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FOR CABINET
Tille:
Minister:
Purpose:
Key recommendations:
(summary)
Difference this proposal will make:
Strategic Policy alignment:
Timing/legislative priority:
Announcement of decision, tabling, etc:
Action required before announcement:
Net Funding Reguirements
Recurrent
- Staffing:
- Operational:
Capital:
Offset savings:
Revenue im lications
NORTHERN TERRITORY OF AUSTRALIA
CABINET-IN-CONFIDENCE
SUBMISSION NO: Infrastructure and recurrent funding for youth detention in the Northern Territory
Minister for Correctional Services, the Hon John Elferink MLA
To address infrastructure needs to provide additional beds to safely accommodate rising youth detainee numbers.
Approve the development of a fully costed Master Plan for the continued operation and further development for increased capacity of the Don Dale Youth Detention Centre on the current Berrimah site.
Approve a change In use and modification of either the entire or a portion of the Allee Springs Secure Care Group Home, which Is currenlly gazetted for the use by the Office of Children and Families and the Department of Health, for the purpose of commencing operations as a permanent youth detention centre.
This proposal will provide adequate bed capacity and programs and services to meet the projected increase in youth detainee numbers. It will also address significant infrastructural issues and enable more effective management of youth detainees through the separation of the genders and allowing for first time male entrants to be separated from longer-term detainees. These benefits in conjunction with broader youth justice initiatives such as the Northern Territory Youth Boot Camp Program will support youth to be accountable for and to address their offending behaviour. It is anticipated that~his will contribute to reduced youth offending and fewer Imprisonments of youth offenders and reduce the likelihood of
SNT.0004.0007.0072
young people having long term Involvement in the criminal justice system.!_____________ ____ commented [BF1]: Russell, can we be confident In saying this?
This submission aligns with the Government Pillars of Justice: Law Reform for Territorians policy which will ensure that the youth justice system delivers Improved outcomes on the rehabilitation and the safeguards of young people who offend and who are at risk of reoffending. Urgent. To commence planning and development of adequate infrastructure to meet rising youth detainee numbers.
As required by Cabinet.
Consultation with the Office of Children and Families and the Department of Health. Gazettal notice for the change of purpose of the Alice Springs Secure Care Group Home.
Current Year Future Years
$3.12M $ 7.03M
$ 0.51M $ 1.34M
$ 0.84M $
$ $
$ $
CABINET-IN-CONFIDENCE
WIT.0233.0001.0134
RECOMMENDATION
CABINET-IN-CONFIDENCE 1
1. It is recommended that Cabinet:
(a) approve funding of $0.20 million for the development of a fully costed Master
Plan for youth detention· infrastructure requirements over the next five years,
including the continued operation and further development for increased
capacity of the Don Dale Youth Detention Centre on the current Berrimah site;
and
(b) approve either:
(i) a change in use and modification of the entire Alice Springs Secure Care
Group Home (ASSCGH), which is currently gazetted for use by the Office
of Children and Families and the Department of Health (DoH), for the
purpose of commencing operations as a permanent youth detention
facility; or
(ii) a change in use and modification of a portion of the ASSCGH, which is
currently 'gazetted for use by the Office of Children and Families and the
DoH, for the purpose of commencing operations as a permanent youth
detention facility; and
lf recommendation (b)(i) or (b)(ii) is approved, then it is recommended that
Cabinet:
(c) !approve one-off capital funding of $0.84 million in 2013-14, and recurrent
personnel and operational funding of $8.37 million from 2014-15 ongoing for
the fit-out and ongoing costs to operate the ASSCGH as a youth detention
facility; an~ .. _____ ..... __ .. .. __ .. _ .... .. _ ... _._ ........ .... _ ... ..... _ ...................... ___ .. ..
(d) approve the de-commissioning of the Alice Springs Youth Holding Centre, also
known as Aranda House, and refer it to the Doi for disposal;
(e) note that the Alice Springs Youth Detention Centre will be used to house
female detainees until refurbishment of the ASSCGH is complete, and will
then be returned to the Alice Springs Correctional Centre to house adult
prisoners;
(f) approve the introduction of the new youth detention staffing models as at
attachments A, B and C subject to successful negotiations with and approval
of the relevant unions; and
(g) Approves the redirection of $1.16 million allocated for youth justice grant
funding be reallocated to provide more programs and services within youth
detention.
CABINET-IN-CONFIDENCE
SNT.0004.0007.0073
Commented [BF2]: This does not match the funding table under Budget Implications seclion.
WIT.0233.0001.0135
BACKGROUND
CABINET-IN-CONFIDENCE 2
2. The current infrastructure for youth detention centres in the Northern Territory, in
many cases, is not built for purpose.
3. Department of Correctional Services (NTDCS) projections forecast that the
number of youth detainees in custody in the NT will exceed current capacity by
more than 100 beds (attachment D, E and F refer) by December 2016 which
would exceed the current operating capacity by nearly 35%.
4. Current youth detention facilities in the Northern Territory include the:
(a) Don Dale Youth Detention Centre (DDYDC), Berrimah (Darwin);
{b) Alice Springs Youth Detention Centre (ASYDC), located on the Alice Springs
Correctional Centre (ASCC); and
(c) Alice Springs Youth Holding Centre (ASYHC) also known as Aranda House,
5. The operational capacity of the three detention centres is as follows:
DDYDC: Total 62 comprised as follows:
Females 10
Males (maximum-security) 20
Males (med/min-security) 24
Specified needs beds 8
ASYDC: Total: 16, comprised as follows:
Males 14
Specified needs beds 2
ASYHC: Total: 1 O, comprised as follows:
Males 8
Specified needs beds 2
6. While the total operational capacity for all beds types in the Territory is currently
88, this is not a true indication of the total number of juvenile detainees who may
be contained at any one point in time. The specialist beds, that is, the At Risk of
self-harm/suicide, the Behaviour Management Unit and the High Dependency Unit
beds must be retained for dedicated purposes to manage safely, high needs'
detainees.
CABINET-IN-CONFIDENCE
SNT.0004.0007.0074
..
WIT.0233.0001.0136
CABINET-IN-CONFIDENCE 3
7. The actual operating capacity for general beds for males and females in the
Territory is in fact 76 (10 females in DDYDC; 44 males in DDYDC; 14 males in
ASYDC and 8 males in Aranda House).
8. The infrastructure currently used for juvenile detention centres in the Territory has
developed incrementally over the years and, in many cases, not built for purpose.
CONSIDERATION OF THE ISSUES
Don Dale Youth Detention Centre, Berrimah
9. The DDYDC opened in November 1991 with 25 maximum-security, male-only
beds. Over the ensuing years, some office and program space was converted to
youth detainee accommodation. In 2004, a new building housing 16 medium
security, male-only beds, was opened.
10. The DDYDC was not designed to accommodate female juvenile detainees and
accordingly, ad hoc attempts have had to be made over the years to separate the
genders. In recent years, the number of female detainees has increased to a peak
of 11. Their placement at the DDYDC creates operational and social difficulties.
11 . frhe number of female detainees in custody is projected to be 15 by June 2015
SNT.0004.0007.0075
December 2013 l!'JN<?h_~[IJ_~~~El~~- -()!J_~~EJ_QtfE)_f!!?J~ _l_>Rt!_()jfi~ -~-E)9_ _c;~p-~~i~y_ __ ~)'. _?_Q~~~- - - - - - com1
m11entedh [B
1F3]
1: Ruslhsell, canw
1e put some female
pro ec ons ere o s reng en case ors
12. In 2011-12, two demountables were acquired: one for educational purposes; and
the other for case worker administration and interview space. This enabled the
existing infrastructure to be re-converted to juvenile detainee accommodation
providing a total of 62 beds. These demountables have not, however, addressed
the need for program delivery space or requirements for separate female
accommodation.
Alice Springs Youth Holding Centre (also known as Aranda House)
13. Aranda House was originally opened in 1977 as an assessment, training and
security facility for young offenders. The maximum security wing of the complex
was re-opened as Aranda House In 1993-94, with a total bed capacity of 10 which
has been maintained to the present day. Aranda House was kept as a holding
centre to facilitate court appearances. Thereafter, the youth detainees were
transferred to the DDYDC in Darwin either remanded into custody or sentenced to
a period of detention. As it was a short term holding centre Aranda house has
only ever had one permanent staff position with the remainder of staff being
employed on a casual roster as required .
CABINET-IN-CONFIDENCE
WIT.0233.0001.0137
CABINET-IN-CONFIDENCE 4
14. Aranda House was closed in March 2011 when the ASYDC was commissioned. It
has re-opened and closed on a number of occasions since then, in order to
accommodate escalating numbers of youth detainees in custody. Aranda House
however, is not a satisfactory centre for a number of reasons:
• The design is out-dated, it does not provide adequate educational space and
there is no provision for vocational training;
• It is not suitable for the detention of juveniles, lacks natural light and is not well
ventilated;
• It is co-located with a sobering up shelter for volatile substance users; and
• Its close proximity to town also creates problems with unsanctioned interaction
of detainees with local residents.
Allee Springs Youth Detention Centre
15. In March 2011 the ASYDC was brought on-line as a short to medium term
measure, as part of the then Government's plan to address rising crime rates in
Alice Springs. However, it has continued to remain open and has operated
beyond its capacity for sustained periods over the past six months, necessitating
the periodic re-opening of Aranda House to accommodate the overflow of youth
detainees, thereby operating two centres simultaneously. This is not cost effective
and places an additional burden on the NTDCS budget.
16. The ASYDC was originally built as a 24 bed minimum-security adult facility but as
a youth detainee facility it only provided 16 beds of which two are specialist beds.
17. Staffing: The configuration of the current youth detention infrastructure has
contributed significantly to a heavy reliance upon a casual work force. Currently
45% of the youth detention workforce is employed casually. The problems posed
by such a high proportion of casual work arrangements include poor retention
rates and higher costs due to uncertainty around rostering and the premium paid
on casual rates of pay.
18. The proposed staffing models at attachments A, 8 and C will achieve appropriate
staffing levels and greater efficiency through reducing the number of casual
employees to 10% with 90% being permanently employed. This will optimise
economies of scale, provide more stability in the work force and result In greater
return on investment in staff training and development. The resulting benefits will
further include increased ownership of roles, loyalty to the organisation,
professionalism and accountability.
CAB/NET-IN-CONFIDENCE
SNT.0004.0007.0076
WIT.0233.0001.0138
CABINET-JN-CONFIDENCE 5
19. The table and graph below demonstrate that the proposed staffing models will
\lower the detainee cost per day from $472 to approximately $350 (attachments A, I. B and C refers).
Ef tdC tRd s 1ma e OS e uct on o Pro Dose d I f n rastructure an d Staffin!l Models
Current Costs 61 82 108 Current Position and Models 56 Detainees Detainees Detainees Detainees Staffing costs $8,285,425 $7 524 743 $9,955,837 $11 433 300 Operational costs 11l $1 365 482 $1 530,779 $1 788 916 $2 356 133 Total Costs $9 650,907 $9,055,522 $11744753 $13 789 434
Staffing per detainee per day $405 $338 $333 $290 Ooeratlonal oer detainee oer dav $67 $69 $60 $60 Cost per detainee per day $472 $407 $393 $350
% Reduction on Current Staffing per detainee 16.54% 17.78% 26.40% % Reduction on Current Operating Costs per detainee -2.99 10.45% 10.45% % Reduction on Current Total Costs per detainee 13.77% 16.74% 25.85%
(1) In first year under 61 detainees. Operallng costs Include S0.20M lor development of a fully costed Master Plan.
• %Reduction on current starling costs per detainee
• %Reduction on current operating
costs per detainee
• %Reduction on current total costs per detainee
20. Programs: While the proposed infrastructural improvements will provide a safe and
secure environment for youth detainees, it is also vitally important that programs
and services are further developed and updated to support the changes in
infrastructure and, more importantly, the increasing detainee numbers. More
programs are required to reduce the rate of re-offending and support positive
reintegration into the community.
21 . Ongoing youth grant funding of $1.16 million has been identified to be redirected
to fund the expansion of youth detention programs and services. This could be
achieved by utilising $1.16 million of unused youth justice grant money.
CABINET-IN-CONFIDENCE
SNT.0004.0007 .0077
Commented [BF4]: eparte female lacillty.ldent In saying this? This does not match the funding table under Budget lmpllcallons secllon. Russell, cen we put some female projections
WIT.0233.0001.0139
OPTIONS
22. Cabinet might elect to:
CABINET-IN-CONFIDENCE 6
(a) approve funding of $0.20 million for the development of a fully costed Master
Plan for youth detention infrastructure requirements over the next five years,
including the continued operation and further development for increased
capacity of the Don Dale Youth Detention Centre on the current Berrimah site;
and
(b) approve either:
(i) a change in use and modification of the entire ASSCGH, which is currently
gazetted for use by the Office of Children and Families and the DoH, for
the purpose of commencing operations as a permanent youth detention
facility; or
(ii) a change in use and modification of a porlion of the ASSCGH, which is
currently gazetted for use by the Office of Children and Families and the
DoH, for the purpose of commencing operations as a permanent youth
detention facility; and
(c) Not approve any of the options (a), (b)(i) or (b)(ii).
J1 option (b)(i) or (b)(ii) is approved, then Cabinet may also elect to:
(d) /approve one-off capital funding of $0.84 million in 2013-14, and recurrent
personnel and operational funding of $8.37 million from 2014-15 ongoing for
the fit-out and ongoing costs to operate the ASSCGH as a youth detention
SNT.0004.0007.0078
facility; an~---- ___ --------------------------------------- _____ ___ __________________ ___________________ . --- -- ~~";:1~~."J~.~=~!~~~'::i: }~:i:!t';~:~~~.~:~:cl~(y~::;~e (e) approve the de-commissioning of the ASYHC and refer it to the Doi for reported as much hlgherlhan the $472K referred to here_
What Is missing from !he slaffing or operational cosls In !his calculallon? disposal;
(f) note that the ASYDC will be used to house female detainees until
refurbishment of the ASSCGH is complete, and will then be returned to ASCC
to house adult prisoners;
(g) approve implementation of the new youth detention staffing models provided
at attachments A, B and C; and
(h) approve the redirection of $1 .16 million allocated for youth justice grant
funding be reallocated to provide more programs and services within youth
detention.
23. Options (a) and (b) will provide adequate bed capacity to meet projected demand
and will provide the opportunity to secure the means to address significant
structural issues and the separation of genders. This is the preferred option.
CABINET-IN-CONFIDENCE
r
WIT.0233.0001.0140
CABINET-IN-CONFIDENCE 7
24. Options (c) to (g) are dependent on Cabinet approving Options (a) and (b).
Option (a)
25. Long term infrastructure planning for the safe housing of rising youth detainee
numbers in the Territory is essential. Development of a Master Plan will identify
and recommend infrastructure requirements and solutions to manage the rising
juvenile detainee numbers.
26. In the short to medium term, the retention of the DDYDC is critical to ensure
enough beds for the safe housing of rising youth detainee numbers, however,
immediate works must be completed to address current infrastructure risks.
27. The fire safety management systems are poor (owing to their age and subsequent
site development) and could expose staff and detainees to the risk of injury or
death.
28. The education area is unsuitable and the case management and music areas
consist of converted sea containers. The rectification and capital works program
needing to be undertaken at the DDYDC must contribute to the NTG meeting its
duty of care responsibilities in ensuring that the Youth Justice System should
uphold the physical and mental well-being of youths, including:
(a) Stopping the current housing of first-time entrant male youth detainees with
the High Security (i.e. maximum-security), longer-term detainees, thereby no
longer exposing the first-time entrant detainees to the immediate negative
influence of other detainees entrenched in the system.
(b) Separating the age groups.
(c) Ensuring that the significant fundamental infrastructure demands are met,
including Improvements to the fire alarm system and sewerage system.
(d) Providing more ablution facilities in the current female accommodation area in
the DDYDC which houses up to 15 detainees, as it has only one shower and
toilet. More ablutions facilities are required.
(e) The provision of specialist vocational and training facilities.
29. NTDCS will engage Doi for the development of a fully costed Master Plan and will
come back to Cabinet in a separate submission.
Option (b)(I)
30. In 2012, the construction of the ASSCGH was completed by DoH. It is located on
a far corner of the ASCC and has its own direct access from the Stuart Highway.
31. The building was design!=!d to provide separate 8-bed adult and 8-bed children and
young people facilities, but for efficiency purposes, they are adjacent, in order to
CABINET-IN-CONFIDENCE
SNT.0004.0007.0079
WIT.0233.0001.0141
CABINET-IN-CONFIDENCE 8
share staff-operated catering, maintenance, utilities and administrative areas.
Each home has its own entrance, as well as separate indoor and outdoor living
and recreational areas. Accordingly, there is neither capacity nor need for the
adults and children/young people to intermingle. However, they are able to see
one another, particularly when outside.
32. The homes have been constructed using structural and operational approaches to
ensure the safety of clients, staff and others, in a robust physical yet home-like
atmosphere. This is in order to maximise opportunities for skills development and
effective therapeutic intervention.
33. The decision to build the ASSCGH next to the ASCC, 27kms from the Alice
Springs town centre, was based on community refusal on a couple of occasions to
agree to the homes being located within the town. A benefit of being next to the
ASCC is that it is a secluded environment, conducive to clients feeling calm and
settled and there is no noise disruption to or from neighbours.
34. Despite the ASSCGH being finished in mid-2012, there was no client of the Office
of Children and Families in residence and only one mental health patient in
residence managed by DoH. Use of this facility a youth detention centre would
provide better benefits to the Territory by providing rellef to the youth justice
system.
35. Option (b)(i) is preferable to option (b)(ii), as it most critically addresses the
significant problems and tensions created in the DDYDC by housing males and
females alongside one another.
36. There is no doubt that the presence of female detainees in the DDYDC generates
a swathe of misbehaviour and "acting out" by youths of both genders. Prior to the
housing of female detainees in DDYDC, the incidence of misbehaviour by males
was greatly smaller than is currently being experienced.
37. The accommodation, which is currently occupied by the female detainees in the
DDYDC, could then be used to house first-time male entrants into the youth
detention system. It would also enable a re-configuration of the remainder of the
DDYDC site to maximise the ability to separate the different age groups.
38. The proposed costs of option (b)(i) would be proportionally more than for option
(b )(ii) which is limited to half the site.
39. If approval is given for the NTDCS to take over the ASSCGH, then some initial
capital enhancements would be required to make the facility fit-for-purpose as a
youth detention centre:
CABINET-IN-CONFIDENCE
SNT.0004.0007.0080
WIT.0233.0001.0142
CABINET-JN-CONFIDENCE 9
(a) The perimeter fencing would need to include concrete plinths, water drainage
and electrification with detection capability costing approximately $580,000.
(b) Sensors would need to be installed in the ceiling cavity and wired to the
existing security system costing approximately $60,000.
(c) The installation of additional beds in the bedrooms to take the holding capacity
of the centre from 16 to a maximum of 48 (on the basis of 3 beds per room)
would cost approximately $50,000.
(d) The cost for installation of appropriate cameras Is $150,000.
Option (b)(li)
40. If approval is given for the NTDCS to take over that portion of the secure group
home designated for use by the Office of Children and Families, then the capital
enhancements detailed in option (b)(i) would still need to be carried out.
41 . As option (b)(ii) Is limited to utilising only half of the facility, the number of
additional beds required would be 16, taking the maximum holding and operational
capacity from 8 to 24. This number would not be ideal but would maximise the
available space.
42. That portion of the ASSCGH used by NTDCS would accommodate male youth
detainees only. The female detainees would be accommodated in the existing
ASYDC.
43. The capital costs associated with this option would be $588,000. The additional
operational costs would be the same as Option (b)( i) i.e. $3.64M in 2013-14,
$6.33M in 2014-15 and $8.37M in out years.
Option (d)
44. Aranda House is poor in design and is of very limited utility. Following approval of
options (a) and either option (b)(i) or (b)(ii), Aranda House would be surplus to
NTDCS needs and would be referred to the Doi for disposal.
BENEFITS OF PROPOSAL
45. Approval of the preferred options will provide the means to secure the much
needed and overdue infrastructure Injection Into youth detention centres and
address the immediate need to separate the genders and to allow the first time
male entrants to be separated Initially from longer-term detainees.
46. This submission also supports the implementation of the recommendations
contained in the Review of the Northern Territory Youth Justice System: Report
September 2011 and this Government's Pillars of Justice: Law Reform for
Terrilorians criminal law reform package.
CAB/NET-IN-CONFIDENCE
SNT.0004.0007 .0081
WIT.0233.0001.0143
CABINET-IN-CONFIDENCE 10
RISK MANAGEMENT STRATEGY
47. The risks of not undertaking the proposed changes to youth detention
infrastructure far outweigh those attached to undertaking the work.
SNT.0004.0007.0082
!BUDGET IMPLICATIONsi _______________ ___ _____ ___ ___ ______ __ ___ ___ ____ __ ___ _ ·------------ --- -------------------1 commented [v6J: .................. "'""Th•
48.
Current +1 +2 +3
year $000 $000 $000
(2013/14)
$000
Additional Funding $4,476 $6,325 $8,369 $8,369
sought
=Expenses $4,836 $7,525 $9,569 $9,569
plus Capital $840 $ $ $
less Revenue(b) $ $ $ $
less Savings I $1,200 $1,200 $1,200 $1,200 Substitution
49. Note that the current recurrent funding for youth detention would be utilised to
offset the required recurrent funding of $1.1.43 million in personnel staffing cost
(less $4.40M already funded) = $7.03M, $2.36M (less $1.02 already funded) =
$1 .34M.
LEGISLATION AND REGULATORY IMPLICATIONS
50. Nil.
COST OF LIVING IMPACTS
51 . Nil.
AUSTRALIAN, STATE AND LOCAL GOVERNMENT RELATIONS
52. Nil.
RESULTS OF CONSULTATION WITHIN NT GOVERNMENT
53. Nil
RESULTS OF CONSULTATION OUTSIDE OF NT GOVERNMENT
54. Nil.
PUBLIC IMPACT ANALYSIS AND COMMUNICATIONS STRATEGY
55. To be developed once Cabinet has decided on the options to be approved,
however, Cabinet should note that the consequences of inadequate infrastructure
could attract criticism. Adequate infrastructure should be positively received by
those in the community with an expectation that youth detainees will be housed in
CAB/NET-IN-CONFIDENCE
WIT.0233.0001.0144
CABINET-IN-CONFIDENCE 11
fit for purpose facilities and suitable environments. The implications of amending
the purpose of the ASSCGH as a youth detainee facility are addressed in the
communications plan.
TIMING
56. To be determined by Cabinet.
ATTACHMENTS
A. Projected forecasts to 2016 of Youth detainee numbers Territory-wide
B. Projected forecasts to 2016 of Youth detainee numbers in the Top End
C. Projected forecasts to 2016 of Youth detainee numbers in Central Australia
CABINET-IN-CONFIDENCE
SNT.0004.0007.0083
.....
WIT.0233.0001.0145
CABINET -IN-CONFIDENCE 12
Communication Strategy Overview
Introduction «Short overview of project»
Communication Objectives «Detail communication objeclives »
ssues A ssessment /K M ey
«Name of project>>
essages Key Critical/Sensitive Issues Audience Addressing Issues/Key Messages
Communication Matrix: Audience Communication Method Date of Release
Media Opportunities Details of any proposed media events, announcements, opportunities etc
Budget: Indicative budget against main tactics/communication methods. This does not match the funding table under Budget Implications section. Needs to be updated to match amended costing tables
CAB/NET-IN-CONFIDENCE
Actioned by
SNT.0004.0007.0084
.
WIT.0233.0001.0146
Recommended