Download - FIRST PEOPLES DISABILITY JUSTICE CONSORTIUM · FIRST PEOPLES DISABILITY JUSTICE CONSORTIUM An alliance of Aboriginal and Torres Strait Islander community organisations, disability,

ABORIGINALANDTORRESSTRAITISLANDERPERSPECTIVESONTHERECURRENTANDINDEFINITEDETENTIONOFPEOPLEWITHCOGNITIVEANDPSYCHIATRICIMPAIRMENT

ASubmissiontotheSenateInquiryontheIndefiniteDetentionofPeoplewithCognitiveandPsychiatricImpairment

Preparedby:

FIRSTPEOPLESDISABILITYJUSTICECONSORTIUM

AnallianceofAboriginalandTorresStraitIslandercommunityorganisations,disability,justiceandlegalresearchers,UniversitiesandResearchInstitutes.

AninitiativeofFirstPeoplesDisabilityNetwork(Australia),itsstrategicpartnersandsupports.

April2016

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TableofContents

CORRESPONDINGCONTRIBUTORS 4

EXECUTIVESUMMARY 5

SUMMARYOFRECOMMENDATIONS 8

1.APREDICTABLEANDPREVENTABLEPATH:INDIGENOUSAUSTRALIANSWITHMENTALANDCOGNITIVEDISABILITIESINTHECRIMINALJUSTICESYSTEM 11

PROFESSOREILEENBALDRY,DRRUTHMCCAUSLAND,ASSOCIATEPROFESSORLEANNEDOWSE,ELIZABETHMCENTYRE,UNSW

2.THELIFETRAJECTORYFORANABORIGINALANDTORRESSTRAITISLANDERPERSONWITHDISABILITY 16

SCOTTAVERY,POLICYANDRESEARCHDIRECTOR,FIRSTPEOPLESDISABILITYNETWORK(AUSTRALIA)

3.FRAMINGRECURRENTANDINDEFINITEDETENTIONFROMADISABILITYPERSPECTIVE 20

ASSOCIATEPROFESSORLEANNEDOWSE,CHAIRININTELLECTUALDISABILITYBEHAVIOURSUPPORT

4.ADDRESSINGCOGNITIVEDISABILITYINCHILDRENANDYOUNGPEOPLE 23

PROFESSORCAROLBOWER,SENIORPRINCIPALRESEARCHFELLOW;NONIWALKER,SENIORRESEARCHFELLOW;SHARYNNEHAMILTON,RESEARCHERBANKSIAHILLFASDPROJECT;GLENNPEARSON,HEAD,ABORIGINALRESEARCHDEVELOPMENT,TELETHONKIDSINSTITUTE.

5.THEIMPACTOFTRAUMAANDFAMILYVIOLENCEUPONABORIGINALANDTORRESSTRAITISLANDERWOMENWITHDISABILITY 29

ELISETHOMAS,NATIONALSECRETARIATSUPPORTOFFICER,FAMILYVIOLENCEPREVENTIONLEGALSERVICES

6.DIVERSION 31

DRLINDASTEELE,LECTURER,SCHOOLOFLAWUNIVERSITYOFWOLLONGONG

7.TOWARDSNATIONALSTANDARDSFORLAWSANDREGULATIONSAFFECTINGINDIVIDUALSWHOHAVEBEENDECLAREDMENTALLY-IMPAIREDORUNFITTOPLEAD(PARTA) 40

NATIONALABORIGINALANDTORRESSTRAITISLANDERLEGALSERVICES

8.IMPLEMENTINGANATIONALSTANDARDFORLEGISLATION 47

PROFESSORPATRICKKEYZER,CHAIROFLAWANDPUBLICPOLICYANDHEADOFSCHOOL,LATROBELAWSCHOOLANDDARRENO’DONOVAN,SENIORLECTURERINLAWATLATROBELAWSCHOOL

9.SUPPORTINGABORIGINALANDTORRESSTRAITISLANDERPEOPLEWITHMENTALHEALTHCONDITIONSINCOURT 52

ASSOCIATEPROFESSORTHALIAANTHONY,FACULTYOFLAWUNIVERSITYOFTECHNOLOGYSYDNEY;ANDPROFESSORELENAMARCHETTI,SCHOOLOFLAWUNIVERSITYOFWOLLONGONG

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10.SUPPORTEDTRANSITIONFROMPRISONTOCOMMUNITY 57

DRMEGANWILLIAMS,SENIORRESEARCHFELLOW,UNIVERSITYOFWESTERNSYDNEY

11.TRANSLATIONOFEVIDENCEINTOPOLICY 64

SCOTTAVERY,POLICYANDRESEARCHDIRECTOR

BIOGRAPHIESOFCONTRIBUTORS 66

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CorrespondingContributorsScottAveryPolicyandResearchDirectorFirstPeoplesDisabilityNetworkPhone:0283990882Email:scotta@fpdn.org.auProfessorPatrickKeyzerHeadofSchoolandChairofLawandPublicPolicyLaTrobeLawSchoolPhone:0394792423Email:[email protected]

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ExecutiveSummary

Thissubmissionistheresultofworkbyanallianceofthenation’sleadingauthoritiesondisabilityjusticeforAustralia’sFirstPeoples.ThisallianceincludesthreeAboriginalandTorresStraitIslandernationalpeakbodies,andresearchersfromsixdifferentuniversitiesandresearchinstitutes.WehavecometogethertopresentAboriginalandTorresStraitIslanderperspectivesontheproblemoftheindefinitedetentionofpeoplewithcognitiveandpsychiatricimpairment.Thissubmissionpresentsthebestavailableevidenceonwhattheissuesare,thefactorsthatcontribute,andmostimportantlyliststheactionsthatcanbetakentoalleviatetheproblemanditsconsequences.

AlifetimeofbeingdetainedbecomestherealityfortoomanyAboriginalandTorresStraitIslanderpeopleBythetimeanAboriginalorTorresStraitIslanderpersonwithdisabilityfirstcomesintocontactwiththecriminaljusticesystem,theywillmostlikelyhavehadalifeofunmanageddisability.Coupledwithdiscrimination,basedontheirAboriginalityanddisability,theywillhavefacedbarriersfromthetimetheyareborn,ofpoverty,earlyexposuretolifeininstitutionsthroughthechildprotectionsystem,strugglesatschool,lackofappropriatehealthcareandaninabilitytosecureemployment.Comingintocontactwiththepolice,courts,juveniledetentionandprisonsisnormalizedintheirlifetrajectory.Asthechaptersinoursubmissionhighlight,thejusticesystemdoeslittletoaddressthesefactorsandoutcomesandinfactoftenmakesthemworse.Peopleacquirethelabelofaprisonerwhomustbepunished,notapersonwithdisabilitywhoneedssupport.Whenreleasedfromprison,thepersonal,socialandsystemiccircumstancesthatpropelledthemintodetentionorprisonwillnothavechanged.Thusmanyfaceacycleofrecurrentdetentionthatgoesonindefinitely.

AnissuewhichspeakstotheheartofinjusticetowardsAboriginalandTorresStraitIslanderpeopleAboriginalandTorresStraitIslanderpeoplewithdisabilityarethemostmarginalisedpeopleinAustraliansociety.Unjustdeprivationofliberty,poorhealthcareandpoorsupportintensifythemarginalisationofAboriginalandTorresStraitIslanderpeopleandresultinseriouscasesofhumanrightsabuses.ThehistoricalexclusionofAboriginalandTorresStraitIslanderpeoplewithdisabilityfromsocietyhasmeantthisissuehasbeenkeptfromthepubliceye.Theresultinglackofpublicscrutinyhasmeantthatlittlehasbeendonetoredresstheseabuses.Onlyinrarecasesdoessuchabusebecome

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publiclyevident,usuallyexposedthroughvigilanthumanrightsadvocacyandinthemedia,ratherthanthroughtheoperationofchecksandbalancesinthecriminaljusticesystem.TakeforexamplethecaseinwhichanAboriginalmanwithcognitiveimpairmentwasimprisonedforoveradecadeforanallegedoffencethatneverwenttotrial.CasessuchasthispointtoadeeperproblemofthenormalisedmanagementofAboriginalandTorresStraitIslanderpeoplewithdisabilitybythepoliceandwithinthejusticesystem.ThatAboriginalandTorresStraitIslanderpeoplecanbeimprisonedbecauseoftheirdisabilitypointstothehistoricalinjusticesthathavebeengoingonsincecolonisation.Thatthisisallowedtocontinueperpetuatesthatinjusticeandhurt.ThisiswhatAboriginalandTorresStraitIslanderpeopletelltheFirstPeoplesDisabilityNetwork,thecommunity-basedorganisationcreatedbyandforFirstPeopleswithdisability.ThisNetwork,withtheactivesupportandassistanceofLaTrobeLawSchool,coordinatedthecontributionstothissubmission.ThemandatetotakeactioncomesdirectlyfromtheFirstPeopleswithDisabilitycommunity.

Amulti-disciplinaryapproachbringingtogetherexpertsacrosslife’sspectrumOfferinganewlifetrajectoryforanAboriginalandTorresStraitIslanderpersonwithdisabilityrequiresmorethanalegalsolution.Whilstfairlawsareessentialandareimportantchecksandbalances,thefactorsthatcultivateincarcerationforpeoplewithdisabilitymustalsobetackled.ThissubmissionincludescontributionsthatexplainissuesexperiencedbyAboriginalandTorresStraitIslanderpeoplewithdisabilityacrosstheirlifecourse.Contributionsarefrom:

● communitypractitionersandresearcherswhoworkwithAboriginalandTorresStraitIslanderpeopleandunderstandthetraumatheyhavebeenexposedto;

● earlychildhooddevelopmentexpertswhoknowwhatittakestoputachildwithdisabilityontherightcourse;

● organisationswhichunderstandthedisablingimpactoffamilyviolenceonwomen;● systemsthinkerswhocandesignearlydisabilitysupportforchildrenandfamiliesand

supporteddiversionprogramsasanalternativetoprison;● expertsinlegislationwhichhaveasolidfoundationinhumanrights;● researchersandpractitionerswhohaveworkedwithAboriginalandTorresStraitIslander

peoplepost-prisonreleasetopreventrecidivism;and● policyadviserswhounderstandthemechanismsthatareneededtotranslatetheevidence

intopolicyreform.ThestrengthsandsupportstructureswithinFirstPeoples’communitieshaveanuntappedpotentialtodrivepositivechange.TheybestunderstandtheuniquetraumathatfacesFirstPeoplesandhowthisimpactsupontheirsocialwellbeing.Whicheverpartoftheproblemyoulookat,community-

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basedandcommunity-directedservicesforFirstPeopleswithadisabilityarefundamentaltothesolution.

AproposalforCommonwealthleadershipThissubmissionshowshowAboriginalandTorresStraitIslandercommunityorganisationscancometogetherwiththeresearchcommunitytocriticallyevaluatetheevidenceandcomeupwiththesolutionsneededtoaddresstheproblemofrecurrentandindefinitedetention.AllAustralianGovernmentsneedtostepuptosupportthesesolutions.ThereformsoutlinedbyourallianceofexpertsarecrucialtopreventingevermoreAboriginalpeoplebeingcapturedindefinitelyinthecriminaljusticeandreducingspiralingcriminaljusticecosts.Thisreformagendahasbeenderivedfromourevaluationoftheavailableevidence,recognisesthefederatednatureofAustraliangovernment,andtherespectiverolesandresponsibilitiesofFederal,StateandTerritoryGovernments.TherecommendationsinthissubmissionfocusparticularlyontheleadershiproleoftheCommonwealth,whichcanserveasamodelforreformintherespectivejurisdictions.Thereismomentumforchange.InNovember2015,MinistersattendingtheLawCrimeandSafetyCouncilagreedtoestablishaworkinggrouptobringtogetherthedataanddevelopresourcesfornationaluseinthetreatmentofpeoplewithcognitivedisabilityormentalimpairmentunfittopleadorfoundnotguiltybyreasonofmentalimpairment.TheAustralianGovernmenthasalsomadeavoluntarycommitmentintheUnitedNationsUniversalPeriodicReviewtoimprovingthewaythecriminaljusticesystemtreatspeoplewithcognitivedisabilitywhoareunfittopleadorfoundnotguiltybyreasonofmentalimpairment.Thebreadthanddepthofpeople’scontributionstothisandothersubmissionsreflectthepersonalandcollectivecommitmenttoprovideafairer,betterlifeforAboriginalandTorresStraitIslanderpeoplewithdisabilitywhoareatriskofbeingorarealreadycaughtupinthejusticesystem.Correctingthisinjusticeisanationalpriority.

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SummaryofRecommendations1. AstrategicapproachisneededtoaddressthefactorsimpactingonAboriginalandTorres

StraitIslanderpeoplewithcognitiveimpairment:(i) toimproveaccesstotheirrightsuponcomingincontactwiththejusticesystem;(ii) toaddressthesocialriskfactorstoaltertheirlifetrajectoryandreducethe

likelihoodoftheircomingincontactwiththejusticesysteminthefirstinstance.2. AstrategicapproachtotherecurrentandindefinitedetentionofAboriginalandTorresStrait

Islanderpeoplewithcognitiveandmentalimpairmentshouldbebasedontheprinciplesofselfdetermination;personcentredcare;holisticandflexibleapproach;integratedservices;andCulture,DisabilityandGender-informedpractice.

3. Asocialmodelofdisability,accommodatingthecomplexsocialandculturaldeterminants,

shouldbethebasisfordefining‘cognitiveandpsychiatricimpairment’asitaffectstherecurrentandindefinitedetentionofAboriginalandTorresStraitIslanderpeoplewithcognitiveimpairment.

4. Systemsforaddressingdisabilityinandrelatedtothejusticesystemmustbediscretionarytoaccommodateanindividual’slevelofimpairmentaswellascontributingsocialcircumstances.Theprincipleofdiscretionshouldapplyinjudicialadministrationaswellasdisabilitysupports.

5. Aboriginalcommunity-controlledorganisationsshouldberesourcedtoprovidespecialised

andculturallyappropriatesupporttoAboriginalandTorresStraitIslanderpeoplewithcognitiveandpsychiatricimpairmentsindetention.

6. EarlydiagnosisofFetalAlcoholSpectrumDisorders(FASD)andinterventiontoprevent

engagementwiththelaw.

7. EarlyrecognitionthatayoungpersonhasFASDorotherneurocognitiveimpairmentswhenfirstengagingwiththelawsothatcourtscanprovidealternativestrategiestosentencingandappropriatemanagementtoreducerecidivism.

8. Researchprogramsandincentivesshoulddevelopresourcesforthebetteridentificationandmanagementofcognitivedisability,includingFASD,acrossarangeofsocialpolicyareasincludingearlychildhoodandchildprotection,educationandjustice.

9. Workforcedevelopmentstrategiesarerequiredtoincreasetheawarenessofdisabilityand

itsimpactuponjusticeoutcomesforpeoplewithdisability.Thesestrategiesshouldincludeculturallycompatiblepracticeguidelines,protocolsandtrainingprogramsforpublicofficers

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andprofessionalsworkingwithAboriginalandTorresStraitIslanderpeoplewithdisabilityinthejusticeandrelatedsectors.

10. AppropriatesupportservicesshouldbeprovidedtoAboriginalandTorresStraitIslander

peoplewithcognitiveandpsychiatricimpairmentswhohaveexperiencedviolenceortrauma,including:

(i) screeningforpastexperiencesoftrauma,includingfamilyviolence,sexualassaultor

otherformsofgender-basedviolence(ii) counsellingandemotionalandpsychologicalsupporttohelpsurvivorsontheirroads

torecovery,and(iii) legalsupporttohelpthemaccesstheirrightsandobtainjustice.

11. Systemsfordiversionontosupporteddisabilityprogramsshouldbeestablishedatcritical

pointsofcontactwiththecriminaljusticesystem,withlinkagestotheNationalDisabilityInsuranceScheme.

12. TheCommonwealthshouldadoptaleadroleinthecreationofnationallegislativestandardsforlegislationandregulatoryframeworksaffectingindividualswhohavebeendeclaredmentallyimpairedorunfittoplea.Thenationalstandardlegislationshouldataminimumprovidefor:(i) Judicialdiscretiontoimposeanappropriateorderdependingonthecircumstances

ofthecase,includinglevelofimpairmentandcontributingsocialcircumstances.(ii) SpecialhearingsthatincludeinputfromAboriginalandTorresStraitIslander

communityrepresentativestotesttheevidenceagainstamentallyimpairedaccusedwhoisunfittostandtrial.Thisshouldentailaprocedurefordeterminingwhether,ontheevidenceavailable,theaccusedcommittedtheobjectiveelementsoftheoffencesothatifitcannotbeproventhattheaccusedcommittedtheobjectiveelementsoftheoffence,theaccusedisdischarged.

(iii) Minimumproceduralfairnessrequirementssuchasarighttoappear,rightofreview,righttowrittenreasonsfordecisionandrighttoinformation.

(iv) Finitetermsforcustodyorders(andreleaseorders)–thedurationoftheordershouldbenolongerthanthedurationofthesentencethatwouldhavebeenimposediftheaccusedhadbeenconvictedoftheoffence.

(v) DeterminationsaboutreleaseofmentallyimpairedaccusedfromcustodyorcommunityreleaseordersshouldbemadebytherelevantboardwithanannualrightofreviewbeforetheSupremeCourt.

13. TheCommonwealthshouldprovideasupportprogramforAboriginalandTorresStrait

Islanderpeoplewithcognitiveimpairment,asa‘safetynet’whentheseservicesarenotmadeavailableatalllevelsofcourtswithintheStateandTerritoryjurisdictions.

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14. Establishaworkinggrouptoestablishinterfaceprinciplesbetweenstateandterritorybased

post-releaseprogramswiththeNationalDisabilityinsuranceScheme,basedontheeffectivefeaturesofthethroughcaremodel.

15. Establishamulti-disciplinary‘PolicyTranslationGroup’includingAboriginalandTorresStrait

IslanderrepresentativestoadviseontranslatingevidenceemanatingfromCommunityknowledgeandacademicresearchintopolicy.

16. ThattheserecommendationsformthebasisofaNationalDisabilityJusticeStrategywitha

dedicatedfocusontherightsandcircumstancesofAboriginalandTorresStraitIslanderpeople.

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1.APREDICTABLEANDPREVENTABLEPATH:INDIGENOUSAUSTRALIANSWITHMENTALANDCOGNITIVEDISABILITIESINTHECRIMINALJUSTICESYSTEMProfessorEileenBaldry,DrRuthMcCausland,AssociateProfessorLeanneDowse,ElizabethMcEntyre,UNSWKeyissues:

● Thereisasevereandwidespreadlackofappropriateearlydiagnosisandpositive,culturallyresponsivesupportforIndigenouschildrenandyoungpeoplewithcognitiveimpairment.

● Intheabsenceofholisticdisability,educationandhumanservicessupport,thepathwaysintoprisonforAboriginalandTorresStraitIslanderpeoplewithcognitiveimpairmentarepredictable.Theyarealsopreventable.

● Effectiveresponsesshouldbefoundedontheprinciplesof:selfdetermination;personcentredcare;aholisticandflexibleapproach;integratedservices;andculture,disabilityandgender-informedpractice.

1. TherecentreportoftheIndigenousAustralianswithMentalandCognitiveDisabilityintheCriminalJusticeSystem(IAMHDCD)Project,APredictableandPreventablePath1foundthatacrossAustralia,thousandsofIndigenouspeoplewithmentalandcognitivedisabilitiesarebeing‘managed’bypolice,courtsandcorrectionsratherthanbeingsupportedinthecommunity.Thisquantitativeandqualitativestudyrevealsthewaysthatsystemsofcontrolratherthancareorprotectionarebeinginvokedforthisgroup,oftenfromaveryyoungage.ThefindingsofthisprojecthighlightthewaysthatIndigenouspeoplewithmentalandcognitivedisabilitiesexperiencemultiple,interlockingandcompoundingdisadvantageouscircumstances.

2. Thefindingsofthisprojectunequivocallydemonstratethatpathwaysintoandaroundthe

criminaljusticesystemformanyIndigenouspeoplewithmentalandcognitivedisabilitiesareembeddedandentrenchedbytheabsenceofcoherentframeworksforholisticdisability,educationandhumanservicessupport.Indigenouspeoplewithmentalandcognitivedisabilitiesareforcedintothecriminaljusticesystemearlyinlifeintheabsenceofalternativepathways.Althoughthisalsoappliestonon-Indigenouspeoplewithmentalandcognitivedisabilitieswhoarehighlydisadvantaged,theimpactonIndigenouspeopleis

1EileenBaldry,RuthMcCausland,LeanneDowse&ElizabethMcEntyre,APredictableandPreventablePath:Aboriginalpeoplewithmentalandcognitivedisabilitiesinthecriminaljusticesystem(UniversityofNewSouthWales,2015)<http://www.mhdcd.unsw.edu.au>

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significantlygreateracrossallthemeasuresandexperiencesgatheredinthestudiesacrosstheIAMHDCDProject.

3. Theseriousimplicationsofpoordiagnosisanduncleardefinitionsofmentalandcognitive

disabilityarestarklyhighlightedintheresearch.Thefindingsdemonstratethatthereisasevereandwidespreadlackofappropriateearlydiagnosisandpositive,culturallyresponsivesupportforIndigenouschildrenandyoungpeoplewithcognitiveimpairment.Thisisconnectedtoschoolsandpoliceviewingcertainkindsofbehaviourthroughaprismofinstitutionalracismratherthandisability,aswellasIndigenouscommunityreluctancetohavechildrenassessedusingparticularcriteriathatareperceivedasstigmatisingandleadingtonegativeinterventioninAboriginalfamilies.Foradultsinthecriminaljusticesystem,cognitiveimpairmentiseithernotrecognisedatall,orifrecognised,itispoorlyunderstood.

4. FormanyIndigenouspeople,diagnosisoftheircognitiveimpairmentcomeswithassessment

onentrytoprison.Howeversuchadiagnosisrarelyleadstoappropriateservicesorsupportwhileinprison;analysisofthedatarevealsthatsubsequentinterventionstendtocontinuetoforegroundoffendingbehaviourratherthancomplexsocialdisadvantageordisability,mentalhealthoralcoholandotherdrugsupportneeds.ThefindingsilluminatetheparticularchallengesandvulnerabilitiesfacingIndigenouswomenwithmentalandcognitivedisabilitiesasthemostdisadvantagedgroupintermsoftheirmultipleandcomplexsupportneeds.

5. Thereisanurgentneedforanevidence-informedresponsebypoliticalleaders,policy-

makers,peopleworkingincriminaljusticesystems(police,magistrates,correctionalofficers,paroleofficers)andserviceproviders.Fundamentally,usingthelawandcriminaljusticeservicesasmanagementtoolsforIndigenousAustralianswithcomplexsupportneedsisbadpolicyandpracticeandhavingadevastatingimpactonthehumanrightsandwellbeingofIndigenouspeoplewithmentalandcognitivedisabilities.

SolutionsfromtheCommunity

6. Basedonthequalitativeandquantitativefindingsofthestudy,theresearchteamrecommendedthefollowingfiveprinciplesandassociatedstrategies,derivedfrominterviewsanddiscussionwithIndigenouspeopleinthestudy,shouldunderpinpolicyreviewandimplementation.

Principle1:Self-Determination

7. Self-determinationiskeytoimprovingaccesstoandexerciseofhumanrightsandtothewellbeingofIndigenouspeoplewithmentalandcognitivedisability,especiallyforthoseinthecriminaljusticesystem.Strategiesinclude:

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• Indigenous-ledknowledgeandsolutionsandcommunity-basedservicesshouldbeappropriatelysupportedandresourced;

• theparticulardisadvantagefacedbyIndigenouswomenandpeopleinregionalandremoteareasshouldbeforegroundedinanypolicyresponsetothisissue;and

• resourcesshouldbeprovidedtobuildtheculturalcompetencyandsecurityofnon-Indigenousagencies,organisationsandcommunitieswhoworkwithIndigenouspeoplewithmentalandcognitiveimpairmentwhoareincontactwiththecriminaljusticesystem.

Principle2:Person-CentredCare

8. Person-centredcarethatisculturallyandcircumstantiallyappropriateandwherebyanindividualisplacedatthecentreoftheirowncareinidentifyingandmakingdecisionsabouttheirneedsfortheirownrecoveryisessentialforIndigenouspeoplewithmentalandcognitivedisability.

Strategiesinclude:• disabilityservicesineachjurisdiction,alongwiththeNationalDisabilityInsurance

Scheme,shouldensurethereisacomplexsupportneedsstrategysupportingIndigenouspeoplewithdisabilityincontactwithcriminaljusticeagencies;

• specialisedaccommodationandtreatmentoptionsforIndigenouspeoplewithmentalandcognitivedisabilityinthecriminaljusticesystemshouldbemadeavailableinthecommunitytopreventincarcerationandincustodialsettingstoimprovewellbeing;and

• Indigenouspeoplewithmentalandcognitivedisabilitywhoareatriskofharmtothemselvesorothersandwhohavebeeninthecustodyofpoliceorcorrectionsshouldnotbereturnedtotheircommunitywithoutspecialistsupport.

Principle3:AHolisticandFlexibleApproach

9. AdefinedandoperationalisedholisticandflexibleapproachinservicesforIndigenouspeoplewithmentalandcognitivedisabilityandcomplexsupportneedsisneededfromfirstcontactwithservicesystems.

Strategiesinclude:• earlyrecognitionviamaternalandinfanthealthservices,earlychildhoodandschool

education,communityhealthservicesandpoliceshouldleadtopositiveandpreventivesupport,allowingIndigenouschildrenandyoungpeoplewithdisabilitytodevelopandflourish;

• arangeof‘step-down’accommodationoptionsforIndigenouspeoplewithcognitiveimpairmentinthecriminaljusticesystemshouldbeavailable(theNewSouthWalesCommunityJusticeProgramprovidesausefultemplate);and

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• community-basedsentencingoptionsshouldbeappropriatelyresourced,integratedandinclusivesotheyhavethecapacityandapproachneededtosupportIndigenouspeoplewithmentalandcognitivedisability.

Principle4:IntegratedServices

10. Integratedservicesarebetterequippedtoprovideeffectivereferral,informationsharingandcasemanagementtosupportAboriginalandTorresStraitIslanderpeopleswithmentalandcognitivedisabilityinthecriminaljusticesystem.

Strategiesinclude:• justice,correctionsandhumanservicesdepartmentsandrelevantnon-government

servicesshouldtakeacollaborativeapproachtodesigningprogrampathwaysforpeoplewithmultipleneedswhorequiresupportacrossallthehumanandjusticesectors;and

• allprisonerswithcognitiveimpairmentmustbereferredtothepublicadvocateofthatjurisdiction.

Principle5:Culture,DisabilityandGender-informedpractice

11. ItisvitalthatAboriginalandTorresStraitIslanderpeoples’understandingsof‘disability’and‘impairment’informallapproachestothedevelopmentandimplementationofpolicyandpracticeforIndigenouspeoplewithmentalandcognitivedisabilityinthecriminaljusticesystem,withparticularconsiderationofissuesfacingAboriginalandTorresStraitIslanderwomen.

Strategiesinclude:• bettereducationandinformationareneededforpolice,teachers,educationsupport

workers,lawyers,magistrates,health,corrections,disabilityandcommunityserviceprovidersregardingunderstandingandworkingwithAboriginalandTorresStraitIslanderwomenandmenwithcognitiveimpairment,mentalhealthdisordersandcomplexsupportneeds;

• informationandresourcesareneededforIndigenouscommunities,familiesandcarers,providedinaculturallyinformedandaccessibleway;and

• thedistinctandspecificneedsofAboriginalandTorresStraitIslanderwomenshouldbeforegroundedinsucheducationandinformation.

RecommendedResponses:

12. Withthesefiveprinciplesinmind,APredictableandPreventablePathmadewide-rangingrecommendationsrelatingtothecriminaljusticesystem,includinglegislationandsentencing,police,resourcesandsupportforLegalAidandAboriginalLegalServices,courts,

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corrections,diversionaryprograms,post-releaseservicesandsupport;2aswellastocommunityservices,schools,disabilitymodels,servicesandsupport,mentalandotherhealthconcerns,andhousing.3

2Ibid,164-166.3Ibid,166-168.

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2.THELIFETRAJECTORYFORANABORIGINALANDTORRESSTRAITISLANDERPERSONWITHDISABILITYScottAvery,PolicyandResearchDirector,FirstPeoplesDisabilityNetwork(Australia)Keyissues:

● AboriginalandTorresStraitIslanderpeoplewithdisabilityareatheightenedriskofencounteringindefinitedetentionduetothecomplexinteractionofpersonalandsocialfactorsaffectingboththeirIndigenousanddisabilitystatus.

● BythetimethatanAboriginalorTorresStraitIslanderpersonhascomeintocontactwiththejusticesystem,theyarelikelytohavehadalifetimeofunmanageddisability.

● AstrategicapproachisneededtoaddressthefactorsimpactingonAboriginalandTorresStraitIslanderpeoplewithcognitiveimpairment:(iii) toimproveaccesstotheirrightsuponcomingincontactwiththejusticesystem;(iv) toaddressthesocialriskfactorstoaltertheirlifetrajectoryandreducethe

likelihoodoftheircomingincontactwiththejusticesysteminthefirstinstance.

1. AnAboriginalorTorresStraitIslanderpersonwithdisabilityisamemberoftwocommunities;onepertainingtotheiridentityasanIndigenouspersonandanotherpertainingtotheirdisability.Addressingoneaspectofapersonrightsinisolationfromthecompositerightscanleavethemexcludedfromanotheraspectofsocietyimportanttotheirsenseofidentity.

2. Intersectionalityisafieldofhumanrightsresearchwhichisanemerginginfluenceonpublic

policy.Intersectionalityacknowledgestherearemultipledimensionsofapersonsidentityasaframeforunderstandingthelayersinwhichsocialinequitycanaccumulate.ThisinvolvesunderstandingtherightstoculturalinclusionasanIndigenouspersonaswellastherightsofinclusionasapersonwithdisability.AfailuretounderstandbothdualaccessrightsforIndigenousandtherightsofapersonineffectcreatesaminoritygroupwithinaminoritygroup.

3. ThesocialexclusionthatcanoccurbecausesomeoneisbothAboriginalorTorresStrait

Islanderandhasdisabilityhascolloquiallybeenreferredtoasexperiencinga‘doublediscrimination’byAboriginalandTorresStraitIslanderpeoplewithdisability.Whilstmoreovertformsofdiscrimination(suchasvilification)aremoreeasilydetectable,thereisalsoinstitutionalorsystemicbiaseswhichactagainsttherightsandinclusionofAboriginalandTorresStraitIslanderpeoples.Forexample,theincidenceandimpactofinstitutionalracism

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inthehealthsectorhasbeenwelldocumented,anditsfindingscouldreadilyapplytothejusticesystem.4

4. Institutionalisedformsofdiscriminationsitswithinthesubconsciousofthosechargedwith

responsibilityforundertakingpublicfunctions–apolicywhichisnotintendedtobediscriminatorycanbecomediscriminatorywheninterpretedbyanofficialbasedontheirownlevelsofawareness,assumptionsandsubconsciousprejudicesaboutAboriginalandTorresStraitIslanderpeopleand/orpeoplewithdisability.

5. FailuresinaddressingtherightsofanIndigenouspersonintheirearlyyearscanleadtoa

further,andoftenrapid,deteriorationinrightsoverthecourseofalifetime.Hereisonescenarioasanexample;

• AnIndigenousmotherlivinginpovertyandinacommunitywithinadequatepublichealthfacilitiesismorelikelytohavealow-birthweightbabycomparedtonon-Indigenouspeople.

• Lowbirthweightisaknownriskfactorforchildhooddisabilityandlearningimpairment.

• TherateofremovingachildfromtheirfamiliesissignificantlyhigherforIndigenouschildrencomparedtonon-Indigenouschildren.InAustralia,thisdisparityisa10-foldincreaseintherateofchildremovalforIndigenouschildren.

• Clinicalprotocolsfortheassessmentfordisability,particularcognitiveimpairments,canrequireastablehomeenvironmenttoenableanaccurateassessment.Ifshiftingfromhometohomeinanout-ofhome-caresystemcontinuallydisruptsachild,thenanassessmentofdisabilitymaynotoccur.

• Medical-basedmodelsofdisability(notjustinhealth,butalsoineducation)requireadiagnosistotriggersupportsforachild.

6. So,whenthebarrierstoaccesstherighttohealthforanIndigenouspersoninteractwith

thoseforapersonwithdisability,theconsequenceforachildwhoisIndigenousandwithdisabilityisthattheyareatheightenedlikelihoodofgoingthroughtheirearlychildhoodwithanundetectedandunsupporteddisability.Theeffectsofthiscarriesforwardintotheirschoolingyearsandplacesthemonatrajectorywheretheyaremorelikelytomatriculateintoprisonthanintotertiaryeducation.

7. Whilstthisparticularperspectiveemphasisesdisabilityasanintersectionalrisktotherights,

healthandwellbeingforAboriginalandTorresStraitIslanderpeople,theconceptalso

4ALarsonetal,‘It'senoughtomakeyousick:theimpactofracismonthehealthofAboriginalAustralians’(2007)31(4)AustralianandNewZealandJournalofPublicHealth322;NPriestetal,‘Experiencesofracism,racial/ethnicattitudes,motivatedfairnessandmentalhealthoutcomesamongprimaryandsecondaryschoolstudents’(2014)43(10)JournalofYouthandAdolescence672-876;AFerdinandetal,MentalHealthImpactsofRacialDiscriminationinVictorianAboriginalCommunities:TheLocalitiesEmbracingandAcceptingDiversity(LEAD)ExperiencesofRacismSurvey(TheLowitjaInstitute,2012).

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appliesinrelationtootherriskfactorswhichcanhaveacumulativedetrimentalimpact.Theseriskfactorscaninclude:

• Gender• Childrenandyoungpeople• Exposuretotrauma,bothacuteandinter-generational• Psychiatricandmentalhealthconditions• Lesbian,gay,bisexual,andtransgender• Drugandalcoholdependence• Exposuretofamilyviolence• Deprivationofliberty.

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Table:ThedeteriorationofrightsacrossthelifetrajectoryofAboriginalandTorresStraitIslanderpeoplewithdisability

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3.FRAMINGRECURRENTANDINDEFINITEDETENTIONFROMADISABILITYPERSPECTIVEAssociateProfessorLeanneDowse,ChairinIntellectualDisabilityBehaviourSupportKeyissues:

● Understandingcognitiveimpairmentfrompurelyamedicalmodel–ie.whereamedicaldiagnosisisneededtoaccesssupports,willnarrowaccesstosupportsforthosemostinneed.

● AsocialmodelofdisabilitywillbetteraccommodatethecomplexsocialandculturaldeterminantsaffectingtherecurrentandindefinitedetentionofAboriginalandTorresStraitIslanderpeoplewithcognitiveimpairment.

● Thesocialmodelapproachwillleadtoamorediscretionarysupportsystemthatwillbemoreeffectiveinaddressingthefactorsaffectingindividualswhoaredetainedoverthelongerterm.

Overview

1. Therecognitionofcognitivedisabilitywithinthecriminaljusticesystemisamatterofsomecontention.Thisreflectstheunsettlednatureofterminology,variationinapproachestoassessmentandthehistoricalconflationofmentalhealthdisorderandcognitiveimpairment.Cognitiveimpairmentisatermutilisedtoencompassavarietyofdiagnosticlabelsincludingintellectualdisability,borderlineintellectualdisability,acquiredbraininjury,autismanddementia.Cognitivedisabilityisusedtodenotethesocialunderstandingthatimpairmententailsarangeofsocialexclusionsthatattendtothepresenceofimpairment.Generally,havingacognitiveimpairmentmeansthatapersonwillhavedifficultywiththingssuchasself-management,decision-makingandcommunication.Thismeansthatthisgrouphavesignificantdifficultyoperatingintheworld.

2. Whilemanypeoplewithcognitivedisabilitymayseemoutwardlyindependent,whenwe

drilldowntotheirfunctionalcapacityitisclearthattheirdisabilityisdirectlyrelatedtothelikelihoodofoffending.Theirriskofoffendingisinfactoutofproportionbutitisdifficulttoseparatedisabilityandoffending.Cognitiveimpairmentisalsorecognisedtobeassociatedwitharangeofsocialdisadvantageincludingpooreducationaloutcomes,unemploymentandeconomicdisadvantage,theriskofahigherincidenceofmentalhealthproblemsandco-existingmentalillnessordrugandalcoholissues.Commonlytheycomefromsituationswheretheyfundamentallylacksocialsupport.Keychallengesinthisareaarethatpeoplewithcognitiveimpairmentsmaybereluctanttoacceptadisabilitylabel,recognitionofdisabilityinoneservicedoesnotreadilytransfertoanother,andthatindividualsdonotfit

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intothelimitingcategoriesrequiredforadisabilityservice.Thismeansthatmanyinthisgrouparenotrecognisedashavingadisabilityuntiltheyareassessedinprison.

3. Peoplewithcognitiveimpairmentinthecriminaljusticesystemareaverydiversegroup

withabroadspectrumofoffending,rangingfromminortroubletoseriousandmajorviolentandsexualoffences.Offendingoftenbeginsatayoungage,withearlypolicecontact–typicallyfromtheearlyteens,andwithcontactfrequentandextendingforlongerovertheirlifetime.Inrelationtothenatureofdetentionexperiencedbythisgroup,theirpropensityforlowleveloffendingandtheirinabilitytocomplywithbailconditionsandcommunityordersmeansthatformany,frequentshortsentencescombinedwithremandseethemregularlycyclingbetweenprisonandthecommunity.Sowhiledetentionformanymaynotbeintheformofasingleindefinitelong-sentence,theinevitabilityoftheircyclinginandoutofprisonmeans,frequentandrecurrentdetentionthroughoutthelifecourse.

ComplexSupportNeeds

4. Inrelationtohumanlivesandsupportneeds,‘complexity’isaproductofthecompoundingofindividuallifesituationsandthelackofcapacityofsupportstructurestorespondappropriatelyovertime,thatis,theyarecreationsofsocialsystemsandorganisation,notthefaultofanindividualperson.5InapplyingacomplexityanalysistothelivedexperienceofIndigenousAustralianswithMHDCDincontactwiththecriminaljusticesystem,anappliedconceptualframingofthemultipledomainsofdisadvantageidentifiedas‘complexsupportneeds’hasbeenutilisedintheresearch.Whilethereremainsalackofagreementaroundterminologyinthearea,theterm‘complexsupportneeds’movesbeyondlimitedcategorizationsdefinedbythepresenceofaprimarymedicaldiagnosis,andwhichattributesthepresenceofaparticularcharacteristic,impairmentordysfunctionorcombinationstotheindividual.

5. Asanoverarchingconcept,complexsupportneedsprovidesaframeworkforunderstanding

multipleinterlocking6experiencesandfactorsthatspandisability,healthandsocialissues,andcapturestheirnatureassimultaneousness,multifacetedandcompounding.7Broadlythosewithcomplexsupportneedsareseenaspeoplewhorequirehighlevelsofhealth,welfareandothercommunitybasedservicesandincludeindividualswhoexperiencevariouscombinationsofmentalillness,intellectualdisability,acquiredbraininjury,physicaldisability,behavioursthatarearisktoselforothers,socialisolation,familydysfunction,haveproblematicdrugand/oralcoholuse,insecureorinadequatehousing;cultural,

5MargaretHamilton,‘PeoplewithComplexneedsandtheCriminalJusticeSystem’(2010)222CurrentIssuesinCriminalJustice307.6JenniferRankinandSueRegan,‘DisabilitiesandOffendingBehaviour’(2004)73Meetingcomplexneedsinsocialcare,Housing,CareandSupport4.7EileenBaldryandLeanneDowse,‘Compoundingmentalandcognitivedisabilityanddisadvantage:policeascaremanagers’inDuncanChappell(ed)PolicingandtheMentallyIll:InternationalPerspectives(CRCPress,TaylorandFrancisGroup2013)219,222-223.

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circumstantialorintergenerationaldisadvantage;familyanddomesticviolenceandcontactwiththecriminaljusticesystem.8

6. Importantfortheanalysispresentedinthisreportistherecognitionthatcomplexsupport

needsarenotstaticandhaveatemporaldimension,suchthatheightenedneedforsupportismorelikelytoemergeduringcertainsituations,episodesorlifestagesincludingtransitionsaroundoutofhomecare,engagementwithorreleasefromthecriminaljusticesystem,intimesoffamilystresssuchasillness,death,familyconflict,orremovalofchildren.Theexperienceisparticularlycharacterisedbylackofsupportinacrisisandmaybeexacerbatedinsituations,whichrequirenegotiationofmulti-agencysupport.Thosewithcomplexsupportneedsarealsofrequentlydefinedinthecontextoftheirrelationshiporotherwisetoservicesystems.Thesesystems,suchasthechildprotection,health,housingandcriminaljusticesystemsstruggletoworkcollaborativelywithandsupporteffectivelysuchindividualsandsopeoplewithcomplexsupportneedsareoftenmarginalisedanddisadvantagedwithintheservicesystemandinthecommunity.9

8EileenBaldry,LeanneDowseandMelissaClarence,‘Peoplewithmentalandcognitivedisabilities:PathwaysintoPrison’(2012)BackgroundPaperforOutlawstoInclusionConference;TerryCarney,‘ComplexneedsattheBoundariesofMentalHealth,JusticeandWelfare:GatekeepingIssuesinManagingChronicAlcoholismTreatment?’(2016)173CurrentIssuesinCriminalJustice347;Draine,Jetal,‘Roleofsocialdisadvantageincrime,joblessness,andhomelessnessamongpersonswithseriousmentalillness’(2002)535PsychiatricServices565;MargaretHamilton,‘PeoplewithComplexneedsandtheCriminalJusticeSystem’(2010)222CurrentIssuesinCriminalJustice307.9MargaretHamilton,‘PeoplewithComplexneedsandtheCriminalJusticeSystem’(2010)222CurrentIssuesinCriminalJustice307;aboven7.

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4.ADDRESSINGCOGNITIVEDISABILITYINCHILDRENANDYOUNGPEOPLEProfessorCarolBower,SeniorPrincipalResearchFellow;NoniWalker,SeniorResearchFellow;SharynneHamilton,ResearcherBanksiaHillFASDProject;GlennPearson,Head,AboriginalResearchDevelopment,TelethonKidsInstitute.Keyissues:

● Ifunmanaged,cognitivedisabilitycancontributetolowerattainmentineducation,employmentandincreasedcontactwithpolice.

● Childhooddisabilityisunder-identifiedinAboriginalandTorresStraitIslandercommunities.Thisisduetoarangeofsocialfactorsincludingrelativelylowlevelsofdisabilityawarenessandstigmatisation.ThisisparticularlythecasewithFoetalAlcoholSpectrumDisorders.

● ResearchonanAustraliandiagnosticinstrumentforFASDisclosetocompletion.Widedisseminationanduseofthediagnosticinstrumentshouldleadtobetteridentificationandmanagementofcognitivedisabilityacrossarangeofsocialpolicyareasincludingearlychildhoodandchildprotection,educationandjustice.

● Complementaryresearchisdevelopingastrengths-basedmodelforthemanagementofdisabilitywithinjuvenilejustice(theBanksiaHillFASDProject).Thisresearchshowsthegreatpotentialfortheintegrationofdisabilityexpertisewithinajusticesetting,foradoptionbyjusticeanddisabilityagenciesincludingtheNationalDisabilityInsuranceAgency.

1. ThegoaloftheTelethonKidsInstituteis“..tobuildonoursuccessandcreatearesearchinstitutethatmakesarealdifferenceinourcommunity,witharenewedfocusontranslationanddiscovery,whichwillbenefitchildrenandfamilieseverywhere.Wewilldothistogether-unifiedinourleadership,excellence,passion,andvision.”

2. AddressingthisgoalisamajorprogramofresearchattheTelethonKidsInstituteonalcohol

useinpregnancyandFetalAlcoholSpectrumDisorders(FASD).

3. Theaimsofthisprogramofresearchareto:• preventalcoholuseinpregnancyanditseffectsonchildhealth;• decreasetheincidenceofFASD;• improveFASDdiagnosticcapacity;and• improvemanagementofchildrenandyoungpeoplewithaFASDthrougheffective

interventions.

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4. Weareworkingwithcommunitygroups,includingAboriginalcommunities,health,justiceandeducationprofessionstochangethewayFASDisprevented,diagnosedandtreated.

5. FASDarecharacterisedbycentralnervoussystemdysfunctiongivingrisetodevelopmental,

sensory,learningandbehaviouraldifficulties.Althoughonlyabout30%ofchildrenwithFASDhaveanintellectualdisability(IQ<70),allhaveneurocognitivedeficitsthatarepermanent,resultinginlifelongprogressiveandcompleximpairment.

6. Theseimpairmentshaveanegativeimpactuponthelifetrajectoryofchildrenandyoung

peoplewithFASDincluding:impairedearlyattachmentandpsychosocialdevelopment,impairedattention,increasedimpulsivityandmemoryandlearningdifficulties.Theycanoftenleadtosecondaryproblemsincludingpooreducationaloutcomes,socialexclusion,lowself-esteem,mentalhealthdisorders,substancemisuseanddependence,andcontactwiththelaw.

7. FASDcanleadtosociallyunacceptableharmfulbehaviours,antisocialactivities,violent

crime,andbeingsubjecttoorcommittingsexualpredation.DeficitsassociatedwithFASDsuchasmemory,understandingabstractconcepts,reasoning,understandingcauseandeffect,learningfrompastmistakes,andunderstandingandmeetingsocialnormsandexpectationshavespecificrelevancetoyouthengagingandinteractingwithpolice,lawyersandjudicialofficers.

8. YoungpeoplewithFASDareeasilyledandcoercedbytheirpeersandmayalsobevictimized

bothoutsideandinsidethejusticesystem.Theymaybeunabletoprovidearecordofevents,namesofpeopleinvolvedandtimelines,andtheymayprovidedifferentversionsofthestoryforpoliceatdifferentstagesoftheintervieworarrestprocessleadingtoallegationsofconfabulationandpossiblefalseconfessions.Thesedeficitsalsoinhibittheirabilitytoprovideinstructiontotheirlawyer,understandthecourtprocessandproceedingsanddecisionmadebythemagistratesuchasmeetingbailconditionsorparoleorders.

9. AllaspectsoftheFASDresearchattheTelethonKidsInstitute-prevention,diagnosisand

management-arerelevanttothisInquiry,butthreeresearchfocusareasareparticularlypertinent.

DiagnosisofFASD

10. TheTelethonKidsInstitutehasdevelopedanAustralianFASDdiagnosticinstrument,oncontracttotheFederalDepartmentofHealth,whichwillbedisseminatedAustralia-wide(fromMay2016)alongwithon-linetrainingmodulesforhealthprofessionals.DiagnosisofFASDinAustraliahasbeenlimitedbylackofknowledgeandexperienceofhealthprofessionalsandanabsenceofacceptednationaldiagnosticcriteria.Withgreaternationalcapacityfordiagnosis,FASDwillbegintobediagnosedearlierinlife,providingopportunities

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forearlierinterventionandreductioninsecondarydisabilities,suchasengagementwiththelaw.

FASDinthejuvenilejusticesystem

11. AprojectattheBanksiaHillDetentionCentreinWesternAustraliaaimstotodeterminehowcommonFetalAlcoholSpectrumDisordersareinyoungpeopleindetention,developaFASDscreeningtoolappropriateforyoungpeopleenteringthejuvenilejusticesystem,anddevelopappropriatemanagementstrategiesfortheseyoungpeople.TheprojectisfundedbytheNHMRCTargetedCallforResearch:FetalAlcoholSpectrumDisorderamongAboriginalandTorresStraitIslanderPeoples.

12. SeventypercentofyoungpeopleinthejuvenilejusticesystemareAboriginalandand

reportedratesofFASDaregreaterinAboriginalcomparedwithnon-Aboriginalchildren.TheoutcomesoftheresearchwillestablishthefirstAustralianestimateofFASDamongyoungpeopleindetentiontocomparewithoverseasdatathat20%youngpeopleinjuveniledetentionhaveFASD.

13. YoungpeopleatBanksiaHill(between10and17years)whochoosetoparticipate,and

whoseparent/guardianconsents,areinterviewedbytheprojectresearchassistantandareassessedbyapaediatrician,neuropsychologist,occupationaltherapistandspeechpathologisttoprovideinformationthatmayidentifyFASDorotherconditionsorimpairments.

14. Areportforeachyoungpersonprovidesassessmentfindings,aprovisionaldiagnosisif

identified,theirindividualstrengthsanddifficultieswithrecommendationsforimprovedmanagementstrategiesfortheyoungpersonandreferralsifappropriate.Discussionwiththeyoungperson,theirparent/guardian/carersanddetentioncentrestaffabouttheirstrengthsanddifficultiesaimstofacilitateimprovedsupportforyoungpeoplewithFASDandotherimpairmentsduringdetentionandinthecommunityfollowingtheirrelease.

15. DatawillalsobeanalysedtodevelopaFASDscreeningtoolappropriateforuseamong

youngpeopleenteringjuveniledetentioninAustralia.ImprovementsintheidentificationandmanagementofindividualswithFASDinthejusticesystemhavethepotentialtobecost-effectiveandimprovewellbeingthroughtheprovisionofservicesandsupportthatismoreappropriatetotheneedsoftheseyoungpeople.

16. Exploringhowtherecommendedstrategiesmatchwithexistingcommunicationand

managementpathwaysatBanksiaHillandwithprofessionaldevelopmentandtrainingforcustodialofficersisunderwayintheworkforcedevelopmentcomponentoftheproject.Interventionresourcesdevelopedwillbemadeavailableforusenationally.

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17. ResourcesforjusticeprofessionalsavailablecurrentlyweredevelopedfromresearchbytheTelethonKidsInstitutetoidentify:

• whatjusticeprofessionalsknewaboutFASD;• howthisimpactedontheirwork;• whatinformationtheyrequired;and• howthisinformationshouldbedelivered.

18. Resourcesincludeaseriesof5onlinepresentationsandanoverview:FASDandissuesinthe

justicesystem.Acontinuingprofessionaldevelopmentmoduleforlawyersisalsoavailablefreeonline:http://alcoholpregnancy.telethonkids.org.au/fasd-justice/professional-development/

19. FASDinformationprovidedbytheTelethonKidsInstitutetotheDepartmentoftheAttorney

GeneralforWesternAustraliawasincludedinChapter4‘Peoplewithdisabilities’intheEqualitybeforetheLawBenchBook.

20. TelethonKidsInstitutealsocontributestoadvocacyforimprovementstothewayyouth

justiceisdeliveredinWAthroughitsrepresentationbyProfessorJonathanCarapetis(Director,TelethonKidsInstitute)ontheYouthJusticeBoard.

ManagementandsupportforpeoplewithFASDandtheirfamilies

21. FundingfromtheNationalDisabilityInsuranceAgency(NDIA)hasprovidedTelethonKidsInstitutewiththeopportunitytoconductacomprehensivereviewoftheinformationavailableonservicesandsupportsforpeoplelivingwithFASDtoinformthedevelopmentofdraftbestpracticeguidelinesforNDIAplanners.Theprojecthasledtodevelopmentof:

• adraftfunctionalseverityindexforpeoplewithFASDtoassistplannersindecisionmakingaroundthelevelandtypeofservicesandsupportsrequired;and

• principlesthatprovideafoundationforworkforcerequirements.TheNDIAExpertPanelhasassessedthesedraftguidelinesandfunctionalseverityindexforconsiderationofsupportforimpairmentsfromFASDintheNDIS.

22. TheAlertProgram®StudyistakingplaceintheFitzroyValleywhichislocatedapproximately

400kmeastofBroomeintheremoteKimberleyregionofWesternAustralia.TheValleyishometoapproximately3500predominantlyAboriginalpeoplebelongingtofourlanguagegroupsandlivinginmorethan45remotecommunities,someupto190kmfromthemaintownofFitzroyCrossing.Afterimplementingalcoholrestrictionsin2007,thecommunityturnedtheirattentiontotheissueoffetalalcoholspectrumdisorders(FASD)andearlylifetrauma(ELT),whichposedathreattointergenerationaltransferoflanguageandculture.Thisledtotheinitiationofacomprehensive,multifacetedprogram,theMaruluFASDStrategy,whichincludedAustralia’sfirststudyintotheprevalenceofFASD(theLililwanProject).SincetheLililwanProject,attentionhasbeenfocusedonhowtosupportchildren,familiesandteachersimpactedbyFASDandELT.

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23. ChildrenwithFASDandELTcanexperiencedifficultieswiththeirself-regulationand

executivefunctioning.Thiscanimpactonchildren’sabilitytoplan,organise,maintainattentionandchooseanappropriatelevelofalertnesstosuitaparticulartaskorsituation.TheAlertProgram®isbasedontheanalogyofthebodybeinglikeacarenginetoteachself-regulationandimproveexecutivefunctioning.Thebodycanrunatdifferentlevelsofalertnesssuchashigh,loworjustright.Childrenaretaughtfivewaystochangetheirlevelofalertnessthroughlistening,moving,touching,lookingorputtingsomethingintheirmouth.

24. Thegoaloftheresearchistodevelop,implementandevaluateacurriculumversionofthe

AlertProgram®,tobedeliveredbyteachersandschoolstafftoimproveimpairmentsinself-regulationandexecutivefunctioningofprimaryschoolagedchildrenintheFitzroyValleywithandwithoutFASD.

25. AnotherareaofresearchthatisrelevanttotheInquiryistoidentifychangesinthemental

healthsysteminordertoimproveservicedeliverytoNyoongarpeoplewithmentalillness.TheLookingForwardAboriginalMentalHealthProjectisaparticipatoryactionresearchprojectaimedatincreasingaccesstoandtheresponsivenessofthementalhealthanddrugandalcoholservicesystemforNyoongarfamilieslivinginthesouth-eastPerthmetropolitancorridorwhoselivesareaffectedbymentalillness.TheresearchrevealedthattheNyoongarcommunitywouldprefermentalhealthservicestobedeliveredinawaythatdemonstratesacomprehensiveunderstandingandrespectforaNyoongarworldview,incorporatingitsprotocols,practicesandculturalcontexts.OrganizationalchangepracticesaredirectlyinformedbythepartnershipbetweenEldersandservicestaffbasedonsharedhistories,respectfulunderstanding,andopen,authenticrelationships.

26. Akeyoutcomeoftheprojectisthedevelopmentandimplementationofaculturallysecure

systemschangeframeworkformentalhealthservicedelivery,theMinditjKaart-MoorditjKaart(‘Sickhead,GoodHead’)EngagementFramework,whichenhancestheknowledgeandskillsbaseofthementalhealthworkforcebybringingthemtogetherwithElderssoastobetterrespondtothementalhealthneedsofAboriginalfamilies.NyoongarElders,ensurethatservicestaff(1)haveanunderstandingaNyoongarworldviewandtheenduringimpactofColonisation,(2)aredevelopingwaystoworkwiththeneedsandaspirationsofthecommunity,(3)arebuildingservicecapacitytoworkmoreconfidently,competentlyandculturallysecurelywithNyoongarfamilies.Together,Eldersandservicescommittodevisingnewwaysinwhichfamiliescanbetteraccessservicesandservicesbemoreresponsivetotheirneeds.

Recommendations:

27. Wewilllearnfromexperienceabouthowbesttotranslateknowledgeintoaction–wedonotneedtowaitformoreresearch!

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i)EarlydiagnosisofFASDandinterventiontopreventengagementwiththelaw.

ii)EarlyrecognitionthatayoungpersonhasFASDorotherneurocognitiveimpairmentswhenfirstengagingwiththelawsothatcourtscanprovidealternativestrategiestosentencingandappropriatemanagementtoreducerecidivism.

28. ByidentifyingyoungpeoplewithFASDorcognitivedisabilities(theearlierthebetter)and

providingthemandtheirfamilieswiththenecessarysupportsandappropriatemethodstounderstandpoliceinterviewing,courtprocesses,bailconditionsandotheryouthjusticeprocesses,thechanceofendingupinindefinitedetentionisgreatlylessened.

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5.THEIMPACTOFTRAUMAANDFAMILYVIOLENCEUPONABORIGINALANDTORRESSTRAITISLANDERWOMENWITHDISABILITYEliseThomas,NationalSecretariatSupportOfficer,FamilyViolencePreventionLegalServicesKeyissues:

● AboriginalandTorresStraitIslanderwomenwithcognitiveandpsychiatricimpairmentsfacemultipleformsofintersectingdisadvantage,discriminationandmarginalisation.

● Thesebarriers,whichwomenfaceonbothindividualandsystemiclevels,effectivelyclosethedoorsonalternativepathwaysandfunnelthemdownanincreasinglynarrowroadofoptionswhich,formany,sadlyendswithincarceration.

1. AboriginalandTorresStraitIslanderpeoplewithcognitiveandpsychiatricimpairmentsaresubjecttodiscriminationanddisadvantageasaresultofthelegaciesofcolonisation;theStolenGeneration;pastandpresenttraumasofchildremovalandseveredfamilyties;racism;ableism;highlevelsofundiagnoseddisability;andfrequently,intergenerationalcyclesoflowsocioeconomicstatus,unemployment,substanceabuseandincarceration.Theseintersectingtraumasandvulnerabilitiesontheirownaremorethanenoughtoplaceindividualsathighrisk.When“woman”isaddedintothismix,withallofthegender-specificbarriersandvulnerabilitiesthatentails,thisriskbecomesmagnified.

2. ThesesystemicfactorsmeanthatAboriginalandTorresStraitIslanderwomenwithcognitive

andpsychiatricimpairmentsareoftencaughtinanexusofvulnerability,victimisationandcriminalisation.AsBaldry,McCausland,DowseandMcEntyreindicateintheirreportonAboriginalpeoplewithmentalandcognitivedisabilitiesinthecriminaljusticesystem,itisnotdisabilityalonebutratherthecombinationofcomplexformsofdisadvantagewhichplacesparticularindividualsatveryhighriskofvictimisation.10TheirreportalsofoundthatAboriginalandTorresStraitIslanderwomenwithinthestudyexperiencedthehighestratesofcomplexneeds,includingmultiplecontactswiththepolice,havingbeeninoutofhomecareaschildren,havingbeenhomelessandhavingbeenvictimsofcrime.11

3. Multiplestudieshavealsoindicatedastaggeringrateofmentalillnessandpsychiatric

impairmentamongstAboriginalandTorresStraitIslanderwomenindetention.Forexample,arecentstudybyBeyondBluefoundthatupto47%ofAboriginalandTorresStraitIslander

10EileenBaldry,RuthMcCausland,LeanneDowse&ElizabethMcEntyre,APredictableandPreventablePath:Aboriginalpeoplewithmentalandcognitivedisabilitiesinthecriminaljusticesystem(UniversityofNewSouthWales,2015)75,<http://www.mhdcd.unsw.edu.au>.11Ibid,45.

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womenindetentionsufferfrompost-traumaticstressdisorder(PTSD).70%weresufferingfromanxietydisordersand39%withdepression.63%ofAboriginalandTorresStraitIslanderwomeninthestudywerealsostrugglingwithsubstanceabuse,12whichitseemsreasonabletothinkmightbebothcausedbyandcontributingtotheirpoormentalhealth.

4. ManyAboriginalandTorresStraitIslanderwomenindetentionhavethemselvesbeen

victimsofmultipleformsoftrauma,includingfamilyviolence,rape,sexualassault,gender-basedand/orracialisedviolence.Frequentlywomenarealsore-traumatisedbytheverysystemsandinstitutionswhichshouldbesupportingthem,includingbypolice,courtsandchildwelfaresystems.Theseoftenunresolvedanduntreatedexperiencesoftraumacontribute,directlyandindirectly,tothecircumstanceswhichsetAboriginalandTorresStraitIslanderwomenontheroadtodetention.

5. AddressingthemultipleandcomplexneedsofthatAboriginalandTorresStraitIslander

womenwithcognitiveandpsychiatricimpairmentsindetentionrequiresaculturallyappropriate,traumainformedandgenderawareapproach.ItisnotenoughtoaddresstheirneedsasAboriginalandTorresStraitIslanderpeople;aswomen;aspeoplewithdisabilities;andasvictimsoftraumaseparately.Thecompoundingandintersectionalnatureoftheirdisadvantageandthebarrierstheyfacemustberecognised,andaneffectiveresponsetoitmustbeequallyintersectionalandmultifaceted.

6. TheNationalFamilyViolencePreventionandLegalServicesForumthereforerecommends:

• ThatAboriginalandTorresStraitIslanderpeoplewithcognitiveandpsychiatric

impairmentsindetentionbescreenedforpastexperiencesoftrauma,includingfamilyviolence,sexualassaultorotherformsofgender-basedviolence.

• AppropriatesupportservicesshouldbeprovidedtoAboriginalandTorresStraitIslanderpeoplewithcognitiveandpsychiatricimpairmentswhohaveexperiencedviolenceortrauma.Thisshouldincludebothcounsellingandotheremotionalandpsychologicalsupporttohelpsurvivorsontheirroadstorecovery,andlegalsupporttohelpthemaccesstheirrightsandobtainjustice.

• Inparticular,thegender-specificneedsofAboriginalandTorresStraitIslanderwomenwithcognitiveandpsychiatricimpairmentsmustberecognisedandrespondedto.

• Aboriginalcommunity-controlledorganisationsshouldberesourcedtoprovidespecialisedandculturallyappropriatesupporttoAboriginalandTorresStraitIslanderpeoplewithcognitiveandpsychiatricimpairmentsindetention.

12EHeffernan,KAndersen,SKinner,AAboud,COber,AScotney,TheFamilyBusiness:improvingtheunderstandingandtreatmentofpost-traumaticstressdisorderamongincarceratedAboriginalandTorresStraitIslanderwomen(BeyondBlue,2015)5.

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6.DIVERSIONDrLindaSteele,Lecturer,SchoolofLawUniversityofWollongongKeyissues:

● DiversionshouldaddressthedeepentrenchmentinthecriminaljusticesystemofIndigenousAustralianswithcognitiveandpsychiatricimpairmentandtheirindefinitecyclinginandoutofmultipleformsandepisodesofpunishmentovertheirlifecourse.

● Diversionwhichhaspunitive,coerciveand/orsupervisorydimensionswillnotonlyfailtoaddresstheissuesofentrenchmentandcyclingbutlikelyexacerbatethem.

● Diversionshouldtriggerappropriatedisabilityandsocialsupport,ratherthanbeanout-of-prisonformofpunishment.

● AsasignatorytotheConventionontheRightsofPersonswithDisabilitiestheCommonwealthhasanobligationtoensurediversionaryschemesdonotbreachhumanrights,includingtherighttoequalityandnon-discrimination.

1. Diversionintosupporteddisabilityprogramsasanalternativetoimprisonmentisacriticalprocesstostemtheunnecessaryincarcerationofpeoplewithcognitiveandpsychiatricimpairment.Theuseofdiversionisanunderutilisedopportunityacrossthejurisdictions,usedinanadhocandinconsistentmanner.TheSenateInquirypresentsanopportunitytoestablishanationallyconsistentmodelfordiversion,solongasitisbasedonsupportingpeoplewithdisabilityandnotcreatinganalternativeformofpunishment.

2. Diversionmustbeconsideredinthecontextofthebiggerpictureofthecomplexwaysin

whichIndigenousAustralianswithcognitiveandpsychiatricimpairmentaredeeplyentrenchedinthecriminaljusticesystemandsubjectedacrosstheirlifecoursetoanongoingcycleofmultipleformsandepisodesofpunishment.Thecoreissuesofcriminalisation,incarcerationandmarginalisationwhichareapparentinthisbiggerpicturewillnotbeaddressedifthe‘problem’ofindefinitedetentionisseenasbecoming‘fixed’ifitisreplacedwithyetanotherformofpunishment.

3. DiversionshouldaddressthedeepentrenchmentinthecriminaljusticesystemofIndigenousAustralianswithcognitiveandpsychiatricimpairmentandtheirindefinitecyclinginandoutofmultipleformsandepisodesofpunishmentovertheirlifecourse.Diversionwhichhaspunitive,coerciveand/orsupervisorydimensionswillnotonlyfailtoaddresstheseissuesofentrenchmentandcyclingbutlikelyexacerbatethem.ItisparticularlyimportanttheSenateCommitteeismindfuloftheseriskswhenconsideringdiversionbecauseofthetypicalpositiveperceptionthatdiversionisnon-punitive,therapeuticandbeneficial.

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WhatisDiversion?

4. Inthecontextofallegedoffenderswithcognitiveandpsychiatricimpairment,diversiontypicallyinvolvesshiftinganindividualfromtheirpassagealongthecriminaljusticecontinuumfromcharge,conviction,sentenceandpunishmentintoanalternativesystemofdisabilityandmentalhealthservices.

5. Thereisnouniformityacrossjurisdictions(bothinternationallyandwithinAustralia)in

relationtotheservice,institutionalorlegalformthatdiversiontakes.Forexample,diversionmightinvolveanindividualcourthavinganinformalpracticeofusinggeneralistbailandsentencinglegislationtoattachconditionsrelatingtodisabilityormentalhealthserviceengagementtoallegedoffenders’bailorcommunitysentencingorders(‘informaloradhocdiversion’).Attheotherextremediversionmightinvolveaspeciallegislativeschemeapplicableexclusivelytopeoplewithcognitiveandpsychiatricimpairmentwhichprovidesforspecificlegalorderscompellingengagementwithdisabilityandmentalhealthservices(‘formalisedlegaldiversion’).13

6. Whilediversioncanmeanmanythings,itisimportanttobeclearabouttheinstitutional,

serviceand,mostimportantly,legalformsthataparticulardiversionaryschemetakes.Formalisedlegaldiversionhasgenerallybeensupportedinpastlawreforminquiries14andbylegalstakeholdersbecauseitsformallegalstatussuggestsitwillbemoreaccessibleacrosscourtsandprovidegreatercertaintyofaccesstosupportservices.Yet,byveryreasonofitsformallegalnature,thisformofdiversionisalsothemostdifficultformofdiversiontoremoveorchangeonceinplaceandhassignificantlegalramificationsonindividualssubjectedtodiversionaryorders(egcoercedengagementwithtreatmentandservices,supervisionbyserviceprovidersofcomplianceandreversionbacktocriminalchargesifordersarebreached).Assuch,thissubmissionfocusesonadiscussionofformalisedlegaldiversion.

WhatHappensWithoutDiversion?

7. ResearchledbyEileenBaldryandLeanneDowseetalontheMHDCDdataset15establishesthatIndigenousAustralianswithcognitiveandpsychiatricimpairmentwhoareinthe

13See,eg,MentalHealth(ForensicProvisions)Act1990(NSW)s32.ForadiscussionofsomeexamplesseeElizabethRichardsonandBernadetteMcSherry,‘DiversionDownUnder—ProgramsforOffenderswithMentalIllnessesinAustralia’(2010)33(4)InternationalJournalofLawandPsychiatry249;RichardDSchneider,‘MentalHealthCourtsandDiversionPrograms:AGlobalSurvey’(2010)33InternationalJournalofLawandPsychiatry201.14See,eg,theNewSouthWalesLawReformCommission:NewSouthWalesLawReformCommission,PeoplewithCognitiveandMentalHealthImpairmentsintheCriminalJusticeSystem:Diversion(ReportNo135,2012).15SeegenerallyAustraliansWithMHDCDintheCJSProject(29June2012)MentalHealthDisordersandCognitiveDisabilitiesintheCriminalJusticeSystem<http://www.mhdcd.unsw.edu.au/australians-mhdcd-cjs-project.html>.

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criminaljusticesystemasallegedoffendersexperienceongoingcriminalisationandpunishmentacrosstheirlife,whichformanyindividualsgenerallybeginsinchildhood.Moreover,theirresearchhighlightsthesignificancetothisongoingcriminalisationandpunishmentofdisabilityandIndigeneity,compoundedbydynamicssuchasmarginalisation,institutionalfailure,victimisationandlackofappropriatesupports,aswellascolonialism,historicalinjusticesandintergenerationaltrauma.Moreover,theirresearchemphasisesthecontributionofthecriminaljusticesystem,includingincarcerationandcommunity-basedinterventions,totheongoingcriminalisationandpunishment.16

8. Yet,paradoxically,theongoingnatureofmanyoftheseindividuals’contactwiththecriminal

justicesystemisnottypicallyviewedbythecriminaljusticesystemandcriminallawasasystemicproblem(inwhichthecriminaljusticeandotherinstitutionsarecomplicit)requiringsolutionswhichoperateatasystemicandindividuallevelandwhichsupportratherthanpunishindividuals.Instead,theongoingnatureofcontactwiththecriminaljusticesystemisindividualisedandtypicallyviewedasaproblemofthefailureoftheindividualtorehabilitateandengageconstructivelywithcriminaljusticeandwelfareagenciesandinturnbecomesanindicatorthattheindividualisahigherriskandinneedofmoreseriousformsofpunishment.Moreover,whentheindividualhasadisability,theirongoingcontactwiththecriminaljusticesystemisattributedtointernal,pathologicalcharacteristicsassociatedwiththeirdisabilityanddivorcedfromsocial,historicalandpoliticalcircumstances.Mainstreamandconventionalformsofpunishmentthatindividualsbecomeincreasinglysubjectedtoastheybecomefurtherentrenchedinthecriminaljusticesystemfailtoaddressthesystemic,complexandhistoricalcircumstanceswhichhavecompoundedovertimetoshapethecriminaljusticepathwaysofIndigenousAustralianswithcognitiveandpsychiatricimpairment.

9. Diversion–ifunderstoodasamethodofshiftingindividualsfromthecycleofpunishment

andcriminalisationandaddressingsystemiccausesofcriminalisation(asopposedtoamethodofshiftinganindividualawayfromconventionalpunishmentinrelationtooneinstanceofaspecificcriminalcharge)providesthepossibilityofinterveninginthiscycle.Diversioncandothisifitisanalternativetopunishmentperseandanalternativetoentrenchmentinthecriminaljusticesystemasopposedtoanalternativeformofpunishment–ifitoperatesinalegalandinstitutionalframeworkwhichisnotpunitive,coerciveorsupervisory.Moreover,diversioncanaddresssomeofthesystemicissuesrelatedtodisadvantageifitprovidesaccesstodisabilityandsocialsupportservicesandprovidespathwaystoaccesstojusticeforpastexperiencesofvictimisation,institutionalfailureandhistoricalinjustice.

16EileenBaldry,RuthMcCauslandandLeanneDowseetal,APredictableandPreventablePath:AboriginalPeoplewithMentalandCognitiveDisabilitiesintheCriminalJusticeSystem(UniversityofNewSouthWales,October2015).

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WhyAreAboriginal-SpecificSolutionstoDiversionNecessary?

10. Additionally,diversionmustinvolveAboriginal-specificsolutions.Thisisnotonlytoensureculturalandgeographicappropriateness,butalsobecauseoftheintensifiedmarginalisationandcriminalisationofIndigenousAustralianswithcognitiveandpsychiatricimpairmentwhoareinthecriminaljusticesystemwhencomparedtotheirnon-Indigenouscounterparts.ThisisdemonstratedbyabriefdiscussionofthefindingsofastudyofallindividualsintheMHDCDdataset(referredtoabove)whohadeverbeendivertedpursuanttosection32oftheMentalHealth(ForensicProvisions)Act1990(NSW)(‘section32cohort’).Thissection32cohortconsistedofacohortof149individualswithdiagnosedcognitiveandpsychiatricimpairmentwhohavebeenincustodyinaNSWprisonandhavereceivedasection32orderatsomepointintheirlives.17BelowisasummaryofthekeyfindingswhichcomparethesituationforIndigenousandnon-Indigenouscohortmembers.

17See,generally,LindaSteele,LeanneDowseandJulianTrofimovs,‘WhoisDiverted?:MovingBeyondDiagnosisTowardsaSocialandPoliticalAnalysisofDiversion’(2016)38(2)SydneyLawReview(forthcoming);seealsoLindaSteele,LeanneDowseandJulianTrofimovs,‘Section32:AReportontheHumanServiceandCriminalPathwaysofPeopleDiagnosedWithMentalHealthDisorderandCognitiveDisabilityintheCriminalJusticeSystemWhoHaveReceivedOrdersUndertheMentalHealth(ForensicProvisions)Act1990(NSW)’(UniversityofNewSouthWales,2013)http://www.mhdcd.unsw.edu.au/sites/www.mhdcd.unsw.edu.au/files/u18/Steele%2C%20Dowse%20and%20Trofimovs%20_MHDCD%20Section%2032%20Report.pdf.

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Indigenous

Australianmembersofsection32cohort(42)

Not-IndigenousAustralianmembersofsection32cohort(107)

Diagnosis

Percentagewithcognitiveimpairmentdiagnosis(eithersinglediagnosisofCDorcomplexdiagnosisofCD-MHD)

95% 83%

Percentagewithcomplexdiagnosis(CD-MHD) 71% 50%

Averageagewhendatadrawn 31.74years 36.62years

Childhoodsocialdisadvantage

Percentageinoutofhomecare(OOHC)aschild 21% 11%

Percentagewholeftschoolwithoutqualifications(ieHSC,VCE,LeavingCertificate)

45% 40%

Disabilitysupport

Everreceiveddisabilityservices(ADHCsupport) 19% 36%

Contactwithcriminaljusticesystem

Averageageoffirstpolicecontact(FPC) 14.9yearsold 17.4yearsold

PercentagewhowereDJJclients(whetherinDJJcustodyornot)

57% 27%

PercentagewhowereinDJJcustody 48% 19%

Averagenumberofcontactswithpoliceasapersonofinterest(POI)

106 110

Averagenumberofconvictions 34 27

Averagenumberofadultcustodyepisodes(DCS) 14episodes

12episodes

AveragetotalnumberofcustodydaysacrossallDCScustodyepisodes

1259 944

Percentagewhohaveareportedself-harminDCScustody 76% 57%

Averagenumberofcontactswithpoliceasavictimofcrime 11 17

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Percentagewhohavehadcontactwithpoliceundercivilmentalhealthlegislation

50%

22%

Diagnosticbreakdownofgroupwhohavehadcontactwithpoliceundercivilmentalhealthlegislation

Note:singleCDindicatesnoMHDdiagnosis

ComplexCD-MHDdiagnosis:43%

SingleMHdiagnosis:5%

SingleCDdiagnosis:52%

ComplexCD-MHDdiagnosis:54%

SingleMHdiagnosis:8%

SingleCDdiagnosis:38%

Diversionundersection32oftheMentalHealth(ForensicProvisions)Act1990(NSW)

Divertedasachild 0 1

Averagenumberofdiversionorders 1.9 1.6

Table1:Diagnostics,DemographicsandCriminalJusticePathwaysofaCohortofIndigenousAustraliansandNot-IndigenousAustraliansDivertedPursuanttoSection32oftheMentalHealth(ForensicProvisions)Act1990(NSW)

11. Table1indicatesthattheIndigenousAustraliancohortmembersaresubjectedtomoreintensecriminalisation(onaverageearlierentry,moretimeincustodyandmoreconvictions)thantheirnon-Indigenouscounterparts.Thus,ingeneral,thesefindingsindicatetheextremeimportancethatdiversionfocusnotmerelyonshiftinganindividualawayfromconventionalpunishmentvis-à-visonespecificcriminaloffence,butbefocusedonprovidinganalternativetopunishmentperseandaimtointerveneintheentrenchmentinthecriminaljusticesystem.Furthermore,themoredeeplyentrenchednatureofIndigenousAustraliancohortmembersinthecriminaljusticesystemillustratesthatlengthycriminalhistoriesmustnotbecomeacontra-indicatorofsuitabilityfordiversion.Instead,thisfactaloneshouldindicatethegreatneedtointerruptthecycleofpunishmentandtoavoidanyfurthercriminaljusticeorders(includingforensicmentalhealthorders)andpunishmentofanysortwhichwillultimatelyexacerbatethiscycling.

12. Table1indicatesthatnoneoftheIndigenouscohortmembersweredivertedaschildren,

eventhoughonaveragetheywerealreadyinthecriminaljusticesystematanearlierageandpotentiallyincarceratedinjuvenilecustodywhencomparedtotheirnon-Indigenouscounterparts.Thedataillustratestheneedtoconsiderhowdiversionwilloperateinthejuvenilejurisdiction,includingitsinterfacewithoutofhomecareandeducation(givenhigherincidenceofOOHCandpooreducationaloutcomes).

13. Table1alsoillustratesthatIndigenousAustraliancohortmembersexperiencedloweraccess

todisabilitysupportserviceswhencomparedtotheirnon-Indigenouscounterparts.Thus,a

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diversionschememustensureequityofaccesstodisabilityservicesforIndigenousAustralianswithcognitiveandpsychiatricimpairment.Moreover,Table1indicatessocialdisadvantageexperiencedbyIndigenousAustraliancohortmembers,suchthatthroughdiversionIndigenousAustralianswithcognitiveandpsychiatricimpairmentmusthaveequitableaccesstosocialsupportservicesandaccesstojusticeandsupporttoaddressinstitutionalinjusticesrelatedtopastsocialserviceprovision.

14. TotheextentthatTable1illustrateshighvictimcontactwithpoliceaswellashighincidence

ofOOHCandpooreducationaloutcomes,diversionshouldprovideaccesstojusticeandsupporttoaddressinstitutionalinjusticesandinstitutionalorpersonalviolenceexperiencedbyIndigenousAustralianswithcognitiveandpsychiatricimpairment.Onasimilarnote,thisaccessshouldextendtoaddressingpastinjusticesandviolencewhichhaveoccurredinthecriminaljusticesystem.

15. Table1alsoillustratesthesignificanceofcivilmentalhealthlegislationtothepolicecontact

ofIndigenousAustralianswithdisability.Surprisingly,thisincludesahigherproportionofIndigenousthannon-Indigenousindividualswhodonotevenhaveadiagnosedmentalillnessandhencedonotfallwithinthejurisdictionofthislegislation.Thisindicatestheriskthattheuseofcivilmentalhealthservicesindiversion(particularlywheretheindividualdoesnotconsenttotreatmentordetention)mightprovideanadditionalmeansofcriminalisation.

WhyMustDiversionBeDoneProperly?

16. Theservice,institutionalandlegaldimensionsofadiversionschememustbecarefullyconsidered,becausethereareunforeseenramificationsofpoorlyimplicateddiversionorofdiversionthatoperatespursuanttocoercivecourtorders.Whilethelinkingofpeoplewithdisabilitysupportservicesispositiveifitiswhatanindividualwantsandchoosesandisfocusedoninterveningintheirentrenchmentinthecriminaljusticesystemandinaddressingsystemicfactors,thelegalframingofaformallegaldiversionschemecanundercutanyservicebenefitsofdiversion.Thisisbecauseformallegaldiversioncaninvolvecourtorderswhichrequiretheindividualtocomplywithservicesandfailuretodosocanresultintheirchargesbeingbroughtbackandhencepossibleconvictionandpunishment.Furthermore,theuseofguardianshipandcivilmentalhealthordersasanadditionalwaytocoerceindividualsinrelationtotreatment,lifestyleoraccommodationcanprovideadditionalopportunitiesforcontactwithpolicebecausetheretrievalordersorcoerciveordersassociatedwiththesecivillawframeworks.

17. Poorlyimplicateddiversionthatdoesnotinvolveserviceswhichareappropriatelyresourced

orstaffwhoareappropriatelytrainedandwhodonotholdprejudicesconcerningdisability,Indigeneityorcriminality,canresultinvolatilesituationswhichcanresultinconflictandadditionalcontactwithpolice.Relatedtothis,considerationmustbegiventohowservice

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governance,riskmanagement,workhealthandsafetyanddutyofcareframeworksprovideadditionalopportunitiesforindividualstohavecontactwiththecriminaljusticesystem.

18. Diversionwhichinvolvescoercionofindividualswhohavenotbeenconvicted(where

individualswithoutdisabilityarebeyondthescopeofpunishmentpursuanttocriminalorforensicmentalhealthlaw)orwhichinvolvescoerciveengagementwithtreatmentorservicesisdiscriminatoryandbreacheshumanrightsofnon-discrimination,legalcapacityandpersonalintegrity.18Diversionmustalsohavemaximuminvolvementofplace-based,communityownedIndigenousservicestoensureitsmaximumeffectiveness.19

HowShouldDiversionBeViewed?

19. Inconsideringthe‘roleandnature,accessibilityandefficacyofprogramsthatdivertpeoplewithcognitiveandpsychiatricimpairmentfromthecriminaljusticesystem’(aspertermofreference(i))theSenateCommitteeshouldconsiderthefollowingprinciples:

• Commonwealthinter-jurisdictionconsistencyintheinstitutional,serviceandlegal

formofdiversion.• Diversionshouldbegovernedbyoverridingprinciplesofself-determinationand

non-discriminationandequality,andbedirectedtowardsaddressingtheentrenchmentofIndigenousAustralianswithcognitiveandpsychiatricimpairmentinthecriminaljusticesystem.

• Diversionshouldnotinvolvecoercion,punishmentorsupervision.Diversionshouldnotonlyavoidcoercionbycriminallaworforensiclaworders,butalsoavoidtheuseofcoercionviacivilguardianshipormentalhealthlaws.

• Diversionshouldbedirectedtoavoidinganyformofpunishment,ratherthanmerelybeinganalternativetopurportedlymoresevereformsofpunishment.Diversionnotjustbeanalternativetoindefinitedetentionbutanalternativetopunishmentandalternativetoalifeentrenchedinthecriminaljusticesystem

• Diversionmustalsohavemaximuminvolvementofplacebased,communityownedIndigenousservices.

• Diversionshouldprovideculturallyandgeographicallyappropriatedisabilityandsocialsupportservicesandindividualsshouldonlybeexpectedtoengagewiththeseservicesiftheychoose.

18Onregulatoryandcoerciveandpunitiveuseofcivilorders,seeegClaireSpivakovsky,‘FromPunishmenttoProtection:ContainingandControllingtheLivesofPeopleWithDisabilitiesinHumanRights’(2014)16(5)Punishment&Society560;ClaireSpivakovsky,‘MakingDangerousnessIntelligibleinIntellectualDisability’(2014)23(3)GriffithLawReview389.19HarryBlagg,TamaraTulichandZoeBush,‘DiversionaryPathwaysforIndigenousYouthwithFASDinWesternAustralia:DecolonisingAlternatives’40(4)AlternativeLawJournal257.

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• Diversionshouldprovidewaystoconsiderimpactofinstitutionalandcriminaljusticefailuresontheindividual’scurrentsituationandopportunitiestoconsiderjusticeandotheravenuesforredressingthese

• DiversionneedstoaddresstheneedsofyoungIndigenousAustralianswithcognitiveandpsychiatricimpairment,andalsoensurethatlongerorentrenchedcriminalisationisnotacounter-indicatortosuitabilityfordiversion.

• Ifdiversiondoeshavealegalorderattachedincludingcoercingengagementwithservicesorisotherwisepunitive,itmustbeviewedasaformofcriminalpunishmentandbesubjectedtohumanrights,civillibertiesandsocialjusticescrutinyasareotherformsofpunishment.

• Ifdiversiondoeshavealegalorderattachedincludingcoercingengagementwithservicesorisotherwisepunitive,itispertinentthatsupportservicesareappropriatelyresourcedandstaffbeappropriatelytrainedtominimisevolatilesituationsandadditionalcontactwithpolice.Itisalsovitalthatthelegalprocessfordeterminingbreachesofdiversionaryordersgiveconsiderationtotheplaceofservices’legal,resourceandstaffdynamicsinthecircumstancesgivingrisetotheallegedbreach.Diversionshouldaddresssocial,institutionalandpoliticalfactors,aswellaslegalfactors(theroleoflawandjusticesystemthemselves),intheentrenchmentofIndigenousAustraliansinthecriminaljusticesystem.Diversionshouldnotonlyprovideaccesstodisabilityandsocialservicestoaddresscurrentcircumstances,butalsoprovideaccesstojusticeandsupporttoaddresspastinjustices,includingthosewhichhaveoccurredinthecriminaljusticesystem.

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7.TOWARDSNATIONALSTANDARDSFORLAWSANDREGULATIONSAFFECTINGINDIVIDUALSWHOHAVEBEENDECLAREDMENTALLY-IMPAIREDORUNFITTOPLEAD(PARTA)NationalAboriginalandTorresStraitIslanderLegalServicesKeyissues:

● LegislationandregulationsaffectingpeoplewhohavebeendeclaredmentallyimpairedunfittopleaareinconsistentacrosstheStateandTerritoryjurisdictions.

● Eventhebestpracticelegislativemodelsdonotcontainadequatesafeguardsagainsttheindefinitedetentionofpeoplewithcognitiveimpairment.

● TheCommonwealthhasaroleinleadinglegislativereformtosecuretherightsofpeoplewithcognitiveimpairmentinthejusticesystemthroughnationallegislativestandards.

● TheNationalAboriginalandTorresStraitIslanderLegalServicesproposesfivecoreprinciplesforminimumnationsstandardsforlegislationaffectingmentallyimpairedandunfittoplea.

1. Thissectionofthesubmissionbrieflyhighlightsanumberofissueswithlegislationrelatingtoaccusedwhoarefoundnotguiltybyreasonofunsoundnessofmind(insanityormentalimpairment)orunfittostandtrial.NATSILSrecommendsthatminimumstandardsbeintroducedinlegislationinallstatesandterritories.Currently,therearesignificantdifferencesinthelegislativeframeworksbetweenjurisdictionsandconsequentlyweareunabletoprovideathoroughanalysisofjurisdictionaldifferencesandspecificneededreforms.However,wehaveprovidedexamplesfromparticularjurisdictionsinordertodemonstratetheneedforrecommendedminimumstandards.Foranalysisofjurisdictionalspecificissues,NATSILSnotesthatthereareanumberofsignificantreportsincludingthoseproducedbytheVictorianLawReformCommission20,theNewSouthWalesLawReformCommission21andtheGovernmentofWesternAustralia’sdiscussionpaperontheCriminalLaw(MentallyImpairedAccused)Act1996.

2. Itshouldbestressedthatinmakingtheserecommendations,wenotetheimportantrole

thattheCOAG’sStandingCouncilonHealthcouldplay.AsarguedintheAustralianLawReformCommission(ALRC)reportondisabilities,theCOAG’sStandingCouncilonHealthhas

20VictorianLawReformCommission,ConsultationpaperontheReviewoftheCrimes(MentalImpairmentandUnfitnesstobeTried)Act199721NewSouthWalesLawReformCommission,PeoplewithCognitiveandMentalHealthImpairmentsintheCriminalJusticeSystem:Diversion(May2012);NewSouthWalesLawReformCommission,PeoplewithCognitiveandMentalHealthImpairmentsintheCriminalJusticeSystem:CriminalResponsibilityandConsequences(June2013).

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longoverseendevelopmentsinmentalhealthlaws,andmaybeabletoadvancethereviewandamendmentoflegislationinthisarea.22

MinimumStandards

3. BasedonNATSILS’analysisandthefirsthandexperiencesofourmembers,thefollowinghavebeenidentifiedasminimumstandardsthatalllegislationformentallyimpairedaccusedshouldadhereto.Ataminimumlegislationshouldprovidefor:

• Judicialdiscretion;• Specialhearingstotestevidence;• Proceduralfairness;• Finitetermsforcustodyorders(andreleaseorders);and• Rightsofreview.

Theseareexploredbelow.

Judicialdiscretion

4. Recommendation:Thereshouldbejudicialdiscretiontoimposeanappropriateorderdependingonthecircumstancesofthecaseand,assuch,thereshouldbenoprovisionformandatorycustodyordersformentallyimpairedaccused.

5. Acriticalissuewithlegislationinthisareaisthelackofjudicialdiscretiontomake

appropriateorders.Forexample,inWesternAustralia,undertheCriminalLaw(MentallyImpairedAccused)Act1996(WA)(‘theCLMIAAct(WA)’)acourtdealingwithapersonwhohasbeenfoundtobeunfittostandtrialhasoneoftwooptions:indefinitecustodyorunconditionalrelease.23Incontrast,amentallyimpairedaccusedwhoisacquittedonaccountofunsoundnessofmindmaybeplacedonacommunity-basedorder,conditionalreleaseorderoranintensivesupervisionorder.24However,thecourtmustimposeanindefinitecustodyorderforamentallyimpairedaccused,whohasbeenacquittedonaccountofunsoundnessofmind,iftheoffencecommittedislistedinSchedule1oftheCLMIAAct(WA).WhileSchedule1includesoffencessuchasmurder,manslaughterandsexualpenetration,italsoincludesoffencessuchasassaultoccasioningbodilyharmandcriminaldamage.Thislackofjudicialdiscretionisamajorobstacletothecourtsmakingappropriateorders,asappropriateresolutionswillseldombereachedbyeitheroftheextremeoptionsofunconditionalreleaseorindefinitedetention.ThiscanbecomparedwithlegislationinVictoriawheretherearenomandatoryordersformentallyimpairedaccusedundercriminallegislation.Instead,treatment,custodialandjudicialmonitoring

22AustralianLawReformCommission,DiscussionPaper:Equality,CapacityandDisabilityinCommonwealthLaws(May2013,Canberra),233.23CriminalLaw(MentallyImpairedAccused)Act1996(WA)(“CLMIAAct(WA)”),ss16(5)and19(4).24CLMIAAct(WA),ss21(b)and22(b).TheseordersareonlyapplicableiftheoffencecommittedisnotlistedinSchedule1oftheCLMIAAct(WA).

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ordersareatthecourt’sdiscretion.Likewise,inSouthAustralia,thecourtshavewidediscretionarypowerstomakeappropriateorders.25

Specialhearingstotestevidence

6. Recommendation:Thereshouldbespecialhearingstotesttheevidenceagainstamentallyimpairedaccusedwhoisunfittostandtrial.Thisshouldentailaprocedurefordeterminingwhether,ontheevidenceavailable,theaccusedcommittedtheobjectiveelementsoftheoffencesothatifitcannotbeproventhattheaccusedcommittedtheobjectiveelementsoftheoffence,theaccusedisdischarged.

7. AseriousissueinWesternAustraliaisthatorderscanbemadeagainstaccusedunderthe

CLMIAActeventhoughevidenceagainsttheaccusedmaybesubstantivelylacking.InWesternAustraliathecourtmustnotimposeacustodyorderunlesssatisfiedthatitisappropriatetodosohavingregardtothestrengthoftheevidenceagainsttheaccused;thenatureoftheallegedoffenceandtheallegedcircumstancesofitscommission;theaccused’scharacter,antecedents,age,healthandmentalcondition;andthepublicinterest.26However,theassessmentofthestrengthofevidenceagainsttheaccusedisonlyundertakenbyreferencetothewrittenbriefofevidence–nowitnessesarecalledtogiveevidence,norcantheybecross-examined.

8. ThiscanbecomparedwiththeNorthernTerritory27andVictoria28wheretherearespecial

hearingsbeforeajurytodeterminewhetherthepersonisnotguiltyoftheoffence,notguiltybecauseofmentalimpairment,orcommittedtheoffencecharged.29Afindingof"notguilty"and"notguiltybecauseofmentalimpairment"aretobetakenforallpurposesasiftheywerefindingsmadeatacriminaltrial.30Findingsthattheaccused"committedthe

25Forexample,inSouthAustralia,underDivision4,Section269O(1)oftheCriminalLawConsolidationAct1935(SA)“CLCAct(SA)”),thecourtbywhichthepersonisdeclaredtobeliabletosupervisionhasthreediscretionarypowers:

1. 269O(1)(a):toreleasethedefendantunconditionally2. 269O(1)(b)(i):tomakeasupervisionordercommittingthedefendanttodetention3. 269O(1)(b)(ii):tomakeasupervisionorderreleasingthedefendantonlicense,subjecttocertain

conditions.26CLIMAAct(WA),ss16(6)and19(5).27IntheNorthernTerritory,theregimefordealingwithquestionsoffitnesstobetriedisfoundunderPartIIAoftheCriminalCodeAct(NT)(“CriminalCode(NT)”).InboththeNorthernTerritoryandVictoria,themattermustgobeforeaspecialhearingwithin3months.(CMIAct(Vic)s12(5);CriminalCode(NT)s43R(3)).28SeeCrimes(MentalImpairmentandUnfitnesstobeTried)Act1997(Vic)(“CMIAct(Vic)”),ss12,15and18(1),(2).29CMIAct(Vic),s15;CriminalCode(NT),ss43G(2)(c),(d),(e).InVictoriaandtheNorthernTerritory,whereajuryataspecialhearingfindsthattheaccusedpersonisnotguiltyoftheoffenceduetomentalimpairment,orthatthepersoncommittedtheoffence,thecourtmustmakeacustodialsupervisionorder,anon-custodialsupervisionorderorreleasetheaccusedpersonunconditionally:CriminalCode(NT),ss43X(2)(a),43X(3)and43ZA;CMIAct(Vic),ss18(4),23(a)and26(2).30CMIAct(Vic)ss18(1),(2);CriminalCode(NT),ss43X(1),(2)).

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offencecharged"mustbeproventothecriminalstandardofbeyondreasonabledoubt.31Thisfindingissubjecttoappealinthesamemannerasiftheaccusedhadbeenconvictedoftheoffenceinacriminaltrial.32InNSW,ifaMentalHealthReviewTribunalmakesafindingthatapersonwillnotbecomefittobetriedwithin12months,thecourtmustholdaspecialhearingtotesttheevidenceagainsttheaccusedassoonaspracticableunlessDPPadvisesnofurtherproceedingswillbetaken.33Inthesehearingstheprosecutionmustprovebeyondreasonabledoubtthattheaccusedcommittedtheoffences(s)charged.34However,evidencemaybelimitedinvariouswaysincludingaccusedmaybeunabletogiveevidenceoraccusedmaybeunabletoadequatelyinstructtheirlawyer.

9. InSouthAustraliathelawprovidesadivisionbetweenobjectiveelementsandsubjective

elementsofanoffence.Undertheobjectiveelementsoftheoffencethecourthearsevidenceandrepresentationsbytheprosecutionandthedefenceonwhetherthecourtshouldfindthattheobjectiveelementsoftheoffenceareestablished.35Ifthecourtissatisfiedbeyondreasonabledoubtthattheobjectiveelementsoftheoffenceareestablished,thecourtmustrecordafindingtothateffect,butotherwisethecourtmustfindthedefendantnotguiltyoftheoffenceanddischargetheaccused.36

Proceduralfairness

10. Recommendation:Legislationshouldensureminimumproceduralfairnessrequirementssuchasarighttoappear,rightofreview,righttowrittenreasonsfordecisionandrighttoinformation.

11. InWesternAustralia,thereisnostatutoryrightforamentallyimpairedaccusedorhisorher

advocate/representativetoappearbeforetheMentallyImpairedAccusedReviewBoardand/ortoprovidewrittensubmissionstotheMentallyImpairedAccusedReviewBoard.Inadditiontomakingrecommendationsforthereleaseofmentallyimpairedaccused,37theMentallyImpairedAccusedReviewBoardalsomakesrecommendationsastowhetheritshouldbegrantedthepowertomakealeaveofabsenceorder.38Furthermore,apartfromtherequirementtoprovideacopyofawrittenreportoftheMentallyImpairedAccusedReviewBoard(suchreporteitherrecommendingornotrecommendingthereleaseofthe

31CMIAct(Vic),s17(2);CriminalCode(NT),s43V(2)).Suchafindingisnotthesameasaverdictofguilty,butaqualifiedfindingofguilt,anddoesnotconstituteaconvictioninlaw(CMIAct(Vic)s18(3)(a);CriminalCode(NT)s43X(3)(a)).32CMIAct(Vic),ss18(3)(b),(c);CriminalCode(NT),s43X(3)(c).33S19(1).34S19(2).Verdictsavailablearenotguilty,notguiltybyreasonofmentalillness,oronthelimitedevidenceavailable,theaccusedcommittedtheoffenceoranalternativeoffence(s22(1))35CLCAct(SA),s269NA(1).36CLCAct(SA),s269NA(2).37CLMIAAct(WA),ss33(2),(3).38CLMIAAct(WA),s27(1).

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mentallyimpairedaccused)thereisnofurtherstatutoryrighttotheprovisionofinformation.

12. ThiscanbecomparedwithlegislationinNSWlegislationwhichprovidesimportant

safeguardstoensureproceduralfairness,includingprovisionsthatapersonmustbelegallyrepresentedatanymatterbeforetheMentalHealthReviewTribunal(MHRT)39andthatanyonedeemedunfittostandtrialmustbelegallyrepresentedataspecialhearing.LegislativeprovisionthatanaccusedmusthavelegalrepresentationataspecialhearingalsoexistsintheAustralianCapitalTerritory(ACT).40

13. Furthermore,inNSWallmattersintheMHRTaretoberecorded41andanypersonwitha

matterbeforetheMHRT,ortheirrepresentative,isentitledtoinspectandhaveaccesstoanymedicalrecordsrelatingtotheperson.42InNSWtherearealsorightstoappealtotheSupremeCourtagainstadeterminationoftheTribunalorthefailureorrefusaloftheTribunaltomakeadetermination.43

Finitetermsforcustodyorders(andreleaseorders)

14. Recommendation:Thedurationoftheordershouldbenolongerthanthedurationofthesentencethatwouldhavebeenimposediftheaccusedhadbeenconvictedoftheoffence.44

15. Amajorissueisthatinsomestatesandterritories,therearenofinitetermsforordersmade

forpeoplewithmentalimpairments.Forexample,custodyordersinWesternAustraliaareindefiniteandamentallyimpairedaccusedcanonlybereleasedfromacustodyorderbyanorderoftheGovernor.45Theeffectofacustodyorderisthatthementallyimpairedaccusedmustbedetainedinanauthorisedhospital,declaredplace,prisonordetentioncentre.46

39Unlessovertheageof16anddoesnotwanttoberepresented(s154MHA).40S316(6).41S159MHA.42S156MHA.43S163MHA.44ThisrecommendationhasalsobeenmadebytheAustralianLawReformCommission:Proposal7–3:“Stateandterritorylawsgoverningtheconsequencesofadeterminationthatapersonisunfittostandtrialshouldprovideforlimitsontheperiodofdetention(forexample,byreferencetothemaximumperiodofimprisonmentthatcouldhavebeenimposedifthepersonhadbeenconvicted)andforregularperiodicreviewofdetentionorders.”AustralianLawReformCommission,‘AccesstoJustice’,Equality,CapacityandDisabilityinCommonwealthLaws(AustralianLawReformCommission,No124)156,167,<https://www.alrc.gov.au/sites/default/files/pdfs/publications/dp817._chapter_7_access_to_justice.pdf>.45IftheGovernormakesanorderforthereleaseofamentallyimpairedaccusedfromacustodyorder,theGovernormayreleasethepersonunconditionallyormakeareleaseorderwithconditions.SeeCLMIAAct(WA),s35.46CLMIAAct(WA),s24.Untilrecentlytherewasno‘declaredplace’inWesternAustraliatoprovideanalternativetoprisonforpeoplewithintellectualdisabilityorcognitiveimpairmentwhoarefoundunfittopleadtocriminalchargesandhavebeendeemedtobe'mentallyimpairedaccused'becauseoftheirdisability.InAugust2015thefirstdeclaredplacetheBennettBrookDisabilityJusticeCentreopened.

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16. Asaconsequencetherehavebeenanumberofhighprofilecasesofmentallyimpaired

accusedbeingdetainedinprisonformanyyearsandfarlongerthantheywouldhavespentincustodyhadtheybeenconvictedoftheoffence.AsnotedbytheWesternAustralianChiefJustice,WayneMartin,theeffectisthat:

“lawyersdonotinvokethelegislationevenincasesinwhichitwouldbeappropriatebecauseoftheconcernthattheirclient,mightendupindetention,incustody,inprison,foralotlongerperiodthantheywouldiftheysimplypleadguiltytothechargebroughtbeforethecourt."47

17. InVictoria,therearefinitetermsforcourtsecuretreatmentorderswhereanaccusedhas

beenfoundguiltythroughordinarytrialprocedures.48However,foranaccusedfoundunfittostandtrialorfoundnot-guiltybyreasonmentalimpairment,therearenofinitetermsforthesupervisionorderstowhichtheymaybesubject.Thisincludescustodialsupervisionorders.49Theparadoxicalresultisthattherearerightfullylimitsonthetimespentincustodyforthoseconvictedofcrimes,includingthosewhoarementallyimpaired,whilstthecurrentlegislationallowsforindefinitedetention,ofthosementallyimpairedaccusedwhoarenotconvictedinlawofanycrime.

18. IntheNorthernTerritory,custodialsupervisionordershavenoexpirydate.50Theonlyway

foranordertoceaseisiftheCourtacceptsexpertevidencethatthepersonsubjecttotheorderisnolongeraseriousriskofharmtothecommunityorthemselves.51Theresultisthatoncepeopleareputoncustodialsupervisionorders,thereisarealriskofbeingheldindefinitely.52OurmemberorganisationCentralAustralianAboriginalLegalAidService(CAALAS)andNorthAustralianAboriginalJusticeAgency(NAAJA)bothhaveclientswhohavebeendetainedonsupervisionordersforyearsbeyondthelikelylengthofsentencetheywouldhavereceivediftheywerefitornotmentallyimpairedatthetimeofoffending.

19. ThiscanbecomparedwithlegislationinSouthAustraliawhichexpresslyprovidesthatcourt

orderscannotexceedthatwhichwouldhavebeenimposediftheaccusedhadbeenfoundguiltyandsentencedfortheoffence.Inparticular,thelegislationprovidesthatinorderto

47BronwynHerbert,‘Urgentreformneededinhowjusticesystemtreatspeoplewithmentalimpairment,saysChiefJustice’ABCNews(10July2015).48Detentionpursuanttoacourtsecuretreatmentordercanonlybeimposedwhere,butforthepersonhavingamentalillness,acourtwouldhavesentencedthepersontoatermofimprisonment:SentencingAct1991(Vic),s94B(1)(a).Acourtsecuretreatmentorderisforafixedterm,anditsdurationmustbenolongerthantheperiodofimprisonmentthatwouldhavebeenimposedhadtheordernotbeenmade:SentencingAct1991(Vic),s94C(3).49SeeCIMAct(Vic),s27.Thecourthasthepowertovaryasupervisionorder,includingthepowertodirectthatthematterbebroughtbackbeforethecourt(CIMAct(Vic),ss32(1),32(5),33(1)and33(5))morethanonce(CIMAct(Vic),ss32(6)and33(3).Sincethereisnolimittothenumberoftimesamattermaybebroughtbackbeforethecourt,thereisnolimittotheeffectivelengthofasupervisionorder.50CriminalCode(NT),s43ZC.51CriminalCode(NT),ss43ZN(1)-(2),43ZJand43ZK.52SeeMindySotiri,PatrickMcGeeandEileenBaldry,NoEndinSight:TheImprisonment,andindefinitedetentionofIndigenousAustralianswithaCognitiveImpairment(September2012),66.

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makeasupervisionorder,53thecourthastoseta“limitingterm”whichis“equivalenttotheperiodofimprisonmentorsupervision(ortheaggregateperiodofimprisonmentorsupervision)thatwould,inthecourt’sopinion,havebeenappropriateifthedefendanthadbeenconvictedoftheoffenceofwhichtheobjectiveelementshavebeenestablished.”54Afterthelimitingterm,thesupervisionprocesslapses55andthepersonisreleasedintothecommunityunlessthereisasuperveningguardianshipormentalhealthorder.ThelawintheACTalsoprovidesthattheSupremeCourtmustnotorderthatanaccusedbedetainedforaperiodgreaterthanthenominatedterm.56

Rightsofreview

20. Recommendation:DeterminationsaboutreleaseofmentallyimpairedaccusedfromcustodyorcommunityreleaseordersshouldbemadebytherelevantboardwithanannualrightofreviewbeforetheSupremeCourt.

21. Anotherissueisthelackofreviewavailableforcustodyorsupervisionorders.InWestern

AustraliawheredecisionsforreleasefromcustodyordersaremadebytheMentallyImpairedAccusedReviewBoardorinthealternativetheGovernor-General,thereisnorightofrevieworappealaboutthemeritofdecisions.57InVictoriatherearesomerightsofreviewunderthecurrentlegislationwhichallowsanewapplicationforthevariationofanorderwithinthreeyearsoralesserperiodatthecourt’sdiscretion.However,threeyearsistoofartoolongforaperiodicreviewprocess.

22. ThiscanbecomparedwiththeNorthernTerritorywherethereisarightofappealwiththe

reviewprocessbeingundertakenbytheSupremeCourtandwhereaccusedarelegallyrepresented.Thefirstmajorreviewisdeterminedaccordingtothenominalsentence,butthereisscopeforannualreview.InNSWtherearealsorightstoappealtotheSupremeCourtagainstadeterminationoftheTribunalorthefailureorrefusaloftheTribunaltomakeadetermination.58InSouthAustraliapersonssubjecttodetentionhaveannualreviewsbypsychiatristsandthereareprovidedtothejudgewhosetthelimitingterm.

53Pursuanttos269O(1)(b)(ii)or269O(b)(iii)oftheCLCAct(SA),asdiscussedinfootnote8.54CLCAct(SA),s269O(2).55CLCAct(SA),s260O(3).56CrimesAct1900(ACT)s301and302.57ForsupportofthispositionseecommentsbytheChiefJusticeofWesternAustralia,WayneMartin.ABCNews,'Urgentneed'forlawchangeasmentally-impairedaccuseddetainedindefinitely,WAChiefJusticeWayneMartinsays’10July2015.58MHA,s163.

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8.IMPLEMENTINGANATIONALSTANDARDFORLEGISLATIONProfessorPatrickKeyzer,ChairofLawandPublicPolicyandHeadofSchool,LaTrobeLawSchoolandDarrenO’Donovan,SeniorLecturerinLawatLaTrobeLawSchoolKeyissues:

● ProcessesarerequiredtoestablishlegislationwithinallStateandTerritoriesthatishumanrightscompliant.

● LegalresearchershaveproposedproformalegislationwhichdemonstratesthatanationalapproachtolegislativereformundertheleadershipoftheCommonwealthisanachievableobjective.

1. TheSenateInquiryprovidesanexcellentopportunityforthestoriesofMarlonNoble,RosieAnnFultonandmanyotherindigenous(andnon-indigenous)Australianstobeheard.Thesepeoplehavelanguishedinprisonsforyearsbecausethereareaninsufficientnumberofsecurecarefacilitiesavailableforpeoplewithcognitiveimpairmentinthecommunity.TheFederalParliamentnowhasawonderfulopportunitytoaddressthesignificanthumanrightsissuesraisedbytheAustralianHumanRightsCommissionintheirJuly2014reportonthistopic.

2. Someofthewaysinwhichthechallengesinthisareacanbeaddressedmayalreadybe

known.InNovember2014,theLaTrobeUniversity“TransformingHumanSocieties”Groupsupportedthe“LineintheSand”ConferenceinordertogeneratepossiblesolutionstotheoverrepresentationofindigenousAustralianswithcognitiveimpairmentinprison.Theconferencebroughttogethersixtyindigenousandnon-indigenousdisability,legalandhumanrightsadvocatesfromaroundthecountry,whowererecruitedonthebasisthattheyhavedirectexperienceworkingwithindigenouspeoplewithcognitiveimpairmentinthecriminaljusticesystem.

3. Togeneratedatafromthisuniquegathering,afocusgrouptechniquecallednominalgroup

technique(NGT)wasused.InanNGTsession,participantsareaskedtoprovideresponsestoaparticularissueorquestion,pooltheirresponses,andthenasecretballotisconductedtolistandrankresponsesinorderofimportance.Groupconsensusisreachedwithoutbeinghamperedbyunevengroupdynamicsorpowerrelationships.NGTenablesthegenerationofdatathatisfreefromconfirmationbiasandalsoenablesthedevelopmentoffollow-upquestionnairesthathavecontentandconstructvalidity.

4. Conferenceparticipantswerefirstaskedtoidentifythesixmostsignificantchallengesfacing

indigenousAustralianswithcognitiveimpairmentwhocomeintocontactwiththecriminal

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justicesystem.Thesechallenges,intheorderinwhichtheywererankedbythestakeholders,areasfollows:

i.Thereisalackofdistinctive,culturally-responsivesentencingandserviceoutcomesotherthanprisonforpeoplewithcognitiveimpairment:thereisaneedforsustainable,stable,secure,individualised(non-congregate)culturally-responsiveaccommodation,communitysupportsandtransitionaloptionsthatarespecificallyfunded,andstaffedbyindependent,culturally-responsivecaseworkersforpeoplewithcognitiveimpairmentthatrecognisetheeffectofsystemsandagenciesandtheirinteractions,makesthemresponsive,andthatadoptsystemiccaseandriskmanagementapproachesusingnon-punitive,therapeutic,leastrestrictivepracticeframeworksthatleveragesupportfromfamiliesandotherrelevantsocialservices.

ii.Thereisaneedforearlyassessment,diagnosis,supportandintervention(includinginthejuvenilejusticesystem)thatpreventscriminalizationandthatiscapableofidentifyingandaddressingrootcausesofoffending/anti-socialbehaviour.iii.Thereisaneedfortargeted,uniform,human-rightsfocusedlawreformthatacknowledgesindividualneeds,accommodatesbothsupportforpeoplewithcognitiveimpairmentwithprotectionofthecommunitythataddressestheneedsfortestsofcapacitytobenuanced,thatensurestermsarelimitedandregularlyreviewed,thatincorporatesacomplaintsmechanism,andensuresaccesstojusticeandproceduralfairnessareprovided.iv.Thereisaneedforintegrated,long-termpoliticalwillandpublicsectorleadershiptorespondtothecrisisofoverrepresentationofindigenouspeoplewithcognitiveimpairmentinthecriminaljusticesystembybuildinganappropriateframeworkofresponsivepolicies,administeredbyagenciesthatareaccountable.v.Thereisaneedforidentificationandrecognitionofpeoplewithcognitiveimpairmentbythejusticesystem(e.g.lawyers,police,corrections,guardians)thatacknowledgesindividualdifferences(e.g.gender,language)anddiversityofsituations,conditionsandneeds.vi.Thereisaneedtoraisepublicawarenessandknowledgeinthecommunity,withinandacrossthecriminaljusticesystemandservicesystems(includingamongcorrections,amonglawyers),tobetterunderstandwhyandhowindigenouspeoplewithcognitiveimpairmentcomeintocontactwiththecriminaljusticesystem.

5. ResearchersintheLaTrobeLawSchoolhavealsodevelopedDraftMinimumLegislative

StandardsfortheSenateInquirytoconsider,andarewelladvancedinadministeringanationalsurveywhichwillproduceadditionalusefuldatafortheInquiry.Thelegislationcouldbesupportedbyusingtheexternalaffairspower(s51(xxxix)oftheConstitution).

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Proposeddraftlegislation:MentalImpairmentandCognitiveDisability(TreatmentandSupport)BillObligationtoprovideappropriateservices.AnidentifiedMinisterineveryStateorTerritory(‘theMinister’)shallberesponsibleforensuringprovisionofreasonableaccesstoasecurecarefacilityorothersupportedaccommodationandcareandtreatmentforapersonaccusedofanoffencewhoisfoundunfittoplead(‘therelevantperson’)byanycourtofthatStateorTerritorybyreasonofcognitivedisabilityormentalimpairment.Fortheavoidanceofdoubt,thisprovisionconfersjurisdictiononeverycourtofaStateorTerritory,includingallinferiorandsuperiorcourts,todetermineforthesepurposesthatapersonisunfittopleadbyreasonofcognitivedisabilityormentalimpairment.AssessmentofNeeds.EachStateandTerritorywillprovideadequateresourcesfortheprovisionofexpertreports,wherethisisrequired,inordertoassessthecognitivedisabilityand/ormentalimpairmentoftherelevantpersonandtheirneeds(‘theassessment’).AnapplicationforanassessmentcanbemadebytheCourtorbythelegalrepresentativeoftheaccusedperson.Afreshassessmentmaybeundertakenwherethepreviousassessmentwasmademorethan12monthspreviouslyannually.ObligationtodevelopandimplementServicePlan.TheMinisterhasanobligationtodevelopandimplementaserviceplan(‘theserviceplan’)whichmustprovidedetailedparticularsofwhatmeasureswillbetakenandthetimeframeforaction,andanystepstheyhavealreadytaken,toensurethatthepersonhasreasonableaccesstoasecurecarefacilityorothersupportedaccommodationandcareandtreatment.Takingassessmentsintoaccount,theserviceplanmustdetailhowtherelevantpersonwillhavereasonableaccesstolessandleastrestrictiveenvironmentsoverareasonableperiodoftime.AcourtofficerofthatcourtshallcausetherelevantMinisterforHealthoftheStateorTerritoryinwhichanaccusedpersonhasbeenchargedtobenotifiedofmakingoftheorderanditsreturndate,sothattheserviceplancanbepreparedandfurnishedtothecourt.Programmesandservicesforresidentsinsecurefacilitiesorthosesubjecttocommunitysupervisionaretobedesignedandadministeredsoastobesensitiveandresponsivetotheindividual’scircumstancesandneeds.Theyshallinparticulartakeintoaccounttheirage,gender,spiritualbeliefs,culturalorlinguisticbackgroundandfamilyrelationships.

TheserviceplandevelopedbytheMinistershallalsoaddressthegoalsof:a) promotingtheindividual’sdevelopment;andb) providingfortheindividual’smanagement,care,supportandprotection;andc) supportingtheindividual’sreintegrationintothecommunity.

Circumstanceswhencustodialordercanbemade.AnAustraliancourtmustnotmakeacustodialsupervisionordercommittinganaccusedpersonfoundunfittopleadtocustodyinaprisonor

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remandfacilityunlessitissatisfiedthatthereisnoreasonableorpracticable,lessrestrictivealternative,inthecircumstances.TherelevantCourtshallensure:

a) thatitsdecisionshouldtakeintoaccountnotonlytheadviceofaMinisterand/orrelevanthealthauthorities,butalsoindependentevaluationsbypersonsqualifiedinriskassessmentofthefacilitiesorservicestheindividualrequires.

b) thatitconsidersanylessrestrictiveoptionsavailablebeforemakingasupervisionorderandnotdeclaresomeoneliableforacustodialorderunlesssatisfiedontheevidencethatthepersonwouldbelikelytoseriouslyendangerthecommunityifnotdeclaredliabletosupervision.

Returndatewithinthreemonths,andannually.AnAustraliancourtthatmakesacustodialsupervisionordercommittinganaccusedpersonfoundunfittopleadtocustodyinaprisonorremandcentremustsetareturndateforareviewoftheorderwithinthreemonthstoascertainprogressindevelopingandimplementingaserviceplan.Thecourtmustalsosetreturndatesforannualreviewsforthesamepurpose.

Inrecognitionoftheuniqueandabidingnatureofmentalimpairment,whichisdistinctfrommentalillness,thereshallbearebuttablestatutorypresumptionthatatreview,apersonshalltransitiontoalessrestrictiveorder.Thispresumptionisappliedtoensurethatthefocusofthereviewprocessshallnotbemerelyuponthemanagementofrisk,butupontheobligationtoensurethattreatmentsandsupportsremainappropriateandaretheleastrestrictivepossibleinallthecircumstances.

Allreportspreparedforthereviewhearingshallbeprovidedtoallpartiesatleast21dayspriortoanyreviewhearing.Reviewonapplication.Theguardianorlegalrepresentativeofarelevantpersoncommittedtoprisonorremandbyacourtmay,unlessasimilarapplicationhasbeenmadewithintheprevious3months,makeanapplicationtothatcourt,ormayseekleavetohaveaspecialhearing,seekingreviewoftheircontinueddetentiononthebasisthattheMinisterforHealthoftheStateorTerritoryinwhichtheaccusedpersonhasbeenchargedhasfailedtomeettheirobligationtoensurethatanaccusedpersonhasreasonableaccesstoasecurecarefacilityorothersupportedaccommodationandcareandtreatment.TheMinistermaybeorderedtopaythereasonablecostsofsuchapplications.Applicationsforleave.Bothcommunityandresidentialpatientsshallhavetherighttoapplyforaleaveofabsencefromplaceofresidenceorotherrestrictiveconditionsoftheirorders.Aleaveapplicationmaybemadewhereitpromotesgreaterparticipationinthecommunityandlifeskills.Decisionsonleaveapplicationsaresubjecttotheguidingprinciplethattheleastrestrictiveapproachtotheindividual’slibertyshallbeadopted.Applicationsforleaveshallthereforebeapproved,absenttheprospectofseriousendangermenttothecommunity,wheretheleaveperiodenablestheindividualinquestion:

a) toaccessmedicalservicesnototherwiseavailable;b) toattendcourt;

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c) toattendsignificantfamilyeventsandotherwisefurthersignificantfamilyandothersocialandculturalrelationships;

d) topreparetheindividualinquestionforreintegrationintothecommunityortotransitiontoalowerleveloforder.

Inassessingapplicationsforleave,therelevantdecision-makershallrecogniseandrespectthedistinctculture,historyandwayoflifeofindigenouspeoples,andshallensureleavedecisionsproperlyrespecttheneedtopracticeculturaltraditions,relationshipsandcustoms.

Non-compliancewithcommunitysupervisionorders.Incircumstanceswhereanindividualfailstocomplywiththetermsoftheircommunitysupervisionorder,acourtshallalsohavetherighttodelayproceedingsinrelationtonon-compliance,wherethisisreasonableinordertoaffordtheindividualinquestionanopportunitytoresumecompliance.

RecognisingandClosingtheGapsintheCriminalJusticeSystem

6. ThisproposedlegislationaimstocombatthebureaucraticgapsthroughwhichindigenousAustralianssuchasMarlonNobleandRosieAnnFultonhavepassed.Yetbeyondthedetailsoflegalwording,anystatutoryinterventionalsohastotriggerabroaderconversationabouthowsocialclassinteractswiththecriminaljusticesystem.AsBaldryetal59argue,prevailingapproachesseeindigenousyoungpeopleoftenbeingcharacterisedasbeing‘arisk’ratherthanbeing‘atrisk’.

7. Legislativereforminthisareamustensurethatengagementwiththeindividual’sspecific

circumstancesandcapabilitiesreplacesthebureaucraticdriftanddefaultscausedbyinstitutionalisedfailings,timeandresourcepressures.Thechangesproposedabovearemotivatedbyadesiretoavoidthefalseisolationofcourtroomproceedingsfromtheindividuals’othercontactswithgovernmentservices–fromunstable,inappropriateaccommodationplacements,ahistoryofpooreducationalexperienceorhealthsupports.

8. Theissueofintellectualdisabilityandthecriminaljusticesystemcannotbedetachedfrom

broaderchallengesaroundtherecognitionofself-determinationortheneedfortheNationalDisabilityInsuranceSchemetoallowindigenouspeoplestodesignflexible,culturallyappropriate,community-basedservices.CommittingAustraliangovernmentstodesigningpathwaysbackhomeforthoseindigenouspeoplewhosecomplexsupportneedshavenothistoricallybeenmet,canthusbeanimportantsteptopractical,notmerely,symbolicrecognition.

59EileenBaldry,RuthMcCausland,LeanneDowse&ElizabethMcEntyre,APredictableandPreventablePath:Aboriginalpeoplewithmentalandcognitivedisabilitiesinthecriminaljusticesystem(UniversityofNewSouthWales,2015)<http://www.mhdcd.unsw.edu.au>

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9.SUPPORTINGABORIGINALANDTORRESSTRAITISLANDERPEOPLEWITHMENTALHEALTHCONDITIONSINCOURT

AssociateProfessorThaliaAnthony,FacultyofLawUniversityofTechnologySydney;andProfessorElenaMarchetti,SchoolofLawUniversityofWollongongKeyissues:

● Communityinputinsentencingprocessesfacilitatesagreaterunderstandingoftheculturalsocialfactorsthataffectanindividual’scase.

● Accesstoadequatesupportservicesduringthecourtprocessesarenotalwaysmadeavailableatalllevelofcourts,particularlyforAboriginalandTorresStraitIslanderpeoplewithmentalhealthconditions.Thiscontributestounnecessaryincarceration.

● AssignatorytotheConventionoftheRightsofPersonswithDisabilities,ConventionontheEliminationofRacialDiscriminationandotherhumanrightsinstruments,theCommonwealthhasaresponsibilitytosafeguardtherightsofanaccusedtosupportservicesnecessaryfortheirdefence.

1. OftenIndigenouspeopleinprisonhave‘complexneeds’duetothecoexistenceofmultiple

mentalandcognitiveissues.60Thissubmissionaddressesthelimitationsofcurrentprocessesandtheneedforculturallycompetentandcommunity-basedinputintothesentencinghearinganddecisionsforIndigenouspeoplewithmentalhealthissues.Thisinformationwouldbeequallyrelevantformentalhealthtribunalprocessesthatreviewtheimprisonmentofpeoplewithpsychiatricillnesses.

2. WefocusonthefollowingtermsofreferenceinrelationtoIndigenousdefendants:

(h)accesstojusticeforpeoplewithcognitiveandpsychiatricimpairment,includingtheavailabilityofassistanceandadvocacysupportfordefendants;(j)theavailabilityofpathwaysoutofthecriminaljusticesystemforindividualswithcognitiveandpsychiatricimpairment.

Needforsystemicunderstandingofmentalhealthissues

3. ForIndigenouspeople,mental(andphysical)healthissuesareoftenintimatelytiedtointergenerationaltraumaflowingfromcolonialandpostcolonialpracticesandpolicies.61Sherwoodstates,

60EileenBaldryetal,APredictableandPreventablePath:Aboriginalpeoplewithmentalandcognitivedisabilitiesinthecriminaljusticesystem(UniversityofNewSouthWales,2015)19,<http://www.mhdcd.unsw.edu.au>.61SeeJuanitaSherwood,‘Colonisation–it’sbadforyourhealth:thecontextofAboriginalhealth’(2013)46(1)ContemporaryNurse28.

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Thishasresultedinwell-beingco-morbiditiesthataredirectlylinkedtotraumaandloss(mhfa,2008).Traumaisanormalandpredictableresponsetooverwhelmingdistressresultingfromaneventwhichisleftuntreatedor,atworst,ignored.Itleadstointergenerationalhopelessnessandunresolvedgrief(mhfa,2008,p.2).Reviewingtheevidence,itisclearthatithasnotbeenjustoneact;ithasbeenasustainedandmercilessprocess.Acknowledgingthedeeplyetchedimpactthelast200+yearsofcolonisationhashadonthehealthandwell-beingofIndigenousAustralians,thesignificanceofthisprocesscanbegintobeappreciated.62

4. Indigenoushealingandwell-being,accordingtohealthresearch,requiresstrengtheningof

culturalidentity.63Whenitcomestojusticeprocesses,culturalidentityisstrengthenedbyprovidingaccesstocommunity-basedservicesandlocalcommunityresourcessuchas‘elders,culturalactivitiesandfamilies’.64Italsorequiresimprovinghousingconditions65andbuildingconnectionstoCountryforIndigenous,including,whererelevant,accesstoIndigenoushomelands.66Thehealingoftheindividualisintimatelylinkedtothehealingofthecommunity67andrequiresself-determinationinthehealingprocess.68

Lackofjudicialrecognitionofsystemicfactorsincriminalsentencing

5. In2013theHighCourtofAustralia,initsdecisionofBugmy,69rejectedthesubmissionthatIndigenoussystemicfactorsarerelevantsentencingconsiderations.Theseincludeover-imprisonmentofIndigenouspeople,over-representationofIndigenouschildrenremovedfromtheirfamilies,socio-economicdisadvantage,poorhealthstatus,lackofaccesstohealthservices,institutionaldiscriminationandtherestraintsonself-governancewithinIndigenoussocietiesduetocolonisation.

62Ibid,36.63RHintonetal,‘DevelopingabestpracticepathwaytosupportimprovementsinIndigenousAustralians'mentalhealthandwell-being:aqualitativestudy’(2015)5(8),BMJOpen.64Ibid. 65RSBailie,MStevensandELMcDonald,‘Impactofhousingimprovementandthesocio-physicalenvironmentonthementalhealthofchildren'scarers:acohortstudyinAustralianAboriginalcommunities’(2014)14,BMCPublicHealth472.66CPBurgessetal,‘HealthyCountry:HealthyPeople?ExploringthehealthbenefitsofIndigenousnaturalresourcemanagement’(2005)29(2)AustralianandNewZealandJournalofPublicHealth,117;StephenTGarnettetal,‘HealthyCountry,HealthyPeople:PolicyImplicationsofLinksbetweenIndigenousHumanHealthandEnvironmentalConditioninTropicalAustralia’(2009)68(1)AustralianJournalofPublicAdministration,53;ChristopherPBurgessetal,‘Healthycountry,healthypeople:therelationshipbetweenIndigenoushealthstatusand“caringforcountry”’(2009)190(10)MedicalJournalofAustralia567.67RWildandPAnderson,‘AmpeAkelyernemaneMekeMekarle‘LittleChildrenAreSacred’,ReportoftheNorthernTerritoryBoardofInquiryintotheProtectionofAboriginalChildrenfromSexualAbuse’(NorthernTerritoryGovernment,2007)175.68DCox,MYoungandABairnsfather-Scott,‘NoJusticewithoutHealing:AustralianAboriginalPeopleandFamilyViolence’(2009)30AustralianFeministLawJournal151.69(2013)249CLR571.

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6. Thisjudicialoutcomedefiessubstantialevidence,emergingwiththeRoyalCommissionintoAboriginalDeathsinCustody,thatsystemicfactorsarerelevanttothecollectiveandindividualcircumstancesoftheIndigenousoffender.70ForIndigenouspeoplewithcomplexneeds,theyareincreasinglybeing“managed”bypolice,courtsandprisonsduetoacriticallackofappropriatecommunity-basedservicesandsupport.71ExacerbatingthistrendisthecharacterisationofindividualIndigenouspeoplewithcomplexneedsasahighriskthatrequirescontainmentinpenaldetention.Suchcharacterisationneglectsthecontributionofsystemicfactorstotheirconditionandoffending,theroleofthecriminaljusticesysteminreproducinganotionofanIndigenouscrimeproblem,andtheroleofcommunityinassistingIndigenouspeoples’healingandrehabilitation.

Needforcommunityinputinsentencingprocesses

7. ThesimilarsituationinCanadainrelationtotheimprisonmentofFirstNationspeople,includingoverwhelminglywithmentalhealthissues,precipitatedanamendmenttotheCanadianCriminalCodethatrequiredthatsentencingcourtsaccountfortheuniquecircumstancesfacingFirstNationsdefendants.Thisledtotheintroductionofreports,knownasGladueReports,producedbyAboriginalorganisationsonthecircumstancesoftheoffenderandhis/hercommunity,includingastheyaffectmentalhealth.Theyaddresscommunityprogramsandfamilysupportstructuresforoffenderswithawidespectrumofneeds,includingrelatingtoFASD,post-traumaticstress,addictionissues,anxietyanddepression.Thesereportsaresubmittedtothecourtpriortosentencingandconstituteanimportantconsiderationinthesentencingoutcome.Theyhelppromotenon-prisonoutcomes.Thecommunitycaseworkerpreparingthereportalsohasresponsibilityinfollowinguptheoffender,assistingcomplianceofordersandfacilitatingaccesstocommunityprogramsandotherservices.

8. AcrossAustralia,withexceptionsinsomecourtsinQueenslandandtheNorthernTerritory,

pre-sentencereportsdonotgenerallyincludetheperspectivesofIndigenouscommunityorganisations,respectedpersonsorElders.TheyareproducedbyCorrectiveServicesstaffforoffenderswhoarelikelytofaceaprisonsentence.Toaddressthisshortcoming,IndigenousLawandJusticeGroupsintheNorthernTerritoryandCommunityJusticeGroupsinQueenslandhaveendeavouredtosupplementtheinformationwithcommunityreports.Theirreportscanexplaintheconnectionsbetweentheoffender’smentalhealthandwellbeingtosystemicandcommunityfactors,aswellasopportunitiesforhealingandsupportinthecommunity.InformationisalsoprovidedthroughAboriginalfieldofficers,

70RichardEdney,‘ImprisonmentasaLastResortforIndigenousOffenders:SomeLessonsfromCanada?’(2005)6(12)IndigenousLawBulletin23,23.71Baldryetal,aboven48,19.Seealso,EileenBaldry,LeanneDowseandMelissaClarence,‘Peoplewithmentalandcognitivedisabilities:pathwaysintoprison’(BackgroundPaperfortheNationalLegalAidConferenceDarwin,2011)16.

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employedbyAboriginalLegalServices.Whiletheyonlyoccasionallyprovideinformationtocourts,duetolimitedresources,theycancriticallyaffectsentencingoutcomes.

9. AnothercourtinitiativethatgoessomewayinallowingIndigenouscommunityinputina

sentencehearingoccursincourtsitesthatofferIndigenoussentencingcourts.Thesecourtswerefirstestablishedin1999inPortAdelaide,SouthAustralia,andsincethenhavebeenoperatingineveryjurisdictionasidefromTasmaniainsomeformoranother.IndigenoussentencingcourtsinvolveonetofourEldersorCommunityRepresentativessittingwiththemagistrate(orotherjudicialofficer,wherethecourtsoperateathigherlevels)inthesentencingprocess,wherebytheyhavetheopportunitytoparticipateinafrankdiscussionwiththeoffenderabouttheiroffendingbehaviour.Notonlydoesthisprocessbetterengagetheoffenderinthesentencingprocess,makingthemmorelikelytounderstandandacceptthepenaltiesimposed,andtoleavecourtwithanimprovedperceptionofjustice,72italsoprovidesthecourtwithinformationaboutanoffender’srehabilitationneedsasaresultoftheinputofEldersandCommunityRepresentativeswhoknowtheoffenderandhiscommunity.Indeed,inanevaluationoftheCountyKooriCourtinVictoria,alegalpractitionerwhoseclienthadanintellectualimpairmentthatwasdiagnosedasaresultoftheIndigenoussentencingcourtprocessmadethefollowingcomments:

Thethingthatblewmeawaythemostwasthatthisclienthadanintellectualdisability,hewas[ayoungman],andhehadbeendiagnosedfive(5)yearsbeforebutnoneofthatinformationhadcomethroughtome,andnoneofthatinformationhadactuallybeenrecordedwithinthesystem.SotheJudgedidn’tknow,Ididn’tknow,nobodyknewaboutit,exceptCorrections.ButwhathadhappenedwastheJudgesaid‘Iwanthimassessed’,thentheycamebackandsaid‘Ohhehasanintellectualdisability’,fromthispassingcommentintheirreport,andthenweallwent,“What?!”AndthethingthatIlikedaboutthissystemwasthatassoonasthisissuewasidentifiedtheJudge,myselfandtheclientthensatdownandstarteddiscussingwheretogowithit.Becauseallofasuddentheballgamechangesdoesn’tit?Imeanhere’sakidwithanintellectualdisabilitysoheneedstobedealtwithquitedifferentlytoanordinarypunterwho’scommittingoffences.TheJudgecamebackdownandsaid‘Iunderstandhowangryandfrustratedyouareaboutnotfindingoutaboutthisinformation,Iamtoo’.Sowecameupwithaformulatogethertosentencehim,andIreckonthiswholethingwouldneverhavehappenedinanordinarycourt,wewouldneverhavebeenabletogettheinformationout,whichiswhymyoneexperienceintheCountyKooriCourthasreallyhighlightedhowtheordinarysystemissoinconclusiveinthatitdoesn’tallowinformationtocomeout.Butbyhavingthisdiscussion,averyrelevantpieceofinformationcameoutwhichisgoingtoaffectthiskidfortherestofhislife.Butnooneknewaboutit,nothismum,no-one,andforfive(5)yearsnothingwasbeingdoneforhim,hewas

72EMarchetti,‘AnAustralianIndigenous-FocusedJusticeResponsetoIntimatePartnerViolence:Offenders'PerceptionsoftheSentencingProcess’(2015)55(1)BritishJournalofCriminology86.

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committingseriousoffences;andhehadanintellectualdisability,anditwasthissystemthatfounditout.73

10. WesuggestthatasimilarprovisiontothatintheCriminalCodeinCanada,enacted

uniformlythroughCOAG,wouldhelppreventunnecessaryprisondetentionforIndigenouspeoplewithmentalillness.Crucially,thisshouldbesupplementedwithsupportforacommunitypre-sentencereportingstrategy,supportforfieldofficerstoprovidein-courtstatementsonrelevantIndigenouscommunityconditions,andIndigenoussentencingcourts.

11. Ultimately,aholisticapproachisneededtodecarcerateIndigenouspeoplewithmental

illnessesfromprison.ThisrequiresappropriateservicesandprogramsforIndigenouspeoplewithmentalhealthissuesand,importantly,addressingsystemicissuesincludinginstitutionaldiscrimination(egintheover-policingIndigenouspeopleonstreets;disproportionatelyremovingIndigenouschildrenfromfamiliesratherthansupportingfamilies),socio-economicdisadvantageandprovidingsubstantiveaccesstoearly-interventionservices74aswellasadequatelyresourcedcommunity-basedsanctionsintheformofrehabilitativeprogramsandservices(suchasdrug,alcoholormentalservices).ThereisalsoaneedforgreaterspecialisedsentenceoptionsthataccommodatetheintersectionsofIndigenousbackgroundandgenderand/ormental,cognitiveorphysicalimpairment.Forexample,servicesthataccommodateIndigenouswomen’scircumstancesofongoingvictimizationtofamilyviolence;thetraumaticeffectsofremovalofIndigenouswomen’sownchildren;and/ortheir‘complexneeds’whereacognitivedisabilitycoexistswithamentalhealthand/oraddictionissueand/orotherdisorder.75

73ZDawkinsetal,CountyKooriCourt:FinalEvaluationReport(CountyCourtofVictoriaandtheVictorianDepartmentofJustice,2011),29.74Hinton,aboven63.75SeeJuanitaSherwoodandSachaKendall,‘Reframingspacesbybuildingrelationships:CommunitycollaborativeparticipatoryactionresearchwithAboriginalmothersinprison’(2013)46(1)ContemporaryNurse83;Baldryetal,aboven48.

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10.SUPPORTEDTRANSITIONFROMPRISONTOCOMMUNITYDrMeganWilliams,SeniorResearchFellow,UniversityofWesternSydneyKeyissues:

● AssessmentofneedsinmakingtransitionfromprisontoCommunityarenotalwaysculturallyrelevantnorsuitedtothecomplexneedsofpeoplewithcognitiveimpairment.Thiscontributestorecidivism.

● Modelsofthroughcare,withintegratedandtailoredservices,areaneffectivemeansforsupportingpeoplewithcomplexneedspost-release,althoughjurisdictionalcommitmenttothethroughcareconceptissporadic.

● Specificactionisrequiredtointegratestateandterritorybasedpost-releaseprogramswiththeNationalDisabilityInsuranceSchemebasedonthedesirablefeaturesofthethroughcaremodel.

1. WhileratesofincarcerationofAboriginalandTorresStraitIslanderpeopleareamongthehighestintheworld,thesebelieanevengreaterproblem:thatwhenreleased,amajority(77%)facethelikelihoodofbeingreincarcerated,oftenmultipletimes.76Thisisnottosuggestthatpeopleshouldnotbereleasedonthebasisoffailingatcommunityreintegration.Rather,highrecidivismrateshighlighttheurgentneedtoaddressunderlyingfactorsandmakeavailablemoresupportservices.Thefollowingpagesoutlineimportantfeaturesofrecidivismpreventionandpost-prisonreleasecareinculturallysensitivewaysforandbyAboriginalandTorresStraitIslanderpeople.

Assessment

2. Beginningattheirentryintocustody,allpeoplearetoundergoassessmentstoascertaintheneedsandissuesthatarelikelytoimpactontheirtransitionfromprisontocommunitylifeandposerisksforreoffendingandreincarceration.Theassessmentsareintendedtobringaboutanactionplanforrehabilitationaswellasrelease-planning.

3. However,reoffendingriskassessmenttoolshaveoftenbeenquestionedfortheircultural

relevancetoAboriginalandTorresStraitIslanderpeople,77ashaveotherassessmenttools7876AustralianBureauofStatistics,PrisonersinAustraliaCatno.4517.0<http://www.abs.gov.au/ausstats/[email protected]/mf/4517.0>77RJonesetal,‘CulturallyrelevantassessmentofIndigenousoffenders:Aliteraturereview’(2002)37(3)Australianpsychologist197;ESavinaandMWilliams,ReducingIndigenousImprisonmentForumreport(2009),ANTaR&theBridgeNetwork.78MYoungetal,‘SF-36:notthetooltomonitorthehealthofsubpopulationswithintheQueenslandwomen'sprisonsystem’(2005)29(5)AustralianandNewZealandJournalofPublicHealth487.

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becausetheyarenotderivedfromtheholisticnotionofindigenouspeople’shealthandhealing79,prioritisationofneeds80norregardforthecomplexityofissuesexperienced.81Few,ifany,prisonassessmentsandreleaseplanningtoolsarerelevanttothelivesofAboriginalandTorresStraitIslanderpeoplegenerally,northoseinprisonwithcognitiveandpsychiatricdisabilities.

Rehabilitation

4. In-prisonrehabilitationprogramsandprogramsthatpreparepeopleforlifeafterprisonareinsufficientlydesignedtotakeintoaccounttheneedsofAboriginalandTorresStraitIslanderpeople,orculturalprotocols,processesandknowledges.82ProgramsrarelyaddressuniqueneedsofAboriginalandTorresStraitIslanderpeopleincludinganger,forcibleremovalasachildandintergenerationaltrauma,83nordotheyaddressfactorscontributingtoincarcerationincludingmarginalisedsocialandeconomicposition.Onedecades-oldstudydid,however,findthatAboriginalandTorresStraitIslanderpeople’spost-releaseparticipationinwork-releaseprograms,financialsupportandemploymentuponreleasewereassociatedwithlowerrecidivism84–addressingsomeofthedeterminantsofbothcrimeandhealth.

Legislatedandpolicyimpetustoprovidethroughcare

5. Onerelativelyrecentshiftincorrectionalprogramminghasbeentheintroductionof‘throughcare’programs,conceptualisedasthecontinuousprovisionofsupportbothin

79MSheldon,‘PsychiatricassessmentinremoteAboriginalcommunities’(2001)35(4)AustralianandNewZealandJournalofPsychiatry435;LMuller,AtheoryforIndigenousAustralianhealthandhumanservicework:ConnectingIndigenousknowledgeandpractice(Allen&Unwin,2014).80JPerkinsetal,‘ThedevelopmentofanewmethodologytoassessperceivedneedsamongindigenousAustralians’(1995)41(2)SocialScience&Medicine267.81CMSchlesingeretal,‘ThedevelopmentandvalidationoftheIndigenousRiskImpactScreen(IRIS):A13-itemscreeninginstrumentforalcoholanddrugandmentalhealthrisk’(2007)26(2)DrugandAlcoholReview109.82JAnaya,ReportbytheSpecialRapporteuronthesituationofhumanrightsandfundamentalfreedomsofindigenouspeople,15thsess,UNDocA/HRC/15/37/Add.4(1June2010);EBaldry,‘Prisonsandvulnerablepersons:Institutionsandpatriarchy’(ConferencepaperpresentedattheAustralianandNewZealandCriticalCriminologyConference,Melbourne,2009);CCunneen,‘Criminology,criminaljusticeandIndigenouspeople:Adysfunctionalrelationship?’(2009)20(3)CurrentIssuesinCriminalJustice323;EJohnston,ReportoftheRoyalCommissionintoAboriginalDeathsinCustody(AustralianGovernmentPublishingService,1991).83ADayetal,‘ThemeaningofangerforAustralianAboriginaloffenders:Thesignificanceofcontext’(2006)50(5)InternationalJournalofOffenderTherapyandComparativeCriminology520;Jonesetal,aboven62;DGoulding,Severedconnections:Anexplorationoftheimpactofimprisonmentonwomen'sfamilialandsocialconnectedness(CentreforSocialandCommunityResearch,MurdochUniversity,2004);PMalsetal,‘AdaptingviolentrehabilitationprogramsfortheAustralianAboriginaloffender’(2000)30(1)JournalofOffenderRehabilitation121;BSteelsandDGoulding,‘Whenit'saquestionofsocialhealthandwellbeing,theanswerisnotprison’(2009)7(12)IndigenousLawBulletin15.84RGBroadhurstetal,‘AboriginalandnonaboriginalrecidivisminWesternAustralia:Afailurerateanalysis’(1988)25(1)JournalofResearchinCrimeandDelinquency83.

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custodyandafterreleaseintothecommunity,includingplanningforprisonrelease,andsupervisionorsupportpost-release.85

6. Fordecadesinternationalhumanrightsinstrumentshaveassertedtheneedforthroughcare,

statingthatprisonershavetherighttorehabilitationappropriatetotheirageandlegalstatus,andwithrespectfortheirdignity86fromthebeginningoftheirsentence.Suchrehabilitationincludeshealthcare,specialattentiontoimproverelationshipswithfamilyandcommunity,preparationforworklife,educationintegratedwiththecommunity,culturalactivitiesandcoordinatedafter-care.Thesebuildonthe1955UNMinimumRulesfortheTreatmentofPrisonersstatements,whichassertthatpost-prisonreleaseaftercareshouldbeconsideredfromtheoutsetofpeople’sincarceration.87

7. Recommendedfeaturesofthroughcareforthelocalcontextinclude‘floatingcare’with

integratedandtailoredservices,asinglecasemanagerwhoactsasanintensivesupportpersonandaleadagencybrokeringappropriateservicesbeforerelease,andpostreleasewasfoundhighlydesirable.88Baldryetal89foundthatthoseprisonerswhoreceivedpost-releasesupportinadditiontoaccommodationweresignificantlylesslikelytoreturntoprison,with24%ofthoseincontactwithaservicereturningtocustodycomparedto45%whodidnotreceivespecialistaccommodationsupport.

8. ‘Front-loading’ofclient-centredservicesisrecommendedinthefirsthours,days,andweeks

afterrelease90,supportingthe“’person-in-context’”91andbasedondischargeplanning.92Inaddition,WinnungaNimmityjahAboriginalHealthService’s93throughcaremodel

85CJardineandBWhyte,‘Valuingdesistence?ASocialReturnonInvestmentcasestudyofathroughcareprojectforshort-termprisoners’(2013)33(1)SocialandEnvironmentalAccountabilityJournal20;SRoss,Bridgingthegap:AsupportprogramforVictorianprisoners:Finalevaluationreport(MelbourneCriminologyResearchandEvaluationUnit,UniversityofMelbourne,2013);MMaguireandPRaynor,‘Howdoestheresettlementofprisonerspromotedesistancefromcrime:Ordoesit?’(2006)6(1)CriminologyandCriminalJustice9.86InternationalCovenantonCivilandPoliticalRights;InternationalCovenantonEconomic,Social,andCulturalRights.87Standardminimumrulesforthetreatmentofprisoners(UnitedNations,OfficeoftheHighCommissioner,30August1955)<http://www.ohchr.org/EN/ProfessionalInterest/Pages/TreatmentOfPrisoners.aspx>88MBorzyckiandEBaldry,‘Promotingintegration:Theprovisionofprisonerspost-releaseservices’inAustralianInstituteofCriminology,TrendsandIssuesinCriminalJusticeNo.262(AustralianInstituteofCriminology,2003);EBaldry,DMcConnell,PMaplestoneandMPeeters,Ex-prisonersandaccommodation:Whatbearingdodifferentformsofhousinghaveonsocialreintegration?(AustralianHousingandUrbanResearchInstitute,2003).89Baldryetal,aboven73.90BRichie,NFreudenbergandJPage,‘Reintegratingwomenleavingjailintourbancommunities:Adescriptionofamodelprogram’(2001)78(2)JournalofUrbanHealth:BulletinoftheNewYorkAcademyofMedicine290.91AJShinkfield,Athree-partecologicalmodelofcommunityreintegrationofex-prisoners(Doctoraldissertation,2006)246.92CVisherandKMallik-Kane,‘Reentryexperiencesofmenwithhealthproblems’inR.Greifinger(ed),Publichealthbehindbars:Fromprisonstocommunities(Springer,2007)434-60.93NPoroch,Youdothecrime,youdothetime,WinnungaNimmityjahAboriginalHealthService,2007).

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incorporateshealthandspiritualcareandfamily-basedandlessformalcommunity-basedstrategiessuchaslocalsportingclubs,andtheAboriginalMedicalServiceofWesternSydneyprovidedintegratedprimaryhealthcare.94

9. On-the-groundserviceshavebeendescribedasoftenactiveandinnovativeintheir

responses.95Theyhaveexpertisein“developingcommunity-basedsolutions”96particularlybecausethey“provideaccesstoresourcesthatpromotereintegration”97informallyinthecommunity,inadditiontoformalinterventions.

Barrierstothroughcare

10. Mostjurisdictionshavemadeonlyarelativelyrecentcommitmenttothroughcare.AdministrativedatafromQueenslandindicatedonly7%ofQueenslandprisonershadaccesstothroughcareandnumbersofAboriginalandTorresStraitIslanderpeopleparticipatingwereevensmaller.98Preparationfortransitionfromprisonisgenerallylacking99andarguablymoresoamongAboriginalandTorresStraitIslanderpeople,particularlythosewithcomplexneedssuchascognitiveandpsychiatricdisabilities.

11. Aformativeevaluationofthreepost-prisonreleasesupportservicesforAboriginalwomen

foundmultiplesystemandorganisational-levelbarrierstothroughcare,beyondtheindividualresponsibilityandpowerofwomenexitingcustody.100

12. Throughcaremodelsdependalmostentirelyonbrokerageofservicesinthecommunityfor

supportofpeople,101ratherthantheprovisionofsupportassuch.Fromthe1950sto1970s

94DDelaney-ThieleandJLloyd,SPRINTqualitativefindings(Presentationnotes,2013)<http://files.aphcri.anu.edu.au/resources/lectures-presentations/conversations-aphcri/SPRINT%20findings%20-%20SPRINT%20TEAM%20-%2017%20Sept%202013.pdf>;MHaswelletal,Returninghome,backtocommunityfromcustodialcare:LearningsfromthefirstyearpilotprojectevaluationofthreesitesaroundAustralia(Manuscriptsubmittedforpublication,2014).95Project10%,SubmissiontoQueenslandGovernment-ReducingincarcerationratesinQueensland:Athreeyearplan(Project10%,2010).96ASKrieg,‘Aboriginalincarceration:Healthandsocialimpacts’(2006)184(10)MedicalJournalofAustralia534.97CRobbins,SMartinandHSurratt,‘Substanceabusetreatment,anticipatedmaternalroles,andreentrysuccessofdrug-involvedwomenprisoners’(2009)55(3)Crime&Delinquency388.98LRobsonandAEugene,‘TheOffenderReintegrationSupportService:SupportingthroughcarewitheffectivepartnershipsbetweenthegovernmentandNGOsector’(conferencepresentation,ReintegrationPuzzleConference,Melbourne,June2008).99PJSchrametal,‘Supervisionstrategiesandapproachesforfemaleparolees:Examiningthelinkbetweenunmetneedsandparoleoutcome’(2006)52(3)Crime&Delinquency450;RPSeiterandKRKadela,‘Prisonerreentry:Whatworks,whatdoesnot,andwhatispromising’(2003)49(3)Crime&Delinquency360;BSteels,Declaredguilty:Anever-endingstory:Ananalysisoftheimpactofthecriminaljusticesystemupontheself(Doctoraldissertation,2005)<http://catalogue.curtin.edu.au/primo_library/libweb/action/search.do?vid=CUR_ALMA>100Haswelletal,aboven79.101RobsonandEugene,aboven83.

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aprisonerwasthoughttobecloselyassistedwithre-entryplansandwasoftenreleasedtoahalfwayhousewithacaseworker,volunteersupportandcarefulcommunitysupervision.102However,comparativelyfewpart-timetransitionaryreleaseprogramsorhalfwayhousesarenowavailable,comparedwiththenumbersofoftenthesamepeopleenteringandexitingprisons.103Overthepastfewdecadesaweakeningandreductioninavailabilityofpost-releasesupportprogramshasoccurred.104

13. AlargeUSstudyof7000inmatesreleasedfromFloridaprisonsfoundthatanyvisitsfrom

familyandfriendswereassociatedwithalowerlikelihoodofrecidivismovertwoyears.105OntheonehandlegislationinAustraliaisveryclearaboutmaintaininganddevelopingfamilyrelationshipswhilstamemberisincustody,howeverinrealitytherearemanybarriers.106

Multipledifficultiesinthetransitionfromprisontocommunity

14. Muchresearchdemonstratesthatpeoplehavecomplexneedsandthattheyexperiencechallengingobstacleswhentheyexitprison.Theyfacemanyofthesameproblems,orworse,thatmayhaveledtoincarcerationinthefirstplace.107Peopleexitingcustodyalsofacetherealitythattheirfamiliesandcommunitieshavechangedwhiletheywereaway108andaredamagedasaresultoftheirmember’sabsencewhileincarcerated.109

15. Datashowthatmortalityratespost-releaseamongAboriginalpeopleareamongthehighest

reportedintheworld110andhealthandwellbeingdeclinepost-prisonrelease.111

102SeiterandKadela,aboven84.103JPetersilia,Whenprisonerscomeshome:Paroleandprisonerreentry(OxfordUniversityPress,2003);SeiterandKadela,aboven84.104JTravis,Buttheyallcomeback:Rethinkingprisonerre-entry(SentencingandCorrections,NationalInstituteofJustice,USDepartmentofJustice,2000).105ASolomonetal,Understandingthechallengesofprisonerreentry:ResearchfindingsfromtheUrbanInstitute’sPrisonerReentryPortfolio(WashingtonDC,2006).106MAlexander,DMartinandMWilliams,ReportonQueenslandCorrectionalCentres(PrisonersLegalServiceandCatholicPrisonMinistry,2011);Haswelletal,aboven79.107Baldry,aboven67;Goulding,aboven68;Johnston,aboven67;SMaruna,Makinggood:Howex-convictsreformandrebuildtheirlives(AmericanPsychologicalAssociation,2001);SRose,BBurdekinandRJenkin,Humanrightsandmentalillness:ReportoftheNationalInquiryintotheHumanRightsofPeoplewithMentalIllness(HumanRightsandEqualOpportunitiesCommission,1993);TWalsh,InCorrections:InvestigatingprisonreleasepracticeandpolicyinQueenslandanditsimpactoncommunitysafety(QueenslandUniversityofTechnology,2004).108CUggen,JManzaandABehrens,‘Lessthantheaveragecitizen’:Stigma,roletransitionandthecivicreintegrationofconvictedfelons’inSMaruna&RImmarigeon(eds),Aftercrimeandpunishment:pathwaystoex-offenderreintegration(WillanBooks,2004)261.109SteelsandGoulding,aboven68.110SDarkeetal,‘Heroin-relateddeathsinNewSouthWales,Australia,1992–1996’(2000)60(2)DrugandAlcoholDependence141;AGraham,‘Post-prisonMortality:UnnaturalDeathAmongPeopleReleasedfromVictorianPrisonsBetweenJanuary1990andDecember1999’(2003)36(1)AustralianandNewZealandJournalofCriminology94;CMcGregoretal,‘AccidentalfatalitiesamongheroinusersinSouthAustralia,1994-1997:

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16. Individualsarethoughttoenteralongaprocessofde-institutionalisation,112needing

“recommunalisation”,113recoveryandhealingfromthetraumaofincarcerationandremovalfromsocial,culturalandeconomiclife.114Peoplewhohavebeenincarceratedhavebeendescribedasexperiencinghostility,isolationandworry,aswellashopeforthefuture,115albeitsometimesunrealisticallygiventheobstaclestheyhavetocontendwith.116Stigmaassociatedwithbeinganex-prisonerhasbeendescribedaspotentiallylastingalifetime,resultinginpeoplebeingfurtherestrangedfromfamiliesandneighbourhoods,andlimitingemployment,housingandcommunityparticipationopportunities.117

17. Itisobvioustoothatthereisaneedforgreatereffortfosteringrelationshipsbetween

correctionalhealthservicesandcommunityorganisations,forcontinuityofcareovertime118andopportunitiestoconnectwithfamilyandcommunity.119

18. Theimportantpointhereisthatregardlessofaperson’sengagementincrime,orcognitive

andpsychiatricdiagnosesandexperiences,“itisnotthatex-offendersshouldbeleftalonetogetonwiththebusinessofself-change”.120

19. WillisandMoore’s121qualitativeresearchamongAboriginalpeoplepost-prisonrelease

foundthat:

Toxicologicalfindingsandcircumstancesofdeath’(2002)10(4)AddictionResearchandTheory335;LStewartetal,‘Riskofdeathinprisonersafterreleasefromjail’(2004)28(1)AustralianandNewZealandJournalofPublicHealth32.111SAKinner,ThePost-releaseexperienceofprisonersinQueensland(AustralianInstituteofCriminology,2006);MBorzycki,Interventionsforprisonersreturningtothecommunity(AustralianInstituteofCriminology,2005);Graham,aboven95.112KEllem,JWilsonandWHChui,‘Effectiveresponsestooffenderswithintellectualdisabilities:Generalistandspecialistservicesworkingtogether’(2011)65(3)AustralianSocialWork398.113Steels,aboven84.114NMorseu-Diop,Healinginjustice:AninternationalstudyofIndigenouspeoples’custodialexperiencesofprisonrehabilitationprogramsandtheimpactontheirjourneyfromprisontocommunity(Doctoraldissertation,2010)<http://espace.library.uq.edu.au/view/UQ:210170>115TClearetal,‘Coercivemobilityandcrime:Apreliminaryexaminationofconcentratedincarcerationandsocialdisorganization’(2005)20(1)JusticeQuarterly33;AHochstetler,MDeLisiandTCPratt,‘Socialsupportandfeelingsofhostilityamongreleasedinmates’(2010)56(4)CrimeandDelinquency588.116RBurnett,‘Toreoffendornottoreoffend?Theambivalenceofconvictedpropertyoffenders’inSMarunaandRImmarigeon(eds),Aftercrimepunishment:Pathwaystooffenderreintegration(WillanPublishing,2004).117Petersilia,aboven88;Steels,aboven84;SteelsandGoulding,aboven68;Uggenetal,aboven93.118Baldryetal,aboven73;BorzyckiandBaldry,aboven73,EOgilvie,Post-release:Thecurrentpredicamentandthepotentialstrategies(AustralianInstituteofCriminology,2001);Visher,aboven77.119MBorzycki,Interventionsforprisonersreturningtothecommunity(AustralianInstituteofCriminology,2005);JBurrowsetal,Thenatureandeffectivenessofdrugsthroughcareforreleasedprisoners(HomeOfficeResearch,DevelopmentandStatisticsDirectorate,2000).120SMaruna,RImmarigeonandTLeBel,‘Ex-offenderreintegration:Theoryandpractice’inSMaruna&RImmarigeon(eds),Aftercrimeandpunishment:Pathwaystoex-offenderreintegration(WillanBooks,2004)2,16.

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Respondentsacknowledgedthattostoptheirownviolentbehaviour,changesneededtooccurwithinthefamilyunitandwithinthecommunityatlarge.Whenaskedhowtoimprovesuchprograms,oneprisonerfromSouthAustraliasaid:

‘Wegobacktoourfamiliesandweneedtotaketheinformationbacktothecommunitytobreakthecycleofviolence.Weneedthemtostopviolencetoo.’

20. Itisarguablyalsotheresponsibilityofcommunitymembers,particularlyfamiliesandserviceproviders,tocreatemoreinclusivecommunitiesandshareresourceswithpeoplewhohavebeenconvictedandsentencedforacrime,then‘donetheirtime’toalsoincludecivicparticipationanddevelopmentofsocialcapital.122BazemoreandErbe123believethatopportunitiesinthecommunitytobuildthesesociallysupportiverelationships,however,arealmostentirelymissingfromcurrentpolicyandpracticeabouttransitionsfromprisonandpreventingreincarceration.

21. QualityevidenceisincreasinglyavailableaboutAboriginalandTorresStraitIslanderpeople’s

community-drivencollectivehealingprograms,indicatingthatsuchprogramsarecost-effectiveandhaveanimportantroleinreducingincarcerationrates.124

121MWillisandJPMoore,ReintegrationofIndigenousprisoners(ResearchandPublicPolicySeriesNo.90)(AustralianInstituteofCriminology,2008)88.122SFarrall,‘Socialcapitalandoffenderreintegration:Makingprobationdesistancefocussed’inSMaruna&RImmarigeon(eds),AfterCrimeandPunishment:PathwaystoOffenderReintegration(WillanBooks,2004)57;Maruna,aboven92;Marunaetal,aboven105;FTaxman,DYoungandABehrens,‘Witheyeswideopen:Formalizingcommunityandsocialcontrolinterventioninoffenderreintegrationprogrammes’inSMarunaandRImmarigeon(eds),Aftercrimeandpunishment:Pathwaystoex-offenderreintegration(WillanBooks,2004)233.123GBazemoreandCErbe,‘Operationalizingthecommunityvariableinoffenderreintegration:theoryandpracticefordevelopinginterventionsocialcapital’(2003)1(3)YouthViolenceandJuvenileJustice246.124AboriginalandTorresStraitIslanderHealingFoundation,Prospectivecostbenefitanalysisofhealingcentres(AboriginalandTorresStraitIslanderHealingFoundation,2014)<http://healingfoundation.org.au/our-publications/?category_name=reports>;MWhitesideetal,PromotingAboriginalhealth:TheFamilyWellbeingempowermentapproach(Springer,2014).

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11.TRANSLATIONOFEVIDENCEINTOPOLICYScottAvery,PolicyandResearchDirectorKeyissues:

● UnderstandingtheissuesaffectingAboriginalandTorresStraitIslanderpeoplewithcognitiveandmentalhealthimpairmentrequiresamulti-disciplinaryapproach.

● AsGovernmentAgenciestendtobeorganisedalongdisciplinarylines(ie.separatedepartmentforjustice,education,healthetc),thereisnonaturalhomewhereanalysisoftheissuesandpolicydiscussionscantakeplace,andawealthofsocio-legalresearchontheissuegoesunder-utilised.

● Amechanismisneededtocapturecurrentandexitingresearchandknowledge,bothfromtheCommunityandacademicresearch,toadviseGovernmentsontranslationofevidenceintopolicy.

● APolicyTranslationGroupcouldguidethedevelopmentoftheseprinciplesintoaNationalDisabilityJusticeStrategywhichspecificallyaddressestherightsandcircumstancesofAboriginalandTorrsStraitIslanderpeople.

1. ThiscompositesubmissionhasbroughttogethercontributionsfromthreeAboriginalandTorresStraitIslandernationalpeakbodiesandthirteenofthenation’sleadingdisabilityandjusticeresearchersfromsixdifferentuniversitiesandresearchinstitutes.

2. Collectively,theexpertisecoveredinthissubmissioncoversabreadthofdisciplines

includingAboriginalandTorresStraitIslanderhealthwellbeingandculture,disability,humanrights,earlychildhood,education,familyviolenceprevention,genderstudies,lawsandlegislation,courtprocessesandsentencing,postreleaserehabilitation,researchanddatamanagement.Thebreadthofthisexpertisereflectsthecomplexity,whichisarealitywhendealingwiththeproblemofrecurrentandindefinitedetentionofAboriginalandTorresStraitIslanderpeoplewithcognitiveandmentalimpairment.

3. Contrastingly,publicpolicyisderivedfromagovernmentstructurenaturallyorganisedalong

functionallines.ThereareseparatedepartmentsforAttorneysGeneral,Health,Education,andSocialServices.Thereconsequencesofafunctionalapproachmeanthattheissuesarenotcomprehensivelydealtwith:

• Governmentagencyledpolicysolutionsaffectingonepartoftheproblem.Ajustice

ledapproachwillnaturallyleadtoalegalresponse,butriskinadequatelyhavingabalancefromdisabilityperspective;andconverselyadisabilityledapproachrisksinadequatelyaddressinglawslegislationandsystemicbarriersinjudicial

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administration.Bothperspectivesareneededinbalancewithco-ordinationacrossthespectrumofissues.

• IntersectionalissuesaffectingpeoplewhoarebothAboriginalandTorresStraitIslanderandhavedisabilityfallintothetoo-hardbasket.Theneedsandrightsofthemarginalisedofthemarginalisedareultimatelyignored.

4. Thecomplexityofthisissueneedstoberecognisedandembraced.Athereisnonatural

homewithinthegovernmentagencystructuretoaddressthebreadthofissues,amechanismneedstobecreated.Werecommendtheformationofa‘PolicyTranslationGroup’toreviewthebreadthofresearchactivityandevidence,andformallyadvisethevariousgovernmentagenciesonaco-ordinatedapproachtopolicyandgovernmentactionplans.Thisshouldbemultidisciplinaryandcompriserepresentativesfromgovernment,theresearchcommunity,andAboriginalandTorrespeoplewithdisability.

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BiographiesofcontributorsFirstPeoplesDisabilityNetwork(Australia)isanationalorganisationestablishedby,forandbehalfofAboriginalandTorresStraitIslanderpeople,familiesandcommunitieswithlivedexperienceofdisability.WithaBoardofDirectorsentirelycomprisingFirstPeopleswithdisability,weareguidedbythelivedexperienceofdisabilityindeterminingourprioritiesandourwayofdoingbusiness.FPDNiscommittedtoresearchandpolicydevelopmentthatcapturestheknowledge,expertiseandexperienceofdisabilityinourcommunities.FPDNaimstobetheinterfacebetweentheFirstPeoplesdisabilitycommunity,policymakersandresearchersingeneratingpracticalmeasuresthatsecurethehumanrightsofFirstPeopleswithinasocialmodelofdisability.Wehavealong-standinghistoryofadvocatingfortherightsofFirstPeopleswithdisabilitythroughhigh-levelpolicyadvicetoAustralianGovernmentsandininternationalhumanrightsforums.FDPNisundertakingacommunity-directedresearchprogram,whichissupportedthroughtheNationalDisabilityResearchandDevelopmentScheme.TheNationalFamilyViolencePreventionLegalServiceswasestablishedinMay2012tocoordinateandfunctionasaunitednationalvoiceforthe14FamilyViolencePreventionLegalServices(FVPLS)memberorganisationswhoprovidelegalassistance,casework,counsellingandcourtsupporttoAboriginalandTorresStraitIslandervictim/survivorsoffamilyviolence,includingsexualassaultandabuse.FVPLSsalsoprovidecommunitylegaleducation,andearlyinterventionandpreventionactivities.FVPLSsservicesareculturallyinclusiveandaccessibletoAboriginalandTorresStraitIslanderadultsandchildreninthespecifiedserviceregion,regardlessofgender,sexualpreference,familyrelationship,location,disability,literacyorlanguage.NationalAboriginalandTorresStraitIslanderLegalServices(NATSILS)isthepeaknationalbodyforAboriginalandTorresStraitIslanderLegalServices(ATSILS)inAustralia.NATSILSbringstogetherover40years’experienceintheprovisionoflegaladvice,assistance,representation,communitylegaleducation,advocacy,lawreformactivitiesandprisonerthrough-caretoAboriginalandTorresStraitIslanderpeoplesincontactwiththejusticesystem.TheATSILSaretheexpertsonthedeliveryofeffectiveandculturallycompetentlegalassistanceservicestoAboriginalandTorresStraitIslanderpeoples.ThisrolealsogivesusauniqueinsightintoaccesstojusticeissuesaffectingAboriginalandTorresStraitIslanderpeoples.NATSILSrepresentsthefollowingATSILS:

·AboriginalandTorresStraitIslanderLegalService(Qld)Ltd(ATSILSQld);·AboriginalLegalRightsMovementInc.(ALRM);·AboriginalLegalService(NSW/ACT)(ALSNSW/ACT);·AboriginalLegalServiceofWesternAustralia(Inc.)(ALSWA);·CentralAustralianAboriginalLegalAidService(CAALAS);·NorthAustralianAboriginalJusticeAgency(NAAJA);·TasmanianAboriginalCommunityLegalService(TACLS);and·VictorianAboriginalLegalServiceCo-operativeLimited(VALS).

The‘ChangetheRecord’(CTR)CoalitionisagroupofleadingAboriginalandTorresStraitIslander,communityandhumanrightsorganisationsworkingcollaborativelytoaddressthedisproportionate

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ratesofincarcerationandviolenceexperiencedbyAboriginalandTorresStraitIslanderpeople.TheChangetheRecordcampaignhastwooverarchinggoals,to:1.Closethegapinratesofimprisonmentby2040;and2.Cutthedisproportionateratesofviolencetoatleastclosethegapby2040withprioritystrategiesforwomenandchildren.ToChangetheRecord,weneedtoworkwithAboriginalandTorresStraitIslandercommunitiestoinvestinholisticearlyintervention,preventionanddiversionstrategies.Thesearesmarter,evidence-basedandmorecost-effectivesolutionsthatincreasesafety,addresstherootcausesofviolenceagainstwomenandchildren,cutre-offendingandimprisonmentrates,andbuildstrongercommunities.CarolBowerisaSeniorPrincipalResearchFellowatTelethonKidsInstitutewithqualificationsinmedicine,epidemiologyandpublichealth.Herareasofresearchexpertiseincludeepidemiologyofbirthdefects,includingFetalAlcoholSpectrumDisordersandneuraltubedefects.Herresearchhasastrongfocusoninvestigatingcausesandeffectsofbirthdefects,ontranslatingresearchfindingsintopublichealthpolicyandpracticeandonevaluatingtheeffectivenessofthattranslation.Leadingexamplesarethepreventionofneuraltubedefects(promotingpericonceptionalfolicacidsupplementuseandmandatoryfortificationofflourwithfolicacid)andresearchonprevention,diagnosisandmanagementofFetalAlcoholSpectrumDisorders(FASD).DamianGriffisisanAboriginalpersonidentifyingwiththeWorimipeople,CEOofFirstPeoplesDisabilityNetwork(Australia)andaleadingadvocateforthehumanrightsofAboriginalpeoplewithdisability.In2004-05,DamianundertookamajorconsultativeprojectvisitingAboriginalcommunitiesacrossthestateofNewSouthWalesdiscussingtheunmetneedsofAboriginalpeoplewithdisabilitydirectlywithAboriginalpeoplewithdisabilityandtheirfamilies.Thisculminatedintheground-breakingreportentitledTellingItLikeItIs.Hehasworkedformorethan20yearsinvariouscapacitieswithinthedisabilitysectorandhasbeeninstrumentalinconsolidatingthedevelopmentofthesocialmovementofAboriginalpeoplewithdisability.DamianwasawardedtheTonyFitzgeraldMemorialCommunityAwardatthe2014HumanRightsAwardsinrecognitionofhisadvocacyfortherightsofAboriginalandTorresStraitIslanderpeoplewithdisability.DrDarrenO’DonovancompletedhisPhDthesisonequality,multiculturalismandhousingrightsatUniversityCollegeCorkinIrelandin2009.HeworkedatUCCasalecturerforthreeyearsbeforemovingtoAustralia.DarrenwillsoontakeuparoleasseniorlecturerinlawatLaTrobeLawSchool,wherehewillbeworkingwithLaTrobe’sscholarsattheLivingwithDisabilityResearchCentre.Darrenteachesadministrativelaw,humanrightsanddisabilitylaw,andrecentlyco-wrotethesecondeditionoftheEndeavourFoundation’sguidetotheNDIS,Discover.ProfessorEileenBaldry(BA,DipEd,MWP,PhD)isaProfessorofCriminologyatUNSWAustraliawhereshehasbeenanacademicsince1993.EileenisanesteemedresearcherintheareasofCriminology,SocialPolicyandSocialWorkandwasrecentlynamedasoneoftheinauguralPLuSAllianceFellowsinSocialJustice.EileenalsoholdsthedistinguishedpositionofAcademicChair,UNSWDiversityandEqualityBoardandisthecurrentDeputyChairoftheDisabilityCouncilNSW.In

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2009,theLawandJusticeFoundationofNSWrecognisedBaldry’s“indefatigable”supportforjustice-relatedcausesbyawardingheritshighesthonour:theJusticeMedal.ProfessorElenaMarchettiisaResearchProfessorintheSchoolofLawandamemberoftheLegalIntersectionsResearchCentre,UniversityofWollongong.HerresearchexaminesthejusticeexperiencesofIndigenousAustraliansinthecriminaljusticesystem,howtobetteraccommodatethejusticeneedsofvictimsofIndigenouspartnerviolence,andwhatmethodsshouldbeusedtoevaluateIndigenous-focusedjusticeprocessestobetterreflecttheIndigenous-centricnatureoftheprograms.ShewasawardedanAustralianResearchCouncil,5-yearAustralianResearchFellowshipin2009andanAustralianResearchCouncil,4-yearFutureFellowshipin2014.GlennPearson,aNyoongarfromWesternAustralia,istheHeadAboriginalResearchDevelopmentatTelethonKidsInstitutewhichincludesmanagingtheKulungaAboriginalResearchdevelopmentUnit(KARDU).HisareasofresearchexpertiseincludeAboriginalHealthandEmotionalWellbeing;AboriginalResearchMethodologies;PolicyandAdvocacy.GlennisaChiefInvestigatorintheInstitute'sCentreofResearchExcellenceinAboriginalHealthandWellbeingandiscompletingaDoctorateattheUniversityofWesternAustralia(UWA).HeisalsoamemberoftheHealthConsumerCouncilofWA,CurtinUniversity'sHumanResearchEthicsCommitteeandtheInstitute'sCommunityandConsumerParticipationAdvisoryCouncil.LeanneDowseisAssociateProfessorandChairinIntellectualDisabilityandBehaviourSupportintheSchoolofSocialSciences,UNSW.TheworkoftheChairaimstoexpandthebodyofknowledgeandincreasecapacityinthedeliveryofappropriateandeffectiveservicestopeoplewithanintellectualdisabilitywithcomplexneedsthroughtrainingandeducation,enhancedpolicyandservicemodelsandtargetedresearch.Leanne’sresearchgenerallyseekstounderstandthedynamicsofgender,raceandethnicity,ageingandcontemporarysocial,politicalandculturaldiscoursesastheyintersectwithdisability.Herrecentworkaddressesissuesforpeoplewithcomplexneeds,particularlytheintersectionsofcognitiveandpsychosocialdisabilitywithotherdimensionsofsocialdisadvantageandthewaystheseinterlockforpeopleinthecriminaljusticesystemasbothvictimsandoffenders.Shealsoundertakesresearchexaminingtheintersectionofdisability,genderandviolence.DrLindaSteeleisalecturerinlawattheUniversityofWollongongwheresheteachescriminallawandtortlaw.Linda’sresearchexploreslaw’scomplexandcontradictoryrolesinthemarginalisationofpeoplewithdisability.Linda'sdoctoralthesiswasondiversionofindividualswithcognitiveimpairmentfromtheNSWLocalCourt.Hercurrentresearchisfocusedonviolenceagainstpeoplewithdisability.Lindahasaprofessionalbackgroundinsocialjustice,includingasasolicitorattheIntellectualDisabilityRightsServiceandanexecutivecommitteememberoftheWomeninPrisonAdvocacyNetwork.DrMeganWilliams,fromMuruMariAboriginalhealthunitatUNSW,isadescendentoftheWiradjuripeopleofcentralNSWthroughherfather’sfamily.Shehasqualitativeandquantitativeresearchtraining,specialisinginusingresearchasatoolforcapacitybuilding,andfocussingonthe

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strengthsofAboriginalpeopletodeterminestrategiestoreducerecidivism,morbidityandmortalitypost-prisonrelease.NoniWalkerisaSeniorResearchFellowintheAlcoholPregnancyandFASDResearchgroupatTelethonKidsInstitutewithexperienceinpublichealthandhealthpromotion.HerroleistosupporttheprojectandclinicalteammembersworkingontheBanksiaHillFASDprojectfundedbytheNHMRCthataimstoimprovethemanagementofyoungpeoplewithFetalAlcoholSpectrumDisorderintheyouthjusticesystem.ProfessorPatrickKeyzerisHeadoftheLaTrobeLawSchoolandChairofLawandPublicPolicyatLaTrobeUniversity.Patrickco-coordinatedthedevelopmentofthisSubmissionwithScottAvery.Patrick’scontributiontothisSubmission,co-writtenwithDarrenO’Donovan,wasrecentlypublishedinslightlydifferentform,intheIndigenousLawBulletin.Patrickco-wrotetheEndeavourFoundation’sguidetotheNationalDisabilityInsuranceScheme,Discover.Patrickhaswrittenoreditedfivebooksandreportsonthetopicofpreventivedetention,andinhiscapacityasabarristerhasprovidedlegaladvicetotheAboriginalDisabilityJusticeCampaignforsomeyears.DrRuthMcCauslandisaResearchFellowintheSchoolofSocialSciencesatUNSW.Shewasco-authorwithEileenBaldry,LeanneDowse andElizabethMcEntyreoftherecentreportAPredictableandPreventablePath:Indigenouspeoplewithmentalandcognitivedisabilitiesinthecriminaljusticesystem,andanearlierstudyontheeconomiccostsoftheover-representationofpeoplewithmentalandcognitivedisabilitiesinprison.HerPhDwasonevaluationandthediversionofAboriginalwomenfromprison,anddevelopedanalternativeapproachtoevaluationofdiversionaryprogramsthatcouldprovidemoremeaningfulmeasuresofimpactandwellbeing.RuthisalsoVice-PresidentoftheBoardoftheCommunityRestorativeCentre.ScottAveryisdescendantfromtheWorimipeopleandisthePolicyandResearchDirectorattheFirstPeoplesDisabilityNetwork(Australia),anon-GovernmentOrganisationconstitutedbyandforAustralianAboriginalandTorresStraitIslanderPeopleswithdisability.HehasanextensivecareerinresearchandpublicpolicyinAboriginalandTorresStraitIslanderaffairs,health,disability,justiceandeducation.HeisundertakingadoctorateonIndigenousdisabilityandistheleadInvestigatoronacommunity-directedresearchprogramwhichhasbeenawardedfundingsupportthroughtheNationalDisabilityResearchandDevelopmentScheme,andisareceiptofascholarshipthroughtheLowitjaInstituteforAboriginalandTorresStraitIslanderHealthResearch.SharynneHamiltonisaNgunnawalwomanfromCanberra.Sharynnehasworkedintheareaofparentalandfamilyengagementinchildprotectionformorethan20yearsasacommunityworker,advocateandscholar.From2010,sheworkedwiththeRegulatoryInstitutionsNetwork’s(AustralianNationalUniversity)CommunityCapacityinChildProtectionProjectteamresearchingtheexperiencesofcommunityworkers,workingwithfamilieswithchildprotectioninterventions.SharynnejoinedtheTelethonKidsInstituteinAugust2015workingtheAlcohol,PregnancyFASDResearchgroup,undertakingresearchfortheNHMRCscreening,diagnosisandworkforcedevelopmentprojectatBanksiaHillJuvenileDetentionCentre.

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AssociateProfessorThaliaAnthonyisaLawacademicattheUniversityofTechnologySydney.HrresearchexpertiseisintheareasofcriminallawandprocedureandIndigenouspeopleandthelaw,ThaliaAnthony’sresearchhasinfluencedpolicydevelopmentandpublicdebateregardingremediesforwrongsinflictedonIndigenouspeoples.Herworkhasbeenutilisedinsenatecommitteereports,parliamentarydebate,policyannouncementsandlawreformcommitteereports.ShehascontributedtoHighCourtcases,theworkofUnitedNationscommittees,conductedresearchfortheRoyalCommissionintoInstitutionalResponsestoChildSexualAbuseandappearedbeforeparliamentaryinquiriesonIndigenousredress.ResearchAssociatesGabriellaRaetzisaResearchAssistantandstudentatLaTrobeUniversitycompletingherfinalyearofaBachelorofLaws/Arts.HaninaRindisaResearchAssistantandstudentatLaTrobeUniversitycompletingherfinalyearofaBachelorofLaws.