all party parliamentary group on women in the penal system · criminal justice and women’s...
TRANSCRIPT
• Fartoomanywomenarebroughtintothejusticesystemunnecessarily.Thousandsofwomenareinappropriatelycriminalisedeveryyeartothedetrimentofindividuals,familiesandcommunities
• Formanywomenitistheirrepeatedvictimisationwhichhasledtoinvolvementinthejusticesystem
• Alargenumberofthewomeninvolvedinthejusticesystemhaveacuteandmultipleunmetneeds.Itiscrucialthatservicesinthecommunityforthesewomenareprioritised
• Servicesandsupportforwomenareneededbutthecriminaljusticesystemmustnotbethegatewaytoaccessservices
• Gender-informedpolicingofwomeniskeytopreventingunnecessarycriminalisation
• Moneyisnotbeingspentintherightplaces.Thousandsofwomenaresentencedeachyeartoserveexpensiveanddestructiveshorttermprisonsentences,yetsuccessfulwomen’scentresanddiversionschemesarepoorlyandinsecurelyfunded
• ThereisadangerthattheTransformingRehabilitationagendawillpullmorewomenintothecriminaljusticesystemandkeepthemthereforlonger.Effectivescrutinyoftheimpactofthispolicychangeonwomenoverthenextfewyearsiscrucial.
Key points
Report on the Inquiry into Preventing Unnecessary Criminalisation of Women
AllPartyParliamentaryGrouponWomeninthePenalSystem
TheAllPartyParliamentaryGroup(APPG)onWomeninthePenalSystemwassetupinJuly2009withBaronessCorstonaschairandadministrativesupportfromtheHowardLeagueforPenalReform.
ThegroupworkstoincreaseknowledgeandawarenessofissuesaroundwomeninthepenalsystemaswellaspushforthefullimplementationoftherecommendationsofThe Corston Report: A review of women with particular vulnerabilities in the criminal justice system(Home,Office2007).
TheInquiryintoPreventingUnnecessaryCriminalisationofWomenstemmedfromtheconclusionsofpreviousAPPGinquiriesandreportsbytheHowardLeaguethatthemajorityofwomeninvolvedinthecriminaljusticesystemdonotneedtobethere,womenarecriminalisedtooquicklyandeasilyandtheproblemstheyfaceoughttobeaddressedbyotheragenciesatamuchearlierstage.Theinquirythereforeaimedtolookatwhatcriminaljusticeandnon-criminaljusticerelatedagenciesweredoingtoreduceunnecessarycriminalisationandanybarrierstotheirwork.
Theinquirytookplaceatatimeofintensepublicscrutinyofthepolicingofyoungwomenwhowerevictimsofsexualabusebutwhohadnotbeenseenasvictimsandhadbeenblamedfortheirplight.
Theinquiryreceivedoralandwrittenevidencefromavarietyoforganisationsandpractitionersincludingpoliceforces,PoliceandCrimeCommissioners(PCCs),NHSEnglandandvoluntarysectororganisationsworkingincriminaljusticeandwomen’srights.ThethenMinisterofStatewithresponsibilityforwomeninthejusticesystem,SimonHughesMP,gaveevidencetotheinquiry.
Women in the justice systemWomenareaminorityinthecriminaljusticesystem.Theycommitfarfewercrimesthanmenandtheoffencescommittedareofalessseriousnature.
Womenaccountedfor16percent(162,000)ofallarrestsin2013/14.Arrestsofmenfellby4percentbetween2012/13and2013/14whilearrestsofwomendidnotchange(HomeOffice,
2015).Over100,000arrestsofwomenresultedinnofurtheraction.
37,300policecautionswereissuedtowomeninthe12monthsendingSeptember2014,representing22percentofallcautionsissued(MinistryofJustice,2015a).
6,529fineswerehandeddowntowomeninthe12monthsendingSeptember2014,a5percentincreasesince2012.Inaddition,9,822womenweresentencedtoacommunitysentenceintheyearendingSeptember2014(MinistryofJustice,2015b).
Ratesofpre-trialremandforwomenarehigh.Approximately40percentofwomenwhoenterprisoninanyoneyearareunconvicted,with3,754remandedinthe12monthsendingJune2014.Fewofthesewomengoontobeconvictedorreceiveacustodialsentencewith71percentofthoseremandedintheMagistrates’Courtsand41percentofthoseremandedbytheCrownCourtsnotreceivingaprisonsentence(HowardLeague,2014).
Thenumberofwomeninprisonhasslowlyfallenfrom4,350inMarch2007to3,889inMay2015(MinistryofJustice,2015c).However,thisisstillalmostdoublethenumbertwentyyearsagowhenthefemaleprisonpopulationstoodat1,979(MinistryofJustice,2013).
Asthevastmajorityofthewomensentencedtoprisonserveveryshortsentences,thefemaleprisonpopulationonanyonedaymasksthehighlevelofuseofimprisonmentforwomeninEnglandandWales.Inthe12monthsendingJune2014,9,204womenenteredcustodyeitheronremandorundersentence(MinistryofJustice,2015d).Ofthoseservingasentence,77percentweresentencedtolessthantwelvemonths,71percentlessthansixmonthsand52percentlessthanthreemonths(MinistryofJustice,2015e).
Findings
The importance of preventing criminalisationTherewasaconsensusamongthosewhogaveevidencetotheAPPGthattoomanywomenwerepulledintothecriminaljusticesystemunnecessarily.Inparticular,tensofthousandsofwomenwerearrestedwhennoinvolvementfromcriminaljusticeagencieswasneeded.
TheAPPGheardthatmanywomeninvolvedinthecriminaljusticesystemhadbeenvictimisedandhadsignificantandmultipleunmetneeds.Criminalisationonlyexacerbatedproblemsandstigmatisedwomen.Diversionawayfromthecriminaljusticesystemandintohealthandsupportserviceswastheappropriateresponseforthemanywomenwithsignificantneedwhocameintocontactwiththepoliceandcourts.
Evidencesubmittedshowedthatmanywomeninvolvedinthecriminaljusticesystemwerevictimsofabuse,manipulationandviolenceandthattheiroffendingbehaviourwasoftenrelatedtothis.Inparticular,sexualexploitationandabusehadalargeroletoplayinthecriminalisationofmanywomen.Womenandgirlscametotheattentionofauthoritiesduetooffencescommittedasaresultofsexualexploitation.Somewomenusedcrimeasameanstoescapetheirexploitersorasacryforhelp.Toooften,insteadofbeingrecognisedasvictimsandsupported,womenwerebroughtintothejusticesystemandpunished.
AChiefConstablereportedthatmanywomenwhocameintocontactwiththepolicewere‘trappedinacycleofmultipledisadvantageandwheredomesticviolencewasacommonoccurrence.’Womenwereoftencoercedintocommittingoffencesbyabusiveandcontrollingpartners.Inaddition,researchshowsthatalmosthalfofwomeninvolvedinthejusticesystemreportcommittingoffencestosupportanotherperson’sdrughabit,comparedtoafifthofmen(Lightetal.,2013).Thoseworkinginliaisonanddiversionschemestoldtheinquirythatmoreserviceswereneededinthecommunitytohelpwomeninviolentrelationships,withdrugaddictionsandwithhousingproblems,whofrequentlyendedupbeingcriminalised.
TheAPPGheardthatpovertyhadaroleinbringingwomenintothejusticesystem.Theexampleofnon-paymentoftelevisionlicenceswasrepeatedlyhighlighted.Womenaccountforadisproportionatenumberofprosecutionsbecausetheyaremorelikelytobehomewhenaninspectiontakesplaceandtenanciesaremorelikelytoberegisteredintheirname.Womenarefinedforthisoffenceandiftheycannotaffordtopay,facefurtherandmore
seriouscriminalsanctionsforthenon-paymentoffines.
Itwasnotedthatsinglemotherslivinginpovertyaredisproportionatelyimpactedbytheirchildren’struancy.Mothersarecriminalisedfortheirinabilitytopayfinesinsteadofbeingsupportedtodealwiththeproblemsthatleadtonon-attendanceatschool.Again,thistypeofoffencedraggedpoorwomenfurtherintothejusticesystem.
Attheoralhearingswitnessesarguedthatproblemswithpublicserviceprovisioncontributedtowomencomingintocontactwiththejusticesystem.Aswellasinadequatementalhealthservicesandtheclosureofsaferesidentialfacilitiesforthosefleeingviolence,theabsenceofanon-criminaljusticerelated24-hourserviceforthoseindifficulty,suchaswomenstrugglingwithmentalillhealthorwomenrequiringhelpwithadifficultfamilyissue,wasreportedasakeyproblem.Aleadingwomen’ssafetyorganisationnotedthatduetofundingcutsithadhadtostopprovidingmanyout-of-hoursservicesandthepolicehadsteppedintopickupthepieces.Policerepresentativesechoedtheviewthatsomesocialandhealthcrisesoftenbecamecriminaljusticematterssimplybecausethepolicewerealwaysavailabletorespond,whereastheagenciesbestplacedtodealwiththeissueswerenot.
Itwasreportedthatmagistratesandjudgestendtoover-sentencewomen,addingmultipleandonerouscriteriatocommunityordersinamisguidedattempttohelpwomenturntheirlivesaround.Thesesentenceswereoftendisproportionatetotheoffencecommittedandsetwomenuptofail,requiringthemtoaddressseveralcomplexproblemsatoncewiththethreatofacustodialsentenceiftheywereunabletocomply.Itbecameclearthattoooftenthecriminaljusticesystemisthegatewaytoaccessingsupportservicesandtreatmentdespitethefactthatcriminalisationexacerbatedtheproblemswomenfaced.
What works to prevent unnecessary criminalisation Women’scentreswererepeatedlyreferencedasoneofthebestmodelsforreducing
unnecessarycriminalisation.Theinquiryheardthattherewasastrongevidencebasefortheeffectivenessofwomen’scentresinpreventingoffendingandreoffendingandhelpingwomenturntheirlivesaround.Respondentsnotedthatthecentresprovidedvalueformoney.Severalrespondentsaddedthatwomen’scentresweremostsuccessfulwhentheywereabletoprovideservicestoallwomenwhoneededthem,ratherthanonlythoseinvolvedinthecriminaljusticesystem.
Partnershipworkingwasseenaskeytopreventingunnecessarycriminalisation.Asthecriminalisationofwomenissooftenaffectedbyhousingproblems,poorphysicalandmentalhealth,poverty,debtandproblemrelationshipsitwasseenascrucialthatorganisationsanddifferentgovernmentdepartmentswereabletoworktogethertodivertwomenfromthejusticesystemandcommissiontherightservicesforwomenatrisk.
TheAPPGheardaboutsomepromisingprojects,includingtheThamesMagistrates’CourtdiversionprojectandtheGreaterManchesterPathfinderforWomen(seebox).ThelatterwasbringingtogetherstaffandbudgetsfromGreaterManchesterPolice,thelocalauthority,StyalprisonandthePCCtodivertwomenawayfromthejusticesystemandhelpthemdesistfromcrime.TheinvolvementofthePCCmeanttheprojectcouldaccessbudgetstoprovidevictimsservicesforthemanywomenwhowerevictimsofviolenceandabuse.TheJusticeMinisterpraisedtheapproachofGreaterManchesteranddetailedhisplantoextendtheschemetoothermajorurbanareas.
Buildingonpositivechangestothewaywomenarepolicedisessentialinreducingunnecessarycriminalisation.EvidencesubmittedtotheAPPGshowedthatmanypoliceforceshadmadesignificantprogressinrecentyearstounderstandtheissuesaroundgenderandthejusticesystemandrecognisetheneedtolimitandpreventinvolvement.Policeforcesarenowattheheartofseveralinnovativeandsuccessfulschemestoreducecriminalisation.However,policingofwomenisinconsistentacrossdifferentforcesandnot
Example of best practice: Manchester whole system approach to women in the justice system project
Themanyagenciesinvolvedinthisprojectareworkingcloselytogetherwithsharedvaluesandavisiontotreatwomencomingintocontactwiththejusticesystemasindividualsandprovidethemwithaservicethatwillhelpthemimprovetheirlivesandnotdamagethemfurther.
CentraltotheprojectistherecognitionthatManchesterishometosomeexcellentwomen’scentres,whicharebestplacedtoprovideindividualisedandflexibleservicesandsupporttowomen.Theinitiative,whichhasnowbeenrunningforseveralyears,hashelpeddevelopnewwomen’scentresandsupportedexistingonestoensureallareasofManchesterhavethistypeoffacility.Allagenciesworkingwithwomeninvolvedinoratriskofinvolvementinthejusticesystemaremadeawareofthelocalcentresandtheservicestheyprovideandareencouragedtoreferalleligiblewomentothem.
Thegoverningboardhasbuiltdatacollectionandanalysisintotheprojectfromthebeginningsoitisabletotracktheuseandimpactofservices,aswellasquicklybecomeawareofandrespondtoanyunintendedconsequencessuchasbringingmorewomenintothesystemunnecessarilyormakingsentencesforwomenmoreonerous.
TransformingRehabilitationcreatesafinancialincentivetobringwomenwhohavecommittedverylow-leveloffencesintothesysteminordertomaximiseprofits.ThisisincontrasttotheManchesterprojectwhichpreventswomencomingintothejusticesystemunnecessarilyandkeepsthosewithinitatthelowestlevel.
Overallitisanimpressiveprojectwhichoughttobefinanciallyandpoliticallysupportedandusedasamodelforotherareas.
allpoliceleadershipteamsprioritisedivertingwomenfromthejusticesystem.
Spending money in the right placesFundingforwomeninvolvedinoratriskofinvolvementinthejusticesystemisdysfunctional.Duringtheoralhearings,frustrationwasexpressedthatdespiteextensiveevidenceaboutwhatworkstopreventthewidespreadunnecessarycriminalisationofwomen,preventativeinitiativeswerepoorlyandinsecurelyfinanced.Fundingofthe
majorityofwomen’scentres,forexample,isprecariousandresourceshavetobeexpendedonconstantlyreapplyingforcontractsandgrants.Otherservicesthatwomenatriskofinvolvementinthejusticesystemcommonlyused,suchasdebtmanagement,housingandprotectionfromdomesticviolenceserviceshadbeensubjecttolargebudgetcuts.
Evidencesuggeststhatitispossibletomakeprogressinpreventingunnecessarycriminalisationdespiteausterityandcutstopublicservices.Moneyneedstobespentintherightplaces.Witnessescriticisedsuccessivegovernmentsforspendinghugesumsonshort-termimprisonmentdespiteevidencethatitishighlydamagingandwasteful.Themajorityofthosewhosubmittedbothoralandwrittenevidencearguedthatfundingshouldbedivertedawayfromtheprisonsystemandtowardsservicesforwomeninthecommunity.There-roleofDownviewprisonfromawomen’stoamen’sfacilitywasamissedopportunity.ThebudgetforDownviewshouldhavebeenreallocatedtowomen’sservicesinthecommunityandnotsimplyabsorbedbythemaleestate.Itwasarguedthatgovernmentsoughttodivertbothbudgetsandpeoplefromthejusticesystemifprogressistobemade.
Qualityservicesforwomenaresporadic,withmanyareasinEnglandandWalesleftwithoutwomen’scentres,diversionschemesorpartnershipprojectstoreducecriminalisation.Thislimitsoptionsformagistrates,judgesandpoliceofficersandinhibitseffectivecommunicationaboutavailableservicesandtheimportanceofdiversion.Allthoseinvolvedindiversionandprovidingservicesforwomen,includingthepolice,shouldhavearesponsibilitytoensurethatsentencersdonotfeeltheyhavenootherchoicebuttosendawomantocustody.Partnershipswereimportantinachievingthisaswasmakingsurebudgetswerespentintherightareas.
The new landscape: Transforming Rehabilitation ThenewcriminaljusticelandscapegeneratedbyTransformingRehabilitationisstructuredtobringmorewomenintothejusticesystemratherthanpreventunnecessarycriminalisation.TheJusticeCommitteefoundthatthereforms
werenotdesignedwithwomeninmindandtheyfearedthequantityandqualityofserviceswoulddeclineasaresult(2014).ThereisnoprotectionforexistingservicesunderTransformingRehabilitationandwomen’scentres,diversionprojectsandwomen’spathfinderscouldallceasetooperateifprivateprovidersfailtofundorcooperatewiththem.Thiswouldundoyearsofworkthatdevelopedevidence-basedservicesforwomen.ThosewhogaveevidencetotheAPPGexpressedhopethatCommunityRehabilitationCompanies(CRCs)wouldsupporttheirongoingworkbutweredeeplyconcernedaboutthelackofguarantees.
Theprivatecompaniesnowrunningthemajorityofcommunitysentenceslackknowledgeandexperienceabouttheimportanceofgenderandprovidinggender-specificservices.EvidencewassubmittedtotheinquirythatseveralCRCshadnotrespondedwelltoeffortsmadebyexpertstoprovideinformationandadviceaboutsuccessfulandappropriateservicesforwomen.Thegender-specificprovisionscontainedintheOffenderRehabilitationAct2014areweakandwillofferlittleprotectionforwomen-onlyservicesinpractice.Inaddition,thereisnorobustsystemtoholdcompaniestoaccountforthequalityofservicestheyprovideforwomen.
RespondentsfearedthatoneoftheunintendedconsequencesofTransformingRehabilitationwouldbeincreasedcriminalisationofwomenforverylow-leveloffencesatanearlystage.Womencanbeseenaseasytargetswhoareunlikelytoreoffendandcanbeprovidedwithcheap,unnecessaryservices,allowingcompaniestohittargetsandtherebyincreaseprofits.Someorganisationshadbegunexploringtheoptionofdevelopingnon-criminaljusticerelatedearlyinterventionprogrammesfundedbysocialimpactbondsastheywereworriedtheseserviceswouldnototherwisebeavailableunderthenewsystem.
Strongleadershipontheimportanceofhigh-qualitygender-specificservicesforwomenwillbeessentialundertheTransformingRehabilitationsystem.Robustsystemsmustbeputinplacerapidlytoensurewomenarenotunnecessarilybroughtintothejusticesystem,andservicesforwomenwhoareinvolvedaresuccessfulandevidence-based.
ISBN978-1-905994-94-62015
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Women in prisonThecriminaljusticesystemfailscatastrophicallywhenwomenendupinprison.Currentlythemajorityofwomeninprisonarebeingheldonremandorforlowlevelacquisitiveoffences,withonlyatinynumberhavingcommittedseriousoffencesandpresentingadangertothepublic.Mostofthesewomenhaveacuteandmultipleneeds,manyrelatedtomentalhealth.SimonHughestoldtheAPPGthathewantedthenumbersofwomenincustodytofallbyatleasthalfaswellastheintroductionofapresumptionagainstshorttermprisonsentences.
Theseveredamageinflictedbyshortprisonsentencesonwomenwashighlightedduringtheinquiry.AChiefConstabletoldtheAPPGthat‘afterwomengotoprison,theiroffendingoftengoesupanotch.’Hehighlightedthatshortsentenceswerewastefulandplungedwomenintofurtherchaosasevenabriefspellincustodyoftenledtolossofaccommodation,employmentandcustodyofchildren.EvidencepresentedtotheinquirydemonstratedtheneedtoimplementtheCorstonreportrecommendationstoclosewomen’sprisonsandreplacethemwithafewsmall,localcustodialunitsfortheveryfewwomenforwhomimprisonmentisnecessary.
Afulllistofreferencesisavailableonourwebsiteat
www.howardleague.org/publications-women/.
About the Howard League for Penal ReformTheHowardLeagueforPenalReformisanationalcharityworkingforlesscrime,safercommunitiesandfewerpeopleinprison.Itistheoldestpenalreformcharityintheworld.Itwasestablishedin1866andisnamedafterJohnHoward,thefirstprisonreformer.Weworkwithparliamentandthemedia,withcriminaljusticeprofessionals,studentsandmembersofthepublic,influencingdebateandforcingthroughmeaningfulchangetocreatesafercommunities.Wecampaignonawiderangeofissuesincludingshorttermprisonsentences,realworkinprison,communitysentencesandyouthjustice.Ourlegalteamprovidesfree,independentandconfidentialadvice,assistanceandrepresentationonawiderangeofissuestoyoungpeopleunder21whoareinprisonsorsecurechildren’shomesandcentres.Bybecomingamemberyouwillgiveusabiggervoiceandgivevitalfinancialsupporttoourwork.Wecannotachieverealandlastingchangewithoutyourhelp.
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