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Dec 16, 2011

Aboriginal crime and punishment: spending on jails but not outcomes

The rise of a punitive "law and order" culture in Australia has had a profoundly racial dimension, manifested in soaring rates of indigenous incarceration. Inga Ting continues her special report.

The rise of a punitive “law and order” culture in Australia has had a profoundly racial dimension, manifested in soaring rates of indigenous incarceration. The number of indigenous adults held in the nation’s jails has increased for the 11th year in a row — as Crikey revealed in part one yesterday — while over the past decade the indigenous imprisonment rate has outstripped the non-indigenous rate by a factor of 11, ballooning more than 47%. The non-indigenous rate grew 4% in the same period.

This shift towards the use of crime and punishment as a tool of social control — known as “governing through crime” — has led to the rise of a “risk agenda” that concentrates on the risk of crime occurring, not just actual crime. In this society of heightened fear and increased surveillance, punishment is increasingly targeted at those on the periphery. And no group lies more at the periphery than indigenous Australians.

That outcomes for Aboriginal Australians are deteriorating in all but a select few areas has been confirmed by virtually every government report released this year. Here is an extract from just one — the Productivity Commissions latest Closing the Gap report, Overcoming Indigenous Disadvantage: Key Indicators, released in August:

“Nine years after this series was commissioned, there is still a considerable way to go … Wide gaps in average outcomes remain across most indicators. Of the 45 quantitative indicators in the report, for example, available data show improvement in outcomes for only 13 indicators … For 10 there has been no real improvement, while for another seven, including social indicators such as criminal justice, outcomes have actually deteriorated.”

Some of the most shocking indicators are in the area of health, where hospitalisation rates are vastly higher for indigenous men and women than for other Australians.

Ratio of indigenous to non-indigenous rates of hospitalisation
Reason for hospitalisation Women Men
Injuries caused by assault 31
(i.e. the hospitalisation rate for indigenous women is 31 times higher than the rate for non-indigenous women)
Injuries caused by non-fatal family violence assault 31 25
Mental and behavioural disorders 1.5 2.2
Chronic disease:
End-stage renal disease 15 8
Diabetes 5 3.5
Circulatory 2 1.5

According to the same report, indigenous adults indicate having a disability that profoundly or severely restricts core activity at around twice the rate for non-indigenous people. They are also twice as likely to be recent users of illicit substances as other Australians and four times as likely to be homeless.

David Woodroffe, managing solicitor in criminal law at the North Australian Aboriginal Justice Agency in the NT, says the Northern Territory intervention has invested heavily in institutions focused on punishing criminal behaviour, while providing minimal services to help those who turn to crime in the first place.

“There’s more policing in communities — more police stations and police posts — so more people will come to the attention of police, will be charged, get into the [criminal justice] process. But there’s no corresponding in relation to other services … there’s no youth diversion programs, there’s no rehabilitation services, etc. So basically, government’s providing an impetus for detecting crime and prosecuting crime but there’s not the services there for reducing crime or turning people away from it. And that’s why we see, with the lack of services like that, people becoming entrenched in the criminal justice system.”

With Territory jails becoming more and more overcrowded, and the NT projected to have the highest imprisonment rate in the world in a couple of years, the government has announced its solution: a new $495 million prison at Holtze; the largest capital outlay of any NT government.

“Half a billion dollars,” Woodroffe says. “If that was invested in Aboriginal communities in just one area, if that was just health … 99% of Australians wouldn’t object to improving the lot of Aboriginal kids and building schools and hospitals, or improving access to hearing or access to dialysis or helping people learn about diabetes. Virtually every single middle-aged person I speak to, they all have diabetes. None of them are taught simple things about nutrition. Investment in health could make a difference to the lives of so many people, and that’s just one tiny aspect.”

The story is much the same in Western Australia, where jail is often the answer to problems of sickness, poverty and violence — despite widespread recognition that contact with the criminal justice system perpetuates disadvantage and increases the chances of being a victim of violence.

“People are going to jail for things they shouldn’t be going to jail for,” says Dennis Eggington, chief executive of the Aboriginal Legal Service WA. “This includes non-payment of fines, driving offences, offences that are committed because people are sick either with alcoholism, drug abuse or mental illnesses.” Numerous state and territory laws aim to push the most disadvantaged deeper into the shadows of mainstream society, he says.

“Here at the ALS [Aboriginal Legal Service] we see laws that are designed to move Aboriginal people out of sight. These laws are mandatory sentencing laws; these laws are move-on laws; these laws are antisocial laws that all can lead to imprisonment or removal from an area. It’s the vulnerable people, it’s those people who are most disadvantaged, that are most subject to that scrutiny and that over-policing.

“Of course, Aboriginal people are among the most disadvantaged groups in Australia, so those laws by their nature are indirectly discriminatory.”

In Western Australia, 90% of those removed under the state’s notorious Northbridge curfew laws are Aboriginal. Similarly, Aboriginal juveniles make up 90% of those dealt with under the state’s mandatory sentencing laws.

Evidence also indicates courts deal out harsher punishment to indigenous offenders than others. The 2005 report by Hon Dennis Mahoney, Inquiry into the Management of Offenders in Custody and in the Community, found that indigenous offenders in WA were far more likely to be locked up “in the same circumstances and for the same crimes” than their non-indigenous counterparts:

“For all offence types except property offences, indigenous people were more likely than non-indigenous people to receive custodial sentences. For example, for violent offences, compare an indigenous ‘imprisonment rate’ of 23.5% with a non-indigenous imprisonment rate of 7.7%. For driving/vehicle offences, compare an indigenous imprisonment rate of 12.5% with a non-indigenous rate of 2.9% … For [drink driving offences], the indigenous imprisonment rate was 13% compared to a non-indigenous rate of 4%.”

The statistics paint a powerful portrait of a divided society, yet it is a picture of apartheid few are prepared to acknowledge, let alone combat.

“Historically, we’ve always approached indigenous people with different forms of punishment,” says Chris Cunneen, Professor of Justice and Social Inclusion at James Cook University and a criminologist with more than two decades’ experience in Aboriginal justice issues. “Punishment is not just about the act of locking somebody up or the act of imposing a fine or community service order. It’s also an expression of power.

“We know, for instance, that Aboriginal people were subjected to physical punishments like flogging for decades after that ceased to be used for non-indigenous people. The same with public executions. [These practices] were always justified on the basis of race.

“We understand Aboriginality — and race, more generally — through criminalisation … It works in a way that race is not seen as separate from criminality.”

Which again raises the tortured question of how much importance should be attached to the role of history in the present crisis in indigenous Australia. For some — like Harry Blagg, a criminologist of 25 years’ standing and author of the book Crime, Aboriginality and the Decolonisation of Justice — Australia’s colonial history is paramount. What is lacking among criminologists, he says, is an understanding of how the Australian criminal justice system has been used as an instrument of colonisation.

“It’s not a popular position when you work in government, but that’s the one I came up with,” says the former director of studies at the Crime Research Centre in Perth. Blagg worked in Aboriginal crime and justice for two decades before leaving last year to become Professor of Criminology and Criminal Justice at the University of Plymouth, UK.

“We’ve not resolved that fundamental problem: that we established a set of colonial structures and denied the legitimacy of Aboriginal people’s own forms of law and social organisation, and their right to have a big say over what happens in their communities.”

The strategy of criminalising the indigenous population initially promised enormous benefits for the invading power, Blagg says. Above all, it played a crucial role in creating an inverted reality in which the white collective believed itself to be the victim of Aboriginal criminality, and not the other way around.

“First we criminalised Aboriginal people’s resistance to colonisation. We denied that they owned the land that we stole from them and then we imprisoned them when they tried, understandably, to resist the theft of their land,” he says. “It allowed white colonists to conquer and contain the continent … It was the police and the police lock-ups and the courts that represented the frontier between the Aboriginal and non-Aboriginal worlds. It gave a veneer of legitimacy to our strategy of dispossessing Aboriginal people.”

The shallowness of this veneer explains why the criminal justice system has been largely ineffective in indigenous communities, Blagg says. Effective punishment — that is, punishment that reforms and deters — requires legitimacy and authority. The grim truth is that “white justice” has little of either in Aboriginal Australia, he says.

“If contact with the white justice system was to going to decrease levels of violence in Aboriginal communities, it would have done so already,” he says. “The fundamental problem is that there’s no dialogue between Aboriginal systems of authority and our own … Aboriginal people, particularly Aboriginal youth, are just not shamed by the white justice system. They’re not ashamed to have the white values shouted at them in court, they’re not shamed by white police officers turning up at their door and they’re not reformed by the white prison system.”

Soaring indigenous incarceration rates are just one manifestation of the crisis in the relationship between mainstream society and the Aboriginal community, Blagg argues. (And with an indigenous re-imprisonment rate of 58% within 10 years and a 47% retention rate for indigenous students from the beginning of secondary school to year 12, it would appear that as a society we do better at keeping indigenous people in jail than in school, Cunneen points out.)

Getting a grip on any of the issues impacting Aboriginal Australia — health, housing, education, crime and justice, and so forth — requires a genuine decolonisation of the relationships between Aboriginal and non-Aboriginal people. “Australian society and community were created by the destruction of Aboriginal Australia. They will always be opposed until there is a really fundamental reconciliation,” Blagg says.

“We still think that a prison cell is a normal place for an Aboriginal person, and I think that’s institutionally ingrained … It’s still in our collective consciousness that the best thing Aboriginal people can do for themselves is to disappear. To stop being Aboriginal and be like the rest of us.”

Nearly 2½ centuries later, whatever benefits the colonial strategy once promised have been massively overtaken by the costs on all levels — social, economic and political, he says.

“What always strikes me powerfully about Australia is that people talk critically about multiculturalism. Is it working? Is it not working? Well it’s been very successful in Australia. People come from all over; you sign up to Australian values; you integrate. You keep bits of your own culture somewhere, bring it out once a year and have a festival, but largely people become very ‘Australian’.

“The only people who don’t are those people who have been there for thousands of years, and that’s Aboriginal people. But you’ve got to ask why that is.”

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6 thoughts on “Aboriginal crime and punishment: spending on jails but not outcomes

  1. Wombat

    I’m not as convinced by this article as yesterday’s effort.

    You’re implying that our judicial system is inherently racist, whereas I suggest your evidence shows that Aboriginal people are simply far more likely to end up in the hands of the judicial system.

    For example, the driving/vehicle offences comparison of 12.5% black to 2.9% white. Consider this: you’re Aboriginal and living in remote Australia. You don’t speak English very well, and can’t read/write, so you have no chance of obtaining a drivers licence. You might have a car, but as you share a house with 20 people, you don’t have the money to register it. Because you live in a remote area, it never occurs to you that bald tyres or a broken muffler are illegal. As there is no public transport, driving your car is the only way to get around. Despite repeated warnings from the local police, they eventually arrest you for being unlicenced and driving an unregistered, unroadworthy car.

    You’re taken before a magistrate who is sympathetic but who cannot explain to you what you have done wrong. Because of a childhood infection you have a serious hearing problem (extremely common in remote areas) and can’t understand the interpreter the court has provided.

    The law is the law. When you can’t pay the fine, you are arrested and sent to prison.

    The factors that lead to disgustingly high levels of Aboriginal incarceration are many. To prevent the person above from going to prison, we would need:
    1. Better education outcomes for Aboriginal people, which will take at least a generation to improve.
    2. At least triple the current housing stock in remote areas, with a price tag in the billions, plus the enormous ongoing costs of maintenance and upkeep.
    3. An enormous boost to health outcomes, including health education and staff. Try and imagine the challenge of hiring a doctor for a remote community. To hire a doctor in Melbourne will cost you the standard GP salary. To hire a doctor for a remote community costs: salary + 50% to get people interested, house for them to live in @ approx $500k to build, 4WD for $100k, etc.

    It’s not a matter of simple racism.

  2. Bob Durnan

    A lot of useful, thought-provoking points made here, especially by Harry Blagg. It’s a pity he’s leaving these colonial shores to return to the old country.
    However, I would like to take issue with some of David Woodroffe’s statements. He is factually incorrect in his statements about the NTER Intervention and its impacts. The NTER has not invested heavily in “punishing criminal behaviour”. Woodroffe appears to be remarkably ignorant about the breadth and depth of the NTER and related services and programs.
    Even in the short term, “more policing in communities — more police stations and police posts” is fundamentally a crime prevention mechanism, not simply a regime of punishment. Whilst in the short term “more people will come to the attention of police, will be charged, get into the [criminal justice] process”, at the same time more people who would otherwise have been committing crimes that formerly went undetected and unpunished are also now being deterred from actually committing those crimes.
    This is certainly the case in the several remote NT communities in which I have worked during the period since the introduction of the NTER.
    The longer term outcome will likely be a significant deterrence of crime, as the community youth sub-culture and individual behaviours are changed by the combination of more reliable local policing, supporting and allied with NTER funding for the expanded, more effective Night Patrols; increased youth and recreation services; greatly expanded educational capacity designed to attract and retain post-primary aged students; greatly expanded health services; increased inducements to achieve school attendance throughout the school-age years; expanded substance abuse services; and greatly increased parenting skills and leadership training in remote communities.

    These activities are all funded under the NTER and related funding programs. Together with other initiatives being planned in the work, training and economic development sphere, they must be considered together. There is no justification for discounting this extraordinary increase in government expenditure in the NT, or for a senior NAAJA spokesperson professing ignorance of this wide array of integrated Commonwealth funding initiatives in the remote communities.
    Other big increases in early childhood education, health and welfare programs will provide even greater benefits for these communities in the longer term, meaning that in 15 to 20 years there should be the possibility of significant improvements in justice outcomes for youth from these communities.
    Although Woodroffe is broadly correct in saying that “there’s no youth diversion programs, there’s no rehabilitation services” for those presently getting caught up in the justice system as offenders, and this lack does need to be addressed with urgency, he is very negligent, or worse, to claim “government’s providing an impetus for detecting crime and prosecuting crime but there’s not the services there for reducing crime or turning people away from it” when the bigger picture is considered.

  3. Microseris

    Clearly many of the background issues listed have a socio-economic element where violence begets more violence. Resolution of these contributing factors is not going to be rectified with more severe punishment. Solutions proposed by governments always have an us and them implication; and therefore the remedy chosen is always punitive.

    In Victoria, the Baillieu Government recently announced funding for a “Mega Prison” whilst simultaneously diverting funds away from Education and rehabilitation. Funding cuts included VCAL programs which provide hands on learning and work experience which often keeps kids at school longer and benefits the most underprivileged, at the same time funnelling additional funds to rich private schools. This is the same as the US formula and hasn’t that been a spectacular success.

    For both sides of politics, their performance on these issues has been inadequate, whilst the Liberal Party seems to exist in a moral vacuum…

  4. Clarke Steve

    I cannot agree with the title for this story.
    In my time living in the north of WA, I was staggered at the amount of spending on “outcomes”.
    It was matched only by its ineffectiveness.

  5. kennethrobinson2

    The only way reduce the Aboriginal population in prison, is to convince them that crime doesn’t pay, by making them work, when they are inside.

  6. Liz45

    @KENNETHROBINSON2 – Haven’t you read anything? Is that your best effort?