strong>the</strong> Act,<br />
although <strong>the</strong>ir use is small compared to <strong>the</strong> size of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> serv<strong>in</strong>g short<br />
sentences (see Chapter Five). In its submissi<strong>on</strong> <strong>the</strong> Department expressed c<strong>on</strong>cern that if<br />
<strong>the</strong> breach rate for suspended sentences is high, suspended sentences may deliver offenders<br />
to pris<strong>on</strong> ra<strong>the</strong>r than divert <strong>the</strong>m from pris<strong>on</strong>. 215 If this is <strong>the</strong> case it is important to<br />
evaluate <strong>the</strong> extent of breaches of suspended sentences to ensure that amendments to <strong>the</strong><br />
legislati<strong>on</strong> be made so as to avoid unnecessary <strong>in</strong>creases <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Recommendati<strong>on</strong> 19<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g <strong>the</strong> operati<strong>on</strong> for a period of two years<br />
of s12 of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999, <strong>the</strong> Bureau of Crime Statistics and<br />
Research evaluate <strong>the</strong> extent of breaches of orders for suspended sentences and its<br />
impact <strong>on</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>.<br />
Community service order<br />
7.45 Under s8 of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 (NSW), <strong>in</strong>stead of impos<strong>in</strong>g a<br />
sentence of impris<strong>on</strong>ment <strong>on</strong> an offender, a court may make a community service order.<br />
This order directs <strong>the</strong> offender to perform community service work for a specified number<br />
of hours. The number of hours specified <strong>in</strong> a community service order <strong>in</strong> relati<strong>on</strong> to an<br />
offence must not exceed 500, or <strong>the</strong> number of hours prescribed by <strong>the</strong> regulati<strong>on</strong>s <strong>in</strong><br />
respect of <strong>the</strong> class of offences to which <strong>the</strong> offence bel<strong>on</strong>gs, whichever is <strong>the</strong> lesser.<br />
7.46 The Department of Corrective Services provides <strong>the</strong> follow<strong>in</strong>g data <strong>on</strong> community service<br />
orders: 216<br />
Community Service Orders 1998-99 1999-00<br />
No. of offenders under supervisi<strong>on</strong> as at 30 June 5345 5873<br />
Variati<strong>on</strong> over previous year +373 +528<br />
Number of new registrati<strong>on</strong>s (caseload <strong>in</strong>take) 5559 5729<br />
214 Department of Corrective Services, Submissi<strong>on</strong> 63 (Supplementary submissi<strong>on</strong>).<br />
215 Department of Corrective Services Submissi<strong>on</strong> 63 p 33.<br />
216 Department of Corrective Services, Submissi<strong>on</strong> 63.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Community Service Orders 1998-99 1999-00<br />
Variati<strong>on</strong> over previous year +567 +170<br />
% successfully completed 82% 76%<br />
No. successfully completed 7901 7671<br />
7.47 As menti<strong>on</strong>ed above, <strong>the</strong>re is a suggesti<strong>on</strong> that community service orders are not used as<br />
often as is desirable <strong>in</strong> rural areas because of <strong>the</strong> lack of suitable local programs available.<br />
In its Interim <strong>Report</strong> <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> made a recommendati<strong>on</strong> to <strong>the</strong> Department to urgently<br />
address this issue <strong>in</strong> relati<strong>on</strong> to opportunities for rural women. The Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
<strong>on</strong> Law and Justice, <strong>in</strong> its Crime Preventi<strong>on</strong> Through Social Support: Sec<strong>on</strong>d <strong>Report</strong> discussed this<br />
<strong>in</strong> relati<strong>on</strong> to young offenders, recommend<strong>in</strong>g <strong>the</strong> Departments of Juvenile Justice, Sport<br />
and Recreati<strong>on</strong> and <strong>the</strong> Crime Preventi<strong>on</strong> Divisi<strong>on</strong> of <strong>the</strong> Attorney-General’s Department<br />
exam<strong>in</strong>e how to expand <strong>the</strong> use of sport, cultural or recreati<strong>on</strong>al based youth programs <strong>in</strong><br />
country areas. 217<br />
F<strong>in</strong>es as alternative to impris<strong>on</strong>ment<br />
7.48 A Court can impose a f<strong>in</strong>e as an alternative to impris<strong>on</strong>ment. The F<strong>in</strong>es Act 1996<br />
<strong>in</strong>troduced a f<strong>in</strong>e enforcement system which is based <strong>on</strong> a hierarchy of civil and n<strong>on</strong>custodial<br />
sancti<strong>on</strong>s for <strong>the</strong> n<strong>on</strong>-payment of f<strong>in</strong>es with impris<strong>on</strong>ment be<strong>in</strong>g a sancti<strong>on</strong> of<br />
last resort. Under <strong>the</strong> system, if <strong>the</strong> f<strong>in</strong>e is not paid, civil acti<strong>on</strong>, <strong>in</strong>clud<strong>in</strong>g cancellati<strong>on</strong> of<br />
driver’s licence and seizure of property proceeds. If <strong>the</strong> civil acti<strong>on</strong> is not successful, a<br />
community service order is served. If <strong>the</strong> f<strong>in</strong>e defaulter does not comply with <strong>the</strong><br />
community service order a warrant of commitment is issued for <strong>the</strong> impris<strong>on</strong>ment of <strong>the</strong><br />
f<strong>in</strong>e defaulter (except <strong>in</strong> <strong>the</strong> case of children). The f<strong>in</strong>e defaulter may apply to serve that<br />
period of impris<strong>on</strong>ment by way of periodic detenti<strong>on</strong>.<br />
7.49 The Department of Corrective Service states <strong>in</strong> its submissi<strong>on</strong> that <strong>the</strong> F<strong>in</strong>es Act 1996 has<br />
diverted all f<strong>in</strong>e defaulters from pris<strong>on</strong> sentences. Prior to <strong>the</strong> commencement of <strong>the</strong> Act a<br />
significant number of f<strong>in</strong>e defaulters (3,936 <strong>in</strong> 1995-96 and 4,474 <strong>in</strong> 1996-97) entered <strong>the</strong><br />
correcti<strong>on</strong>al system. The Department notes, however, that eventually some pers<strong>on</strong>s will<br />
enter <strong>the</strong> correcti<strong>on</strong>al system because <strong>the</strong>y have not completed community service orders<br />
made under <strong>the</strong> F<strong>in</strong>es Act 1996. 218<br />
B<strong>on</strong>ds and Probati<strong>on</strong> Orders<br />
7.50 Various probati<strong>on</strong> orders can be made under <strong>the</strong> Crimes Act 1900 by which an offender is<br />
placed under <strong>the</strong> supervisi<strong>on</strong> of a Probati<strong>on</strong> Officer as a c<strong>on</strong>diti<strong>on</strong> of enter<strong>in</strong>g <strong>in</strong>to a<br />
recognisance (b<strong>on</strong>d) to be of good behaviour. The Probati<strong>on</strong> and Parole Service balances<br />
<strong>the</strong> role of friend and guide to offenders with <strong>the</strong> role of c<strong>on</strong>troll<strong>in</strong>g and m<strong>on</strong>itor<strong>in</strong>g <strong>the</strong>m<br />
to ensure that <strong>the</strong> orders of <strong>the</strong> courts are complied with.<br />
7.51 The advantages of probati<strong>on</strong> over impris<strong>on</strong>ment is that it:<br />
217 op cit 2000 pp 104-105.<br />
218 Department of Corrective Services, 1Submissi<strong>on</strong> 63.<br />
118 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
• promotes rehabilitati<strong>on</strong> of <strong>the</strong> offender by ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g normal family and<br />
community c<strong>on</strong>tacts,<br />
• avoids <strong>the</strong> negative effects of impris<strong>on</strong>ment,<br />
• costs much less than impris<strong>on</strong>ment,<br />
• m<strong>in</strong>imises <strong>the</strong> impact <strong>on</strong> family of <strong>the</strong> offender, particularly if <strong>the</strong>y have children;<br />
and<br />
• offenders are given assistance to develop goals and skills which are directed toward<br />
a law-abid<strong>in</strong>g lifestyle.<br />
7.52 These latter programs <strong>in</strong>clude attendance at appropriate programs organised by <strong>the</strong><br />
Probati<strong>on</strong> and Parole Service <strong>in</strong>clud<strong>in</strong>g Drug and Alcohol Program, Pers<strong>on</strong>al Development<br />
Program, Dr<strong>in</strong>k Driv<strong>in</strong>g Program and Anger and Aggressi<strong>on</strong> Management Program. They<br />
are delivered <strong>in</strong> <strong>the</strong> community ra<strong>the</strong>r than with<strong>in</strong> <strong>the</strong> pris<strong>on</strong> envir<strong>on</strong>ment, allow<strong>in</strong>g <strong>the</strong><br />
offender to work through <strong>the</strong> program while part of <strong>the</strong> envir<strong>on</strong>ment <strong>in</strong> which <strong>the</strong>y will<br />
live at <strong>the</strong> end of <strong>the</strong> program.<br />
7.53 The disadvantage of probati<strong>on</strong> are that it leaves offenders free to re-offend if <strong>the</strong>y are so<br />
<strong>in</strong>cl<strong>in</strong>ed. The Department advised that <strong>the</strong> Probati<strong>on</strong> and Parole Service and sentenc<strong>in</strong>g<br />
courts are careful to make community safety <strong>the</strong> ma<strong>in</strong> priority, and offenders are <strong>in</strong>itially<br />
assessed to determ<strong>in</strong>e how likely he or she is to re-offend and <strong>the</strong> level of risk that <strong>the</strong><br />
offender poses to <strong>the</strong> community. 219<br />
7.54 The table below provided by <strong>the</strong> Department illustrates <strong>the</strong> current levels of use of<br />
probati<strong>on</strong> and parole as an opti<strong>on</strong>: 220<br />
Probati<strong>on</strong> Orders 1998-99 1999-00<br />
No. of offenders under supervisi<strong>on</strong> as at 30 June 10151 11496<br />
Variati<strong>on</strong> over previous year +365 +1345<br />
Number of new registrati<strong>on</strong>s (caseload <strong>in</strong>take) 8394 9928<br />
Variati<strong>on</strong> over previous year +1090 +1534<br />
% successfully completed 87% 84%<br />
No. successfully completed 12067 14959<br />
7.55 Probati<strong>on</strong> orders are a significantly used community based opti<strong>on</strong>, and <strong>on</strong>e with a high rate<br />
of compliance. As with all opti<strong>on</strong>s c<strong>on</strong>sidered <strong>in</strong> this secti<strong>on</strong>, <strong>the</strong>re is <strong>the</strong> potential for<br />
greater use to be made of <strong>the</strong>se opti<strong>on</strong>s if significant secti<strong>on</strong>s of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong><br />
serv<strong>in</strong>g less serious offences can be identified as suitable for community opti<strong>on</strong>s.<br />
219 Department of Corrective Services, Submissi<strong>on</strong> 63 p 64.<br />
220 Department of Corrective Services, Submissi<strong>on</strong> 63, (supplementary).<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 119
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Detenti<strong>on</strong> as alternatives to full time impris<strong>on</strong>ment<br />
7.56 Periodic Detenti<strong>on</strong> and Home Detenti<strong>on</strong> are provided <strong>in</strong> New South Wales as alternatives<br />
to full time <strong>in</strong>carcerati<strong>on</strong>. They represent <strong>the</strong> most serious <strong>in</strong>fr<strong>in</strong>gement <strong>on</strong> an offender’s<br />
liberty short of full time impris<strong>on</strong>ment. As a reflecti<strong>on</strong> of <strong>the</strong> seriousness of <strong>the</strong>se<br />
sentences, courts are required to first sentence an offender to impris<strong>on</strong>ment before<br />
c<strong>on</strong>sider<strong>in</strong>g whe<strong>the</strong>r to make an order for periodic detenti<strong>on</strong> or home detenti<strong>on</strong>. This<br />
requirement also has <strong>the</strong> effect of avoid<strong>in</strong>g “net-widen<strong>in</strong>g” (br<strong>in</strong>g<strong>in</strong>g <strong>the</strong> offender <strong>in</strong>to <strong>the</strong><br />
pris<strong>on</strong> system unnecessarily, see below).<br />
Periodic Detenti<strong>on</strong><br />
7.57 Secti<strong>on</strong> 6(1) of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 (NSW) provides that a court that<br />
has sentenced an offender to impris<strong>on</strong>ment for not more than 3 years may make an order<br />
direct<strong>in</strong>g that <strong>the</strong> sentence be served by way of periodic detenti<strong>on</strong>. This is regardless of <strong>the</strong><br />
requirement that a court must not sentence an offender to impris<strong>on</strong>ment unless it is<br />
satisfied that no penalty o<strong>the</strong>r than impris<strong>on</strong>ment is appropriate (s 5(1)).<br />
7.58 Periodic detenti<strong>on</strong> is currently available <strong>in</strong> eleven periodic detenti<strong>on</strong> centres <strong>in</strong> New South<br />
Wales with limited access <strong>in</strong> some country areas. 221<br />
7.59 Informati<strong>on</strong> supplied by <strong>the</strong> Department of Corrective Services shows a decl<strong>in</strong><strong>in</strong>g trend <strong>in</strong><br />
people attend<strong>in</strong>g periodic detenti<strong>on</strong>: 222<br />
Year Male Female Total<br />
1995 1309 100 1409<br />
1996 1414 104 1518<br />
1997 1492 130 1622<br />
1998 1282 114 1396<br />
1999 1145 112 1257<br />
2000 1140 107 1247<br />
2001 991 83 1074<br />
7.60 The reas<strong>on</strong>s given for <strong>the</strong> decreas<strong>in</strong>g use of periodic detenti<strong>on</strong> dur<strong>in</strong>g this <strong>in</strong>quiry have<br />
primarily revolved around its lack of perceived effectiveness. N<strong>on</strong>-compliance appears to<br />
be a particular problem.<br />
7.61 Mr Sim<strong>on</strong> Eyland, Director Research and Statistics Unit, Department of Corrective<br />
Services, stated <strong>in</strong> evidence that a number of periodic deta<strong>in</strong>ees do not attend <strong>on</strong> any<br />
particular day for legitimate reas<strong>on</strong>s. 223 However, offenders who are absent for three<br />
periods will have <strong>the</strong>ir orders breached by <strong>the</strong> Parole Board. Weekly figures for n<strong>on</strong>-<br />
221 NSW Law Reform Commissi<strong>on</strong>, 1996, <strong>Report</strong> 79: Sentenc<strong>in</strong>g: p 112.<br />
222 Department of Corrective Services, Submissi<strong>on</strong> 63, (supplementary).<br />
223 Eyland, Evidence 12 June 2001.<br />
120 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
attendance may <strong>in</strong>clude some deta<strong>in</strong>ees who later produce medical certificates and those<br />
who have been <strong>in</strong>carcerated <strong>on</strong> o<strong>the</strong>r charges. These deta<strong>in</strong>ees can be reflected as AWOL<br />
until <strong>the</strong> Department receives <strong>the</strong> <strong>in</strong>formati<strong>on</strong> and is able to make correcti<strong>on</strong>s to <strong>the</strong><br />
absentee figures. At any <strong>on</strong>e time some deta<strong>in</strong>ees may be <strong>on</strong> <strong>the</strong> record for <strong>on</strong>e or two<br />
breaches.<br />
7.62 The Department of Corrective Services has advised that 2275 periodic detenti<strong>on</strong> orders<br />
have been revoked s<strong>in</strong>ce February 1999; however <strong>the</strong> decrease <strong>in</strong> numbers of pris<strong>on</strong>ers <strong>on</strong><br />
periodic detenti<strong>on</strong> is due to both fewer people be<strong>in</strong>g sentenced to periodic detenti<strong>on</strong> and<br />
more be<strong>in</strong>g prosecuted for breach of periodic detenti<strong>on</strong> orders. Mr Eyland stated:<br />
Certa<strong>in</strong>ly we are hav<strong>in</strong>g fewer people sentenced to periodic detenti<strong>on</strong>… Those<br />
who are actually not attend<strong>in</strong>g, without permissi<strong>on</strong>, and do not have a legitimate<br />
reas<strong>on</strong> for that, are prosecuted at a much higher rate as well… Certa<strong>in</strong>ly, more are<br />
be<strong>in</strong>g breached than before. … more are be<strong>in</strong>g breached so <strong>the</strong>y cannot attend.<br />
But <strong>the</strong>re are fewer actually gett<strong>in</strong>g periodic detenti<strong>on</strong> as well. There are two<br />
factors here. The bigger factor would be fewer gett<strong>in</strong>g periodic detenti<strong>on</strong>. 224<br />
7.63 In resp<strong>on</strong>se to a recommendati<strong>on</strong> to <strong>in</strong>vestigate <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong><br />
cancellati<strong>on</strong> of periodic detenti<strong>on</strong> orders for women <strong>in</strong> <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong> <strong>the</strong><br />
Department stated:<br />
The tighten<strong>in</strong>g up of <strong>the</strong> program is resp<strong>on</strong>sible for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> revocati<strong>on</strong>s<br />
and aga<strong>in</strong> this tighten<strong>in</strong>g up was <strong>in</strong>evitable to ma<strong>in</strong>ta<strong>in</strong> <strong>the</strong> <strong>in</strong>tegrity of periodic<br />
detenti<strong>on</strong>. The Department is however work<strong>in</strong>g <strong>on</strong> ways to improve <strong>the</strong><br />
compliance rate but it must be remembered that periodic detenti<strong>on</strong> is a rigorous<br />
program which require pers<strong>on</strong>al discipl<strong>in</strong>e to complete successfully. 225<br />
7.64 It is apparent that <strong>the</strong>re is a percepti<strong>on</strong> by <strong>the</strong> Department that periodic detenti<strong>on</strong> is not<br />
effective, with some support for this <strong>in</strong> <strong>the</strong> poor compliance with <strong>the</strong> program. What is<br />
less clear are <strong>the</strong> reas<strong>on</strong>s for this poor compliance. The c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g decl<strong>in</strong>e <strong>in</strong> use of this<br />
sentenc<strong>in</strong>g opti<strong>on</strong> suggests a need for research to identify whe<strong>the</strong>r <strong>the</strong>re is an <strong>in</strong>herent<br />
problem with <strong>the</strong> program or whe<strong>the</strong>r <strong>the</strong>re are aspects of <strong>the</strong> way it is implemented which<br />
could be improved.<br />
7.65 It is also possible that problems may even beg<strong>in</strong> <strong>in</strong> <strong>the</strong> sentenc<strong>in</strong>g stage. The Department<br />
advises that courts are provided with pre-sentence reports by <strong>the</strong> Probati<strong>on</strong> and Parole<br />
Service which c<strong>on</strong>ta<strong>in</strong> relevant <strong>in</strong>formati<strong>on</strong> about offenders <strong>in</strong> relati<strong>on</strong> to matters such as<br />
alcohol and o<strong>the</strong>r drugs; psychiatric or psychological c<strong>on</strong>diti<strong>on</strong>s; crim<strong>in</strong>al record,<br />
employment and o<strong>the</strong>r pers<strong>on</strong>al circumstances. When mak<strong>in</strong>g a decisi<strong>on</strong> about periodic<br />
detenti<strong>on</strong>, <strong>the</strong> courts also take <strong>in</strong>to account an offender’s accommodati<strong>on</strong> arrangements<br />
and access to suitable transport. 226<br />
7.66 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> also received evidence that <strong>in</strong> some parts of NSW <strong>the</strong> preparati<strong>on</strong> of presentence<br />
reports are <strong>in</strong>terfer<strong>in</strong>g with <strong>the</strong>ir capacity to attend to <strong>the</strong> supervisi<strong>on</strong> of n<strong>on</strong>custodial<br />
sentence opti<strong>on</strong>s such as Community Service Orders and good behaviour b<strong>on</strong>ds.<br />
224 Eyland Evidence, 12 March, 2001.<br />
225 Government Resp<strong>on</strong>se 19 February 2001 p 8.<br />
226 Department of Corrective Services, Submissi<strong>on</strong> 63 p 31.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Mr Dennis Nickle of <strong>the</strong> Probati<strong>on</strong> and Parole Service at Wagga Wagga addressed <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> about <strong>the</strong> work load of officers <strong>in</strong> his office:<br />
In terms of <strong>the</strong> office <strong>in</strong> Wagga Wagga – and we cover <strong>the</strong> Junee community,<br />
Narrandera and <strong>the</strong> smaller communities to <strong>the</strong> south-west, Henty and Culcairn –<br />
<strong>the</strong>re are somewhere between 250 and 300 clients, offenders under supervisi<strong>on</strong>. It<br />
is impossible for us to provide overall supervisi<strong>on</strong> for that number of people. In<br />
my time <strong>in</strong> <strong>the</strong> Probati<strong>on</strong> and Parole Service <strong>the</strong>re has been a huge <strong>in</strong>crease <strong>in</strong> <strong>the</strong><br />
number of pre-sentence reports that are prepared. The figure has probably<br />
doubled, maybe more than doubled, <strong>in</strong> <strong>the</strong> time that I have been <strong>in</strong> <strong>the</strong> Probati<strong>on</strong><br />
and Parole Service. A lot of our energy and work goes <strong>in</strong>to <strong>the</strong> preparati<strong>on</strong> of<br />
pre-sentence reports. That obviously <strong>the</strong>n leaves us with less time for supervis<strong>in</strong>g<br />
offenders. We prioritise: parolees are our first priority, community service orders<br />
are our sec<strong>on</strong>d priority and good behaviour b<strong>on</strong>ds are our third priority. What is<br />
most difficult <strong>in</strong> terms of appropriate supervisi<strong>on</strong> is availability of resources. 227<br />
7.67 Under s 5(1) of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 magistrates are required to provide<br />
reas<strong>on</strong>s for us<strong>in</strong>g impris<strong>on</strong>ment over o<strong>the</strong>r alternatives when sentenc<strong>in</strong>g for terms of less<br />
than six m<strong>on</strong>ths; it is possible that periodic detenti<strong>on</strong> reports are used rout<strong>in</strong>ely as a way of<br />
satisfy<strong>in</strong>g this requirement without serious c<strong>on</strong>siderati<strong>on</strong> be<strong>in</strong>g given to alternatives.<br />
Recommendati<strong>on</strong> 20<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research<br />
c<strong>on</strong>duct research to evaluate <strong>the</strong> effectiveness of periodic detenti<strong>on</strong> as an alternative<br />
to full time custody. The research should <strong>in</strong>vestigate why <strong>the</strong>re are currently<br />
problems with compliance lead<strong>in</strong>g to breaches, and whe<strong>the</strong>r <strong>the</strong> program can be<br />
improved to address <strong>the</strong>se problems.<br />
This research should <strong>in</strong>clude c<strong>on</strong>siderati<strong>on</strong> of what impact periodic detenti<strong>on</strong> reports<br />
at <strong>the</strong> sentenc<strong>in</strong>g stage have <strong>on</strong> <strong>the</strong> use of alternatives to impris<strong>on</strong>ment.<br />
Home Detenti<strong>on</strong><br />
7.68 Secti<strong>on</strong> 7(1) of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedures) Act 1999 (NSW) provides that a court that<br />
has sentenced an offender to impris<strong>on</strong>ment for not more than 18 m<strong>on</strong>ths may make a<br />
home detenti<strong>on</strong> order direct<strong>in</strong>g that <strong>the</strong> sentence be served by way of home detenti<strong>on</strong>. A<br />
home detenti<strong>on</strong> order can not be made <strong>in</strong> respect of a sentence of impris<strong>on</strong>ment where <strong>the</strong><br />
offender was c<strong>on</strong>victed of such crimes as murder, sexual assault or armed robbery.<br />
7.69 Offenders <strong>on</strong> <strong>the</strong> scheme are subjected to <strong>in</strong>tensive surveillance by way of electr<strong>on</strong>ic<br />
m<strong>on</strong>itor<strong>in</strong>g devices, visits from supervis<strong>in</strong>g officers, and drug and alcohol test<strong>in</strong>g. 228<br />
7.70 The objective of <strong>the</strong> legislative provisi<strong>on</strong>s for home detenti<strong>on</strong> is to reduce <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong> by divert<strong>in</strong>g people from <strong>the</strong> pris<strong>on</strong> system. Home detenti<strong>on</strong> is a less expensive<br />
sentenc<strong>in</strong>g opti<strong>on</strong> than impris<strong>on</strong>ment, although <strong>the</strong> fact that <strong>the</strong> offender’s home is<br />
227 Nickle Evidence 24 October 2000, p 22.<br />
228 NSW Law Reform Commissi<strong>on</strong>, 1996, <strong>Report</strong> 79: Sentenc<strong>in</strong>g p145<br />
122 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
effectively c<strong>on</strong>verted <strong>in</strong>to a pris<strong>on</strong> makes it relatively expensive to adm<strong>in</strong>ister <strong>in</strong><br />
comparis<strong>on</strong> with o<strong>the</strong>r n<strong>on</strong>-custodial opti<strong>on</strong>s. In additi<strong>on</strong>, home detenti<strong>on</strong> may offer a<br />
more humane form of punishment, particularly for those offenders who do not c<strong>on</strong>stitute<br />
a threat to public safety and whose crimes do not merit <strong>the</strong> harshest of penalties. It may be<br />
particularly suitable for those people who are typically vulnerable <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
envir<strong>on</strong>ment such as young offenders, Aborig<strong>in</strong>es and people with an <strong>in</strong>tellectual disability<br />
or who are seriously ill.<br />
7.71 As at 1 January, 2001, 162 males, 24 females and 3 unknown were serv<strong>in</strong>g home detenti<strong>on</strong><br />
sentences. 229 The Department of Corrective Services has provided <strong>the</strong> follow<strong>in</strong>g<br />
<strong>in</strong>formati<strong>on</strong> of numbers sentenced to Home Detenti<strong>on</strong> s<strong>in</strong>ce <strong>the</strong> commencement of <strong>the</strong><br />
scheme <strong>on</strong> 21 February 1997 230 :<br />
Year Total Admitted Male Female Number<br />
Completed<br />
1997/1998 267 218 49 211<br />
1998/1999 350 291 59 258<br />
1999/2000 385 320 65 260<br />
7.72 The Home detenti<strong>on</strong> scheme is <strong>on</strong>ly available <strong>in</strong> <strong>the</strong> Sydney, Illawarra, Central Coast and<br />
lower Hunter areas.<br />
7.73 The opti<strong>on</strong> may not be appropriate for some offenders, particularly <strong>in</strong> cases where <strong>the</strong>re is<br />
alcohol or drug abuse or violence <strong>in</strong> <strong>the</strong> home. A comprehensive assessment of <strong>the</strong><br />
offender’s home circumstances and lifestyle is undertaken <strong>in</strong> each case to determ<strong>in</strong>e<br />
suitability.<br />
7.74 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sidered <strong>the</strong> advantages and <strong>the</strong> under utilisati<strong>on</strong> of home detenti<strong>on</strong> <strong>in</strong><br />
its Interim <strong>Report</strong>. 231 The limited availability of <strong>the</strong> scheme particularly disadvantages eligible<br />
Aborig<strong>in</strong>al offenders <strong>in</strong> remote areas. In its resp<strong>on</strong>se to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s Interim <strong>Report</strong> <strong>the</strong><br />
Government stated that 55 <strong>in</strong>digenous offenders had been through <strong>the</strong> program and that<br />
<strong>the</strong> Department was <strong>in</strong> <strong>the</strong> prelim<strong>in</strong>ary stages of assess<strong>in</strong>g particular areas <strong>in</strong>clud<strong>in</strong>g <strong>the</strong><br />
Mid North Coast regi<strong>on</strong> for possible expansi<strong>on</strong>. 232 The committee notes <strong>the</strong> Department is<br />
currently undertak<strong>in</strong>g a research project <strong>in</strong>to m<strong>on</strong>itor<strong>in</strong>g of <strong>the</strong> Home Detenti<strong>on</strong> Scheme,<br />
due for completi<strong>on</strong> <strong>in</strong> June 2002. 233<br />
7.75 Extend<strong>in</strong>g <strong>the</strong> Home Detenti<strong>on</strong> Scheme <strong>in</strong>to country areas will require a significant<br />
allocati<strong>on</strong> of additi<strong>on</strong>al resources <strong>in</strong>to rural and regi<strong>on</strong>al areas. Mr Dennis Nickle of <strong>the</strong><br />
Wagga Wagga Probati<strong>on</strong> and Parole Service expla<strong>in</strong>ed <strong>the</strong> level of additi<strong>on</strong>al resources that<br />
may be required:<br />
229 Department of Corrective Services, Submissi<strong>on</strong> 63 (supplementary).<br />
230 Eyland Evidence 12 March 2001.<br />
231 Interim <strong>Report</strong>, pp 124-127.<br />
232 Government Resp<strong>on</strong>se, 19 February, 2001, p. 9<br />
233 Department of Corrective Service Research Program 2001-2002 p 19.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
CHAIR: Do you th<strong>in</strong>k that (Home Detenti<strong>on</strong>) is an opti<strong>on</strong> that would work <strong>in</strong> an<br />
area like Wagga Wagga?<br />
MR NICKLE: With appropriate resources, yes.<br />
CHAIR: What do you th<strong>in</strong>k would be appropriate resources?<br />
Mr NICKLE: Additi<strong>on</strong>al people and some additi<strong>on</strong>al equipment. We are talk<strong>in</strong>g<br />
about a 24-hour operati<strong>on</strong>, which, obviously, has its own needs, motor vehicles<br />
and communicati<strong>on</strong> and stuff like that, and more people.<br />
CHAIR: What is <strong>the</strong> size of <strong>the</strong> staff of <strong>the</strong> local Probati<strong>on</strong> and Parole Service?<br />
Mr NICKLE: In additi<strong>on</strong> to myself as manager <strong>the</strong>re are five full time field staff<br />
and a sessi<strong>on</strong>al supervisor who works <strong>on</strong> a Tuesday and two clerical officers.<br />
7.76 Mr Nickle went <strong>on</strong> to expla<strong>in</strong> that <strong>on</strong>ly <strong>the</strong> field staff could provide supervisi<strong>on</strong> for Home<br />
Detenti<strong>on</strong> and each of his field officers already had a caseload of about 50 clients and<br />
duties to write pre-sentence reports. 234 The Department of Corrective Services also advised<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that <strong>the</strong>y had applied for additi<strong>on</strong>al fund<strong>in</strong>g to expand <strong>the</strong> Home Detenti<strong>on</strong><br />
Program <strong>in</strong>to <strong>the</strong> Mid North Coast of NSW, but <strong>the</strong>ir applicati<strong>on</strong>s for fund<strong>in</strong>g had been<br />
unsuccessful. 235<br />
Recommendati<strong>on</strong> 21<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g its current research <strong>in</strong>to <strong>the</strong> home<br />
detenti<strong>on</strong> program, <strong>the</strong> NSW Government give priority to fund<strong>in</strong>g <strong>the</strong> expansi<strong>on</strong> of<br />
home detenti<strong>on</strong> <strong>on</strong> a strategic basis <strong>in</strong>to rural areas, as an alternative to full time<br />
custody.<br />
Indigenous Offenders and Home Detenti<strong>on</strong><br />
7.77 N<strong>in</strong>eteen percent of those sentenced to impris<strong>on</strong>ment and 17% of those sentenced to<br />
impris<strong>on</strong>ment for l<strong>on</strong>g terms (ie 6 m<strong>on</strong>ths or more) identified <strong>the</strong>mselves as <strong>in</strong>digenous. In<br />
1998/99 <strong>on</strong>ly 6.6%, or 17 out of 258 participants <strong>in</strong> <strong>the</strong> Home Detenti<strong>on</strong> Scheme<br />
identified <strong>the</strong>mselves as Aborig<strong>in</strong>al or Torres Strait Islanders. 236<br />
7.78 The Department of Corrective Services has outl<strong>in</strong>ed a number of reas<strong>on</strong>s as to why<br />
Aborig<strong>in</strong>al offenders may be under represented <strong>on</strong> Home Detenti<strong>on</strong>, which may also apply<br />
equally to <strong>the</strong> Drug Court <strong>in</strong>itiative(see below):<br />
• <strong>the</strong> nature of <strong>the</strong> offence precludes c<strong>on</strong>siderati<strong>on</strong> for Home Detenti<strong>on</strong>;<br />
• <strong>the</strong> unavailability of <strong>the</strong> program <strong>in</strong> regi<strong>on</strong>al areas with significant c<strong>on</strong>centrati<strong>on</strong>s<br />
of <strong>in</strong>digenous people;<br />
234 Nickle Evidence 24 October 2000 pp 25-26.<br />
235 McD<strong>on</strong>ald Evidence 28 March 2000, p 47.<br />
236 Department of Corrective Services Annual <strong>Report</strong> 1998/99 p 13.<br />
124 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
• <strong>in</strong>ability of offenders to meet <strong>the</strong> necessary criteria required of <strong>the</strong> program.<br />
7.79 The Department also advised that:<br />
while <strong>the</strong> expansi<strong>on</strong> of <strong>the</strong> Home Detenti<strong>on</strong> Program rema<strong>in</strong>s a priority <strong>in</strong> <strong>the</strong><br />
Department’s development of strategies aimed at divert<strong>in</strong>g Aborig<strong>in</strong>al <strong>in</strong>mates<br />
from full time custody budgetary proposals for expansi<strong>on</strong> have been<br />
unsuccessful. 237<br />
7.80 A critical difficulty for Indigenous offenders <strong>in</strong> meet<strong>in</strong>g <strong>the</strong> requirements of <strong>the</strong> Home<br />
Detenti<strong>on</strong> Program has been that <strong>the</strong> Home Detenti<strong>on</strong> program excludes violent offenders<br />
from participati<strong>on</strong>. The program also requires <strong>the</strong> c<strong>on</strong>sent of o<strong>the</strong>r family members and<br />
suitable accommodati<strong>on</strong> equipped with a teleph<strong>on</strong>e c<strong>on</strong>necti<strong>on</strong>.<br />
7.81 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes a pilot program should be <strong>in</strong>itiated to expand <strong>the</strong> use of home<br />
detenti<strong>on</strong> by Indigenous offenders <strong>in</strong> rural NSW which <strong>in</strong>cludes provid<strong>in</strong>g alternative<br />
accommodati<strong>on</strong> such as hostel where offenders can complete a sentence of home<br />
detenti<strong>on</strong>.<br />
Recommendati<strong>on</strong> 22<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services <strong>in</strong>itiate a<br />
pilot program to expand <strong>the</strong> use of home detenti<strong>on</strong> by Indigenous offenders <strong>in</strong> rural<br />
NSW. This pilot should <strong>in</strong>clude provid<strong>in</strong>g alternative accommodati<strong>on</strong>, and/or o<strong>the</strong>r<br />
forms of community support, where offenders can complete a sentence of home<br />
detenti<strong>on</strong>.<br />
Net-widen<strong>in</strong>g<br />
7.82 The Department of Corrective Services states <strong>in</strong> its submissi<strong>on</strong> that <strong>the</strong> major risk with all<br />
alternative sentenc<strong>in</strong>g opti<strong>on</strong>s is that authorities may impose those penalties <strong>on</strong> offenders<br />
who would not o<strong>the</strong>rwise have been given a custodial sentence.<br />
While <strong>the</strong> same, or similar, number of offenders may be sentenced to pris<strong>on</strong>, a<br />
wider circle of lesser offenders are brought with<strong>in</strong> <strong>the</strong> “net” of <strong>the</strong> alternative<br />
penalties. When a proporti<strong>on</strong> of those offenders breach <strong>the</strong> terms of <strong>the</strong>ir orders,<br />
<strong>the</strong>y run <strong>the</strong> risk of full-time impris<strong>on</strong>ment. 238<br />
7.83 The Parole Board has <strong>the</strong> resp<strong>on</strong>sibility for procedures for revok<strong>in</strong>g Periodic Detenti<strong>on</strong>,<br />
Home Detenti<strong>on</strong> and parole orders. That resp<strong>on</strong>sibility was transferred from <strong>the</strong> Court to<br />
<strong>the</strong> Parole Board <strong>in</strong> order to address delays that were occurr<strong>in</strong>g between breaches of<br />
orders, cancellati<strong>on</strong> proceed<strong>in</strong>gs and return<strong>in</strong>g offenders to pris<strong>on</strong> to serve <strong>the</strong> balance of<br />
<strong>the</strong>ir sentence. If a periodic deta<strong>in</strong>ee, home deta<strong>in</strong>ee, parolee or pers<strong>on</strong> serv<strong>in</strong>g a suspended<br />
sentence breaches his or her order, <strong>the</strong> court or Parole Board can revoke <strong>the</strong> order and<br />
issue a warrant for <strong>the</strong> apprehensi<strong>on</strong> of <strong>the</strong> offender and <strong>the</strong>ir return to pris<strong>on</strong>. If a pers<strong>on</strong><br />
237 Submissi<strong>on</strong> 63 Appendix- Indigenous Offenders –Departmental Programs and Initiatives p 1.<br />
238 Department of Corrective Services, Submissi<strong>on</strong> 63, p 33.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 125
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
serv<strong>in</strong>g a community service order or a pers<strong>on</strong> under a b<strong>on</strong>d breaches <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s of <strong>the</strong><br />
order or b<strong>on</strong>d, <strong>the</strong> court may sentence <strong>the</strong> offender to impris<strong>on</strong>ment.<br />
7.84 It was submitted by <strong>the</strong> NSW Law Society that c<strong>on</strong>siderati<strong>on</strong> should be given to enhanc<strong>in</strong>g<br />
<strong>the</strong> support offered to periodic deta<strong>in</strong>ees. The NSW Law Society stated <strong>in</strong> its submissi<strong>on</strong><br />
that:<br />
This will not <strong>on</strong>ly assist <strong>the</strong> rehabilitati<strong>on</strong> of offenders, (but) also assist <strong>in</strong> ensur<strong>in</strong>g<br />
c<strong>on</strong>formity with adm<strong>in</strong>istrative procedures and reduce unauthorised absences. 239<br />
7.85 As discussed <strong>in</strong> Chapter Five <strong>in</strong> relati<strong>on</strong> to reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>creases <strong>in</strong> causes of <strong>the</strong> pris<strong>on</strong><br />
populati<strong>on</strong>, <strong>the</strong> Law Society <strong>in</strong> New South Wales is also c<strong>on</strong>cerned that cancellati<strong>on</strong><br />
procedures under which <strong>the</strong> Parole Board is currently required to operate provide no<br />
facility for people to be granted bail. The Law Society states:<br />
This means that people who may be able to satisfy <strong>the</strong> Board that <strong>the</strong>ir orders<br />
should not have been cancelled, can spend c<strong>on</strong>siderable time <strong>in</strong> custody before<br />
<strong>the</strong>y have <strong>the</strong> opportunity to present <strong>the</strong>ir case to <strong>the</strong> Board. 240<br />
7.86 The Law Society recommends that provisi<strong>on</strong> be made for people arrested <strong>on</strong> warrants<br />
issued up<strong>on</strong> revocati<strong>on</strong> of a Periodic Detenti<strong>on</strong>, Home Detenti<strong>on</strong> or Parole order to be<br />
brought before <strong>the</strong> court if <strong>the</strong>y wish to seek bail; this is addressed by <strong>the</strong><br />
Recommendati<strong>on</strong> Three <strong>in</strong> Chapter Five.<br />
7.87 A fur<strong>the</strong>r c<strong>on</strong>sequence of transferr<strong>in</strong>g <strong>the</strong> functi<strong>on</strong> of cancell<strong>in</strong>g orders from <strong>the</strong> court to<br />
<strong>the</strong> Parole Board was that previously <strong>the</strong> court, when cancell<strong>in</strong>g a periodic detenti<strong>on</strong> order<br />
or <strong>on</strong> applicati<strong>on</strong> from <strong>the</strong> Commissi<strong>on</strong> to substitute a different sentence, for example a<br />
b<strong>on</strong>d or Community Service order. The Law Society of NSW stated <strong>in</strong> its submissi<strong>on</strong> that<br />
this provisi<strong>on</strong> had been available previously under <strong>the</strong> Periodic Detenti<strong>on</strong> of Pris<strong>on</strong>ers Act 1981<br />
and was a useful opti<strong>on</strong> which could be utilised when an order or impris<strong>on</strong>ment had<br />
become <strong>in</strong>appropriate:<br />
This was a very useful and enlightened opti<strong>on</strong> which could be utilised where<br />
Periodic Detenti<strong>on</strong> or full-time impris<strong>on</strong>ment had become <strong>in</strong>appropriate due to<br />
superven<strong>in</strong>g circumstances, such as <strong>the</strong> <strong>on</strong>set of a serious illness. Because <strong>the</strong><br />
mak<strong>in</strong>g of o<strong>the</strong>r orders could be sought <strong>on</strong>ly <strong>on</strong> <strong>the</strong> applicati<strong>on</strong> of <strong>the</strong><br />
commissi<strong>on</strong>er and was <strong>on</strong>ly used <strong>in</strong> excepti<strong>on</strong>al circumstances it could not be<br />
utilised as a de facto right to apply for re-sentenc<strong>in</strong>g. 241<br />
Recommendati<strong>on</strong> 23<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Attorney-General’s Department make<br />
provisi<strong>on</strong> for courts, when cancell<strong>in</strong>g a periodic or home detenti<strong>on</strong> order, to<br />
substitute a different n<strong>on</strong>-custodial sentence, for example a b<strong>on</strong>d or Community<br />
Service order, when appropriate to <strong>the</strong> specific offender c<strong>on</strong>cerned.<br />
239 Law Society of New South Wales, Submissi<strong>on</strong> 93 p 25.<br />
240 Ibid, p 28.<br />
241 Ibid, p 29<br />
126 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Mechanisms for divert<strong>in</strong>g eligible offenders from pris<strong>on</strong><br />
7.88 Evidence received by <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> highlights <strong>the</strong> over-representati<strong>on</strong> of certa<strong>in</strong><br />
categories of offenders <strong>in</strong> <strong>the</strong> New South Wales correcti<strong>on</strong>al system <strong>in</strong>clud<strong>in</strong>g offenders<br />
with an <strong>in</strong>tellectual disability, mental illness, drug additi<strong>on</strong>, those from n<strong>on</strong>-English<br />
speak<strong>in</strong>g background and Indigenous Australians.<br />
7.89 A number of programs have been implemented which seek to divert eligible offenders<br />
from pris<strong>on</strong> sentences. Some of <strong>the</strong>se programs are discussed below<br />
Programs for Offenders with an <strong>in</strong>tellectual disability<br />
7.90 Despite <strong>the</strong> difficulty <strong>in</strong> determ<strong>in</strong><strong>in</strong>g prevalence of <strong>in</strong>tellectual disability <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
system (as noted <strong>in</strong> Chapter Four) <strong>the</strong>re is c<strong>on</strong>sensus that <strong>the</strong>re is a disproporti<strong>on</strong>ate<br />
number of pers<strong>on</strong>s with an <strong>in</strong>tellectual disability <strong>in</strong> NSW correcti<strong>on</strong>al facilities. One reas<strong>on</strong><br />
for this is that, <strong>in</strong> some cases, people with <strong>in</strong>tellectual disability are <strong>in</strong>carcerated not because<br />
<strong>the</strong>ir offence warrants it but because <strong>the</strong>re is no suitable alternative. Courts often judge<br />
<strong>in</strong>tellectually disabled offenders as be<strong>in</strong>g unsuitable for community based sentences.<br />
Orders and c<strong>on</strong>diti<strong>on</strong>s required of a community service order can be difficult for some to<br />
comply. As discussed <strong>in</strong> Chapter Four, offenders with an <strong>in</strong>tellectual disability also have a<br />
high rate of recidivism.<br />
7.91 Currently <strong>the</strong>re are no services specifically designed for people with an <strong>in</strong>tellectual disability<br />
who commit offences. However, a program is currently be<strong>in</strong>g planned by <strong>the</strong> Department<br />
of Age<strong>in</strong>g and Disability and Home Care to fund advocacy, <strong>in</strong>formati<strong>on</strong> and support<br />
services for people with disabilities <strong>in</strong> c<strong>on</strong>tact with <strong>the</strong> crim<strong>in</strong>al justice system.<br />
7.92 The recently released Framework <strong>Report</strong>, prepared by <strong>the</strong> NSW Council for Intellectual<br />
Disability and <strong>the</strong> Intellectual Disability Rights Service presents <strong>the</strong> results of a project<br />
designed to develop a framework for provisi<strong>on</strong> of appropriate community services for<br />
people with <strong>in</strong>tellectual disabilities who are <strong>in</strong> c<strong>on</strong>tact with <strong>the</strong> crim<strong>in</strong>al or juvenile justice<br />
system or who are at risk of c<strong>on</strong>tact. 242 The project focused <strong>on</strong> accommodati<strong>on</strong>, case<br />
management, behaviour <strong>in</strong>terventi<strong>on</strong> and related services and recommended <strong>the</strong> adopti<strong>on</strong><br />
of screen<strong>in</strong>g tools and enhancement of skills <strong>in</strong> identify<strong>in</strong>g members of <strong>the</strong> target group.<br />
The Department and o<strong>the</strong>r agencies to which this report is directed are currently<br />
c<strong>on</strong>sider<strong>in</strong>g <strong>the</strong> reports f<strong>in</strong>d<strong>in</strong>gs.<br />
Programs for Offenders with a psychiatric illness<br />
7.93 As discussed <strong>in</strong> Chapter Four, a high proporti<strong>on</strong> of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> has a psychiatric<br />
disability or some form of mental illness, <strong>in</strong>clud<strong>in</strong>g depressi<strong>on</strong>. Accord<strong>in</strong>g to Ms Le<strong>on</strong>ie<br />
Manns of <strong>the</strong> Disability Council of New South Wales, problems for people with psychiatric<br />
disability revolve around <strong>the</strong> lack of access to treatment. This tends to exacerbate <strong>the</strong><br />
illness, draw<strong>in</strong>g <strong>the</strong> attenti<strong>on</strong> of both <strong>the</strong> authorities and o<strong>the</strong>r pris<strong>on</strong>ers.<br />
242 Law and Justice Foundati<strong>on</strong>, The Framework <strong>Report</strong>: Appropriate community services <strong>in</strong> NSW for offenders with<br />
<strong>in</strong>tellectual disabilities and those at risk of offend<strong>in</strong>g, NSW Council for Intellectual Disability, 2001.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 127
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
7.94 Mr Luke Grant, Department of Corrective Services, advised <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that <strong>the</strong><br />
Department was pursu<strong>in</strong>g strategies for reduc<strong>in</strong>g <strong>the</strong> number of people with a mental<br />
illness <strong>in</strong> custody:<br />
At <strong>the</strong> moment <strong>the</strong> department is very actively c<strong>on</strong>tribut<strong>in</strong>g to, and has been<br />
lobby<strong>in</strong>g for a review of <strong>the</strong> mental health crim<strong>in</strong>al procedures legislati<strong>on</strong> , which<br />
is an attempt to very significantly reduce <strong>the</strong> number of people who have mental<br />
illness problems <strong>in</strong> custody. Th<strong>in</strong>gs like this are th<strong>in</strong>gs that we engage <strong>in</strong> all <strong>the</strong><br />
time, so I th<strong>in</strong>k it is not <strong>the</strong> correct statement to suggest that <strong>the</strong> department is<br />
not pursu<strong>in</strong>g this and does not place a great value <strong>on</strong> community programs. 243<br />
7.95 Until recently, <strong>the</strong>re were very few opti<strong>on</strong>s available to <strong>the</strong> courts to divert offenders with a<br />
mental illness from custody. Secti<strong>on</strong>s 32 and 33 of <strong>the</strong> Mental Health (Crim<strong>in</strong>al Procedures) Act<br />
provide that certa<strong>in</strong> people may be diverted from <strong>the</strong> crim<strong>in</strong>al justice system by <strong>the</strong> local<br />
courts. Under s32, if it appears to <strong>the</strong> Magistrate that <strong>the</strong> defendant is developmentally<br />
disabled, is suffer<strong>in</strong>g from mental illness or is suffer<strong>in</strong>g from a mental c<strong>on</strong>diti<strong>on</strong>, <strong>the</strong><br />
Magistrate may adjourn <strong>the</strong> proceed<strong>in</strong>gs, grant bail or make any o<strong>the</strong>r order c<strong>on</strong>sidered<br />
appropriate. The Magistrate may also dismiss <strong>the</strong> charge and discharge <strong>the</strong> defendant<br />
ei<strong>the</strong>r c<strong>on</strong>diti<strong>on</strong>ally, that is, <strong>in</strong>to <strong>the</strong> care of a “resp<strong>on</strong>sible pers<strong>on</strong>” or unc<strong>on</strong>diti<strong>on</strong>ally.<br />
Secti<strong>on</strong> 33 applies to a pers<strong>on</strong> who is a “mentally ill pers<strong>on</strong>” with<strong>in</strong> <strong>the</strong> mean<strong>in</strong>g of <strong>the</strong><br />
Mental Health (Crim<strong>in</strong>al Procedures) Act and differs from s.32 <strong>in</strong> <strong>the</strong> procedure to be<br />
followed. 244<br />
7.96 There has been some debate about <strong>the</strong> def<strong>in</strong>iti<strong>on</strong> of <strong>in</strong>tellectual disability <strong>in</strong> <strong>the</strong> secti<strong>on</strong> and<br />
<strong>the</strong> applicati<strong>on</strong> of s.32. The Law Reform Commissi<strong>on</strong> states that flexibility of s.32 has<br />
allowed diversi<strong>on</strong> of some defendants who have an <strong>in</strong>tellectual disability or o<strong>the</strong>r mental<br />
c<strong>on</strong>diti<strong>on</strong>. However, <strong>the</strong> provisi<strong>on</strong> is not always evenly applied. 245 In its Crime Preventi<strong>on</strong><br />
Through Social Support: First <strong>Report</strong>, <strong>the</strong> Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice made a<br />
number of recommendati<strong>on</strong>s regard<strong>in</strong>g <strong>in</strong>vestigati<strong>on</strong> of <strong>the</strong>se provisi<strong>on</strong>s. 246<br />
Psychiatric C<strong>on</strong>sultati<strong>on</strong> and Assessment Service<br />
7.97 As a means of ensur<strong>in</strong>g that offenders eligible for diversi<strong>on</strong> under s32 and s33 are<br />
identified and assisted, <strong>the</strong> Correcti<strong>on</strong>s Health Service has now established a psychiatric<br />
assessment service at Central and Parramatta Local Courts <strong>in</strong> Sydney. The Psychiatric<br />
C<strong>on</strong>sultati<strong>on</strong> and Assessment Service is a federally funded pilot which aims to foster<br />
effective l<strong>in</strong>ks between <strong>the</strong> legal and mental health system and to provide early assessments<br />
of mentally ill pers<strong>on</strong>s appear<strong>in</strong>g before <strong>the</strong> court. It is staffed by a psychiatrist and a<br />
mental health nurse.<br />
7.98 The rati<strong>on</strong>ale beh<strong>in</strong>d <strong>the</strong> Psychiatric C<strong>on</strong>sultati<strong>on</strong> and Assessment Service is that large<br />
numbers of offenders with mental illness should be referred to or returned to treatment at<br />
<strong>the</strong> earliest opportunity ra<strong>the</strong>r than be<strong>in</strong>g <strong>in</strong>carcerated. The Assessment Service aims to<br />
243 Grant Evidence 12 March 2001.<br />
244 New South Wales Law Reform Commissi<strong>on</strong>, 1994, Discussi<strong>on</strong> Paper 35: People with an <strong>in</strong>tellectual disability and <strong>the</strong><br />
Crim<strong>in</strong>al Justice System: Courts and Sentenc<strong>in</strong>g Issues, p 135.<br />
245 Ibid, p138.<br />
246 Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, 1999, pp 183-185.<br />
128 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
avoid <strong>the</strong> situati<strong>on</strong> where offenders wait lengthy periods for a psychiatric report while<br />
hav<strong>in</strong>g, <strong>in</strong> general, committed less serious offences.<br />
7.99 The scheme assesses and diverts, where possible, those who are before <strong>the</strong> courts for<br />
reas<strong>on</strong>s of mental illness. It is estimated that <strong>the</strong> service is divert<strong>in</strong>g 9 out of 10 people<br />
referred to it from pris<strong>on</strong>. Dr Richard Mat<strong>the</strong>ws told <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>,<br />
…we have diverted a significant number of people and had a very large number of<br />
community treatment programs <strong>in</strong>cluded <strong>in</strong> <strong>the</strong> after-care orders by <strong>the</strong><br />
magistrates. I th<strong>in</strong>k when you talk to <strong>the</strong> magistrates you will f<strong>in</strong>d that <strong>the</strong>y are<br />
extremely enthusiastic. 247<br />
7.100 The court-based service has m<strong>in</strong>imised <strong>the</strong> need for, and <strong>the</strong> cost of, transferr<strong>in</strong>g patients<br />
to a psychiatric hospital for assessment, or <strong>the</strong> need to remand <strong>the</strong> defendant <strong>in</strong> custody for<br />
a psychiatric report. This earlier process had been widely criticised by Magistrates and<br />
lawyers for <strong>the</strong> poor quality of assessment carried out under such circumstances and by<br />
psychiatric hospital staff for <strong>the</strong> burden it placed <strong>on</strong> <strong>the</strong>ir services. 248 The service is<br />
immediately accessible <strong>on</strong> site <strong>in</strong> <strong>the</strong> Court House. <strong>Report</strong>s are practical <strong>in</strong> nature,<br />
address<strong>in</strong>g provid<strong>in</strong>g <strong>the</strong> basis for practical soluti<strong>on</strong>s which <strong>the</strong> Court can use.<br />
7.101 Dur<strong>in</strong>g <strong>the</strong> Inquiry <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited <strong>the</strong> court psychiatric scheme at Central Local<br />
Court <strong>in</strong> Sydney and was encouraged by <strong>the</strong> process and <strong>the</strong> high quality service offered.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>siders that <strong>the</strong> scheme has <strong>the</strong> potential to divert a significant number<br />
of people from <strong>the</strong> pris<strong>on</strong> system and commends Correcti<strong>on</strong>s Health <strong>on</strong> this important<br />
and timely <strong>in</strong>itiative.<br />
Recommendati<strong>on</strong> 24<br />
The committee recommends that <strong>the</strong> Psychiatric C<strong>on</strong>sultati<strong>on</strong> and Assessment<br />
Service be expanded statewide and that an evaluati<strong>on</strong> be c<strong>on</strong>ducted to review its<br />
success <strong>in</strong> divert<strong>in</strong>g offenders.<br />
Programs for Indigenous Offenders<br />
7.102 As discussed <strong>in</strong> Chapter Four, Aborig<strong>in</strong>al and Torres Strait Islander (ATSI) people rema<strong>in</strong><br />
over-represented am<strong>on</strong>g New South Wales pris<strong>on</strong>ers and <strong>the</strong> level of over-representati<strong>on</strong> is<br />
<strong>in</strong>creas<strong>in</strong>g. In this regard, Mr Peter McD<strong>on</strong>ald, Act<strong>in</strong>g Assistant Commissi<strong>on</strong>er, Probati<strong>on</strong><br />
and Parole Service, Department of Corrective Services stated,<br />
… both Aborig<strong>in</strong>al men and Aborig<strong>in</strong>al women are not as str<strong>on</strong>gly represented <strong>in</strong><br />
community correcti<strong>on</strong>s programs as <strong>on</strong>e might expect measured by <strong>the</strong>ir level of<br />
populati<strong>on</strong> with<strong>in</strong> <strong>the</strong> wider [pris<strong>on</strong>] community. 249<br />
247 Mat<strong>the</strong>ws Evidence 12 March 2001.<br />
248 C<strong>on</strong>versati<strong>on</strong> with J<strong>on</strong>ath<strong>on</strong> Carne, Director of <strong>the</strong> assessment service, dur<strong>in</strong>g committee’s site visit.<br />
249 McD<strong>on</strong>ald Evidence 28 March 2000.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 129
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
7.103 The low numbers of Indigenous men and women currently sentenced to home detenti<strong>on</strong> is<br />
due to both limited access to <strong>the</strong> program <strong>in</strong> rural and regi<strong>on</strong>al areas, and because <strong>the</strong><br />
offences with which many Aborig<strong>in</strong>al offenders are charged precludes <strong>the</strong>m from<br />
participati<strong>on</strong> <strong>in</strong> <strong>the</strong> program. For <strong>in</strong>stance many Aborig<strong>in</strong>al offenders, particularly <strong>in</strong> rural<br />
areas, are charged for <strong>in</strong>stances of alcohol related violence, and so would be <strong>in</strong>eligible to<br />
participate. 250<br />
7.104 In order to reduce <strong>the</strong> over representati<strong>on</strong> of Aborig<strong>in</strong>al and Torres Straight Islanders<br />
(ATSI) people <strong>in</strong> pris<strong>on</strong>, focus should be <strong>on</strong> reduc<strong>in</strong>g <strong>the</strong> high rate at which ATSI people<br />
appear <strong>in</strong> court and <strong>on</strong> <strong>the</strong> use of diversi<strong>on</strong> for ATSI defenders currently given short<br />
pris<strong>on</strong> sentences. The Royal Commissi<strong>on</strong> <strong>in</strong>to Aborig<strong>in</strong>al Deaths <strong>in</strong> Custody made a<br />
number of recommendati<strong>on</strong>s designed to reduce <strong>the</strong> over-representati<strong>on</strong> of ATSI people <strong>in</strong><br />
custody through reform<strong>in</strong>g <strong>the</strong> crim<strong>in</strong>al justice processes and by divert<strong>in</strong>g ATSI people<br />
away from pris<strong>on</strong>. The recommendati<strong>on</strong>s sought to ensure that impris<strong>on</strong>ment be used as a<br />
sancti<strong>on</strong> of last resort through <strong>the</strong> provisi<strong>on</strong> of adequate n<strong>on</strong>-custodial alternatives and by<br />
gett<strong>in</strong>g people out of pris<strong>on</strong> at <strong>the</strong> earliest possible opportunity. The recent report Keep<strong>in</strong>g<br />
Aborig<strong>in</strong>al and Torres Strait Islander People out of Custody: An Evaluati<strong>on</strong> of <strong>the</strong> Implementati<strong>on</strong> of <strong>the</strong><br />
Recommendati<strong>on</strong>s of <strong>the</strong> Royal Commissi<strong>on</strong> <strong>in</strong> Aborig<strong>in</strong>al Deaths <strong>in</strong> Custody found that <strong>the</strong>re had<br />
been a failure <strong>on</strong> <strong>the</strong> part of governments to adequately implement <strong>the</strong> recommendati<strong>on</strong>s<br />
of <strong>the</strong> Royal Commissi<strong>on</strong>. 251<br />
7.105 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> understands that a number of <strong>in</strong>itiatives are be<strong>in</strong>g developed under <strong>the</strong><br />
Aborig<strong>in</strong>al Justice Strategy. Guided by <strong>the</strong> recommendati<strong>on</strong>s of <strong>the</strong> Aborig<strong>in</strong>al Justice<br />
Advisory Council, <strong>the</strong> Attorney General’s Department will be develop<strong>in</strong>g appropriate<br />
strategies relat<strong>in</strong>g to <strong>in</strong>digenous people and <strong>the</strong> crim<strong>in</strong>al justice system. In a recent budget<br />
estimates committee hear<strong>in</strong>g, <strong>the</strong> Attorney General c<strong>on</strong>firmed that <strong>the</strong>re is a specific aim <strong>in</strong><br />
<strong>the</strong>se strategies to reduce <strong>the</strong> number of <strong>in</strong>digenous people <strong>in</strong> pris<strong>on</strong>. Under <strong>the</strong> strategy<br />
<strong>the</strong>re will be five additi<strong>on</strong>al Aborig<strong>in</strong>al Court Liais<strong>on</strong> Officers (ACLO) appo<strong>in</strong>ted.<br />
Describ<strong>in</strong>g <strong>the</strong> role of ACLOs, <strong>the</strong> Attorney General stated<br />
They have been fantastically successful. They are Aborig<strong>in</strong>al people who work<br />
with several courts across <strong>the</strong> regi<strong>on</strong> and act as <strong>in</strong>termediaries between people<br />
who have been charged, <strong>the</strong> communities and <strong>the</strong> court. They are mediators who<br />
are given special respect by magistrates. In some cases <strong>the</strong>y have been absolutely<br />
fantastic. They have clearly reduced <strong>the</strong> number of c<strong>on</strong>victi<strong>on</strong>s and ensured that<br />
more appropriate sentences are be<strong>in</strong>g given. 252<br />
7.106 In its submissi<strong>on</strong> to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>the</strong> Aborig<strong>in</strong>al and Torres Strait Islander Commissi<strong>on</strong><br />
(ATSIC) noted <strong>the</strong> need for, and <strong>the</strong> benefit of, community <strong>in</strong>volvement <strong>in</strong> creat<strong>in</strong>g<br />
diversi<strong>on</strong> from custodial sentenc<strong>in</strong>g. This <strong>in</strong>cludes community <strong>in</strong>volvement <strong>in</strong> bail,<br />
250 M Kev<strong>in</strong>, “Violent Crime, Alcohol and o<strong>the</strong>r Drugs: an Survey of Inmates impris<strong>on</strong>ed for Assault <strong>in</strong> NSW”<br />
1999 Department of Corrective Services Research Publicati<strong>on</strong> no 39; L Munro, G Juancey “Keep<strong>in</strong>g Aborig<strong>in</strong>al<br />
Offenders out of Pris<strong>on</strong>” paper presented at AIC c<strong>on</strong>ference “Keep<strong>in</strong>g People out of Pris<strong>on</strong>” 1989.<br />
251 Cunneen and McD<strong>on</strong>ald, (1996) Keep<strong>in</strong>g Aborig<strong>in</strong>al and Torres Strait Islander People out of Custody: An Evaluati<strong>on</strong> of<br />
<strong>the</strong> Implementati<strong>on</strong> of <strong>the</strong> Recommendati<strong>on</strong>s of <strong>the</strong> Royal Commissi<strong>on</strong> <strong>in</strong> Aborig<strong>in</strong>al Deaths <strong>in</strong> Custody, Office of Public<br />
Affairs, ATSIC, p189-190.<br />
252 Debus Evidence (Budget Estimates 2001-2002:GPSC3) 22 June 2001 p 9.<br />
130 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
sentenc<strong>in</strong>g and remand opti<strong>on</strong>s and home detenti<strong>on</strong> opti<strong>on</strong>s for m<strong>in</strong>or offences and use of<br />
community organisati<strong>on</strong>s as b<strong>on</strong>d agencies for remand, bail and some m<strong>in</strong>or offences. 253<br />
7.107 Two ways of <strong>in</strong>corporat<strong>in</strong>g community <strong>in</strong>volvement <strong>in</strong> <strong>the</strong> crim<strong>in</strong>al justice system is firstly<br />
through recogniti<strong>on</strong> of customary law, and, sec<strong>on</strong>dly, <strong>the</strong> circle sentenc<strong>in</strong>g <strong>in</strong>itiative.<br />
Circle Sentenc<strong>in</strong>g<br />
7.108 Circle sentenc<strong>in</strong>g is <strong>on</strong>e scheme with<strong>in</strong> <strong>the</strong> broader c<strong>on</strong>cept of “c<strong>on</strong>ferenc<strong>in</strong>g” whereby<br />
members of <strong>the</strong> community become <strong>in</strong>volved <strong>in</strong> deal<strong>in</strong>g with offenders bey<strong>on</strong>d <strong>the</strong> normal<br />
c<strong>on</strong>f<strong>in</strong>es of <strong>the</strong> crim<strong>in</strong>al justice system. The Aborig<strong>in</strong>al Justice Advisory Council reports<br />
that:<br />
Circle courts are designed for more serious or repeat offenders and aim to achieve<br />
full community <strong>in</strong>volvement <strong>in</strong> <strong>the</strong> sentenc<strong>in</strong>g process. It aims to broaden <strong>the</strong><br />
sentenc<strong>in</strong>g phase so that it can fully exam<strong>in</strong>e <strong>the</strong> underly<strong>in</strong>g issues of offend<strong>in</strong>g<br />
behaviour and exam<strong>in</strong>e <strong>the</strong> needs of victims of crime. 254<br />
7.109 A circle sentenc<strong>in</strong>g pilot scheme is to be c<strong>on</strong>ducted from Nowra Local Court.<br />
Comment<strong>in</strong>g <strong>on</strong> <strong>the</strong> NSW proposal for Circle Sentenc<strong>in</strong>g, <strong>the</strong> Attorney General recently<br />
stated:<br />
The idea is that we will have elders, as well as families, work<strong>in</strong>g with <strong>the</strong><br />
magistrate, work<strong>in</strong>g out ways <strong>in</strong> which, for <strong>in</strong>stance, a young offender may be<br />
sancti<strong>on</strong>ed by <strong>the</strong> court. The reports from Canada…are extremely encourag<strong>in</strong>g. 255<br />
Divert<strong>in</strong>g Offenders with illicit drug problems<br />
7.110 For a majority of offenders, <strong>the</strong> use of illicit drugs is an underly<strong>in</strong>g reas<strong>on</strong> for offend<strong>in</strong>g.<br />
Evidence suggests that over 80% of women and up to 70% of men <strong>in</strong> custody have a drug<br />
and alcohol problem.<br />
7.111 Innovative programs to both address illicit drug use and to divert some offenders from<br />
pris<strong>on</strong> have recently been <strong>in</strong>troduced. The New South Wales Drug Court and <strong>the</strong> MERIT<br />
program are diversi<strong>on</strong>ary programs currently be<strong>in</strong>g trialed <strong>in</strong> New South Wales.<br />
NSW Drug Court Program<br />
7.112 Dur<strong>in</strong>g <strong>the</strong> Inquiry, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited <strong>the</strong> Drug Court and spoke with Judge Mils<strong>on</strong><br />
and psychiatric and legal practiti<strong>on</strong>ers. The New South Wales Drug Court was established<br />
<strong>on</strong> 8 February 1999 as a two year pilot program. The Drug Court is presided over by a<br />
District Court judge and has both Local and District Court jurisdicti<strong>on</strong>. Pers<strong>on</strong>s are<br />
referred to <strong>the</strong> NSW Drug Court after appear<strong>in</strong>g at <strong>on</strong>e of <strong>the</strong> courts <strong>in</strong> <strong>the</strong> catchment<br />
253 Aborig<strong>in</strong>al and Torres Straight Islander Commissi<strong>on</strong>, Submissi<strong>on</strong> 179 p 14.<br />
254 Aborig<strong>in</strong>al Justice Advisory Council, Circle Sentenc<strong>in</strong>g: Involv<strong>in</strong>g Aborig<strong>in</strong>al Communities <strong>in</strong> <strong>the</strong> Sentenc<strong>in</strong>g Process,<br />
1999 p 1.<br />
255 Debus Evidence (Budget Estimates 2001-2002:GPSC3) 22 June 2001 p 9.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 131
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
area, 256 and by enter<strong>in</strong>g a plea of guilty. A pers<strong>on</strong> is referred to <strong>the</strong> NSW Drug Court if it is<br />
likely that <strong>the</strong>y will receive a custodial sentence.<br />
7.113 Eligibility to participate <strong>in</strong> <strong>the</strong> Drug Court program relies <strong>on</strong> <strong>the</strong> offender:<br />
• be<strong>in</strong>g charged with an offence o<strong>the</strong>r than an offence <strong>in</strong>volv<strong>in</strong>g violent c<strong>on</strong>duct or<br />
sexual assault,<br />
• be<strong>in</strong>g dependent <strong>on</strong> a prohibited drug,<br />
• usually resid<strong>in</strong>g <strong>in</strong> <strong>the</strong> catchment area, and<br />
• be<strong>in</strong>g will<strong>in</strong>g to participant <strong>in</strong> <strong>the</strong> drug court program.<br />
7.114 The Drug Court program operates a system of coerced treatment whereby bail is refused<br />
and <strong>the</strong> pers<strong>on</strong> is placed <strong>in</strong> a detoxificati<strong>on</strong> unit. Dur<strong>in</strong>g <strong>the</strong> detoxificati<strong>on</strong> period a<br />
treatment plan is developed. Drug Court participants can be assigned to a range of<br />
treatment opti<strong>on</strong>s and are required to attend <strong>in</strong>dividual counsell<strong>in</strong>g and relapse preventi<strong>on</strong><br />
tra<strong>in</strong><strong>in</strong>g.<br />
7.115 The program was designed to take approximately 12 m<strong>on</strong>ths with participants progress<strong>in</strong>g<br />
through three phases before graduat<strong>in</strong>g from <strong>the</strong> program. Participants can be sancti<strong>on</strong>ed<br />
for breach<strong>in</strong>g <strong>the</strong>ir program and rewarded for mak<strong>in</strong>g progress.<br />
7.116 Prior to <strong>the</strong> commencement of <strong>the</strong> NSW Drug Court Trial, <strong>the</strong> NSW Bureau of Crime<br />
Statistics committed to c<strong>on</strong>duct<strong>in</strong>g three evaluati<strong>on</strong> studies of <strong>the</strong> Trial. The first study<br />
provides <strong>on</strong>go<strong>in</strong>g m<strong>on</strong>itor<strong>in</strong>g of key aspects of <strong>the</strong> NSW Drug Court. The sec<strong>on</strong>d study is<br />
designed to determ<strong>in</strong>e <strong>the</strong> cost-effectiveness of <strong>the</strong> NSW Drug Court <strong>in</strong> reduc<strong>in</strong>g<br />
recidivism compared with that of <strong>the</strong> c<strong>on</strong>venti<strong>on</strong>al crim<strong>in</strong>al justice system, and will be<br />
completed <strong>in</strong> early 2002. The third study focuses <strong>on</strong> <strong>the</strong> effect of <strong>the</strong> NSW Drug Court<br />
program <strong>on</strong> participants, exam<strong>in</strong><strong>in</strong>g changes <strong>in</strong> <strong>the</strong> well-be<strong>in</strong>g of participants throughout<br />
<strong>the</strong>ir participati<strong>on</strong> <strong>on</strong> <strong>the</strong> program and assess<strong>in</strong>g <strong>the</strong>ir satisfacti<strong>on</strong> for <strong>the</strong> program. 257<br />
7.117 Through a series of <strong>in</strong>terviews before, dur<strong>in</strong>g and at <strong>the</strong> end of <strong>the</strong> program, <strong>the</strong> Bureau of<br />
Crime Statistics and Research’s prelim<strong>in</strong>ary results of its third study <strong>in</strong>dicate benefits <strong>in</strong><br />
health and social functi<strong>on</strong><strong>in</strong>g to offenders <strong>on</strong> <strong>the</strong> NSW Drug Court program and a high<br />
level of participant satisfacti<strong>on</strong> with <strong>the</strong> program. The study c<strong>on</strong>ceded certa<strong>in</strong> limitati<strong>on</strong>s of<br />
<strong>the</strong> program. The Bureau also noted that participants who were not <strong>in</strong>terviewed - because<br />
<strong>the</strong>y had term<strong>in</strong>ated or absc<strong>on</strong>ded from <strong>the</strong> program - may have had a significantly<br />
different resp<strong>on</strong>se <strong>in</strong> regard to <strong>the</strong>ir satisfacti<strong>on</strong> and health outcomes than those<br />
participants surveyed. The study also did not allow for comparis<strong>on</strong> with offenders <strong>in</strong> <strong>the</strong><br />
traditi<strong>on</strong>al crim<strong>in</strong>al justice system. However, Dr D<strong>on</strong> Wea<strong>the</strong>rburn, Director of <strong>the</strong> Bureau,<br />
stated<br />
256 Bankstown, Blacktown, Campbelltown, Liverpool, Penrith, Parramatta, Fairfield, Ryde, Burwood, Richm<strong>on</strong>d<br />
and W<strong>in</strong>dsor Local Courts and Parramatta, Penrith, Liverpool and Campbelltown District Courts.<br />
257 New South Wales Drug Court Evaluati<strong>on</strong>: Interim report <strong>on</strong> health and well-be<strong>in</strong>g of participants. (Crime and Justice<br />
Bullet<strong>in</strong>, 2001).<br />
132 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
It’s important to remember that Drug Court participants generally have large<br />
hero<strong>in</strong> habits, l<strong>on</strong>g crim<strong>in</strong>al records and a history of not resp<strong>on</strong>d<strong>in</strong>g to previous<br />
court sancti<strong>on</strong>s…It is quite unrealistic to expect all <strong>the</strong>se people suddenly to turn<br />
<strong>in</strong>to law-abid<strong>in</strong>g, healthy and resp<strong>on</strong>sible citizens. The improvements we are<br />
see<strong>in</strong>g are much better than might reas<strong>on</strong>ably have been expected <strong>in</strong> <strong>the</strong><br />
circumstances. 258<br />
7.118 The follow<strong>in</strong>g is a summary of participants <strong>in</strong> <strong>the</strong> Drug Court trials at 28 February 2001,<br />
provided to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> from <strong>the</strong> Bureau:<br />
2001 2000 1999 Total %<br />
TOTAL REFERRED TO COURT 439 403 16 858 100<br />
Pre Program 0 16 13 29 3.38<br />
On Program 57 114 2 173 20.16<br />
Term<strong>in</strong>ated 147 82 - 229 26.69<br />
Referred back 192 170 1 363 42.31<br />
Sentenced s.8 19 21 - 40 4.66<br />
Graduated 24 - - 24 2.80<br />
7.119 There is <strong>on</strong>e issue which <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> does not believe is be<strong>in</strong>g c<strong>on</strong>sidered by <strong>the</strong> Bureau<br />
of Crime Statistics and Research <strong>in</strong> its current evaluati<strong>on</strong>s, and that is <strong>the</strong> potential netwiden<strong>in</strong>g<br />
impact of <strong>the</strong> Drug Court. To participate <strong>in</strong> <strong>the</strong> Drug Court program <strong>the</strong> alleged<br />
offender is required to have pleaded guilty. Because of limited places, a ballot system is<br />
used to select participants from <strong>the</strong> much larger pool of potential participants. By <strong>the</strong>ir<br />
will<strong>in</strong>gness to participate <strong>in</strong> <strong>the</strong> program it is possible that larger numbers of offenders are<br />
be<strong>in</strong>g impris<strong>on</strong>ed than would be <strong>the</strong> case if <strong>the</strong> program was not <strong>in</strong> operati<strong>on</strong>. This is an<br />
issue which warrants fur<strong>the</strong>r research (see recommendati<strong>on</strong> below).<br />
7.120 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> is unanimous <strong>in</strong> its support for <strong>the</strong> Drug Court trial. It effectively provides<br />
participants access to both justice and to treatment. Should <strong>the</strong> evaluati<strong>on</strong>s c<strong>on</strong>t<strong>in</strong>ue to<br />
prove positive, <strong>the</strong> Drug Court program should be expanded and accessible to eligible<br />
offenders across <strong>the</strong> state. It may be a suitable approach to extend to offenders with<br />
alcohol problems as well as its current use for those with illegal drug problems (see<br />
recommendati<strong>on</strong> below).<br />
Drug Court Program: Indigenous Offenders<br />
7.121 In Chapter Four <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has reported that drug offences c<strong>on</strong>stitute 3.75% of all<br />
crim<strong>in</strong>al <strong>in</strong>cidences recorded, however anecdotal evidence to this <strong>in</strong>quiry from Aborig<strong>in</strong>al<br />
and Torres Straight Islander Legal Service staff estimate that close to 80% of all matters<br />
<strong>the</strong>y deal with <strong>in</strong>volve alcohol and/or drugs.<br />
7.122 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has been <strong>in</strong>formed that Indigenous offenders are under represented <strong>in</strong> <strong>the</strong><br />
numbers of people participat<strong>in</strong>g <strong>in</strong> two of <strong>the</strong> most recently developed <strong>in</strong>itiatives for<br />
alternatives to full time custody, home detenti<strong>on</strong> and <strong>the</strong> Drug Court. Six per cent of<br />
258 Press Release 20 February 2001.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
participants <strong>in</strong> <strong>the</strong> Drug Court identified <strong>the</strong>mselves as Aborig<strong>in</strong>al or Torres Strait<br />
Islanders. 260<br />
7.123 The Drug Court has been piloted <strong>in</strong> metropolitan Sydney and targets <strong>the</strong> use of illegal<br />
drugs, such as hero<strong>in</strong>, while <strong>the</strong> drug which features more prom<strong>in</strong>ently <strong>in</strong> offend<strong>in</strong>g by<br />
Indigenous people is alcohol. In order to make <strong>the</strong>se programs more accessible to<br />
Indigenous offenders <strong>the</strong>y may need to be supported with <strong>the</strong> provisi<strong>on</strong> of moderately<br />
supervised alternative accommodati<strong>on</strong> based <strong>in</strong> <strong>the</strong> community. The Drug Court will have<br />
to be made available <strong>in</strong> regi<strong>on</strong>al parts of <strong>the</strong> State and expanded to <strong>in</strong>clude offenders whose<br />
primary drug of abuse is alcohol.<br />
Recommendati<strong>on</strong> 25<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Bureau of Crime Statistics and Research<br />
<strong>in</strong>clude <strong>in</strong> <strong>on</strong>e of its evaluati<strong>on</strong>s of <strong>the</strong> Drug Court c<strong>on</strong>siderati<strong>on</strong> of offenders who<br />
receive sentences of custody after failure to obta<strong>in</strong> <strong>on</strong>e of <strong>the</strong> limited places <strong>on</strong> <strong>the</strong><br />
program.<br />
Recommendati<strong>on</strong> 26<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> fur<strong>the</strong>r recommends that <strong>the</strong> evaluati<strong>on</strong>s <strong>in</strong>clude c<strong>on</strong>siderati<strong>on</strong> of <strong>the</strong><br />
applicability of <strong>the</strong> Drug Court program to offenders with alcohol problems.<br />
Recommendati<strong>on</strong> 27<br />
If and when <strong>the</strong> Drug Court program <strong>in</strong>cludes those with alcohol related problems,<br />
<strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that, follow<strong>in</strong>g <strong>the</strong> Bureau of Crime Statistics and<br />
Research evaluati<strong>on</strong>s, <strong>the</strong> Government c<strong>on</strong>sider establish<strong>in</strong>g a Drug Court <strong>in</strong> a<br />
regi<strong>on</strong>al part of NSW, where <strong>the</strong>re are a significant number of <strong>in</strong>digenous people are<br />
arrested and charged.<br />
The MERIT Program<br />
7.124 The Magistrates’ Early Referral Into Treatment (MERIT) scheme is a special Magistrates’<br />
court based program that currently operates from Lismore, Nor<strong>the</strong>rn NSW. The Special<br />
M<strong>in</strong>ister of State, <strong>the</strong> H<strong>on</strong> John Della Bosca MLC recently announced that this diversi<strong>on</strong><br />
program would be extended to Orange, and <strong>on</strong> 27 March 2001 <strong>the</strong> Premier announced that<br />
a MERIT scheme will be set up <strong>in</strong> Cabramatta to operate from July 2002. 261<br />
7.125 Unlike <strong>the</strong> New South Wales Drug Court, MERIT is a voluntary, ra<strong>the</strong>r than a mandatory,<br />
treatment program. The MERIT program offers an opportunity for some defendants with<br />
drug problems to work, <strong>on</strong> a voluntary basis, towards rehabilitati<strong>on</strong> as part of <strong>the</strong> bail<br />
260 The Bureau of Crime Statistics and Research <strong>Report</strong> <strong>on</strong> <strong>the</strong> Drug Court, April 2000.<br />
261 NSWPD (Hansard) 27 March 2001.<br />
134 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
process. MERIT targets clients <strong>in</strong> <strong>the</strong> pre-plea stage. The Court makes <strong>the</strong> client’s<br />
<strong>in</strong>volvement <strong>in</strong> MERIT a c<strong>on</strong>diti<strong>on</strong> of bail.<br />
7.126 MERIT provides for referrals from police at <strong>the</strong> time of arrest, from solicitors follow<strong>in</strong>g<br />
arrest or from <strong>the</strong> Magistrate at court. To date, <strong>the</strong> majority of clients have been referred<br />
to MERIT at court. It is desirable that referrals be made earlier <strong>in</strong> <strong>the</strong> offenders progress<br />
through <strong>the</strong> system to maximise access to treatment.<br />
7.127 If identified as eligible for MERIT and <strong>the</strong> client agrees to an assessment, a drug treatment<br />
program is developed that matches <strong>the</strong> client’s needs. The program lasts for a m<strong>in</strong>imum of<br />
3 m<strong>on</strong>ths and up to 5 or 6 m<strong>on</strong>ths after which time <strong>the</strong>ir case will be heard. A client’s case<br />
may be adjourned or a plea can be made ex parte to avoid <strong>in</strong>terrupt<strong>in</strong>g rehabilitati<strong>on</strong>.<br />
7.128 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has been advised that, follow<strong>in</strong>g compliance with <strong>the</strong> program, almost all<br />
of participants have pleaded guilty and have been given n<strong>on</strong> custodial sentences. 262 A<br />
number of those <strong>in</strong> rehabilitati<strong>on</strong> as part of <strong>the</strong>ir MERIT program would probably be <strong>in</strong><br />
pris<strong>on</strong>. At <strong>the</strong> time of writ<strong>in</strong>g <strong>the</strong> MERIT program has been runn<strong>in</strong>g for almost 12<br />
m<strong>on</strong>ths. MERIT has received 126 referrals and 89 people have been assessed as suitable<br />
for <strong>the</strong> program. At this stage no <strong>on</strong>e has returned to <strong>the</strong> program follow<strong>in</strong>g a subsequent<br />
offence. The program is currently be<strong>in</strong>g <strong>in</strong>dependently evaluated.<br />
C<strong>on</strong>clusi<strong>on</strong><br />
7.129 There are many pris<strong>on</strong>ers currently <strong>in</strong> full time custody who may be more appropriately<br />
and cost-effectively supervised under alternative sentenc<strong>in</strong>g opti<strong>on</strong>s. These <strong>in</strong>clude<br />
community service orders, probati<strong>on</strong> and parole, periodic detenti<strong>on</strong>, and home detenti<strong>on</strong>,<br />
as well as diversi<strong>on</strong>ary programs such as <strong>the</strong> Drug Court and <strong>the</strong> MERIT scheme. Some of<br />
<strong>the</strong>se alternatives are currently under-utilised, while o<strong>the</strong>rs are <strong>in</strong> <strong>the</strong>ir early stages and have<br />
much promise. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes more <strong>in</strong>formati<strong>on</strong> is needed <strong>on</strong> why some opti<strong>on</strong>s<br />
are not used, why some are perceived as not effective, and whe<strong>the</strong>r new <strong>in</strong>itiatives are<br />
deserv<strong>in</strong>g of expansi<strong>on</strong>. The ga<strong>in</strong>s to <strong>the</strong> community from greater use of effective<br />
alternatives to sentences of full time custody are c<strong>on</strong>siderable, and every effort should be<br />
made to realise <strong>the</strong>se ga<strong>in</strong>s.<br />
262 Informati<strong>on</strong> provided from Mr John Scantel<strong>on</strong>, Manager MERIT.<br />
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Chapter 8<br />
Interim <strong>Report</strong> and <strong>the</strong> Government<br />
Resp<strong>on</strong>se<br />
Interim <strong>Report</strong>: issues relat<strong>in</strong>g to women<br />
8.1 In July 2000 <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> tabled its Interim <strong>Report</strong> present<strong>in</strong>g <strong>the</strong> f<strong>in</strong>d<strong>in</strong>gs of <strong>the</strong> first part<br />
of its <strong>in</strong>quiry. The reas<strong>on</strong>s for <strong>the</strong> high rate of <strong>in</strong>carcerati<strong>on</strong> of women <strong>in</strong> New South<br />
Wales correcti<strong>on</strong>al centres was <strong>the</strong> focus of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>’s report. Determ<strong>in</strong><strong>in</strong>g <strong>the</strong><br />
reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease proved a problematic and complex task, <strong>the</strong> <strong>in</strong>crease be<strong>in</strong>g an<br />
Australian and <strong>in</strong>ternati<strong>on</strong>al phenomen<strong>on</strong>.<br />
8.2 The report also c<strong>on</strong>sidered alternatives to impris<strong>on</strong>ment and <strong>the</strong> adequacy of build<strong>in</strong>g a<br />
new women’s pris<strong>on</strong> as a means for deal<strong>in</strong>g with <strong>the</strong> c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g <strong>in</strong>crease <strong>in</strong> pris<strong>on</strong><br />
numbers. It recommended resources be put <strong>in</strong>to strategies to reduce <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong> as a greater priority than build<strong>in</strong>g new correcti<strong>on</strong>al facilities. The<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommended a moratorium <strong>on</strong> <strong>the</strong> total number of pris<strong>on</strong> beds for women<br />
and a cost-benefit analysis of <strong>the</strong> new women’s facility at W<strong>in</strong>dsor. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> made a<br />
number of recommendati<strong>on</strong>s aimed at optimis<strong>in</strong>g <strong>the</strong> potential for rehabilitati<strong>on</strong> of<br />
<strong>in</strong>mates, reduc<strong>in</strong>g recidivism and for <strong>the</strong> greater use of alternative sancti<strong>on</strong>s to reduce <strong>the</strong><br />
number of offenders sentenced to impris<strong>on</strong>ment, particularly those c<strong>on</strong>victed of less<br />
serious crimes.<br />
8.3 While <strong>the</strong> Interim <strong>Report</strong> focussed <strong>on</strong> women pris<strong>on</strong>ers, many of its recommendati<strong>on</strong>s are<br />
applicable to <strong>the</strong> entire pris<strong>on</strong> populati<strong>on</strong>. The full recommendati<strong>on</strong>s, with <strong>the</strong><br />
accompany<strong>in</strong>g Government Resp<strong>on</strong>se, are reproduced <strong>in</strong> full <strong>in</strong> <strong>the</strong> next secti<strong>on</strong>.<br />
Government Resp<strong>on</strong>se to <strong>the</strong> Interim <strong>Report</strong> of <strong>the</strong> <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong><br />
<strong>the</strong> <strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong> Populati<strong>on</strong> Interim <strong>Report</strong> <strong>on</strong> Issues Relat<strong>in</strong>g to<br />
Women<br />
Chapter 3<br />
The Statistics<br />
3.74 Recommendati<strong>on</strong>: That <strong>the</strong> NSW Government c<strong>on</strong>t<strong>in</strong>ue to develop, support and evaluate<br />
programs and services that have as <strong>the</strong>ir focus crime preventi<strong>on</strong> through early <strong>in</strong>terventi<strong>on</strong>. As <strong>on</strong>e<br />
means of achiev<strong>in</strong>g this, <strong>the</strong> Premier should ensure that <strong>the</strong> recommendati<strong>on</strong>s of <strong>the</strong> Stand<strong>in</strong>g<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, first report <strong>in</strong>to Crime Preventi<strong>on</strong> through Social Support, are<br />
implemented as so<strong>on</strong> as possible.<br />
3.74 Resp<strong>on</strong>se: The Government accepts that <strong>the</strong> two issues of crime preventi<strong>on</strong> through early <strong>in</strong>terventi<strong>on</strong><br />
and <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> ris<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> are <strong>in</strong>tr<strong>in</strong>sically l<strong>in</strong>ked. This is why <strong>the</strong> Government<br />
orig<strong>in</strong>ally proposed that <strong>the</strong> Inquiry <strong>in</strong>to ris<strong>in</strong>g impris<strong>on</strong>ment should be undertaken by <strong>the</strong> same<br />
committee - <strong>the</strong> Stand<strong>in</strong>g <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> Law and Justice, which has taken a bipartisan approach<br />
to its research and had <strong>in</strong> fact already heard c<strong>on</strong>siderable evidence <strong>on</strong> <strong>the</strong> subject.<br />
136 F<strong>in</strong>al <strong>Report</strong> - November 2001
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Chapter 4<br />
Factors C<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>Increase</strong> <strong>in</strong> <strong>the</strong> Female Pris<strong>on</strong>er Populati<strong>on</strong><br />
4.16 Recommendati<strong>on</strong>: That, given <strong>the</strong> c<strong>on</strong>necti<strong>on</strong> between drug addicti<strong>on</strong> and crime, <strong>the</strong><br />
Government c<strong>on</strong>t<strong>in</strong>ue to promote <strong>the</strong> preventi<strong>on</strong> of drug abuse through targeted strategies such as<br />
those recommended by <strong>the</strong> Drug Summit.<br />
4.16 Resp<strong>on</strong>se: The Drug Summit produced a wide-rang<strong>in</strong>g series of recommendati<strong>on</strong>s which <strong>the</strong><br />
Government is committed to implement<strong>in</strong>g. About 90% of women offenders are <strong>in</strong> pris<strong>on</strong> because of drug<br />
or alcohol related crime and it is obviously <strong>in</strong> <strong>the</strong> best <strong>in</strong>terests of <strong>the</strong> whole community to explore every<br />
means of prevent<strong>in</strong>g drug abuse and <strong>the</strong> crime it fuels.<br />
4.23 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney-General <strong>in</strong>struct <strong>the</strong> NSW Bureau of Crime Statistics and<br />
Research to undertake research <strong>in</strong>to <strong>the</strong> patterns of offend<strong>in</strong>g of women, particularly <strong>in</strong> relati<strong>on</strong> to<br />
violent offence charges. That research should <strong>in</strong>vestigate <strong>the</strong> rate at which women are <strong>the</strong> pr<strong>in</strong>cipal<br />
or sec<strong>on</strong>dary offenders <strong>in</strong> crimes of violence.<br />
4.23 Resp<strong>on</strong>se: Both <strong>the</strong> Judicial Commissi<strong>on</strong> and <strong>the</strong> Bureau of Crime Statistics and Research have recently<br />
produced reports that c<strong>on</strong>sider <strong>the</strong> issue of women offenders and factors c<strong>on</strong>tribut<strong>in</strong>g to <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>the</strong><br />
number of women <strong>in</strong> pris<strong>on</strong>.<br />
Both agencies make it clear that <strong>the</strong>re are many reas<strong>on</strong>s for this <strong>in</strong>crease - <strong>the</strong> types of offences women are<br />
committ<strong>in</strong>g, a growth <strong>in</strong> bail refusal rates, changed polic<strong>in</strong>g practices and <strong>the</strong> <strong>in</strong>creased <strong>in</strong>cidence of courts<br />
impos<strong>in</strong>g custodial sentences.<br />
The courts, naturally, take <strong>in</strong>to account a woman's role <strong>in</strong> a crime - for <strong>in</strong>stance whe<strong>the</strong>r she is driv<strong>in</strong>g <strong>the</strong><br />
car or <strong>in</strong>side robb<strong>in</strong>g <strong>the</strong> bank - when determ<strong>in</strong><strong>in</strong>g appropriate sentences.<br />
4.61 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services review <strong>the</strong> Periodic Detenti<strong>on</strong> of<br />
Pris<strong>on</strong>ers (Amendment) Act with a view to enabl<strong>in</strong>g pers<strong>on</strong>s who have had a periodic detenti<strong>on</strong><br />
order revoked to apply to have <strong>the</strong> revocati<strong>on</strong> suspended pend<strong>in</strong>g review by <strong>the</strong> Parole Board.<br />
4.61 Resp<strong>on</strong>se: The adm<strong>in</strong>istrati<strong>on</strong> of periodic detenti<strong>on</strong> orders is governed by <strong>the</strong> Crimes (Adm<strong>in</strong>istrati<strong>on</strong> of<br />
Sentences) Act 1999. An appeal mechanism already exists <strong>in</strong> <strong>the</strong> revocati<strong>on</strong> process.<br />
4.88 Recommendati<strong>on</strong>: That, as a matter of urgency, <strong>the</strong> Attorney-General direct <strong>the</strong> Judicial<br />
Commissi<strong>on</strong> to provide <strong>on</strong>go<strong>in</strong>g educati<strong>on</strong> and tra<strong>in</strong><strong>in</strong>g to judicial officers about <strong>the</strong> locati<strong>on</strong>,<br />
purpose and process of entry <strong>in</strong>to <strong>the</strong> Department of Corrective Services' Mo<strong>the</strong>r's and Children's<br />
program. That educati<strong>on</strong> should emphasise that irrespective of <strong>the</strong> existence of <strong>the</strong> program, a<br />
woman with dependent children and a woman who is pregnant, should <strong>on</strong>ly ever be impris<strong>on</strong>ed as<br />
a matter of last resort.<br />
4.88 Resp<strong>on</strong>se: The Mo<strong>the</strong>rs and Children's program is an <strong>in</strong>itiative of this Government which has<br />
dem<strong>on</strong>strably benefited female <strong>in</strong>mates. The judiciary is well aware of its existence and while it is not <strong>the</strong><br />
role of <strong>the</strong> Attorney-General to direct <strong>the</strong> Judicial Commissi<strong>on</strong> to take any acti<strong>on</strong>, <strong>the</strong> Attorney-General has<br />
advised that he will be pleased to aga<strong>in</strong> draw <strong>the</strong> judiciary's attenti<strong>on</strong> to <strong>the</strong> program.<br />
This Government is committed to <strong>the</strong> pr<strong>in</strong>ciple that impris<strong>on</strong>ment should be <strong>the</strong> sancti<strong>on</strong> of last resort.<br />
That is why we have overseen an expansi<strong>on</strong> of <strong>the</strong> range and availability of alternatives to full-time custody.<br />
However, it would be naive to believe that no woman should be sent to pris<strong>on</strong> simply because she is a<br />
mo<strong>the</strong>r or pregnant. The courts will always determ<strong>in</strong>e that some crimes are serious enough to demand a<br />
pris<strong>on</strong> sentence, particularly if <strong>the</strong> offender has a l<strong>on</strong>g record. The courts assess each case <strong>on</strong> its merits.<br />
4.94 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney-General direct <strong>the</strong> Judicial Commissi<strong>on</strong> to provide<br />
appropriate <strong>on</strong>go<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g to judicial offices about <strong>the</strong> range and purpose of n<strong>on</strong>-custodial<br />
sentenc<strong>in</strong>g opti<strong>on</strong>s available <strong>in</strong> NSW. Such tra<strong>in</strong><strong>in</strong>g should be undertaken ASAP to ensure that S5<br />
of <strong>the</strong> Crimes (Sentenc<strong>in</strong>g Procedure) Act 1999, which requires that impris<strong>on</strong>ment <strong>on</strong>ly be imposed<br />
after c<strong>on</strong>siderati<strong>on</strong> of all possible alternatives, is properly implemented. The Judicial Commissi<strong>on</strong><br />
should also liaise with <strong>the</strong> Dept <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> delivery of <strong>the</strong> tra<strong>in</strong><strong>in</strong>g.<br />
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4.94 Resp<strong>on</strong>se: The Judiciary has been made well aware of <strong>the</strong> range of n<strong>on</strong>-custodial sentenc<strong>in</strong>g opti<strong>on</strong>s<br />
available <strong>in</strong> this State; from Community Service Orders and probati<strong>on</strong> to home detenti<strong>on</strong> and periodic<br />
detenti<strong>on</strong>.<br />
The Act already requires <strong>the</strong> judiciary to give reas<strong>on</strong>s when sentenc<strong>in</strong>g an offender to a gaol term of six<br />
m<strong>on</strong>ths or less ra<strong>the</strong>r than an alternative n<strong>on</strong>-custodial sentence. The Department of Corrective Services is<br />
happy to facilitate any extra <strong>in</strong>formati<strong>on</strong> <strong>the</strong>y might be <strong>in</strong>terested to receive about <strong>the</strong> Department's<br />
extensive services <strong>in</strong> ensur<strong>in</strong>g <strong>the</strong>se schemes are rigorously m<strong>on</strong>itored.<br />
Chapter 5<br />
Impris<strong>on</strong>ment<br />
5.52 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services implement <strong>the</strong> revised model of<br />
case management based <strong>on</strong> <strong>the</strong> report of <strong>the</strong> Independent Commissi<strong>on</strong> Aga<strong>in</strong>st Corrupti<strong>on</strong>, Case<br />
Management <strong>in</strong> NSW Correcti<strong>on</strong>al Centres, as a matter of urgency.<br />
Resp<strong>on</strong>se: Case management was re<strong>in</strong>vigorated <strong>in</strong> 1999 follow<strong>in</strong>g <strong>the</strong> ICAC report and <strong>the</strong> Department of<br />
Corrective Services has dem<strong>on</strong>strated its commitment to this important <strong>in</strong>mate management tool. In a<br />
program that commenced late <strong>in</strong> 1999, <strong>the</strong> Senior Assistant Commissi<strong>on</strong>er and Assistant Commissi<strong>on</strong>er<br />
Inmate Services have pers<strong>on</strong>ally addressed staff at <strong>the</strong> majority of correcti<strong>on</strong>al centres, <strong>in</strong>clud<strong>in</strong>g Mulawa<br />
and Emu Pla<strong>in</strong>s, to re<strong>in</strong>force Departmental expectati<strong>on</strong>s with regard to case management. The dedicated<br />
Case Management Implementati<strong>on</strong> Team will build <strong>on</strong> this by work<strong>in</strong>g closely with each centre's local<br />
management.<br />
5.53 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that each new <strong>in</strong>mate is<br />
assessed with a case management plan that addresses any issues that are likely to impact <strong>on</strong> <strong>the</strong><br />
likelihood of <strong>the</strong> <strong>in</strong>mate re-offend<strong>in</strong>g up<strong>on</strong> release from pris<strong>on</strong>.<br />
5.53 Resp<strong>on</strong>se: The object of case management is to assist sentenced <strong>in</strong>mates complete programs and<br />
attend services that address <strong>the</strong>ir offend<strong>in</strong>g behaviour and reduce <strong>the</strong> risk of re-offend<strong>in</strong>g up<strong>on</strong> release. As<br />
part of <strong>the</strong> case management process, newly sentenced <strong>in</strong>mates participate with case management teams to<br />
prepare <strong>the</strong>ir case plans.<br />
5.79 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services, toge<strong>the</strong>r with <strong>the</strong><br />
M<strong>in</strong>ister for Health, use some of <strong>the</strong> resources earmarked for <strong>the</strong> expansi<strong>on</strong> of <strong>the</strong> detoxificati<strong>on</strong><br />
unit at Mulawa, to <strong>in</strong>crease <strong>the</strong> bed capacity of that unit to a more realistic level that is<br />
commensurate with <strong>the</strong> needs of <strong>the</strong> <strong>in</strong>mates.<br />
5.79 Resp<strong>on</strong>se: The needs of <strong>the</strong> treatment populati<strong>on</strong> with<strong>in</strong> Correcti<strong>on</strong>s is c<strong>on</strong>t<strong>in</strong>uously m<strong>on</strong>itored. Any<br />
expansi<strong>on</strong> of this unit would <strong>on</strong>ly occur <strong>on</strong>ce an exam<strong>in</strong>ati<strong>on</strong> and assessment of <strong>the</strong> numbers us<strong>in</strong>g <strong>the</strong> unit<br />
was completed.<br />
5.80 Recommendati<strong>on</strong>: That, as a matter of urgency, <strong>the</strong> M<strong>in</strong>ister for Corrective<br />
Services employ at least 2 additi<strong>on</strong>al full-time,' drug and alcohol counsellors at Mulawa<br />
Correcti<strong>on</strong>al Centre. At least <strong>on</strong>e of those positi<strong>on</strong>s should be a designated <strong>in</strong>digenous positi<strong>on</strong>.<br />
5.80 Resp<strong>on</strong>se: There are presently 4 psychologists, 3 welfare workers, 2.5 alcohol and o<strong>the</strong>r drug workers, a<br />
P/T health educator, 2 chapla<strong>in</strong>s, a senior educati<strong>on</strong> officer, 2 educati<strong>on</strong> officers and 2 official visitors at<br />
Mulawa Correcti<strong>on</strong>al centre. The establishment provides for 1 Aborig<strong>in</strong>al alcohol and o<strong>the</strong>r drug worker<br />
and 1 Aborig<strong>in</strong>al welfare officer. A Regi<strong>on</strong>al Aborig<strong>in</strong>al Project Officer also services <strong>the</strong> centre.<br />
Obviously staff<strong>in</strong>g levels are c<strong>on</strong>stantly be<strong>in</strong>g m<strong>on</strong>itored and adjusted where appropriate across <strong>the</strong> whole<br />
system.<br />
5.81 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services establish a designated drug free<br />
w<strong>in</strong>g at Mulawa Correcti<strong>on</strong>al Centre as so<strong>on</strong> as possible.<br />
138 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
5.81 Resp<strong>on</strong>se: Drug free w<strong>in</strong>gs have been established <strong>in</strong> a number of correcti<strong>on</strong>al centres. A drug free w<strong>in</strong>g<br />
was runn<strong>in</strong>g effectively at Mulawa until <strong>the</strong> present overcrowd<strong>in</strong>g forced <strong>the</strong> aband<strong>on</strong>ment of <strong>the</strong> program.<br />
Once more beds are available, programs such as this can be resumed.<br />
5.82 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure women <strong>in</strong>mates are given<br />
priority accord<strong>in</strong>g to need <strong>in</strong> allocati<strong>on</strong> of fund<strong>in</strong>g for drug and alcohol services and programs,<br />
<strong>in</strong>clud<strong>in</strong>g any treatment trials.<br />
5.82 Resp<strong>on</strong>se: It is not appropriate that women <strong>in</strong>mates should be given absolute priority for resources<br />
over o<strong>the</strong>r high need groups, such as young offenders, Aborig<strong>in</strong>al <strong>in</strong>mates and <strong>in</strong>tellectually disabled<br />
<strong>in</strong>mates. The Department needs to prioritise fund<strong>in</strong>g to target <strong>the</strong> needs of all <strong>in</strong>mates and not <strong>on</strong>ly apply<br />
resources <strong>on</strong> a gender basis.<br />
5.95 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that <strong>the</strong>re is parity of<br />
wages between <strong>in</strong>mates undertak<strong>in</strong>g full time work and those undertak<strong>in</strong>g full time study.<br />
5.95 Resp<strong>on</strong>se: In <strong>the</strong> community, full time students do not receive <strong>the</strong> same salary as a full time employee.<br />
The gaol system operates under <strong>the</strong> same pr<strong>in</strong>ciple. Inmates are however, encouraged to participate <strong>in</strong> work<br />
and any accompany<strong>in</strong>g vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g. In some cases, <strong>the</strong> <strong>in</strong>still<strong>in</strong>g of a work ethic and learn<strong>in</strong>g <strong>the</strong><br />
discipl<strong>in</strong>e to manage a work<strong>in</strong>g day is <strong>the</strong> most important skill that can be taught. NSW has <strong>the</strong> highest rate<br />
of <strong>in</strong>mate participati<strong>on</strong> <strong>in</strong> sec<strong>on</strong>dary educati<strong>on</strong> Australia wide.<br />
5.96 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister ensure that women have <strong>the</strong> same choice and access to<br />
programs as male <strong>in</strong>mates.<br />
5.96 Resp<strong>on</strong>se: It has <strong>in</strong> <strong>the</strong> past been harder to provide a wide range of choices for women <strong>in</strong>mates given<br />
that <strong>the</strong>y represent <strong>on</strong>ly 5% of <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. However, substantial progress has been made. It is<br />
<strong>the</strong> underly<strong>in</strong>g philosophy beh<strong>in</strong>d <strong>the</strong> design of <strong>the</strong> new pris<strong>on</strong> that programs can be provided for women<br />
<strong>in</strong> such an envir<strong>on</strong>ment much more readily than <strong>the</strong>y can at Mulawa.<br />
5.97 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services’ create two additi<strong>on</strong>al teach<strong>in</strong>g<br />
positi<strong>on</strong>s at Mulawa.<br />
5.97 Resp<strong>on</strong>se: Educati<strong>on</strong>al staff<strong>in</strong>g is regularly reviewed <strong>in</strong> light of <strong>in</strong>mate numbers.<br />
5.111 Recommendati<strong>on</strong>: That, <strong>in</strong> recogniti<strong>on</strong> of <strong>the</strong> great needs of women who enter <strong>the</strong> pris<strong>on</strong><br />
system with a psychiatric illness, <strong>the</strong> M<strong>in</strong>ister for Health expand <strong>the</strong> number of forensic beds that<br />
are allocated to women <strong>in</strong>mates outside correcti<strong>on</strong>al centres as a matter of urgency.<br />
5.111 Resp<strong>on</strong>se: This is a matter that is c<strong>on</strong>stantly m<strong>on</strong>itored.<br />
5.120 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that telehealth<br />
c<strong>on</strong>ferenc<strong>in</strong>g is used <strong>in</strong> all appropriate cases <strong>in</strong> correcti<strong>on</strong>al centres when access to a specialist<br />
health professi<strong>on</strong>al is not readily available.<br />
5.120 Resp<strong>on</strong>se: Telehealth c<strong>on</strong>ferenc<strong>in</strong>g is a resource that is available with<strong>in</strong> <strong>the</strong> correcti<strong>on</strong>al system.<br />
Access to and demand for <strong>the</strong>se facilities is c<strong>on</strong>t<strong>in</strong>uously m<strong>on</strong>itored.<br />
5.127 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Health and <strong>the</strong> M<strong>in</strong>ister for Corrective Services<br />
undertake a review of <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s of <strong>the</strong> Mum Shirl Unit with a view to improv<strong>in</strong>g <strong>the</strong> quality of<br />
<strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s for women who are admitted <strong>the</strong>re.<br />
5.127 Resp<strong>on</strong>se: The Mum Shirl Unit was opened <strong>in</strong> 1997 and accommodates <strong>in</strong>mates with identified<br />
mental health and behavioural issues. The Unit provides a safe envir<strong>on</strong>ment for <strong>in</strong>mates display<strong>in</strong>g<br />
disturbed behaviour. The Unit requires high supervisi<strong>on</strong> levels and provides a carefully c<strong>on</strong>trolled<br />
envir<strong>on</strong>ment for vulnerable <strong>in</strong>mates. It has had a positive impact <strong>on</strong> <strong>the</strong> self-harm rates of <strong>in</strong>mates resid<strong>in</strong>g<br />
<strong>the</strong>re. The unit represents a massive improvement <strong>on</strong> c<strong>on</strong>diti<strong>on</strong>s at <strong>the</strong> Rose Scott unit which previously<br />
housed such <strong>in</strong>mates.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 139
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
However <strong>the</strong> M<strong>in</strong>ister for Health and <strong>the</strong> M<strong>in</strong>ister for Corrective Services have agreed that a review should<br />
be undertaken with<strong>in</strong> <strong>the</strong> next twelve m<strong>on</strong>ths.<br />
5.165 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that Aborig<strong>in</strong>al women<br />
are participat<strong>in</strong>g <strong>in</strong> <strong>the</strong> Mo<strong>the</strong>r and Children's program at least at a proporti<strong>on</strong>ate rate.<br />
5.165 Resp<strong>on</strong>se: Indigenous women have applied for, and been granted, placement <strong>on</strong> <strong>the</strong> full time<br />
residence program (Jacaranda) s<strong>in</strong>ce <strong>the</strong> program commenced <strong>in</strong> 1997. These applicati<strong>on</strong>s are encouraged<br />
but it should be remembered that some <strong>in</strong>digenous women prefer <strong>the</strong>ir children to rema<strong>in</strong> with <strong>the</strong>ir<br />
extended families ra<strong>the</strong>r than br<strong>in</strong>g <strong>the</strong>m <strong>in</strong>to custody.<br />
Each <strong>in</strong>mate is assessed case by case, and <strong>in</strong> c<strong>on</strong>sultati<strong>on</strong> with <strong>the</strong> Department of Community Services.<br />
Obviously, where <strong>the</strong>re is a record of past violence or abuse <strong>the</strong>n nei<strong>the</strong>r my Department nor DOCs is<br />
likely to agree to <strong>the</strong> child com<strong>in</strong>g <strong>in</strong>to <strong>the</strong> pris<strong>on</strong>.<br />
Indigenous women have also applied for, and been granted release under secti<strong>on</strong> 29 (2) (c) (now secti<strong>on</strong> 26).<br />
5.168 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services f<strong>in</strong>d means whereby women <strong>in</strong><br />
custody who are <strong>on</strong> remand can access <strong>the</strong> Mo<strong>the</strong>rs and Children's Program.<br />
5.168 Resp<strong>on</strong>se: Remand pris<strong>on</strong>ers are housed <strong>in</strong> maximum security c<strong>on</strong>diti<strong>on</strong>s. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> heard<br />
evidence about how volatile and unstable some women <strong>on</strong> remand can be. While <strong>the</strong> value and importance<br />
of <strong>the</strong> Mo<strong>the</strong>rs and Children's Program is accepted, <strong>the</strong> needs of <strong>the</strong> child must be paramount. A maximum<br />
security sett<strong>in</strong>g is not a suitable <strong>on</strong>e for a child. However, should a mo<strong>the</strong>r be <strong>on</strong> remand for a l<strong>on</strong>g period<br />
of time due to <strong>the</strong> nature of her offence, departmental staff may explore opti<strong>on</strong>s for reunit<strong>in</strong>g her with her<br />
children whilst <strong>in</strong> custody.<br />
5.170: Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services expand <strong>the</strong> fulltime and<br />
occasi<strong>on</strong>al residential program to <strong>the</strong> rural correcti<strong>on</strong>al centres for women.<br />
5.170 Resp<strong>on</strong>se: The demand may not be <strong>the</strong>re for this excellent program to be offered at rural correcti<strong>on</strong>al<br />
centres. A small number of women are housed at Broken Hill Correcti<strong>on</strong>al Centre and also at Graft<strong>on</strong>.<br />
However, <strong>the</strong> Department will <strong>in</strong>vestigate whe<strong>the</strong>r it is feasible to expand <strong>the</strong> program.<br />
5.177 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop services for women <strong>in</strong><br />
rural and regi<strong>on</strong>al areas similar to that offered by <strong>the</strong> Parramatta Transiti<strong>on</strong>al Centre. The purpose<br />
of <strong>the</strong>se services is to enable more women <strong>in</strong> rural areas to access <strong>the</strong> opti<strong>on</strong> of c<strong>on</strong>diti<strong>on</strong>al release<br />
near to <strong>the</strong>ir communities.<br />
5.177 Resp<strong>on</strong>se: Aga<strong>in</strong>, <strong>the</strong>re may not be sufficient demand at any given centre, at any given time, to<br />
warrant <strong>the</strong> establishment of <strong>the</strong>se services regi<strong>on</strong>ally. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was understandably very impressed<br />
with <strong>the</strong> Parramatta Transiti<strong>on</strong>al Centre and plann<strong>in</strong>g is very advanced for ano<strong>the</strong>r Transiti<strong>on</strong>al Centre for<br />
women with a drug and alcohol history.<br />
5.178 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that any Transiti<strong>on</strong>al<br />
Centre or similar service be physically and adm<strong>in</strong>istratively separate from a pris<strong>on</strong> facility.<br />
5.178 Resp<strong>on</strong>se: This recommendati<strong>on</strong> is a little puzzl<strong>in</strong>g s<strong>in</strong>ce <strong>the</strong> committee "commended" <strong>the</strong><br />
Department for <strong>the</strong> success of <strong>the</strong> Transiti<strong>on</strong>al Centre at Parramatta which is located across <strong>the</strong> road from<br />
Parramatta Correcti<strong>on</strong>al Centre. Proximity to <strong>the</strong> gaol does not appear to have adversely affected its<br />
operati<strong>on</strong>. When <strong>the</strong> Transiti<strong>on</strong>al Centre was go<strong>in</strong>g to be sited at Glebe, however, <strong>the</strong> community outcry<br />
was substantial and susta<strong>in</strong>ed.<br />
Chapter 6<br />
Community Based Correcti<strong>on</strong>s<br />
6.49 Recommendati<strong>on</strong>: That <strong>the</strong> Government fund two bail hostels <strong>in</strong> New South Wales for<br />
women. One of those hostels should be specifically for <strong>in</strong>digenous women. No more than 10 adult<br />
residents should be accommodated <strong>in</strong> each bail hostel.<br />
140 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
6.49 Resp<strong>on</strong>se: Both <strong>the</strong> Department of Corrective Services and BOCSAR will c<strong>on</strong>t<strong>in</strong>ue to research opti<strong>on</strong>s<br />
such as bail hostels/accommodati<strong>on</strong>, however, <strong>the</strong> evidence obta<strong>in</strong>ed to date is not encourag<strong>in</strong>g.<br />
The idea of bail hostels is not a new <strong>on</strong>e. Bail hostels present <strong>the</strong> possible problem of netwiden<strong>in</strong>g, whereby<br />
offenders who would have ord<strong>in</strong>arily be granted bail are placed <strong>in</strong> a bail hostel with its accompany<strong>in</strong>g<br />
restricti<strong>on</strong>s <strong>on</strong> <strong>the</strong>ir liberty. Western Australia has closed <strong>the</strong>ir bail hostel because <strong>the</strong>y found that <strong>the</strong><br />
demand was just not <strong>the</strong>re. The UK experience over <strong>the</strong> last decade has seen unprecedented <strong>in</strong>creases <strong>in</strong> <strong>the</strong><br />
pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> spite of a network of bail hostels and <strong>in</strong>tensive probati<strong>on</strong> hostels.<br />
6.51 Recommendati<strong>on</strong>: That liais<strong>on</strong> between relevant Departments and community agencies be<br />
established so that <strong>the</strong> residents of <strong>the</strong> bail hostels have access to appropriate services and<br />
treatment where needed. The hostels should be adequately resourced, have specialised staff and be<br />
equipped to accommodate dependent children of <strong>the</strong> residents.<br />
6.51 Resp<strong>on</strong>se: See above.<br />
6.52 Recommendati<strong>on</strong>: That <strong>the</strong> Government establish an Interdepartmental <str<strong>on</strong>g>Committee</str<strong>on</strong>g> which<br />
<strong>in</strong>cludes representati<strong>on</strong> from relevant community agencies to oversee <strong>the</strong> operati<strong>on</strong> of <strong>the</strong> bail<br />
hostels.<br />
6.52 Resp<strong>on</strong>se: See above.<br />
6.53 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney General provide appropriate and <strong>on</strong>go<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g to<br />
judicial officers about <strong>the</strong> women's bail hostels. Appropriate and strict guidel<strong>in</strong>es should be<br />
developed which emphasise that remand to a bail hostel is <strong>the</strong> last resort before remand <strong>in</strong> custody.<br />
6.53 Resp<strong>on</strong>se: See above.<br />
6.76 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services and <strong>the</strong> M<strong>in</strong>ister for Hous<strong>in</strong>g<br />
establish 3 probati<strong>on</strong> hostels <strong>in</strong> NSW for women. One of <strong>the</strong>se hostels should be specifically for<br />
<strong>in</strong>digenous women. The hostels should provide <strong>in</strong>tensive and appropriate supervisi<strong>on</strong> to women<br />
serv<strong>in</strong>g <strong>the</strong>ir sentence <strong>the</strong>re.<br />
6.76 Resp<strong>on</strong>se: Currently <strong>the</strong> Magistracy and Judiciary have a variety of opti<strong>on</strong>s to impos<strong>in</strong>g a full-time<br />
custodial sentence. No o<strong>the</strong>r jurisdicti<strong>on</strong> <strong>in</strong> Australia offers <strong>the</strong> range available <strong>in</strong> New South Wales.<br />
Alternatives range from a f<strong>in</strong>e, a b<strong>on</strong>d, with or without probati<strong>on</strong> supervisi<strong>on</strong>, Community Service Orders,<br />
Periodic Detenti<strong>on</strong>, Home Detenti<strong>on</strong> and more recently, suspended sentences. Additi<strong>on</strong>ally, <strong>the</strong> Drug<br />
Court trial is c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g at Parramatta. Sentenc<strong>in</strong>g bodies are faced with all of <strong>the</strong>se choices and <strong>the</strong><br />
community based sentences supervised by <strong>the</strong> Probati<strong>on</strong> and Parole Service are c<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g to grow. Well<br />
over 16,000 offenders are supervised <strong>in</strong> <strong>the</strong> community by <strong>the</strong> Service.<br />
Ra<strong>the</strong>r than <strong>in</strong>troduce yet ano<strong>the</strong>r sentenc<strong>in</strong>g alternative, time and resources are letter spent <strong>on</strong><br />
c<strong>on</strong>solidat<strong>in</strong>g <strong>the</strong> substantial number of exist<strong>in</strong>g programs. There is certa<strong>in</strong>ly <strong>in</strong>sufficient evidence to justify<br />
sett<strong>in</strong>g up probati<strong>on</strong> hostels immediately. Still less is <strong>the</strong>re justificati<strong>on</strong> for sett<strong>in</strong>g up such facilities for<br />
women <strong>on</strong>ly.<br />
6.77 Recommendati<strong>on</strong>: The probati<strong>on</strong> hostels shall be subject to a pilot period of 2 years after<br />
which time <strong>the</strong> Department of Corrective Services will fund <strong>in</strong>dependent research to evaluate <strong>the</strong>ir<br />
effectiveness. Issues to be c<strong>on</strong>sidered <strong>in</strong> <strong>the</strong> evaluati<strong>on</strong> should <strong>in</strong>clude netwiden<strong>in</strong>g and referral to<br />
<strong>the</strong> hostels by <strong>the</strong> judiciary, <strong>the</strong> resp<strong>on</strong>se of <strong>the</strong> residents to <strong>the</strong> services provided by <strong>the</strong> probati<strong>on</strong><br />
hostel and <strong>the</strong> effect <strong>on</strong> <strong>the</strong> women's pris<strong>on</strong> populati<strong>on</strong>.<br />
Resp<strong>on</strong>se: See above<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 141
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
6.77 Recommendati<strong>on</strong>: Liais<strong>on</strong> with relevant Departments and community agencies should be<br />
established so that residents of <strong>the</strong> probati<strong>on</strong> hostels have access to appropriate services and<br />
treatment where needed.<br />
6.77 Resp<strong>on</strong>se: See above<br />
6.78 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney General <strong>in</strong>struct <strong>the</strong> Judicial Commissi<strong>on</strong> to provide<br />
appropriate and <strong>on</strong>go<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g to judicial officers about probati<strong>on</strong> hostels.<br />
6.78 Resp<strong>on</strong>se: See above.<br />
6.95 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney General direct <strong>the</strong> Judicial Commissi<strong>on</strong> to undertake<br />
urgent research <strong>in</strong>to <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong> decrease <strong>in</strong>to periodic detenti<strong>on</strong> am<strong>on</strong>g women.<br />
6.95 Resp<strong>on</strong>se: S<strong>in</strong>ce 1995 <strong>the</strong>re has been an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of locati<strong>on</strong>s offer<strong>in</strong>g periodic detenti<strong>on</strong><br />
for women. The Department of Corrective Services would welcome any research which would encourage<br />
an <strong>in</strong>crease <strong>in</strong> <strong>the</strong> number of women be<strong>in</strong>g placed <strong>on</strong> periodic detenti<strong>on</strong>.<br />
6.96 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services <strong>in</strong>vestigate <strong>the</strong> reas<strong>on</strong>s for <strong>the</strong><br />
<strong>in</strong>crease <strong>in</strong> <strong>the</strong> cancellati<strong>on</strong> of periodic detenti<strong>on</strong> orders, particularly am<strong>on</strong>g women, and develop<br />
measures to address this issue.<br />
6.96 Resp<strong>on</strong>se: The reas<strong>on</strong>s for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> revocati<strong>on</strong>s is clear. The tighten<strong>in</strong>g up of <strong>the</strong> program is<br />
resp<strong>on</strong>sible for <strong>the</strong> <strong>in</strong>crease <strong>in</strong> revocati<strong>on</strong>s and aga<strong>in</strong> this tighten<strong>in</strong>g up was <strong>in</strong>evitable to ma<strong>in</strong>ta<strong>in</strong> <strong>the</strong><br />
<strong>in</strong>tegrity of periodic detenti<strong>on</strong>. The Department is however work<strong>in</strong>g <strong>on</strong> ways to improve <strong>the</strong> compliance<br />
rate but it must be remembered that periodic detenti<strong>on</strong> is a rigorous program which requires pers<strong>on</strong>al<br />
discipl<strong>in</strong>e to complete successfully. Unfortunately, not all deta<strong>in</strong>ees are able to display <strong>the</strong> necessary<br />
discipl<strong>in</strong>e. If deta<strong>in</strong>ees comply with <strong>the</strong>ir obligati<strong>on</strong>s and attend, <strong>the</strong>n obviously revocati<strong>on</strong> will not occur.<br />
6.97 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services c<strong>on</strong>sider <strong>the</strong> opti<strong>on</strong> of women<br />
offenders serv<strong>in</strong>g <strong>the</strong>ir periodic detenti<strong>on</strong> order <strong>in</strong> a rehabilitati<strong>on</strong> or o<strong>the</strong>r suitable facility.<br />
6.97 Resp<strong>on</strong>se: There is already a similar opti<strong>on</strong> available which, appropriately, rests with <strong>the</strong> sentenc<strong>in</strong>g<br />
judge or magistrate. A sentenc<strong>in</strong>g Court can, where it is c<strong>on</strong>sidered appropriate, release an offender to be of<br />
good behaviour and set certa<strong>in</strong> c<strong>on</strong>diti<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g residential c<strong>on</strong>diti<strong>on</strong>s.<br />
6.111 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services expedite <strong>the</strong> expansi<strong>on</strong> of <strong>the</strong><br />
Home Detenti<strong>on</strong> Scheme to ensure that <strong>the</strong> program is available as an alternative to full-time<br />
impris<strong>on</strong>ment to more offenders <strong>in</strong> New South Wales.<br />
6.111 Resp<strong>on</strong>se: Home Detenti<strong>on</strong> was <strong>in</strong>troduced by this Government <strong>in</strong> February 1997 and is currently<br />
available <strong>in</strong> <strong>the</strong> Sydney Metropolitan area, <strong>the</strong> Hunter and Woll<strong>on</strong>g<strong>on</strong>g regi<strong>on</strong>s. The Department of<br />
Corrective Services is committed to <strong>the</strong> expansi<strong>on</strong> of <strong>the</strong> Home Detenti<strong>on</strong> program to additi<strong>on</strong>al centres<br />
and is currently <strong>in</strong>vestigat<strong>in</strong>g appropriate centres and fund<strong>in</strong>g sources.<br />
6.112 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop strategies to enable<br />
women who are homeless and who would o<strong>the</strong>rwise be sentenced to pris<strong>on</strong> for an offence to access<br />
<strong>the</strong> Home Detenti<strong>on</strong> Scheme.<br />
6.112 Resp<strong>on</strong>se: The Department already goes to great lengths to assist all offenders <strong>in</strong> this situati<strong>on</strong> and<br />
has had great success <strong>on</strong> a case by case basis <strong>in</strong> locat<strong>in</strong>g accommodati<strong>on</strong> that will meet <strong>the</strong> requirements of<br />
<strong>the</strong> Home Detenti<strong>on</strong> program.<br />
6.113 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney General and <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop<br />
guidel<strong>in</strong>es to assist judicial officers <strong>in</strong> determ<strong>in</strong><strong>in</strong>g <strong>the</strong> appropriateness of grant<strong>in</strong>g eligible<br />
offenders a home detenti<strong>on</strong> assessment.<br />
6.113 Resp<strong>on</strong>se: The Probati<strong>on</strong> and Parole Service already prepares pre-sentence reports for sentenc<strong>in</strong>g<br />
courts. These reports set out all <strong>the</strong> sentenc<strong>in</strong>g opti<strong>on</strong>s available and appropriate for <strong>in</strong>dividual offenders.<br />
142 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
6.114 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop a scheme of def<strong>in</strong>ed<br />
<strong>in</strong>tensive probati<strong>on</strong> for use as an additi<strong>on</strong>al alternative means of serv<strong>in</strong>g a custodial sentence under<br />
similar circumstances to <strong>the</strong> Home Detenti<strong>on</strong> Scheme.<br />
6.114 Resp<strong>on</strong>se: Probati<strong>on</strong> is <strong>on</strong>e of <strong>the</strong> opti<strong>on</strong>s already available to sentenc<strong>in</strong>g courts. O<strong>the</strong>r alternatives<br />
available <strong>in</strong>clude f<strong>in</strong>es, b<strong>on</strong>ds, community service orders, suspended sentences, periodic detenti<strong>on</strong> and<br />
home detenti<strong>on</strong>. The sentenc<strong>in</strong>g judge or magistrate can attach a wide variety of c<strong>on</strong>diti<strong>on</strong>s to a Probati<strong>on</strong><br />
order with as much supervisi<strong>on</strong> as is c<strong>on</strong>sidered appropriate.<br />
6.120 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop, as a matter of urgency,<br />
strategies which maximise <strong>the</strong> opportunities of rural women offenders to access appropriate<br />
community service based sentences. Liais<strong>on</strong> should be undertaken with relevant government and<br />
n<strong>on</strong>-government agencies to ensure that Probati<strong>on</strong> and Parole officers who are supervis<strong>in</strong>g a<br />
woman offender <strong>in</strong> <strong>the</strong> community can draw <strong>on</strong> assistance from a wide range bf suitable programs.<br />
Those community organisati<strong>on</strong>s offer<strong>in</strong>g relevant services should be provided with adequate<br />
fund<strong>in</strong>g so that co-operative service delivery between <strong>the</strong> government and n<strong>on</strong>-govt sector can be<br />
fostered.<br />
6.120 Resp<strong>on</strong>se: The Department has a network of/Probati<strong>on</strong> and Parole officers throughout <strong>the</strong> State, <strong>in</strong><br />
both metropolitan and rural areas. One of <strong>the</strong>se officers' ma<strong>in</strong> resp<strong>on</strong>sibilities is to supervise offenders<br />
sentenced by <strong>the</strong> courts to Community Service Orders and probati<strong>on</strong> supervisi<strong>on</strong>, as well as parole<br />
supervisi<strong>on</strong>.<br />
The number of women serv<strong>in</strong>g CSOs <strong>in</strong>creased by 40% between 1995 and 1998. At <strong>the</strong> end of last year 859<br />
women were serv<strong>in</strong>g orders around <strong>the</strong> State. The Probati<strong>on</strong> and<br />
Parole Service offers a specific program for women offenders and provid<strong>in</strong>g basic life skills tra<strong>in</strong><strong>in</strong>g and<br />
pers<strong>on</strong>al development programs for offenders.<br />
It also runs a range of programs <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with o<strong>the</strong>r government and community agencies -such as a<br />
"liv<strong>in</strong>g without violence and alcohol" program at Bourke and Brewarr<strong>in</strong>a with <strong>the</strong> Health Department, an<br />
outreach program at Moree with local community groups, an Aborig<strong>in</strong>al Families program at Lismore and<br />
women's program at Kempsey.<br />
In 1999 <strong>the</strong> Probati<strong>on</strong> and Parole Service w<strong>on</strong> a silver award for services to regi<strong>on</strong>al and rural NSW <strong>in</strong> <strong>the</strong><br />
Premier's Public Sector Awards. The award was for <strong>the</strong> Lismore-based Support for Aborig<strong>in</strong>al Families<br />
project run by <strong>the</strong> Service, <strong>the</strong> Dept of Community Services and NSW Health and local Aborig<strong>in</strong>al<br />
community groups. It addresses a lack of services for Aborig<strong>in</strong>al men with young families who are caught <strong>in</strong><br />
a cycle of alcohol abuse, violence, court and pris<strong>on</strong>.<br />
The staff of <strong>the</strong> Probati<strong>on</strong> and Parole Service have fostered productive relati<strong>on</strong>ships by tapp<strong>in</strong>g <strong>in</strong>to <strong>the</strong>ir<br />
local community networks to assist offenders <strong>the</strong>y are supervis<strong>in</strong>g.<br />
6.129 Recommendati<strong>on</strong>: That, as a matter of urgency, <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop<br />
strategies to ensure that home detenti<strong>on</strong> is available for Aborig<strong>in</strong>al people as an alternative to<br />
full-time impris<strong>on</strong>ment at a greater rate than it is at present.<br />
6.129 Resp<strong>on</strong>se: This Government rema<strong>in</strong>s committed to <strong>the</strong> expansi<strong>on</strong> of <strong>the</strong> Home Detenti<strong>on</strong> program.<br />
The Home Detenti<strong>on</strong> program has proven to be a successful sentenc<strong>in</strong>g alternative. The key to this success<br />
has been <strong>the</strong> thorough assessment and strict m<strong>on</strong>itor<strong>in</strong>g of offenders <strong>on</strong> <strong>the</strong> program. In order to ma<strong>in</strong>ta<strong>in</strong><br />
<strong>the</strong> <strong>in</strong>tegrity and security of <strong>the</strong> scheme, it is crucial that staff and all necessary adm<strong>in</strong>istrative and support<br />
mechanisms are <strong>in</strong> place before expand<strong>in</strong>g <strong>the</strong> program to additi<strong>on</strong>al areas.<br />
Home Detenti<strong>on</strong> currently covers <strong>the</strong> Sydney metropolitan area, <strong>the</strong> Illawarra and <strong>the</strong> Hunter regi<strong>on</strong>. Of <strong>the</strong><br />
55 <strong>in</strong>digenous offenders who have been through <strong>the</strong> program to date, 16 have been women. The<br />
Department is <strong>in</strong> <strong>the</strong> prelim<strong>in</strong>ary stages of assess<strong>in</strong>g o<strong>the</strong>r areas for possible expansi<strong>on</strong> - <strong>the</strong> Mid North<br />
Coast regi<strong>on</strong>, where <strong>the</strong>re is a large Aborig<strong>in</strong>al populati<strong>on</strong>, is <strong>on</strong>e such area.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 143
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
It is necessary to undertake a comprehensive assessment 6f an offender's home circumstances and lifestyle<br />
to determ<strong>in</strong>e if <strong>the</strong>y are suitable for Home Detenti<strong>on</strong>. Regrettably, it is <strong>the</strong> case that this opti<strong>on</strong> may not be<br />
possible for some women because of domestic violence, often fuelled by alcohol abuse, <strong>in</strong> <strong>the</strong> home. The<br />
Department is already address<strong>in</strong>g this issue <strong>in</strong> <strong>in</strong>dividual cases but it is ano<strong>the</strong>r factor that needs to be<br />
c<strong>on</strong>sidered <strong>in</strong> any large-scale and culturally-appropriate expansi<strong>on</strong> of <strong>the</strong> scheme to benefit <strong>in</strong>digenous<br />
populati<strong>on</strong>s.<br />
6.130 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services, <strong>the</strong> M<strong>in</strong>ister for Women and<br />
representatives from <strong>the</strong> Aborig<strong>in</strong>al Justice Advisory Council develop alternatives to home<br />
detenti<strong>on</strong> for women who are unable to serve a sentence <strong>in</strong> <strong>the</strong> home because of abusive and<br />
violent domestic circumstances.<br />
6.130 Resp<strong>on</strong>se: This is happen<strong>in</strong>g <strong>in</strong> <strong>in</strong>dividual cases now. Department staff have been <strong>in</strong>novative and<br />
resourceful <strong>in</strong> f<strong>in</strong>d<strong>in</strong>g alternative accommodati<strong>on</strong> for women who would o<strong>the</strong>rwise meet <strong>the</strong> requirements<br />
of <strong>the</strong> Home Detenti<strong>on</strong> scheme but live <strong>in</strong> a violent relati<strong>on</strong>ship. Unfortunately, sometimes those efforts are<br />
thwarted when abusive men can c<strong>on</strong>v<strong>in</strong>ce <strong>the</strong>ir wife or girlfriend to let <strong>the</strong>m <strong>in</strong> - and <strong>the</strong>n <strong>the</strong>se women<br />
have to be removed from <strong>the</strong> program.<br />
However, all relevant M<strong>in</strong>isters c<strong>on</strong>t<strong>in</strong>ue to discuss with AJAC and o<strong>the</strong>r Aborig<strong>in</strong>al community<br />
organisati<strong>on</strong>s ways to develop practical, realistic and culturally appropriate assistance <strong>on</strong> a wider scale than is<br />
currently possible.<br />
6.140 Recommendati<strong>on</strong>: That, as a matter of urgency, <strong>the</strong> M<strong>in</strong>ister for Corrective Services, <strong>in</strong><br />
c<strong>on</strong>sultati<strong>on</strong> with <strong>the</strong> Aborig<strong>in</strong>al Justice Advisory Council, develop strategies to maximise <strong>the</strong><br />
opportunities for <strong>in</strong>digenous people to access community based sentences.<br />
6.140 Resp<strong>on</strong>se: All relevant M<strong>in</strong>isters c<strong>on</strong>t<strong>in</strong>ue to c<strong>on</strong>sult with AJAC and Aborig<strong>in</strong>al community agencies<br />
to discuss mean<strong>in</strong>gful ways of ensur<strong>in</strong>g that <strong>in</strong>digenous offenders are able to access community-based<br />
sentences.<br />
However, it is true that courts throughout <strong>the</strong> State are sentenc<strong>in</strong>g offenders to Community Service Orders<br />
and probati<strong>on</strong> supervisi<strong>on</strong>. The Probati<strong>on</strong> and Parole Service already provides a range of programs to<br />
benefit <strong>in</strong>digenous offenders serv<strong>in</strong>g <strong>the</strong>se sentences, <strong>in</strong>clud<strong>in</strong>g programs specifically for women and<br />
families.<br />
In 1999 <strong>the</strong> Probati<strong>on</strong> and Parole Service w<strong>on</strong> a silver award for services to regi<strong>on</strong>al and rural NSW <strong>in</strong> <strong>the</strong><br />
Premier's Public Sector Awards. The award was for <strong>the</strong> Lismore-based Support for Aborig<strong>in</strong>al Families<br />
project run by <strong>the</strong> Service, <strong>the</strong> Dept of Community Services and NSW Health and local Aborig<strong>in</strong>al<br />
community groups. It addresses a lack of services for Aborig<strong>in</strong>al men with young families who are caught <strong>in</strong><br />
a cycle of alcohol abuse, violence, court and pris<strong>on</strong>. These sorts of projects are <strong>in</strong>strumental <strong>in</strong> help<strong>in</strong>g <strong>the</strong>se<br />
offenders address <strong>the</strong>ir offend<strong>in</strong>g behaviour and meet <strong>the</strong> requirements of <strong>the</strong>ir community sentence.<br />
6.141 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that when<br />
an <strong>in</strong>digenous pers<strong>on</strong> is sentenced to a community-based sentence, that sentence is<br />
culturally sensitive.<br />
6.141 Resp<strong>on</strong>se: The Department of Corrective Services has a discrete Indigenous Services Unit and a<br />
comprehensive policy, <strong>the</strong> Indigenous Offenders Acti<strong>on</strong> Plan, to guide its work with Aborig<strong>in</strong>al offenders.<br />
This policy, developed <strong>in</strong> resp<strong>on</strong>se to <strong>the</strong> disproporti<strong>on</strong>ate <strong>in</strong>carcerati<strong>on</strong> of Aborig<strong>in</strong>al offenders, <strong>the</strong> greater<br />
risks <strong>the</strong>y face <strong>in</strong> custody and <strong>the</strong> need to provide alternatives to full-time custody, is a map to ensure that<br />
services are provided <strong>in</strong> a culturally appropriate manner.<br />
The Probati<strong>on</strong> and Parole Service has a specific plan of Offender Management Programs for Indigenous<br />
Offenders. This document has been commended by <strong>the</strong> Aborig<strong>in</strong>al Legal Service for its relevant and<br />
positive approach to work<strong>in</strong>g with <strong>the</strong>se offenders.<br />
144 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
The Service provides a range of services, run <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with a number of Aborig<strong>in</strong>al community<br />
agencies, which are particularly targeted at Aborig<strong>in</strong>al offenders. These <strong>in</strong>clude a Koori women's<br />
supervisi<strong>on</strong> group at Lismore, "Liv<strong>in</strong>g without violence and alcohol" programs at Bourke and Brewarr<strong>in</strong>a<br />
and an outreach program <strong>in</strong> Moree. Aborig<strong>in</strong>al tra<strong>in</strong>ees and liais<strong>on</strong> officers are employed at a number of<br />
Probati<strong>on</strong> and Parole officers.<br />
Aga<strong>in</strong>, both <strong>the</strong> Department - particularly <strong>the</strong> Indigenous Services Unit - and <strong>the</strong> M<strong>in</strong>ister are committed to<br />
explor<strong>in</strong>g all possible avenues of deliver<strong>in</strong>g services for <strong>in</strong>digenous offenders - both those <strong>in</strong> full-time<br />
custody and alternative sentences - <strong>in</strong> a culturally sensitive and appropriate manner.<br />
6.142 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney General, <strong>the</strong> M<strong>in</strong>ister for Police and <strong>the</strong> M<strong>in</strong>ister for<br />
Corrective Services implement a three-year trial period of Circle Sentenc<strong>in</strong>g to be operative <strong>in</strong> three<br />
Aborig<strong>in</strong>al communities as so<strong>on</strong> as possible. The Circle Sentenc<strong>in</strong>g Model should be based <strong>on</strong> <strong>the</strong><br />
proposal of <strong>the</strong> work<strong>in</strong>g party <strong>on</strong> Circle Sentenc<strong>in</strong>g and comprise members from <strong>the</strong> Aborig<strong>in</strong>al<br />
Justice Advisory Council, NSW Police Service, M<strong>in</strong>istry of Police, Attorney General 's<br />
Department,<br />
Department of Corrective Services, Department of Juvenile Justice, Office of <strong>the</strong> Director of Public<br />
Prosecuti<strong>on</strong>s and <strong>the</strong> NSW Judicial Commissi<strong>on</strong>.<br />
6.142 Resp<strong>on</strong>se: Circle Sentenc<strong>in</strong>g is an <strong>in</strong>terest<strong>in</strong>g reform which is periodically <strong>in</strong>vestigated and/or<br />
recommended by committees and agencies review<strong>in</strong>g <strong>the</strong> legal system and its cultural appropriateness for<br />
Aborig<strong>in</strong>al communities.<br />
The Aborig<strong>in</strong>al Justice Advisory Council is currently study<strong>in</strong>g this questi<strong>on</strong> and <strong>the</strong> Attorney General awaits<br />
its report, which is due early this year, with <strong>in</strong>terest. Once <strong>the</strong> Council's f<strong>in</strong>d<strong>in</strong>gs are known, this will be <strong>the</strong><br />
appropriate time for various members of <strong>the</strong> legal system to sit down and discuss <strong>the</strong> potential of Circle<br />
Sentenc<strong>in</strong>g as a judicial reform.<br />
6.163 Recommendati<strong>on</strong>: That <strong>the</strong> Attorney General ensure that <strong>the</strong> NSW Bureau of Crime Statistics<br />
and Research <strong>in</strong>clude <strong>in</strong> its evaluati<strong>on</strong>s of <strong>the</strong> NSW Drug Court Program <strong>the</strong> follow<strong>in</strong>g:<br />
- <strong>the</strong> success or o<strong>the</strong>rwise of women who participate <strong>in</strong> <strong>the</strong> program;<br />
- <strong>the</strong> success or o<strong>the</strong>rwise of <strong>in</strong>digenous people who participate <strong>in</strong> <strong>the</strong> program;<br />
- <strong>the</strong> participati<strong>on</strong> rate of people with an <strong>in</strong>tellectual disability and <strong>the</strong>ir success or o<strong>the</strong>rwise' <strong>in</strong><br />
<strong>the</strong> program;<br />
- <strong>the</strong> effect that <strong>the</strong> "bail refused" and <strong>in</strong>carcerati<strong>on</strong> period has <strong>on</strong> female Drug Court participant<br />
and any of her dependent children; and<br />
- <strong>the</strong> adequacy or o<strong>the</strong>rwise of <strong>the</strong> number of residential treatment centres that can accept<br />
drug court participants and <strong>the</strong> impact <strong>the</strong>se participants have <strong>on</strong> <strong>the</strong> accessibility of<br />
<strong>the</strong>se centres by drug users with<strong>in</strong> <strong>the</strong> community.<br />
6.163 Resp<strong>on</strong>se: The Attorney-General advises that <strong>the</strong> evaluati<strong>on</strong> of <strong>the</strong> Drug Court is an extensive and<br />
<strong>on</strong>-go<strong>in</strong>g process. Initial reports <strong>on</strong> this <strong>in</strong>novative <strong>in</strong>itiative have been extremely positive.<br />
6.165 Recommendati<strong>on</strong>: That <strong>the</strong> Special M<strong>in</strong>ister of State ensure that any drug and alcohol<br />
programs and services <strong>in</strong> <strong>the</strong> community that are allocated m<strong>on</strong>ey from <strong>the</strong> Drug Summit be<br />
available for women offenders with drug and alcohol problems who are sentenced to<br />
community-based sentences. Such services and programs should offer a range of treatment<br />
opti<strong>on</strong>s, <strong>in</strong>clud<strong>in</strong>g l<strong>on</strong>g-term rehabilitati<strong>on</strong> to women to enable <strong>the</strong>m to overcome <strong>the</strong>ir addicti<strong>on</strong>s<br />
and address <strong>the</strong>ir offend<strong>in</strong>g behaviour. Day programs should be available to women with children.<br />
6.165 Resp<strong>on</strong>se: The Probati<strong>on</strong> and Parole Service is able to assist women offenders sentenced to<br />
community based orders access a range of drug and alcohol services, and <strong>in</strong>deed o<strong>the</strong>r services, available <strong>in</strong><br />
<strong>the</strong> community. The Probati<strong>on</strong> and Parole Service <strong>in</strong> fact runs a variety of programs for offenders <strong>in</strong> <strong>the</strong><br />
community, evidence of which was presented to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>.<br />
Additi<strong>on</strong>al funds aris<strong>in</strong>g from <strong>the</strong> Drug Summit were made available to a number of women-<strong>on</strong>ly services.<br />
One such example is Jarrah House, which operates a women and children's rehabilitati<strong>on</strong> service <strong>in</strong> <strong>the</strong><br />
South Eastern Area Health Service.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
6.183 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services undertake an audit or study to<br />
determ<strong>in</strong>e that <strong>the</strong> Probati<strong>on</strong> and Parole Service is work<strong>in</strong>g effectively and has an appropriate level<br />
of supervisi<strong>on</strong> of offenders and post-release programs throughout New South Wales. Issues to be<br />
c<strong>on</strong>sidered should <strong>in</strong>clude:<br />
- level of c<strong>on</strong>tact with a client<br />
- availability and accessibility of programs<br />
- culturally appropriate support and programs; and<br />
- rate of recidivism<br />
6.183 Resp<strong>on</strong>se: The Probati<strong>on</strong> and Parole Service provides a wide range of services and programs to<br />
offenders <strong>in</strong> <strong>the</strong> community to assist <strong>the</strong>ir adjustment to life <strong>in</strong> <strong>the</strong> community. The dedicati<strong>on</strong> of <strong>the</strong>se<br />
officers <strong>in</strong> <strong>the</strong>ir supervisi<strong>on</strong> of well over 16,000 offenders <strong>in</strong> <strong>the</strong> community is unquesti<strong>on</strong>able. The<br />
substance and delivery of <strong>the</strong>se programs are under <strong>on</strong>go<strong>in</strong>g review.<br />
6.193 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services ensure that any issues relat<strong>in</strong>g to<br />
an <strong>in</strong>mate requir<strong>in</strong>g identificati<strong>on</strong> when released from pris<strong>on</strong>, such as for Medicare, Centrel<strong>in</strong>k and<br />
<strong>the</strong> open<strong>in</strong>g of bank accounts, are part of <strong>the</strong> <strong>in</strong>mate's case management plan and are resolved<br />
6rior to release. This should occur <strong>in</strong> all pris<strong>on</strong>s.<br />
6.193 Resp<strong>on</strong>se: As part of <strong>the</strong> Throughcare program, <strong>the</strong> Department seeks to ensure that issues such as<br />
<strong>the</strong>se are addressed <strong>in</strong> <strong>the</strong> case management process. There are a variety of pre-release programs operat<strong>in</strong>g<br />
throughout <strong>the</strong> correcti<strong>on</strong>al system which assist <strong>in</strong>mates identify those matters that need to be resolved<br />
prior to release. In additi<strong>on</strong> to <strong>the</strong>se programs, <strong>in</strong>mates are able to seek <strong>the</strong> help of welfare officers, or<br />
where appropriate, probati<strong>on</strong> and parole officers to access relevant community services.<br />
6.201 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services, <strong>the</strong> M<strong>in</strong>ister for Hous<strong>in</strong>g, <strong>the</strong><br />
M<strong>in</strong>ister for Health and <strong>the</strong> M<strong>in</strong>ister for Community Services collaboratively fund as a matter of<br />
urgency, at least three additi<strong>on</strong>al supported accommodati<strong>on</strong>/halfway houses for women pris<strong>on</strong>ers<br />
to access when <strong>the</strong>y are released from custody. These facilities should be established <strong>in</strong> Sydney,<br />
<strong>the</strong> North Coast and <strong>the</strong> Far-West regi<strong>on</strong>s of New South Wales and offer women access to<br />
appropriate programs and services to assist <strong>in</strong> <strong>the</strong>ir re<strong>in</strong>tegrati<strong>on</strong> <strong>in</strong>to <strong>the</strong> community.<br />
6.201 Resp<strong>on</strong>se: Experience has shown that <strong>the</strong>re is a need to focus resources <strong>on</strong> a variety of post release<br />
services which address factors directly c<strong>on</strong>tribut<strong>in</strong>g to offend<strong>in</strong>g behaviour. Indeed, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> has<br />
been told of <strong>the</strong> range of services <strong>the</strong> Department of Corrective Services fund under <strong>the</strong> Community<br />
Grants Program. In recogniti<strong>on</strong> of <strong>the</strong> role accessible accommodati<strong>on</strong> plays <strong>in</strong> improv<strong>in</strong>g an <strong>in</strong>mate's<br />
chances of successful transiti<strong>on</strong> up<strong>on</strong> release, <strong>the</strong> Department funds a number of accommodati<strong>on</strong> services<br />
(Guthrie House, Ra<strong>in</strong>bow Lodge, Glebe House and <strong>the</strong> Glen). The Department is firmly committed to<br />
ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g <strong>the</strong> Community Grants Program and is c<strong>on</strong>stantly review<strong>in</strong>g its operati<strong>on</strong> to ensure that an<br />
appropriate range of services are supported.<br />
The Director-General of Community Services, <strong>the</strong> Commissi<strong>on</strong>er of Corrective Services and <strong>the</strong><br />
Director-General of Hous<strong>in</strong>g are meet<strong>in</strong>g <strong>in</strong> <strong>the</strong> near future to discuss services to assist <strong>in</strong> <strong>the</strong> re-<strong>in</strong>tegrati<strong>on</strong><br />
of former female pris<strong>on</strong>ers <strong>in</strong>to <strong>the</strong> community.<br />
The whole-of-government Partnership Aga<strong>in</strong>st Homelessness has previously identified that former female<br />
pris<strong>on</strong>ers are at risk of becom<strong>in</strong>g homeless and this group currently accesses substantial resources with<strong>in</strong><br />
DoCS' Supported Accommodati<strong>on</strong> Assistance Scheme (SAAP).<br />
The Department of Hous<strong>in</strong>g, through <strong>the</strong> Office of Community Hous<strong>in</strong>g, has already established a number<br />
of supported accommodati<strong>on</strong> projects for ex-pris<strong>on</strong>ers similar to those c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> this recommendati<strong>on</strong>.<br />
The Department of Women and <strong>the</strong> Department of Juvenile Justice are collaborat<strong>in</strong>g <strong>on</strong> a project to<br />
provide assistance to young women leav<strong>in</strong>g <strong>the</strong> Juvenile Justice system to re-establish l<strong>in</strong>ks with <strong>the</strong>ir family<br />
and re-<strong>in</strong>tegrate <strong>in</strong>to <strong>the</strong> community.<br />
146 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
6.202 Recommendati<strong>on</strong>: That as part of a pris<strong>on</strong>er's case management and prerelease plan, <strong>the</strong><br />
M<strong>in</strong>ister for Corrective Services ensure that all <strong>in</strong>mates, and particularly those with children, have<br />
adequate accommodati<strong>on</strong> up<strong>on</strong> <strong>the</strong>ir release.<br />
6.202 Resp<strong>on</strong>se: The Department of. Hous<strong>in</strong>g staff currently liaise closely with correcti<strong>on</strong>al centres<br />
throughout New South Wales to provide advice and assistance to pris<strong>on</strong>ers and assist people post-release.<br />
Chapter 7<br />
The Build<strong>in</strong>g of <strong>the</strong> new women's pris<strong>on</strong><br />
7.34 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services commissi<strong>on</strong> research to<br />
determ<strong>in</strong>e whe<strong>the</strong>r <strong>the</strong> diversi<strong>on</strong>ary measures which have successfully reduced <strong>the</strong> numbers of<br />
young people held <strong>in</strong> custody may be applied to br<strong>in</strong>g about a reducti<strong>on</strong> <strong>in</strong> <strong>the</strong> number of women<br />
<strong>in</strong> custody.<br />
7.34 Resp<strong>on</strong>se: Evidence to date is that juveniles are be<strong>in</strong>g diverted at <strong>the</strong> pre trial stage through<br />
c<strong>on</strong>ferenc<strong>in</strong>g and police cauti<strong>on</strong><strong>in</strong>g. This Government is currently explor<strong>in</strong>g <strong>the</strong> issue of adult c<strong>on</strong>ferenc<strong>in</strong>g<br />
and o<strong>the</strong>r restorative justice opti<strong>on</strong>s.<br />
7.40 Recommendati<strong>on</strong>: In order that <strong>the</strong> rehabilitati<strong>on</strong> of offenders, particularly through<br />
community-based opti<strong>on</strong>s is given a higher priority, <strong>the</strong> M<strong>in</strong>ister for Corrective Services should<br />
establish a Community Correcti<strong>on</strong>s Divisi<strong>on</strong> with<strong>in</strong> <strong>the</strong> Department of Corrective Services. The<br />
Divisi<strong>on</strong> should be headed by a Deputy Commissi<strong>on</strong>er who is directly resp<strong>on</strong>sible to <strong>the</strong><br />
Commissi<strong>on</strong>er.<br />
7.40 Resp<strong>on</strong>se: Community based opti<strong>on</strong>s are already coord<strong>in</strong>ated by a Divisi<strong>on</strong> - <strong>the</strong> Probati<strong>on</strong> and Parole<br />
Service - headed by an Assistant Commissi<strong>on</strong>er who reports directly to <strong>the</strong> Commissi<strong>on</strong>er.<br />
The skills and philosophy of <strong>the</strong> Probati<strong>on</strong> and Parole Service can and should have a str<strong>on</strong>ger <strong>in</strong>fluence <strong>on</strong><br />
<strong>the</strong> general work of <strong>the</strong> Department of Corrective Services. Probati<strong>on</strong> supervises 16,000 offenders <strong>in</strong> <strong>the</strong><br />
community, more than double <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong>. This Government <strong>in</strong>tends to c<strong>on</strong>t<strong>in</strong>ue <strong>the</strong> process of<br />
reform and encourag<strong>in</strong>g good community based ideas.<br />
7.41 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services develop appropriate<br />
resp<strong>on</strong>sibilities for <strong>the</strong> Community Correcti<strong>on</strong>s Divisi<strong>on</strong>. Those resp<strong>on</strong>sibilities should <strong>in</strong>clude <strong>the</strong><br />
management of offenders serv<strong>in</strong>g community based sentences that require supervisi<strong>on</strong>.<br />
7.41 Resp<strong>on</strong>se: The Probati<strong>on</strong> and Parole Service already undertakes <strong>the</strong>se functi<strong>on</strong>s.<br />
7.46 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services undertake a costbenefit analysis<br />
of <strong>the</strong> proposal to build <strong>the</strong> new women's correcti<strong>on</strong>al facility at South W<strong>in</strong>dsor and of <strong>the</strong><br />
alternative community based measures recommended <strong>in</strong> <strong>the</strong> report. The cost-benefit analysis<br />
should be completed no later than <strong>the</strong> first sitt<strong>in</strong>g week <strong>in</strong> October 2000 of <strong>the</strong> NSW Parliament.<br />
Results of that analysis should be published.<br />
7.46 Resp<strong>on</strong>se: The reas<strong>on</strong>s for build<strong>in</strong>g a new facility have been) stated at length and publicly.<br />
Mulawa is overcrowded. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited Mulawa and agreed that this was <strong>the</strong> case.<br />
7.47 Recommendati<strong>on</strong>: That <strong>the</strong> M<strong>in</strong>ister for Corrective Services review <strong>the</strong> decisi<strong>on</strong> to build <strong>the</strong><br />
new women's correcti<strong>on</strong>al facility at South W<strong>in</strong>dsor <strong>in</strong> light of <strong>the</strong> results of that analysis. The<br />
review process shall <strong>in</strong>clude seek<strong>in</strong>g <strong>in</strong>dependent advice from <strong>the</strong> Inspector general for Pris<strong>on</strong>s,<br />
representatives of Treasury, groups represent<strong>in</strong>g women and at least <strong>on</strong>e academic with research<br />
experience <strong>in</strong> <strong>the</strong> field of correcti<strong>on</strong>s and community services.<br />
7.47 Resp<strong>on</strong>se: As above<br />
7.52 Recommendati<strong>on</strong>: That to ensure <strong>the</strong> proper target<strong>in</strong>g of resources at <strong>the</strong> reducti<strong>on</strong> of<br />
impris<strong>on</strong>ment numbers and <strong>the</strong> utilisati<strong>on</strong> of alternatives to impris<strong>on</strong>ment, <strong>the</strong> M<strong>in</strong>ister for<br />
Corrective Services impose a moratorium <strong>on</strong> <strong>the</strong> total number of pris<strong>on</strong> beds for women <strong>in</strong> NSW.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 147
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Any new gaol proposed and/or established shall replace exist<strong>in</strong>g pris<strong>on</strong>er accommodati<strong>on</strong><br />
numbers <strong>on</strong>ly so that <strong>the</strong> total number of women <strong>in</strong> pris<strong>on</strong> does not exceed current levels.<br />
7.52 Resp<strong>on</strong>se: If women commit crimes, and those crimes are judged by <strong>the</strong> courts to merit a custodial<br />
sentence, <strong>the</strong>n <strong>the</strong> Department of Corrective Services has no alternative but to take those women <strong>in</strong>to<br />
custody. It would be arbitrary and unjust to exclude a particular sentenc<strong>in</strong>g opti<strong>on</strong> <strong>on</strong> <strong>the</strong> basis of gender<br />
al<strong>on</strong>e - or <strong>in</strong>deed <strong>on</strong> any o<strong>the</strong>r characteristic.<br />
The courts decide what sentence to impose <strong>on</strong> <strong>in</strong>dividuals based <strong>on</strong> <strong>the</strong> offence itself and <strong>the</strong> crim<strong>in</strong>al<br />
history of <strong>the</strong> offender.<br />
Bail Hostels<br />
8.4 One of <strong>the</strong> key recommendati<strong>on</strong>s of <strong>the</strong> Interim <strong>Report</strong> is also of importance to <strong>the</strong> issues<br />
raised <strong>in</strong> Chapters Five and Seven of this current report. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommended <strong>the</strong><br />
establishment of bail and probati<strong>on</strong> hostels as a means of reduc<strong>in</strong>g <strong>the</strong> size of <strong>the</strong> remand<br />
populati<strong>on</strong> as a proporti<strong>on</strong> of <strong>the</strong> total pris<strong>on</strong> populati<strong>on</strong>. It c<strong>on</strong>sidered, based <strong>on</strong> <strong>the</strong><br />
available evidence, that bail hostels would provide an alternative to <strong>in</strong>carcerati<strong>on</strong> while<br />
provid<strong>in</strong>g <strong>in</strong>tensive and appropriate supervisi<strong>on</strong>. The c<strong>on</strong>cept is not new. Bail and<br />
probati<strong>on</strong> hostels have operated <strong>in</strong> Western Australia and <strong>in</strong> o<strong>the</strong>r jurisdicti<strong>on</strong>s under<br />
differ<strong>in</strong>g models and with varied results. Bail should be available to any unc<strong>on</strong>victed<br />
defendant, subject <strong>on</strong>ly to limitati<strong>on</strong>s perta<strong>in</strong><strong>in</strong>g to risk to <strong>the</strong> community, potential for<br />
<strong>in</strong>terference with witnesses and an unacceptable risk of absc<strong>on</strong>d<strong>in</strong>g. The provisi<strong>on</strong> of<br />
realistic alternatives for those defendants and offenders c<strong>on</strong>sidered unsuitable for bail or<br />
probati<strong>on</strong>, such as it<strong>in</strong>erant pers<strong>on</strong>s, defendants charged with domestic offences and<br />
socially disadvantaged pers<strong>on</strong>s with no permanent dwell<strong>in</strong>g place, but who might o<strong>the</strong>rwise<br />
be eligible is worthy of fur<strong>the</strong>r c<strong>on</strong>siderati<strong>on</strong>.<br />
8.5 In its resp<strong>on</strong>se to <strong>the</strong> recommendati<strong>on</strong> <strong>the</strong> Government stated that both <strong>the</strong> Department<br />
of Corrective Services and <strong>the</strong> Bureau of Crime Statistics and Research would c<strong>on</strong>t<strong>in</strong>ue to<br />
research opti<strong>on</strong>s such as bail hostels. However it appeared to be unenthusiastic about <strong>the</strong><br />
c<strong>on</strong>cept:<br />
…<strong>the</strong> evidence obta<strong>in</strong>ed to date is not encourag<strong>in</strong>g…Bail hostels present <strong>the</strong><br />
possible problem of net-widen<strong>in</strong>g, whereby offenders who would have ord<strong>in</strong>arily<br />
be granted bail are placed <strong>in</strong> a bail hostel with its accompany<strong>in</strong>g restricti<strong>on</strong>s <strong>on</strong><br />
<strong>the</strong>ir liberty. Western Australia has closed <strong>the</strong>ir bail hostel because <strong>the</strong>y found<br />
that <strong>the</strong> demand was just not <strong>the</strong>re. The UK experience over <strong>the</strong> last decade has<br />
seen unprecedented <strong>in</strong>creases <strong>in</strong> <strong>the</strong> pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> spite of a network of bail<br />
hostels and <strong>in</strong>tensive probati<strong>on</strong> hostels. 263<br />
8.6 In resp<strong>on</strong>se, Dr Baldry commented <strong>in</strong> evidence:<br />
Notwithstand<strong>in</strong>g <strong>the</strong> number of pris<strong>on</strong>ers <strong>in</strong> <strong>the</strong> United K<strong>in</strong>gdom, <strong>the</strong> evidence<br />
which is quite recent of a Parliamentary review and of o<strong>the</strong>r well known observers<br />
is that bail hostels <strong>in</strong> <strong>the</strong> United K<strong>in</strong>gdom c<strong>on</strong>t<strong>in</strong>ue to keep people out of pris<strong>on</strong>,<br />
as <strong>on</strong> remand. So, I th<strong>in</strong>k that that observati<strong>on</strong> is <strong>on</strong>e which is perhaps an<br />
assumpti<strong>on</strong> not based <strong>on</strong> <strong>in</strong>formati<strong>on</strong> directly from <strong>the</strong> review that was held, I<br />
th<strong>in</strong>k, <strong>in</strong> 1999 <strong>in</strong> <strong>the</strong> United K<strong>in</strong>gdom. Regard<strong>in</strong>g <strong>the</strong> Western Australian attempt<br />
263 Government Resp<strong>on</strong>se, 19 February 2001, p 6.<br />
148 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
I th<strong>in</strong>k we made a comment to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that our <strong>in</strong>formati<strong>on</strong> <strong>in</strong>dicated that<br />
<strong>the</strong> strictures <strong>on</strong> those who were go<strong>in</strong>g to be eligible for that bail hostel were so<br />
great, that it was bound to fail and that <strong>the</strong>re were <strong>in</strong>appropriate criteria for who<br />
was able to get <strong>in</strong>to that bail hostel.<br />
… Perhaps a comment about <strong>the</strong> net widen<strong>in</strong>g. That has not stopped <strong>the</strong><br />
department nor <strong>the</strong> Government from attempt<strong>in</strong>g <strong>the</strong> Drug Court, for example,<br />
which could also be criticised for possibly be<strong>in</strong>g a net widen<strong>in</strong>g approach.<br />
Never<strong>the</strong>less, <strong>the</strong> argument is that it is not, because <strong>the</strong> way <strong>in</strong> which it was set up<br />
was <strong>in</strong>cluded to ensure that <strong>on</strong>ly those who were go<strong>in</strong>g to be sentenced would go<br />
<strong>in</strong>to that. Now of course, that can be <strong>the</strong> same k<strong>in</strong>d of criteria applied to <strong>the</strong> use<br />
of bail hostels, but those who o<strong>the</strong>rwise were go<strong>in</strong>g to be remanded <strong>in</strong>to custody<br />
would be c<strong>on</strong>sidered for this. I do not th<strong>in</strong>k that it should present a problem as<br />
l<strong>on</strong>g as it is appropriately run. 264<br />
8.7 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> hopes <strong>the</strong> <strong>in</strong>vestigati<strong>on</strong> of <strong>the</strong> bail hostel proposal is approached<br />
objectively by <strong>the</strong> Department with a view to what part it could play <strong>in</strong> overall strategies for<br />
reduc<strong>in</strong>g <strong>the</strong> remand populati<strong>on</strong>.<br />
Disparity of Wages <strong>in</strong> Educati<strong>on</strong> Programs<br />
8.8 Evidence that <strong>the</strong> disparity <strong>in</strong> wages between pris<strong>on</strong> <strong>in</strong>dustry and educati<strong>on</strong> courses<br />
restricts <strong>the</strong> appeal of educati<strong>on</strong> programs <strong>in</strong> pris<strong>on</strong> led <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>in</strong> its Interim <strong>Report</strong><br />
to recommend that <strong>the</strong>re be a parity of wages between <strong>in</strong>mates undertak<strong>in</strong>g full time work<br />
and those undertak<strong>in</strong>g full time study. The Government resp<strong>on</strong>ded that gaol operates<br />
under <strong>the</strong> same pr<strong>in</strong>ciple as <strong>in</strong> <strong>the</strong> community, where full time students do not receive <strong>the</strong><br />
same salary as full time employees. 265 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> does not accept this as an<br />
appropriate analogy, unless it implies that <strong>the</strong>re is no potential benefit <strong>in</strong> educati<strong>on</strong><br />
programs o<strong>the</strong>r than keep<strong>in</strong>g pris<strong>on</strong>ers occupied. A significant percentage of <strong>in</strong>mates are<br />
not functi<strong>on</strong>ally literate or numerate, have not completed year 10 and are l<strong>on</strong>g term<br />
unemployed. Inmate educati<strong>on</strong> programs, <strong>in</strong> particular <strong>the</strong> provisi<strong>on</strong> of literacy programs,<br />
vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g and work skills have <strong>the</strong> potential to optimise rehabilitati<strong>on</strong>, reduce reoffend<strong>in</strong>g<br />
and facilitate successful return to <strong>the</strong> community. Incentives for <strong>in</strong>mate<br />
participati<strong>on</strong> <strong>in</strong> <strong>the</strong>se programs should be pursued.<br />
Australian Institute of Crim<strong>in</strong>ology C<strong>on</strong>ference “Women <strong>in</strong> Correcti<strong>on</strong>s”<br />
8.9 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> made a number of recommendati<strong>on</strong>s <strong>in</strong> its Interim <strong>Report</strong> regard<strong>in</strong>g<br />
improvements to assist women pris<strong>on</strong>ers up<strong>on</strong> <strong>the</strong>ir release. S<strong>in</strong>ce <strong>the</strong> Interim <strong>Report</strong> was<br />
tabled, <strong>the</strong>re has been a nati<strong>on</strong>al event <strong>in</strong> which issues relat<strong>in</strong>g to <strong>the</strong> impris<strong>on</strong>ment of<br />
women have been <strong>in</strong>vestigated and important issues have been highlighted. The Australian<br />
Institute of Crim<strong>in</strong>ology hosted a nati<strong>on</strong>al c<strong>on</strong>ference, <strong>in</strong> c<strong>on</strong>juncti<strong>on</strong> with <strong>the</strong> Department<br />
for Correcti<strong>on</strong>al Services, South Australia focuss<strong>in</strong>g <strong>on</strong> women <strong>in</strong> pris<strong>on</strong> entitled “Women <strong>in</strong><br />
Correcti<strong>on</strong>s: Staff and Clients” between 31 October and 1 November 2000 at Adelaide, South<br />
Australia. Overseas representatives, dist<strong>in</strong>guished academics, representatives of community<br />
organisati<strong>on</strong>s, professi<strong>on</strong>al practiti<strong>on</strong>ers <strong>in</strong> correcti<strong>on</strong>s from around Australia and former<br />
264 Baldry Evidence, 12 June 2001, p 8.<br />
265 Government Resp<strong>on</strong>se, 19 February 2001, p 4.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 149
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
women <strong>in</strong>mates addressed <strong>the</strong> c<strong>on</strong>ference. The overseas speakers <strong>in</strong>cluded Nancy<br />
Stableforth, Senior Deputy Commissi<strong>on</strong>er and Deputy Commissi<strong>on</strong>er for Women,<br />
Correcti<strong>on</strong>al Service of Canada, Kim Pate, Canadian Associati<strong>on</strong> of Elizabeth Fry Societies,<br />
and Cecelia Lashlie and Kathleen Pivac from <strong>the</strong> Department of Correcti<strong>on</strong>s <strong>in</strong> New<br />
Zealand. Representatives of <strong>the</strong> NSW Department of Corrective Services also presented<br />
papers.<br />
8.10 The c<strong>on</strong>ference was c<strong>on</strong>ducted <strong>on</strong> days when <strong>the</strong> NSW Parliament was sitt<strong>in</strong>g, so it was<br />
not possible for any Member of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to attend. However <strong>the</strong> papers, which<br />
were presented at <strong>the</strong> C<strong>on</strong>ference, have been exam<strong>in</strong>ed and <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes that it<br />
is appropriate to highlight some of <strong>the</strong> issues raised dur<strong>in</strong>g <strong>the</strong> c<strong>on</strong>ference <strong>in</strong> our f<strong>in</strong>al<br />
<strong>Report</strong>.<br />
Different Needs of Women Pris<strong>on</strong>ers<br />
8.11 A particularly important <strong>the</strong>me runn<strong>in</strong>g through <strong>the</strong> c<strong>on</strong>ference was <strong>the</strong> need to recognise<br />
that <strong>in</strong> all areas where women come <strong>in</strong>to c<strong>on</strong>tact with <strong>the</strong> crim<strong>in</strong>al justice system:<br />
Women have different physical, psychological, dietary, social, vocati<strong>on</strong>al and<br />
health needs and <strong>the</strong>y should be managed accord<strong>in</strong>gly. As <strong>on</strong>e corresp<strong>on</strong>dent put<br />
it to us, it is not merely a questi<strong>on</strong> of women receiv<strong>in</strong>g equal treatment to men; <strong>in</strong><br />
<strong>the</strong> pris<strong>on</strong> system equality is everywhere c<strong>on</strong>flated with uniformity; women are<br />
treated as if <strong>the</strong>y were men … “C<strong>on</strong>s <strong>in</strong> Skirts” 266<br />
8.12 It was stated for example that different crim<strong>in</strong>ogenic needs of women <strong>in</strong>mates should be<br />
recognised <strong>in</strong> <strong>the</strong> c<strong>on</strong>structi<strong>on</strong> and delivery of programs <strong>in</strong> pris<strong>on</strong>s and by probati<strong>on</strong> and<br />
parole services. The crim<strong>in</strong>ogenic needs of female offenders were said to be:<br />
• be<strong>in</strong>g resp<strong>on</strong>sible for children<br />
• f<strong>in</strong>ancial problems,<br />
• limited job skills and opportunities,<br />
• cl<strong>in</strong>ical depressi<strong>on</strong>,<br />
• drug use,<br />
• absence of stable relati<strong>on</strong>ships,<br />
• antisocial peers and attitudes,<br />
• lack of affiliati<strong>on</strong> with pro-social agencies,<br />
• educati<strong>on</strong>al problems, and<br />
266 HM Chief Inspector of Pris<strong>on</strong>s (1997) quoted <strong>in</strong> paper presented by M. Bryne and Professor Kev<strong>in</strong> Howells,<br />
“Key Issues <strong>in</strong> <strong>the</strong> Provisi<strong>on</strong> of Correcti<strong>on</strong>al Services of Women.”<br />
150 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
•<br />
pers<strong>on</strong>ality and behavioural problems. 267<br />
8.13 There were a variety of suggesti<strong>on</strong>s as to how policies to recognise <strong>the</strong> above needs might<br />
be implemented <strong>in</strong> correcti<strong>on</strong>al envir<strong>on</strong>ments.<br />
We should also be ask<strong>in</strong>g whe<strong>the</strong>r standard offence-focussed programs, such as<br />
anger-management or substance abuse, should be presented <strong>in</strong> a different way for<br />
female offenders. There has been little discussi<strong>on</strong> <strong>in</strong> <strong>the</strong> literature as to which<br />
variati<strong>on</strong>s <strong>in</strong> practice are required. … Substance abuse has different antecedents<br />
and functi<strong>on</strong>s for women for men and that drugs and alcohol have more a<br />
“numb<strong>in</strong>g” of emoti<strong>on</strong> functi<strong>on</strong> for women. If this were true, programs for<br />
women would need to be modified to reflect this difference. … Pre-release<br />
courses for women would need to have a clearer focus <strong>on</strong> relapse preventi<strong>on</strong> and<br />
even more emphasis <strong>on</strong> develop<strong>in</strong>g skills for survival and <strong>in</strong>dependence <strong>in</strong> <strong>the</strong><br />
community. 268<br />
Transiti<strong>on</strong> from Pris<strong>on</strong><br />
8.14 Ano<strong>the</strong>r presenter elaborated <strong>on</strong> <strong>the</strong> sorts of problems faced by women after <strong>the</strong>y are<br />
released from pris<strong>on</strong>:<br />
Some women also felt affected by <strong>the</strong> “<strong>in</strong>stituti<strong>on</strong>” such that resum<strong>in</strong>g family<br />
resp<strong>on</strong>sibilities was difficult. Wilk<strong>in</strong>s<strong>on</strong> (<strong>in</strong> Morris and Wilk<strong>in</strong>s<strong>on</strong>, 1998) <strong>in</strong> a study<br />
of women enter<strong>in</strong>g and be<strong>in</strong>g released from pris<strong>on</strong> and tak<strong>in</strong>g a wider perspective,<br />
found hous<strong>in</strong>g problems and short term unstable liv<strong>in</strong>g arrangements a comm<strong>on</strong><br />
feature of both <strong>the</strong> pre and post pris<strong>on</strong> experience. Only a few women reta<strong>in</strong>ed<br />
<strong>the</strong>ir accommodati<strong>on</strong>, and this did occur it was through family assistance ra<strong>the</strong>r<br />
than agency <strong>in</strong>terventi<strong>on</strong>. In additi<strong>on</strong>, she found that multiple debts were<br />
comm<strong>on</strong>, with f<strong>in</strong>ancial; circumstances described by women as “drastic” and<br />
chr<strong>on</strong>ic” prior to <strong>in</strong>carcerati<strong>on</strong>. Typical <strong>the</strong> debts <strong>in</strong>cluded rent arrears,<br />
gas/electricity bills, higher purchase and outstand<strong>in</strong>g f<strong>in</strong>es. … Many <strong>in</strong> fact have<br />
difficult lives that are made harder by this crim<strong>in</strong>al justice process, frequently<br />
leav<strong>in</strong>g <strong>the</strong>m struggl<strong>in</strong>g with an <strong>in</strong>creas<strong>in</strong>g range of problems, whilst provid<strong>in</strong>g few<br />
soluti<strong>on</strong>s.” 269<br />
Need for Sentenc<strong>in</strong>g Data specific to Women<br />
8.15 O<strong>the</strong>rs highlighted important areas where more analysis and research was required. Fur<strong>the</strong>r<br />
research was recommended <strong>in</strong>to sentenc<strong>in</strong>g patterns for women, <strong>the</strong> operati<strong>on</strong> of bail laws,<br />
mortality rates for women post release from pris<strong>on</strong> and l<strong>in</strong>ks between traumatic life<br />
experiences and drug abuse by female offenders.<br />
267 Kev<strong>in</strong> Howells, “Treatment, Management and Rehabilitati<strong>on</strong> of Women <strong>in</strong> Pris<strong>on</strong>: Relevance of<br />
Rehabilitati<strong>on</strong> Pr<strong>in</strong>ciples.”<br />
268 Ibid.<br />
269 Judith Miller-Warke, Pris<strong>on</strong>ers as Women: Questi<strong>on</strong><strong>in</strong>g <strong>the</strong> Role and Place of Impris<strong>on</strong>ment.<br />
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<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
8.16 Dur<strong>in</strong>g <strong>the</strong> <strong>in</strong>quiry <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited <strong>the</strong> offices of <strong>the</strong> NSW Judicial Commissi<strong>on</strong>.<br />
Dur<strong>in</strong>g that visit <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> noted that <strong>the</strong> Commissi<strong>on</strong>’s computerised Sentenc<strong>in</strong>g<br />
Informati<strong>on</strong> System (SIS) could not display sentenc<strong>in</strong>g patterns for female offenders.<br />
Officers of <strong>the</strong> Commissi<strong>on</strong> resp<strong>on</strong>ded that <strong>the</strong> database had been c<strong>on</strong>structed to meet <strong>the</strong><br />
needs of judicial officers and that to date <strong>the</strong>y had not expressed a need to enquire as to<br />
whe<strong>the</strong>r sentenc<strong>in</strong>g pattern for females differs from males. Two presenters from <strong>the</strong><br />
Australian Bureau of Statistics (ABS) suggested a number of reas<strong>on</strong>s as to why such<br />
<strong>in</strong>formati<strong>on</strong> would be useful:<br />
The differ<strong>in</strong>g level of male and female crim<strong>in</strong>ality is <strong>on</strong>e of <strong>the</strong> “empirical puzzles<br />
of crim<strong>in</strong>ology” (Wea<strong>the</strong>rburn, 1993) and a variety of explanati<strong>on</strong>s have been put<br />
forward to account for <strong>the</strong>se patterns of differential <strong>in</strong>volvement. These <strong>in</strong>clude<br />
that women are <strong>in</strong>herently less <strong>in</strong>cl<strong>in</strong>ed to crim<strong>in</strong>al behaviour, and that women are<br />
selected diverted away from crim<strong>in</strong>al sancti<strong>on</strong>s, and that women are less <strong>in</strong>cl<strong>in</strong>ed<br />
to forms and patterns of crim<strong>in</strong>ality that are likely to lead to impris<strong>on</strong>ment. 270<br />
8.17 The ABS representatives also outl<strong>in</strong>ed o<strong>the</strong>r questi<strong>on</strong>s that have been of <strong>in</strong>terest to<br />
researchers about women who have come <strong>in</strong>to c<strong>on</strong>tact with <strong>the</strong> crim<strong>in</strong>al justice system.<br />
These <strong>in</strong>clude observati<strong>on</strong>s that recidivist rates for females are less than males, and<br />
hypo<strong>the</strong>sises that women are treated differently <strong>in</strong> court. They presented various <strong>the</strong>ories<br />
to expla<strong>in</strong> why women may be treated differently <strong>in</strong> court, <strong>in</strong>clud<strong>in</strong>g paternalism or<br />
“chivalry” <strong>on</strong> <strong>the</strong> part of sentencers or genu<strong>in</strong>e differences <strong>in</strong> <strong>the</strong> nature of female<br />
crim<strong>in</strong>ality. It has also been said that female crim<strong>in</strong>ality is more likely to be regarded as <strong>the</strong><br />
product of a disordered mental state than that or <strong>the</strong>ir male counterparts, and that female<br />
defendants are more likely to be viewed as requir<strong>in</strong>g treatment ra<strong>the</strong>r than punishment.<br />
The ABS representatives observed that:<br />
One of <strong>the</strong> fundamental barriers to mak<strong>in</strong>g sense of this puzzle is <strong>the</strong> lack of good<br />
quality data about <strong>the</strong> differential <strong>in</strong>volvement of men and women <strong>in</strong> crim<strong>in</strong>al<br />
behaviour and <strong>the</strong> various stages of <strong>the</strong> crim<strong>in</strong>al process. It is still <strong>the</strong> case that<br />
courts do not collect <strong>in</strong>formati<strong>on</strong> <strong>on</strong> <strong>the</strong> sex of defendants. 271<br />
8.18 Menti<strong>on</strong> has already been made <strong>in</strong> this report of <strong>the</strong> need to research <strong>in</strong> more detail <strong>the</strong><br />
means by which bail is granted <strong>in</strong> NSW. This issue first came to <strong>the</strong> attenti<strong>on</strong> of <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> as result of <strong>the</strong> paper presented by Ms Sue K<strong>in</strong>g, from <strong>the</strong> Social Policy<br />
Research Group, University of South Australia. 272<br />
Deaths of Women Post Release<br />
8.19 Dr Susanne Davies and Sandy Cook from La Trobe University <strong>in</strong> Victoria presented a<br />
ground-break<strong>in</strong>g study of <strong>the</strong> mortality rates for women leav<strong>in</strong>g pris<strong>on</strong>. They reported<br />
some early f<strong>in</strong>d<strong>in</strong>gs of <strong>the</strong>ir research <strong>in</strong>to <strong>the</strong> deaths of 93 women who had died with<strong>in</strong> 18<br />
270 Stuart Ross and Kay Forster, ABS, “Female Pris<strong>on</strong>ers: Us<strong>in</strong>g Impris<strong>on</strong>ment Statistics to Understand <strong>the</strong><br />
Place of Women <strong>in</strong> <strong>the</strong> Crim<strong>in</strong>al Justice System”.<br />
271 Ibid.<br />
272 Sue K<strong>in</strong>g, “Unsentenced Women <strong>in</strong> Custody”.<br />
152 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
m<strong>on</strong>ths of be<strong>in</strong>g released from Victorian pris<strong>on</strong>s. To date <strong>the</strong>y had been able to exam<strong>in</strong>e<br />
cor<strong>on</strong>ial files for 62 of <strong>the</strong>se women and <strong>the</strong>y had noted a number of disturb<strong>in</strong>g trends:<br />
• Only 2 of <strong>the</strong> 62 women had died of natural causes.<br />
• 45 out of <strong>the</strong> 62 women had died as a result of a drug overdose.<br />
• Only 6 of <strong>the</strong> drug related deaths <strong>in</strong>volved hero<strong>in</strong> al<strong>on</strong>e, <strong>the</strong> rest were a<br />
c<strong>on</strong>sequence of mixed drug toxicity, most of those <strong>in</strong>volv<strong>in</strong>g comb<strong>in</strong>ati<strong>on</strong>s of<br />
hero<strong>in</strong> and prescripti<strong>on</strong> drugs such as benzodiazep<strong>in</strong>es.<br />
• Of <strong>the</strong> rema<strong>in</strong><strong>in</strong>g 15 women, four were killed by overt acts of violence such as<br />
murder, five died <strong>in</strong> motor vehicle accidents and six died by suicide.<br />
• Many of <strong>the</strong> women died with<strong>in</strong> a very short period after release. Of <strong>the</strong> 45<br />
women who died of drug related causes, 6 had died with<strong>in</strong> two days of release,<br />
11 had died with<strong>in</strong> <strong>the</strong>ir first 14 days, and 22 had died less than three m<strong>on</strong>ths<br />
after <strong>the</strong>ir release. 273<br />
8.20 Evidence has been given to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> that similar trends are likely to have occurred <strong>in</strong><br />
NSW, however no specific records have been kept of <strong>the</strong> deaths of <strong>in</strong>mates which occur<br />
after release from custody. Dr Mat<strong>the</strong>ws, from NSW Correcti<strong>on</strong>s Health, told <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
The o<strong>the</strong>r health c<strong>on</strong>sequence of send<strong>in</strong>g (<strong>in</strong>travenous drug) <strong>in</strong>jectors to gaol is<br />
that you render people who use a lot of hero<strong>in</strong> relatively opiate naive. When <strong>the</strong>y<br />
get out of gaol and return to <strong>in</strong>ject<strong>in</strong>g, <strong>the</strong>y have lost <strong>the</strong>ir tolerance. They are<br />
often socially isolated, <strong>the</strong>y go out to Cabramatta, and <strong>the</strong>y “score”. They use <strong>on</strong><br />
<strong>the</strong>ir own and <strong>the</strong>y die. There are studies overseas from here, which suggest that<br />
very high mortality occurs after release from pris<strong>on</strong>. In <strong>the</strong> Seaman study, which<br />
was d<strong>on</strong>e <strong>in</strong> Cambridge <strong>in</strong> England, <strong>the</strong> mortality rate for <strong>in</strong>jectors released from<br />
pris<strong>on</strong> was 93 per thousand <strong>in</strong> <strong>the</strong> first three m<strong>on</strong>ths. That needs to be compared<br />
with <strong>the</strong> mortality rate of untreated hero<strong>in</strong> use of 24 to 30 thousand per year. 274<br />
8.21 Ano<strong>the</strong>r paper outl<strong>in</strong>ed research c<strong>on</strong>ducted at <strong>the</strong> Metropolitan Women’s Correcti<strong>on</strong>al<br />
Centre <strong>in</strong> Victoria, which l<strong>in</strong>ked trauma and drug abuse <strong>in</strong> female offenders. They found,<br />
after detailed survey<strong>in</strong>g of 70 women, that 76 per cent of <strong>the</strong>m had experienced some form<br />
of abuse <strong>in</strong> childhood or adolescence. O<strong>the</strong>r psychological tests were adm<strong>in</strong>istered to <strong>the</strong><br />
70 women to rate <strong>the</strong> level of trauma <strong>the</strong>y had experienced dur<strong>in</strong>g <strong>the</strong>ir lives and to<br />
determ<strong>in</strong>e <strong>the</strong> level to which <strong>the</strong>y had developed pers<strong>on</strong>al strategies for deal<strong>in</strong>g with stress<br />
and trauma. The study c<strong>on</strong>firmed earlier f<strong>in</strong>d<strong>in</strong>gs of high rates of trauma <strong>in</strong> <strong>the</strong><br />
backgrounds of female pris<strong>on</strong>ers, particularly childhood physical emoti<strong>on</strong>al and sexual<br />
abuse, poor cop<strong>in</strong>g strategies and significant trauma symptoms. The data suggests a<br />
possible l<strong>in</strong>k between <strong>the</strong>se experiences and <strong>the</strong> use of drugs and medicati<strong>on</strong> to cope with<br />
trauma symptoms. 275 The above research may have a particular relevance to how female<br />
273 Cook S & Davies S, Dy<strong>in</strong>g outside: women, parole and post release mortality, 2 nd Australian C<strong>on</strong>ference <strong>on</strong> Parole<br />
Boards & offenders Review Boards, 8 October 1999.<br />
274 Mat<strong>the</strong>ws Evidence 12 March 2001 p 37.<br />
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LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
drug offenders might be treated and has obvious implicati<strong>on</strong>s as to how <strong>the</strong> so called "war<br />
<strong>on</strong> drugs” may impact unfairly <strong>on</strong> a populati<strong>on</strong> of disadvantaged women <strong>in</strong> society.<br />
C<strong>on</strong>siderati<strong>on</strong> of C<strong>on</strong>ference research<br />
8.22 Overall <strong>the</strong> research presented at <strong>the</strong> c<strong>on</strong>ference provides a great deal of useful and<br />
important data <strong>on</strong> women pris<strong>on</strong>ers for those adm<strong>in</strong>ister<strong>in</strong>g <strong>the</strong> NSW pris<strong>on</strong> system.<br />
Recommendati<strong>on</strong> 28<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> recommends that <strong>the</strong> Department of Corrective Services Research<br />
and Statistics Branch exam<strong>in</strong>e <strong>the</strong> papers presented at <strong>the</strong> “Women <strong>in</strong> Correcti<strong>on</strong>s:<br />
Staff and Clients” hosted by <strong>the</strong> Australian Institute of Crim<strong>in</strong>ology <strong>in</strong> November<br />
2000. The Research Branch should determ<strong>in</strong>e whe<strong>the</strong>r <strong>the</strong>y should develop and<br />
pursue any of <strong>the</strong> suggesti<strong>on</strong>s for fur<strong>the</strong>r research <strong>in</strong> NSW or refer relevant data to<br />
o<strong>the</strong>r crime research bodies or <strong>in</strong>terested <strong>in</strong>dividual researchers. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
recommends <strong>the</strong> Branch give str<strong>on</strong>g c<strong>on</strong>siderati<strong>on</strong> to those projects deal<strong>in</strong>g with <strong>the</strong><br />
deaths of <strong>in</strong>mates post release, <strong>the</strong> operati<strong>on</strong> of bail laws and l<strong>in</strong>ks between trauma<br />
and patterns of drug abuse by female offenders.<br />
C<strong>on</strong>t<strong>in</strong>u<strong>in</strong>g Need to Reduce Growth <strong>in</strong> Impris<strong>on</strong>ment<br />
8.23 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> notes that <strong>the</strong> Department does not appear <strong>in</strong> its resp<strong>on</strong>se to believe that<br />
much can be d<strong>on</strong>e by it to reduce <strong>the</strong> growth <strong>in</strong> pris<strong>on</strong> populati<strong>on</strong> o<strong>the</strong>r than pursu<strong>in</strong>g its<br />
current strategies. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> firmly believes that policies should work toward<br />
reduc<strong>in</strong>g <strong>the</strong> number of offenders sentenced to impris<strong>on</strong>ment, and c<strong>on</strong>siders that <strong>the</strong><br />
recommendati<strong>on</strong>s c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> <strong>the</strong> Interim <strong>Report</strong> rema<strong>in</strong> pert<strong>in</strong>ent to debate <strong>on</strong> this matter.<br />
8.24 If evidence is needed that <strong>the</strong>re are alternatives to <strong>the</strong> current situati<strong>on</strong> <strong>in</strong> NSW pris<strong>on</strong>s, <strong>the</strong><br />
recent new directi<strong>on</strong> adopted by <strong>the</strong> Labor Government <strong>in</strong> Western Australia is worthy of<br />
c<strong>on</strong>siderati<strong>on</strong>. As was menti<strong>on</strong>ed <strong>in</strong> Chapter Three, Western Australia has experienced<br />
major growth <strong>in</strong> pris<strong>on</strong> numbers over <strong>the</strong> past decade. This has led to overcrowd<strong>in</strong>g, high<br />
recidivism rates and many of <strong>the</strong> o<strong>the</strong>r problems experienced <strong>in</strong> NSW pris<strong>on</strong>s. The<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> f<strong>in</strong>ishes its report with this recent speech <strong>on</strong> women <strong>in</strong> pris<strong>on</strong> by <strong>the</strong> West<br />
Australian M<strong>in</strong>ister for Justice and Legal Affairs, because of <strong>the</strong> applicability of much of<br />
what is said to <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong> <strong>in</strong> NSW:<br />
The 212 women who are impris<strong>on</strong>ed <strong>in</strong> Western Australia today are held <strong>in</strong><br />
c<strong>on</strong>diti<strong>on</strong>s that seriously disadvantage <strong>the</strong>m and impair <strong>the</strong>ir chances of successful<br />
rehabilitati<strong>on</strong> back <strong>in</strong>to <strong>the</strong> community. It is clear that we must do someth<strong>in</strong>g<br />
different for women offenders <strong>in</strong> custody. Women <strong>in</strong> Western Australia are held<br />
<strong>in</strong> what are effectively small male pris<strong>on</strong>s. This State does not have <strong>on</strong>e purposebuilt<br />
pris<strong>on</strong> for female pris<strong>on</strong>ers. Historically, <strong>the</strong> needs of female pris<strong>on</strong>ers have<br />
been little understood throughout <strong>the</strong> world, and Western Australia has been no<br />
275 Jac<strong>in</strong>ta Pollard and Deli Baker, “An Analysis of Cop<strong>in</strong>g Resources, Trauma and Significant Life Events <strong>in</strong> a<br />
Sample of Female Pris<strong>on</strong>ers.”<br />
154 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
excepti<strong>on</strong>. As o<strong>the</strong>r jurisdicti<strong>on</strong>s beg<strong>in</strong> to recognise and understand those needs<br />
and to manage <strong>the</strong>ir female pris<strong>on</strong>ers accord<strong>in</strong>gly, this State must also take up <strong>the</strong><br />
challenge so that it does not fail <strong>the</strong>se women, <strong>the</strong>ir families or <strong>the</strong> wider<br />
community.<br />
The purpose of any changes that I propose will be to reduce re-offend<strong>in</strong>g by<br />
women pris<strong>on</strong>ers after release. This is fundamental to crime preventi<strong>on</strong> and <strong>the</strong><br />
public enjoy<strong>in</strong>g a safe community. How well this is achieved will depend <strong>on</strong> how<br />
well <strong>the</strong> problems are def<strong>in</strong>ed. Women <strong>in</strong> pris<strong>on</strong> are not a representative sample<br />
of <strong>the</strong> community; <strong>the</strong>re is a high level of damage and dysfuncti<strong>on</strong> am<strong>on</strong>g <strong>the</strong>m. A<br />
few statistics illustrate <strong>the</strong> challenges that must be faced. More than 70 per cent of<br />
women <strong>in</strong> pris<strong>on</strong> report a history of substance abuse. In June this year, 85 per cent<br />
of <strong>the</strong> women pris<strong>on</strong>ers at Bandyup Women’s Pris<strong>on</strong> were <strong>on</strong><br />
medicati<strong>on</strong>….Thirty-n<strong>in</strong>e per cent of <strong>the</strong> women at Bandyup report a history of<br />
self-harm. More than 50 per cent of female pris<strong>on</strong>ers attended less than three<br />
years of sec<strong>on</strong>dary educati<strong>on</strong> and more than 80 per cent were unemployed at <strong>the</strong><br />
time <strong>the</strong>y were impris<strong>on</strong>ed.<br />
Coupled with this situati<strong>on</strong> of serious disadvantage is <strong>the</strong> fact that <strong>the</strong> majority of<br />
<strong>the</strong>se women are also <strong>the</strong> primary caregivers to children and dependent adults.<br />
This cycle of offend<strong>in</strong>g and impris<strong>on</strong>ment affects families and children and,<br />
<strong>the</strong>refore, <strong>the</strong> whole community. Active steps must be taken to break it.<br />
The situati<strong>on</strong> of <strong>in</strong>digenous women must also be kept central to any future<br />
plann<strong>in</strong>g and th<strong>in</strong>k<strong>in</strong>g. We must acknowledge <strong>the</strong> need to work with <strong>the</strong>se women<br />
<strong>in</strong> ways that are appropriate to both <strong>the</strong>ir sex and culture.<br />
As a result of my visit to overseas pris<strong>on</strong>s, any change to <strong>the</strong> pris<strong>on</strong> system here<br />
will not be slight. I want to take advantage of what I saw and learnt <strong>in</strong> Canada,<br />
M<strong>in</strong>nesota and England dur<strong>in</strong>g August. My aim is to have a pris<strong>on</strong> system that has<br />
aims and pr<strong>in</strong>ciples. The ultimate objective is to reduce <strong>the</strong> likelihood of women<br />
turn<strong>in</strong>g to crime <strong>on</strong> <strong>the</strong>ir release from pris<strong>on</strong>. Importantly, I want <strong>the</strong> community<br />
to c<strong>on</strong>tribute to this change.<br />
The most important po<strong>in</strong>t will be <strong>the</strong> establishment of a set of pr<strong>in</strong>ciples for<br />
guid<strong>in</strong>g decisi<strong>on</strong>-mak<strong>in</strong>g throughout <strong>the</strong> plann<strong>in</strong>g, c<strong>on</strong>structi<strong>on</strong> and<br />
implementati<strong>on</strong> phases of <strong>the</strong>se changes, and operati<strong>on</strong>al issues c<strong>on</strong>cern<strong>in</strong>g<br />
women’s impris<strong>on</strong>ment. The Canadians developed a set of pr<strong>in</strong>ciples, which have<br />
guided <strong>the</strong>ir build<strong>in</strong>g program, management <strong>in</strong>itiatives and program<br />
developments. Those pr<strong>in</strong>ciples refer to empowerment, mean<strong>in</strong>gful and<br />
resp<strong>on</strong>sible choices, respect and dignity, provid<strong>in</strong>g a supportive envir<strong>on</strong>ment, and<br />
shared resp<strong>on</strong>sibility. Western Australia must develop its own set of pr<strong>in</strong>ciples for<br />
deliver<strong>in</strong>g services to women.<br />
I want to br<strong>in</strong>g women <strong>in</strong> from <strong>the</strong>ir current isolati<strong>on</strong>ist positi<strong>on</strong> with<strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
system. For a variety of reas<strong>on</strong>s, women have been left out <strong>in</strong> <strong>the</strong> cold. Women<br />
are a small proporti<strong>on</strong> - about eight per cent - of <strong>the</strong> total pris<strong>on</strong> populati<strong>on</strong>. As a<br />
result, <strong>the</strong> system of impris<strong>on</strong>ment for women is bundled with<strong>in</strong> a system that<br />
suits men. This will change. All aspects of women’s impris<strong>on</strong>ment will be<br />
exam<strong>in</strong>ed to determ<strong>in</strong>e whe<strong>the</strong>r it meets <strong>the</strong> needs of women pris<strong>on</strong>ers.<br />
The first purpose built pris<strong>on</strong> for women <strong>in</strong> WA will be designed <strong>in</strong> <strong>the</strong> style of<br />
regi<strong>on</strong>al pris<strong>on</strong>s for women <strong>in</strong> Canada. These pris<strong>on</strong>s have a community liv<strong>in</strong>g<br />
style of design and management approach, which is c<strong>on</strong>sistent with <strong>the</strong> pr<strong>in</strong>ciples<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 155
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
underp<strong>in</strong>n<strong>in</strong>g Canadian women’s pris<strong>on</strong>s. This c<strong>on</strong>tributes to a reduced likelihood<br />
of pris<strong>on</strong>ers re-offend<strong>in</strong>g. This community liv<strong>in</strong>g style envir<strong>on</strong>ment requires a<br />
more domestic standard of c<strong>on</strong>structi<strong>on</strong> and accommodati<strong>on</strong> to enable <strong>the</strong><br />
women to undertake all cook<strong>in</strong>g, clean<strong>in</strong>g and laundry for <strong>the</strong>mselves, ra<strong>the</strong>r than<br />
that required for a traditi<strong>on</strong>al cell block. Female pris<strong>on</strong>ers should have maximum<br />
resp<strong>on</strong>sibility for <strong>the</strong>ir pers<strong>on</strong>al care and should c<strong>on</strong>tribute to decisi<strong>on</strong>-mak<strong>in</strong>g,<br />
<strong>in</strong>clud<strong>in</strong>g matters c<strong>on</strong>cern<strong>in</strong>g <strong>the</strong>ir sentence case plan.<br />
Many of <strong>the</strong> overseas pris<strong>on</strong>s place women <strong>in</strong> self-care units. This encourages<br />
good relati<strong>on</strong>ships between pris<strong>on</strong>ers and between pris<strong>on</strong>ers and staff. It also<br />
fosters <strong>in</strong>dependent liv<strong>in</strong>g….<br />
I will now turn to <strong>the</strong> staff-pris<strong>on</strong>er work<strong>in</strong>g relati<strong>on</strong>ship that I observed overseas.<br />
The quality of <strong>the</strong>se relati<strong>on</strong>ships is vital to <strong>the</strong> positive envir<strong>on</strong>ment of a pris<strong>on</strong>.<br />
In Canada, <strong>the</strong> envir<strong>on</strong>ment and positive community <strong>in</strong>teracti<strong>on</strong> is assisted by <strong>the</strong><br />
lack of formality; pris<strong>on</strong>ers wear <strong>the</strong>ir own clo<strong>the</strong>s, staff do not wear uniforms and<br />
first names are used. This envir<strong>on</strong>ment is not <strong>in</strong>timidat<strong>in</strong>g and is c<strong>on</strong>ducive to<br />
address<strong>in</strong>g <strong>the</strong> special needs of women, who very often have a history of sexual<br />
and physical abuse. The development of good relati<strong>on</strong>ships between staff and<br />
women pris<strong>on</strong>ers was reported at every site to be <strong>the</strong> measure of good<br />
management of <strong>the</strong> women.<br />
An important aspect of a positive pris<strong>on</strong> regime is <strong>the</strong> emphasis given to work<br />
programs and study while <strong>in</strong> pris<strong>on</strong>. The importance of mean<strong>in</strong>gful work for<br />
pris<strong>on</strong>ers <strong>in</strong> Canada and <strong>in</strong> <strong>the</strong> United States and its c<strong>on</strong>tributi<strong>on</strong> to a reducti<strong>on</strong> <strong>in</strong><br />
re-offend<strong>in</strong>g cannot be overstated. Work and tra<strong>in</strong><strong>in</strong>g are <strong>the</strong> key to <strong>the</strong> future<br />
<strong>in</strong>dependence of women when <strong>the</strong>y leave pris<strong>on</strong>. In Western Australia, more than<br />
80 per cent of female pris<strong>on</strong>ers were unemployed prior to <strong>in</strong>carcerati<strong>on</strong> and a high<br />
proporti<strong>on</strong> of those have never worked. In additi<strong>on</strong>, less than half have completed<br />
year 10 school<strong>in</strong>g. We must develop new employment programs such as those <strong>in</strong><br />
M<strong>in</strong>nesota and Canada. Both Canada and M<strong>in</strong>nesota have created partnerships<br />
with <strong>in</strong>dustry. Women are tra<strong>in</strong>ed and ga<strong>in</strong> skills and qualificati<strong>on</strong>s. This<br />
employment provides women with skills and experience that is relevant and is<br />
likely to lead to a paid job <strong>on</strong> leav<strong>in</strong>g <strong>the</strong> pris<strong>on</strong>. There is an <strong>on</strong>us <strong>on</strong> <strong>the</strong> pris<strong>on</strong><br />
system to help women develop <strong>the</strong>ir skills and potential and to help <strong>the</strong>m plan for<br />
<strong>the</strong> future, which <strong>in</strong>cludes educati<strong>on</strong>.<br />
…<br />
I want pris<strong>on</strong>ers to be able to count <strong>the</strong>ir skills and qualificati<strong>on</strong>s, ra<strong>the</strong>r than <strong>the</strong><br />
hours, days and m<strong>on</strong>ths <strong>the</strong>y are <strong>in</strong> pris<strong>on</strong>. It is entirely reas<strong>on</strong>able for pris<strong>on</strong>ers to<br />
ei<strong>the</strong>r work, actively participate <strong>in</strong> pris<strong>on</strong> programs, or undertake recognised and<br />
appropriate educati<strong>on</strong>al courses. Do<strong>in</strong>g noth<strong>in</strong>g is not an opti<strong>on</strong>. It is essential to<br />
make time spent <strong>in</strong> pris<strong>on</strong> more mean<strong>in</strong>gful. Go<strong>in</strong>g to work, successfully<br />
complet<strong>in</strong>g programs or pass<strong>in</strong>g courses of study should go towards early release<br />
from pris<strong>on</strong>. I will request <strong>the</strong> Department of Justice to structure work, programs<br />
and courses of study <strong>on</strong> a similar basis to that which occurs <strong>in</strong> <strong>the</strong> community. We<br />
are all expected to perform at work - <strong>the</strong>re are c<strong>on</strong>sequences if we do not.<br />
Pris<strong>on</strong>ers who turn up for work, programs or educati<strong>on</strong> should be rewarded with<br />
an early release date. Those pris<strong>on</strong>ers who passively resist any form of selfimprovement<br />
cannot expect an early release. Self-improvement should be<br />
rewarded.<br />
156 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Many pris<strong>on</strong>er programs <strong>in</strong> Western Australia are designed for men and are<br />
adapted for women. In c<strong>on</strong>trast, most programs <strong>in</strong> Canada are designed by<br />
women for women. The core federally sentenced women programs <strong>in</strong>volve issues<br />
such as liv<strong>in</strong>g skills, substance abuse, surviv<strong>in</strong>g abuse and trauma, and literacy,<br />
educati<strong>on</strong> and vocati<strong>on</strong>al tra<strong>in</strong><strong>in</strong>g. The programs aim to <strong>in</strong>crease pris<strong>on</strong>ers’ ability<br />
to functi<strong>on</strong> <strong>in</strong> <strong>the</strong> community; to improve social skills, <strong>in</strong>crease employment skills<br />
and to <strong>in</strong>tegrate <strong>in</strong>to fur<strong>the</strong>r programs and educati<strong>on</strong> or tra<strong>in</strong><strong>in</strong>g <strong>in</strong> <strong>the</strong><br />
community. In short, <strong>the</strong>y prepare pris<strong>on</strong>ers for a life without crime.<br />
As part of gett<strong>in</strong>g <strong>the</strong> design right, programs must be sensitive to cultural<br />
differences; <strong>the</strong>y must recognise Aborig<strong>in</strong>al cultural differences. The programs<br />
offered by Okimaw Ohci, <strong>the</strong> Aborig<strong>in</strong>al women’s pris<strong>on</strong> <strong>in</strong> Saskatchewan, are<br />
gender specific and appropriate to <strong>the</strong> aborig<strong>in</strong>al Cree community. The range of<br />
programs <strong>in</strong>cludes traditi<strong>on</strong>al teach<strong>in</strong>gs, and <strong>the</strong> sacred and cerem<strong>on</strong>ial activities<br />
of <strong>the</strong> Cree Nekaneet - <strong>the</strong> local Indian nati<strong>on</strong>. This short statement cannot do<br />
justice to <strong>the</strong> full importance of this facility for Aborig<strong>in</strong>al women <strong>in</strong> Canada.<br />
The site, <strong>the</strong> design and <strong>the</strong> spiritual comp<strong>on</strong>ent of <strong>the</strong> women’s programs were<br />
designed by <strong>the</strong> Cree Nekaneet elders. The build<strong>in</strong>g is designed to look like an<br />
eagle from <strong>the</strong> air; <strong>the</strong>re are no fences or physical boundaries, and <strong>the</strong> women are<br />
expected to manage <strong>the</strong>ir time accord<strong>in</strong>g to tight schedules. As with o<strong>the</strong>r<br />
Canadian facilities, <strong>the</strong> women wear <strong>the</strong>ir own clo<strong>the</strong>s, as do staff. They have also<br />
achieved an Aborig<strong>in</strong>al staff<strong>in</strong>g level of 40 per cent. Although pris<strong>on</strong>ers are<br />
residents, <strong>the</strong> titles of <strong>the</strong> staff relate to <strong>the</strong> community roles of mo<strong>the</strong>r, aunt, and<br />
older sister. The staff and community members participate <strong>in</strong> programs that are<br />
relevant to <strong>the</strong> area’s culture, and to <strong>the</strong> psychological, health, educati<strong>on</strong>al, and<br />
tra<strong>in</strong><strong>in</strong>g needs of <strong>the</strong> women. This is a most outstand<strong>in</strong>g example of bridg<strong>in</strong>g <strong>the</strong><br />
cultural divide between pris<strong>on</strong>s and <strong>the</strong> Aborig<strong>in</strong>al community. It is not proposed<br />
that we copy this model, but that we learn from its <strong>in</strong>novati<strong>on</strong> and <strong>in</strong>clusi<strong>on</strong> of<br />
Aborig<strong>in</strong>al people. Is it successful? The recidivism rate of 12 to 15 per cent is low.<br />
In Western Australia, approximately 40 per cent of pris<strong>on</strong>ers return to pris<strong>on</strong>.<br />
The ma<strong>in</strong> c<strong>on</strong>cerns of women pris<strong>on</strong>ers are <strong>the</strong>ir children, <strong>the</strong>ir home life and<br />
o<strong>the</strong>r relatives; what is happen<strong>in</strong>g to <strong>the</strong>ir families outside pris<strong>on</strong> is fundamental<br />
to <strong>the</strong>ir behaviour and wellbe<strong>in</strong>g while <strong>in</strong> pris<strong>on</strong>, and <strong>on</strong> release. In any future<br />
plans, family relati<strong>on</strong>ships will be supported, and babies and young children will<br />
be accommodated <strong>on</strong> <strong>the</strong> premises. Overnight visits for older children will also be<br />
arranged. To a limited extent this already occurs, but <strong>the</strong> Department of Justice<br />
will review its policies and plann<strong>in</strong>g to expand this practice.<br />
The Canadian women’s pris<strong>on</strong> provides a family-visits home <strong>in</strong> <strong>the</strong> pris<strong>on</strong><br />
c<strong>on</strong>sist<strong>in</strong>g of two bedrooms, a kitchen, bathroom, and a liv<strong>in</strong>g area. It can be<br />
booked for a weekend every two m<strong>on</strong>ths. At East Sutt<strong>on</strong> Park <strong>in</strong> England, this<br />
type of family visit is part of <strong>the</strong> <strong>in</strong>centives programs. Family relati<strong>on</strong>ships and<br />
l<strong>in</strong>ks to <strong>the</strong> community are visibly supported <strong>in</strong> women’s <strong>in</strong>stituti<strong>on</strong>s <strong>in</strong> both<br />
Canada and England. Both Canada and England have mo<strong>the</strong>r/baby policies and<br />
programs which are implemented <strong>in</strong> most women’s pris<strong>on</strong>s. Ongo<strong>in</strong>g family<br />
relati<strong>on</strong>ships are an important means of ensur<strong>in</strong>g a successful return to <strong>the</strong><br />
community, and of m<strong>in</strong>imis<strong>in</strong>g a dysfuncti<strong>on</strong>al family situati<strong>on</strong> that may lead to a<br />
cycle of offend<strong>in</strong>g and impris<strong>on</strong>ment. In future, <strong>the</strong> relati<strong>on</strong>ships that women<br />
have outside pris<strong>on</strong> will be given greater emphasis <strong>in</strong> <strong>the</strong> design of build<strong>in</strong>gs,<br />
pris<strong>on</strong>er programs and <strong>the</strong> day-to-day operati<strong>on</strong>s of women’s pris<strong>on</strong>s.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 157
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
The relati<strong>on</strong>ship that women pris<strong>on</strong>ers have with <strong>the</strong>ir own family is a small part<br />
of <strong>the</strong> relati<strong>on</strong>ship between a pris<strong>on</strong> and its community. The entrance to <strong>the</strong><br />
Edm<strong>on</strong>t<strong>on</strong> Instituti<strong>on</strong> for Women carries <strong>the</strong> statement, “Work<strong>in</strong>g In Partnership<br />
With The Community”. The pris<strong>on</strong> deliberately engages <strong>the</strong> community <strong>in</strong> <strong>the</strong><br />
re<strong>in</strong>tegrati<strong>on</strong> of offenders <strong>in</strong>to <strong>the</strong> community. A representative of <strong>the</strong> advisory<br />
group sits <strong>in</strong> <strong>on</strong> <strong>the</strong> first <strong>in</strong>terview of every new offender who comes <strong>in</strong>to <strong>the</strong><br />
pris<strong>on</strong>. The presence of <strong>the</strong> Citizens advisory Group representative is to rem<strong>in</strong>d<br />
<strong>the</strong> offenders that, although <strong>the</strong>y may have offended aga<strong>in</strong>st <strong>the</strong> community -<br />
from day <strong>on</strong>e <strong>the</strong> community is <strong>in</strong>terested <strong>in</strong> <strong>the</strong>ir return to that community. The<br />
community wants, and expects, an envir<strong>on</strong>ment free of crime - and <strong>the</strong><br />
community is prepared to play its part.<br />
The Grand Valley Instituti<strong>on</strong> for Women has a volunteer program, with up to 300<br />
active volunteers <strong>in</strong> many areas of <strong>the</strong> pris<strong>on</strong>. …The program is based <strong>on</strong> <strong>the</strong><br />
recogniti<strong>on</strong> that volunteers have an <strong>in</strong>tegral and important role to play <strong>in</strong> <strong>the</strong><br />
activities designed to help pris<strong>on</strong>ers become law-abid<strong>in</strong>g citizens. Pris<strong>on</strong>ers come<br />
from <strong>the</strong> community and, <strong>on</strong> release, will return to <strong>the</strong> community.<br />
What does this all add up to? Simply this: <strong>the</strong> Canadian Government and <strong>the</strong><br />
Canadian community have made a deliberate decisi<strong>on</strong> to establish and encourage<br />
<strong>the</strong> <strong>in</strong>volvement of community organisati<strong>on</strong>s to make a c<strong>on</strong>tributi<strong>on</strong> to pris<strong>on</strong>s.<br />
Community groups have embraced <strong>the</strong> opportunity to c<strong>on</strong>tribute to <strong>the</strong> pris<strong>on</strong><br />
system. I believe such community <strong>in</strong>volvement would be positive and beneficial <strong>in</strong><br />
this State. However, I readily acknowledge that c<strong>on</strong>cerns associated with safety<br />
and security would have to be addressed. Of all <strong>the</strong> women’s pris<strong>on</strong>s I visited<br />
overseas, <strong>on</strong>ly <strong>on</strong>e <strong>in</strong> England has a substantial fence. Shakopee <strong>in</strong> <strong>the</strong> USA,<br />
Okimah Ohci <strong>in</strong> Canada, and East Sutt<strong>on</strong> Park <strong>in</strong> England have no fences at all.<br />
The approach used <strong>in</strong> most of <strong>the</strong> pris<strong>on</strong>s that I visited is called “dynamic<br />
security.” This approach relies <strong>on</strong> <strong>the</strong> relati<strong>on</strong>ship between staff and residents to<br />
create <strong>the</strong> security. There is an expectati<strong>on</strong> that through c<strong>on</strong>trolled movement,<br />
women will be at <strong>the</strong>ir appo<strong>in</strong>ted places at appo<strong>in</strong>ted times. There is an emphasis<br />
<strong>on</strong> staff checks and searches, and limited reliance <strong>on</strong> cameras, electr<strong>on</strong>ic<br />
m<strong>on</strong>itor<strong>in</strong>g and lock<strong>in</strong>g.<br />
…<br />
The level of substance abuse and mental ill health am<strong>on</strong>gst women pris<strong>on</strong>ers is<br />
higher than that am<strong>on</strong>gst <strong>the</strong> male pris<strong>on</strong> populati<strong>on</strong> and <strong>the</strong> female populati<strong>on</strong> <strong>in</strong><br />
<strong>the</strong> community. It is important that we address <strong>the</strong>se problems while women are<br />
<strong>in</strong> pris<strong>on</strong> so that our goal of prevent<strong>in</strong>g re-offend<strong>in</strong>g can be achieved. In Western<br />
Australia, we already address substance abuse through programs for pris<strong>on</strong>ers;<br />
however, I would like to see more work d<strong>on</strong>e al<strong>on</strong>g <strong>the</strong> l<strong>in</strong>es of <strong>the</strong> <strong>in</strong>tensive drug<br />
treatment programs at Shakopee <strong>in</strong> M<strong>in</strong>nesota, and at <strong>the</strong> Grand Valley Institute<br />
<strong>in</strong> Kitchener, Canada. The program at Shakopee is a live-<strong>in</strong> <strong>in</strong>tensive <strong>the</strong>rapy<br />
approach. It provides three levels of programs: hardened users; new attendees <strong>in</strong><br />
drug <strong>the</strong>rapy; and relapse preventi<strong>on</strong>. The residents of <strong>the</strong> <strong>in</strong>tensive treatment unit<br />
are kept separate from <strong>the</strong> rest of <strong>the</strong> populati<strong>on</strong> to prevent any drugs com<strong>in</strong>g <strong>in</strong>to<br />
<strong>the</strong> unit. I observed a professi<strong>on</strong>al and tightly managed program.<br />
Grand Valley Institute has a mental health unit that also provides <strong>in</strong>tensive<br />
<strong>the</strong>rapy for drug abusers. The unit aims to address <strong>the</strong> psychosocial needs of<br />
women <strong>in</strong> pris<strong>on</strong>; <strong>the</strong> overuse of medicati<strong>on</strong>s; <strong>the</strong> <strong>in</strong>cidence of sexual abuse; <strong>the</strong><br />
high rate of mental health disorders am<strong>on</strong>gst women <strong>in</strong> pris<strong>on</strong>; and addicti<strong>on</strong>s.<br />
158 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
The issues for women <strong>in</strong> Western Australian pris<strong>on</strong>s are similar to those recorded<br />
for Canadian women pris<strong>on</strong>ers. In Western Australia, more than 40 per cent of<br />
women <strong>in</strong> custody have a history of mental health disorders; 26 per cent are<br />
currently under psychiatric care; and 85 per cent are <strong>on</strong> medicati<strong>on</strong>. such as<br />
psychotropics and antidepressants. More than 70 per cent have a history of<br />
substance abuse. This profile cannot, and should not, be ignored. The goal of an<br />
<strong>in</strong>tensive treatment unit for women pris<strong>on</strong>ers <strong>in</strong> Western Australia would be to<br />
see women pris<strong>on</strong>ers return to <strong>the</strong> community without risk of return<strong>in</strong>g to crime<br />
and drugs. In general, I observed a pragmatic but positive approach to drug use<br />
relapses. The relapses were treated as part of <strong>the</strong> care plan, and resulted <strong>in</strong><br />
punishment <strong>on</strong>ly when drug traffick<strong>in</strong>g was <strong>in</strong>volved.<br />
Before comment<strong>in</strong>g <strong>on</strong> <strong>the</strong> <strong>the</strong>rapeutic community approach to manag<strong>in</strong>g drugs <strong>in</strong><br />
pris<strong>on</strong>s, I want to briefly summarise my observati<strong>on</strong>s of good practice <strong>in</strong><br />
manag<strong>in</strong>g women offenders. Women’s facilities should be designed around a<br />
community c<strong>on</strong>cept and smaller self-managed units; women should have <strong>the</strong><br />
maximum resp<strong>on</strong>sibility possible for pers<strong>on</strong>al care and for c<strong>on</strong>tribut<strong>in</strong>g to<br />
decisi<strong>on</strong> mak<strong>in</strong>g, <strong>in</strong>clud<strong>in</strong>g <strong>the</strong>ir sentence case management plan; pris<strong>on</strong> staff need<br />
to be engaged with women offenders and support family relati<strong>on</strong>ships; and <strong>the</strong>re<br />
should be real employment and skills development opportunities that relate to<br />
future employment potential. C<strong>on</strong>siderati<strong>on</strong> of <strong>the</strong> site and <strong>the</strong> design to achieve<br />
<strong>the</strong> maximum community <strong>in</strong>teracti<strong>on</strong> is critical; offence-related programs must be<br />
targeted specifically to women; and women’s health and mental health issues must<br />
be kept at <strong>the</strong> forefr<strong>on</strong>t when plann<strong>in</strong>g facility design and service delivery.<br />
[The M<strong>in</strong>ister <strong>the</strong>n discussed overseas approaches to drugs <strong>in</strong> pris<strong>on</strong> and<br />
substance abuse programs]<br />
…<br />
It is also clear that <strong>the</strong>re is no alternative but to address <strong>the</strong> c<strong>on</strong>diti<strong>on</strong>s of women<br />
<strong>in</strong> pris<strong>on</strong> differently from that which has been <strong>the</strong> traditi<strong>on</strong>al approach. I am<br />
c<strong>on</strong>v<strong>in</strong>ced that many of <strong>the</strong> pr<strong>in</strong>ciples and practices adopted overseas,<br />
appropriately modified for Western Australia, will assist <strong>in</strong> improv<strong>in</strong>g <strong>the</strong> lot of<br />
women <strong>in</strong> pris<strong>on</strong> and prepare <strong>the</strong>m for release back <strong>in</strong>to <strong>the</strong> community to a life<br />
without crime. 276<br />
8.25 The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> believes <strong>the</strong> speech provides a good example of <strong>the</strong> alternative approach to<br />
an ever <strong>in</strong>creas<strong>in</strong>g pris<strong>on</strong> populati<strong>on</strong>, as well as provid<strong>in</strong>g a survey of <strong>in</strong>ternati<strong>on</strong>al best<br />
practise. The speech c<strong>on</strong>cerns women pris<strong>on</strong>ers, but, as <strong>the</strong> M<strong>in</strong>ister acknowledges, <strong>the</strong>re<br />
is much that is relevant to <strong>the</strong> entire pris<strong>on</strong> populati<strong>on</strong>. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> commends <strong>the</strong><br />
<strong>in</strong>novative approach be<strong>in</strong>g adopted <strong>in</strong> Western Australia, and hopes that NSW will not be<br />
too far beh<strong>in</strong>d.<br />
276 McG<strong>in</strong>ty J WA PND paper No 536, Statement to Legislative Assembly 30 August 2001 pp 3492.<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 159
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Appendix 1<br />
Submissi<strong>on</strong>s<br />
160 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Submissi<strong>on</strong>s<br />
No<br />
Author<br />
1 C<strong>on</strong>fidential<br />
2 C<strong>on</strong>fidential<br />
3 Mr Paul Kennedy<br />
4 C<strong>on</strong>fidential<br />
5 C<strong>on</strong>fidential<br />
6 C<strong>on</strong>fidential<br />
7 Mr Terrence R Stedman<br />
8 Mr Mark P Lyden<br />
9 Mr Garth Nilss<strong>on</strong><br />
10 R Richards<strong>on</strong><br />
11 Mr Peter Neame<br />
12 C<strong>on</strong>fidential<br />
13 Mr Richard D<strong>on</strong>ey<br />
14 Mrs Beatrice Fergus<strong>on</strong><br />
15 Mrs Ruth Tideman<br />
16 Mr Jim Ackland<br />
17 Mr Paul Neri (Middle Australia)<br />
18 C<strong>on</strong>fidential<br />
19 C<strong>on</strong>fidential<br />
20 C<strong>on</strong>fidential<br />
21 C<strong>on</strong>fidential<br />
22 Revd Howard Dill<strong>on</strong> (Anglicare Diocesan Services)<br />
23 Mrs Kerr<strong>in</strong>-Gai Hofstrand<br />
24 Ms Gerda Foster<br />
25 Mr Tim Anders<strong>on</strong> (Council for Civil Liberties)<br />
26 C<strong>on</strong>fidential<br />
27 Mrs G S Nicol<br />
28 Ms Tammy Carney (Yulawirri Nurai Indigenous Assoc. Incorp.)<br />
29 Ms Anne Sym<strong>on</strong>ds<br />
30 Mr Mark W McDougall<br />
31 Ms Carol O’D<strong>on</strong>nell (School of Behavioural and Community Health Sciences)<br />
32 Ms Victoria Potempa (Justice Acti<strong>on</strong>)<br />
33 Ms Valerie Joy (Quaker Peace and Justice NSW)<br />
34 Mr Ian Robert Mac Dougall (Australian Pris<strong>on</strong>ers Alliance)<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 161
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
35 Mr Terry Leary (W<strong>in</strong>dsor Gaol)<br />
36 Mr John G Carty (Wiradjuri Aborig<strong>in</strong>al Legal Service)<br />
37 Mr Gary Pudney (South Eastern Aborig<strong>in</strong>al Legal Service)<br />
38 Ms Jan Barnett (Josephite Justice Network Sisters of St Joseph)<br />
39 C<strong>on</strong>fidential<br />
40 C<strong>on</strong>fidential<br />
41 Emeritus Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> (School of Social Work)<br />
42 C<strong>on</strong>fidential<br />
43 Ms Marissa Koop<br />
44 Ms Amanda Pagan<br />
45 C<strong>on</strong>fidential<br />
46 Mr R<strong>on</strong>ald Bruce Humphries<br />
47 Ms Ela<strong>in</strong>e Chan<br />
48 Mr Christopher Banks<br />
49 Mr Ben Golder<br />
50 Ms Cecilia Koh<br />
51 Mr Paul West<strong>on</strong><br />
52 C<strong>on</strong>fidential<br />
53 Associate Professor Susan Hayes (Department of Behavioural Sciences <strong>in</strong> Medic<strong>in</strong>e,<br />
University of Sydney)<br />
54 Mr Michael Birch<br />
55 Ms M Eleanor Cater CSB (C<strong>on</strong>ference of Leaders of Religious Institutes <strong>in</strong> NSW)<br />
56 Ms M<strong>in</strong>dy Sotiri (CRC Justice Support Inc.)<br />
57 Ms Anitha Pillai<br />
58 C<strong>on</strong>fidential<br />
59 Dr Peter Grabowsky (Australian Institute of Crim<strong>in</strong>ology)<br />
60 Mr Edward J Mamo (‘Ngu<strong>on</strong> S<strong>on</strong>g’ Homeless Student Accommodati<strong>on</strong>)<br />
61 Bishop Kev<strong>in</strong> Mann<strong>in</strong>g (Diocese of Parramatta)<br />
62 C<strong>on</strong>fidential<br />
63 Mr Leo Keliher (Department of Corrective Services)<br />
64 Ms Jill Mckeowen<br />
65 C<strong>on</strong>fidential<br />
66 Ms Fi<strong>on</strong>a Power (Women’s & Girls’ Emergency Centre Inc.)<br />
67 C<strong>on</strong>fidential<br />
68 C<strong>on</strong>fidential<br />
69 Mr John Hennessy (NSW Teachers Federati<strong>on</strong>)<br />
70 Ms Gloria Larman (Children of Pris<strong>on</strong>ers’ Support Group Co-Op Limited)<br />
71 Mr Gary Moore (Council of Social Service of New South Wales)<br />
162 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
72 Mr J F Walker (Aborig<strong>in</strong>al Corporati<strong>on</strong> for Homeless and Rehabilitati<strong>on</strong><br />
Community Services)<br />
73 C<strong>on</strong>fidential<br />
74 Ms Margaret Allis<strong>on</strong> (Legal Aid of NSW)<br />
75 Mr Graeme Dunstan (Australian Cannabis Law Reform Movement)<br />
76 Mr Mat<strong>the</strong>w Scott Bogunovich<br />
77 Mr Michael Strutt (Justice Acti<strong>on</strong>)<br />
78 Ms Carol<strong>in</strong>e Dear<strong>in</strong>g (Sydney Regi<strong>on</strong>al Aborig<strong>in</strong>al Corporati<strong>on</strong> Legal Service)<br />
79 Professor Ian Wester & Ms Sandra Sunjic<br />
80 Ms Amy Engman<br />
81 Mr Col Ford<br />
82 Ms Rh<strong>on</strong>da Stien<br />
83 Mr Stuart Loveday<br />
84 Mr Ray Jacks<strong>on</strong><br />
85 C<strong>on</strong>fidential<br />
86 Mr Adrian Brannan<br />
87 Ms Le<strong>on</strong>nie Manns (The Disability Council of NSW)<br />
88 Mr Brian Henry Raven<br />
89 Ms Sarah Hopk<strong>in</strong>s<br />
90 Mr John C Nichols<strong>on</strong> SC (NSW Council of Civil Liberties)<br />
91 Ms Jill Sykes DTM (Toastmasters Internati<strong>on</strong>al)<br />
92 Ms Lyn B<strong>on</strong>d (“Jailbreak”)<br />
93 Mr John North (Law Society of New South Wales)<br />
94 Mr Ivan Potas (Judicial Commissi<strong>on</strong> of New South Wales)<br />
95 Ms Sally Wortley (Bra<strong>in</strong> Injury Associati<strong>on</strong> of NSW Inc.)<br />
96 C<strong>on</strong>fidential<br />
97 Ms Kath McFarlane (Positive Justice Centre)<br />
98 Ms Marilyn Chilvers (NSW Bureau of Crime Statistics and Research)<br />
99 The H<strong>on</strong> Richard J<strong>on</strong>es MLC (Legislative Council)<br />
100 Mr Sim<strong>on</strong> French<br />
101 Ms Ca<strong>the</strong>r<strong>in</strong>e Clarke<br />
102 The H<strong>on</strong> Dr Peter W<strong>on</strong>g AM MLC (Legislative Council)<br />
103 C<strong>on</strong>fidential<br />
104 Ms Anna-Louise Van Gelder (C<strong>on</strong>ference of Leaders of Religious Instituti<strong>on</strong>s <strong>in</strong><br />
NSW)<br />
105 C<strong>on</strong>fidential<br />
106 Ms Solange Rosa (Positive Justice Centre)<br />
107 The H<strong>on</strong> Kep Enderby QC (Serious Offenders Review Council)<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 163
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
108 C<strong>on</strong>fidential<br />
109 Mr Garth Luke (Department of Juvenile Justice)<br />
110 C<strong>on</strong>fidential<br />
111 C<strong>on</strong>fidential<br />
112 Ms Astrid Perry (NSW Migrant Resource Centre Forum)<br />
113 C<strong>on</strong>fidential<br />
114 Mr Paul Knobel<br />
115 Dr Eileen Baldry (The No New Women’s Pris<strong>on</strong> Campaign)<br />
116 Miss Kath Reynolds<br />
117 Ms Astrid Perry (St George Migrant Resource Centre, <strong>on</strong> behalf of NSW Migrant<br />
Resource Centre Forum)<br />
118 Sister Pat Snudden (Sisters of St Joseph)<br />
119 Sister Annette Cunliffe RSC (Sisters of Charity of Australia)<br />
120 Ms Margaret H<strong>in</strong>chey RSM (Catholics Coaliti<strong>on</strong> for Justice and Peace)<br />
121 Ms Margaret O’Sullivan (St Paul of <strong>the</strong> Cross’ Parish, Dulwich Hill)<br />
122 Mr Greg Moran<br />
123 Mr Michael Hill<br />
124 Mr & Mrs Byrne<br />
125 Sister Betty Moriarty (Religious of <strong>the</strong> Sacred Heart)<br />
126 Ms Patricia Halligan (Outer Western Good Shepherd Social Justice Network)<br />
127 Mrs Susan Dryza<br />
128 Ms Naomi Smith<br />
129 P O’Keeffe<br />
130 Sister Ver<strong>on</strong>ica McCaffrey<br />
131 Ms Theresa Foley<br />
132 Ms Libby Rogers<strong>on</strong> (Diocese of Parramatta)<br />
133 Sister Marie Gaudry RSM (Marymount Mercy Centre)<br />
134 Ms Joan Grady<br />
135 Ms Therese Gaudry<br />
136 Sister E Herscovitch<br />
137 C<strong>on</strong>fidential<br />
138 Ms Sheila Qu<strong>on</strong>aey<br />
139 Ms Carol O’D<strong>on</strong>nell<br />
140 C<strong>on</strong>fidential<br />
141 C<strong>on</strong>fidential<br />
142 Ms Anne Webb (Guthrie House)<br />
143 C<strong>on</strong>fidential<br />
144 Mr John Smith<br />
164 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
145 Ms Beatrice Fergus<strong>on</strong><br />
146 Mr Terry Leary<br />
147 Mr Stephen Rae<br />
148 Mrs Lynne Watts<br />
149 Mrs Dawn Reid<br />
150 C<strong>on</strong>fidential<br />
151 Mr Dennis Bourke<br />
152 Mr Geoffrey Thomas<br />
153 Dr David Moore (Transformative Justice Australia)<br />
154 Mr John Griffiths<br />
155 Ms Carol O’D<strong>on</strong>nell (School of Behavioural and Community Health Sciences,<br />
Faculty of Heath Sciences, University of Sydney)<br />
156 Mr Peter Neame<br />
157 Mr Michael Birch<br />
158 C<strong>on</strong>fidential<br />
159 Mr Geoffrey Thomas<br />
160 Mr David Oakley<br />
161 Councillor Thang Ngo (Fairfield Council)<br />
162 Mr John Murray (Positive Justice Centre)<br />
163 Ms Claudette Palmer RSC<br />
164 Mr Craig Baird (Pris<strong>on</strong>ers’ Aid Associati<strong>on</strong> of NSW)<br />
165 Mr Brian Charlt<strong>on</strong> (Life Eng<strong>in</strong>eer<strong>in</strong>g)<br />
166 Mr David Oakley<br />
167 Ms Vicki Potempa<br />
168 Mr John H Prest<strong>on</strong><br />
169 C<strong>on</strong>fidential<br />
170 Dr David Taylor<br />
171 Mr and Mrs G<strong>on</strong>zalez-Betes<br />
172 Ms Sue Sacker (Schizophrenia Fellowship Inc.)<br />
173 C<strong>on</strong>fidential<br />
174 C<strong>on</strong>fidential<br />
175 Mr Gary Pudney (South Eastern Aborig<strong>in</strong>al Legal Service)<br />
176 Ms M<strong>in</strong>dy Sotiri (CRC Justice Support)<br />
177 Mr Yvo Cleyman<br />
178 Mr John Griffiths<br />
179 Commissi<strong>on</strong>er Des Williams (Nati<strong>on</strong>al Legal and Preventative Services, Aborig<strong>in</strong>al<br />
and Torres Strait Islander Commissi<strong>on</strong>)<br />
180 Ms Julie Wellsmore (Department of Social Work, University of Newcastle)<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 165
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
181 Mr Michael Keat<strong>in</strong>g<br />
182 Ms Margaret Archer (Er<strong>in</strong>’s Place Inc)<br />
183 The H<strong>on</strong> Peter Breen MLC (Legislative Council)<br />
184 C<strong>on</strong>fidential<br />
185 C<strong>on</strong>fidential<br />
186 C<strong>on</strong>fidential<br />
187 C<strong>on</strong>fidential<br />
188 C<strong>on</strong>fidential<br />
189 C<strong>on</strong>fidential<br />
190 C<strong>on</strong>fidential<br />
191 C<strong>on</strong>fidential<br />
192 C<strong>on</strong>fidential<br />
193 Mrs J Tendys (Sydney Unitarian Church)<br />
194 C<strong>on</strong>fidential<br />
195 Ms Fi<strong>on</strong>a Werle<br />
196 C<strong>on</strong>fidential<br />
197 C<strong>on</strong>fidential<br />
198 Leilagi Poutogi, Western Samoa<br />
166 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Appendix 2<br />
Witnesses & Visits<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 167
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Witnesses<br />
19 October 2000 (Parliament House, Sydney)<br />
Mr Graham Egan<br />
Secretary<br />
New South Wales Parole Board<br />
Mr L<strong>in</strong>dsay Le Compte<br />
Inspector-General<br />
Corrective Services<br />
Mr Garth Luke<br />
Social Worker<br />
Mr Douglas Humphreys<br />
Director<br />
Crim<strong>in</strong>al Law, Legal Aid Commissi<strong>on</strong> of New South Wales<br />
Mr Craig Baird<br />
Manager<br />
Pris<strong>on</strong>ers Aid Associati<strong>on</strong> of New South Wales<br />
Mr Stuart Loveday<br />
Executive Director<br />
Hepatitis C Council of New South Wales<br />
20 October 2000 (Parliament House, Sydney)<br />
Mr John North<br />
Solicitor<br />
President of <strong>the</strong> Law Society of New South Wales<br />
Ms Violet Roumeliotis<br />
Executive Officer<br />
CRC Justice Support<br />
Mr Isileli Tuitavuici<br />
Pris<strong>on</strong>er Advocate<br />
CRC Justice Support<br />
Mr Kenneth Buttrum<br />
Director General<br />
Department of Juvenile Justice<br />
23 October 2000 (Goulburn Correcti<strong>on</strong>al Centre)<br />
Witnesses No. 1 to 10<br />
Inmates (Evidence taken <strong>in</strong> camera)<br />
Goulburn Correcti<strong>on</strong>al Centre<br />
Mr David White<br />
Correcti<strong>on</strong>al Officer<br />
Goulburn Correcti<strong>on</strong>al Centre<br />
168 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Mr Graeme Wood<br />
Manager of Adm<strong>in</strong>istrati<strong>on</strong><br />
Goulburn Correcti<strong>on</strong>al Centre<br />
Mr Peter Kay<br />
Programs Manager<br />
Goulburn Correcti<strong>on</strong>al Centre<br />
Mr Roy McNair<br />
Senior Assistant Super<strong>in</strong>tendent<br />
Goulburn Correcti<strong>on</strong>al Centre<br />
Mr Warwick J<strong>on</strong>es<br />
Act<strong>in</strong>g Manager of Industries<br />
Goulburn Correcti<strong>on</strong>al Centre<br />
24 October 2000 (Wagga Wagga RSL Club & Junee Correcti<strong>on</strong>al Centre)<br />
Mr John Carty<br />
Pr<strong>in</strong>cipal Solicitor<br />
Wiradjuri Aborig<strong>in</strong>al Legal Service<br />
Mr Hewitt Whyman<br />
Chairman<br />
ATSIC Regi<strong>on</strong>al Council<br />
Ms Daphne Shea<strong>the</strong>r<br />
Wagga Wagga Aborig<strong>in</strong>al Assistance Scheme<br />
Mr Denis Nickle<br />
District Manager<br />
Probati<strong>on</strong> and Parole Service<br />
Witnesses No. 5-14<br />
Inmates<br />
Junee Correcti<strong>on</strong>al Centre<br />
Ms Helen Haywood<br />
Psychologist<br />
Care of Junee Correcti<strong>on</strong>al Centre<br />
Mr Paul Willis<br />
Case Management Co-ord<strong>in</strong>ator<br />
Junee Correcti<strong>on</strong>al Centre<br />
28 November 2000 (Parliament House, Sydney)<br />
Dr Peter Grabosky<br />
Director of Research<br />
Australian Institute of Crim<strong>in</strong>ology<br />
12 March 2001 (Parliament House, Sydney)<br />
Ms Marilyn Chilvers<br />
Statistical Services Manager<br />
NSW Bureau of Crime Statistics and Research<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 169
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Mr Sim<strong>on</strong> Eyland<br />
Director<br />
Research and Statistics Unit, NSW Department of Corrective Services<br />
Ms Rh<strong>on</strong>da Booby<br />
Director<br />
Restorative Justice Unit, Department of Corrective Services<br />
Mr Richard Mat<strong>the</strong>ws<br />
Chief Executive Officer<br />
Correcti<strong>on</strong>s Health<br />
Mr Robert Ramjan<br />
Executive Officer<br />
Schizophrenia Fellowship<br />
Ms Le<strong>on</strong>ie Manns<br />
Chairpers<strong>on</strong><br />
Disability Council of New South Wales<br />
Mr Kev<strong>in</strong> Byrne<br />
Executive Officer<br />
Disability Council of New South Wales<br />
19 March 2001<br />
Ms Max<strong>in</strong>e C<strong>on</strong>atry<br />
Private citizen<br />
Mr Hewitt Whyman<br />
Private citizen<br />
Mr Andrew Riley<br />
Private citizen<br />
Mr Edward Mamo<br />
Private citizen<br />
Witnesses No. 5 and 6<br />
Private citizens (Evidence taken <strong>in</strong> camera)<br />
12 June 2001 (Parliament House, Sydney)<br />
Emeritus Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> Head<br />
School of Social Work, University of NSW<br />
Dr Eileen Baldry<br />
Senior Lecturer<br />
School of Social Work, University of NSW<br />
Ms Deborah Allen<br />
Director<br />
Strategy and Policy, Department of Corrective Services<br />
170 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Mr Luke Grant<br />
Assistant Commissi<strong>on</strong>er for Inmate Management<br />
Department of Corrective Services<br />
Dr Joanna Penglase<br />
Careleavers of Australia Network<br />
Mr John Murray<br />
Positive Justice Centre<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 171
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Visits<br />
23 October 2000 Goulburn Correcti<strong>on</strong>al Centre<br />
24 October 2000 Wagga Wagga RSL Club<br />
Junee Correcti<strong>on</strong>al Centre<br />
13 March 2001 Drug Court of NSW (George Street, Parramatta)<br />
The committee received a brief<strong>in</strong>g from:<br />
• Judge Mils<strong>on</strong><br />
• Mr Castellan, Registrar<br />
• Dr Reid, Psychiatrist<br />
19 March 2001 Central Local Court<br />
NSW Judicial Commissi<strong>on</strong> (George Street, Sydney)<br />
The committee received a brief<strong>in</strong>g from:<br />
• Mr Ernie Schmatt, Chief Executive<br />
• Mr Ivan Potas, Director, Research and Publish<strong>in</strong>g<br />
The committee received a brief<strong>in</strong>g from:<br />
• Dr J<strong>on</strong>ath<strong>on</strong> Carne, Psychiatrist<br />
• Mr Prior, Nurse<br />
• Mr Nichols, Clerk of <strong>the</strong> Court<br />
22 March 2001 L<strong>on</strong>g Bay Correcti<strong>on</strong>al Complex (Malabar Road)<br />
.<br />
- Malabar Special Programs Centre<br />
- Metropolitan Medical Transient Centre<br />
- L<strong>on</strong>g Bay Hospital<br />
The committee received a brief<strong>in</strong>g from:<br />
• Mr John Klok, Regi<strong>on</strong>al Commander, Metropolitan Regi<strong>on</strong><br />
• Dr Richard Mat<strong>the</strong>ws, Chief Executive Officer, Correcti<strong>on</strong>s<br />
Health<br />
• Mr Luke Grant, Assistant Commissi<strong>on</strong>er for Inmate<br />
Management, Department of Corrective Services<br />
• Senior staff of <strong>the</strong> Malabar Special Programs Centre (MSPC) and<br />
<strong>the</strong> CUBIT program<br />
172 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Appendix 3<br />
M<strong>in</strong>utes of <strong>the</strong> Proceed<strong>in</strong>gs<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 173
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Meet<strong>in</strong>g No 17<br />
1.10 pm 31 August 2000<br />
Parliament House<br />
Apologies<br />
Ms Saff<strong>in</strong><br />
1. Corresp<strong>on</strong>dence<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> noted <strong>the</strong> follow<strong>in</strong>g corresp<strong>on</strong>dence tabled by <strong>the</strong> Chair:<br />
• Letter from Dr Susan Hayes dated 21 August 2000<br />
• Letter from Presentati<strong>on</strong> Sisters Wagga Wagga<br />
• Letter from Violet Roumeliotis, CRC Justice Support, dated 16 August<br />
2. Transcript of discussi<strong>on</strong>s with Mr Ryan and Mr Primrose<br />
Mr Primrose tabled a transcript of discussi<strong>on</strong>s held with he and Mr Ryan and staff and <strong>in</strong>mates of <strong>the</strong><br />
Metropolitan Remand and Recepti<strong>on</strong> Centre.<br />
3. <strong>Report</strong><strong>in</strong>g date<br />
Mr Primrose moved: That <strong>the</strong> committee directs <strong>the</strong> Chair to seek from <strong>the</strong> House an extensi<strong>on</strong> of <strong>the</strong><br />
date for <strong>the</strong> committee’s f<strong>in</strong>al report to 29 June 2001—put and passed.<br />
4. Call for fur<strong>the</strong>r submissi<strong>on</strong>s<br />
Ms Rhiann<strong>on</strong> moved: That:<br />
(1) c<strong>on</strong>t<strong>in</strong>gent <strong>on</strong> <strong>the</strong> grant<strong>in</strong>g of an extensi<strong>on</strong> of <strong>the</strong> committee’s f<strong>in</strong>al report<strong>in</strong>g date, <strong>the</strong><br />
committee calls for fur<strong>the</strong>r submissi<strong>on</strong>s, to be received by 30 November 2000.<br />
(2) advertisements for fur<strong>the</strong>r submissi<strong>on</strong>s be placed <strong>in</strong> <strong>the</strong> Sydney Morn<strong>in</strong>g Herald, Daily<br />
Telegraph and The Australian newspapers—put and passed.<br />
5. Government resp<strong>on</strong>se<br />
Miss Gard<strong>in</strong>er moved: That <strong>the</strong> committee directs <strong>the</strong> Chair to seek from <strong>the</strong> House a resoluti<strong>on</strong><br />
requir<strong>in</strong>g <strong>the</strong> Government to resp<strong>on</strong>d to <strong>the</strong> committee’s <strong>in</strong>terim report with<strong>in</strong> six m<strong>on</strong>ths of tabl<strong>in</strong>g.<br />
6. Publicati<strong>on</strong> of submissi<strong>on</strong>s<br />
Miss Gard<strong>in</strong>er moved: That <strong>the</strong> committee authorises <strong>the</strong> publicati<strong>on</strong> of <strong>the</strong> submissi<strong>on</strong>s received by 15<br />
August 2000 except those submissi<strong>on</strong>s received from <strong>in</strong>mates and those request<strong>in</strong>g c<strong>on</strong>fidentiality.<br />
7. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 1.45 pm.<br />
Russell Keith<br />
Clerk to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
174 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Members Present<br />
Ms Burnswoods<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Meet<strong>in</strong>g No 18<br />
10.06 am Thursday 19 October 2000<br />
Parliament House<br />
Apologies<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Ms Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
The committee heard evidence from <strong>the</strong> follow<strong>in</strong>g pers<strong>on</strong>s:<br />
Graham John Egan, Secretary, New South Wales Parole Board, level 15/24 Campbell Street, Sydney,<br />
affirmed and exam<strong>in</strong>ed,<br />
L<strong>in</strong>dsay Graham Le Compte, Inspector-General of Corrective Services, Level 19, 477 Pitt Street,<br />
Sydney, affirmed and exam<strong>in</strong>ed.<br />
2. Deliberati<strong>on</strong><br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sidered <strong>the</strong> Clerk’s advice regard<strong>in</strong>g <strong>the</strong> compla<strong>in</strong>t from Dr Hayes.<br />
3. Public Hear<strong>in</strong>g<br />
The committee heard evidence from <strong>the</strong> follow<strong>in</strong>g pers<strong>on</strong>s:<br />
Garth James Luke, Social Worker of 2 Terania Street, The Chann<strong>on</strong>, affirmed and exam<strong>in</strong>ed,<br />
Douglas John Humphreys, Director, Crim<strong>in</strong>al Law, Legal Aid Commissi<strong>on</strong> of New South Wales, Level<br />
1, 323 Castlereagh Street, Sydney, sworn exam<strong>in</strong>ed,<br />
Craig Lawrence Baird, Manager, Pris<strong>on</strong>ers Aid Associati<strong>on</strong> of New South Wales, 174 Broadway,<br />
Broadway, affirmed and exam<strong>in</strong>ed,<br />
Stuart K<strong>in</strong>noch Loveday, Executive Director, Hepatitis C Council of New South Wales, P.O. Box 432,<br />
Darl<strong>in</strong>ghurst, affirmed and exam<strong>in</strong>ed.<br />
Mr Loveday tabled “SCIPP Inquiry Evidence Notes” and “Pris<strong>on</strong>s and Blood Borne Communicable<br />
Diseases: The Community View”<br />
4. Publicati<strong>on</strong> of Proceed<strong>in</strong>gs<br />
Ms Rhiann<strong>on</strong> moved: That <strong>the</strong> committee authorises <strong>the</strong> publicati<strong>on</strong> of <strong>the</strong> transcripts of today’s public<br />
hear<strong>in</strong>gs and of papers tabled at those hear<strong>in</strong>gs—put and passed.<br />
5. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 5.40 pm.<br />
Russell Keith<br />
Clerk to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 175
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Members Present<br />
Ms Burnswoods<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Meet<strong>in</strong>g No 19<br />
10.02 am Friday 20 October 2000<br />
Parliament House<br />
Apologies<br />
Dr Chesterfield-Evans<br />
Ms Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
The committee heard evidence from <strong>the</strong> follow<strong>in</strong>g pers<strong>on</strong>s:<br />
John Frederick Stuart North, Solicitor, President of <strong>the</strong> Law Society of New South Wales, 170 Phillip<br />
Street Sydney, sworn and exam<strong>in</strong>ed,<br />
Violet Roumeliotis, Executive Officer, CRC Justice Support, 174 Broadway, Broadway, and Isileli<br />
Tuitavuici, Pris<strong>on</strong>er Advocate, CRC Justice Support, 174 Broadway, Broadway, affirmed and exam<strong>in</strong>ed.<br />
2. Deliberati<strong>on</strong><br />
Mr Primrose moved and Miss Gard<strong>in</strong>er sec<strong>on</strong>ded: That <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> send letters to Ms Catri<strong>on</strong>a<br />
McComish and Dr Leo Keliher seek<strong>in</strong>g an explanati<strong>on</strong> of <strong>the</strong> circumstances of Dr Hayes compla<strong>in</strong>t of<br />
21 August 2000 <strong>in</strong> <strong>the</strong> same terms as <strong>the</strong> draft letters circulated by <strong>the</strong> Clerk of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> this<br />
day—put and passed.<br />
3. Public Hear<strong>in</strong>g<br />
Kenneth John Buttrum, Director General, Department of Juvenile Justice, Roden Cutler House, 24<br />
Campbell Street, Haymarket, sworn and exam<strong>in</strong>ed.<br />
Mr Buttrum tabled certa<strong>in</strong> papers.<br />
4. Publicati<strong>on</strong> of Proceed<strong>in</strong>gs<br />
Mr Primrose moved and Ms Rhiann<strong>on</strong> sec<strong>on</strong>ded: That <strong>the</strong> committee authorises <strong>the</strong> publicati<strong>on</strong> of <strong>the</strong><br />
transcripts of today’s public hear<strong>in</strong>gs and of papers tabled at those hear<strong>in</strong>gs—put and passed.<br />
5. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 3.30 pm.<br />
Russell Keith<br />
Clerk to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
176 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Meet<strong>in</strong>g No 20<br />
1.15 pm M<strong>on</strong>day 23 October 2000<br />
Goulburn Correcti<strong>on</strong>al Centre<br />
Members Present<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Ms Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
The committee heard evidence from <strong>the</strong> follow<strong>in</strong>g pers<strong>on</strong>s:<br />
David Alan White, Correcti<strong>on</strong>al Officer, Goulburn Correcti<strong>on</strong>al Centre, Graeme John Wood, Manager<br />
Of Adm<strong>in</strong>istrati<strong>on</strong>, Goulburn Correcti<strong>on</strong>al Centre, Peter Archie Arthur Kay, Programs Manager,<br />
Goulburn Correcti<strong>on</strong>al Centre, Roy Mcgregor Mcnair, Senior Assistant Super<strong>in</strong>tendent, Goulburn<br />
Correcti<strong>on</strong>al Centre, And, Warwick Thomas J<strong>on</strong>es, Act<strong>in</strong>g Manager of Industries, Goulburn<br />
Correcti<strong>on</strong>al Centre, sworn and exam<strong>in</strong>ed.<br />
Goulburn Correcti<strong>on</strong>al Centre staff left <strong>the</strong> room. The <strong>in</strong>mates <strong>in</strong>dicated no objecti<strong>on</strong> to Department<br />
of Corrective Services central office staff be<strong>in</strong>g present.<br />
10 <strong>in</strong>mates were exam<strong>in</strong>ed.<br />
As <strong>the</strong> majority of pers<strong>on</strong>s exam<strong>in</strong>ed <strong>in</strong>dicated that <strong>the</strong>y did not want <strong>the</strong>ir names or evidence to be<br />
published, <strong>the</strong> Chair <strong>in</strong>dicated that <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> would probably not publish <strong>the</strong> transcript.<br />
2. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 3.45 pm.<br />
Russell Keith<br />
Clerk to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 177
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Meet<strong>in</strong>g No 21<br />
10.00 am Tuesday 24 October 2000<br />
Wagga Wagga RSL Club & Junee Correcti<strong>on</strong>al Centre<br />
Members Present<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Ms Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
Isobel Reid, Wiradjuri Elder, welcomed <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to Wiradjuri country.<br />
The committee heard evidence from <strong>the</strong> follow<strong>in</strong>g pers<strong>on</strong>s:<br />
John Gerard Carty, Pr<strong>in</strong>cipal Solicitor, Wiradjuri Aborig<strong>in</strong>al Legal Service, Post Office Box 5036, Wagga<br />
Wagga, Hewitt Robert Whyman, Chairman, ATSIC Regi<strong>on</strong>al Council, Post Office Box 1110, Wagga<br />
Wagga, and Daphne Shea<strong>the</strong>r, of <strong>the</strong> Wagga Wagga Aborig<strong>in</strong>al Assistance Scheme, Post Office Box<br />
1007, Wagga Wagga,<br />
Denis Nickle, District Manager, Probati<strong>on</strong> and Parole Service<br />
2. Recess<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> went <strong>in</strong>to recess at 12.30 pm and travelled to Junee Correcti<strong>on</strong>al Centre. The<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> rec<strong>on</strong>vened at 3.15 pm.<br />
3. Public Hear<strong>in</strong>g<br />
Junee Correcti<strong>on</strong>al Centre staff left <strong>the</strong> room. The <strong>in</strong>mates <strong>in</strong>dicated no objecti<strong>on</strong> to Department of<br />
Corrective Services central office staff be<strong>in</strong>g present.<br />
The committee heard evidence from 10 <strong>in</strong>mates.<br />
Helen Mary Haywood, Psychologist, Care of Junee Correcti<strong>on</strong>al Centre, Post Office Box 197, Junee,<br />
and Paul James Willis, Case Management Co-ord<strong>in</strong>ator, Junee Correcti<strong>on</strong>al Centre, Post Office Box 197,<br />
Junee, before <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>:<br />
4. Publicati<strong>on</strong> of Proceed<strong>in</strong>gs<br />
Ms Rhiann<strong>on</strong> moved: That <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> authorises <strong>the</strong> publicati<strong>on</strong> of <strong>the</strong> evidence heard today,<br />
except <strong>the</strong> names and evidence of those who requested <strong>the</strong>ir names or evidence be kept c<strong>on</strong>fidential,<br />
and authorises <strong>the</strong> publicati<strong>on</strong> of <strong>the</strong> evidence of Corrective Services officers given at Goulburn<br />
yesterday—put and passed.<br />
5. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 4.45 pm.<br />
Russell Keith<br />
Clerk to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
178 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Meet<strong>in</strong>g No 22<br />
6.40 pm Tuesday 28 November 2000<br />
Parliament House<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
Dr Peter Grabosky, Director of Research, Australian Institute of Crim<strong>in</strong>ology, affirmed and exam<strong>in</strong>ed.<br />
2. Publicati<strong>on</strong> of Proceed<strong>in</strong>gs<br />
Dr Chesterfield Evans moved: That <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> authorises <strong>the</strong> publicati<strong>on</strong> of <strong>the</strong> evidence heard<br />
today—put and passed.<br />
3. Letter to Prof T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong><br />
Dr Chesterfield Evans moved: That <strong>the</strong> Chair send a letter to Prof T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> <strong>in</strong> <strong>the</strong> terms of <strong>the</strong><br />
draft circulated to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> regard<strong>in</strong>g criticisms of his research made by <strong>the</strong> Aborig<strong>in</strong>al Justice<br />
Advisory <str<strong>on</strong>g>Committee</str<strong>on</strong>g>—put and passed.<br />
4. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 8.15 pm.<br />
Russell Keith<br />
Clerk to <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g><br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 179
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Meet<strong>in</strong>g No 23<br />
10.00am 12 March, 2001<br />
Room 1108, Level 11, Parliament House, Sydney<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Janelle Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
The Chair declared <strong>the</strong> meet<strong>in</strong>g open.<br />
Marilyn Chilvers, Statistical Services Manager, NSW Bureau of Crime Statistics and Research, and<br />
Sim<strong>on</strong> Eyland, Director, Research and Statistics Unit, NSW Department of Corrective Services, sworn<br />
and exam<strong>in</strong>ed.<br />
The follow<strong>in</strong>g documents were tendered:<br />
Key Trends <strong>in</strong> Crime and Justice NSW 1998<br />
Simulat<strong>in</strong>g <strong>the</strong> NSW Crim<strong>in</strong>al Justice System: A Stock and Flow Approach<br />
NSW Crim<strong>in</strong>al Courts Statistics 1998<br />
NSW Inmate Populati<strong>on</strong><br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witnesses withdrew.<br />
Rh<strong>on</strong>da Booby, Director, Restorative Justice Unit, Department of Corrective Services, sworn and<br />
exam<strong>in</strong>ed.<br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witness withdrew.<br />
2. Deliberati<strong>on</strong><br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated.<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong>, that <strong>the</strong> m<strong>in</strong>utes of meet<strong>in</strong>gs 14-22 be c<strong>on</strong>firmed.<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Miss Gard<strong>in</strong>er, that <strong>the</strong> Chair circulate corresp<strong>on</strong>dence received from Prof<br />
V<strong>in</strong>s<strong>on</strong>.<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Miss Gard<strong>in</strong>er, that <strong>the</strong> follow<strong>in</strong>g corresp<strong>on</strong>dence be noted:<br />
Corresp<strong>on</strong>dence from H<strong>on</strong> Lee Rhiann<strong>on</strong> MLC and H<strong>on</strong> Dr Arthur Chesterfield-Evans MLC dated 5<br />
March, 01<br />
Corresp<strong>on</strong>dence from H<strong>on</strong> Lee Rhiann<strong>on</strong> MLC dated 5 March, 01<br />
Corresp<strong>on</strong>dence from Noha Ramadan, Justice Acti<strong>on</strong>, dated 26 February, 01<br />
3. Public Hear<strong>in</strong>g<br />
The public hear<strong>in</strong>g resumed.<br />
Richard Mat<strong>the</strong>ws, Chief Executive Officer, Correcti<strong>on</strong>s Health, <strong>on</strong> former oath, exam<strong>in</strong>ed.<br />
Dr Mat<strong>the</strong>ws tendered a set of overhead slides.<br />
180 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witness withdrew.<br />
Robert George Iliahi Ramjan, Executive Officer, Schizophrenia Fellowship, affirmed and exam<strong>in</strong>ed.<br />
Le<strong>on</strong>ie Margaret Manns, Chairpers<strong>on</strong>, Disability Council of New South Wales, affirmed, and<br />
Kev<strong>in</strong> Byrne, Executive Officer, Disability Council of New South Wales, sworn and exam<strong>in</strong>ed.<br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witness withdrew.<br />
6. Publicati<strong>on</strong> of Proceed<strong>in</strong>gs<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong>, that <strong>in</strong> order to better <strong>in</strong>form all those who are participat<strong>in</strong>g<br />
<strong>in</strong> <strong>the</strong> <strong>in</strong>quiry process, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> make use of <strong>the</strong> powers granted under secti<strong>on</strong> 4 (2) of <strong>the</strong><br />
Parliamentary Papers (Supplementary Provisi<strong>on</strong>s) Act 1975 to authorise <strong>the</strong> Clerk of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to publish<br />
<strong>the</strong> transcript of <strong>the</strong> public hear<strong>in</strong>g held <strong>on</strong> 12 March 2001, toge<strong>the</strong>r with <strong>the</strong> tabled documents.<br />
Alex Shehadie<br />
Senior Project Officer<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 181
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
M<strong>in</strong>utes 24<br />
13 th March, 2000<br />
10.00am, Parramatta<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
1. Visit to Drug Court of NSW, George St, Parramatta<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was viewed <strong>the</strong> operati<strong>on</strong> of <strong>the</strong> Drug Court and received a brief<strong>in</strong>g from:<br />
• Judge Mils<strong>on</strong>,<br />
• Mr Castellan, Registrar; and<br />
• Dr Reid, Psychiatrist<br />
2. Visit to NSW Judicial Commissi<strong>on</strong>, George St, Sydney<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> received a brief<strong>in</strong>g <strong>on</strong> <strong>the</strong> NSW Judicial Commissi<strong>on</strong> and <strong>the</strong> Judicial Informati<strong>on</strong><br />
Research System from:<br />
Mr Ernie Schmatt, Chief Executive; and<br />
Mr Ivan Potas, Director; Research and Publish<strong>in</strong>g<br />
3. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 5.00pm.<br />
Alex Shehadie<br />
Senior project Officer<br />
182 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
M<strong>in</strong>utes 25<br />
19 th March, 2000<br />
Jubilee Room, Level 7, Parliament House, Sydney<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
1. Public Hear<strong>in</strong>g<br />
The Chair declared <strong>the</strong> meet<strong>in</strong>g open.<br />
Max<strong>in</strong>e Margaret C<strong>on</strong>atry and Hewitt John Whyman affirmed and exam<strong>in</strong>ed, and Andrew John Riley<br />
sworn and exam<strong>in</strong>ed.<br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witnesses withdrew.<br />
Mr Edward Mamo, sworn and exam<strong>in</strong>ed.<br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witness withdrew.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated.<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong>, that <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> receive evidence from two witnesses <strong>in</strong><br />
camera.<br />
Dr Susan Hayes and Mr Luke Grant sworn and exam<strong>in</strong>ed.<br />
Evidence c<strong>on</strong>cluded and <strong>the</strong> witnesses withdrew.<br />
2. Visit to Central Local Court<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> visited Central Local Court and received a brief<strong>in</strong>g <strong>on</strong> <strong>the</strong> Psychiatric Assessment Court<br />
Assistance Scheme from:<br />
Dr J<strong>on</strong>ath<strong>on</strong> Carne, psychiatrist;<br />
Mr Prior, Nurse; and<br />
Mr Nichols, Clerk of <strong>the</strong> Court.<br />
3. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 5.00pm.<br />
David Blunt<br />
Director<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 183
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Meet<strong>in</strong>g No 26<br />
10.00am 22 March, 2001<br />
L<strong>on</strong>g Bay Correcti<strong>on</strong>al Complex<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Saff<strong>in</strong><br />
1. Visit to L<strong>on</strong>g Bay Correcti<strong>on</strong>al Complex, Malabar Road<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> was briefed by Mr John Klok, Regi<strong>on</strong>al Commander, Metropolitan Regi<strong>on</strong>, <strong>on</strong> <strong>the</strong> L<strong>on</strong>g<br />
Bay Complex and met with Dr Richard Mat<strong>the</strong>ws, Chief Executive Officer, Correcti<strong>on</strong>s Health, Mr<br />
Luke Grant, Assistant Commissi<strong>on</strong>er for Inmate Management, Department of Corrective Services and<br />
senior staff of <strong>the</strong> Malabar Special Programs Centre (MSPC) and <strong>the</strong> CUBIT program.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> met with 12 offenders from <strong>the</strong> MSPC.<br />
The committee was <strong>the</strong>n c<strong>on</strong>ducted <strong>on</strong> a tour of <strong>the</strong> Malabar Special Programs Centre.<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> met with staff and 3 <strong>in</strong>mates participat<strong>in</strong>g <strong>in</strong> <strong>the</strong> Violence Preventi<strong>on</strong> Program. The<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>the</strong>n met with staff and 6 <strong>in</strong>mates at <strong>the</strong> Metropolitan Medical Transient Centre and was<br />
c<strong>on</strong>ducted <strong>on</strong> a tour of <strong>the</strong> L<strong>on</strong>g Bay Hospital.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Burnswoods that <strong>the</strong> documents tabled be received as submissi<strong>on</strong>s.<br />
2. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 4.30pm.<br />
David Blunt<br />
Director<br />
184 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Meet<strong>in</strong>g No 27<br />
1.00pm Thursday 31 May, 2001<br />
Greenway Room, Parliament House<br />
Members Present<br />
Ms Burnswoods<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Dr Chesterfield-Evans<br />
Ms Saff<strong>in</strong><br />
1. M<strong>in</strong>utes<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong>, that <strong>the</strong> m<strong>in</strong>utes of meet<strong>in</strong>gs 23-26 be c<strong>on</strong>firmed.<br />
2. Submissi<strong>on</strong>s<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> noted receipt of submissi<strong>on</strong>s 181 – 183 and 184 – 192.<br />
Mr Primrose noted that <strong>the</strong> Chair should seek advice from <strong>the</strong> Clerk regard<strong>in</strong>g appropriate acti<strong>on</strong> to be<br />
taken c<strong>on</strong>cern<strong>in</strong>g allegati<strong>on</strong>s of illegality or corrupti<strong>on</strong> c<strong>on</strong>ta<strong>in</strong>ed <strong>in</strong> submissi<strong>on</strong>s.<br />
3. Proposed additi<strong>on</strong>al hear<strong>in</strong>g<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong>, that a f<strong>in</strong>al hear<strong>in</strong>g be held <strong>on</strong> 12 June, 2001.<br />
Resolved, <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong>, that <strong>the</strong> Secretariat c<strong>on</strong>tact <strong>the</strong> follow<strong>in</strong>g<br />
pers<strong>on</strong>s/organisati<strong>on</strong>s and <strong>in</strong>vite <strong>the</strong>m to give evidence at <strong>the</strong> hear<strong>in</strong>g <strong>on</strong> Tuesday 12 June 2001:<br />
Department of Corrective Services; Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong> and Dr Eileen Baldry; and Careleavers of<br />
Australia Network and Positive Justice Centre.<br />
4. Draft <strong>Report</strong> outl<strong>in</strong>e<br />
The Chair tabled <strong>the</strong> draft report outl<strong>in</strong>e and requested that <strong>the</strong> Secretariat be <strong>in</strong>formed of any<br />
comments.<br />
5. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 1.40pm.<br />
Susan Want<br />
Project Officer<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 185
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Meet<strong>in</strong>g No 28<br />
10.00am 12 June, 2001<br />
Jubilee Room, Parliament House, Sydney<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Saff<strong>in</strong><br />
1. Public Hear<strong>in</strong>g<br />
The Chair declared <strong>the</strong> meet<strong>in</strong>g open.<br />
Emeritus Professor T<strong>on</strong>y V<strong>in</strong>s<strong>on</strong>, Head, School of Social Work University of NSW, sworn and<br />
exam<strong>in</strong>ed.<br />
Dr Eileen Baldry, Senior Lecturer, School of Social Work, University of NSW, affirmed and exam<strong>in</strong>ed.<br />
The follow<strong>in</strong>g document was tendered: Submissi<strong>on</strong> to <strong>the</strong> NSW Legislative Council’s <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> <strong>on</strong> <strong>the</strong><br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong>, June 2001<br />
Evidence c<strong>on</strong>cluded <strong>the</strong> witnesses withdrew.<br />
Ms Deborah Allen, Director, Strategy and Policy, Department of corrective Services, affirmed and<br />
exam<strong>in</strong>ed.<br />
Mr Luke Grant, Assistant Commissi<strong>on</strong>er for Inmate Management, Department of corrective Services,<br />
sworn and exam<strong>in</strong>ed.<br />
Evidence c<strong>on</strong>cluded, <strong>the</strong> witnesses withdrew.<br />
Dr Joanna Penglase, Careleavers of Australia Network, affirmed and exam<strong>in</strong>ed.<br />
Mr John Murray, Positive Justice Centre, affirmed and exam<strong>in</strong>ed.<br />
The follow<strong>in</strong>g document was tendered: The <str<strong>on</strong>g>Select</str<strong>on</strong>g> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> Inquiry <strong>in</strong>to <strong>the</strong> Pris<strong>on</strong> Populati<strong>on</strong>, Additi<strong>on</strong>al<br />
Submissi<strong>on</strong>, The Positive Justice Centre, 12 June, 2001<br />
Evidence c<strong>on</strong>cluded, <strong>the</strong> witnesses withdrew.<br />
2. Deliberati<strong>on</strong><br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Gard<strong>in</strong>er that <strong>in</strong> order to better <strong>in</strong>form all those who are participat<strong>in</strong>g <strong>in</strong><br />
<strong>the</strong> <strong>in</strong>quiry process, <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> make use of <strong>the</strong> powers granted under secti<strong>on</strong> 4(2) of <strong>the</strong><br />
Parliamentary Papers (Supplementary Provisi<strong>on</strong>s) Act 1975 to authorise <strong>the</strong> Clerk of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g> to publish<br />
<strong>the</strong> transcript of <strong>the</strong> public hear<strong>in</strong>g held <strong>on</strong> 12 March 2001, toge<strong>the</strong>r with <strong>the</strong> tabled documents.<br />
David Blunt<br />
Director<br />
186 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Meet<strong>in</strong>g No 29<br />
2pm, Wednesday 15 August, 2001<br />
Room 1153, Parliament House, Sydney<br />
Members Present<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Burnswoods<br />
Ms Saff<strong>in</strong><br />
1. M<strong>in</strong>utes of Meet<strong>in</strong>gs No 27 and No 28<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Mr Primrose that <strong>the</strong> m<strong>in</strong>utes of meet<strong>in</strong>gs 27 and 28 be c<strong>on</strong>firmed.<br />
2. Corresp<strong>on</strong>dence<br />
The Chair tabled corresp<strong>on</strong>dence from <strong>the</strong> M<strong>in</strong>ister for Corrective Services dated 13 August, 2001<br />
provid<strong>in</strong>g statistics from <strong>the</strong> Department of Corrective Service.<br />
3. Draft <strong>Report</strong><br />
The Chair tabled a prelim<strong>in</strong>ary draft of Chapters 1-6 of <strong>the</strong> F<strong>in</strong>al <strong>Report</strong>.<br />
Discussi<strong>on</strong> ensued.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Mr Primrose that <strong>the</strong> Chair seek an extensi<strong>on</strong> for <strong>the</strong> tabl<strong>in</strong>g of <strong>the</strong> F<strong>in</strong>al<br />
<strong>Report</strong> for 31 October 2001.<br />
Susan Want<br />
Project Officer<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 187
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Meet<strong>in</strong>g No 30<br />
5.45pm, Wednesday 24 October, 2001<br />
Room 1153, Parliament House, Sydney<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Miss Gard<strong>in</strong>er<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Ms Saff<strong>in</strong><br />
1. Draft <strong>Report</strong><br />
The Chair tabled certa<strong>in</strong> documents relat<strong>in</strong>g to <strong>the</strong> Draft <strong>Report</strong>.<br />
Chapter 1:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 1 adopted with amendments.<br />
Chapter 2:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 2 adopted with amendments.<br />
Chapter 3:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 3 adopted with amendments.<br />
Chapter 4:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 4 adopted with amendments.<br />
Chapter 5:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 5 adopted subject to circulati<strong>on</strong> of amended<br />
recommendati<strong>on</strong>s.<br />
2. Next Meet<strong>in</strong>g<br />
The next meet<strong>in</strong>g will be held M<strong>on</strong>day 29 th October, 2001 at 10am.<br />
3. Adjournment<br />
Meet<strong>in</strong>g closed 9pm.<br />
Susan Want<br />
Project Officer<br />
188 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Meet<strong>in</strong>g No 31<br />
10.00am, M<strong>on</strong>day 29 October, 2001<br />
Room 1153, Parliament House, Sydney<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Miss Gard<strong>in</strong>er<br />
Ms Saff<strong>in</strong><br />
1. M<strong>in</strong>utes of Meet<strong>in</strong>gs No 29 and No 30<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Mr Primrose that <strong>the</strong> m<strong>in</strong>utes of meet<strong>in</strong>g 29 be adopted.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Burnswoods that <strong>the</strong> m<strong>in</strong>utes of meet<strong>in</strong>g 30 be adopted as amended.<br />
2. Draft <strong>Report</strong><br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sidered <strong>the</strong> rema<strong>in</strong>der of <strong>the</strong> Chair’s Draft <strong>Report</strong>.<br />
Chapter 6:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 6 adopted subject to circulati<strong>on</strong> of certa<strong>in</strong> amendments.<br />
Chapter 7:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 7 adopted subject to circulati<strong>on</strong> of certa<strong>in</strong> amendments.<br />
Chapter 8:<br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> deliberated. Chapter 8 adopted with amendments.<br />
3. Next Meet<strong>in</strong>g – Tuesday 6 th November at 10am.<br />
4. Adjournment<br />
Meet<strong>in</strong>g closed 1.30pm.<br />
Susan Want<br />
Project Officer<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 189
LEGISLATIVE COUNCIL<br />
<strong>Increase</strong> <strong>in</strong> Pris<strong>on</strong>er Populati<strong>on</strong><br />
Meet<strong>in</strong>g No 32<br />
10.00am, Tuesday 6 November, 2001<br />
Room 1153, Parliament House, Sydney<br />
Members Present<br />
Ms Burnswoods<br />
Dr Chesterfield-Evans<br />
Mr Primrose<br />
Ms Rhiann<strong>on</strong><br />
Mr Ryan (Chair)<br />
Apologies<br />
Miss Gard<strong>in</strong>er<br />
Ms Saff<strong>in</strong><br />
1. M<strong>in</strong>utes of Meet<strong>in</strong>gs No 31<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Dr Chesterfield-Evans that <strong>the</strong> m<strong>in</strong>utes of meet<strong>in</strong>g 31 be adopted.<br />
2. Submissi<strong>on</strong><br />
The Chair tabled submissi<strong>on</strong> number 198.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Burnswoods that transcripts of evidence, submissi<strong>on</strong>s, tabled documents<br />
and corresp<strong>on</strong>dence be tabled with <strong>the</strong> report and made public, except<strong>in</strong>g:<br />
a) all corresp<strong>on</strong>dence and submissi<strong>on</strong>s from <strong>in</strong>mates unless authors have specifically<br />
requested that <strong>the</strong>y be made public,<br />
b) all corresp<strong>on</strong>dence and submissi<strong>on</strong>s c<strong>on</strong>ta<strong>in</strong><strong>in</strong>g defamatory or o<strong>the</strong>rwise adverse comments<br />
about <strong>in</strong>dividuals, and<br />
c) all o<strong>the</strong>r corresp<strong>on</strong>dence and submissi<strong>on</strong>s request<strong>in</strong>g c<strong>on</strong>fidentiality.<br />
3. Draft <strong>Report</strong><br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> c<strong>on</strong>sidered amendments to <strong>the</strong> Chair’s Draft <strong>Report</strong>.<br />
Amendment to Chapter 4:<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong> that Recommendati<strong>on</strong> 1 c<strong>on</strong>cern<strong>in</strong>g state wards be amended<br />
by delet<strong>in</strong>g <strong>the</strong> words “under <strong>the</strong> age of 25 currently”.<br />
Amendments to Chapter 5:<br />
Proposed secti<strong>on</strong> <strong>on</strong> <strong>in</strong>formati<strong>on</strong> relat<strong>in</strong>g to judicial decisi<strong>on</strong>s (5.95 – 5.98 and Recommendati<strong>on</strong> 5).<br />
Debate ensued. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> agreed that <strong>the</strong> secti<strong>on</strong> be <strong>in</strong>serted.<br />
Amendments to Chapter 6:<br />
Proposed secti<strong>on</strong> <strong>on</strong> “E” Classificati<strong>on</strong> Pris<strong>on</strong>ers (6.120 – 6.123 and Recommendati<strong>on</strong> 5):<br />
Debate ensued. <str<strong>on</strong>g>Committee</str<strong>on</strong>g> agreed that <strong>in</strong> paragraph 6.123 third l<strong>in</strong>e <strong>the</strong> words “between those<br />
pris<strong>on</strong>ers” be replaced with <strong>the</strong> words “between such pris<strong>on</strong>ers”. The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> agreed that <strong>the</strong><br />
secti<strong>on</strong> be <strong>in</strong>serted as amended.<br />
190 F<strong>in</strong>al <strong>Report</strong> - November 2001
SELECT COMMITTEE<br />
Amendments to Chapter 7:<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> agreed that <strong>the</strong> table at 7.17 <strong>in</strong>clude a note underneath say<strong>in</strong>g that: “After 1996 virtually<br />
no f<strong>in</strong>e defaulters were taken <strong>in</strong>to custody, hence, <strong>the</strong> table excludes this category of offender”.<br />
Proposed secti<strong>on</strong> <strong>on</strong> abolish<strong>in</strong>g short sentences (7.23-7.29 and Recommendati<strong>on</strong> 1):<br />
Debate ensued.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Mr Primrose that a new recommendati<strong>on</strong> be <strong>in</strong>serted that <strong>the</strong> Government<br />
<strong>in</strong>itiate a pilot project which would select and divert a number of offenders who would o<strong>the</strong>rwise be<br />
sentenced to impris<strong>on</strong>ment for a period of three m<strong>on</strong>ths or less and that priority should be given to<br />
select<strong>in</strong>g women and <strong>in</strong>digenous <strong>in</strong>mates for <strong>the</strong> pilot study.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Burnswoods that <strong>the</strong> report as amended be adopted as <strong>the</strong> report of <strong>the</strong><br />
<str<strong>on</strong>g>Committee</str<strong>on</strong>g> and tabled <strong>in</strong> <strong>the</strong> House subject to <strong>the</strong> circulati<strong>on</strong> of <strong>the</strong> m<strong>in</strong>utes and revised secti<strong>on</strong> of<br />
Chapter 7 relat<strong>in</strong>g to aboliti<strong>on</strong> of short sentences.<br />
Resolved <strong>on</strong> <strong>the</strong> moti<strong>on</strong> of Ms Rhiann<strong>on</strong> that <strong>the</strong> Chair move <strong>in</strong> <strong>the</strong> House that:<br />
1. On <strong>the</strong> tabl<strong>in</strong>g of <strong>the</strong> report:<br />
a) The Clerk of <strong>the</strong> House is to refer <strong>the</strong> report to <strong>the</strong> Leader of <strong>the</strong> Government <strong>in</strong> <strong>the</strong><br />
House who must with<strong>in</strong> 6 m<strong>on</strong>ths of a report be<strong>in</strong>g tabled, report to <strong>the</strong> House what acti<strong>on</strong>, if<br />
any, <strong>the</strong> Government proposes to take <strong>in</strong> relati<strong>on</strong> to <strong>the</strong> recommendati<strong>on</strong>s of <strong>the</strong> <str<strong>on</strong>g>Committee</str<strong>on</strong>g>.<br />
b) If, at <strong>the</strong> time at which <strong>the</strong> Government seeks to report to <strong>the</strong> House, <strong>the</strong> House is not<br />
sitt<strong>in</strong>g, a M<strong>in</strong>ister may present <strong>the</strong> resp<strong>on</strong>se to <strong>the</strong> Clerk of <strong>the</strong> House.<br />
2. A resp<strong>on</strong>se presented to <strong>the</strong> Clerk is:<br />
a) <strong>on</strong> presentati<strong>on</strong>, and for all purposes, deemed to have been laid before <strong>the</strong> House<br />
b) to be pr<strong>in</strong>ted by authority of <strong>the</strong> Clerk<br />
c) for all purposes deemed to be a document published by order or under <strong>the</strong><br />
authority of <strong>the</strong> House, and<br />
d) to be recorded <strong>in</strong> <strong>the</strong> M<strong>in</strong>utes of <strong>the</strong> Proceed<strong>in</strong>gs of <strong>the</strong> House<br />
3. The President is to report to <strong>the</strong> House when any Government resp<strong>on</strong>se has not<br />
been received with<strong>in</strong> <strong>the</strong> 6 m<strong>on</strong>th deadl<strong>in</strong>e.<br />
4. Adjournment<br />
The <str<strong>on</strong>g>Committee</str<strong>on</strong>g> adjourned at 11.00am s<strong>in</strong>e die.<br />
Susan Want<br />
Project Officer<br />
F<strong>in</strong>al <strong>Report</strong> – November 2001 191