CARIBBEAN JUSTICE: a Needs Assessment of the Judicial System in Nine Countries Copyright ©2020 United Nations Development Programme All Rights Reserved
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CARIBBEAN JUSTICE: a needs assessment of the judicial system in nine countries Copyright ©2020 United Nations Development Programme All rights reserved. UNDP is the leading United Nations organization fighting to end the injustice of poverty, inequality, and climate change. Working with our broad network of experts and partners in 170 countries, we help nations to build integrated, lasting solutions for people and planet. United Nations Development Programme for Latin America and the Caribbean, Building 128, City of Knowledge, Panama City, Republic of Panama https://www.facebook.com/pnudlac https://twitter.com/PNUDLAC https://www.instagram.com/pnudlac/ For more information visit www.latinamerica.undp.org/ Design: Tany Vazzana CARIBBEAN JUSTICE: a needs assessment of the judicial system in nine countries Antigua and Barbuda, Barbados, Belize, Dominica, Guyana, Grenada, Saint Kitts and Nevis, Saint Lucia, Trinidad and Tobago 2020 TABLE OF CONTENTS 1. ACKNOWLEDGEMENTS 5.4. Quality of justice.............................................40 5.4.1. Diversionary measures...............................40 2. EXECUTIVE SUMARY 5.4.2. Prosecution..................................................42 3. INTRODUCTION 5.4.3. Adjournments..............................................44 3.1. Statement of purpose.......................................11 5.4.4. Case flow management............................46 3.2. Methodology.....................................................12 5.4.5. Sentencing....................................................48 3.3. Limitations of the NAR....................................14 5.4.6. Bail.................................................................50 3.4. Structure of NAR..............................................14 5.4.7. Pre-trial detention........................................50 3.5. UNDP and justice in the Caribbean............15 5.4.8. Rehabilitative approaches........................54 4. OVERVIEW OF THE CURRENT STATE OF 6. RECOMMENDATIONS JUSTICE ADMINISTRATION IN THE CARIBBEAN 6.1. Regional level recommendations...............57 4.1. Human rights perspective..............................18 6.2. National level recommendations...............62 4.2. Witness and victim protection and sup- port............................................................................20 ANNEXES 4.3. The costs of justice.........................................21 I. Desk review report of justice system reform in 4.4. Civil and criminal structure...........................21 the Caribbean 4.5. Punitive vs rehabilitative approaches in the II. Summary report: Regional judges’ consulta- Caribbean.................................................................26 tion on assessment of needs of the justice sy- stem in the Caribbean 4.6. Public perception............................................27 4.7. Strengths within the judicial system...........29 5. FINDINGS OF THE JUSTICE ADMINISTRATION IN THE CARIBBEAN 5.1 Data and information.......................................32 5.2. Overview..........................................................32 5.3. Access to justice.............................................33 5.3.1. Modernization...............................................33 5.3.2. Human resources.......................................34 5.3.3. Legal aid.......................................................36 5.3.4. Specialized courts......................................38 7 1. ACKNOWLEDGEMENTS UNDP Resident Representative to Barbados and the Eastern Caribbean, Magdy Martínez-Solimán UNDP Resident Representative to Belize, Denise Antonio UNDP Resident Representative to Guyana, Jairo Valverde Bermudez UNDP Resident Representative to Trinidad and Tobago, Randi Davis UNDP Deputy Resident Representative to Barbados and the Eastern Caribbean, Ugo Blanco UNDP Deputy Resident Representative to Belize, Ian King UNDP Assistant Resident Representative to Trinidad and Tobago, Sharifa Ali-Abdullah Manager, UNDP Regional Hub for Latin America and the Caribbean, José Cruz-Osorio Team Leader, Governance, UNDP Regional Hub for Latin America and the Caribbean, Jairo Acuña-Alfaro Research and Drafting Coordinator Juliet Solomon, Citizen Security and Rule of Law Programme Specialist, Caribbean UNDP Regional Rule of Law and Access to Justice Team Gloria Manzotti, Lorena Mellado, Juliet Solomon Judicial Needs Assessment Consultant Reyanna Sankar Research and Drafting Team Jason La Corbiniere (UNDP Barbados and the Eastern Caribbean); Diane Wade (UNDP Belize); Andrea Heath-London & Vedyawatti Looknauth (UNDP Guyana); Christalle Gemon (UNDP Trinidad and Tobago) Copy editing Darshinee Choytah Design and layout Tany Vazzana & Alexandra Gil Taboas With special thanks to Justices Rosalyn E. Wilkinson (Antigua & Barbuda), Randall Worrell (Barbados), President of the Caribbean Court of Justice, Adrian Saunders; Chief Justice Kenneth Benjamin (Belize); Marilyn Lauren Williams (Belize), Myrtle Elizabeth Birnie Stephenson-Brooks (Dominica), Attorney General and Minister of Legal Affairs, Basil Williams, S.C., Chancellor of the Judiciary, Justice Yonette Cummings-Edwards, and Chief Justice Roxane George (Guyana); Jo-Ann Barlow (Guyana), Paula Gilford (Grenada), Eddie Ventose & Trevor Ward (Saint Kitts & Nevis), Kimberly Cenac-Fulgence, Cadie St.Rose - Bruney, Georgis Taylor-Alexander, Gertel Thom (Saint Lucia), Industrial Court Judge Elizabeth Solomon (Trinidad & Tobago); Supreme Court Registrars, Commissioners of Police, Directors of Public Prosecution, Bar Associations, Directors and staff of Forensic Science Laboratories, Superintendents of Prisons, the Justice Education Society, the Children’s Authority Mt. Hope Assessment Centre (Trinidad & Tobago), Gillian Lucky, Charmaine Pemberton & Avason Quintan-Williams (Trinidad and Tobago); Judicial Reform and Institutional Strengthening Project (JURIST), Caribbean Policy Development Centre (CPDC), and all stakeholders who gave of their time and expertise in the course of compiling this report. ©2020 UNDP All rights reserved - April 2020 Director of Forensic Science Services Fernanda Henry at the Saint Lucia Forensic Science Laboratory. Photo credit: Juliet Solomon. 9 2. EXECUTIVE SUMMARY Inequality, discrimination and exclusion remain severe obstacles to universal sustainable development. Unfortunately, COVID-19 has exacerbated this development deficit and challenged the aspiration of ac- cess to justice for all. People living in poverty and marginalized groups may not be aware of their legal rights and often lack legal protection and access to mechanisms to remedy their grievances, resulting in increased vulnerability. Sexual and gender-based violence (SGBV) has a devastating, long-term effect on the lives of victims, their families and communities, and impedes development progress. This Needs Assessment Report (NAR) has a conceptual framework based on a human rights-based approach, inter- sectional and UNDP´s guidelines in order to move the Caribbean region from a less punitive to a more rehabilitative system. Through this analysis and review exercise of the judicial cycle in the Caribbean, it was possible to identi- fy the main challenges for a people-centred approach to justice that leaves no one behind. The report aims to highlight trends across the Caribbean region in order to determine how best the development partners can add value to current efforts and initiatives on improving access to justice and its admini- stration in the Caribbean. This Needs Assessment Report on the administration of justice in the Caribbean provides an up-to-date analysis of the main opportunities and challenges in the region. A salient challenge identified is the lack of available data for the design of regional and national assessments and result oriented solu- tions. Another important conclusion of the report is that in all jurisdictions the backlog of cases – particu- larly in the criminal division – is one of the most challenging issues. The reasons for the backlogs are multifaceted and include primarily the slow pace of investigations by police, inordinate delays in production of depositions, and lack of human and technological resources. The main consequence of the backlogs is a failure to “provid(e) accessible, fair and efficient justice for the people and states of the Caribbean Community.”1 In terms of general stakeholders’ feedback (provided through questionnaires, consultations and a re- gional judges consultation) the consensus was that there is over-use of pre-trial detention because of a lack of alternative pre-trial options, causing not only a slow judiciary process but, most important, causing a due process violation, that needs to be addressed urgently. The report reflects on a whole-of-system approach which identifies bottlenecks at different stages of the administration of justice. For example, while replacing Preliminary Inquiries with paper committals or sufficiency hearings, such a change, without other “fixes”, will merely shift the overload to the various offices of the Director of Public Prosecutions (DPP) in the Caribbean region. In terms of the quality of judicial services provided to the public, there are significant areas in which pu- blic perception may be negatively affected. The report argues that important improvements are neces- sary in order for the justice system to provide timely, consistent, responsive and transparent services. In terms of good experiences identified, Governments have undertaken numerous efforts to improve the administration of justice. Efforts