research and development ltd tenth annual conference_cu… · association for criminal justice...

Tenth Annual Conference

Association for Criminal JusticeResearch and Development Ltd

acjrd

Community, Custody and Aftercare: The Journey Towards Social Inclusion

Castletroy Park Hotel, Limerick

11th & 12th October 2007

© Association for Criminal Justice Research & Development Ltd

© ACJRD Ltd. All rights reserved. No part of this publication may be reproduced, stored in retrieval system or transmitted in

any form or by any means, mechanical, photocopying, recording or otherwise without prior written permission of the ACJRD

Council.

Association for Criminal Justice Research & Development Ltd

Formerly the Irish Association for the Study of Delinquency Ltd

Conference 2007

All papers and presentations are available to download on our website www.acjrd.ie

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Tenth Annual Conference – Community, Custody and Aftercare: The Journey Towards Social Inclusion

CONTENTS

Page No.

Welcome

MauraButler,Chairperson,ACJRDLtd 2

Opening Address

SeánAylward,SecretaryGeneral,DepartmentofJustice,EqualityandLawReform 3

A psychological profile of young people who engage in criminal conduct

DrJenniferHayes,SeniorPsychologist,HealthServiceExecutive 6

Social inclusion, social capital and reintegration

DrFergusMcNeill,ScottishCentreforCrimeandJusticeResearch 11

After-dinner speaker

KathleenO’Toole,ChiefInspector,GardaSíochánaInspectorate 15

Homelessness and offending: marginalisation, segregation and the challenges to social inclusion

DrMaireadSeymour,SchoolofSocialSciencesandLaw,DublinInstituteofTechnology 19

Irish detention services for the twenty-first century

MaryGeaney,NationalManager,DetentionSchoolServices,IrishYouthJusticeService 25

Government thinking in Northern Ireland on social inclusion

and the way forward under a shared future

BrianRowntree,Chairperson,NorthernIrelandHousingExecutive 29

A community response – moving forward step by step

ElaineSlattery,CéimarChéim 32

Workshop discussions 35

Conference participants 39

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Association for Criminal Justice Research and Development Ltd

WELCOMEMauraButler,Chairperson,ACJRDLtdYouareallverywelcometothetenthannualconferenceof

ourassociation.Thishasbeenayearofsadtimesandglad

times:sad,asourbelovedformerchairperson,andco-

founder,MartinTansey,passedawayinMarch2007.We

werealldeeplyshakenbutweredutyboundtocontinue

withthemissionwhichhehadstartedwiththenow

SecretaryGeneraloftheDepartmentofJustice,Equality

andLawReform,SeánAylward,whowillformallylaunch

thisyear’sconference.MartinascaptainoftheACJRDship

hadoverseenthechangeoftheorganisation’snamefrom

IASD(IrishAssociationfortheStudyofDelinquency)tothe

ACJRD.Hepassedawayjustsixweeksbeforethelaunch

bythethenMinisterforChildren,BrianLenihan(now

MinisterforJustice,EqualityandLawReform),ofamost

significantpieceofresearchentitledTheChildrenCourt:

ANationalStudy.MycolleaguesontheCouncilofACJRD

hadbestowedonmethegreathonouroftakingoverthe

chairofthisorganisation,andIliketothinkthatMartin’s

presencegotmethroughmyfirsttaskaschaironthat

researchlaunchdate.

Movingontothe‘gladtimes’,Iamhappytoreportthat

TheChildrenCourt:ANationalStudyhasbeenvery

favourablyreceivedandiswidelycitedasthefirstnational

empiricalstudyofitskind.OurCouncilhasexpandedand

IamhappytoannouncetodaythattwonewCouncil

membershaveagreedtojoinus:KathleenO’Tooleof

theGardaSíochánaInspectoratewhoisherewithus

todayasoneoftheconferencespeakers;andProfessor

IanO’Donnell,DirectoroftheUCDInstituteof

Criminology.Itakethisopportunitytowelcometheir

eruditeandinternationalperspective,whichwillbeof

greatbenefittothedevelopmentofACJRD.

ThisisagoodopportunitytothankallCouncilMembers

fortheirdedication.InparticularwethankDr.Ursula

Kilkelly,whohasresignedfromtheCounciland

congratulateheronbecomingChairpersonoftheIrish

PenalReformTrust.HerdedicationtotheCouncilandher

supervisionofourresearch(ers)wasintegraltoour

developmentovertheyears.MembersofCouncil

attendingthisconferencehaveagreedtochairour

variousworkshopsandthisisthetypeofteamspiritthat

weareblessedtobepartof.

Howeversuchteamspirithastobenourishedand

supportedasweembracechangeinthisorganisation.

Withthatinmindwehadan‘awayday’wherewe

consideredwhoweare,whatweareaboutandwhere

dowegofromhere.Welookforwardtowards

innovativeandfocusedactivitytowards‘socialinclusion’

atcommunitylevel–startingwiththisconference.So

howinclusiveisACJRD?Whodowebelieveweare?We

haveanexpansivemembershipwhichencompassesa

broadchurchofjudicial,publicsector,NGOand

individualmembers.Wearerichwithintellectualcapital

andexperiencefromallquartersdealingwithoffending,

itscausesandconsequencesrangingfromthoseonthe

groundtothoseatpolicycreationandimplementation

level.Wearea‘safe’forumforexchangingviews,

movingtowardsanunderstandingofeachother’s

perspectives.Forexample,ChathamHouseRulesapply

atthisconference,andallotherACJRDconferences,

seminarsandevents,tofacilitatethatfreeexchangeof

opinionandideas.

ThisConferencewouldnotbehappeningwithoutthe

generousparticipationofanarrayofdistinguished

speakersandworkshopfacilitatorswhogivefreelyof

theirtimebecauseofadeepcommitmenttoprinciples

helddearbythemand/ortheirassociation.Council

Membershavebeengenerousintheircommitmentto

thepreparationforthisconferenceastheybrainstormed

atheme;andthenrecommendingspeakerswithaview

towardsincorporatingandexpandingtheconcernsofour

diversemembership.Itgoeswithoutsayingthatthe

consistentlyTrojanworkoftheAssociation’sManager,

GeraldineComerford,hasbeenkey.

ThethemeofthisConferencewasmotivated,informed

andinspiredbythefindingsofTheChildrenCourt:

ANationalStudyandthedesiretobe‘inclusive’inits

endeavourtoprovideavehiclewhichappealstoour

broadmembership–andmaybetemptotherstojoinus!

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OPENINGADDRESSSeánAylward,SecretaryGeneral,DepartmentofJustice,EqualityandLawReformChairperson,delegates,fellowguests,Iamhonoured

thatyouinvitedmetodelivertheopeningaddressat

thisthetenthannualconferenceoftheAssociationfor

CriminalJusticeResearchandDevelopment(ACJRD).

Martin N Tansey and ACJRDInaddressingyouthismorningIamrememberingback

tothestartofthisforum.Itsprang,asmanyofyou

know,fromtheviewofsomeofusatthattimethatwe

neededanarena,withinthecriminaljusticefamily,

wherewecouldexpressviewsandshareideasaround

research,practicalapplicationofsolutionsand

improvementsgenerallythatwecouldhelpachieve.

Asmanyofyouwillknow,thelateMartinTanseywas

animportantdrivingforceintheworkoftheAssociation

fromthestart.SomehowIthinkheprobablyisstill

watchingdownonustodaywithabeadyeyeaswe

gathertoshareideas,debateissuesandcomeaway

withnewinsights.

AswesaidinourtributetohimintheIrishTimes:

‘TheworkoftheServicedemandspatience,humanity,

courage,anunderstandingthattherearecompeting

humanrights,andthecapacitytobalancethoserights.

Martinhadthesequalitiesinabundance,combined

withaveryconsiderablehelpingofcommonsenseand

nativecunning’.

IknowfromtalkingtoMauraButler,thenew

Chairperson,towhomthemantleofleadershiphas

passed,thatshewillbringrenewedvigourtothe

Association,aptlyrenamedthe‘AssociationforCriminal

JusticeResearchandDevelopment’.IwishMaurawell

andknowthatsheandherCouncil,alongwiththe

dedicatedstaffledbyGeraldineComerford,willworkin

atirelesswaytofurthertheworkoftheAssociation.Itis

importantthatwehaveforasuchasthistofacilitate

livelydebateandofferopportunitiesforarangeof

backgrounds,expertiseandexperiencetomeetand

exchangeideas,whichwillultimatelyinformchangeand

improvement.It’sveryimportantthatpractitioners,

policymakersandtheresearchcommunityhaveasafe

placetodialogue.

Importance of research to the debate on crime IamdelightedthatmyDepartmentisinapositionto

financiallysupporttheworkoftheAssociation.Iam

stronglyoftheviewthatweneedgoodrobust

independentresearchinthecriminaljusticeareatohelp

ustoidentifytrendsandpatternsandlearnfrombest

practice.Iworryaboutsomeoftheresearchdata

generatedbycampaigningorganisations.Ifearitcanbe

loadedatbestandunreliableatworst.ThatiswhyIam

committedtodevelopingastrongerresearchethosin

theDepartmentanditsagencies.

Wemustbepreparedtocontinuetousetaxpayer’s

moneytocommissionresearchandlooktobestpractice

inordertobestdealwiththemanyfacesofcriminal

behaviourinourmodernworld,fromjuvenileto

ganglandtowhitecollarcrime.Iamparticularlypleased

thattheAssociationundertookandpublishedresearch

earlierthisyearintotheworkingsoftheChildrenCourt.

Thatworkhasprovidedawealthofdataonoffending

patternsandimportantdetailsonthebackgroundof

offenders.Thisisagoodexampleofthetypeofresearch

whichcaninformpolicyinthecriminaljusticearena.

Indeed,IshouldaddthattheGovernmenthasagreed

increasedjudicialresourcesfortheChildrenCourt

which,inpart,wasinformedbytheresearchfindings.

Thethemeofthisyear’sconference,‘Community,Custody

andAftercare:TheJourneytowardsSocialInclusion’,isvery

broad.Iknowthatyourguestspeakersoverthenexttwo

dayswilladdtothedebateacrosseachelementfromthe

roleofthecommunity,tocustodialinterventionsthrough

toreintegrationbacktothecommunity.Formypart,I

wouldliketosharesomethoughtswithyouthatcan,

perhaps,feedintoyourdeliberations.

Partnership approachIstronglybelievethatasasocietyweneedtobuildand

reinvigoratepartnershipsbetweencommunitiesandthe

Governmentalandnon-Governmentalsectortomeet

therangeofmodernchallengesinlookingtotackle

socialinclusion,buildstronger,safercommunities,and

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instilprideinourneighbourhoods.Itisperhapsacliché

tosaythatnoonegroupinghasalloftheanswersto

crimebut,workingtogether,wecanIbelievehelpto

buildabettersafersociety.MyDepartmentistothe

forefrontinthisprocessintheformoftheIrishYouth

JusticeService,COSC,theProbationServiceandthe

workofAnGardaSíochána.Thisfitsintoourofficial

philosophyasaGovernmentDepartment–‘Helping

tobuildasafer,fairerIreland’.

Sentencing optionsAs‘custody’isaspecificpartofthethemetothe

Conferenceandcomingfromthebackgroundofhaving

beentheDirectorGeneraloftheIrishPrisonServicefora

period,Iwouldliketoshareafewthoughtswithyouon

thewholedebateofcustodyvnon-custodialsanctions.

Ibelievethatpublicprotectionconsiderationsdemand

thatthecourtsmusthavetheoptionofprovidingfora

custodialsentence,wherethefactsoftheparticularcase

sowarrant.Thatisnottosaythatcustodyshouldbethe

onlyoption.Onthecontraryweneedawidemenuof

options.Ibelievethatwedohavearangeofoptions,

whichourJudiciarycananddouse.Certainly,inmy

experience,judgesdonotsentenceanyoneto

imprisonmentlightly.WhileIamnotgoingtoblindyou

withfigures,theavailablestatisticsgenerallysupportthe

viewthatthereisnoexcessiveuseofimprisonmentasa

sanctionhere.Ofthe120,000orsoconvictionsinour

criminalcourtslastyear(2006),lessthan10%resulted

inimprisonment.90%ofpeopleconvictedwerenot

senttoprison.LookingtootherEuropeancountriesour

rateofimprisonmentislowerthanGermany,France,

Italy,SwedenandtheNetherlandsanditisabouthalf

thatofournearestneighbours,theUnitedKingdom.

Manyvestedinterestssuggestwehaveamaniafor

imprisoningpeoplehere.Thisisclearlynotthecase.

Todaythereisnodoubtthatwearefacedwithmany

challengesfromthescourgeofdrugstogangland

activitywhichimpactonthetypeandviciousnessof

crime.Ialwaysencouragepeopleinterestedinthetopic

notto‘talkup’crime.Iacceptofcoursethatwemust

be‘alive’totheseriouschallengeswefaceandconfront

theminaproportionatemanner.Ourlegislatorshave

providedforarangeofsentencingoptionsandthisis

correct–aprisonsentenceisbutoneoption.Thereare

alsoanumberofnon-custodialoptionssuchasfines,

communityservice,theProbationActandsuspended

sentencesavailabletotheCourtsfordisposalofcertain

cases.Anoft-forgottenstatisticisthatatanyonetimethe

ProbationServiceissupervisingupto6,000personsinthe

community,whichagaingoestoshowthatprisonisbyno

meanstheonlyoptionbeingavailedofbytheJudiciary.

Change in the Criminal Justice AgenciesIthinkitisfairtosaythatIreland’scriminaljustice

agenciesareundergoingaprocessofvastchange:take

forexamplethecaseofAnGardaSíochánawithitsnew

legislativeframework,theOmbudsmanCommissionand

theGardaInspectorate.YouwillbehearingfromChief

InspectorKathleenO’Tooletonight,andIknowshewill

havesomeinsightfulreflectionsforyourconsideration.

Intheprisonsarea,wearemodernisingourprisonsand

haveintroducednewregulationsforthegovernanceof

prisonswiththerecentlycommencedPrisonRules.We

aremeetingthesecuritychallengesinourprisonswith

amixoftechnologyandadditionalresources.Another

importantelementinmeetingtheindividualneedsof

prisonersinourcareistheimplementationofan

individualriskandneedsassessmentforourprisoners

bytheIrishPrisonService.Thesystemisbeingpiloted

intwoprisonsatpresentandwillberolledout

progressivelythereafter.Wehavecomealong,longway

sinceIfirststoodinthecircleatMountjoyPrisonwith

GovernorLonerganinFebruary1993.

Role of the Probation ServiceTheinterfacebetweenthewidercommunityandthe

ProbationServiceisanimportantandvitalpartof

dealingwithoffendingbehaviour.Probationstaffwork

inacollaborativewaywithcommunitygroupsacross

thecountrywiththeaimofreducingoffending,

reintegratingoffendersbackintothecommunity,and

providingaftercareandsupportinthecommunity

setting,aswellassupporttoprisonersinprison.

Nowherehasthechangeprocessbeenmoreapparent

overthelast18monthsthanintheProbationService.

Wenowhaveaseniormanagementstructureleading

changeinhowtheorganisationdoesitsday-to-day

business;supportedbytheestablishmentofdedicated

specialistteams,suchasAssessmentTeamsforthe

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provisionofreportstocourts,andtheYoungPersons’

ProbationDivisiontodriveimplementationoftheChildren

Act.Ofcoursethisworkisdemandingandtime

consuming.Thatiswhyanadditional71staffwere

sanctionedfortheProbationServiceearlierthisyearto

target,inparticular,juvenileoffending.Justtogiveyoua

flavourofwhatthejobofaprobationofficerentails:the

jobcanrangefromassessingthedangerapersonposesto

societybyprovidingpre-sanctionreportstotheCourtswith

incisiveandreliableadviceandinformation;toassistingin

sentencingdecisions;toworkingwithcommunitygroups.

StayingwiththeinteractionbetweentheProbationService

andcommunitybasedorganisations(manyofwhichare

representedheretoday),Iwanttopubliclyacknowledge

theexcellentcollaborativeworkthatgoesonatthe

coalface.Iamgladtosaythatthisworkissupported

financiallybytheDepartmentofJustice,EqualityandLaw

Reform.Thisyearfundingofalmost21.5millioneurofor

communitybasedorganisationshasbeenprovidedand

distributedto66projectsnationwide.Theseorganisations

supporttheprobationserviceintheprovisionofarangeof

servicestooffendersinlocalcommunities.

Tackling offending behaviour early: the Children Act Volumeshavebeenwrittenabouttheneedforearly

targetedinterventionstopreventandreducecrime.

Nowhereisthismorevitalthanwithyoungpeople.In

theChildrenAct,2001(asamended)wehave,Ibelieve,

awiderangeofinnovativenon-custodialmeasures.

TheActprovidesastatutoryframeworkforthefuture

developmentofthejuvenilejusticesysteminaccordance

withmodernthinkingandbestinternationalpractice.

TheActenvisagescommittalstocustodyofyoung

offendersbeingavailedofonlyinsituationswhere

community-basedoptionshaveactuallybeenresortedto

andhavefailed.TheActalsointroducedwhatarecalled

‘DiversionConferences’,basedonrestorativejustice

principlesaspioneeredinNewZealand.Italsoprovides

forfamilyconferences;thepaymentofcompensationby

parentsforoffencescommittedbytheirchildren;aswell

ascurfewsforchildrenfoundguiltyofoffences.

MypersonalgoalwhenbecomingSecretaryGeneralwas

tohelpbringaboutbetterco-ordinationofresponses

betweenGovernmentDepartmentsinrespectof

childrenatriskofinvolvementincrimeandother

troublingbehaviour.

WebeganthetaskinOctober2004,withthesettingup

ofaninternalprojectteamwithintheDepartmentto

examinethescopeforrationalisingandrestructuringthe

deliveryoftheState’sservicesintheareaofyouth

justice,inaccordancewiththelegislativebasisprovided

forintheChildrenAct2001.PublicationoftheReport

ontheYouthJusticeReviewwasapprovedby

GovernmentinDecember2005.TheGovernment

agreedtotheimplementationofthereport’s

recommendations,inadditiontoanumberofother

youthjusticereforms.

Amongthereformsagreedwastheestablishmentofthe

IrishYouthJusticeService,onanon-statutorybasis,as

anexecutiveofficeoftheDepartmentofJustice,Equality

andLawReform.TheServicehasbeenestablishedunder

theDirectorshipofMichelleShannonandisfocusing:on

developingaNationalYouthJusticeStrategy;achieving

thefullimplementationoftheChildrenAct2001;has

assumedresponsibilityforchildren’sdetention;andis

activelyworkingtoimprovethedeliveryofservicesfor

youngoffenders.Indeed,youwillhearfromMary

Geaneyonsomeoftheirworktomorrow.

ConclusionIhopeIhavegivenyouasenseofthevoyageofchange

thatisunderwayinvolvingthecriminaljusticefamily.We

arereadytomeetthechallengesthatcrimeandits

causesbring.Wewillcontinuetoworkinapartnership

mannerwiththewiderangeoforganisationsthatare

willingtogiveoftheirtime,expertiseandcommitment.

TheACJRDcancontinuetoplayanimportantroleinthis

journeyofdiscoveryanddevelopment.AsourMinister

BrianLenihansaidintheDáilrecentlyandIparaphrase–

wedonotbelievewehaveamonopolyofwisdomnor

dowebelieveasusedtobeallegedoftheBishopsin

Maynooth‘thatthetruthbeingknown,furtherenquiry

isunnecessary’-incontributingtocriminaljusticepolicy

development.Workingtogetherwecansucceed.Ithank

youforyourcontinuedcollectiveengagementwiththe

issueswhichconfrontusinthecriminaljusticefieldand,

inconclusion,Iwishyouwellinyourdeliberationsatthis

conference.

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Thispaperisdrawnfromtheexecutivesummaryofthe

report‘Emotionalintelligence,mentalhealthand

juveniledelinquency’byDrJenniferMargaretHayesand

DrGaryO’Reilly,publishedin2007.

Research aimTheaimofthisresearchwastodescribeyoungpeople

detainedbytheIrishStateforengagementinserious

criminalconductacrossanumberofpsychological

domains.Thesedomainsincludedlevelsofcriminality,

psychologicalmorbidity,cognitivefunctioning,trait

emotionalintelligenceandabilityemotionalintelligence.

Thisresearchalsoaimedtobrieflyidentifyfamilyand

schoolrelatedfactorsassociatedwithyoungpeoplewho

haveoffendingproblems.Toachievethis,their

functioningwascomparedtothatofyoungpeople

referredtoapsychiatryserviceandtothatofyoung

peoplefromthegeneralcommunitywhodidnothave

offendingormentalhealthdifficulties.

Key findingsYoungpeopledetainedbytheIrishStatepresentwith

complexanddebilitatingpsychologicaldifficultiesacross

anumberofdifferentdomains.

CriminalityLevelsofcriminalityamongstyoungpeopleindetention

inIrelandareveryserious.Resultsshowedthatatotal

ofthreehundredandthirtyfivecrimesledtothe

detentionofthethirtyyoungpeopleincludedinthis

research.Aboutoneinthreeboysindetentionin

Irelandaresentenced,atleastpartially,onthebasisof

atleastoneinterpersonallyviolentcrime.Othertypesof

crimeincludedacquisitivecrimes,propertycrimes,

drivingoffences,failuretocomplywithGardaíorCourt

andotheroffences.Approximatelytwothirdsofyoung

peopleindetentionwillhavebeenincarceratedina

differentdetentionschoolatadifferentpointintime.

Thesefindingssuggestthatlevelsofcriminalityamongst

youngpeopleincarceratedinIrelandareveryserious

andarelikelytoposesignificantmonetaryand

psychologicalcoststovictims,tothelegalsystemand

tosocietyasawhole.

Personal and family characteristicsYoungpeopleindetentioninIrelandcomefrom

criminalisedfamilies.Thevastmajorityofdetaineeshave

atleastonefamilymemberwhohasacriminal

conviction(97%)andafamilymemberwhohasserved

timeinjail(90%).Youngpeoplewhoareindetention

haveahistoryofbehaviouralproblemsthatmanifested

themselvesinschool.Truancy,schoolsuspensionand

expulsionarecharacteristicsassociatedwithyoung

peopleresidingindetentionschools.

Psychological morbidityStaffworkinginIrishdetentionschoolsshouldexpect

thatapproximatelyeightoutoftenboysintheircarewill

meetdiagnosticcriteriaforatleastonepsychological

disorderandthat,formostoftheseboys,theirmental

healthdifficultieswillbecompoundedbyco-morbidity.

Approximatelyone-thirdofdetaineeswillmeet

diagnosticcriteriaforamoodoranxietydisorder,two-

thirdswillexperienceanexternalisingordisruptive

psychologicaldisorderandapproximatelytwo-thirdswill

meetdiagnosticcriteriaforasubstancerelateddisorder.

Thelevelofdruguseamongdetaineesisamatterof

graveconcern.Resultssuggestfrequentuseofawide

rangeofsubstances,whicharefirsttakeninchildhood.

Onaverage,cannabisusebeginsatnineyearsofagefor

thosewithadependencydisorderandattenyearsof

A PSYCHOLOGICALPROF ILE OFYOUNGPEOPLE WHOENGAGE IN CR IMINALCONDUCTDrJenniferHayes,SeniorPsychologist,HealthServiceExecutive

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ageforthosewithausedisorder.Theaverageageat

whichcocaineisfirstusedbydetaineeswiththeabove-

mentioneddisordersare13and14yearsrespectively.

Resultssuggestthat,despitetheirincarceration,these

boyshavecontinuedaccesstoalcoholanddrugs,

probablyaccessedthroughhomeleave,whichmaintains

theirdependencyandusedifficulties.

StaffinIrishdetentioncentrescanexpectthatatany

giventimeapproximatelyoneineveryfiveboysintheir

carewillbeexperiencingsuicidalideationandthata

similarproportionwillhaveattemptedtotaketheirlives

onatleastoneoccasioninthepast.

Cognitive functioningOverone-fifthofdetaineeshavefullscaleIQscoresinthe

intellectualdisabilityrangeanddetaineesasagroupcanbe

expectedtohavelowercognitiveabilitiesthanhave

adolescentsreferredtoapsychiatryserviceandadolescents

withoutoffendingormentalhealthdifficulties.

Trait and ability emotional intelligenceIrishdetainees,whencomparedwithadolescentswhoare

withoutmentalhealthandoffendingproblems,werenot

foundtohavedifferentlevelsofadaptabilityortotaltrait

emotionalintelligence.However,youngpeopledetainedby

theIrishStateexperiencesignificantlylowerlevelsofability

emotionalintelligencethanthoseofyoungpeoplewhodo

nothaveoffendingormentalhealthdifficulties.Detainees

possessareducedabilitytoperceiveemotionsaccurately,

touseemotionalinformationtofacilitatethinkinganda

reducedabilitytoregulateemotions.Detaineesexperience

similardeficitsinemotionalcompetencetothoseofyoung

peoplereferredtoapsychiatryserviceformentalhealth

treatment.

RecommendationsThereareanumberofimportantpolicydevelopment,

servicedevelopmentandresearchimplicationsstemming

fromtheresultsofthisresearch.

Policy developmentThereisaneedforpolicydevelopmenttoensurethat

thepsychologicalneedsofyoungpeopleindetention

aremetduringtheirperiodofincarceration.Policies

shouldclearlyspecifytherolethatdetentionhasin

meetingthepsychologicalneedsofincarceratedyoung

people.Thesepoliciesshouldcentreontheethosthat

detentionprovidescircumstancesinwhichconsiderable

opportunitiesforpsychologicaltreatmentand

rehabilitationcouldandshouldbeexploited.Policiesare

alsoneededtosethighstandardsthatguidethetypes

ofassessmentandtreatmentproceduresimplemented

toaddresspsychologicalneed.Policyshouldhighlighta

commitmenttoevidence-basedassessmentand

treatmentapproaches.

Policydevelopmentisalsowarrantedtoensurethat

detentionisviewedasanopportunitytoassertively

targetfactorsthathavecontributedtoayoungperson’s

criminalityandtodeconstructfactorsthatincreasethe

likelihoodofayoungpersonre-offendingfollowing

release.Toachievethiseffectively,policieswhich

highlighttheimportanceofevidence-basedassessment

andinterventionmethodsfortheassessmentand

treatmentofcriminalityarerequired.

Policydevelopmentthathighlightstheimportantroleof

ongoingempiricalresearchiswarranted.Thiswillensure

thatourunderstandingoftheneedsofyoungpeoplein

detentioncontinuestoimprove.Thisinturnwillleadto

animprovementinservicedeliveryandimproveour

abilitytomeetthepsychologicalneedsofyoungpeople

whoareincarcerated.

Implications for service development

Assessment and intervention teamsTheresearchfindingsdetailedinthisreportshowthat

youngpeopleindetentionhaveseriouslevelsofcriminality,

complexanddebilitatingpsychologicaldifficultiesand

deficitsinIQandinemotionalintelligence.Toaddressthese

issuesadequatelyrequiresthedevelopmentofmulti-

disciplinaryassessmentandinterventionteams.These

teamsshouldbeledbyaseniorclinicianwhoiscompetent

intheassessment,diagnosisandtreatmentofmental

healthproblemsamongincarceratedyoungpeople.Teams

shouldincludeinputfromclinicalpsychology,psychiatry,

socialwork,familytherapy,addictioncounselling,

probationandclinicalnursespecialist.

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Implications for assessment

ScreeningAlldetaineesshouldbescreenedforthepresenceof

psychologicaldisordersandintellectualdisabilitieson

entrytodetention.

Comprehensive multi-disciplinary assessmentAnyyoungpersonidentifiedasatriskofexperiencinga

mentalhealthdifficultyshouldreceiveacomprehensive,

multi-disciplinaryteamassessment.Thisshouldfollow

bestpracticeguidelines,resultinadiagnosisand

highlightkeypredisposing,precipitating,maintaining

andprotectivefactorsassociatedwitheachyoung

person’smentalhealthdifficulties.Aformulationofeach

child’sdifficultiesshouldleadtothedevelopmentof

evidence-basedinterventionprogrammes.

Everyyoungpersonidentifiedthroughthescreening

processasatriskofexperiencinganintellectualdisability

shouldreceiveafulldiagnosticassessmentwhich

includesanevaluationoftheircognitiveabilitiesand

adaptivefunctioning.Allyoungpeople,regardlessof

theirmentalhealthstatus,requireacomprehensive,

evidence-based,multi-disciplinaryassessmenttoidentify

factorsassociatedwiththeiroffendingbehaviour.The

identificationofprecipitating,predisposing,maintaining

andprotectivefactorsshouldleadtoaformulationof

theircriminalproblemsandleadtothedevelopmentof

aninterventionprogrammethataimstobreakpatterns

ofoffendingbehaviour.

Risk assessmentsThefindingshighlightedinthisreportpointtotheneed

forspecificpsychologicalriskassessmentsonentrytoa

detentionschool.Theaimoftheseassessmentsshould

betoestimatethelevelofriskofself-harmand/orthe

levelofriskthattheyoungpersonposestoharming

others.Assessmentsarealsorequiredtodeterminerisk

associatedwithsuddendiscontinuationofillicit

substancesonentrytodetention.Thiswillensurethat

substancewithdrawalisbothcontrolledandsafe.Risk

assessmentsshouldclearlyspecifytheextentofriskand

factorsthatcanbetargetedtoreducethatrisk.This

informationshouldthenbeusedtoguideinterventions

withaviewtoeffectivelyreducingrisklevels.

Assessment of psychological needs prior to dischargeEachyoungpersonshouldbeassessedpriortotheir

discharge.Thisshouldaimtoidentifywhatstepsare

neededtoensureaseamlesstransitionfromstructured

lifeindetentiontooftentimesaveryunstructuredand

chaoticlifepost-release.Suchassessmentsshouldalso

informtheidentificationofandreferraltoappropriate

treatmentservicesinthecommunityandensure

continuityofcare.Pre-releaseassessmentsshouldalso

aimtoidentifysuitableeducationaloroccupational

placementswithinthecontextofeachyoungperson’s

cognitiveabilityandpersonalstrengths.The

identificationofriskfactorsthatarelikelytoleadto

exasperationofpsychologicaldifficultiesand/ortore-

engagementinpatternsofoffendingbehaviourshould

alsobeidentified.Thisinformationshouldleadtothe

developmentofappropriateinterventionswhichserveto

supporteachyoungpersonfollowingtheirrelease.

Re-assessmentRegularre-assessmentisrequiredthroughouteach

youngperson’speriodofdetention,especiallyintimes

ofincreasedstress.Thiswillensurethatappropriate

changestoeachchild’sinterventionprogrammeare

madeinaccordancewithfluctuationsandchangesin

theirmentalhealthneeds.

Implications for treatment

Psychological disordersTheresultsofmulti-disciplinaryteamassessments

shouldinformthedevelopmentofmulti-disciplinary

interventionprogrammes.Evidence-basedtherapiesthat

havebeenscientificallyshowntoreducecriminalityand

toreducepsychologicaldifficultiesaretheinterventions

thatshouldbedeliveredtoyoungpeople.Thereisa

largebodyofscientificevidencewhichsupportsthe

effectivenessofspecifictherapeuticapproachesfor

specificpsychologicaldisorders.Thisempiricalliterature

shouldbeusedtoensurethateffectivetherapeutic

interventionsaredeliveredtoyoungpeopleindetention

schools.Therapeuticapproachesshouldbeindividually

tailoredtoeachyoungperson’slevelofemotionaland

cognitivecompetence.

�


Intellectual disabilitiesThedevelopmentofspeciallydesignededucationaland

interventionprogrammesisrequiredtomeettheneeds

ofyoungpeoplewithintellectualdisabilitieswhoreside

indetentionschools.Additionalsupportsfromspecial

educatorsandpsychologistsarealsorequiredin

conjunctionwithsupportstosafeguardtherightsof

youngpeoplewithanintellectualdisability.

Skills-based intervention programmesAnumberofevidence-basedinterventionsshouldbe

automaticallydeliveredtoallyoungpeopleindetention.

Evidencebasedinterventionsthatimproveanger

managementskills,relaxationskillsandcognitive

thinkingskillsshouldbedelivered.Skillsbased

programmestoincreaseemotionalcompetenceshould

alsobedevelopedanddeliveredtoeveryyoungperson

indetention.

Staff training / psychoeducationStafftrainingandpsychoeducationshouldbedelivered

tohelpstaffrecognisesymptomsofpsychological

disordersandtounderstandtheinterplaybetween

psychologicaldifficultiesandayoungperson’s

behaviour.Trainingtosupportstaffinimplementing

strategiesthatwillassistyoungpeopletomanagetheir

problemsiswarranted.Stafftrainingonhowbestto

managedifficultandstressfulsituationsthatariseasa

resultofayoungperson’semotionalandbehavioural

problemsisalsoneeded.Inaddition,psychoeducation

onintellectualdisabilitiesandthemanagementof

problemsassociatedwithcognitivedeficitsiswarranted.

Implications for early identification and preventionEarlyidentificationofyoungpeoplewhoareatriskof

becominginvolvedandentrenchedinpatternsof

offendingbehaviourisimportant.Allyoungpeoplewho

cometotheattentionofGardaíasfirst-timeoffenders

shouldbereferredtocommunitycarepsychology

servicesforpsychologicalassessmentandintervention.

Pupilswhoengageintruancyanddisplayrepeated

behaviouraldifficultiesinschoolshouldbereferredby

schoolprincipalstocommunitycarepsychologyservices

forassessmentandintervention.

Implications for service monitoring and evaluation of service provisionSystemsthatevaluatetheeffectivenessofassessment

andinterventionproceduresandthatleadtoauditsof

thementalhealthservicesprovidedtoyoungpeoplein

detentionarerequired.Thiswillensurethatthe

psychologicalneedsofchildrenarebeingmeteffectively

andthatservicesarecost-effective.

Implications for research

Young people on the cusp of criminalityIntheinterestsofearlyinterventionandprevention,

empiricalresearchisrequiredtoidentifythe

psychologicalneedsofyoungpeoplewhoareonthe

cuspofinvolvingthemselvesincriminality.Researchis

neededtodescribethefunctionofsuchbehaviour,to

identifythefactorsthatarelikelytoprecipitateand

maintaincriminalbehaviourandtoanalysethe

psychologicalneedsofsuchyoungpeopleandtheir

families.Thiswillinformthedevelopmentanddelivery

ofcommunitybasedinterventionsthatareeffectivein

reducingoffendingproblemsinthecommunity.

Family characteristicsAcomprehensiveempiricalresearchprojectthat

describesthefamilycharacteristicsofyoungpeople

whoareindetentionisneeded.Identifyingimportant

familycharacteristicsthatareassociatedwithayoung

person’soffendingandmentalhealthproblemswill

guideandinformtheassessmentandtreatmentof

youngpeoplewithoffendingproblemswithinthe

contextoftheirfamilies.

Emotional competencyThedevelopmentofskills-basedemotionalintelligence

skillsprogrammesareneeded.Thisresearchshould

includeanevaluationoftheefficacyofsuch

programmesinincreasingtheemotionalcompetency

ofyoungpeoplewhoareincarcerated.

�0


ReferencesWebsite:www.juvenilementalhealthmatters.com

‘Emotionalintelligence,mentalhealthandjuvenile

delinquency’.Authors:DrJenniferMargaretHayes,

SchoolofPsychology,UniversityCollegeDublinand

HealthServiceExecutive–South;andDrGaryO’Reilly,

SchoolofPsychology,UniversityCollegeDublin.

Publishedby:JuvenileMentalHealthMatters,Cork,

Ireland,May2007

��


Social Exclusion and PrisonersTheevidencethatprisonersandex-prisonershave

experiencedandremainvulnerabletosocialexclusionis

overwhelming.AstudybytheSocialExclusionUnitin

2002foundthatprisonerswere:

n 13timesmorelikelytohavebeenincareasachild;

n 10timesmorelikelytohavebeenaregulartruant

fromschool;

n 13timesmorelikelytobeunemployed;

n 2.5timesmorelikelytohaveafamilymemberwho

hasbeenconvictedofacriminaloffence;

n 6timesmorelikelytohavebeenayoungfather;and

n 15timesmorelikelytobeHIVpositive.

Inrespectoftheirbasicskills:

n 80%hadthewritingskillsofan11yearold;

n 65%hadthenumeracyskillsofan11yearold;and

n 50%hadthereadingskillsofan11yearold.

Inrelationtohealth:

n 70%haduseddrugsbeforecomingtoprison;

n 70%sufferedfromatleasttwomentaldisorders;

n 20%ofmaleprisonershadpreviouslyattempted

suicide;and

n 37%ofwomenprisonershaveattemptedsuicide.

Foryoungerprisonersaged18-20theseproblemswere

evenmoreintense.Theirbasicskills,ratesof

unemploymentandpreviouslevelsofschoolexclusion

wereathirdworseeventhanthoseofolderprisoners.

Why is crime linked to social exclusion?Butwhyisitthatprisonerstypicallyhavethesekindsof

backgrounds?Ontheonehand,itislikelythatpeopleat

thehardendofincreasinginequalitymightbemore

temptedtoengageincriminalactivities.Butonthe

otherhand,itisalsotruethatpeopleindisadvantaged

communitiestendtobeoftenover-policedasoffenders,

whilebeingunder-policedasvictims.Ofcourse,once

peoplecometobecriminalised,oncetheybecome

recognisedasknownoffendersoras‘theusual

suspects’,theytendtobeevenmoreexcludedfrom

accesstoallsortsofsocialgoods(employment,housing,

healthservices,etc.)andevenmoreheavilypoliced.

Thesedynamics–ofexclusionandinequalityprovoking

crime,andofthealreadyexcludedbeingmore

criminalisedandexcluded,canresultinaviciouscycleof

socialexclusionleadingtocrime;crimeleadingto

criminalisation;andcriminalisationcontributingto

furthersocialexclusion.

Ratherthanseekingexplanationsofthesedynamicsin

thecharactersofoffendersorintheirlocalculturesand

subcultures,manycriminologistsrecognisetheprofound

influenceofwidersocialstructures,forcesandpressures:

‘Crimeoccurswherethereisculturalinclusionand

structuralexclusion…crimeisnottheresultofalackof

culturebutofembracingaculture of success and

individualism…itisnotmaterialdeprivationperse,nor

lackofopportunitywhichgiverisetocrime,but

deprivationinthecontextofthe‘AmericanDream’

culturewheremeritocracyisexhortedasopentoall’.

‘Crimeandintoleranceoccurwhencitizenshipis

thwarted;theircauseslieininjustice,yettheireffectis,

inevitably,furtherinjusticeandviolationofcitizenship’.

(Young,1999)

Understanding desistance Somuchforconsideringthelinksbetweensocial

exclusion,crimeandcriminalisation;whatdoweknow

aboutendingoffending?Incontemporarycriminology,

thereismuchinterestin‘desistance’fromoffending.

Desistancecanbedefinedasceasingandrefraining

fromoffendingbehaviour.MarunaandFarralldrawan

importantdistinctionbetween‘primarydesistance’,

whichreferstoanylullinoffending,and‘secondary

desistance’,whichinvolvestheindividualcomingtosee

himorherselfasanex-offenderornon-offender.Ina

SOCIAL INCLUS ION, SOCIALCAP ITAL ANDRE INTEGRAT IONDrFergusMcNeill,ScottishCentreforCrimeandJusticeResearch

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sense,secondarydesistanceis(orshouldbe)the‘holy

grail’ofoffendermanagement.

Whatdoweknowabouttheprocessofdesistance?

Firstly,itisaprocesscharacterisedbyambivalenceand

vacillation.Itisnotanevent.Desistancemaybe

provokedbyageing,byrelatedlifeeventsandby

developingsocialbonds,dependingonthemeaningof

thoseeventsandbondsfortheoffender.Desistancemay

beprovokedbysomeone‘believingin’theoffender.

Hopeseemstobeanimportantfactor.

Thereisanimportantongoingdebateaboutwhetheror

notdesistancetypicallyinvolvesachangeinnarrative

identities(orself-stories).However,itislikelythatsome

formofnarrativereconstructionisnecessaryfor

persistentoffenders.Desistanceseemstoinvolve

discovering(ordeveloping)agency–theabilitytomake

choicesandgovernone’sownlife.Persistentoffenders

tendtobefatalistic.Formanydesisters,desistanceis

about‘redemption’orrestoration;itofteninvolves

findingpurposethrough‘generativeactivities’.

Understanding social capitalDifferentformsofcapital,differenttypesofresourceson

whichpeoplecantrade,aresignificantinthedesistance

process.Desistanceprobablyrequiresmorethanjustthe

developmentofhumancapital(meaningcapacitiesor

resourcesthatliewithintheperson).Thissuggeststhat

‘offendermanagement’needstobeaboutmorethan

sponsoringchangewithinoffenders.Socialcapitalrefers

totheresourcesthatinhereinoursocialnetworksand

relationships.Therearedifferenttypesofsocialcapital:

n Bondingsocialcapital(horizontal):denotesties

betweenpeopleinsimilarcircumstances(families,

closefriends,neighbours).Strongties(homophily),

servingexpressivepurposes.

n Bridgingsocialcapital(horizontal):includesmore

distantties(loosefriendshipsandworkmates).Weak

ties(heterophily),servinginstrumentalpurposes.

n Linkingsocialcapital(vertical):connectstounlike

peopleindissimilarsituations,enablingaccessto

amuchwiderrangeofresources,externaltothe

community,servinginstrumentalpurposes.

(seeforexamplePutnam(2000);Woolcock(2001);

Lin(2001))

Social capital, offending and desistanceSeveralstudieshaveexaminedhowsocialcapital

contributestooffendingandtheprocessofdesistance.

Amongtheirfindingsare:

n Areassufferingfromsocio-economicdeclineand

embeddeddisadvantagemayhavestrong

neighbourhoodswithsignificantbondingsocial

capital–butthistendstomeanclosetiesbutlimited

mobilities.Moreover,repeatoffendersinsuch

communitiesoftenexperiencediminishingand

disruptedbondingsocialcapitalandaretherefore

drivenbackintoproblematicnetworksthatfrustrate

desistance.(Websteretal.,2006)

n Moregenerally,itmaybethatoffendingand

desistancearebestunderstoodasanage-related

processoftransition:offendersoftenbegin

offendinginchildhood,persistthrough‘youth’and

desistasadults.Onewayofexplainingthisisto

considerthedifferencesinourabilitiestoaccumulate

andexpendcapitalatdifferentstagesinthelife

cycle.Theelongatedyouth-adulttransitionstypical

oflate-modern,post-industrialsocietiesmay

frustratedesistancebylimitingaccesstolegitimate

socialcapitalandinfluencingyoungpeopleto

accumulatetoexpendillicitformsofcapital.

(Barry,2006)

‘Offender management’ and social capitalWhatdoweknowaboutwhatprobationandother

servicesmightdoinordertoassistoffenderstodesist?

n ‘Indirectprobationwork’hasbeenfoundtohavean

importanteffectthroughworkingonstrengthening

relationshipsandemploymentprospects.Probation

officerscouldandshouldactaslinkstosocialcapital

andactivatorsofsocialcapital.Probationworkwith

families(familiesoforiginandofformation)was

significantforprobationers.Probationofficerswere

alsoimportantindevelopingtheworkprospectsof

probationersviajobcreationschemes(socialcapital),

aswellasemployability(humancapital)work.(Farrall

2002,2004)

��


n Whatkindsofsupportmatteredtopeopleon

probationtryingtoaddresssocialproblems?They

valuebeinglistenedto,talkingaboutproblems,

receivingadviceandguidance,workingin

partnership,andinvolvingtheirfamilies.Tosome

extentthecontemporaryemphasisonoffence-

focussedworkcanmarginalisesuchsupport,but

suchworkmattersinhelpingoffenderstomake

linksbetweeninterventionsandwiderprocesses

ofchangeintheirlives.(McCulloch,2005)

Giving up… and giving back (McNeill and Maruna, �00�)Desistancealsoseemstobepromptedby,ortoinvolve,

developinggenerativeactivities.Generativitycanbe

definedas:‘Theconcernforandcommitmentto

promotingthenextgeneration,manifestedthrough

parenting,teaching,mentoring,andgenerating

productsandoutcomesthataimtobenefityouthand

fosterthedevelopmentandwell-beingofindividuals

andsocialsystemsthatwilloutlivetheself’(McAdams

anddeSt.Aubin,1998).Intermsofthelifecourse,

generativitydevelopsatthetimethatdelinquency

dissipates;generativecommitmentsfillavoid,making

criminalitypointlessortoorisky.

‘Redemptionscripts’arecare-oriented,other-centred

andfocusedonpromotingthenextgeneration:

somethingtoshowforone’slife;rewards,respectability,

andrecognition–alllinkedtogenerativepursuits.

(Maruna,2001)

Therearefourkeyimplicationsintermsofusingsocial

capitaltoencouragedesistance:

a) Reintegration and families of origin

Weneedtoreasserttheimportanceof:

n Engagementwithfamilies(oforigin)throughhome

visitsandfamilywork.

n Rebuildingandrenewingpositivefamilybonds,

allowingaccesstotheresourcesofbondingsocial

capital.

However,thesuitabilityofthisstrategydependsonthe

ageandstageoftheoffender,andthenatureofthe

familyanditsdynamics.

b) Reintegration and families of formation

Thesignificanceofgenerativitysuggestsaproductive

focusforreintegrationaroundnewanddeveloping

relationships;parentingandpreparationforparenting;

andotherpotentialgenerativeactivities,includingcivic

volunteering.Suchworkmayhelpex-offenderstobuild

newbondingsocialcapitalandtodevelopnewbridging

socialcapital,vianewrelationshipsandassociations

relatedtogenerativeactivities.

c) Reintegration and community development

Effectivereintegrationrequiresengagingcommunitiesin

orderto:

n Prepare(ex-)offendersforandassistthemin

accessingwidersocialnetworks,includingthrough

employment(bridging).

n Preparecommunities(includingemployersandother

agencies)for(ex-)offendersandsupportthemin

workingwith(ex-)offenders.

Thismediationandadvocacyisnecessaryinorderto

facilitatethedevelopmentofbridgingsocialcapital

withincommunitiesandinthedevelopmentoflinking

capitalacrosssocialgroupsandsocialhierarchies.

d) Reintegration and public attitudes

Developingthesocialcapitalofavilifiedgroupisnot

easyininsecure,late-modernsocieties.Itrequires

probationandotherservicestogivesomeattentionto

communityre-assuranceandcommunityengagement

andtothinkaboutthesignalsthattheysendintermsof

crime,justiceandsecurity(Innes,2004).Itispossible

thatcommunitiesthatfeelbetterprotectedwillbemore

willingtoreintegrateandincludeex-offenders(Bottoms

andWilson,2004).Communityjusticeandreintegration

agenciesthereforeneedtosendsignalstothe

communitytochangepublicattitudes:

n control/protectionsignalsthatmakecommunities

feelsafer;

n restitution/reparationsignalsthatsatisfylegitimate

demandsforjustice;and

n reformation/redemptionsignalsthatpromotebelief

thatpeoplecananddochangeandshouldbe

supportedtodoso,inallofourinterests.

��


Thesuccessofsuchsignalsmayhavemajor

consequencesforthecapacityofthecriminaljustice

systemtogeneratewideropportunitiesforthe

developmentofsocialcapital,andwithitreductionsin

re-offending.

References and resourceswww.sccjr.ac.uk

websiteoftheScottishCentreforCrimeandJustice

Research

Barry,M.(2006)YouthOffendinginTransition.The

SearchforSocialRecognition.London:Routledge.

Farrall,S.(2002),RethinkingWhatWorkswith

Offenders:Probation,SocialContextandDesistance

fromCrime.Cullompton:WillanPublishing.

Farrall,S.(2004a)‘Supervision,motivationandsocial

context:Whatmattersmostwhenprobationersdesist?’

inMair,G.(ed.)(2004)WhatMattersinProbation.

Cullompton:Willan.

Farrall,S.(2004b)‘Socialcapital,probationsupervision

anddesistancefromcrime’,inMaruna.S.and

Immarigeon,R.(eds.)AfterCrimeandPunishment:

Ex-OffenderReintegrationandDesistancefromCrime.

Cullompton:Willan.

Lin,N.(2001)Socialcapital:atheoryofsocialstructure

andaction.Cambridge:CambridgeUniversityPress.

McAdams,D.P.anddeSt.Aubin,E.(1998)

‘Introduction’inD.P.McAdams&E.deSt.Aubin(eds),

Generativityandadultdevelopment:Howandwhywe

careforthenextgeneration(pp.xix–xxiv)Washington,

DC:AmericanPsychologicalAssociation.

McCulloch,P.(2005)‘Probation,socialcontextand

desistance:Retracingtherelationship’,Probation

Journal,52(1):8-22.

McNeill,F.andMaruna,S.(2007forthcoming)‘Giving

UpandGivingBack:Desistance,GenerativityandSocial

WorkwithOffenders’inMcIvor,G.andRaynor,P.(eds.)

DevelopmentsinWorkwithOffenders.London:

Routledge.

Maruna,S.(2001)MakingGood.Washington,D.C.:

AmericanPsychologicalAssociation.

Putnam,R.D.(2000)BowlingAlone:Thecollapseand

revivalofAmericancommunity.NewYork:Simon&

Schuster.

SocialExclusionUnit(2002)Reducingreoffendingby

ex-prisoners.London:OfficeoftheDeputyPrimeMinister.

Webster,C.MacDonald,R.andSimpson,M.(2006)

‘PredictingCriminality?RiskFactors,Neighbourhood

InfluenceandDesistance’,YouthJustice,6(1):7-22.

Woolcock,M.(2001)‘ThePlaceofSocialCapitalin

UnderstandingSocialandEconomicOutcomes’inJohn

F.Helliwell(ed.)TheContributionofHumanandSocial

CapitaltoSustainedEconomicGrowthandWell-Being.

Ottawa:HDRC(ProceedingsofanOECD/HRDC

conference,Quebec,March19-21,2000).

Young,J.(1999)TheExclusiveSociety.London:Sage.

��


CongratulationstotheAssociationforCriminalJustice

ResearchandDevelopment.You’veorganisedan

extraordinaryprogrammeforyourTenthAnnual

ConferenceandI’mtrulyhonouredtobeincluded.Thank

you,MauraButlerandGeraldineComerfordforinvitingme

toparticipate.I’mparticularlypleasedtobehereinthe

companyofSecretaryGeneralSeánAylward,oneofthe

foundersofthisassociation.ButforSeán,I’dstillbe

workingawayinBoston.Itwashisinfectiouspassionfor

hisworkandcommitmenttoreformthatconvincedme

tomovethreethousandmilesfromhome.Noregrets

whatsoever.Thisisanexciting,changinglandscapeandit’s

aprivilegetobeapartofit.Asarelativenewcomertothis

island,Iappreciatetheopportunitytolearnfromallofyou

andI’mcertainthatI’vegainedmorefromthisexperience

alreadytodaythanI’llcontribute.

WhilethisismyfirstexposuretheAssociationforCriminal

JusticeResearchandDevelopment,itiscleartome,having

reviewedsomeofyourmaterials,thatI’minthepositionof

preachingtothebelieversthisevening.I’vecometorealise

overthecourseof28yearsinpolicing,thatastrongmulti-

disciplinary,collaborativeapproachisnotonlybeneficialin

thecriminaljusticearena–itisabsolutelyessential.Itis

clearfromthisgroup’strackrecordand,indeed,fromthe

agendayou’vedevelopedforthisprogrammethatweall

shareinthisbelief.

I’dliketotouchbrieflyonthreethingsthisevening-first,

theglobalchangethathasoccurredoverthepastfew

decadesinpolicingandcriminaljustice-second,the

importanceofcollaborationandsomereallifeexamplesof

it.Onthesefirsttwotopics,I’llspeakwiththebenefitof

myexperienceinU.S.policing.Inwrappingup,I’llcovera

thirdtopic-myfirstimpressionsofpolicinghereIreland

andsomethoughtsformovingforward.

A quick trip down Memory Lane Istartedmypolicecareerataverydifferentplaceintime

–whengroupssuchasthisdidn’texistandcollaboration

wasawordforeigntomyvocabulary.WhileI’mnotone

todwellonthepast,Ithinkit’simportantto

acknowledgetheevolutionthathastakenplaceinthe

criminaljusticearenasinceIfirststartedinthepolice

servicemanyyearsago.

WhileIhavefondmemoriesofmyBostonPolice

Academyexperiencebackin1979,unfortunately,Ican’t

sayitsufficientlypreparedmeforthechallengesIfaced

asayoungpatrolofficer.Inessence,Iattendedamilitary

bootcamp.Noexaggeration.Myphysicaltraining

instructorwasaformerU.S.Marine.Wespentan

inordinateamountoftimeondrillandceremonyand

littleornotimeonpreventionandproblemsolving.

Wewereencouragedtogooutandfightthewaron

crime,thepolicevs.thecommunity.

DuringthoseearlydaysasayoungBostonpoliceofficer,

Inevercrossedpathswithprobationofficersorparole

officers.Socialworkersandhealthcareproviders

operatedinadifferentworld.Occasionally,Ididsee

ateacher,butonlywhendeliveringatruantbackto

school.NGOwasacompletelyunfamiliartermandthe

privatesectorwasnotonlyadifferentworld,buta

differentuniverse.

Wedrovefastcarswithlightsandsirensandchased

Priority911calls.Imadelotsofarrests,savedsomelives,

deliveredafewbabiesandlovedeveryminuteofit.

Itwasallveryexcitingandwecertainlyworkedhard.

Butunfortunatelywefailed.Crimeratesinour

neighbourhoodscontinuedtosoarandthequalityof

lifeinourcitycontinuedtodeteriorate.Somethingwas

dramaticallywrongwithourpolicingstrategy.

Itwasn’tuntiltheearlytomid-eightiesthatsomeof

themorethoughtfulcriminaljusticeacademicsand

progressivepolicemanagersintheU.S.startedtalking

aboutanewparadigm–thebirthof,orsomewould

argue,therebirth of communitypolicing.It’saterm

thatwasverybroadlyusedatthetimetodescribea

varietyofpolicingstrategiesthatemerged.The

definitionusuallydifferedfromcitytocity,townto

AFTER-D INNERSPEAKERKathleenO’Toole,ChiefInspector,GardaSíochánaInspectorate

��


town.Infact,it’satermthatisstillwidelyused,but

seldomsufficientlyorproperlydefined.

Fortunately,BostonwasoneofthefirstU.S.citiesto

embracethisnewnotionofcommunitypolicingduring

the1980s.Whiletheirintentionsweregood,ourpolice

leadersatthetimedebatedhowthisnewtheorywould

applyintherealworld.Differingopinionsemerged.

Totheircredit,atleasttheywerewillingtoexperiment

andstucktoit.

InBoston,first,therewerethenewlydesignated

‘communitypoliceofficers’.Irememberbeingaskedby

mysupervisor,SergeantCelona,ifI’dconsiderapplying

fortheposition.‘Godno’,Isaid,‘I’marealcop.I’mnot

asocialworker’.It’sfrighteningwhenIthinkbackonit,

butsadly,thatwasmyresponse.Idon’tthinkanyone

volunteeredandthosewhowereassignedwereoften

tauntedbytheirpeers.Intheeyesofthe‘realcops’,

thesecommunityofficers(a.k.a.socialworkers)only

providedonebenefit.Theyexcusedtherestofusfrom

doingit.Wewantednopartofit.Wecontinued

respondingtoourradiocallsforfeloniesandlife-

threateningsituations.Afterall,that’swhatwewere

trainedtodo.That’swhatpolicingwasallaboutin

oureyes–carchases,gunfights,felonyarrests–the

waroncrime.

Ittooktimeformoreeffectivecommunitypolicingto

takerootinBoston.Weeventuallyrealisedthatourwar

oncrimewasgettingusnowhere.Communityleaders

wereangryanddemandingmore.Weweredesperateto

stemthetideofviolenceanddisorderthatplaguedso

manyneighbourhoods,especiallythoseinourinner

cities.Youthviolencewasofparticularconcern,with

gangcrimeandteenagehomicideratesgrowingata

staggeringpaceinthelateeightiesandearlynineties.

Inretrospect,itwasdefinitelythatyoungbloodshed

onurbanstreetsthatprovidedthecatalystforchange.

Thepolicewerekeyagentsinthatchangeprocess,

butrepresentativesfromotherfacetsofcriminaljustice

wereequallycommitted.Wereachedouttocommunity

leadersinthemostchallengeddistrictswho,totheir

credit,steppedupandralliedtheirneighboursin

supportofcollaborativeinitiativestotakebackourcity,

blockbyblockifnecessary.

Solidpartnershipswerekeytoourefforts.Wenotonly

brokedownturfbarriersandlearnedtoharnessour

criminaljusticeassets;weinvolvedthedepartmentof

education,theclergy,heathservices,mentalheath

services,socialservices,NGOs,theprivatesector.You

nameit.IfI’vemissedanyone,Iapologise.Wewelcomed

allhonestbrokers.Weinsistedthatindividualagendasbe

leftatthedoorandgaveeveryoneanequalvoiceatthe

table.Yes,thereweresomeveryspiriteddebates,butwe

workedthroughthem.Wehadto.Ourgoalwastoo

precious–tosaveourcity,especiallyourchildren.

Sobeganournew,sensiblemodelofpolicing.Didwe

establishpolicestatesinourpoorurbanneighbourhoods?

NO.Didwesaturatethestreetswithriotpolicewith

automaticweapons?NO.Didwerelentlesslyharass

youngmenofcolourwhowereloiteringonstreet

cornersbecausetheywereunemployed?NO.Didwe

establishcurfewsandarrestquotas?NO.

What did we do?Afterbreakingtheturfbarriers,welearnedtobetter

harnessourresources.Usingtimelyinformationand

goodtechnologytools,wefocusedoureffortswith

greaterprecisiononimpactplayersandkeylocations.

Sure,wemadelifemiserableforthethugs,the2-3%

ofthepopulationwhowerewreakinghavocforthe

vastmajority-thedecent,law-abidingpeoplewhohad,

unfortunately,beenlivinginterror.Forthegoodkids,

orthoseontheedge,weprovidedopportunities:

after-schoolprogrammes,summercamps,mentoring

programs,part-timeandsummerjobs.Wedeveloped

re-entrystrategiesforoffenderswhowouldinevitably

returntoourcommunities.Weworkedwithpoliticians

andtheprivatesectortoimproveinfrastructureand

services,toregenerateneighbourhoodsandaddress

qualityoflifeissues.Wecametorealisethatprevention

andinterventionareasimportant,orshouldIsay,more

importantthanenforcement.Weweredeterminedto

preventthetragediesratherthanpickupthepieces

afterthefact.

Communitypolicingwasnolongeranassignmentora

unit.Itwastheethosonwhicheverythingelsewasbuilt.

Anditwasn’tlefttothepolicealone.Everysuccessful

strategywasaholisticone,involvingengagedand

��


committedcommunitymembersandpartner

organisations.The‘realcops’stillracedto911callsfrom

timetotime,butfinallyunderstoodthattheBoston

PoliceDepartmentwasapoliceserviceandnotsimply

apoliceforce.The‘samecop,sameneighbourhood’

deploymentstrategypaidhugedividends,buildingtrust

andalliancesbetweenpoliceonthefrontlinesand

thoseworkingandlivinginourcommunities.

Thegoodnews–successcamequicklyontheheelsof

ournewmodel.In1990,theworstyearever,therewere

morethan150homicidesintheCityofBoston,mostof

themgangrelated,manyvictimsyoungteenagers.In

justafewyears,wecutthatnumberinhalf.

WhileBostonandmanyotherU.S.citiesremainmuch

safertodaythantheywereadecadeortwoago,thereis

anunfortunatefootnotetothisstory.U.S.Government

prioritiesshiftedattheturnofthemillennium.The

substantialfederalpolicinggrantsoftheninetieswere

slashed.Ofcourse,thesecutsparticularlyhithomein

theurbancentres,intheveryareaswherewewere

finallymakingprogress.WhatdidthatmeantoBoston,

forexample?Nomoresamecop,sameneighbourhood.

Wehad15%fewpolice.Worsethanthat,manyof

thesuccessfulprevention,intervention,anddiversion

programmesthatwe’dworkedsohardtodevelop

sufferedseriouscutbacks.Allofthisinthefaceofa

rapidlyincreasingjuvenilepopulation.

Whileitsoundsabitdire,mostofusherehavebeenin

ourrespectivepositionslongenoughtohaveseenthe

fiscalpendulumswingfromsidetoside.I’mtheeternal

optimistandcanalreadyseesomelightattheendof

thetunnelforthoseintheU.S.There’snowapolitical

revoltandfortunately,policechiefsandothercriminal

justiceprofessionalsarenotaloneinleadingthecharge.

Thecommunitiesweworkedsohardtoengagearenow

standingshouldertoshoulderwiththeirpartnersonthe

frontlinesdemandingareturntotheprioritiesofthe

ninetiesandearly2000s.Andwhilefiscaltimeshave

beenchallenging,therelationshipsremainintact.We

nowknowwhatdoeswork-thestrategiesthatare

triedandtrue.Collaboration–Prevention–Intervention

–andyes,whenneeded,focused,relentless,effective

enforcement.Allofthisbuiltonasolidfoundationof

communitypolicingandhumanrights.

IrelandIfitworksinBostonandNewYorkandChicago,will

itworkinDublin,Limerick,andCork?Abitaboutmy

firstimpressionsofIrishpolicing.Inmyexperience,

therearemanythingsthatareuniversaltopolicing

indemocracies.ConsiderthePattenReport,issuedin

1999.175recommendations,mostofthemgeneral

topolicinginanydemocraticenvironment–onlyafew

ofthemspecifictothecultureanduniquechallenges

ofNorthernIreland.

That’showtheGardaInspectoratewilldoitsworkhere

inIreland.Wewillnotreinventthewheel.Underlaw,

theGardaSíochánaActof2005,ourremitrequiresus

tobenchmarktheIrishPoliceagainstbestinternational

practices–tobringgreatereffectivenessandefficiency

topolicinginIreland.Ontheotherhand,mycolleagues

andIrecognisetheneedtocultureproofour

recommendationsfortheuniqueIrishenvironment.

Forinstance,wehavegreatrespectforthefactthat

themembersofAnGardaSíochánapolicetheir

communitieswhileroutinelyunarmed.Wehopethat

willalwaysbethecase.

First impressions of IrelandHereisaquicksynopsisofmyfirstimpressionsof

policinginIreland.

Thelandscapeischangingrapidlyandnewchallenges

haveemerged.Guns,gangsanddrugsaremore

prevalent(fortunately,notasprevalentasintheplace

Icamefrom).

Thereisnoreasontoreinventthewheel.Strategiesthat

haveworkedelsewherecanbefine-tunedfortheunique

Irishenvironment.

Thegoodnews:thevastmajorityofIrishpeoplestill

supportAnGardaSíochána.I’vespentlotsoftime

talkingtopoliceonthefrontlinesoverthepastyear,

butI’vespentequaltimetalkingtothepeoplethey

serve.Yes,withrecenttribunalreports,confidencehas

beenshaken,andrightfullyso.

Theremustbeanacknowledgementofthemistakesof

thepastandaplantoensurethattheproblemsdonot

resurface.

��


Yes,theIrishpeoplearelookingforreassurance,they

aredemandingmorevisibleandeffectiveservice,but

theystillstandfirmlybehindtheirpolice.

Also,onapositivenote–thevastmajorityofpolice

(withfewexceptions)recognisetheneedtoembrace

change–theywanttobeaprofessional,modernpolice

service.Theyarewillingtoconsidernewideasandhave

welcomedoutsideinput.

Imustsaythatthequalityofpersonnelhereisexcellent,

betteronaveragethanthepoliceagenciesI’veworked

inorstudied.

Therearemanyintelligentandcommittedindividuals

throughouttheranks.Thatbodeswellforthefuture.

Mostimportant,it’stimetomoveon.While

acknowledgingthepast,wecan’tdwellonit.Thereis

toomuchatstake–ourcities,ourtowns,ourrural

communities,ourchildren.

Nowisthetimetoconcentrateonthefuture–forallof

ustobettercollaborate,toharnessresources,tofocus

oureffortsandtocreateamodelofcommunitypolicing

andcommunityjusticesecondtonone.

��


Thelinkbetweenre-offending,reintegrationand

housingproblemshasbeenidentifiedinprevious

research(Farrall,2002;SocialExclusionUnit,2002).

However,beyondanacknowledgementofthe

relationshipbetweenoffendingandhomelessness,there

hasbeenlittleexplorationinthecriminaljustice

literatureaboutthecontextandexperienceof

homelessnessorhowitimpactsonattemptsat

reintegration.Thispaperbeginsbyexaminingthe

definitionandconceptualisationofhomelessnessbefore

goingontoexaminethepathwaysintoandthrough

homelessnessandthebarrierstoreintegrationas

identifiedfromtheprisoners’perspective.These

pathwaysandperspectivesprovidesomeinsightintothe

relationshipbetweenhomelessness,problemswith

reintegrationandre-offending.Thefindingssuggest

thatcontrarytocommonstereotypesofhomelessness,

theexperienceisdiverseintermsofthecause,lengthof

time,locationofhomelessnessandexperienceof

institutionalisation.Thepaperconcludesbysuggesting

thatindividualsdemonstratesomecapacityto‘manage’

theirhomelessness,fromconsiderationsrelatingto

disclosureoftheirhomelessstatustodecisionsabout

homelessaccommodation–theimplicationsoftheseare

discussedwithinthecontextofreintegration.

Thispaperisbasedonfindingsfromquestionnairebased

interviewswithasampleof241prisonersacrossallof

theseveninstitutionsoftheIrishPrisonServiceinDublin;

officialcourtrecordsofindividuals[9,794cases]

(excludingsummons)appearingbeforetheDistrict

(includingtheChildrenandDrugTreatmentCourt)and

CircuitCourtsintheDublinMetropolitanareaandall

referralstotheProbationServiceoverasix-weekperiod.

Defining and Quantifying HomelessnessHomelessnessisdiverselyexplainedasasituation

characterisedbypoverty,socialexclusion,

disengagementandisolation.Itmaybe‘visible’inthe

formofindividualslivinginpublicplacesor‘concealed’

incaseswhereindividualsstaytemporarilywithfamily

andfriendsbecausenootherhousingalternativeexists

orisaccessibletothem.Theproblemofdefining

homelessnessiscompoundedbythemannerinwhich

theconceptisinterpreted.Astudyofyounghomeless

peoplefortheThreeCitiesProject(Carlen,1996)found

thatalthoughallparticipantsweresleepingrough,

stayinginhomelesshostelsorintemporary

accommodationatthetimeofinterview,only67per

centdescribedthemselvesashomeless.Thiswasdueto

someparticipantsinterpretinghomelessnessonlyasthe

notionofsleepingroughandnotiftheyhadsomeform

ofaccommodation,howeverunstable,suchasahostel

bed.Othersdidnotconsiderthemselveshomeless

becausetheywereemployedorenrolledineducation.

Suchdifferencesintheinterpretationoftheconcept

indicatethatthetermhomelessnessis‘encrustedwith

layersofothersignificationsrelatingto(lackof)social

tiesand(lackof)socialrespectability’(Carlen,

1996:104).

Quantifyingthenumberofindividualsinthecriminal

justicesystemwithhousingdifficultiesisequally

problematic.IntheUK,itisestimatedthatintheregion

ofone-thirdofindividualsarenotlivinginpermanent

housingpriortoimprisonment(SocialExclusionUnit,

2002).Fearingthatdisclosureoftheirhomelessstatus

HOMELESSNESSANDOFFENDING:MARGINALISATION,SEGREGATIONANDTHECHALLENGESTOSOCIALINCLUSIONDrMaireadSeymour,SchoolofSocialSciencesandLaw,DublinInstituteofTechnology

�0


willincreasethelikelihoodofbeingsenttocustody,

orreducetheirchancesoftemporaryrelease,itisnot

uncommonforhomelessoffenderstoprovideaprevious

addressorafamilyorfriend’saddresstothecourtsor

prisonauthorities(Baldry,2001).Asaresult,official

statisticsarelikelytounder-representtheactualnumber

ofhomelessindividualsinthecriminaljusticesystem.

Inthepresentstudy,itemergedthatonly1.6percent

ofindividualsappearingbeforethecourtsintheDublin

Metropolitanareaand9.3percentofcasesreferredto

theProbationServiceoverasixweekperiodwereidentified

ashomeless.Incontrast,self-reportdatagatheredfrom

questionnairebasedinterviewswithprisonersfoundthat

25percentreportedbeinghomelessatthetimeof

committaltoprisononthecurrentoccasion.

Pathways into HomelessnessAlmosttwo-thirds(64%)ofallprisonerswithacurrent

orprevioushistoryofhomelessnessstatedthattheirfirst

homelessexperienceoccurredbeforeorduringtheir

teenageyears(13-19years).Whilethereasonsfor

homelessnesswerediverse,thefactorsmostcommonly

associatedwiththefirsthomelesseventwererelated

tofamilyrows/relationshipbreakdownand/oralcohol

anddrugproblems.Researchpresentedinareportby

CASE(2000)suggeststhatfamilyconflictisoneofthe

strongesttriggersforyouthhomelessnessinthe

immediatetermanditisalsolinkedtoanincreasedrisk

ofhomelessnessinthefuture.Furthermore,inlinewith

previousresearch(RandallandBrown,1999),overone-

thirdofprisonershomelessoncommittalreportedthat

theyhadspenttimeinresidentialcareasachild.When

askedabouttheirperceptionsoffamilycontactand

supportbefore,duringandafterimprisonment,

homelessprisonersalsoreportedlowerlevelsoffamily

contactthantheremainderofprisonersinthesample.

Giventheearlyageofentryontothehomelesscircuit

itisperhapstobeexpectedthatprisonerswereunlikely

toidentify‘leavingprison’asthereasonforfirst

becominghomeless.Only7%ofthosewithahistory

ofhomelessnessidentified‘leavingprison’asthereason

forfirstbecominghomeless.Rather,itappearedthatfor

thosewithexperienceofhomelessnessbeforecommittal

tocustody,imprisonmentwaspotentiallya‘trigger’for

subsequentepisodesofhomelessness.Thetimeof

releasefromprisonhasbeenidentifiedas‘atriggerthat

leadsdirectlytothestreets’(GreaterLondonResearch

Authority,2000:7).Thismaybeduetofactorssuchas

prisonerslosingtheirlocalauthoritytenancyorprivate

rentedaccommodationoncommittaltoprison,and/or

abreakdowninfamilyorpartnerrelationships,amongst

otherfactors.Withoutadequateplanningpriorto

release,toarrangeaccommodationandwelfare

payments,prisonerscanfindthemselveswithfew

alternativestohomelessness.

Theevidencesuggeststhatthosewithvulnerable

personalcircumstancesatthetimeofentrytoprison

aremostatriskofhomelessnessonrelease-inastudy

bytheGreaterLondonResearchAuthority(2000)it

emergedthatthosewithsupportivefamilyandother

inter-personalrelationshipswerereturningtotheir

previoushomewhereasthosewithunstablehousing

arrangementspriortoimprisonmentwerebeing

releasedintosimilarcircumstances.Thesefindingsare

supportedinthecurrentstudywhereitwasfoundthat

80percentofhomelessprisonerscomparedtoonly27

percentoftheremainderthoughthousingwouldbea

problematicissueonrelease.Therewere,however,a

numberofprisonerswhohadneverbeenhomelessprior

tocommittaltoprisononthecurrentoccasion,but

consideredthathousingwouldbeaproblematicissue

forthemonrelease.Almostone-thirdofthosewho

hadaccommodationpriortoimprisonmentreported

thattheywereunableto,prohibitedfrom,orchosenot

toreturntotheiraccommodation,andweretherefore

potentiallyatriskofhomelessness.Thesefindingsreflect

similarpatternsfromstudiesofhomelessprisonersin

theUK(Carlisle,1996;Paylor,1992)andindicatethat

homelessnessisaconsiderableproblemformany

individualsleavingprison.

The Homeless Process and the Criminal Justice SystemAgrowingbodyofliteratureonhomelessnessinthe

generalhomelesspopulation(Anderson&Tulloch,2000;

Fitzpatricketal.,2000)identifieshomelessnessasa

processratherthanastaticsituation.Itisdescribedas

‘thenotionthatindividualsandhouseholdsmaymove

betweenbeinghomeless,poorlyhousedand

��


adequately/well-housed’(Anderson&Tulloch,2000:4).

Anaddeddimensiontothe‘homelessprocess’forthose

whocomeintocontactwiththecriminaljusticesystem

isthepossibilityofmovingintotheprisonsystem.

Themajorityofhomelessprisonersinthisstudyhada

diverseandlengthyhistoryofbothhomelessnessand

imprisonmentpriortotheircurrentcommittal.

Overall,thediversityofthehomelessexperiencefor

prisonerscouldbecategorisedunderanumberof

headingsincludingtheepisodicnatureofhomelessness;

lengthoftimehomeless;locationofhomelessnessand

institutionalisation(imprisonment).

Episodes of HomelessnessAmajorityofindividualsmovedinandoutof

homelessnessfromthetimeoffirstentry.Justover40%

experiencedhomelessnessasonecontinuousperiod;in

contrast,almost60%hadbeenhomelesstwoormore

timesovertheirhomeless‘career’(ofthose25%had

beenhomeless10ormoretimes).Forthislattergroup,

homelessnesswasapathwayfromwhereonediverted

intermittentlyontoanon-homelessroutebyvirtueof

returningtothefamilyhome,co-habitingwithanon-

homelesspartnerand/oraccessingindependenthousing.

Length of Time HomelessHomelessprisonerswerenotonlylikelytohave

experiencedhomelessnessfromayoungage,butthey

hadalreadyspentsubstantialperiodsoftimehomelessin

theirlives.Themajorityofthosehomelessoncommittal

toprisononthecurrentoccasion(88percent)hadbeen

homelessformorethansixmonthsand58percenthad

beenhomelessforthreeyearsormore.Theimplications

ofthesefindingsareimportantespeciallyinthecontext

thatthelongerindividualsarehomeless,themoredifficult

itisforthemtoreintegrateintomainstreamsociety

(HomelessAgency,2001).

Location of HomelessnessThediversityofthehomelessexperiencewasreflectedin

therangeoflocationswhereindividualsstayed.Allof

thosewhowerecurrentlyorpreviouslyhomelesswere

askedtoidentifytherangeofplacestheyhadstayed

whilehomeless.Themostcommonarrangementswere

stayingtemporarilywithfamilyandfriends(75%),

sleepingrough(64%),stayinginacar(63%),inahostel

(56%),inaB&B(56%)inasquat(48%),intransitional

housingunits(6%),and/orinlongtermsupported

housing(2%).Otherplacesindividualsrecalledstaying

inincludedhotels,housingassociations,atent,agarage,

thebackofchurches,fieldsandcaravans.

Almosttwo-thirds(64%)ofallprisonerswithaprevious

orcurrenthistoryofhomelessnesshadsleptrough.Over

halfofthosewhoprovidedreasonssaiditwasbecause

theydidnotlikehostels.Prisonersweremostcritical

abouttheuseofhostelsasaformofaccommodation,

describingthesenseofinstitutionalisation,routineand

rulesassociatedwithsucharrangements.Oneofthemain

themesthatemergedwasthereluctanceofprisonersto

usehostelsifattemptingtostayoffdrugs:

Ifyouwanttobetteryourselfyoucan’tbeputbackinto

thesametypeofenvironmentwithdrugaddictsand

drunkards.Thereisnopointinreleasingaprisonerinto

ahostel,it’slikereleasingsomeonefromoneprisonto

another.Everyblokeyoumeetinthehostelyoumeetin

here.Amonthortwomonthslater,you’reback,it’sadead

endsituation(Male235,Remandprisoner,Cloverhill,Aged

45,stayinginahomelesshosteloncommittal).

InstitutionalisationCarlen(1983)arguesthathomelesspeopleareover-

representedintheprisonpopulationfortwomain

reasons.Firstly,theyhaveahigherreconvictionratethan

domiciledoffendersandsecondlytheirhousingstatus

maybeinstrumentalinacourt’sdecisiontoremandthem

tocustodyandsentencethemtoimprisonment.An

analysisofDublinDistrictCourtrecordsofhomeless

offenderssuggeststhathomelessoffendershaveahigher

numberofchargesagainstthemthandomiciledoffenders

(4.5versus1.5charges).However,inthemajorityofcases

thenatureofthecrimesarerelativelyminorinnature

e.g.theft,publicorderetc.Snowetal.(1989)alsooutline

anumberofprocessesbywhichhomelesspeopleand

roughsleepersinparticulararemorelikelytocommitan

offence.Theseincludeengagingincriminalbehaviourto

surviveonthestreets;thecriminalisationofstreetlife

includingdrinkinginpublic;andthestigmatisationof

streethomelessnesswherebytheirvisibilitymaymeanthat

theyaremorelikelytobeformallyprocessedforoffences

thatmightotherwisebeignored.

��


Asmentionedearlier,institutionalisationwasafeature

ofthehomelessprocessformanyhomelessprisoners.

Over90%ofthosecaseswhowerehomelesson

committaltoprisonandwheretheinformationwas

availablehadbeeninprisoninthepreviousfiveyears.

Themajority(69%)hadbeeninprisonbetweenoneand

fivetimesinthepreviousfiveyearsandalmostone-

quarter(24%)hadbeeninonsixormoreoccasions

withinthesametimeframe.

Prisonappearedtorepresentmorethanapunitive

institutionforsomehomelessprisoners.Accordingto

theiraccounts,itwasaplacetoreceivemedical

attention,respitefromtheharshconditionsofthe

streets,abed,adesignatedspace,regularmealsand

aroutine;constituentsofwhichwerelargelyabsentin

theirhomelessexistenceontheoutside.Innegotiating

thepathwaysofhomelessness,prisonappearedtobe

anotherstopontheinstitutionalisedcircuitof

homelessness:

Ihavenowheretolive,atleastifIcommitcrimeI’ve

aroofovermyheadinprisonandabedtosleepin.

IcompletedatenyearsentenceinOctober2002and

Igotreleasedontothestreets.Ihadnowheretogo

andIjustwentbacktocrime.Prisoniskeepingmealive.

OnlyforprisonI’dbedeadlongago.I’dbesleepingon

thestreetsandwiththevirus(HIV)Iwouldn’tlastlong.

(Male229,Aged32,Remandprisoner,Cloverhill,

sleepingroughoncommittal)

Barriers to Social InclusionAnumberofissuesemergedinrelationtoboth

prisoners’experiencesofleavingprisonandthe

necessarystrategiesrequiredtoalleviatedifficultiesfor

thosehomelessoratriskofhomelessnessonrelease.

Theseincludedtheneedforpre-releaseplanningand

support,informationabouttheprocessofaccessing

accommodation,improvedhousingprovisionand

follow-upsupportonrelease.

Pre-release Information, Planning and SupportPrisonersarticulatedtheviewthatinformationabout

howtoaccesshousingandwelfarebenefitswas

necessarypriortorelease.Thosewhowerepreviously

homelessweremostreflectiveabouttheneedforthis

informationtobeprovidedtohomelessprisoners:

Theblokesthatarehomelessdon’thaveacluewhatto

doorwheretogo.Theyneedmoreinformationabout

whattodoandwheretogotheydon’tevenhavebasic

information-abookletshouldbeputtogether.(Male

066,SentencedPrisoner,Aged27,TrainingUnit,living

withgirlfriendoncommittal)

Inadditiontoinformationprovision,prisonersidentified

theneedforpre-releaseworktoaccesshousingand

othersupport:

Somewheresetupbeforeyouleave,somewheretoget

sorted,youwon’tgetitjustgoingstraighttosleeping

rough,somewherewhereapersoncanhelpthemselves,

abasetoworkfrom.(Male031,SentencedPrisoners,

Aged44,Mountjoy,sleepingroughoncommittal)

Overall,anumberofpotentialstrategieswereproposed

byprisonerstoimproveinformationandsupportpriorto

release–theseincludedtheprovisionofinformation

pointswithintheprison,pre-releaseprogrammesand

dayreleasetoaccessaccommodation.

Housing ProvisionPrisonerswereuniformintheirviewsthatmore

accommodationwasrequiredbutthetypesofhousing

theyidentifiedreflectedthediversityofhousingneed

amongstprisonersandappearedtobebasedon

individualcircumstanceandlifeexperience.Identified

housingneedthereforevariedfromsingleoccupancy

unitstosharedhousingandsupportedgroup

housingschemes:

Ithinkthereshouldbealotmorehelpforprisoners,a

lotofladsgoouttonothing,they’venothingtolook

forwardto,theyneedhelp,itwouldbenefitthemand

benefitsocietyitselfbecausetheywouldn’tbere-

offending(Male159,SentencedPrisoner,Wheatfield,

Aged27,rentingfromaprivatelandlordoncommittal).

��


Ahalfwayhousetogetstartedwouldbegood(Male

186,SentencedPrisoner,Aged33,Wheatfield,living

temporarilywithfamilyandfriendsoncommittal).

Prisonersalsoidentifiedtheneedforimprovement

withinthecurrentsystemofemergency

accommodationprovision:

Thehostelsceneisverybad,you’retreatedverybad,

youdon’twanttogotothem(Male010,Sentenced

Prisoner,Aged28,Mountjoy,livingintransitional/

supportedaccommodationoncommittal).

Lack of Follow-up Support ServicesPreviousresearchhashighlightedthenecessityof

developingpolicyandpracticetoassistprisoners

maintaintheirhousingtenancieswhileincustody,to

supportfamilyrelationshipsandtoprepareindividuals

forreleaseinordertoavoidhomelessnessandfacilitate

reintegration(Haines,1990;HowardLeague,2005).

However,itisclearthatassistancewiththisshould

extendbeyondtheprisonenvironment.Prisoners

identifiedtheneedforfollow-upsupportonrelease

fromprisonparticularlyinrelationtodrugtreatment:

Thereisnofollow-upserviceforhomelesspeople…

thelongerthey’reinthehomelesscircle,thegreaterthe

likelihoodyou’llendupondrugsandcommittingcrime.

(Male055,Aged50,SentencedPrisoner,Mountjoy,living

inshorttermhostelaccommodationbeforeprison).

Thiswouldappeartobeparticularlyimportantgiventhat

90percentofprisoners,homelessoncommittal,reported

thattheyuseddrugsandofthisgroupthemajority

(82percent)saiddrugtakingcausedproblemsintheirlives

includingfamilyrelationships,crimeandaninabilityto

maintainemploymentorstableaccommodation.

Representations of Homelessness: Implications for ReintegrationWhileacknowledgingthathomelessprisonersoften

havefewchoicesabouttheirhousingcircumstances,a

commonthemeunderlyingtheiraccountsisthewayin

whichthey‘manage’theirhomelessexperience.The

absenceofappropriateaccommodationandthemanner

inwhichthesystemprovidesforhomelessindividuals

ensuresthattheyareoftenprocessedthroughacircuit

ofpoorquality,temporaryaccommodation.However,it

seemsthathomelessindividualsexercisesomelevelof

autonomyovertheirexistencebyvirtueofnotdisclosing

theirhomelessstatus,sleepingroughratherthan

accessinghostelaccommodationandsometimes

committingcrimewiththeintentofbeingcommitted

toprison,toescapetheharshconditionsofthestreet.

Furthermore,itisapparentthatprisonershavea

structurallydifferentiatedperspectiveabouttheirhousing

requirementsrangingfromtheneedforsingleoccupancy

unitstogroupandsharedhousing;theyalsoclearly

identifyandarticulatetheneedforarangeofstrategies

toimprovethelikelihoodofsuccessfulreintegrationon

releasee.g.informationaboutapplyingforwelfare

entitlements,dayreleasetoaccesshousing,etc.

Therationalepresentedandtheagencyexecutedby

homelessoffenderstochoosesleepingroughover

hostellivingcanoftenbedismissedbyauthoritiesas

individualspassivelyexistingthroughlifeonthestreets

ratherthananacknowledgementoftheinappropriate,

unsuitableandoftenpoornatureofthe

accommodationoffered.Thisconceptualisationof

homelessnessallowsanypotentialforreintegrating

homelessindividualstoberejectedonthebasisthat

suchindividualsarebeyondredemption.Itisfurther

intensifiedbytheperceptionofdangerousness

associatedwithhomelesspeoplegeneratedbytheir

presenceinpublicspace.Overall,thecombined

outcomeoftheseconstructsofhomelessindividuals

asbothpassiveanddangerousisthattheyprovide

ajustificationforexcludingthemfromhousingand

supportservices.Atthesametime,theabsenceofa

strategy,preandpostcustody,toprovideinformation

andsupportinitiativestoassistprisonersaccesswelfare

paymentsandhousing,leavesthemwithfewoptions

buttoexistwithinthehomeless-imprisonmentcircuit.

Thiscoupledwithinadequateserviceprovisioninkey

supportareas–suchasdrugtreatment–andthewider

structuralissueoflimitedhousingoptionsprovidesa

poorframeworktotacklesocialinclusionandpromote

reintegration.

��


ReferencesAnderson,IandTulloch,D.(2000)PathwaysThrough

Homelessness:AReviewoftheResearchEvidence.

HomelessTaskForceResearchSeries.ScottishHomes.

Baldry,(2001)HomelessnessandtheCriminalJustice

System,SummitPaperonHomelessness,Parliamentof

NewSouthWales,Australia

http://parliament.nsw.gov.au

Carlen,P.(1996)JigsawAPoliticalCriminologyofYouth

Homelessness.Buckingham:OpenUniversityPress.

Carlisle,J(1996)TheHousingNeedsofEx-Prisoners.

CentreforHousingPolicyUniversityofYork.

CASECentreforAnalysisofSocialExclusion(2000)

RoutesintoHomelessness:AStudyofthePathsinto

HomelessnessofHomelessClientsoftheLondon

BoroughofCamden’sHomelessPersonsUnit.London:

LondonBoroughofCamdenHousingDepartment.

Farrall,S(2002)RethinkingWhatWorkswithOffenders:

Probation,socialcontextanddesistancefromcrime.

CullomptonDevon:WillanPublishing.

Fitzpatrick,S.,Kemp,P.,andKilner,S.(2000)Single

Homelessness:AnoverviewofresearchinBritain.Bristol:

ThePolicyPress.

GreaterLondonAuthorityResearchGroup(GLARG)

(2000)BlockingtheFastTrackfromPrisontoRough

Sleeping-AReporttotheRoughSleepersUnit.London:

GreaterLondonAuthorityResearchGroup.

Haines,K.(1990)After-careServicesforReleased

Prisoners:AReviewoftheLiterature.Cambridge:

InstituteofCriminology,UniversityofCambridge.

HomelessAgency(2001)ShapingtheFuture:AnAction

PlanonHomelessnessinDublin2001-2003.Dublin:

HomelessAgency.

HowardLeagueforPenalReform(2005)TheKeytothe

Future?TheHousingNeedsofYoungAdultsinPrison

OutforGoodHousinghttp://howardleague.org/

fileadmin/howard_league/user/pdf/housing_final_01.pdf

(accessed26November2006)

Paylor,I.(1992)HomelessnessandEx-Offenders:ACasefor

Reform.ProbationMonograph,UniversityofEastAnglia.

Randall,G.andBrown,S.(1999)Preventionisbetter

thanCure.London:Crisis.

Snow,D.Baker,S.andAnderson,L.(1989)Criminality

andHomelessMen:AnEmpiricalAssessment,Social

Problems(36)532-49.

SocialExclusionUnit(SEU)(2002)ReducingRe-offending

byEx-prisoners.SummaryoftheSocialExclusionReport.

London:HMSO.

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Preparingforthisconferencemademeconsidersomany

thingswhichItakeforgrantedinrelationtothecriminal

justicesystem.

Itisimportanttonotethatexclusioncanarisefrom

systemicand/orstructuralfailures–youthjusticepolicy

andpracticestraddlesbothyouthjusticeandchildcare

policies.

n Howcanthecriminaljusticesystemcontributeto

socialinclusioninanyway?

n Surelythisisasystemwhichpromotes‘exclusion’?

n Afterall,thisisasystemwhichisaboutpunishment,

communitysafetyandultimatelydeprivingchildren

oftheirliberty?

n Canthedetentionschoolservicepromoteorenable

socialinclusion?

Ialsowantplaywiththeword‘inclusion’andreferto

theIYJSapproachtoworkingwithkeystakeholders,

whichisoneof‘inclusivity’.

Background – Youth Justice TaskforceAYouthJusticeTaskforcewasestablishedin2004to

reviewtheexistingarrangementsfordealingwithyouth

justiceandchildrenandyoungpeoplewhooffend.The

TaskforcereportedinDecember2005.Thekeyfindings

wereofasystemthatwasfragmented,lackedstrategic

leadershipandlackeddata.TheReviewhighlightedthe

factthattherewerethreekeyGovernmentDepartments

workingintheyouthjusticesectori.e.theDepartments

ofHealthandChildren;EducationandScience;and

Justice,EqualityandLawReform.Therewerealso

severalagenciesworkingwithchildrenintheyouth

justicesystemi.e.theProbationService,AnGarda

Síochána,CourtsServicesandtheHealthService

Executive;buttheredidnotappeartobeanintegrated

approachacrossagencies.

Establishment of IYJSTheIrishYouthJusticeService(IYJS)wasestablishedin

December2005.TheIYJSisanexecutiveofficeofthe

DepartmentofJustice,EqualityandLawReform.InMay

2006,Ms.MichelleShannonwasappointedasthe

NationalDirectoroftheIrishYouthJusticeService.The

servicehasbeenallocatedastaffingcomplementof30

staff–atthispointintime23staffhavebeenrecruited.

ItisimportanttonotethattheIYJShasresponsibilityfor

overseeingtheentireyouthjusticesystemi.e.fromthe

timeachildcomestotheattentionoftheGardaí,enters

thecourtsorisinreceiptofcommunitysanctions,to

whenhe/sheentersorleavesadetentionschool.

Role of the IYJSTheIYJSisasmallorganisation,ayoungorganisationin

termsoforganisationaltheory,andisactivelyestablishing

andbuildingrelationshipsacrosstheyouthjusticeand

childrenservicessectors.Wearealsoliaisingwithvoluntary

organisationsthatworkwithchildren.

TheIYJSischargedwithprovidingleadershipandassisting

inthebetterintegrationofservicesandagencies.Wealso

haveresponsibilityfordevelopingpolicyandensuringthe

strategicdevelopmentofservices.TheIYJSalsohas

responsibilityforensuringthenationaldevelopmentofnew

communitysanctionsbeingdeliveredbytheYoung

Peoples’ProbationDivision.

TheIYJStookoverresponsibilityforthedetentionschools

on1stMarch2007–formerlytheyweretheresponsibility

oftheDepartmentofEducationandScience.

Mission Statement Ourmissionisto‘createasafersocietybyworkingin

partnershiptoreduceyouthoffending,through

appropriateinterventionsandlinkagestoservices’.

I R ISHDETENT IONSERV ICES FORTHETWENTY-F IRST CENTURYMaryGeaney,NationalManager,DetentionSchoolServices,IrishYouthJusticeService

��


Thismissionstatementprovidesaclearsteerastohowa

criminaljusticeagencyhasaroletoplayinsocial

inclusion.Thefocusonpartnershipworkinghighlights

theimportanceofusworkingwithotherDepartments

suchasHealthandEducation.Italsohighlightstheneed

toensurethatchildrenaccessappropriateservicesto

addresstheriskfactorsassociatedwiththeiroffending.

Forexample,ifachildistruantingfromschool,he/sheis

atgreaterriskofbeingexposedtoanti-socialor

offendingbehaviour.Similarlyifhe/sheisinvolvedin

substancemisuse,theriskofcriminalactivityincreases.

Treatmentandsupportservicesareneededtoensure

thattheyoungpersonisincludedintheircommunityin

apositiveandmeaningfulway.

Office of the Minister for Children TheOfficeoftheMinisterforChildren(OMC)isavery

excitingdevelopmentinGovernment.Ithasresponsibility

forthedeliveryoftheNationalChildren’sStrategy;for

establishingcoherenceinpolicyforchildren;andforthe

co-ordinationoftheworkofDepartmentsworkingwith

children.Thelatterpointisveryimportantasforthefirst

timethereareplanstoco-locatethethreeDepartments

withleadresponsibilityforchildreni.e.Health,Education

andJustice.WehaveaMinisterforChildren,Mr.Brendan

Smith,T.D.HeisaMinisterofState,whoattendsCabinet

meetingstopromoteanintegratedapproachtochildren’s

policiesandservices.

Youth Justice ContinuumTheresponsibilitiesoftheIYJSspanfrompreventative

servicesanddiversionprojects,throughcommunity

sanctions,detentionandaftercare.Ithinkitisimportantto

highlightthefactthatthemajorityofchildrenandyoung

peoplearelawabidingandnevercometotheattentionof

thecriminaljusticeagencies.The2006Censusstatesthere

areintheregionof445,000childrenintheState.In2006,

approximately20,000childrenwerereferredtoGarda

DiversionProjects.Atpresentthedetentionschoolshavea

bedcapacitytoaccommodate77children,12ofwhichare

toaccommodategirls.Thishighlightsthelownumbersof

childrenwhoaredetainedbythecourts.

TheYouthJusticecontinuumidentifiesthekeystages

whereitispossibleforcriminaljusticeagencies,in

partnershipwithotheragencies,tointervenein

children’slivestosupportthemawayfromcriminal

activities.Itisatthesedifferentstagesthatwecanand

mustpromotesocialinclusionbyensuringappropriate

referralstotrainingprogrammes,familytherapy,

education,angermanagementprogrammes,etc.

Children Detention SchoolsWeareresponsibleforfourdetentionschools:

n FinglasChildandAssessmentCentre–15beds;

n OberstownBoysSchools–20beds;

n OberstownGirlsSchool–12beds;and

n TrinityHouseSchool–24beds.

Wehaverecentlyre-commissionedandrefurbishedaunit,

whichhadbeenbuiltin2002.Thisnowaccommodates

girlsundertheageof18years.Itisimportanttonotethat

since1stMarch2007therearenolongeranygirlsdetained

intheIrishPrisonServicefacilities.Boysaged16or17will

continuetoberemandedorcommittedtoSt.Patrick’s

InstitutionuntilnewfacilitiesarebuiltontheOberstown

CampusnearLusk.

Eachofthefourschoolshasbeendesignatedbythe

Ministerasafitandsuitableplacetoaccommodate

childrenremandedorcommittedbythecriminal

courts.Thefourschoolsofferarangeofserviceson

a24-hourbasis.

Future PlanningTheIrishYouthJusticeService’smissionistocreatea

safersocietybyworkinginpartnershiptoreduceyouth

offendingthroughappropriateinterventionsand

linkagesintoservices.Thishighlightstheimportanceof

amulti-disciplinaryresponsetoremandedorcommitted

children;toaddresstheirneedsandriskfactors

associatedwithoffending.Theprincipleofinclusion

willunderpinallservices.Thiswillbemanifested

throughdisabilityaccessandinterpretativefacilities

fornon-Irishnationalstoensurediverseneedsare

addressedandmet.

AnExpertGroupwasestablishedin2006tooverseethe

planninganddevelopmentofnewfacilitiestomeetthe

futuredetentionrequirementsofoffendingchildren

under18years,whoareremandedorcommittedby

criminalcourts.

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TheGroupismulti-disciplinaryincompositionwith

representativesfromIYJS,OfficeofPublicWorks,

DepartmentofEducationandScience,IrishPrison

Service,andDetentionSchoolDirectors.Thefirstreport

waspresentedtotheMinisterforChildreninDecember

2006,withanupdatedreportpresentedinSeptember

2007.TheExpertGroupwillpresentitsfinalreportwith

recommendationstotheMinisterinDecember2007.

TheGovernmentwillthendecideonthefuture

developmentofthedetentionschoolservice.

Thedevelopmentofthenewfacilitiesisamajorproject

andwillbedevelopedinlinewithDepartmentof

Finance‘GuidelinesfortheAppraisalandManagement

ofCapitalExpenditureProposalsinthePublicSector’

(2005).Thereisatotalcapitalallocationof€143mto

fundthisdevelopment,whichhasbeensourcedthrough

theNationalDevelopmentPlan.Itisexpectedthatthe

overallprojectwilltakeuptofouryearstocomplete

oncethebuildingworkhascommenced.

Vision for the FutureTheDetentionSchoolServiceaimstoprovidechildren

remandedandcommittedbytheCourtswithasafe,

secureenvironment.Individualisededucation,training

andrehabilitationprogrammeswillbeofferedtoall

childrenundertheageof18yearswithinacare-focused

ethos.Eachchildwillbeallocatedakeyworkerfromthe

timetheyenterthedetentionschool.Thispersonwillbe

professionallyresponsiblethroughoutthechild’sremand

orperiodofcommittal.Allprogrammesandinterventions

willbetailoredforeachchild,toreducetheriskof

re-offending,andtopromotetheirpositivelaw-abiding

reintegrationbackintotheircommunity.Thisapproachis

aimedtopromotesocialinclusion,andwillonlybe

successfulbyinvolvinghealthandsocialcareagencies.

Boththephysicalbuildingsandoperationalpolicies

willbeunderpinnedbyprinciplesofflexibility,

responsiveness,safety,securityandfuture–proofing.

Wearecommittedtoworkingwithallkeystakeholders,

developingaprofessionalworkforce,andensuringan

appropriatebalancebetweenrightsandresponsibilities

inthedetentionschools.

Akeyfactortoensuringsocialinclusionisabetter

alignmentbetweenjusticeandchildcarepolicies.

Irish Youth Justice Service Co-ordinating GroupTheIYJSwillestablishandchairaco-ordinatingGroup

toensurethatcapitalandoperationaldevelopments

occurinasystematicandintegratedmanner.ThisGroup

willhaveakeyresponsibilityinsettinguparangeof

workinggroupstoaddressallaspectsofthe

developmentofthedetentionschoolservice.

Therearecurrentlyeightdifferentgroupsbeing

proposedwhichwillcoverallaspectsidentifiedin

deliveringthenewvision.TheIYJSwillberepresented

oneachgroupinsomecapacityandwillprovide

secretariatsupport.Thegroupsrangefromchildrenand

staffservices;supportservices;security;healthand

safety;toprogrammesforchildren;visitingservices;and

workforceplanning.Eachgroupwillhaveachairperson

andformaltermsofreference.Thegroupswillbetime

limitedandtaskedtoachieveaspecificobjective.These

proposalsprovideclearevidenceoftheIYJScommitment

toensuringthatallserviceswhichneedtobeinplaceto

promotesocialinclusionandaddressoffending

behaviourwillbeinplace.

Workshopswilltakeplacewithstaffacrossthefour

detentionschoolstofurtherexpandthethinkingaround

eachworkinggroupandidentifyanygaps.

Oversight BoardTheDepartmentofJustice,EqualityandLawReformhas

establishedahigh-levelgovernancestructuretooversee

thedevelopmentofalllargecapitalprojectsinthe

criminaljusticesystem.TheD/JELRisthesanctioning

authorityforthedevelopmentofthedetentionschool

service,andhasprovidedthenecessaryfundingforthe

newcapitalprogramme.ThisOversightBoardischaired

bytheMinisterandtheNationalDirectoroftheIrish

YouthJusticeServiceisamemberofthisBoard.

Project BoardTheIrishYouthJusticeServiceisthesponsoringagency

forthenewcapitalprogramme.Itisintendedto

establishaProjectBoardtoensurerobustgovernance

arrangementsforthesuccessfuldeliveryofthenew

detentionschoolservice.TheProjectBoardwillbe

responsibleforfulloversightofthesuccessfulexecution

��


oftheprojectandforreportingbacktotheD/JELR

OversightBoard.TheProjectBoardmustensure:

n thesystematicco-ordinationofallworkrelatedto

thesuccessfulachievementoftheproject;

n effectivecommunicationandreporting

arrangementstoensuretheprojectisdeliveredon

time,withinbudgetandtostandard;

n effectivemanagementandmonitoringarrangements

ofthetotalbudgetandcashflow;

n effectivemanagementandmonitoringarrangements

ofprogressontheproject;

n effectivecontrolsystemsandariskregister;and

n apost-projectreview.

TheProjectBoardisthekeydecisionmakingbodyandis

responsibleforthesuccessoftheproject.Formalterms

ofreferencesurroundingtheBoardwillbeestablishedas

willrolesandresponsibilities.

Social Inclusion: possible and achievableIstartedbyposingquestionsonhowacriminaljustice

agencycouldpromotesocialinclusionorifithadany

roleindoingso.IhaveshownthattheChildrenAct

2001,byextendingthechildrendetentionschoolmodel

toallchildrenuptotheageof18yearsremandedor

committedbythecriminalcourts,placesreintegration

intothecommunityonastatutoryfooting.Thisrequires

amulti-disciplinaryresponsetoaddressingtherisk

factorsassociatedwithoffendingbehaviour;through

appropriateaccesstochild,healthandsocialcare

services,aswellaseducationandtrainingor

employmentopportunities.Inmyopinion,re-integration

andsocialinclusionarealmostinterchangeableterms.

IbelievethattheIrishYouthJusticeServicehasakey

roleinensuringsocialinclusionandthatthisis

achievableaslongasitisdoneinpartnershipwithother

keystakeholders.

��


ThisconferenceisextremelytimelyandIamdelightedto

provideaviewpointfromnorthoftheborderonthe

topicofsocialinclusion,whichisfundamentaltothe

criminaljusticeagenda.

InOctober2006,theHousingExecutivehandedoverthe

firstsharedhousingschemeinNorthernIreland.Wedid

sointhehopethatNorthernIrelandwouldhaveitsown

Assemblywithlocalpoliticiansworkingcollectivelyand

makingdecisionsaboutimportantlocalissues.Our

dreamisnowareality.NowourAssemblymembersare

willingandcommittedtoourfuture,tothepromisethat

itwillbebrighterthanourdarkpast.Thisnew

dispensationisexpectedtodeliverbetterengagement

betweenGovernmentDepartments,publicbodies,the

ThirdSectorandimportantlytheprivatesector.Most

importantlyitwilldeliverasustainablefuturefor

NorthernIreland.2009willmostprobablysee

devolutionofcriminaljusticepowerstoournew

NorthernIrelandAssembly–asignificantdevelopment

inthehistoryofthisisland.

ThroughoutthelongyearsoftheTroubles,wealllived

inaworldofdepressedexpectationsandlow

aspirations.Andforsomeitwasworse:livesand

livelihoodslost;wholecommunitiesrippedapartby

violenceandintimidation.TheHousingExecutive,asthe

mainlandlordinNorthernIreland,dealtwiththe

sectionsofthepublicandthoseareasmostaffectedby

theTroubles.

SincetheceasefiresandtheAgreement,thingshave

changedforthebetter.Wenowhaveagrowing

economywithrock-bottomunemployment;confident

communitiesandasocietythatpeoplefromrightacross

theglobewanttocometo–andstay!Aninfluxof

peoplewantingtocomeheretoliveandworkmarks

NorthernIreland’stransitionfromadividedbackward-

lookingsocietytoonethatismodernandenjoyingthe

benefitsofagrowingeconomy.

Withdevolutionrestored,NorthernIrelandhasthe

opportunitytobuildonthisprogress.Notonlycanwe

buildabettersociety,amorewelcominganddiverse

society,butwecanusethistohelphealthedeep

divisionswithinNorthernIrelandandbuildgood

relationshipswherethesehavenotexistedbefore.

Buildingonaraftofanti-discrimination,equalityand

humanrightslegislation,theprimarypolicyinstrument

forachievingthisis‘ASharedFuture’.Thisis

Government’svisionforthefutureofNorthernIreland–

apeaceful,inclusive,prosperous,stableandfairsociety

firmlyfoundedontheachievementofreconciliation,

toleranceandmutualtrustandtheprotectionand

vindicationofhumanrightsforall.Theseobjectiveshave

beenbroadlyendorsedbyallsectionsofthecommunity

andthevisionfor‘ASharedFuture’isbeingaccepted

asacommonsenseapproachimpactingpositivelyon

thelivesofeveryone.Itisbeingdeliveredbywayof

practicalactionsbyGovernmentDepartments,local

councilsandagencies.

Asanexample,theHousingExecutive,ofwhichIam

chairman,isdevelopingtheprogrammeofmixed

communitysocialhousingorSharedFuturehousing

whichIreferredtoearlier.

NorthernIrelandischaracterisedbypolarised

communities,particularlyinthesocialhousingsector.

Asawayofcontributingto‘ASharedFuture’,weare

developingaprogrammeofsocialhousingschemes

whichareaimedatpeoplefromdifferentreligiousand

GOVERNMENTTHINKINGINNORTHERN IRELANDONSOCIALINCLUSIONANDTHEWAYFORWARDUNDERASHAREDFUTUREBrianRowntree,Chairperson,NorthernIrelandHousingExecutive

�0


politicalbackgroundswhohavechosentolivein

harmonywiththeirneighbours.Eachofthesetenants

signsuptoavoluntarycharterwhichpromotesmutual

respectandunderstandingbetweenthem.Wearealso

developingacommunitybasedapproachtosupport

localcommunitieswhowishtodesignatetheirown

housingestatesas‘SharedFutureNeighbourhoods’.

Alltheseapproachesaresupportedbystaffworkingon

thegroundinthesecommunitiestoensuresustainability

anddevelopempowerment.

AsthestrategichousingauthorityforNorthernIreland,

weproactivelyseekopportunitiestodevelopShared

Futurehousingschemeswithinlargescaleurban

regenerationsites,suchasthenewTitanicQuarter,

amajornewdevelopmentsiteinBelfast,tocontribute

towardssharedspaceandasharedcity.Herewehope

togrowanintegratedapproachtocommunitylivingin

asafeandwelcomingneighbourhood.Weareinthe

businessofdevelopinghomesthatknittogethertoform

vibrant,safeandprogressivecommunities.

Therearemanyotherexamplesofhow‘AShared

Future’isprogressing.Goodrelationsimpactonevery

aspectoflifeinNorthernIreland:policing,community

safety,schooling,housing,health,sport,urbanandrural

renewal,cultureandarts,andhowourworkplaces

function.Workisongoingineachoftheseareas.

But how does ‘A Shared Future’ promote social inclusion?Manypeopleseeitasmerelytargetingthetwinevils

ofsectarianismandracism.Thisistrue,inthattargeting

theseissuesarekeyfeaturesoftheapproach,but

equalityisindivisible.Youcannothaveitforsome;

itmustbeextendedtoall.Inrecognitionofthis,

Governmentcontinuestoconsiderthosegroupsor

individualsthatmayhaveexperiencedexclusionby

targetingpolicies,strategiesandactionplans.Eachpublic

bodyunderstandsitspositionanddutiesinrelationto

eachoftheGovernment‘equality’strategies.Publicbodies

inNorthernIrelandarethereforecurrentlydeveloping

policyanddeliveringservicesinthecontextof:

n ARacialEqualityActionPlan,whichisalignedto

‘ASharedFuture’butchallengesracism.

n Section75andthedutiestopromoteequalityof

opportunityandgoodrelations,whichissimilarto

yourEqualityAct.Itincludesapositivedutyto

proactivelytargetinequalitiesandremovethe

barriersthatexcludepeople.

n LifetimeOpportunitieswhichtargetsdeprivation

andputsanonusonGovernmentDepartmentsto

demonstratethattheyaretargetinggroupsof

people,individualsorareasthataremostinneed.

n DisabilityActionPlanswhichseektoimprove

attitudestodisabledpeopleandencouragetheir

participationinpubliclife.Thisincludespeople

withinthecriminaljusticesystemwhomayfor

examplehavementalhealthproblems.

n ChildrenandYoungPeoplepolicieswhichconsider

theprotectionofchildren,theirrighttobeconsulted

andtohavetargetedservicesprovidedtothem.

Thisisclearlyanareaforthecriminaljusticeagenda.

n AgeinginanInclusiveSociety,whichlooksatolder

people,theircontributiontolife,thefamily,the

economyandsocietygenerally.

n TheSexualOrientationActionPlan,whichrecognises

theexclusion,discrimination,harassmentand

violenceexperiencedbygayandlesbianpeople

andtheirfriends,andproposesanagendato

challengethis.

n GovernmenthasalsosetoutGenderActionPlans

andpoliciesthat‘careforcarers’.Specificsocial

inclusionreportsareimminentondisabilityandlone

parents.

Equality,goodrelationsandsocialinclusionareessential

toourfuture,andareinter-dependent.Wecannot

achieveasocietythatisshared,butunequal.Afterall,

goodrelationscannotbebuiltonunequalfoundations.

Allowingorignoringinequalitywillonlybreed

resentmentandperpetuatedivision.Itisimpossibleto

buildacohesivesocietythatignorestheneedsofsmall

orexcludedgroupsorthatdoesnotupholdtherightsof

minoritiesorthatisnotsensitivetochange.Thevalueof

equality,goodrelationsandpromotingsocialinclusionis

recognisedinthestructuresthathavebeenputinplace

toupholdthem.

��


TheOfficeoftheFirstMinisterandDeputyFirstMinister

holdsministerialresponsibilityforequality.Independent

institutionshavebeenestablishedtoadvanceequality,

goodrelationsandsocialcohesion.Myownorganisation

hasestablishedanequalityandrightsdivisionanda

separatecommunitycohesionunit.TheEquality

Commission,HumanRightsCommissionand

CommunityRelationsCouncileachworktowards

forgingasuccessful,cohesiveandequalsociety.We

havetoacknowledgealsotheriskstakenbyandthe

contributionmadebythosepeople,politiciansand

others,frombothsidesoftheborder.

Inconclusion,Ithinkitisimportanttohighlightthat,

inspiteoftherightlegislation,therightstructuresand

institutions,wecanneitherachieveasharedfuture,or

sustainablecommunities,withoutthecommitmentof

governmentandourcommunityleaders.Muchwork

remainstobedonetopromoteequality,build

relationships,includetheexcludedandempowerour

communities.Theimportantpointtonoteisthatforthe

firsttimewehavesomethingthatpreviousgenerations

didnothave:thechancetodeliverchangeandforgea

newfuture.

Recipe for a bright new future called hopeFirstweneedalargehelpingof

Goodwillandtrusttostart

Throwinmutualrespect

Anopenmindandheart

Mixwithloveanddetermination

Successisawonderfulsensation

Hopewillriselikeacloud

Sometimesdarkandthreatening

Thenagestureofgoodfaith

Comestobrightenourday

Rememberalittlehopeand

Trustcangoalong,longway.

LilyFitzsimons,Belfast

FromYouCan’tEatFlagsforBreakfast:Poets,Politicians,

PublicReflectontheTroubles;editedbyJosephSheehy

andJoshuaSchultz;Eason&Son,2001

��


IntroductionCéimarChéim,(StepbyStep)isacommunitybased

ProbationProjectbasedintheMoyrossCommunityof

LimerickinIreland.Thisprojectprovideseducation&

trainingforyoungoffendersaftercustodyonprobation

oratriskofoffendingwithintheirowncommunity.

Theprojectworkswiththeyoungperson,theirfamily

andotherrelevantcommunityorganisationsthatmay

beworkingwiththefamily.Moyrossisclassifiedasa

designateddisadvantagedarea.Itisalocalauthority

housingestateonthenorthsideofLimerickCitywith

apopulationofover4,500.

FundingCéimarChéimisfundedbytheProbation&Welfare

ServiceoftheDepartmentofJusticeEquality&Law

Reform,assistedbyFÁS&LimerickCityVocational

EducationalCommittee(V.E.C.).

Background of Project - Survey of Community NeedsCéimarChéimbeganinMay2000asaconsequenceof

ananalysisofneedscarriedoutbytheProbation&

WelfareServiceinconjunctionwiththelocalcommunity.

Thisanalysiswasofpeoplebetweentheagesof15–25

inthecommunityofMoyross,someofwhomwould

havebeenengagedincrime,othersonthefringeof

crimeandmanyatrisk.

Thefollowingstatisticsemergedfromthefindings:

n ThereferralratetotheProbation&WelfareService

was76,withthemajorityagedbetween16&25

yearsold.

n Earlyschoolleavingwasaprimaryconcerninthe

Moyrossarea.Thereisoneprimaryschoolwhich

catersforover600childrenandthereisno

secondaryschool.

n In1996,44%ofyoungpeoplefromthearealeft

schoolagedfifteenyearsoryounger.Ofthosewho

progressedtosecondleveleducation,asubstantial

number,estimatedat48%,leftinthefirstyear.

Theunemploymentratewas71%.Theunemployment

rateandtheinabilitytoaccessemploymentandor

educationandtrainingwasduetosomeofthe

followingfactors:

n Earlyschoolleaving(someasearlyas7years).

n Lackofmotivation,concentration&socialskills.

n ReluctancetoleaveMoyross(didnotknowhowto

surviveoutsideoftheirownturf).

n Socialisationwasalsoamainissueeffectingthese

youth,formanyofthosewhojoinedtheproject–

theirjobplacementorfirstemploymentwas,for

many,thefirsttimetheyhadventuredoutof

Moyrossandintoemployment.

n Alcohol&drugsweremajorfeaturesoftheir

lifestyle.

Day ProgrammeCéimarChéimofficiallyopenedinJuly2000,under

theauspicesoftheProbationService.Aboardof

directorscomprisingofrepresentativesfromthe

communityofMoyrossalongwithvoluntaryand

statutorysectorsguidetheproject.Theprojectemploys

astaffof8:amanager;asupportworker;3outreach

workers;anadministrator;ahousekeeperandabus

driver/caretaker.

TheprojectisassistedbythecityofLimerickV.E.C.,

whoprovide12trainedtutors,andF.Á.S.,whopaythe

participantsallowancesandassistinchildcarepayments.

ACOMMUNITYRESPONSE– MOVINGFORWARDSTEPBYSTEPElaineSlattery,CéimArChéim

��


ReferralsParticipantsmaybereferredtotheprojectthrougha

varietyofchannels:

n ayoungpersonmaybereferredthroughthecourts

andprobationservices;

n temporaryreleaseprisoners;

n youngoffenderswhomaybereferredbytheir

ProbationOfficer;

n contactswithHSEandHomeSchoolCommunity

LiaisonOfficers;

n communityGardaíorJuvenileLiaisonSystem;and

n someself-applicantsinterestedintheeducational

programmesavailable.

Missionn Toofferasafeandchallengingenvironmentfor

participantstoexploretheirpotential.

n Toprovidechoicestoenableparticipantstotake

responsibilityfortheirfuture.

n Toprovideappropriatetrainingforparticipants’lives

andfutureemployment.

Target GroupThetargetgroupforCéimarChéimareyoungpeople

agedbetween15and25whomaybe:

n clientsoftheProbation&WelfareServiceandthose

atrisk;

n temporaryreleaseprisoners;

n thosewhowishtore-engageineducationand/or

training;

n earlyschoolleaverswhoarenotinvolvedinany

otherprogramme;or

n peoplewhoarelong-termunemployed.

Programme ContentTheprogrammerunsfromMondaytoFriday,9a.m.to

5p.m.Thecoreskillsprogrammeincludesmodulessuch

as:communications;literacy&maths;computers;

personal&interpersonalskills;personaleffectiveness

andpresentation;preparationforwork;vocational

preparationandguidance;SafePassandtheDriving

TheoryTest.

Othermodulesinclude:catering(hotelcateringand

tourism);Irish,SpanishandFrench;danceandmusic;

visualarts;socialeducation;craftceramics;artanddesign;

woodwork;healthrelatedfitnessandoutdoorpursuits;

andsupportandawarenessprogrammesappropriateto

theindividualparticipant’sneeds.Counsellingismade

availabletoparticipantswhereneeded.

AccreditationAlltrainingmodulesarecertifiedbythefollowing

bodies:

n FETAC(FurtherEducation&TrainingAwards

Council);

n GAISCE–PresidentsAward;

n LeavingCertApplied(DepartmentofEducation

&Science);

n IrishCanoeUnionofIrelandinassociationwith

UniversityofLimerick.

Daily TimetableThereisasocialhoureachmorningfrom9a.m.to

10a.m.Thisinvolvesbreakfast,readingnewspapers

andgeneralconversation.Thishourprovidesthestaff

andtutorstheopportunitytointeractandassesseach

participant’sbehaviourandgeneralmood.Thisallows

thestafftoaltertheprogrammetosuittheindividual

ifsoneeded.Asaprojectweaimtoprovideeach

individualwithstructureandsupport.Theprogramme

startseachdayat9a.m.Participantsclockinasthey

wouldinregularemployment.Thereisareductionin

allowancefortimekeepingorabsencewithoutmedical

certification.

Newspapersareintroducedbeforebreakfasteach

morning.Thisstimulatessocialdiscussionand

allowsparticipantswithreadingdifficultiestolearn

whatishappeningaroundthem.Italsoallowsthem

tobecomeinvolvedindiscussiononeventsinthenews

throughouttheday.Classesbegininthemorningsat

10a.m.Participantsaredividedintogroupsofnomore

thanfive.

��


Eachdayendswithameetingwithallstaff,tutorsand

participantstodiscussthedayandtoensurethat

participantsandtutorshavetheopportunitytocomment

ontheirdayandraiseanyissuestheymayhave.

Participantsareinvolvedingroupworkanddiscussion

sessionsinareassuchas:offendingbehaviour;the

CoppingOnprogramme;drugandalcoholawareness;

dealingwithconflict;domesticviolence;community

awareness;andanyparticularareaofinterestto

participants.

Eachweekfollowinggroupworkallparticipantsgoon

asocialouting.Thiscanvaryfromhorseriding,sailing,

canoeing,rock-climbing,cinema,visitingmuseums,art

galleriesetc.Tutorstrytoensurethatthereisongoing

interactionbetweensubjects.Cross-curricular

integrationisparticularlyvisibleintheLeavingCertificate

Appliedsubjects.

Theprojectusesanasset-basedmodelofeducation,

whichinvolvesthefamilyandotherrelevantcommunity

groupsinthedevelopmentofeachstudent’sindividual

educationandpersonaldevelopmentplan.Thereare

smallgroupnumbers,whichallowstutorstotakethe

timerequiredwithindividualswhoneedmoreattention.

Theprojectprovidesasmanyopportunitiesasispossible

toallowtheparticipantsmaintainasenseofownership.

Participantschosecoloursofbuilding,furniture,equipment

etc.Thesanctionspolicywasalsodrawnupinconsultation

withstaff.Allstaffusesamebehaviourmodification&

managementtechniquestoensureconsistency.

Daily EvaluationParticipantsareevaluatedonadailybasisineach

subject.Ifanincidenthasoccurredinclass,itisrecorded

ontheevaluationsheet.Thisreportallowsthemanager

toapproachtheparticipant,anditmakestheparticipant

responsiblefortheiractionsatalltimesandensuresthat

theyareaccountablefortheseactions.Participants’

placementsarereviewedonabi-monthlybasis,

reviewingtimekeeping,attendance,social,personaland

academicdevelopment.Participantsareinvolvedindaily

self-evaluation;theytakepartinameetingattheendof

eachdaytolookatthedayandreflectontheirlearning.

Céim ar Chéim Linked Work ExperienceOnceaparticipanthascompletedtheirprogrammeof

accreditedtrainingandpersonaldevelopmenttheycan

beofferedafurtherprogrammecalledLinkedWork

Experience.Theprojectwillplaceanindividualin

suitableworkplacementforaperiodofsixmonths.

ParticipantswhoarereadyandsuitableforLinkedWork

ExperiencehavecompletedtheFETACFoundation

Certificatesand/ortheLeavingCertificateApplied.

ParticipantsaresupportedbythestaffofCéimar

Chéim,beforeandduringtheirplacements,inorder

tohelpthemtoadjusttotheirnewworkenvironment.

Supportisalsoavailabletoemployersindealingwith

anyinitialproblemstheymightencounterwiththe

participantandthroughouttheperiodoftheir

employment.

Theprojectcontinuestooffersupporttoallstudents

whomoveontofurthertrainingandemploymentas

longassupportisrequired.

Evening ProgrammeTheCéimarChéimeveningprogrammeisrunfour

nightsperweekforthreehourspernightandcatersfor

12to17yearsolddefinedasatrisk.Itoffersalternative

diversionaryactivitiesfor:youngoffendersfromthe

juvenilejusticesystem;earlyschoolleavers;andalso

supportsyoungpeopleatriskwhoareinschooltostay

inschool.

��


Workshop A: Reaching the potential offender through educationCo-ordinator:TimDesmond;Chair:NoreenLanders;

Rapporteur:JacintaCuneen.

Thisworkshopfocusedonwhetherisitpossibleto

identifyapotentialoffender,andifso,howcanwe,

throughthemediumofeducation,preventthisperson

frombecominganactualoffender.

Who is the potential offender?n Potentialoffenderscanbeidentifiedasearlyasinfancy,

orevenpre-birth,basedonthesocial,economicand

educationalcircumstancesoftheirparents.

n Potentialoffendersarerecognisableindifferent

scenarios,includingthecommunity,schoolandlegal

system.

n Recognisablecharacteristicsincludepoorliteracyand

numeracyskills;badmixers;lowself-esteem;no

senseofdisciplineandnorespectforpeopleor

property.

What needs to be taught to potential offenders, and by whom?n Amulti-disciplinaryteamapproachisrequiredto

educatingpotentialoffenders:

n Parentingskills–publichealthnurses;childcare

organisations;

n Literacyandnumeracyskills–schools;

n Citizenshipnormsandvalues–schools,sportsand

communityorganisations;

n Howthecriminaljusticesystemworks–community

Gardaíandschools;and

n Socialskills–family,schools,sportsorganisations

andcommunityandvoluntarygroups.

Role models Positiverolemodelscanprovidepotentialoffenderswith

valuablelearningexperiences:

n CommunityGardaí–howtolivewithinthelaw;

n Prisonofficers–whathappensinprison;

n Ex-offenders–consequencesofcrime;

n Sportspeople–leadershipskills;

n Peopleinemployment–workskills.

Barriers to educationn Alotofgovernmentfundingbeingpouredinto

‘bricksandmortar’only.

n Interventionstrategiesareoftenimplementedfrom

top-downratherthanbottom-up.

n Stafffundingisminimal.

n Lackofguidancearounddevelopingstrategic

programmesandevaluationforcommunitygroups.

n Insurancecostshighorunattainable.

What educational approach works best?n Positivereinforcementandfeedback;

n Recognitionofachievementsandofefforts;

n Astructure;withinthefamilyandwithinthe

community;

n Goodcommunication–informingpeopleofwhat

helpisavailable;

n Aco-ordinatedmulti-disciplinaryapproach;

n Useofcommunityhealthservices;

n Followuponteacherrecommendations,especiallyin

relationtolearningdifficulties;

n FamilyResourceCentres–aone-stopshop,witha

multi-disciplinaryteamlocatedincommunity.

WORKSHOPDISCUSSIONS

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RecommendationsAmoreholisticmulti-disciplinaryeducationalapproach

shouldbetaken,involvingparents,school,community

involvementandworkexperience.Itshouldbebasedat

locallevel.Participantsshouldlearnfromand

communicatepositiveaswellasnegativeexperiences.

Parentsshouldbedrawnintotheeducationoftheir

children,andprovidedwithopportunitiestoeducate

themselves.Trainingshouldbeprovidedforvolunteersin

communities.Inextremecircumstances,multi-

disciplinaryteamofprofessionalsshouldconsiderthe

long-termgoodofthechild–andradicalintervention

mightberequired.

Workshop B: Participation in the labour force – challenges for ex-prisonersCo-ordinators:PaulBaileyandBrianFriel;

Chair:BrendanO’Callaghan;

Rapporteur:GeraldineCleere

Thisworkshopfocusedonthebarriersfacingex-

offenderswhentryingtoaccessemployment,andhow

thesebarrierscouldbeovercome.

Links with available servicesn Prisonersmightnotknowwhatservicesareavailable

–aDirectorofservicesshouldbeappointedwithin

prisonstoadviseandliaisewiththoseapproaching

releasefromprison.

n Formfillingcanbedifficult,especiallyforthosewith

literacyproblems–helpneededwithjob

applications,etc.

n Lackofco-ordinationbetweenagenciesproviding

services–inter-agencyco-operationacross

geographicandotherboundariesisimportant.

Behaviour managementn Alcoholanddrugmisuseposemajorbarriersin

termsofaccessingemployment–addiction

counsellingandone-stopshopsneededforaddicts

seekinghelp.

n Learnednegativebehaviourandnegativepeer

pressure–counsellingcouldimprovestress

managementandbehaviourmanagementskills.

n Mentalhealthproblems–accesstocounsellingand

todrop-incentrescouldpromotepositivepersonal

development.

Accommodationn Prisonersoftenhavenoaccommodationarrangedon

leavingprison-plannedreleasecouldhelpwiththis.

Halfwayhousingcanbeausefulfirststep–itmust

bewellorganised,wellrunanddrug-free.

n Manyreleasedprisonersdon’twanttogohome–

familyliaisonofficerswouldbeusefulinmaintaining

andre-buildingfamilyrelationships.

n Ex-offenderstendtohaveshorttenanciesdueto

disputeswithlandlords–atenancysustainment

officercouldhelptoavoiddisputes.

Educationn Ex-offendersmayfeelexcludedfromboth

mainstreamandfurthereducation–need

encouragementbothinsideandoutsideprison.

n Learningdisabilitiesandliteracyproblems–need

extrasupportandtuition,usingnewlearning

methods.

n Negativeselfimageandpeerpressure–positivepeer

mentoringcouldhelpex-offendersandencourage

themtoformnewpeergroups.

Employmentn Disclosureofcriminalrecordcanleadto

discrimination–equalitylegislationand

expungementlawscouldaddressthisproblem.

n Prejudice–shouldbeaddressedbyGovernment,

leadingbyexample.Fearsaboutex-offendersshould

beaddressed.

n Socialwelfarerulescancreateapovertytrapwhere

thepersonisbetteroffnotworking–thisshouldbe

addressedbyinitiativeslike‘FreshStart’,where

welfarepaymentscontinuewhenapersonreturnsto

employment.

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Workshop C: Voices of the families of prisonersCo-ordinators:LarrydeCléir,MarieO’Shea;

Chair: FinbarrO’Leary;Rapporteur:SarahAdamczyk

LarrydeCléiristheDirectoroftheBedfordRowFamily

ProjectinLimerick.Theprojectworkstoprovidesupport,

information,trainingcourses,counsellingandoutreach

tofamiliesaffectedbyimprisonment.MarieO’Sheahas

beeninvolvedwithBedfordRowforseveralyears.This

workshopdiscussedthedifficultiesfacedbyfamiliesof

thoseinprisonandhowtheycouldbehelped.

Problems faced by familiesn Shameandembarrassment:Itisoftendifficulttotalk

aboutafamilymember’simprisonment,particularly

withtheusualcontactsoffriends,neighboursand

evenextendedfamily.TheBedfordRowFamily

Projectworkstoputfamiliesintouchwithone

anothersothattheyrealisetheyarenotaloneand

canseethatothersmaybeincomparable

circumstances.

n Honestywithchildren:Thegroupdiscussedwhatto

tellchildrenwhenaparentgoestoprison.Itwas

agreedthatitisbesttotellchildrensincetheywill

probablyfindoutanywayand,iftheylearnthattheir

caregiversarelyingtothem,theywillhaveeven

moreproblemstrusting.Whenoneparentissentto

prison,itisessentialthatchildrenmaintainahigh

leveloftrustwiththeremainingcaregiver.

n Powerlessness:Familiesmayfeelpowerlessfora

varietyofreasons,includinglackoninformationand

difficultiesvisitingprison.Theymayalsoexperience

emotionalproblemswhenvisitingandseeingthat

theimprisonedfamilymemberisstillusingdrugsin

prison,orcontinuestostrugglewithdepressionor

suicidalthoughts.

Helping families of prisonersThegrouptalkedabouthowtoactuallymeasuresuccess

whenworkingwithfamiliesofprisonersandwhat

successmaymeanforeachfamily.Successinthissense

maybedeeplypersonal,varyonacase-by-casebasis,

andislikelydifferentforeachfamily.

Overarchinggoalsincludeawareness-raisingsothat,

throughprogrammessuchasBedfordRowFamily

Project,thereismoreattentionfocusedontheimpact

onfamiliesandthekeyrolefamilieswillplayin

reintegrationandrehabilitation.

Thereshouldbeagreaterfocusontheassetsfamilies

bringtothereintegrationofex-offenders.Thereisoften

afocusontheroleoffamilybackgroundincontributing

tooffending.However,itisalsoimportanttotakea

positiveapproachandseehowfamiliescanbehelpedto

providethestrengthandsupportwhichwillbekeytoan

offender’srecovery.

Workshop D: Coping with exclusion – the journey of a survivorCo-ordinator:GerardMannixFlynn;

Chair:NorahGibbons;

Rapporteur:KatharineMcGillicuddy

Thisworkshopdrewontheco-ordinator’sown

experiencesofsocialexclusion,detentionandtaking

controlofhisownlife.Thegroupdiscussedissues

contributingtosocialexclusionandmade

recommendationsonhelpingpeopletotakecharge

oftheirownlives.

Issues relating to social exclusion and offendingn Humanity:Itisimportanttorememberthat

offendersandex-offendersarehumanbeings.Their

choicesinlifemayhavebeenseverelyaffectedby

theirfamilycircumstances.

n Languageandlabelling:Terminologycanlabel

peopleandmakethemreluctanttomakechangesin

theirlives.Forexample,labellinganareaas

‘disadvantaged’or‘crime-ridden’couldmakepeople

livingtherefeelthatthesituationisoutsidetheir

control,andthatthereisnothingtheycando.

n Limitations:Therearelimitsonwhatcanbedoneto

helpanotherperson–thepersonhim/herselfneeds

towanttochange.Someseriousoffendersmaybe

beyondhelp;whereaslessseriousoffendersmay

respondwelliftheyarehelpedwithaddictionor

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mentalhealthproblems.Usinganexamplefroma

battlefield,itsometimesmakesmoresensetorescue

thosewithlesserinjuriesthanthosewhoarevery

seriouslyinjured.

Recommendationsn Professionalism:Peopleinvolvedinhelpingto

rehabilitateex-offendersordivertpotentialoffenders

needtohavebothskillsandhumanity.

n Earlyintervention:Interventionshouldtakeplaceas

earlyaspossible,atprimaryschoolorpre-schoolage.

n Long-termsolutions:Thereisaneedtorecognise

thatchangetakesalongtime.Forexample,aperson

beingreleasedfromprisonmayneedsupervision

overalongperiodoftimebeforehe/shetakes

ownershipoftheirownactionandisreadytomake

arealchange.

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SarahAdamczyk QueensUniversityBelfast

SeánAylward DepartmentofJustice,EqualityandLawReform

PaulBailey BOND

SimonBall CourtsService

LorettaBarrett DepartmentofJustice,EqualityandLawReform

SerenaBennett ParoleBoard

MikeBerry OberstownGirlsSchool

DeirdreBigley CoppingOn

SonyaBrady NationalCrimeCouncil

AidanBrowne ChildrenActsAdvisoryBoard

MauraButler ACJRD

BrendanCallaghan NationalCrimeCouncil

GeraldineCleere WaterfordInstituteofTechnology

CatherineCoakley CorkPrison

GeraldineComerford ACJRD

SheilaConnolly CorkAllianceCentre

JacintaCuneen UniversityofLimerick

PaulCunningham NationalCrimeCouncil

LarrydeCléir BedfordRowFamilyProject

SinéaddeRóiste LinkageProgramme

TimDesmond NCCLGalleriesofJustice

JaneFarrell OfficeoftheDirectorofPublicProsecutions

CathalFlynn ChildrenActsAdvisoryBoard

GerardMannixFlynn FarCryProductions

PatriciaFlynn OberstownGirlsSchool

BrianFriel BOND

MaryGeaney IrishYouthJusticeService

NorahGibbons Barnardos

JenniferMargaretHayes HealthServiceExecutive

DamienHearne TrinityHouseSchool

SylviaHoare DublinInstituteofTechnology

BrianHogan OberstownBoysSchool

GráinneJennings MattTalbotCommunityTrust

GerryKeating AnGardaSíochána

CONFERENCEPART IC IPANTS

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NoreenLanders OfficeoftheDirectorofPublicProsecutions

KatherineMcGillicuddy UniversityCollegeCork

FergusMcNeill ScottishCentreforCrime&JusticeResearch

SinéadMcPhillips ACJRD

JudgeMaryMartin CommissiononRestorativeJustice

EmerMeehan ACJRD

PatMinihan AnGardaSíochána

BrianMoss GardaSíochánaOmbudsmanCommission

KarenMurray PFI

TonyMurray StVincentdePaul

JoanO’Connor OberstownGirlsSchool

TonyO’Donovan IrishYouthJusticeService

SeánO’hÉigeartaigh NationalEconomic&SocialForum

FinbarrO’Leary ChildrenActsAdvisoryBoard

CiaránO’Searcaigh ChildrenActsAdvisoryBoard

JoyO’Shaughnessy PFI

KathleenO’Toole GardaSíochánaInspectorate

BrianPurcell IrishPrisonService

SeanQuigley IrishPrisonService

GerryRaftery BridgeProject

JessicaRoot IrishPenalReformTrust

BrianRowntree NorthernIrelandHousingExecutive

FrancesRussell CorkPrison

IanScully MattTalbotCommunityTrust

VickySeaman CorkAllianceCentre

DeirdreSeery TrinityHouseSchool

MaireadSeymour DublinInstituteofTechnology

ElaineSlattery CéimarChéim

EmmaSliney CorkAllianceCentre

RoseSweeney ChildrenActsAdvisoryBoard

HelenThornton CourtsService

JoanneWilliams LawReformCommission

SallyWinters LawSociety

MichaelWoodlock OberstownBoysSchool

Reg. Office: Spade Enterprise Centre, St. Paul’s, North King Street, Dublin 7. Tel: +353 (0)1 617 4864 Fax: +353 (0)1 617 4895 Email: [email protected] Web: www.acjrd.ie

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