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VULNERABILITY REPORT 2016 | 1

VULNERABILITY REPORT 2016

2 | VULNERABILITY REPORT 2016

Red Cross volunteers support family members visiting prison. When visits go well family connections are maintained and can then provide important support when the prisoner is eventually released.

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Contents

Foreword 4Introduction 5Executivesummaryandrecommendations 6

AboutAustralianRedCross 8

SECTION ONE – Analysis of the Prison 10 Population and Underlying Issues

1.Australiahasincreasingratesofadultimprisonmentdespiteconstantordecreasingcrimerates

2.Prisonsarecostlytobuildandoperate3.Ourprisonsarenotbeingusedefficiently4.Peopleinprisonarelikelytocomefromhighly

disadvantagedandsociallyexcludedbackgrounds5.Highratesofcrimeareconcentratedinafew

communitiesthatexperiencehighlevelsofdisadvantage

6.Prisonsarenoteffectiveinrehabilitatingpeopleordeterringcrime

7. IncarcerationratesforAboriginalandTorresStraitIslanderpeoplesareunacceptablyhigh

Insight:WorkingtheWooriWay 17

SECTION TWO – Rethinking Justice 18 and Policy Reforms

1.Whatisjusticereinvestment?2.Howdoesjusticereinvestmentwork?3.Currentjusticereinvestmenttrialsoccurringorbeing

investigatedinAustralia4.Recommendationsforrethinkingjustice–safer

communities,reducedcrime,moreproductivegovernmentexpenditure

Insight:“SteppingOut”fromprison 24 backintothecommunityAppendixA:Financialmodelling 28AppendixB:ChangetheRecordCoalition 30BlueprintforChange

Cover:KidswhotakepartintheRedCrossyouthdiversionservice,gettotakepartinfunandpositiveactivitiesratherthanlettingtheirboredomandproblemsturnintotroublewiththepolice.Australian Red Cross/ Lesley Desmond.

Acknowledgements

TheSidneyMyerFundgenerouslyprovidedfundingforthepublicationofthisreportincommemorationoftheoutstandingcontributionofLadySoutheyACandhermother,DameMerlynMyer,throughtheirvolunteerworkwithAustralianRedCrosssinceitwasestablishedin1914.

Thekeyfindingsinthisreportarebasedonanextensiveliteraturereview,andinterviewswithcommunity,academicandotherstakeholdersinAustraliaandtheUK.

Wethankthefollowingpeopleforbeingpartofourconsultations:• DavidBrown,EmeritusProfessorof

LawUNSW• EddieCubillo,ExecutiveOfficerNational

AboriginalandTorresStraitIslanderLegalService

• JillGuthrie,ResearchFellowAustralianNationalUniversityNationalCentreforIndigenousStudies

• SarahHopkins,LectureratUniversityofNewSouthWales,ChairatJustReinvest

• SaraHudson,SocialPolicyConsultantURBIS• BenSchokman,DirectorofAdvocacyat

HumanRightsLawCentre• MelanieSchwarz,SeniorLecturerFacultyof

LawUNSW• KevinWong,DeputyDirectorHallamCentre

forCommunityJusticeSheffieldHallamUniversity

• Youthlaw-YoungPeople’sLegalRightsCentreVictoriaandmemberSmartJusticeforYoungPeopleincludingArielCouchman,Director,TiffanyOverall,PolicyOfficerandRosieStorey,PolicyIntern.


Foreword The Hon. Michael Kirby AC CMG

Noseriousobserverissuggestingacompleteabolitionofincarcerationasapunishment.Sadly,ahardcoreofviolent,repeatanddangerousprisonersneedtobepunishedthisway.However,theratesandotherfeaturesofourcurrentpoliciespresentwell-knowndeficienciesthatneedtobeaddressedbylawmakers(andwherepossiblewithinthelaw,ourjudges).Wecannotaffordtocontinueunquestioninglygoingdownthesame,unreformedpath.Therearebetterobjectsforhugeandrisingpublicexpendituresthanbuildingnewprisons.Inthepast,therehavebeenoccasionswhenpoliticianshaveagreedtosuspendthe‘lawandorder’option,whichtheyareotherwiseencouragedtopursueby‘shockjocks’andothersimilarlyuninformedpundits.Yetsadlytheseinterruptions,whichshouldbeencouraged,barelylastlong.Hostilitiesarerenewed.Thevictimsoftenincludedisadvantaged,marginalised,mentallydisabledpersons,andtheirfamiliesandthecommunitiesinwhichtheylive.

Withitslongstandingexperienceinprovidinghumanitariansupporttovulnerablepeopleworldwide,includinginthejusticesystem,AustralianRedCrossiswellplacedtogivevoicetothewaythecurrentlaws,policiesandpracticesonimprisonmentimpactoursociety.AustralianRedCrossisalsowellpositionedtoprovidecrediblealternativestotheapproachwearecurrentlypursuing.IendorsethewayinwhichthisVulnerability Reporthastackledtheprobleminourmidst.

Inaclimateoffiscalrestraint,wherescarcegovernmentalresourcesmustdelivertothecommunitythebestvalueandoutcomesinservices,thetimeisrightforamorerational,economicandhumaneapproachtoournationalwaysandourtrendofincarceration.Ourfederalsystemisconstitutionallydesignedtopermit,andencourage,experimentationandcomparativeprojectsofinnovation.Australianeedstorediscoveritsearlierembraceofconstructivelawreform.ThisVulnerability Report urgesustorethinkourcriminaljusticeandpenalmethods.Toooftentheonlydirectiontakenhasbeentoincreaseimprisonment.Itistimetoshiftgearsandtoconsidernewdirectionsandgoals.

TheHon.MichaelKirbyACCMG*

This Vulnerability Report, presented by Australian Red Cross, is a timely appeal to Australia’s rationality and compassion.

RecentanalysisoffulltimeimprisonmentratesinAustraliabytheJudicialCommissionofNewSouthWales1showthat,overthepastyear,Australia’sprisonnumbershadreacheda10-yearhigh.Withalmost34,000prisoners,sentencedandunsentenced,theaggregateshowsanincreaseof10%in2013.TheincarcerationinIndigenousoffendersisaspecialsourceofshameforobserversoftheAustralianprisonsystem.TheAustralianBureauofStatisticsrecordedthatnearly9,500prisonersidentifiedasAboriginalorTorresStraitIslanders–morethanathirdofthetotal,eventhoughIndigenousAustraliansarefewerthan2%ofourpopulation.

Thesefiguresconstitutearebuketooursociety.Buttheproblemismorecomplexthanthebarestatisticssuggest.TheriseinthenumberofprisonershasoutpacedthenumberofavailableprisonplacesinAustralia.Thereisasevereshortageofbeds.Thishasresultedinovercrowdingandexposureofprisonerstounacceptabledangers2.

ThePublicInterestAdvocacyCentre,whichhasworkedwithdisadvantagedandmarginalisedgroupsinthecriminaljusticesystemformorethan30years,hassaid3: “Legislativechanges,coupledwithpolicing

practices,areleading…vulnerableclientstowardsarevolvingprisondoor.Thelackofoperationalcapacityhasledtoinmatesbeingdouble-or-triple-bunkedincellsoriginallydesignedforone.Butithasalsoledtotheexpenditureofincreasingamountsonthebuildingofprisons.Givenknowledgewenowhaveconcerningthehighlevelsofmentaldisabilityamongstprisoners,togetherwithwelfare,drugandalcoholproblems,aquestionisposedastowhethertheAustralianapproachtorespondingtoanti-socialconductis(inpartatleast)ineffective,overpriced,ill-targetedandinhumane.”

InSweden,inthe10yearsto2014,thenationalprisonnumbersdroppedfrom5,722to4,500inapopulationof9.5million.Therewasnocrimewavefromthereducedrelianceonincarceration.Swedenappearstobedoingsomethingcorrectly.AustraliaandNewZealandneedstostudytheeconomicandhumancostsofcopyingtheAmericanmodelofincarcerationasapenaltyofcommonresort,ratherthanthemodelapplicableinotherjurisdictions,whereincarcerationistrulyapunishmentoflastresort,asthecommonlawandstatutoryprovisionsassertitshouldbe4.

*JusticeoftheHighCourtofAustralia(1996-2009);ChairmanoftheAustralianLawReformCommission(1975-84);PatronoftheCommunityRestorativeCentre(2011-).


Australian Red Cross is proud to present the second Vulnerability Report: Rethinking Justice.

Australianeedsaprisonsystemforthosewhobreakseriouslawsandneedtodotimeinprison.Butoursiscostingbillionsmorethanisnecessarybecauseweareoverusingourprisonsystemwhentherearemoreeffectivealternatives.

Weneedreformandtherearebetterwaystoachieveimprovedoutcomesforsociety,fortaxpayersandforoffenders.

TheVulnerability ReportisaperiodicresearchcontributionbyAustralianRedCrossoncriticalpublicpolicymatters.The2016reportdrawsoncurrentinternationalandAustralianevidenceregardingjusticesystemredesignaswellastheexperiencesofourclients,thecommunitiesthatweworkwith,volunteersandsectorpartners.Itsetsoutacaseforchangewithanemphasisonsupportingbroadersectorcallsfor“justicereinvestment”,asanalternativetoexistingcriminaljusticeapproachesinAustralia.Thereporthighlightstheactualcostsofcurrentapproachestocriminaljusticeandproposessystemicreform.Wemakefivekeyrecommendationsandcallongovernmentsandthecommunitytoworktowardsimplementingthese.

Thisissueisnotonethatwecanaffordtoignore:thereisbothaneconomicandahumanitarianimperativeforchange.

Theincreasingincidenceofincarcerationratescontinuestotakeasignificanttolleconomically,witha$3.4billionannualcostofbuildingandoperatingprisonsacrossAustralia.

Withnearly34,000peopleheldinAustralianprisons,theimpactonthelivesofprisoners,theirfamilies,andcommunitiesisdetrimental,inhumaneandunacceptable.Thecontinuingover-representationofAboriginalandTorresStraitIslanderpeoples,andotherpeoplewhoexperiencesocialexclusionanddisadvantage,cannotcontinueunchallenged.

AustralianRedCrossisaleadinghumanitarianagencyandpartofthewiderInternationalRedCrossandRedCrescentMovement.RedCrossandRedCrescentNationalSocietiesaroundtheworldhavealonghistoryofworkinginprisonsandintheareaofcriminaljustice.InAustralia,weseektocontributetosaferandmoresociallycohesivecommunitiesthroughgettingbetteroutcomesfrommoreeffectivecriminaljusticesystems.

This2016Vulnerability Report advocatesforallofustorethinkourapproachandtotacklethecausesofcrimeinthosecommunitieswherecrimeismostprevalent.

JudySlatyerCEOAustralianRedCross

Introduction Judy Slatyer, CEO


Executive Summary Thisunproductiveexpenditureonprisonsshouldbeinvestedinprogramsthatbothreducecrimeandpreventpeopleenteringthecriminaljusticesystem.Moreeffectivesupportneedstoalsobeprovidedforpeopletoreintegrateintothecommunityaftertheirrelease.Thisredirectionofspendingfromprisonstoearlyinterventionandsupportprogramsisbeingadoptedoverseasunderthebannerof‘justicereinvestment’-andtherearesomeearlytrialsbeingconductedinAustralia.

Doing justice better: through justice reinvestment

TheanalysisofjusticereinvestmentbothinAustraliaandoverseassuggeststhisapproachismoreeffectivethanthecurrentapproachestojustice.Justicereinvestmentinvestsinpeopleandcommunitiestoprovidesupport,treatmentandservicesthataddresstheunderlyingissuesconfrontingpeoplewhocommitlessseriousoffences.Theseissuesincludehomelessness,mentalhealth,deepsocialexclusion,andpooreducationandemploymenthistories.Evidencesuggeststhatitismoreefficientandeffectivetoaddressthecausesandthusreducetheneedfor(andgreatercostof)incarceration.

AcrossAustralia,researchershaveidentifiedthosecommunitieswheresocialexclusionanddisadvantagearedrivingcrimeandothersocialissues.AustralianRedCrossbelievestherearegreatopportunitiestoworkwithcommunityleaderstoaddressthespecificcausesofcrime.EarlyindicationsfromtrialsinAustraliasuggestthatadoptingalocaljusticereinvestmentapproachwillpaybiggerlong-termdividendsthana“toughoncrime”approach.

Growing adult imprisonment rates and costs: inhumane, inefficient and ineffective

Prisonsareanecessarypartofsociety.Peoplewhobreakthelawdeserveappropriatepunishment,includingappropriatecustodialsentences.However,theaimofanyprisonsystemmustbealsotopreventpeoplefromre-offending.Wherewehavepeoplecaptiveweshouldusethistimetomaximisethereturnonthecosttosociety.ButAustraliahasnotuseditsexpenditureonprisonsasaninvestmentinthefuture,onlyasacostofthepast.Wehaveover-investedinprisonswithcurrentexpenditureof$3.4billionwhichisfailingtodelivereffectivejustice,socialoreconomicoutcomes.

Rethink and reinvest: from prisons to prevention and diversion

Withtheprisonpopulationdoublinginthelast20years,andtheoccupancyrateofAustralianprisonsat104.4%,somethingneedstochange.AustralianRedCrosscallsonAustraliangovernmentstochangeourjusticesystems.Moreeffectiveexpenditurecoulddeliversafer,morecohesivecommunities,supportmoreproductivelivesforpeopleinvolvedinthecriminaljusticesystemandsavegovernmentsmillionsofdollars.

AustralianRedCrossbelievesthatprisonsshouldfocusonpeopleinvolvedinseriouscrimeandwhoposeahighrisktothecommunity.Evidenceshowsthatmanypeoplegoingintoprisoncomefromhighlydisadvantagedcommunitiesandoftenhavemultipleandcomplexproblemsthatarenotaddressedinprison.Thesepeopleleaveprisonhavingnotreceivedadequatetreatmentorsupportandwithlittleabilitytosuccessfullyre-entersociety–hencethecycleofcrimecontinuesforthemandtheircommunities.

This second Vulnerability Report from Australian Red Cross focuses on Australia’s current criminal justice systems. It highlights the inhumane effects of growing adult imprisonment rates and the failure of current approaches to reduce crime, target government expenditure effectively and produce safer communities.


Closing the Gap on Aboriginal and Torres Strait Islander incarceration rates

AboriginalandTorresStraitIslanderpeoplesandcommunitiesareparticularlyimpactedbyourcriminaljusticesystem,withAboriginalandTorresStraitIslanderpeoplesbeingincarceratedatrates13timesgreaterthannon-Indigenouspeople.TherehasbeenanextraordinaryrecentgrowthinprisonernumbersamongAboriginalandTorresStraitIslanderpeopleswithan88%growthinIndigenousprisonerssince2004.TheClosingtheGapStrategyshouldhaveafocusonAboriginalandTorresStraitIslanderincarcerationandjusticeissuesandshouldincorporatetargetsforreducingratesofadultimprisonmentforAboriginalandTorresStraitIslanderpeoples.

Save on prisons and reinvest in crime reduction

AustralianRedCrosshasestimatedthatoverafive-yearperiodsubstantialfundscouldbefreedupfromexpenditureonprisonsandredirectedtoexpendituretargetedonreducingcrime.• Iftherateofincarcerationwassimplyheldatcurrent

levelsthroughjusticereinvestmentandotherjusticereforms,thensavingsofalmost$1.1billionwouldbegeneratedoverfiveyearsincorrectionalcostsalone.

• Iftherateofincarcerationwasreducedby2%perannum,thensavingsofalmost$2.3billioncouldberealisedoverfiveyears.Partofthesesavingscouldbeinvestedinthesocialsupportandhealthservicesthatwould,overtime,addresstheunderlyingcausesofcrime.

Sustainabledecreasesinincarcerationratesarepossible.ThishasbeendoneinTasmania,aswellasinanumberofjurisdictionsoverseas.

Thisisnotaboutbeingsoftoncrime.Thepublicdebateneedstochangefrombeing”harder”or“softer”torethinkingwhatarethemosteffectiveresponsestocrimeandapplyingtheavailableresourcestothem.Evidencesuggeststhatrelativelyminimaldecreasesinthenumberofpeopleinprisonscanbeusedtofundthecommunityprogramsandotherjusticereformsthatarelikelytohaveasubstantialimpactonreducingcrime.

ThereportrecommendsthatgovernmentssettargetsforreducedincarcerationratesandaClosingtheGapjusticetargetforAboriginalandTorresStraitIslanderpeoples.Adoptionofthesetargetswouldallowcommunitiestoholdgovernmentstoaccountfortakingactionontheseimportantreforms.

Recommendations

1.ThatallgovernmentsinAustraliarethinkandchangetheirapproachestojusticetoachievelowercrimerates,lowerincarcerationrates,reducedprisoncostsandstronger,safercommunities.

2.ThatallgovernmentsinAustraliaintroduceajusticereinvestmentapproachandjointlysupportitsimplementationthroughtheLaw,CrimeandCommunitySafetyCounciloftheCouncilofAustralianGovernments.

3.ThatallgovernmentsinAustraliaestablish,fundandevaluatejusticereinvestmenttrialsacrossAustraliainspecificgeographiccommunitieswithhighratesofcrimetodeterminehowjusticereinvestmentcanbeappliedinAustraliancontexts.

4.Thatstateandterritorygovernmentsadoptthejusticereformproposalsoutlinedinthisreportto:•preventcrimeandrecidivism•increasenon-custodialsentencing•improveparoleandreintegrationtothecommunity.

5.That,asafirststep,allgovernmentsinAustraliacommitto:•a10%reductioninadultimprisonmentratesoverthenextfiveyears

•aClosingtheGapjusticetargettoreducetheunacceptablyhighadultimprisonmentratesofAboriginalandTorresStraitIslanderpeoplesby50%overthenextfiveyears.

AustralianRedCrossrecognisesthatthisisnotjustgovernments’business.Itrequiresawholeofcommunityresponseandwillonlybeachievedthroughworkingtogether.RedCrossstandsreadytoplayitspartinbuildingasafer,morehumaneandsociallycohesivesociety.


About Australian Red Cross

Australian Red Cross is a member of the International Red Cross Red Crescent Movement which operates in 190 countries.

Inallourwork,weareguidedbytheFundamentalPrinciplesofhumanity,impartiality,neutrality,independence,voluntaryservice,unityanduniversality.

Theprincipleofhumanitydrivesourpurposetosupportandempowerpeopleandcommunitiesintimesofvulnerability,andpreventandalleviatesufferingwhereveritmaybefound.Weprovideassistancetothosewhoneeditwithouttakingsides.Thisapproachgivesustheindependencetoworkthroughcomplexsituationsandtoremainfocusedonbuildingrelationshipsaimedatdeliveringhumanitariansolutions.

VoluntaryserviceisattheheartoftheMovement’sabilitytomobilisethepowerofhumanity.InAustralia,RedCrosshasbeenavitalpartofthecommunitysince1914.Today,weworkwithpeopleandcommunitiesprovidingarangeofprogramsinemergencyservices,migrationsupport,socialservices,communitydevelopment,overseasaid,andInternationalHumanitarianLaw.

OurdiverseandcommittedvolunteersandstaffsupportAustralianRedCross’effortstoachievethefivestrategicgoalsofStrategy2020:

• BuildadiverseandactivehumanitarianMovementbasedonvoluntaryservice

• Savelives,buildresilientcommunitiesandstrengthendisasterresponseandrecovery

• Preventandalleviatehumansufferingintimesofwarandconflictandpromotenon-violenceandpeace

• Advancehealth,well-beingandresilienceofindividuals,familiesandcommunitiesmadevulnerablebydispossession,migration,displacement,illnessordisadvantage

• Maintainastrong,innovative,sustainableandaccountableorganisationcapableofachievingourhumanitariangoals.

A prisoner wears a t-shirt printed with the Fundamental Principles of the Red Cross Red Crescent Movement in an Irish prison where Irish Red Cross runs prisoner volunteers programs. An international example of Red Cross work with prisons and courts. Ph

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In Woorabinda Red Cross is helping to build young leaders who are proud of where they’re from - with positive results for the whole community.

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SECTION ONE

Analysis of the Prison Population and Underlying Issues1. Australia has increasing rates of adult

imprisonment despite crime rates being constant or decreasing

Overthelast20years,Australia’sprisonpopulationhasdoubled.At30June2014,therewere33,791peopleinAustralianprisonscomparedwith16,944peopleinAustralianprisonsinJune1994.

The prison population has doubled in the last 20 years.

The rate at which we imprison people has increased by 48%.

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20002001

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RobberySexual AssaultHomicide Kidnapping/abduction

Australiaisincreasinglyimprisoningpeople,withtheincarcerationrategrowingby48%overthetwodecadesto2014.Overthelastthreedecades,between1984and2014,therehasbeenanincreasefrom85.6to185.6peopleper100,000oftheadultpopulationinprison.

Atthesametime,ourincarcerationrateshavebeenincreasingwhileviolentcrimerateshaveeitherdeclined(robberyandsexualassault)orheldsteady(homicideandkidnapping/abduction)inrecentdecades5.

Thisdataisfurtherreinforcedby2014datafromtheAustralianBureauofStatisticswhichshowsthat:▪ between2013and2014,thenumberofrecorded

victimsdecreasedforthemajorityofoffencecategories.Robberyhadthelargestproportionaldecreaseof16%(1,825victims)

▪ homicide,kidnapping/abduction,robbery,unlawfulentrywithintentandmotorvehicletheftvictimsallfelltofiveyearlows6.

Victims of violent crimes, 1996-2012 (rate per 100,000 population)Note:Homicideandkidnappingeachoccuratratesoffewerthan5per100,000populationperyearandaredificulttodistinguishonthisgraph

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Despitecrimeratesbeingsteadyorfallingtherecontinuestobereportsaboutusfeelinglesssafe.Thiscancreateacycleofdrivingdecisionmakerstobetougheroncrime.

TheUnitedKingdomHouseofCommonsJusticeCommitteereportedin2010: ‘Widerfactors,suchasthemedia,publicopinion

andpoliticalrhetoric,contributetorisk-aversecourt,probationandparoledecisionsandhenceplayaroleinunnecessarysystemexpansion.IfMinisterswishthe(correctional)systemtobecomesustainablewithinexistingresources,theymustrecognisethedistortingeffectwhichthesepressureshaveonthepursuitofarationalstrategy’7.

International comparison rates

Australia’sincarcerationratesarerelativelyhighwhencomparedwithanumberofothersimilarWesterncountries.

Forexample,Sweden’simprisonmentrateis60%lower,Ireland’sis46%lowerandCanada’sis30%lower.However,NewZealand’sis25%higherthanAustraliaandtheUnitedStatesofAmericastandsoutwithanincarcerationratethatis360%greaterthanAustralia.

Bucking the trend in Tasmania

WithinAustralia,Tasmaniastandsoutasrunningcountertothetrendofconstantlyincreasingnumbersofprisoners.▪ OverthedecadeJune2005toJune2014,Tasmania’s

adultprisonpopulationfellby6%from551to448adultprisoners8,despiteanincreaseof6%inthepopulationofTasmania9.

▪ Overthesamedecade,therateofadultimprisonmentfellby25%from149.6per100,000oftheadultpopulationto112per100,000ofadultpopulationinTasmania.Fortheotherjurisdictionstheoverallincreasewas33%10.

RobWhite,ProfessorofCriminologyatUniversityofTasmania,hasidentifiedthereasonsforthissuccessasexpansionofbettersupportserviceswithinthecorrectionssystem,establishmentofinnovativeprojectsthatengageoffendersandtheuseofsystematicmeasuresthatencouragerehabilitation11.

Australia is jailing people at high rates, even though crime rates are steady or falling.

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2. Prisons are costly to build and operate

AcrossAustralia,thecostofprovidingcorrectionalservicesin2013/14was$3.9billion,mostlytooperatethe111prisonsinuseacrossAustralia($3.48billion).Lessthanhalfabilliondollars($0.48billion)wasspentoncommunitycorrections.

Thecostsofprovidingprisonsvaryconsiderablybyjurisdictionasshowninthediagram.TheaveragecostofincarceratingapersoninanAustralianprisonis$292perday12.

Evenwithgovernmentsspendingmoreonbuildingnewprisonsorexpandingexistingfacilities,manyprisonsarefullorovercrowded.In2013/14,prisonshadanoccupancyrateof104.4%acrossallAustralianjurisdictions.Thishighutilisationratemeansthatthereweremoreprisonersinprisonsthantheyweredesignedtohold.

Insomejurisdictions,solutionstoovercrowdinghaveincludedaccommodatingprisonersinfittedoutshippingcontainers14.Anothercommonapproachistousepoliceholdingcellstoaccommodateprisonerswhenprisonbedsarenotavailable15.

It costs $292 per day to keep someone in jail.

$239.64

$301.55

$266.32

$328.08

$260.76

$351.88

$393.83

$393.97

The daily cost of keeping a person jailed

Net recurrent expenditure, per prisoner and offender, per day 2013-1413


3. Our prisons are not being used efficiently

Whiledataislimited,thereissomeevidencethattoomanypeoplearebeingheldinprisonforrelativelyminorcrimesorbecausetheyarewaitingforsentencingorcourthearings.Thisisnotanefficientuseofourprisonsystem,particularlygiventherelativelyhighcostsofholdingpeopleinprison.

AustralianBureauofStatisticsdata16suggeststhatshorttermprisonsentencesareparticularlycommonfortrafficandvehicleregulatoryoffences,aswellasoffencesagainstjusticeprocedures,governmentsecurityandoperations.Approximately14%ofallprisonersareinjailforthesecharges.Re-directingthesepeopletonon-custodialsentencesfortheseoffenceswouldreducecostsandavoidprisonforthesepeople.

Atthesametime,almostonequarter(24%)ofpeopleinprisonarenotsentenced(onremand).Peopleonremandaremadeupofunconvictedpeoplewhoareheldincustodywhilewaitingforatrialorcourthearingandconvictedpeoplewhoareawaitingsentencing.

At30June2014,therewereover8,200peopleremandedincustodyinAustralianprisonsandthisnumberhasdoubledoverthelast30years.In1984,only12%ofprisonerswereonremand.By2000thishadincreasedto17%ofallprisonersbeingonremand17 andby2014itwas24%.

Therearegoodreasonswhypeopleareremandedincustody,includingthelikelihoodoffailingtoattendtrial,preventingpeopleinterferingwithwitnessesandwheretherearereasonablegroundstobelievethatthepersonwouldcommitfurtheroffencesbeforetheirtrial.However,thegrowingrateofpeopleheldonremandisofconcern.

WhilethereislimitedAustralianresearchregardingpeopleonremand,researchfromtheUKindicatesthattheyaremorelikelythansentencedprisonerstobehomeless,unemployedorhavesomeformofmentalillness18.

OtherdatashowsthatAboriginalandTorresStraitIslanderpeoplesaremorelikelytoberemandedthannon-Indigenouspeople,with29%ofAboriginalandTorresStraitIslanderprisonersbeingonremandcomparedwith24%ofnon-Indigenousprisoners.

Thisdatasuggeststhathighlydisadvantagedpeopleareoftenputinprisonevenbeforetheyarefoundguiltyandconvicted.Therefore,theremaybeopportunitiestoreduceprisoncostsbyreducingthenumberofpeopleinprisononremandthroughmoreefficientandtimelycourthearingsandsentencingprocesses.

The number of people in jail awaiting sentencing has doubled in 30 years.

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These are often highly disadvantaged people who are defaulting to prison before they are found guilty or convicted.


4. People in prison are likely to come from disadvantaged and socially excluded backgrounds

Availabledataindicatesthatpeopleinprisontendtobedisadvantagedandexcluded,oftenwithcomplex,longtermissues.Prisonerbackgroundstypicallyincludeloweducation,unemployment,mentalhealthissues,cognitiveimpairment,drugandalcoholuse,sexualabuseandfamilyrelatedissues.Inaddition,incarcerationratesarefarhigherforpeoplewhocomefromgeographiccommunitiescharacterisedbydisadvantageandforAboriginalandTorresStraitIslanderpeoples.

Peoplewithmentalhealthissuesaresignificantlyoverrepresentedintheprisonpopulation.ProfessorOgloff,ProfessorofForensicBehaviouralScience,DirectoroftheCentreforForensicBehaviouralScienceatSwinburneUniversityofTechnology,recentlycommented,‘Prisonersaretwotothreetimesaslikelyasthoseinthecommunitytohaveamentalillnessandare10-15timesmorelikelytohaveapsychoticdisorder.Ourresearchsuggeststhatoneinthreepeopletakenintopolicecustodyarelikelytobereceivingpsychiatrictreatmentatthetime.Ifyouincludethosewithasubstancemisusedisorder,thenumbersincreaseevenfurther’19.

TheAustralianInstituteofHealthandWelfare2012surveyofprisoners’healthunderlinedthelevelofmentalhealthissuesthatprisonersexperience,notingthatonentrytoprison:

• 26%ofpeoplearereferredtomentalhealthservicesforobservationorassessment

• 7%ofpeopleareatriskofsuicideorselfharm• 21%ofpeoplearetakingmedicationsforamental

healthdisorder20.

Peoplewithanacquiredbraininjuryalsoseemtobesubstantiallyoverrepresentedintheprisonpopulation.AVictorianstudyfoundthat42%ofmaleprisonersand33%offemaleprisonershadanacquiredbraininjurycomparedto2%ofthegeneralpopulationofAustralia21.

At30June2014,Australian-bornprisonersaccountedforfourineveryfiveprisonersinAustralia(81%or27,397prisoners),whileoverseas-bornprisonersaccountedfor18%ofallprisoners(6,035prisoners)22.

PeoplefromculturallyandlinguisticallydiversebackgroundsfacearangeofissueswhentheycomeintocontactwiththeAustraliancriminaljusticesystem.

TheyarelesslikelytounderstandthewaythecriminaljusticesystemworksthanthosewithproficientEnglishskills.Issuesincludelackofawarenessoftheirrightsinpolicequestioning,accessingbail,navigatingthecourtsystemandhowtonavigatetheprisonsystemandrules23.

Thefollowingbarriersarecitedascommontoculturallyandlinguisticallydiversecommunitieswithinthejusticesystem:

• culturalbarriers(languageandculturalnorms,aswellastraditionalgenderrolesandfearofauthorityfigures,suchaspolice)

• structuralbarriers(lackofknowledgeofavailableservicesanddifficultiesaccessingthem)

• service-relatedbarriers(e.g.servicemodelsareculturallyinappropriateorareperceivedtobeso)24.

5. High rates of crime are concentrated in a few communities that experience high levels of disadvantage

VinsonandRawsthorneintheirrecentstudyoflocationaldisadvantageinAustraliapointedtoasmallproportionofoffenderscommittingalargeproportionofcrime25.InmeasuringlocationaldisadvantageinAustralia,VinsonandRawsthorneuseddataoncriminalconvictionsandprisonadmissionsaspartofthedataset.

TheevidencethatlocationmattersinunderstandingtheincidenceofcrimeisalsoshowninareportbyAllardetal.

“Thereisalargebodyofresearchindicatingthathighcrimeratesaretypicallyconcentratedinsmallgeographicalareascharacterisedbystructuraldisadvantage,includingloweconomicstatus,poverty,segregation,ahighproportionofsingleparentfamilies,residentialinstabilityandalargeproportionofracial/ethnicminoritygroups”26.

Allardetal’sstudyfocusedontargetingcrimepreventionthroughidentifyingQueenslandcommunitiesthatgeneratechronicandcostlyoffenders.Itfoundthat15.8%ofoffendersaccountedfor67%ofoffencescommitted.Thestudyalsoidentifiedthatchronicoffendersarenotrandomlydistributedgeographicallybutratherthatchronicoffendersarelikelytoliveinspecificpostcodes.


6. Prisons are not effective in rehabilitating people or deterring crime

Althoughsomeprisonsprovidearangeoftrainingandworkreadyskilldevelopment,generallytheevidencesuggestsprisonsarenoteffectiveinachievingtwooftheprimarygoalsthatareoutlinedforcustodialsentencesintheSentencingActsofgovernmentsaroundAustralia:rehabilitatingoffendersanddeterringoffendersfromcommittingoffences.At30June2014:

• 59%ofprisonersincustodyhadbeensentencedpreviouslytoanadultprison

• 77%ofAboriginalandTorresStraitIslanderprisonershadbeensentencedpreviouslytoanadultprison.

Further,dataonrecidivismindicatesthatabout38%ofprisonersarereimprisonedwithintwoyearsoftheirrelease27,eitherbecausetheyhavereoffendedorbecausetheyhavebreachedtheirreleaseconditions.Manyprisonersre-offendwithinthefirst3weeksofbeingreleased.

Ratherthandeterringcrime,prisonsmayhavetheoppositeimpactofincreasingthelikelihoodofapersonreoffending.Inaresearchstudyofpeopleconvictedforeithernon-aggravatedassaultorburglary,ProfessorWeatherburn,DirectoroftheNSWBureauofCrimeStatisticsandResearch,found“Thereisnoevidencethatprisondetersoffendersconvictedofburglaryornon-aggravatedassault.Thereissomeevidencethatprisonincreasestheriskofoffendingamongstoffendersconvictedofnon-aggravatedassaultbutfurtherresearchwithlargersamplesisneededtoconfirmtheresults”28.

Prisonersoftencycleinandoutofprison,withrelativelyshortepisodesofincarcerationfollowedbyreleasetothecommunity.Thischurnfactormeansthatthemedianlengthoftimeinjailforsentencedprisonersis1.8years29.

ProfessorStuartKinner,SchoolofCriminologyandCriminalJustice,GriffithUniversity,hasrecentlyestimatedtherewere42,239peoplereleasedfromAustralianprisonsin2013/1430.Almost60%ofthosepeoplewillhavepreviouslybeenreleasedfromprisonandreturned.Thisunderlinestheimportanceofreformtoreducethenegativeimpactofrepeatedprisonstaysonpeople’slives.

Prisonisalsonotthesolutionforpeoplewithcomplexneedswhoaregenerallyoverrepresentedinprison.

Baldrystatesthatprisoncan“makeapersonatargetforre-arrestandre-imprisonment;itdisruptssocialconnectionsandlockspeopleintoserialinstitutionalisation,doesnotguaranteegoodorappropriatetreatmentandoftenanytreatmentstartedisnotcontinuedinthecommunityuponrelease;itmakeshomelessnessmorelikely,createsconnectionswithcriminalculture,ensuresthelearningofprisonculturetosurviveandoftencausesself-harmanddepression”31.

Imprisonmentalsoimpactsfamiliesofprisoners,aschildrenloseparentsandspouseslosepartnerswhiletheyareincarcerated,withtheimpactsoftenbecomingintergenerational.UKdatashowsthatthechildrenofprisonersaresixtimesmorelikelythantheirpeerstobecomeprisoners.InAustralia,GoodwinandDavisfoundthatthechildrenofparentswithacriminalrecordhaveamuchgreaterlikelihoodofbecominginvolvedincrimethanthechildrenofparentswhodonothaveacriminalrecord32.


7. Incarceration rates for Aboriginal and Torres Strait Islander peoples are unacceptably high

AboriginalandTorresStraitIslanderpeoplescontinuetobeoverrepresentedwithinthejusticesystem.BetweenJune2013andJune2014,theadultimprisonmentrateofIndigenousadultsincreasedby6.5%to2,175prisonersper100,000ofadultAboriginalandTorresStraitIslanderpeoples33.

TheIndigenousimprisonmentrateis13timeshigherthanitisfornon-IndigenouspeopleinAustralia34.

Thishighincarcerationrateisreflectedinan88%growthinprisonernumbersamongAboriginalandTorresStraitIslanderpeoplessince2004.Overthesameperiodthenon-Indigenousprisonernumbersgrewby28%35.

AboriginalandTorresStraitIslanderpeoplestendtobeimprisonedforrelativelyminormattersthatarelesslikelytoresultinprisonsentencesfornon-Indigenouspeople.ThisisreflectedinshorterprisonsentencesforAboriginalandTorresStraitIslanderprisoners(1.2years)comparedwithtwoyearsfornon-Indigenousprisonersin201436.

PreviousreviewsandreportshavehighlightedtheoverrepresentationofAboriginalandTorresStraitIslanderpeoplesinprisonincludingtherecentAmnestyInternationalreport,whichshowsthatAboriginalandTorresStraitIslandermenaretwiceaslikelytobeinprisonastheyareinuniversity37.

TheAmnestyInternationalReporthasagainhighlightedtheextraordinaryoverrepresentationofAboriginalandTorresStraitIslanderyoungpeopleintheyouthjusticesystem.Onanaveragenightin2013–14,therewere430IndigenousyoungpeopleindetentioninAustralia.Despitemakinguponly5.5%ofthepopulationof10to17yearolds,Indigenousyoungpeoplemadeupoverhalfofallyoungpeopleindetention(430outof724)38.

The2011inquirybytheStandingCommitteeonAboriginalandTorresStraitIslanderAffairsshowsthathighlevelsofcontactwiththecriminaljusticesystembyIndigenousyoungpeopleis“asymptomofthebroadersocialandeconomicdisadvantagefacedbymanyIndigenouspeopleinAustralia”39. SimilarconclusionswerereachedduringtheRoyalCommissionintoAboriginalDeathsinCustody40.

AbroadrangeofAboriginalandTorresStraitIslanderandnon-IndigenousorganisationsundertheChangeTheRecordCoalitionhavelauncheda‘BlueprintforChange’includingasetofrecommendations,(atAppendixB)thatalignwiththerecommendationsinthisreport.TheChangetheRecordBlueprintisbasedonawholeofgovernmentstrategy,thesettingofjusticetargets,andacommitmenttoworkinpartnershipwithAboriginalandTorresStraitIslandercommunitiestodrivesolutions.TheBlueprintalsohighlightstheneedtoworkwithAboriginalandTorresStraitIslandercommunitiestoinvestinholisticearlyintervention,preventionanddiversionstrategies.41

WealsoknowfrompaststudiesandreviewsofIndigenousprograms,thatAboriginalcontrolledorganisationsmustcontinuetobesupportedandfundedtodeliverqualityandculturallysensitiveservicestomeetthehighlevelsofunmetneed,andtoaddresstheunderlyingcausesofhighincarcerationratesinmanycommunities.


WoorabindaisanAboriginalcommunityof970peopleinCentralQueensland,about180kilometressouth-westofRockhampton.Thirty-sixpercentofthepopulationisunder15andthemedianageis22years-significantlybelowthemedianageforAustraliaof37years.

AustralianRedCrossstartedworkingwiththeWoorabindacommunityin2008aspartofaplace-basedprogramapproach.TheteamusestheSaltwater-FreshwatergovernancemodeltoensuretheintegrityandstrengthofWoorabindacultureisrespectedandmaintainedwhileprovidingexpertisefromoutsideofthecommunity.

AGovernanceGroupconsistingofWoorabindacommunitymembersandRedCrossmanagementensurethatservicesandinitiativesenactedinthecommunitysupportthecommunity’svisionandgoalsandadoptaplace-basedapproach.Thereare17fulltimeandparttimelocalpeopleemployed,makingRedCrossthetown’sthirdlargestemployer.

Overall,theinvestmentinthecommunityofWoorabindaanditsyoungpeoplehassupportedamorepositiveoutlook,helpedbuildprideintheircommunityandledtobehaviourchangesresultinginfeweryoungpeopleinthejusticesystem.ThenumberofyoungpeoplesubjecttoyouthjusticeordersinWoorabindahasdecreasedfrom31in2009to14in2013,a55%decrease.Thecommunityisclearthattheinitiativesthathavebeenputinplaceaspartofaplace-basedapproachhavecontributedtoasolidcommunityefforttoreduceyouthjusticeorders.

Alongwiththecommunity,theYouthSupportteamhasdesignedandimplementedanapproachtosupportingyoungpeopleinthecommunitytobuildself-esteemandconfidence.Leadershiptrainingandskillsdevelopmentareemphasisedtogetherwithyoungpeoplebeingrolemodelsforyoungerchildren.MultimediaandmusicareusedextensivelytohelpyoungpeopletotelltheirstoryandthehistoryofWoorabinda.

JobeAdams,15,foundapassionforfilmmakingandmadeBuloo,afilmaboutDarren,aboywhowantedtobelikehisgrandfather.Buloo(meaning“grandfather”)depictshowDarren’sgrandfathertaughthimtorespecthisElders,helphiscommunityandprotecthislanguage.Jobewasawardedsecondprizeinthe2014TropJunior,partoftheTropFestFilmFestival.

AnotherareaofconcerntheWoorabindacommunityidentifiedwasthelackofsupportforadultstocompleteCommunityServiceOrders(CSOs)meaningthatpeoplewerebeingincarcerated.ByfocusingontheopportunitiesthatcouldbegeneratedthroughCSOs,18peoplenotonlycompletedtheirordersinsixmonthsbutalsoobtainedaCertificateIIIinPestControl.TwootherpeoplecompletedCertificateIIIinFitnessandwentontogainemploymentwiththeWoorabindaShireCouncil.Inaddition,angermanagementworkshopswereprovidedwiththefeedbackbeingthatthesehavebeenvaluableforpeopleinmakingchangestotheirbehaviour.

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Working the Woori Way

18 | VULNERABILITY REPORT 2016SECTION TWO

Rethinking Justice and Policy Reforms1. What is justice reinvestment?

AustralianRedCrosssupportsthebroadersectorviewsregardingjusticereinvestmentasofferingastrongapproachforrethinkingandtransformingAustralia’sjusticesystems.

Whilethereisinternationaldebateanddiscussionregardingthetermjusticereinvestment,AustralianRedCrossunderstandsjusticereinvestmentasamechanismthatredirectsmoneyawayfromincarceratingpeopleinprisonsandtowardscommunitybasedinitiativesaimedataddressingtheunderlyingcausesofcrime.Justicereinvestmentisunderpinnedbythefollowingstartingpoints:• theevidenceshowsthatimprisoningpeoplefailsto

achieveintendedoutcomesintermsofrehabilitation,deterrence,orimprovementsincommunitysafety

• alargeproportionofoffenderscomefromarelativelysmallnumberofdisadvantagedcommunities.Therefore,locallydrivenapproacheswillbeessentialtojusticereinvestment

• alongsidecommunity-ledimplementationofsolutionstheuseofdata,mappingandeconomicmodellingtodriveevidencebasedinitiativeswillleadtomoreeffectiveoutcomes.

2. How does justice reinvestment work?

Justicereinvestmentinvolveslocalstakeholderscollaboratingacrosstheircommunitytoidentifythedriversofcriminaljusticecosts.Theythendevelopandimplementnewwaysofreinvestingscarceresources–bothinthecommunityandwithinthejusticesystem.Thisisdoneinawaythatyieldsamorecostbeneficialimpactonpublicsafety.42

Theessentialstepsinthejusticereinvestmentapproachare:• justicemapping-analysisoftheprisonpopulation

andpublicspendinginthecommunitieswhichhavehighratesofcrimeandimprisonmentoftheircitizens

• optionsforchange-provisionofoptionstopolicymakersforthegenerationofsavingsandincreasesinpublicsafety

• actions-implementationofoptions,quantification ofsavingsandreinvestmentintargeted high-riskcommunities

• evaluation-measurementofimpacts,evaluationandassuranceofeffectiveimplementation.43

Father and son take part in a Red Cross run parenting session. Community support programs like this target towns and suburbs where poverty, disadvantage and crime are common.

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IntheUS,whereincarcerationratesarecomparativelyhigh,justicereinvestmenthasparticularlydirectedfundstokeypointsinthecriminaljusticesystem:arrest,pre-trial,supportingnon-custodialsentences,bettersupportonreleaseandcommunitysupervision.44

JusticeReinvestmenthasbeenstronglytakenupintheUnitedStatessincethefirstJusticeReinvestmentlegislationwaspassedinConnecticutin2004.AformalJusticeReinvestmentInitiative(JRI)sponsoredbytheU.S.DepartmentofJusticeBureauofJusticeAssistancewaslaunchedin2010.

AtleastseventeenAmericanstatesarenowparticipatinginformalpartnershipswiththeBureautoimplementjusticereinvestmentstrategies.

TheJusticeReinvestmentInitiativewastheformalimplementationstrategybytheCouncilofStateGovernments(CSG)anditsnowprincipalfunders,PewCharitableTrusts(Pew)andBureauofJusticeAssistance(BJA).Theoriginalintentwastoreducecorrectionspopulationsandbudgetstogeneratesavingstobereinvestedincommunitieswithhighincarcerationratestomakethemsafer,stronger,moreprosperousandequitable.

However,therehasbeensomecommentarythattheformalisedJRIhasmovedawayfromthesegoals,seekingtoreducetherateofprisongrowthratherthanalsofocusingonreinvestingthesavingsincommunities.45

AnyjusticereinvestmentprojectsdevelopedwithinAustraliashouldlearnfromoverseasexperienceandhaveastrongfocusonusingsavingsinprisonexpenditureforreinvestmentintocommunities.

Implementation at the local level

Atthelocalleveljusticereinvestmentworksbestwhencommunityrepresentativesworkside-by-sidewithcriminaljusticeandpolicyexperts.

Thekindsofactivitiesthatwouldhappeninalocalcommunitytopreventcrimeandaddressitscausesarelikelytoinclude46:• afocusonpreschoolforyoungchildrenbuilding

onthestrongevidencethatqualityearlychildhoodeducationsignificantlyimproveschildren’slifechances,includinglowerratesofoffendingbehaviour

• educationprogramsthathelpkeepat-riskyoungpeopleengagedinschoolorfurthertrainingalongwithintensivetherapyprograms,mentoringandthecreationofrecreationalandemploymentopportunitiesforyoungpeople

• enhancedsupportforevidence-basedcommunitybasedmentalhealth,drugandalcoholtreatmentandothersocialsupportprograms

• crisisstabilisationbedstoholdpeopleexperiencingsubstanceinducedormentalhealthepisodes

• cognitivebehaviouraltherapiessuchasangermanagementandcounsellingalongwithbettersupportforwomeninabusiverelationships

• familysupportservicessuchasparentingprograms,enhancedmaternalandchildhealthcareandotherearlyinterventionprograms

• targetedsupervisionofoffendersonparolebackedbysophisticatedscreeningtoensurethefocusisonthosewhopresentthemostrisk

• intermediatesanctionfacilitiesandgraduatedpenaltiesfortechnicalbreachesofparolealongwithlocalproblemsolvingcourtsparticularlywheretheoffendingbehaviourisrelatedtosubstanceabuseormentalhealthissues

• effectiveassistancetoensurestableaccommodation,managefinances,findandkeepemploymentandtoreunitewithfamilytoensuresuccessfulreintegrationintothecommunityfollowingreleasefromprison.

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3. Current justice reinvestment trials occurring or being investigated in Australia

Thefollowingareasampleofsomeofthelocationswherejusticereinvestmentisbeingexplored.Thelearningsfromthesesitescouldbecapturedandsharedacrossthecountrytoinformfuturework.Whileeachlocationisuniqueandthesolutionswilldiffer,theconceptofjusticereinvestmentascommunity-ledandownedshouldbecommoninalllocations.

Bourke,NewSouthWales:TheBourkeAboriginalCommunityWorkingParty(BACWP)hasbeenworkingwithJustReinvestNSWsince2012toestablishthistrial.TheBACWPisthepeakrepresentativeorganisationforthelocalAboriginalcommunitywithmembersfrom18differentorganisations.

TheyareusingajusticereinvestmentapproachtobreaktheintergenerationalcycleofoffendingandincarcerationthroughalocallydevelopedagendaforchangecalledMaranguka(meaning‘togivetothepeople’,‘caring’and‘offeringhelp’inthelanguageoftheNgembaNation).

ThefirstpriorityofMarangukaistoreduceAboriginalcontactwiththecriminaljusticesystem.TheNSWGovernmentissupportingthetrialthroughin-kindresourcing.Therearealsopro-bonoservicesprovidedbyphilanthropicandcorporatesources.Thefirstphasehasfocusedonrelationshipbuilding,withspecificinitiativesbeingimplementedovertime. Cowra,NewSouthWales:Aresearchprojecttitled‘ReducingincarcerationusingJusticeReinvestment:anexploratorycasestudy’isbeingledbyDrJillGuthriefromtheNationalCentreforIndigenousStudies(NCIS)atTheAustralianNationalUniversity(ANU).ThecasestudysiteisCowra,NSW.TheresearchisbeingguidedbyaResearchReferenceGroupthatincludestheCowraShireCouncil,CowraAboriginalLandCouncilChair,andthePresidentoftheNSWChildren’sCourt,JudgePeterJohnstone.

TheresearchteststhetheoryandmethodologyofJusticeReinvestmentinthecasestudysite.ThisprojectisanexploratorystudyinvolvingaconversationwithCowrapeopletoidentifywhatenablesyoungpeopletoleadmeaningfullivesinCowra.It’sahypotheticalstudy,notaninterventionstudy-soforyoungpeoplewhomayhavebecomeinvolvedwiththecriminaljusticesystem,theresearchalsoexplorestheconditions,theunderstandingsandtheagreementsthatwouldneedtobeinplacesothatthoseyoungpeoplewhoareincarceratedcouldconfidentlyreturntothetownandleadmeaningfullives.

Theresearchcouldpotentiallyresultinfindingsandrecommendationsforaddressingthelevelsofyoungpeople(bothIndigenousornon-Indigenous)comingintocontactwiththecriminaljusticesystem.Also,theresearchcontributestobroaderunderstandingsofJusticeReinvestmentlocallyandnationally.

Formoreinformationontheresearchprojectpleasesee:http://ncis.anu.edu.au/cowra

Ceduna,SouthAustralia:AustralianRedCrossisfacilitatingengagementwithAboriginalcommunitiesinandaroundCedunaonjusticeissuesforAboriginalpeoplelivinginthearea.

Thenextphaseinvolvesdevelopingacommunity-ownedjusticeactionplantoaddressthecausesofcrimeinCeduna.TheinitiativeislinkedtotheSouthAustralianJusticeReinvestmentWorkingPartywhichisworkingwiththeSAGovernmentonjusticereinvestment.TheengagementcommencedinFebruary2015andisfundedbytheIanPotterFoundationandCollierCharitableFund.

Katherine,NorthernTerritory:SinceApril2015,theNorthAustralianAboriginalJusticeAgencyandtheNorthernTerritoryCouncilofSocialServicehavebeenconsultingwithabroadrangeofcommunitymembersandotherstakeholderstoinformtheintroductionofajusticereinvestmentframeworkinKatherine.

ThisprocessisbeingsupportedbyfundingfromtheNorthernTerritoryLawSociety.ASteeringCommitteeiscomprisedoftheKatherineAboriginalandTorresStraitIslandercommunity,Katherinecommunityorganisationsworkingwithyoungpeople,policeandcourtsaswellasfromTerritory-wideNGOsbasedinDarwin.


4. Recommendations for rethinking justice – safer communities, reduced crime, more productive government expenditure

ThissectionofthereportdetailsrecommendationsforrethinkingcriminaljusticepolicyacrossAustralia.Theserecommendationsincludeajusticereinvestmentapproachandotherpolicyreformstoachievesafercommunities,reducedcrimeandmoreeffectivespendingbygovernments.

Australian governments change their approaches to justice and introduce justice re-investment

Justicepoliciesshouldaimtoreducethenumberofpeopleenteringthecriminaljusticesystemandthelikelihoodofpeoplere-offendingafterservingprisonsentences.Toachievetheseoutcomes,AustralianRedCrossrecommendsandlendsitssupporttothebroadersectorthatjusticereinvestmentshouldbeacentralelementofjusticepolicy.

Theintroductionofjusticereinvestmentwillrequireresourcestobefreeduptoreinvestininitiativesthatdealwiththeunderlyingcausesofcrimeincludingissuesofsubstanceuse,mentalhealthissues,domesticviolence,lackofeducationandtraining.Investmentwillneedtofocusonstrengtheningdisadvantagedcommunitiestoaddresstheconditionsthatgiverisetocrimeinthesecommunities.

WhilejusticereinvestmentisalreadybeingexploredinAustralia,abetterresourcedandmorecoordinatedapproachisrequiredacrossalljurisdictionsthathaveprimaryresponsibilityforcriminaljusticesystems.AustralianRedCrossrecommendsthattheLaw,CrimeandCommunitySafetyCouncil(LCCSC)withintheCouncilofAustralianGovernments(COAG)shouldtakeresponsibilityforgovernmentcoordinationandsupportforjusticereinvestment.JusticereinvestmentappearstositneatlywithinexistingresponsibilitiesoftheCouncilwhichinclude‘…developinganationalandTrans-Tasmanfocusonfightingcrimeandpromotingbestpracticeinlaw,criminaljusticeandcommunitysafety,includinginpolicy,operationsandserviceprovision’.47

TheLCCSCshouldgiveprioritytofurthersupportingjusticereinvestmentinAustralia.WesuggestthefollowingactivitiesbeadoptedbyAustraliangovernmentsandsupportedthroughtheLCCSC:• establishsystemstoprovideamorerobust

understandingofthefinancialcostsofcrime,justiceandimprisonmentandmakethisinformationavailabletoinformplanningforjusticereinvestment

• supportandresourcegeographicanalysisandmappingofdatatoinformthedevelopmentandappropriatetargetingofjusticereinvestment.Thisworkwouldincludedatacollectionandaccesstoaggregateddataonthepostcodespeopleliveinimmediatelypriortoincarcerationandthepostcodestheyliveinimmediatelyfollowingreleasefromprison

• establishanationalresearchframeworkandstrategicagendatoincreasetheknowledgebaseforimplementingjusticereinvestment,includinglongitudinalevaluationofthejusticereinvestmenttrialsrecommendedinthisreport

• establishandmaintainanationalclearinghouseofinformationregardingjusticereinvestment

• undertakepubliceducationcampaignstosupportbalancedinformationandperceptionsofcrimeandjusticeissueswithinthecommunity.

Therewillalsoneedtobeanincreasedcapacityforrigorousdataanalysisandsharingofinformationacrossjurisdictionstosupportinvestmentdecisionsandtohelpbuildtheevidencebaseofwhatworks.AnumberofexistingagenciescouldsupportthisworkincludingtheAustralianInstituteofCriminology,theAustralianBureauofStatistics,theAustralianInstituteofHealthandWelfare,theProductivityCommission(throughtheGovernmentServicesReport)andstateandterritoryagenciesthatcurrentlycollectdataandundertakeresearch.

AustralianRedCrossunderstandstherewillbechallengesinmovingtoajusticereinvestmentapproachincluding:• thepoliticisednatureandpublicperceptionsofcrime,

imprisonmentandcommunitysafety• thecomplexityofdevelopingeffectivelongterm

solutionstodeepandpersistentdisadvantage• thechallengesofcoordinationbetweenandwithin

relevantgovernmentdepartments,aswellasthedifferingcircumstancesineachstateandterritory.


TheAustralianJusticeReinvestmentProject48hasconsideredthelessonsarisingfromtheUSexperienceofjusticereinvestment,aswellasthebroaderliteratureandidentifiedthefollowingkeypreconditionsforsuccessfullyimplementingjusticereinvestmentreform.Theseinclude:• bipartisanship• strongleadership• earlyidentificationoftherightpeopletoengageas

stakeholders• substantialbuyinfromallsectors• ongoingcommitmenttoimplementationatthe

reinvestmentphase• effectivecommunityengagement.49

InestablishingjusticereinvestmentinAustralia,governmentsandotherstakeholdersshouldensurethatthesesuccessfactorsareincludedintheirapproaches.

Recommendations

1.ThatallgovernmentsinAustraliarethinkandchangetheirapproachestojusticetoachievelowercrimerates,lowerincarcerationrates,reducedprisoncostsandstronger,safercommunities.

2.ThatallgovernmentsinAustraliaintroduceajusticereinvestmentapproachandjointlysupportitsimplementationthroughtheLaw,CrimeandCommunitySafetyoftheCouncilofAustralianGovernments.

Justice reinvestment trials are supported by Australian governments and expanded to every state and territory

AustralianRedCrossrecommendsthatAustraliangovernmentsestablish,fundandevaluatetrialsofjusticereinvestmentinacoordinatedanddeliberateway,beyondthefewtrialscurrentlyunderway.

Theselectionofspecificcommunitiestotrialjusticereinvestmentshouldbeinformedbyanalysisofrelevantdataandbasedonengagementwithlocalcommunitiesabouttheirjusticeissues.50Theselectedtrialsitesmusthavestrongcommunitygovernancestructuresinplace,eitherbydrawingonexistingstructureswheretheyexistorestablishingnewones.51

Inadditiontothefourlocaltrialsitesoutlinedearlierinthereport,anumberofstategovernmentsaresupportinginitiativesthatreflectajusticereinvestmentapproach.Theseinclude:• theACTGovernmentfundedajusticereinvestment

initiativeinthe2014/15budget.TheACTJusticeandCommunitySafetyDirectorateisworkingcloselywitharangeofgovernmentandnon-governmentstakeholderstoidentifythedriversofcrimeandcriminaljusticecostsanddevelopandimplementnewwaysofreinvestingfunds

• theSouthAustralianGovernmenthascommittedtoimplementingjusticereinvestmenttrialsintwolocations.PortAdelaidehasbeenselectedasapotentialtrialsiteandtheAttorney-General’sDepartmentisconsultingwithcommunitymembers,serviceproviders,government,non-governmentorganisationsandothersaboutapossiblejusticereinvestmenttrialforPortAdelaide

• theNSWGovernmentissupportingtheBourkejusticereinvestmenttrialthroughdataprovisionandanalysis,Ministerialinputandthesecondmentofpersonneltothetrial.

AustralianRedCrosslooksforwardtothelearningsthatwillarisefromtheseinitiatives.Wenotethatmostinitiativesareintheirearlystagesandarerelativelyfragilewithlimitedresourcing.Theyareeachrespondingtotheiruniquesituationsandthereisnocoordinatednationalapproachtodrivedataanalysis,sharingoflessonsandconsistentevaluationstobuildanevidencebaseofwhatworks.

AustralianRedCrosscallsonAustraliangovernmentstocommittotheexistingandemergingtrialsofjusticereinvestment.Further,thosejurisdictionsthatdonothaveexistingjusticereinvestmenttrialsshouldinvestininitiativesintheirstateorterritory.


Recommendations

3.ThatallgovernmentsinAustraliaestablish,fundandevaluatejusticereinvestmenttrialsacrossAustraliainspecificgeographiccommunitieswithhighratesofcrimetodeterminehowjusticereinvestmentcanbeappliedinAustraliancontexts.

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Australiangovernmentscouldsupportjusticereinvestmenttrialsthroughproviding:• analysisandinterpretationofadministrativedata

heldingovernmentdepartmentsandagencies• fundingforrobustevaluationsofthetrialsitesand

sharingoflessonslearned• supportfortheimplementationofcommunity-

developedjusticeactionplansthatredirectexistinggovernmentfundingtoinitiativesandprogramsthataddresstheunderlyingcausesofcrimeintheircommunities.

Inadvocatingfortrials,AustralianRedCrossemphasisesthatjusticereinvestmentmustbelocallydrivenandreflectwhatisoftenreferredtoasaplace-basedapproach.Aplace-basedjusticereinvestmentapproachwould:• identifythereasonswhycrimeoccursinthespecific

community• usecommunitygovernancestructurestomobilisethe

communitytoidentifyrealandeffectivesolutionstothecausesofcrime

• uselocalcommunitygroupstoimplementthesolutions

• givethecommunitygreatercontroloverspendingonnewinitiatives

• measuretheeffectivenessofnewprograms• makefurtherinvestmentsbasedonrefiningofwhat

workstobetteraddressthecausesofcrimeinthespecificcommunity.

Inaddition,thereshouldbeastrongfocusonAboriginalandTorresStraitIslandercommunitiesinanyjusticereinvestmenttrials.

Thetrialsshouldbeimplementedoveratleastafiveyearperiodtoallowrobustfindingstobedetermined,includingtheuseofpreandpoststudiesofoutcomesachieved.Withinthatperiodtherewillbeopportunitiestoshareearlyfindingsandlessonslearnedtorefinethedesignandapproachesofthetrials.Theevaluationsshouldalsoincluderigorouscost/benefitanalysestodetermineifthejusticereinvestmentapproachisachievingmoreeffectivegovernmentexpenditure.

Governmentswillneedtoprovideinitialfundingtoseedjusticereinvestmenttrials.Savingsfromreductionsincorrectionalandothercriminaljusticecostswillnotoccurimmediatelyandwilldependonthescaleofthetrialsites.TheACTandSouthAustralianGovernmentshavecommittedfundsintheirforwardbudgetstoseedtrialsintheirjurisdictionsandtheNSWGovernmenthasprovidedin-kindsupporttotheBourketrial.

AustralianRedCrosscallsonothergovernmentstoprovideinitialfundingfortheirlocaljusticereinvestmenttrialsites.


TheRedCrossStepOutprogramsupportsyoungpeopleagedbetween14and25inAdelaideandsurroundingareas,whoareatthe‘pointyend’oftheoffendingspectrum.Theyhavebeeninvolvedwiththeyouthjusticesystemsmorethanonce,orreceivedmorethanoneyouthjusticeorder;and/orareatriskofre-offending.Theyareoftenalsodealingwithacomplexsetofunderlyingissuessuchasmentalhealth,delayeddevelopment,drugoralcoholabuse,andphysicalandemotionaltraumas.

StepOutlinksyoungpeopletoadedicatedmentortoregularlysupporttheyoungpersonaftertheirrelease,providingopportunitiesandexperiencestohelptheyoungpersonsuccessfullytransitionbackintothecommunity.Keyelementsincluderolemodellingofpositivebehaviours,establishingsupportnetworksforyoungpeopleandadvocatingontheirbehalftootheragenciesororganisations.

These young people are at the sharp end of the offending spectrum. Without the right support they are likely to follow a terrible trajectory. Most of them – 9 out of 10 would not be an exaggeration – without intensive support will be institutionalised…” Senior Sergeant, SA Police

AnanalysisoftheStepOutprogrambySocialVenturesAustraliahighlightedkeyfeaturesforsuccessfulmentoringofyoungpeoplecomingoutofprison:

• Voluntaryparticipationandparticipantguidedsupport - Youngpeoplechoosetoparticipateintheprogram,theyarenotmandatedbythecourtsorotheragenciestojoinandtheycanchoosewhentodisengage.Youngpeoplefeelempoweredandincontrol,whichbuildsdeeperengagementwiththeprogramandcontributestowardsyoungpeopleembracingchange.

• Relatablementorswithauniqueabilitytoconnectwithyoungpeople-Youngpeopleemphasisetheabilitytorelatetotheirmentorsasacriticalcomponentinbuildingatrustingandopenrelationship.Consultationswithyoungpeopleshowedastrongbondthatmentorsestablishedwiththeirmentees.

• Establishingsupportnetworksforyoungpeople-Oneofthemostimportantfactorsinyoungpeopleoffendingbehavioursislackofpositivesupportnetworksinthecommunity.Anexplicitaimofmentorsisestablishingconnectionsbetweentheyoungperson,theirfamiliesandsignificantothers(whereitishelpfultodoso)orothersupportivenetworks.

• Advocatingtootheragenciesonbehalfoftheyoungpeople-StepOutplaysavitalrolebyhelpingyoungpeopleidentifyandaccesscrucialsupporttheyneedfromotherorganisationsoragencies.

The Step Out Program pilot commenced in South Australia in 2010 with the support of the Commonwealth Attorney General’s Department, Matana Foundation for Young People and Red Cross. Since then, Step Out received continued support from Matana Foundation for Young People and is currently funded by South Australian Government and Red Cross.

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“Stepping Out” from prison back into the community


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5. All state and territory governments should commit to broader justice reform policies

Inadditiontojusticereinvestment,AustralianRedCrossbelievesthereisaneedforAustraliangovernmentstoenactbroaderreformstothecriminaljusticesystems.WenoteanumberofAustraliangovernmentsarealreadyimplementingimportantjusticereformsandencourageallstateandterritorygovernmentstolearnfromtheseinitiativesanddevelopfurtherevidencebasedreforms.

Recentreformsinclude:• theSAGovernment’senhancementofcommunity

basedsentencingoptionsforadultsandyoungpeople

• theWesternAustralia’sTurningPointprogramallowsoffenderstoundertakeatailoredprogramtoaddresstherootcauseoftheiroffending

• theVictorianGovernmenthasfundedaninitiativetodivertAboriginalandTorresStraitIslanderpeoplesawayfromtheyouthjusticesystem.

RedCrossrecommendsreformsareputinplacethatfocusonkeyeventsinthejusticesystem:

Before a crime is committed for the first or subsequent times • Reformsshouldfocusonearlyinterventionand

preventiontoavoidpeoplefromcommittingcrimesandfromrepeatoffending,particularlylessseriouscrimes.

When a person is being sentenced for a crime • Reformsshouldfocusonnon-custodialsentencesfor

lessseriouscrimes.

When a person is being released from prison and being reintegrated into the community • Reformsshouldfocusonearlypreparationfora

positiveintegrationbackintothecommunity.

Furtherdetailandrecommendedstrategiesforeachofthesepointsareoutlinedbelow.

Reforms to prevent crime and recidivism

Stateandterritorygovernmentsshouldconsiderthefollowingoptionsforcrimeprevention:• Fundprogramstopreventyoungpeoplefrom

enteringorbecomingentrenchedinthecriminaljusticesystemby:- establishingandincreasingyouthoffendingteamstocoordinateservicesandworkwiththeyoungperson,theirfamilyandcommunityindealingwiththefactorsinayoungperson’slifethatimpactontheirwellbeingandinfluenceoffendingincreasingtheuseofcommunity-ledtherapeuticandrestorativejusticeapproachesincludinghealingcirclesandyouthconferencing

- greateruseofoutofcourtoptions.Evidencetellsusthattherapeuticandrestorativeprocesses,suchasRestorativeJusticeprogrammodels,KooriandMurricourts,drugscourtsandhealingcircles,arewaysinwhichthecriminaljusticesystemcanhelptorebuildrelationshipsanddeliverpositiveoutcomesfortheentirecommunity.52

• providefundingforservicesforidentifiedpeoplewhohavehighratesofre-offendingandmultiplecustodialsentences.Suchservicesshouldworkwithpeopleandtheirfamiliesoverthelongtermusingamulti-disciplinaryapproach

• buildupontherangeofexistingrestorativejusticeapproachesandprogramswhichinvolve,totheextentpossible,thosewhohaveastakeinaspecificoffenceandtocollectivelyidentifyandaddressharms,needsandobligations,inordertohealandputthingsasrightaspossible

• createpathwaysawayfromcrimebyfundingearlyintervention,preventionanddiversionprogramsfornon-seriousoffendersbeforetheygettocourt.Whereappropriate,lessseriousoffendersshouldbedivertedtocommunitytreatmentoptionsfordrug,alcoholandmentalhealthissues.Supportshouldalsobeprovidedtobuildlifeskillsandtoattaineducation,trainingandemployment.


Reforms to increase non-custodial sentencing

Stateandterritorygovernmentsshouldconsiderthefollowingoptionstopromotesentencingreform:• ensurelegislationandregulationsprovideforrisk

assessmentstobeundertakenaspartofcourtdeterminationsonsentencing,withcourtsrequiredtomakenon-custodialorderswherethereisnosubstantiverisktothepublic

• overseelegislativechangesothat:- courtsarenotpermittedtoremandpeopleincustodywheretheyareunlikelytoreceiveasentencefortheiroffence/s

- non-custodialsentencingoptionsareusedmorefrequentlytoreplaceprisonsentencesoflessthan12months

- thereisgreateruseofsuspendedcustodialsentencesasanincentiveforpeoplenotto re-offend.

TherecentlyreleasedChangetheRecordCoalitionBlueprintforChangetoaddressAboriginalandTorresStraitIslanderimprisonmentandviolenceratessupportslegislativereformtosentencing.Awiderrangeofsentencingalternativesencompassingnon-custodialoptionswouldenablejudgestoensurethatsentencesaretailored,fairandappropriate.Thiswouldgivejudgestheabilitytoensurethesentencefitsthecrime.

StateandterritorydepartmentsofCorrectionsandJuvenileJusticeshouldalsoensurethatthereareopportunitiesforrehabilitation,treatmentandsupportforidentifiedissuesincludedintheconditionsofcommunity-basedorders.Tosupportthisapproach,resourcesshouldbeincreasedforsupervisionandsupportforpeopleoncommunity-basedorders.

Reforms to improve parole and reintegration to the community

StateandterritorydepartmentsofCorrectionsandJuvenileJusticeshouldconsiderthefollowingoptionstofocusonlongertermpositiveoutcomesforprisonersre-enteringtheircommunities:• emphasisetransitionplanningandthrough-

caresupportaspeoplemovefromprisontothecommunity.Suchsupportallowspeopletobebetterpreparedtoreintegrateintothecommunity

• fundcommunityinitiativesthatsupportreintegrationofprisonersintothecommunityandaddresstheircomplexsocialneeds

• ensurethatthereisflexibilityintheparolesystemtorecogniseformerprisonerswhoaremakingeffortstoavoidreoffending.

Recommendations

4.Thatstateandterritorygovernmentsadoptthejusticereformproposalsoutlinedinthisreportto:•preventcrimeandrecidivism•increasenon-custodialsentencing•improveparoleandreintegrationtothecommunity


6. Targets for reducing the rate of adult imprisonment should be established by Australian governments

AustralianRedCrossbelievesthatifthereformsoutlinedinthisreportareimplemented,thenitwillbepossibletoreversethetrendofincreasingincarcerationratesandforthemreduceovertime.

Inconsideringthesettingoftargets,AustralianRedCrosshasconsideredvariousscenariosthatweconsiderachievableandmodelledthepotentialsavingstobeachievedundereachofthesescenariosasoutlinebelow.

ScenarioTotal savings over 5 years

Theincarcerationrateisheldatexistinglevelsforthenextfiveyearsratherthancontinuingtoincreasebythe10-year-trendof1.69%perannum

$1.1billion

Theincarcerationratedecreasesby1%perannumforthenextfiveyears

$1.7billion

Theincarcerationrate decreasesby2%perannumforthenextfiveyears

$2.3billion

Undereachofthesescenarios,therearesignificantsavingsthatcouldberealisedfromnotbuildingandoperatingnewprisonsandreducingthenumberofpeoplegoingtoexistingprisons,comparedwiththestatusquoofincarcerationratescontinuingtoincreaseyearonyear.

Eveniftherateofincarcerationwassimplyheldatcurrentlevelsforfiveyearstherewouldbesavingsof$1.1billionoverthatperiod.Thesesavingsrisetoalmost$1.7billioniftheratefallsby1%andtoalmost$2.3billioniftheratefallsby2%.

Thesesavingscouldbeusedtoreinvestinpositivesocialprogramsreferredtoearlierinthereport.

MoredetailedtablesoutliningthesesavingsandtheassumptionsunderpinningthemareincludedatAppendixA.

Insettingtargets,theAustralianGovernmentshouldalsoestablishaClosingtheGapjusticetargettoaddresstheoverimprisonmentofAboriginalandTorresStraitIslanderpeoples.

Since2009,therehasbeenaseriesofcallsforjusticetargetstobeincludedintheClosingtheGaptargets.53 DrCalmainitiallyrecommendedtheinclusionoftargetswhenhewasSocialJusticeCommissioner.Sincethen,otherreportshaverecommendedjusticetargetsbeincludedintheClosingtheGaptargets.InhismostrecentSocialJusticeandNativeTitlereportthecurrentCommissioner,MrMickGoodaagainrecommendedthatjusticetargetsbeincludedalongsidetheexistingtargets.

TheAmnestyInternationalreportoutlineshowkeepingchildrenandyoungpeopleincommunitiesgivesthemthebestchanceforahealthy,happyfuture.Thereportaimstodevelopadeepunderstandingofthe“fullstory”,includingthereasonsforover-representationofIndigenousyoungpeoplesinthejusticesystem,aswellasprovidingdataonAustralia’shighrateofIndigenousyouthdetentionacrossAustralia.

AustralianRedCrossstronglysupportsthesecallsandrecommendsthattheAustralianGovernmentincludejusticetargetsintheClosingtheGapstrategy.

Recommendations

5.That,asafirststep,allgovernmentsinAustraliacommitto:-a10%reductioninadultimprisonmentratesoverthenextfiveyears

-aClosingtheGapjusticetargettoreducetheunacceptablyhighadultimprisonmentratesofAboriginalandTorresStraitIslanderpeoplesby50%overthenextfiveyears.

28 | VULNERABILITY REPORT 2016APPENDIX A

Financial modelling Thefollowingtablesoutlinethesavingsthatwouldaccrueifactionsweretakentoholdsteadyorreducetherateatwhichpeopleareincarcerated.Theanalysisispresentedonanationalbasis.However,theimpactswillvaryinspecificstatesandterritories.

ThreescenariosarepresentedoverafiveyearperiodstartingfromJune2014(latestavailabledata).InscenariooneitisassumedthattheactionsholdsteadytherateofincarcerationfromJune2014.Thisscenariorepresentsasmallimprovementintheforecastincarcerationratewhich,basedontheaverageincreaseoverthelastdecade,couldbeexpectedtocontinuetogrowat1.69%perannum.Inscenariotwo,theactionsareassumedtoresultina1%perannumdecreaseintheincarcerationrateeachyearfrom2014.Inscenariothreeitisassumedtheactionsresultina2%perannumdecreaseintheincarcerationrate.

Scenario 1: Five year projection with a 0% decrease in the Australian incarceration per annum

2014 (Base Period)

Year1 Year 2 Year 3 Year 4 Year 5

Rateofincarceration# 185.6 185.6 185.6 185.6 185.6 185.6

Rateofincarcerationifhistoricaltrendcontinues*

188.732 191.917 195.156 198.450 201.799

Totalreductionin incarcerationrate+ 3.132 6.317 9.556 12.850 16.199

Projectedpopulation^ 18,542,304 18,871,777 19,203,809 19,485,021 19,805,984

Numberofprisonersifincarcerationratestays atthe2014level

34,415 35,026 35,642 36,164 36,760

Numberofprisonersiftheincarcerationratecontinues toincrease

34,995 36,218 37,477 38,668 39,968

Reductioninthenumber ofprisoners!

580.80

1,192.21

1,835.18

2,503.81

3,208.39

Costssaved** $106,580 $63,294,358 $132,848,524 $209,095,822 $291,696,021 $382,189,818


2014 (Base Period)




188.732 191.917 195.156 198.450 201.799



Numberofprisonersifincarcerationrate decreases1%pa

34,070 34,329 34,584 34,739 34,958


34,995 36,218 37,477 38,668 39,968


925

1,889

2,894

3,929

5,010

Costssaved** $106,580 $100,798,626 $210,517,253 $329,711,035 $457,711,290 $596,800,313



2014 (Base Period)




188.732 191.917 195.156 198.450 201.799



Numberofprisonersifincarcerationrate decreases2%pa

33,726 33,639 33,546 33,357 33,228


34,995 36,218 37,477 38,668 39,968


1,269

2,579

3,931

5,311

6,740

Costssaved** $106,580 $138,302,895 $287,405,390 $447,914,024 $618,771,294 $802,912,656

Notes and assumptions:

#A2%reductionappliedannuallytothebaserateofincarcerationexpressedper100,000ofadultpopulation

*Theincarcerationrateincreasedfrom158.8per100,000ofadultpopulationat30/6/04to185.6per100,00ofadultpopulationat30/6/14,anincreaseof16.88%overthedecadeoranaverageincreaseof1.69%perannum

+Thedifferencebetweentheincarcerationrateinlineoneandtheprojectedincreaseintheincarcerationrate;expressedasthenumberofprisonersper100,000ofadultpopulation

^BasedonABS3222.0-PopulationProjections,Australia,2012(base)to2101.Theadultpopulationwasderivedbysubtractingthe0-17yearoldpopulationforeachyear.TheprojectionsuseSeriesBassumptionsthattheTotalFertilityRate(TFR)willdecreaseto1.8babiesperwomanby2026andthenremainconstant,lifeexpectancyatbirthwillcontinuetoincreaseeachyearuntil2061,thoughatadecliningrate(reaching85.2yearsformalesand88.3yearsforfemales),Netoverseasmigration(NOM)willremainconstantat240,000peryearthroughouttheprojectionperiod,andmediuminterstatemigrationflows.Dataaccessedfromhttp://www.abs.gov.au/websitedbs/d3310114.nsf/home/Population%20Pyramid%20-%20Australiaon31/7/15

!Calculatedbymultiplyingthereductionintheincarcerationrate(expressedasarateby100,00ofadultpopulation)bytheprojectedAustralianpopulationovertheageof18dividedby100,000

**Thereducednumberofprisonersmultipliedbythecostofincarceratingaprisonerfor12months.ThecostofincarcerationisfromtheAustralianProductivityCommissionReportonGovernmentServices2015andusedthecostingwhichisinclusiveofnetoperatingexpenditure,depreciation,debtservicingfeesandusercostofcapital.For2013/14thiscostwas$106,580peryear,a2.25%perannumincreasehasbeenbuiltintothecalculationstoprovideforcostincreasesacrosstime.

30 | VULNERABILITY REPORT 2016APPENDIX B

Change The Record Coalition Blueprint for Change54

a)Establishanational,holisticandwhole-of-governmentstrategytoaddressimprisonmentandviolencerates.ThisstrategyshouldcontainaconcreteimplementationplanandbuildontheNationalIndigenousLawandJusticeFramework2009-2015.Inaddition,thestrategyshouldbelinkedtorelatedareasofCOAGreformincludingtheNationalFrameworkforProtectingAustralia’sChildren2009-2022andtheNationalPlantoReduceViolenceAgainstWomenandtheirChildren2010-2022.

b)Setthefollowingjusticetargets,whichareaimedatpromotingcommunitysafetyandreducingtheratesatwhichAboriginalandTorresStraitIslanderpeoplecomeintocontactwiththecriminaljusticesystem:i.ClosethegapintheratesofimprisonmentbetweenAboriginalandTorresStraitIslanderpeopleby2040;ii.CutthedisproportionateratesofviolenceagainstAboriginalandTorresStraitIslanderpeopletoatleastclosethegapby2040;withprioritystrategiesforwomenandchildren.Inaddition,thesetargetsshouldbeaccompaniedbyaNationalAgreementwhichincludesareportingmechanism,aswellasmeasurablesub-targetsandacommitmenttohalvethegapintheaboveover-archinggoalsbynolaterthan2030.

c)Jointlyestablish,ortask,anindependentcentralagencywithAboriginalandTorresStraitIslanderoversighttoco-ordinateacomprehensive,currentandconsistentnationalapproachtodatacollectionandpolicydevelopmentrelatingtoAboriginalandTorresStraitIslanderimprisonmentandviolencerates.

d)Ensurethatlaws,policiesandstrategiesaimedat,andrelatedto,reducingAboriginalandTorresStraitIslanderimprisonmentandviolenceratesareunderpinnedbyahuman-rightsapproach,andhaveinplaceaclearprocesstoensuretheyaredesignedinconsultationandpartnershipwithAboriginalandTorresStraitIslandercommunities,theirorganisationsandrepresentativebodies.

e)Supportcapacitybuilding,andprovideongoingresourcingofAboriginalandTorresStraitIslandercommunities,theirorganisationsandrepresentativebodiestoensurethatpolicysolutionsareunderpinnedbytheprincipleofself-determination,respectforAboriginalandTorresStraitIslanderpeople’scultureandidentity,andrecognitionofthehistoryofdispossessionandtraumaexperiencedbymanycommunities.


References

1 JudicialCommissionofNewSouthWales,SentencinginNSW,researchmonograph39,2015,43[5.1].

2 SophieFarthing,“OvercrowdedPrisons”,LawSocietyJournal(NSW),July2015,24.3 “ToughonCrimeStandIncreasesRecidivism”,TheAustralian,14August2015,10;B.Rudman,“HighIncarcerationRateistheRealPrisonScandal”,NZHerald,29July2015,8.

4 E.g.Crimes(SentencingProcedures)Act1999(NSW),s5(1).5 ThelatestavailablecrimedatafromtheAustralianInstituteofCriminologyisforthe2012yearandusestimeseriesdatafortheperiod1996-2012.

6 AustralianBureauofStatistics-4510.0-RecordedCrime-Victims,Australia,2014.7 HouseofCommonsJusticeCommitteeCuttingcrime:thecaseforjusticereinvestment2009.

8 AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).9 AustralianBureauofStatisticsPopulationbyAgeandSex,Tasmania(3235.6.55.001).10AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).11RobWhiteStateofimprisonment:Tasmaniaescapeslawandorderinfection–TheConversationApril222015-http://theconversation.com/state-of-imprisonment-tasmania-escapes-law-and-order-infection-38988.

12Ibid-thiscostincludestheusercostofcapital,depreciationanddebtservicingcosts.13ReportonGovernmentServices2015VolumeC:Justice,Table8A.7.14 ForexampleseetheABCreportontheuseofshippingcontainersintheVictoriancorrectionssystem-http://www.abc.net.au/news/2014-04-09/more-shipping-container-cells-for-victorian-prisons/5376832accessed9/7/15.

15ForexampleseetheSAAdvertiser-http://www.adelaidenow.com.au/news/south-australia/prison-overcrowding-risks-public-safety-police-commissioner-gary-burns-says/story-fni6uo1m-1227411399151andhttp://www.adelaidenow.com.au/news/south-australia/crowding-crisis-worsens-as-criminals-flood-south-australian-prisons/story-fni6uo1m-1227085702469accessed9/7/15.

16SeetheAustralianBureauofStatistics-PrisonersinAustraliaseriesofreports(no.4517).

17 AustralianBureauofStatisticsPrisonersinAustralia2000(no.4517.0).18MorganPM&HendersonPF1998.Remanddecisionsandoffendingonbail:evaluationoftheBailProcessProject.HomeOfficeResearchStudy184.London:HomeOfficecitedinSarre.Retalopcit.

19OgloffJGoodmentalhealthcareinprisonsmustbeginandendinthecommunity–TheConversationApril242015athttp://theconversation.com/good-mental-health-care-in-prisons-must-begin-and-end-in-the-community-40011.

20AustraliaInstituteofHealthandWelfareThehealthofAustralia’sprisoners2012.21DepartmentofJusticeAcquiredBrainInjuryintheVictorianPrisonSystem2011.22ABS4517.0-PrisonersinAustralia,2014.23SawrikarP&KatzI2008.EnhancingfamilyandrelationshipserviceaccessibilityanddeliverytoculturallyandlinguisticallydiversefamiliesinAustralia.AFRCIssuesno.3.Melbourne:AustralianInstituteofFamilyStudies.http://www.aifs.gov.au/afrc/pubs/issues/issues3/issues3.pdf

24Nobars.org.au-http://www.nobars.org.au/about-linguistic-prisoners.html#prisoners-CALD.culturallyandlinguisticallydiverse.NoBarsisapartnershipprojectbetweentheCommunityRestorativeCentre(CRC)andtheNetworkofAlcoholandOtherDrugAgencies(NADA)andisfundedbyNSWHealthundertheIllicitDrugDiversionInitiative.

25TonyVinsonandMargotRawsthorne,JesuitSocialServices.DroppingOfftheEdge2015:PersistentcommunaldisadvantageinAustralia.

26T.Allard,A.ChrzanowskiandA.StewartTargetingcrimeprevention:Identifyingcommunitiesthatgeneratechronicandcostlyoffenders.

27AustralianProductivityCommission,ReportonGovernmentServices2013(latestAustralian-widefiguresavailable).

28WeatherburnD.TheEffectofPrisononReoffending(2010).29AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).30KinnerS.Our$3b-a-yearsystemisflyingblindinsupportingex-prisonersTheConversationApril272015(http://theconversation.com/our-3b-a-year-system-isflying-blind-in-supporting-ex-prisoners-39999basedondataprovidedbytheNSWBureauofCrimeStatisticsandResearch).

31Baldry,E.2008,TheBoomingIndustry:AustralianPrisons,UNSW,Sydney.32GoodwinVandDavisBCrimeFamilies:Genderandtheintergenerationaltransferofcriminaltendencies.

33AustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).34ibid35ChangetheRecord2015,takenfromdatafromtheAustralianBureauofStatisticsPrisonersinAustralia2014(no.4517.0).

36AustralianBureauofStatisticsopcit.37ProfessorChrisCuneenTimetoArrestRisingAboriginalPrisonRates,Insightno8,2013.

38AmnestyInternationalABrighterFuture:KeepingIndigenouskidsinthecommunityandoutofdetentioninAustralia2015.

39HouseofRepresentativesStandingCommitteeonAboriginalandTorresStraitIslanderAffairs,DoingTime-TimeforDoing:Indigenousyouthinthecriminaljusticesystem.

40RoyalCommissiononAboriginalDeathsinCustody.41ChangetheRecordBlueprintforChange,2015.42NLaVigneetalJusticeReinvestmentattheLocalLevel,PlanningandImplementationGuide2010

43HouseofCommonsJusticeCommitteeCuttingcrime:thecaseforjusticereinvestment2009

44NancyLaVigneetalJusticeReinvestmentastheLocalLevel:Planningandimplementationguide

45Austinetal.Endingmassincarceration:Chartinganewjusticereinvestment(2013).46SeefurtherexamplesofstrategiesadoptedinUSJusticeReinvestmentInitiatives(JRI)inLaVigneNancy,BielerSamuel,CramerLindseyandothers(2014)JusticeReinvestmentInitiativeStateAssessmentReport,AppendixACaseStudies.ForUKexamplesseeforexampleAllenRob(2014)Justicereinvestment:emptysloganorsustainablefutureforpenalpolicy?TransformJustice,WongKevin,FoxChris,andAlbertsonKevin(2014)Opcit.

47Outlinedathttp://www.lccsc.gov.au/sclj/lccsc_about_us.html48TheAustralianJusticeReinvestmentProjectisanationalresearchprojectinvestigatingthecharacteristicsofJusticeReinvestment.Furtherinformationisavailableathttp://justicereinvestment.unsw.edu.au/

49Seehttp://justicereinvestment.unsw.edu.au/sites/justicereinvestment.unsw.edu.au/files/AJRP%20Newsletter%20July%202014.pdf

50Thereareanumberofresourcesonutilisationofdatatoplanforjusticereinvestmentinitiatives.LaVigneetalhavepublishedadefinitiveresourceentitledJusticeReinvestmentattheLocalLevel:PlanningandImplementationGuidewhileFox,AlbertsonandWonghaveathoughtfulchapteronitintheirbookJusticeReinvestment:Canthecriminaljusticesystemdelivermoreforless?

51In2014theAboriginalandTorresStraitIslanderSocialJusticeCommissioner,MickGooda,describedtheBourkeandCowratrialsitesandcalledforfurtherjusticereinvestmenttrialsitestobeestablished–seerecommendationthreeoftheCommissioner’sSocialJusticeandNativeTitleReport2014.

52ChangetheRecordBlueprintforChange,201553AustralianHumanRightsCommissionSocialJusticeReport200954ChangetheRecordCoalitionBlueprintforChange,2015.https://changetherecord.org.au/blog/news/16-organisations-release-blueprint-for-change-on-aboriginal-and-torres-strait-islander-imprisonment-and-violence-rates


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