Research a~d Statistics Division New South Wales Department of Corrective Services
NSW Corrective Se!Vices Due Date
A REPORT ON PLEA.: 1977
An oYerview 1tation in New South W< th particular reference t' mtion, review and release C' 1 s pleasure.
·~.
This report was prepared by E.C. Seysener (B.S.W. (Hons) U.N.S.W,) under· the direction of the Senior Research Officer, lJ.S, Dewdney (M.A. (Hens) U.n .s. W.. ; Dip, Soc. Stud; Dip. Crim. Mel b.) TABJoE OF....,_,. COITTENTS__
SECTION 1. INTRODUCTION 1
SECTION 2. LEGISLA.TION 3
A. Special Verdict 3 (a) N.s.w. Mental Health Act 1958 3 (b) Transfer of Governor's Pleasure Prisoners to Psychiatric Hospital 3 (c) N.S.W. Legislation- An Historical Perspective 3 (a:) The English Legislation 4 (e) A Comparison of the Trends in N.s.w. and England 4 (f) Cane,dian Legislation 5
B. Variations in the Governor 1s Order 5 c. Statutory Review Provisions 5
(a) 1~ .SoYf. Legislation - Health commission 5 (b) Department of Corrective Services 6 (c) English Legislat.i.on 6
(d) CanacUan Legislat5.on - Boards o:f Review 7
D. Diminished Responsibility 7 (a) The Legislation -N.s.w. Crimes Act 1900 7 (b) The Legislation - El1.gland and Canada 8 (c) Use of Diminished Responsibility in England 8 (d) Use in N.s.w. 8
SECTION 3. DI[PL:EMEJ:fTATION OF THE LEGISLATION 10
A. Introduction 10
B. Court Procedure and Disposition 10 (a) The Defence of Mental Illness 10 (b) Disposition in N.s.w. 13 (c) Disposition in England 13 (d) Disposition in Canada 14 c. Detention of Governor 1s Pleasure Prisoners 14
(a) Department o~ Corrective Services, N.S~Wo 14 (b) Health ConmLiesion of N,S.W. 15 (o) Detention in England 17
D. Revi~l and Release 17 (a) Department of Corrective Services, N,S,W. 17 (b) Health Commission of N.S.W. 20 (c) Reviev1 and Release in England 21
(d) Review in Canada 22
E. Supervision on Release, N.S.W, 22.
SECTION 4-. DESCRIPTI\TE STATISTICS OF GOVERUOR 1 S PLEASURE DETAIN"EES 24 Table 4. i Location of G.P.s in Custody 24
Table 4.2 Stat~s of Released G,P.s -??~ Table 4-.3 Classification of Outcomes for Remaining G.J?.s. 25 Table 4-.4 Summary 26 Table 4.5 Reasons for Revocation 26 Table 4.6 Offences of G.P.s 27 Table 4.7 Length of Time in Custody before Release from Prison 28 Table 4.8 Length of Time in Custody for G.P.s Currently in Custody 29
SECTIOl~ 5. SELECTED CASE ILLUSTRATIONS 29
SECTION 6, DISCUSSION OF PROCEDURES -~ THE EMERGING IS&'UES 36
A. Introduction 36 n·. The concept of Dangerousness and its Prediction 36 (a) General 36 (b) Sociological Research - "Operation Baxstrom11 37 (c) Clinical Research 38 C. Individual Rights 38 (a) The Right to Appeal uno.er British Law 38 (b) Right to Appeal in. the Uni tec1 States 38 (c) l"'""..::ison as a Place of Detention in N .s • 39
D. Court Procedures and Disposition 39 (a) Present Disposition Procedures 39 (b) Judicial Attitudes 40
E. Detention of Goven1or's Pleasure Offenders in r£ison 4i
F. Review in Department of Corrective Services 43 (a) The Parole Board 43 (b) Psychiatric Assessment 43 (c) Delays in the Review Process 44
G. Interface of the Two Systems - Corrections and Health 45 (a) Roles 45 (b) Proposals for Changing Roles and Responsibilities 47
H. Supervision on Release 49
SECTION 7. ALTERNATIVES IN PROCEDURE A11D LEGISLATION 51
A, Alternative Forms of Disposition 51
(a) General Comments on Current. Pro~edure 51 (b) N.s.w. Proposed Mental Health Act 51 (c) The Canadian Proposal 52 (d) The English System - Hospital Orders 53 B. Alternative Forms of Review 53 (a) N.s.w. Proposed Mental Health Act 53 (b) The Canadian System - Boards of Review 54 (c) The English System - Advisory Board to the ' Home Secretary 54
c. In Conclusion 55
References 57 Appendix; Mental Health Act 1958, sections 23, 29, 29A & 29B -1-
1 . 1 The :focus of this report :Ls on those cJ~:l.minally disordered offenders who have been tried ano. :found. to be nn.ot gull·ty on the e;rounds of me!l.tal illnes,s 11 , The 1 ,2 A descrir)tion of what !1ct})IJe11S to G,P,s i.n the Corrections-Health system leads to consideration of the prol:Jlems involved i.n implementing preseDt legisJ.2.tion ancl an exe-rnination of possible a1tern?.~tive systems of dispos :t tion t:r'eetment and review, A brief description of legislation and practice in other Commonwealth countries is intr0d.ucerl to illustrate alternatives in philosophy and manae:er1ent of this catee;ory of offender. 1 .3 The central issue hi.nges on where th.e responsibility for management of G.P.s shou.ld lie, The dual system ap:proach involving both the De1)artment of Corrective Services and the Health Commission, leads to a reluctance to classify such indi vicluals as either criminal or menta11y ill, The offender is not treated like an ordinary criminal, but neither is he treated like an. ordinary mentally-ill :person, 1 .4 Some of the trencl.s in at"\:;j_tudes that highlie;ht the need for re-examination of this group of offender can be summarized as follows: * The abbrevie.ted notation, G.P.s, is nsed in this report to refer to persons detained at the Governor.' s Pleasure, -2- (i) The gro~Nl1'1fS conrmJ.Y'!J..t::y orientation o:f.' psychiatric ce.:ce otncl. the concurreEtly shorter hos:pi t5.1- ization per:i.ods :for the mentalJ.y ilL ( ij.) A grow.tnc~ emph8.. s5~s on tren,tm.::;nt fac11i ties o..:r~d concern abo·at tJJ.e l)OSsiblP. det:cimenta1 effect3 of certain lep;al proced.l)_res., ( J .. lJ.) Grov;:LT){3; concern a1Jout -t-::::::-a:~1s~s·-::·ession o:C' cj_ v:L]_ l.i.berties(i ) \' J.V'. A re-exar.:J.inat1on of the assu:mpti.. o:ns need -3- (a) 2.1 Sectj_on 23 of the Mental Health Ac·i; 1958 rncov:i.des 'fo~ a srYaci.al ve:::?d5.ct to be broug1rt; j_n whe:r.·e it-. can lle shown that the offe:rvl.er was menta.l1y ill at the tir,l.e of the offence: a verdict le2-,cl5.ne to acq_ui ttal o:0. the r~~cun.nds of mental illness o In the ease of snc!1. a verdict the 2udze shall oJCder that ~ ~" su.ch person be ke:rt in strict custody, in s·n..ch :place a!ld 1n su.ch ma:nne~c' as to such 2u.dc;e seems f:i.t u:a.ti1 the Governo!:' s s F1ee.sure i.s knovJn, and the:re .... upo:r. the G-overnor m?.--Y c5.ve f:T1J.cl1 orcl.eJ? fo:c- the sa.fe custody of S1.Jch person duriYJg tht~ Governo:!' t s Pleasure i.n e. r>rison e.s the GoveJ.:rJ.or deems flt .. 2.2 Section 23(4-) of the r,cental He0lth Act provides for the transfer of GoP~s from prison to a :psychie..:trtc 11.0S}!ttal in the form of a Schedule J:'hree completed by two mec1ic2"l practi. ti.oners, A Schedule Three req_ub:es evidence of observable mental ilJ.ness which sue;5ests that I"'l:csons treated with drues and being kept in :cemj_ssi.on by those drugs are not elj_gible for scheduling, The prob1ems that this provision in the legisl (c) li,.S,W. Lerrj_slation- A.n Historical Per~ctive 2.3 Under the first legislation enacted in N.S.W. in 1878, wh .~c. h conca~ne~ - d provJ.s~on . . Ior' d"~spos~ ·~· ,.J.on o.·f G,_ P .s, ~hc •. e Governor was not required to make an order until Schedules were completed for transfer of the G.P. to a hospj_tal for the crj_minally j_nsane, From thi.s it must be concluded that. the person was detained in prison after trial and only entered a mental hospital on completi.on of Sehedules, ------* Abbreviation for New South WaJ.es -4- 2.4 Th8 I:una 2(;5 The J.,Tental Realth Act 1958 cont~t:.r.ms this procedJ."TP j_r; statute as it sta.. tes that n", c the Gove-rnor may eive su.ch order for the safe custody of St1ch person (> .. as the Govern.or deem.s fit .. 1t (cl) 1800, which p:rovidecl for the special verdict and fo:c custo(1y until the pleaS1J.re of His lviajesty was known; His Majestyvs order v:1as to "suc11. place a:n.d in such manner as to His Majesty seems f.i t," Pe:r:so:ns were often directly admH:tecl to county mental e.sylums or in the case of the clanger·ously mentally ill to Bedlam Hos:p.ital, No provision was made for schedules as direct disposj_ tion in :psychiatric hospitals was possi l)le, The lmt;lish let;islation has rema:i.ned. largely unchanged. since 1800, The most recent chances in 1964, provide for the executive order, now made by the Home Secrete.ry, to specify only a hospital as the place of safe custody, (e) 2v 'P 0. E"ri.P" lE((l cl. ~"""·~-· 2, 7 The legi s1a ti ve trends in Engla:ocl and h1 N. S ,''f. a I> pear to run in opposite directions. In Ene;land the trenil: moved from the use of d.iscretion as to place of detention to specifying a hospital as the only place of detention, In N ,S,W, the Governor's discretion was narrocved in the Mental Health Act 1958 to specifyint::: prison as the p1ace of detention Jco be nominated in the order. -5- 2 o8 SimlJ.(lY' :provj_si.o:tJ..S :ln Canada a.re covered by a PeO.eral Act: The Criminal Cod.e of Cana N ~S~~YT;. legislation.: n .. "., $ the ~judge o"" shall o:rclfn:" strict custody in the :plctce anO. j_n the ma~n_ner tJI?,t the ., .. "o judge directs unttl the :pleasure of the licoutenant governor of the })rovinoe ts h""Ylovrn(> tl 2,9 Provisions for transfer to a :osychiatric hos~1i tal are hou·e"TerII~\ . a'<...!...L--. ""fe,...en-'- - L< --..t..>..f'"Offi ~ 'c.U e•S 2,10 Section 29 of this Act is concerned with effectinc vari2.tions in the Governor 1 s Order, If a G, P, is detai.ned in a psychiatric hof3pi tal a:n<.1 the medical off leer wishes the patient to go outside the cr·ounds of the hospital as a further ste1' towards rehabilitation he may ap;::ly, through the ?'rinci1X.1.1 .hdv:i.se~c, trental 1th, for a Y~=il~:i.e.tj_on i:rJ,. the Gove:cnor 1 s order, This may be for employment, weekend leave or exteno.ed leave. Similarly an application for conditional release directly from the psychiatric hospital can be made to the Governor, c. 2.t.atutorv Review Provisions (a) N.S.V!. I,e.r:islation -Health Commissi.on 2, 11 There are two sections of the Mental Health Act which provide for :review of G.P.s detained in psychiatric hospitals: these apply equally to all categories of prisoners who are mentally ill, Firstly, section 29B :reC]_uires the G.P. to be brought before the Mental Health -6- Trj.. bv.nal"''f if he is sttll deta1ned at ·the end of s:l .. x months o If .it j_s determined the.t the IJ2~tient s~hould not be detair~~~d for fltrtJ;e:e obse:rvat:i_on ancl treatme11.t and_ he is Si.}bject to remain i.n custody, as are G.P. s, the !Jerson sha1J. r)e returnee} to p-.r.ison, 'J'hese l)rovisj_ons are dLscussea. further j_n para~:ea }Jhs 3 ~ 2 8 c 2 c 1 2 SecoJ)_:.)_ly, the SliiJerin"t.enclent of the psychiB-tric hor5pj_ ta1 is rec;uj red to med5cal1y examine or "cEnJse to be medically examineo_n o:f:fett0._er detainees to d.eterr:1i:nc1 'Hhether or Y10t they are stl11 menta11y ill and VJhether continuec1 detention in a mental hos:pitFt1 is necessary. (b) De-r)8.J::tm.ent of CoTr.·ectlve Serv:Lces ------·------.. ~ -· 2. 13 Section 7 of the Parole of Prisoners Act 1966 :pr·ovicl.es for the Parole Board to reviev.r and report to thr.:: lti..nister as to whetl1 e:r- a G. P, should continue to be detained.. in :pri.son, The po:tic:i..e.s adopted to :i.mplemeJ1t thie. }".n::ov.isio:r:t a::..-:--e (Jt scnssed J.n I)8_.r8.grg.:;_;h 3 c 2i, the associated difficulties in :parae-rar1hs 6. 23-·6, 29, (c) Eng]j f{h Levi. sls.tion ---~---~-----··-~- 2.14 There are two bocUes concerned with review of "Her Majesty's Pleasure 11 detainees. One of these bodies is a statutory Mental Health Tribunal a.nd the other is a r.on statutory ad.vi.sory bo2.rd to the Home Secretary. 2.15 The Tribunal is a safee;uard for psychiatric p2.tie:n.ts e-enerally and offender patients may a:p:0ly to the Tri.lmnal for a review of their case once within the six.month.s from the de< te of o:r-der 2.nd every six months thereaf-ter, The patient's nearest relative has the ri.ght to apply to the Tribune.l once in the fj_:r-st twelve months and once a year thereafter, ~Che TribunFtl only acts in an ac1vj_sory function to the Home Office in the case of "Her 1,Iajesty 1 s Pleasure" detainees, -x- The Mental Health Tribuna1s are statutory bocl.ies for the safee:uard of psychia.tric ]?atier.ts e;enerally. The T:c-i bunaJ. conststs o.f a ]!By-chi.atrist, a medical practitioner and a b9.rri.ster/solj_c:l.tor, The decj_sio::1S of the r,:•ribunal override Erny deci.sion me.de by the medical superintendent of the hosr)i tal. -7- 2 .. 1 6 T!1e recomm ti.on by t}I.C? A1·vold ttee(l) t.l.la.t com.1!r:Lses rJ. 1ezs.1 chai~ccJa.n; a fo::.-ens:l. c r-sychi2-trtBt ::1"YJ.d. a representative of the social work ~rofessj_one 2 .. 17 The Crir;d.Tlf).l Code (SectJ..on 5~-7) autho-rized t}Je crea.tion of }3oards of Revi.e;N at t11e OlJtio::l of the l)rov:l.ncia1 goverY;mc-;nts, Tb.e 1egis1e:l:i.on stiiJule.tes th;_,:=.J.t the boarrl shall consist of three to f'i.v(~ membe:r·s ~~ Further, at least two raembers sha1l be 0ue.li:fi.ed psychiatrj.sts and one t'.ember shaJ.J. be a member o.f the b9.r. 2o18 'J:he ~ooarO. must :cev:l.ev.r every gerson not later than six months s,fter t}Je raa.kine of tl!.·s order 2,:nc1 at least once every 6 months thsreaf'ter that the offe:n.t1.e::2 is detaJ_ned.~ AfteJ.~ each review the boa.J~d is to reJlort to the Go,reJ?nor settin~~ out tl10 J•esu.1ts ancl statinr; "tvhethe~c the 11erson has reco'\n~n:ed. s.nd, if so, v.rhether it is the boe.:cd r s o:o1nion that it is in the .interest o.f the :public and of that person for him to be released ori either condi tiona.l or absolu-te discharge. 2. i 9 HeYi.ew ann. report can also be ree1.uesteil by the Governor at any t:l.me. D. (a) The LePiSl8.tion - lJ.S.W. Crimes Act 1900, Amendme;1tTiil., l97J. -·- 2,20 This new section of the Crimes Act introduces 11 dimi.nished res:ponsi bi1i. ty 11 into N. S :-N, law. This provision in the legislation allows .for the reduction of a murder charge to manslaue;hter if there is a mental abnormality and if, in the opinion of the jury, this led to a diminution of responsibility. -8- (b) 2. 21 The provisions iD. 1'::nelish 1ee;is1ation in the Hom.icj~de Act 1957 are ver:~r simil8,r to the N. S., Vl., Lee;:i.slation, 2c22 There j~s 110 p:ro1rision fo:e a defence of dimini.sh;:::a. res pons)_ bility j_n Ca:natiian law, (c) Use of D5mj.nishec1 Res::onsibili tv j_n Rr•P:land ------·------· . ' - 2.23 Reference to this nc~'N .form of defence becomes releve.Y;t to G.P.s when seen in the context of develOI!ments in Iiing1and. ~ In :!Sngla.nd, successful use of the clefence of diminished res:rlOnsj_bili ty woTks in conjunction wi ·th prov.isio:0_S und.eT the lTental Health· A.ct 1959, which a1lows the court to Oc7der detention in a psychiatric hOSlJi tal instead of rrrison,. The m.ental health legislation cove~cs the vrhole range of offe1;cos from vagrancy to ma:n.s1aue;hter, Co:.1join~1y, these two pieces of legi.slation ( llJ10SlJi tal orc"lersH and "Climi211ohed responsibiJ.:Lty 11 ) give the court ftd.equate power to cleal appro2n:•iat.ely ·;;,ri th ca.ses 1nvolving a wide ran.e.;e of rnf;~o.tal dlsorder tvhere the I\~cNaughton r~l11tas may not a:vD1Y., rl'l1e develo:pmen·t ~~.. n.d improvenent of these procecJ.nres is becominc of far greatel~ })racticaJ. ~ im:,?orta~J.c) than the ap:0J..icat1on of tho J:!o1T.aue:hton :i..n.sani ty d.efence, · 2 2.24- N .s.w. leei.slation allows for no other oc:-der of confinement to be made, :if a conviction is proven, except for sentence, Penal ties for mansla.ughtor range fron nominal pcmishment to penal servitude for li.fe. The use of -the defence of "di.minished resporcsi.bi.lity" is relatively rcew in U.S.W. and sentencinc; under this section has already raised important issuesQ 2,25 In R. v. Veen (Aug. 1975) this defence was successfully used and a se:nteneo of penal servitude for life was handed down. The tried jud,se Gtated in his judgement that the oriU.nary sentencing pri.. ncirle of pnnishrnent did. not apply anrl life imprisonmo:1t was seen as necessRry for the :protection of the comrrnmity. The judge conced.ec1 that there -9- were cro11nc1s foT consi.~~e:r·ing \Tc~e-.r1 as m.ent?..ll.y d5.so:::·derP.c1 but the:ce wc:~_s no inst,t t:o.tio:n, otJ-1 n.~r. ths.r lYr5~so::n, to which he could be sent~ This })roblera has .:Lmr1i.cat:i..ons fo:c the use o.f this defence, es~0ee.i.al:t.y ~~vhen lo:n.g sentences R.re -10- 3 "1 Current i.nst.it.ution.r.\1 arra:-r.!:::;mnents fo::-> the a:p]}reften.sion~. detent5.on and treatr1ent of G.P.s hwoJ.ve two f'l.3.jor systems Figi.J.:ce s 3.1-3. 3 represent the :Lnter:.face of the crj.mi.n?~l justice and rnents.l health systern.s c The ar:rovrs in.d.ieate tl;.e usual di::ectio:n.s of' erJ.t-5.:nm8.te mover:1ents "~"Nith a :note along the arro1v 1:nd1eating the p:rocecl~.ral m.echanism in1rolvec11> 3. 2 Although th.i s re}">ort is not c1.5~r(~ctly cone erned \~Ji th the c1 efence of mental illness, reference ,,,_s to how J... ·",_, is in·t:.erpreted by the jud.[~e has bec:t:r:lng on the extent of mental illness of an o:ffencl.e:r ~\t the time of c1etention~ 3.3 The defen.ce of ment 3.4 Australian jucl::;es have been able to use the McNaue;hton 3~u1es with some dee;ree of flexi.bj.li ty, Ii'r, Justice D1xo:r_ 5-n R .. v., Porte:r:· instructed the jury that they should ac'lui_ t the :pri_soner i.f, a.t the time of the crime, he could not reason about rightness or wrongness 11wi th a moderate degree of composure". ( 3 ) ~Chis instruction has S'.lOSe(luently been used in cases 'Nhere the judge considers it aplJrO:;Jl'iate and for all practical purposes establi.shes irresistible impulse as a part of criminal law in Austra1ia,(4) -11- ;..F..:i""g:;;u..:r.;;E?:..,.;;3~.·::.1..:__U:;;;;sua1 Routes for G~P. 's in N.S~W. __COMMUNITY ..... _ COM~IUNITY Charge l Sp~CJ.ctl lverd~!t ~ r-PRIS~i'J L l Governor's Order 1 PRISON I 2 Schedules Three ';{ !-'· 1 rr c i",::J ____ MAX, NEDIUM SECURITY '1 MENTAL CD < HOSPITAL !-'• '---- sCD 0 '1 l 3 co OPEN 8:---- WARD 0 OJ NENTAL r r >"· HOSPITAL 0 '1 co CD :J < 0 !-'· (0 ~ 0 variation '1 < in order OJ '1,,, ;'i- I f-'• 0 OTHER :J f-'· FACILITY :J 0 '1 D. (0 '1 ---. r (0 ~ in order ro 0_, Dl rr l (J) COMMUNIT:f (0 ::J 0 ro ~ COMMUNITY -12- Figure 3. 2 Route for !···1c:r F/:l·iesty's Plco..sur"'e-"C;;;a;.:sc;;;e.~---i·n E12.,Cil_-_a~~·.?. ---...... -..----~---··-----~---""·"'"------·------ CDIVMUNITY I Charge l [iouRT J I \ verdict \ CIVIL . ~--· SftCIAL HOSPITAL HOSPITAL Tribunal or Advisory Council :r~ecornrnendation licence \ I COMMUNITY Figure 3. 3 Route for c. P. 'e in Ontario, Canada ~------..... -- .. ~--.... -, [§~] I Special verdict J, HOLDING PRISON 7-10 days Governor's Order ! [mAL HOSPITAL! I Er?.rd of Review recommendation l COMMUNITY -13- 3.5 When an offender is acquitted on the grounds of illness e:::;ta.blished :proce 3.6 The implication of the broad use of the defence of mental illness discussed above, is that persons suffering from a temporary mental disord.er, who commit a.:n. offen.oe, can be detained indeterminantly. They may be sane at the time of the trial and, in some instances, considered not likely to commit a further offence, yet detention in strict custody is mandatory. The dilemma that the judge may find himself in is illustrated in R. v. Cynthia Butterworth. Mrs. Butte~vorth spent 10 months in the community on bail . before trial and then had to be ordered to be kept in strict custody. The judge expressed the wish that she be psychiatrically assessed immediately and that the result be brought to the notice of the Governor as soon as poss1ble. The N .s .W. legislation did not :permit court reJ_ea.se of the offender to either conditional or unconditional liberty. However, the statutory provisions do not appear to restrict confinement to prison as the place of safe custody to be ord.ered by the court. Further discussion of this interpretation of the legislation is.in paragraphs 6.13- 6.14. Over the years it seems to have become a matter of procedural tradition rather than legislative restraint that has led to prison being the only place of confinement directly after the trial. (c) Disposition in EnRland 3.7 As noted in paragraph 2.6 disposition of "Her Majesty's Pleasure" cases in mental hospitals has been part of the English procedure since the enactment of the -1<'1- lee;1slation 1n 18oo·;~" There were considerable ma:n.~=:-cenlent and security probiems bnt the poiicy reg the place o:f ous·tody o 3 .. 8 The Mer1.tal Health i:~ssociF;. tion stu(1y( 6 ) of me:ntally disordered offenders indicates t d.eteJJ.ti.on, re·,.r.:Levv ancl release of G.P.s varies from l)rovi.nce to provi.. nce, most a::ee he1c1 i.n mental insti tl."J.t:i.ons, some a:ce holJ_sed in, prison a.:nd a sr:te.ll n1.u:1be:r in :n.ursin.g hoTnes 3,9 Offend.ers in. Ontario found not guilty on the p;rounds of mental ill:aess go fron tl1e trj_al to Don' s Jail in Toronto which acts as a holcU.nz cent:ce "LJ.:nt.il the JJi81)_tena:nt-Gove:t.... .r1or signs the w2"rra.nt which allo:vs s..Clr~issio:n into a rsychj_atric h.. osp5. te~l ~ ~Phe avere<:se length of stay at non's Jail is 7 - 10 days,*-'' 1 C" .D3TJ~lT'i:IOH~ __ ,...,.______OF GOV~'8170~R. .. _ ...S ______F1~J:~A.SU~.E Pi=ZI~---- S01F0l.S 3,10 A G.P. is receiveo. :i.nto prison in r:mch the sco.me w2,y as other prisoner·s ~ Hf~ is wedica1Jy examir:.ed. on rece.~:;tion and the exami11.er may refer: the :pri.soc::Jcr directly to the -orison pS:J'Ch} .. atrist; such referral may also bs effected by the Reception Corm.i ttee. F:d.soners who show overt mental illness are detained :i.n the Observation Section at I,ong Bay. ?<· T}-1e practice in the 19tb century \vas for the Home Of'f'ice, before making out the order, tc ask the visiting jt.J.stices of the gao1 1 where the :person was detained. at Her J..:?.jest~r',s I)1easure, vvhether there was a co1.1 .. nty asylum to ·which they could send the persono Bedlam, the first hos2_)ita1 desiFnate0. for the crimina1lv ins~:.ne was reouested to take only~ the most clanzerous, A i~aUonal Survey -in 1837 shcr.vecl the.t of the 178 persons detained at Her Majesty's Pleasure only 40 vvere in local e;aols. The others were ei.. the:C' j_n Bedl2.m or scattered amone; the c01mty asyhuns. '?v) 1856 of the 596 c:rhninal lunatics only 22 ·.vere i.n c:aol. 5 H, Verbal communication Dr. P. Houston, Prison l~eclica.l Se;:vice. rsycJ.1.i.at:r:'Ic b.osp:Ltal on the comp1etto~n of certi.. fj__ cates 1')y i.?..vo doctors, 1:1 the J~orm of 8- Scb.ec11;_lr~ !_n·r::.:-ee ~ Hov,rever, for those who ~cesponO. well to medicatj_on or v-/ho are mental.ly ciistufbed rather tl,an me:ntally ill, transfer ca.ses the prisoner may be ceTt.i.f.ted. "by orl.e docto7.' but may shovv .insuf.:l:lcient observable sj__ gns of mental illness at the time of the second mr~dic8.l :Lnter·view,. The d.octor is then unable to compl-:-:1te the seco'!~.d sched1..J.le and thus the requ.:l.remerli~s for.· transfer to psychiat:t'ic ~ospi tal are not fulfilled. 3,12 There are i.nd:i.cations·)c that some. G.P.s wouJ.. d be more sui teJ)ly J:lliJ.ced in rsychi.e.tric hoS}li .. tals, yet they are either not transferrE:~d or long de1ays are ex1;erienced before the transfer. These ad.'ili.nistrs.-tive problems may well result from uncle2.r criteria relatine; to the transfer of prisoners, 3 o 13 P:eiscro.ers wl1o s:re not meY!tally dj_stu:r.Oed on receptlo~n. or who reSJlond well to mecUcati on move into the general :prison :population and. subsequently come l)efore the 01assificati.on Corm:1i ttee o 3~~ 14 The Life Sentence Revievl Committee j_nclud.es GoP~s i3J .its area of responsi.b:Ll.i ty. The committee's role in the rev1ew process is cliscusserl i.11. parae:rarhs 3 ~~21 o The Comm.i ttee 1 s ma.in focus is on investigating and recommending suitable educs.tional and. there.peutic p:cogrammes, which also includes recommend.c-\tions for movement be"b.veen institutions.** (b) Heal t11 Cor:-:.rni sst on o:f N.,. S. ·,_v Q 3,15 There are three psyehiat:dc institutions in N,S.W, which are involved. in the care and treatment of G.P.s. These e.re Rozelle Hospital ( fo:cmerly Calla.n Park), Horisset Psychiatric Fospi ta.1 anil. ParraJ'l'l.tta Psychiatric Hospital w~1ich accepts female G.P.s. Tbese hOSIJ:itals ---· ------ -x- Verbal cormnu.nicatj_on wi.t~h Probat_ion and Pa.Tolc staff., X--)( The Coi''ni ttee comprises senior manap·ement personel, a psychiatrist, a psychologist a...rJ.d a social worker (senior probatfon and parole of'::"icer -16- :p::covi.f.~..e a of security con0j Dj_:r·c--!ctor Tefe:cs recoD~mendc.ti.ons :for, any 0?.ctlvi t~r outside J !.\C":tl mz~dJc;sl CP~(' C-011(: the medical 3$·17 The apr)J:oach to tb.e manae·(~n•.e11.t of G.,Pcs i.n the psycJ.1:Latric. settix-l.f\ is sj_milar to th8 ma~0e.gern.011.t of o·ther me:o:Ce~.-11y ill. Ila.ti.e:nts except for the cJ.ofH:::c SlJ_ _per-\:rieion by th8 .. J?rincipal Adviser)' Mental Heal t!J. co Th5J3 ari>l'O£:tC}"! is OD.e of cont:i:nual a.ssessmerrt res1J.lt:Lr1.e in a e;radual rnovement to-wards rednced. P)ecuri ty condit,tons and placement; 5_n si tue,:tions ~,;vJ.1eJ:e their social skills ancl i.ndj_vidvc;.l co:::i·ng skills can 'be developed and tes-ted., This system of hiJ.:cdleE) may include transfer. to m-ixed open wards E1..nc1. more demand.ine work si.tuations 2.s well as movement 5.nto- the corr.r:n;n.ity for eml)loyme::1t, soetctl and fe.mily eonte.cts. 3,18 The de.i ly observe.tion ])y :rsyclliatr:Lst and staff allows a profile of the :particular stresses which· cause breakdovm or regression to·be worked out for each individual. Since each hospital contains f:o.cilities for varyinc; levels of development a pat:i.ent can be called back when new stresses are seen to cause adverse effects. -17- (c) DetentJ.on in "i~Pland 3 o 19 The hospital to 1Je specified in the Home Secret8.ry' s warrant can either oe a "spec:Lal hospi.ts.l"x- or a local mental hoGp:LtaJ..o The J.'fental J-Tealth Act 1959 placed the. three specj_ h.os~)j~ tals un(l.er the direct manag~e:ment of the f..linistry of Health so ·that ·there is no sharine; o.f manat:emen-1.:; of mentaJ.1y ilJ~ o:f.fe:n.d.ers .. ** r.ae general princip1.e ad.opted. in s:9ed.fyinc; a specia1 hospi.tcll as the p1ace of deteJ1.tio:n is a "last resor-tn po15.. cy 11 after all othr-:r l)OSSl·b•l•t•) l ___ l ·les 1ave b een consJ"f-~'.. :.eJ~ea unsuJ_-~,:;t,)_•tll"(7) e .. 3. 20 It i.s consid.ered desi:~able for a patient j_n a special hoBpi.tz.,l to £;0 to a local :psycf.t1at!'iC }:lOS pi tal before being disc:he.rged 5.nto the commun.i ty <::tnd j_n the me.jo:ci ty of cases 8 tl:ds l)ract.tce is adopted I> ( ) ~Phe Bnt1er Report cornmented on some di.ff'tculties tn effectinc- tb.ese t:cansfers; one of the :reasons {';i ven was lack of secure :faciJj_tj.es in the loeal hosyitals, ( 9 ) On the whole, the 1959 l1enta1 Health Act is considered to De Sl1.ccessful j_n relation to the tree"tment of mentally ill offenders. (lO)_ (a) De1;e.~s:tment of Co:c>rect5. ve Services, H .. So ~y .. .. ,-~------·--~ .....-~---- 3.21 Unc1er legislative IH"O\risio11.s~ revj_e\v fo:c G .. P~ p:cisone:rs is a matter for tb.e Parole Boar<1 v:hich can -repoT?t to the lLi.nister, o:--1 the conthrued detention of a G.P., whenever it co-::J.siO.e:r:s it is app:r.~og::c1ate.. In FeDr,_;_ary 1969 a policy was introduced t}}e.t reyj ev.rs be: tnj_tiated. by a referral :r-·rom the Tili.nister of ,Justice on the advi.ce of the departmental I,ife Sentence Review Ommnittee. The I,ife Sentence Review Sommittee the:D. e:Dsures that up to date psychiatric reports are submitted for considerati.on 'oy the Board, ------* sr,ecia1 hos:9i ta1s are for menta11y i.11 patients who, because of da.:neerous or c~cin1j.:na1 prope:n.s:i.ty are not sui table for placement in local psychi.at:;:i_c hoSliitals. Broadmoo-r spec.ia1i.ses in mentally ill Ol' psychopathic patients whose i.ntelH;;;ence is averace or hic;her and the otheT tvvo hos}!ltc1s tr:::tke patients i.Vi th some desree of subnormality or brain dama.e;e. **Prior to 1959 tte special hospitals were the responsibility of the Prison Service. -18- 3 .. 22 ~eh~ generP..J.. :)clicy i.s to rt.;view at twelve m.onthJ..y tencc ?evJ.ew Oom;;J.ittee as soon ::?,.s ross:Lble after and the ce..se shoulcl be rAsuhr::Ltted ct:t th::ee o:c six month1y sh.m,_ld not lJe lon,.er "' tha~n t'Nelve months e In _p::r·c.tct.:i.ee each c;~_se neE;cls to be in1J.ivld.1Jally constd.e::cecl in te:cms of the meJ'ltaJ. hea.1th of the GeP. a:0.. d the risl: to soclety if he '~Here to be 2?elea~seCJ.¢ 3 ~23 The flo1N of comrnunica-'c:Lo~n.s betwee~n. the eov~~rrtment agencies involved. j_n the :cevievi process ts rerresented below, 3 '-~ 24 The Pr:.role ?.>oarc1 may review a G ~J? ~ V!ithout 2. rec:uez3t .from the T·.,Li.niEJter a?Jd i.n isolated. cases tJ1.e BoaTd uses this preroc:ative" Sim5.larly, in cases \vhere t}:e :nP:w :r-evievv elates set l)y the Board aYl.(:l t~h.e J~ife Se:~J.tence Reviev:r Co::'"l.rn.i ttee coinc:Lde s- a re(1uest for nev1 rev.tev7 .from th.e l~inister is not :necessary~ 3.25 G.P.s who are releasec1 from custoc1y are relee.secl on concH tions in the form of e. li.cence. 'J:'he licence contains e. number o:f universal conditions 1'lut acJ.rU.t.ional conditions !:~ay be add. eo. if it 5 s seen as necessary. The duration of a 11cence is _1.Jsually flve years for those vlho have oommi.ttec1 serious offences and three years for lesser offences. A person on licence can be returned to custody for breaking any conditions of the licence, in the event of psychiatric breakdown or for corr:mitt.ing another offence. Return to custody means retur-n to prison, in the first instance, even if the reason for revocation is based on psychiatric grounds. -19- Dept~ of 0o:r·recti.ve Se~~~vices l.:i.~fe Senten.c(~ ~~evj_evt Cor1m:LttPe " ' . I ~ . recomsenr:;.a CJ.on J or ~c-evlew .t .,j, ·tice and ServicPRj I reCJ..t)_est for advic~ 1 recomrn enc1.3. tj_on .for release 3oard!s -recorrfr:1~n t5J!!:: 2-::~_·:::d.nst re1ee.se & ~0ev:r revies dr-\te; Committee 1 8 reeotn.mer:u:1:?,.t:i.oTt 8( --r:>Rvie\'1 (l.s.te :Lf in clis;::,e:~ceement wj_ th :3o 0 .:Cd ..---t -~ Mtn5.r.-·.;tr::::e I I Cor:m:I.S~l~:.rn·!1·:;:c] recommend~_tio:o Board rs rec;ommenrJa·t::i.. o21 & nc:·:'r :-:Pvj__ ew elate for :r:·eJ.es.s.e Commiss5.oner~s Col!llllents, if' aey, and new review date if in disagreement l v order for releas~ endorsed on ltcence.~ / r::::J_::o:L:_:tc~1-~::_U:_3:s2.i~.o~:r~·:.e::_-.. ::::.:_lt-·--- ne\v review date ------' l sent to D el;c~.:ctmenl:Js I Co:c::(•esto:nclenc e licence Sect:Lon, ForwarCleil. J to Boa:co. at a later date* community -20- 3 c26 A patie:a.t vd.. thin the me~J.tal r_\_ealth system j.s unde:e contin.u8.,l review Q The :r:n:ooc::carnme fo:r a patler1.t j_s b.:?~.sc-::1 ox1. the Hmu1tj_IJ1e hu.rc11eu ap})roa.ch c1i.SC1:t_ssed i:n. pa.rc:..::_:J.:·aphs 3 Q 17 - 3¢18 ~ TJ:1is e.yyn:-oach li~ecessi tc1tes const2.1Jt :revievv a.:-1d assessroe:n.t by the med.ic?.l o:E'f'icer ..~vo determine v:then the pat:i.ent is ready for th.e next ste~l' 3, 27 'r.he Mental Health Act I 958 only }Jrovides for the detention of 1_1ersons ~ SlJ.bject to be 1-'H::l(l .1.n C"tJ.stoc1y, i:n psychis.ti'i.C institutions whi. .. le they a~ce rn.e:n:t.a.11y ill o Sb.ou1d the lTente.l Health r?ri bu::n.al or tJ1t.:: Pri:ncilJftl .A.clv:Lser, Mental Health dec:1r'.:te the I>a r"n.t no mentally i11 1 vv:L t}Jin the te:t:'Tl!fJ of the Act~ the })a tieT~.. t 5.s retuT:r"t8d to :;risono 3, .28 The Act reCJ.ll.'i:r.es that persons tn1cJer det(;;nti.or:t be tb.e CL"!ribun::J. at the exl;ira.ti.o-q.. of 2. six thouc:h the ~2ri.hu.neJ. takes :i.. nto a.ccot.:rr:.t med.ical :r:c~ports it does not alvia.ys fo11ow t:he ·medical office:r·ts x·eccr:J.menda.. tionB{\ If a. G~-P~ j_s declared to be no longer mentally ill, the decision nay result j.n :return to prison and.. co:osE~(:ue~n.t1y an interrll})tion of a gracluat~~a. ·:~lte commrtnj_ ty o The 1\Tenta1 }Teal th Tr:t1)Una1 is pri.mc::n:-j.J_y concerned vvi th the issue of mental 5.l1:ness a:nO. not with the issue of :pote:ntial ~ r--"'11C'Ylf".:J.'""S ., +hr>' 8..:-r···)~n'Jit· 0'Y' 4-,c-,.·-.,,r·o .r:o d '""n 0 e..~ .. o~ .. •·-'···--··-;::;' ana ,, ,.. Qe~ ... ~._.c..., d. __ y, -·- Ol·.nv.k,,:t...._.e, Ol release of offenders into the corr1munj. ty (see Section 5 (h) ) ' 3 o 29 Bowevc~r, if it is j_n the inte:::-Ast of the :9atient the TriblU1.~?.1 h::.ys : J... n sorn8 cases, a~:reed to allovJ a l)ati_ent to remain in the mental 5_nsti tution beyor)_(J. the pe:ci..od of overt ment<::-1 i.llness. * A number of pettients h8.ve, in fact, been released directly into the comnru.n5.ty from I;Torisset Ps;ych.i.8.tric Eos:9l tal. Another two !:Jatients are cu:r:reT·_tJ .. y 1mder ooYls5.de2'ation for 'reler,,ge froN Rozelle Hospital~-* ------·--- * Verbe.l Comnnmic2.tion, medical officer, Rozelle ~iospi t2.1. **Out of 55 released G.P.s, 9 have been released from psychiatric hospital. (see table 4.2) -21- 3 o30 If G~P~s :r·emaj.n :Ln h.OSJ)i tal follo·a5.ng tb_e f.;lente~l Health ~r::r:·:Lbune~1 assessment the su1;erintende::tt is resroYts:Lb1e foT GlJ.1)seq'lH:rnt reviev1" A mec1Jca1 report :Ls submitted. by the rnec1:Lca1 officer ~~-:nd i.f the:ce is a Clif.fere:n.ee o.f Ollinion bet\V8(3n the st.:t}!eJ.::-.:Lrt"l~f~ndent and t"he med.ical of fie er, ot"h.er psych:i..E-ttric opiJJj_o:r.!.s <::.re rec:;_ue::~~ted .. A final recorrunendP.t:lon iR sent to -t}l.e Principal Adviser, !1 en tal 'Ileal th. In the case of release or variati.on tn tb.e Gover!loJ:· t s Order b.e sencls the recomrr!.end. ation to the I:Jlnister of ITe8v1th and. sub,sequently to tl-.e Governo:r «' 3 ~31 Pc:.:rsons ~.celeased f:eom psych5.at~c-ic institut:Lons 23.'e released on l:i.ce:nce as described :Ln ~~)are.e;ra,Ilh 3 .,38.. In 3 ce.scs patients v.rere relec:.secl on HJ.ee.ve of absencen effect eel by a va:cJ..atlon i:n the Govei'no:c r s v1ar:ra:nt., 3 .,32 Since all Her J\~ajesty~ s Plef?.Sl)_:r:e cases in t"Jng1ar:.d are detained in m.e:ntal hospitals the review is enti:r" 3,33 It is not com}mlsor3r for cases to be bToueht he:fore the Mental Health Tribunal but as already stated in parae:raph 2,15 patients, including lX?.tjJmts in s:pec:tal hospitals, may ap})1y to the ·Trihun.al for revie•N \Yj. thin the six months from the elate of order and ever·y six nonths thereafter. The patient's nearest relative has the right to apc)ly to the "J'ribunal once in tJ:e fj_rst twelve months and once a year there~:tfter. The Tribunal acts in e.n ac1visoTy c8.}Jaci ty to the Home Offj_ce. 3. 34 Fol' SIJecj_al hospi t2.1 cases, t'-',at have been c1assifieiJ. as needing special care in a.ssessme:e1t, the Home Secrete.ry is assisted by an Advisory Board. The Board comprises s. legal chairme.n, a forensic psych5Htrist and a re11resentat:Lve of the social work profession, The Butler Rerwrt recommended certain modific2.tions and. extensions to this Advisory 11 Board.C ) Firstly, all restricted patients in the special hos:pi ta1s should be referred to an arpro:r:>riately constituted adviso:!'y board ana. th8 advisory 1)0(-'.rd should be available to thP Home Secretary and to the responsible medica1 officer in cases in local :psychiatric hospi tal_s. -22- Secondly, the ,J.d-v-.isory bo~:;,rr1 shou.1d be :i.nvoJ:ved in p:r'O!>NoD.ls to the Home Secretary· to transfer restricted hospital patients to local psychiatric hoepitals, to grant pa t1e:nts leave o::c to dj~schaT~c;e them into the comrrnJ.Il.i t~ 1 " patiP-Tt"l~.s t:oro\1~1n.O"tlt the pel"'i.od 01' SUJJer·\ris:i.on a.:nr:~ shol:.Jcl be o1v~(l. ir the rr,:-;cr.;J.. l of any ,q,,~ch lV4.ticn:··!'"l~ .. (d) 3. 35 Jn tt.te l;ast :fi'.Te years ·tf:LG rrcoviJtees he~v(;, mover:J. to'ivaT·ds esta.bJj_sh}.. ng fo::ern.E>,l Oo.:u:-cJ.s o:f review cn1d seve:11 p:rov:i_·_o,c.es have estab1ishe·:l ~ooa:cd.s lJ.ndex· e }1 edera.l Criminal Coc1e * 'l:vto otber lrr.'ovJnces have c:reated. !)o~.?~:.I?cis und.e:c rrcovinc1?.. l acts, VT}d_ch fulfil vj__ rtua.1ly the S2)Je funct:Lons, but o:;Je })rovince has no 1.)oard e 3.36 In Ontarj_o, the Hev5.evv Bo?.:ril is c:reateu. uncler ·'(he 1)rovinc:Lal 1-~enta,l Health !~ct and. :re,.rievJ is OT1ly once a year instead o_f the~ s:Lx monthly r-ev:i .. ew Teq_uj_red. 5.n federal legj_slation~ 3 ~ 3'7 The -revJ.evv J?rocedur:·e ad.opt8c1 in OJ1t2.rto is b:;:·i .. efly as fo11ows·x-. A caGe conference is held j_n the hoe:oital whe:~e the offencl.e:c is a.etaJJJ.t?.d~ '-'r}1 ich :i.s atten.0.ed by medlcal staff 1:rrvo1ved in -the ce~s'"~ e,.,ncl thr.; Cli:rd..cal Dtrector. Tl1e e.dvice of i.ndepeD0.ent psychiat~cists is sousht ·when it is cons:l.dereCl necessa:..-:y. A legal offj_c.el: writes a submission cor.J.tai.ni:n.e: the determi:n:::J.tion o:f the case conference for the :Boaril. of ? 3.38 G.P.s in prison are released to the cODJnunity on 1icence under tl1.e supervision of the Probation anrl Pe.role Service. The licence col'tai.ns een0ral col' eli tions as to p1ace of residence, reporti.ng to the supervisine officer * Verbal communicat5.on Dr, P, Houston, -23- a.nd notj__ fyiT:t::~ cha;:1ges i:n. erD.}Jlo;;rrnent ?.nd. :ces:i.d(~~n_ce ~ The: licence rrt<),.y also coTt.tai.:n. :?·. Some :!:J~f*isoners are released. on lj_celtce vri th -tl"u.-; cond.lt:i.. on that tJ"ley ac1mt t them.selves 8 .. 8 volunta:::y r)ati.ents i.nto a psychiatr5_c insti tnt:Lort." This is usu.a11y for a rer5.od of :cesocj.. al.ization and gra..c1ue.1 rej_n.t:r:·oduction into the community<) 3v39 G~P.cs he~ve also been released o~n licence from 1-1orisset Psychi.a.t:cic Hos1)5_ te.l uncle"~:> t1v~ B2.m.e co:nd1 tj_o:o.s 8B out1:Lned. a Dove~ .Some ca..ses have a1so bee::n. :released :from :L\orisset on Health Comrnj_ssj.on fo::r: su:ce.T·vis1on }ll.J.I'lJoses '~' Leave Of abserY~e has been for a re:r.~5.. ocl of two yea:cs aftAr wh.i.ch a:pJ)licatj_on has 11eeT·1 made to the Gove~cnor, through the T:'Lin5.ste;:: of Health, for termine.t:Lon of the Go\re;:':no:r· t s warr?.rtt., ~I:he followi:n.e; tables aTe of 5.nform8.tj_o:.1 is d. en.ta1 :reco~:.:ds insta.:rv:es a~r.-e irtcorrl.!!1ete 0 A11 ();;'.l.sic d8.t(?, Jv.:~.s "'oee:r; checked \Vi tb. poJ_j_ce :reco:rc1s <> 4.,2~ Tht~ f:i.1es of 121 G~?~s knovrn. to h::\ve been :cccpj:ve 2. 12 i Tota.l G~P .. s in r):cison -22 G .. P~s j:;:! 1)8"-:-c}iJ.r-:..:~r·ic >(>s·.')_1te.J.s - -~-·...... _·--·--·-----·-··~·- J.~o:cisset VlcG:d 21 5 W3.:·.-:c1. 19 (rr10d,. securit-y) 5 (!"~·n Vhrc1 i 7 ' '~ ...!... -· ~ ... secnrity) 4- Rozelle: Eos~p5. tal We.. rcl. 2 ( mP.r:l () s ecrr::~i. ty) 8 Wa.T·cl 20 (minfl secu:r.j_ty) 5 Re11~l t:c1:-?. t j .. o:-1. ~7 a:ccl 1 Pa:::-:·r·:::u:~:J.t~::a Fosrl:Lta1 (females) Tot2.l G.:P. s j_n psyc1:1.i..atric 1_~i.OSl)ital Total G.P.s in custody - -25- Current first licence Licence expired Total released from prison ~'?;;sed... .J:qo2:!!.. ~~-.21.!2£ll?i!iS1 Under Mental Defectives Ad 1 On licence 4 To inter-state psych.ia trio hos:pi tal 1 Lsa.Ye of absence __l Total released from psychiatric hospital __2, Currently in prison 4 Died in prison 1 c-v.rrently in psychiatric hospital 2 Released to :psychl.atrio hospital _,1 Total released and reYoked Total released G.P.s. 4.3 Of the twenty-three whose licences have expired nine are k:rwvm to have completed. successfully. Records of the other fourteen licensees are at Sheas Creek GoYerr~ent Repository. It is most likely that all of these completed licence vri thout further i.ncident • .:;;~.;;; Died in psychiatric hospital Deported committed suicide in prison Sentence changed to life by appeal Trial leave, discharged from court -26- Total in :prison 22 Total in psychiatric hospital 29 Total released 49 Total of other outcomes .21 -·121 4.4 The total of released G.P.s (49) excludes six G.P.s released a.nct revoked and who a.re counted in the present population of G,P,s in custody. Offence committed while on licence 1 Recommended by psychiatrist 2 Breach of conditions of licence: - not reporting to Parole Ser1tice, not attending psychiatric clinic 2 - unable to be located by Parole Service did not abstain from alcohol 1 - suicide attempt, failure to co-operate with Parole Service 1 Unknovm - 1 8 4.5 The offence committed by the G.P. on licence was murder and the ~vo G.P.s who were revoked on the recommendation of a Psychiatrist had made threats to kill.' -·27- Offence -~"' 1tiurder 77 Murder - attempts 13 threats 1 Manslaugh·~er 1 Assaults - major 11 minor 2 Acts endangering life - arson (person therein) 2 other* __l Total l:wmicides$ assaults and like offences 108 Attempted rape 1 Indecent assault on female - und.er 10 years 1 under 16 years --2 Total sexual offences - !:t.,?,~~:..JL~t!&.BJ2flence~ Robbery - with assault - 2 Total robbery and e:J~.-tar"tion offences 2 Pro;perj;y O;ff3~ Break, enter and steal 1 Larceny 1 Injury to property - arson (person not therein) 4 property over $10 - 1 Total property offences - 7 Total all offences -121 * Discharge a loaded firearm w1th intent to prevent apprehension. -28- 4.6. The G.P. who v'as convicted o:f break, enter· a;ud S 0Geal., among other offences, was not committed to a G.P. term on the grounds of mental illness. After sentence had been :passed he was declared an habitual criminal and ordered to be held at the Governor-GeneraJ. is pleasure. This decision was made in the Australian Capital Territory. Tj.me Number -" """"""'"'"""''"""""~ Under iy ~~~ 1y < 2y 7 2y< 3y 8 3Y< 5y 9:• 5Y< 8y 7 8y< 10y 6 10y ana. over ~ Total -46 Average length of time in custody 5 years 1 month Shortest term 3 months Longest term 1'1 years 4 .1. The total o:f tLP .s released includes released and revoked G.P.s but excludes G.P.s released from psychiatric hospital as the dates of release are not kno~~. (9 cases out of a total 55 released sho;v.n in Table 4.2) Time Currently in Currently Total .~!2h•, J-:os,E.~rison_ perso111! under 1y 3 3 6 1y 2y 2 7 9 2y 5y 4 i 5 Sy 10y 7 3 10 10y 14y 9 1 10 14y and over _2~ 3 __2___, Total 27 18 45 4.8 The total of forty-five G.P.s excludes the six G.P.s in custody who have been released and revoked. -29- Sc.:::ev.i..ces c te some o.f t11e d.i ..ff1c·n1t5.es that ca;.::l i)e e:xr)e··ci.eri.c :i.r1. lra:plernenti~n.g t~he Gove~~'"'-:~.or t s o:r·c1er 1:1 a ~v~n2.. 1 sett:i.n.. c.. The sur:E:1.f::1..:t:'1es are 1-:~e.sed on t:b.. e clera:et:;!lSr!tal :C":Lles of prisonerso (b) 5c2 Mro Bo Vl!:lS helc1. at T:Io:c.i .. s,set as U11.fit to plead for "t '_,t(-l, ·_, •._,_.:: .. e..--t:i '""'~·•t ..... , ..;-~-e"rs ". .._ .• __ , "Jl"~-.::r... ·'· "'-'--~ l 1-·"'·.. 1· .o~ ",--,.,1·'-\. . v~ ..... 1 ...J. -u...... 073:; Q S1·, ...J;~ ce.. l•_ ... J·_,_- +,,_._i, _ ..... •.•. ·,_-_,_• , ~~ _,s.. · rem.aj_necl i:n ~p:cison~ cJ.i:t16S most o:f the t1rne at G·olJ_11)urn sj_nce i 975 ind.ice.te that he has sh.ow11 co?J.Si(1erab1e imJ:;rovement c~.nd stability i! It is recosrn.lzed, ho'.7(n>er, th.e.t should medication be rem.oved th~_:,_t he wou1cl 2.5ai:n be0omc ...1J <.)'"'ovc·hotic • ...... Psychiatrj- .. c lntervcrnti.on in. thj.s ca.. se dernonstrc.tes d.iffe:cent :psychi2.tric OI)in.ions 1n. the tr~-;atme:n.t of psychosis~ It was reconmended. by a psych:i_,,,tr·ist, onts.i.il.e the P:d.son I,1ecl.ical Service, in 1973 that rir. B, be trscnsfer:ced. to a psychiatric inst1tution for nmore active treatmentn, The Ollinion of tl-e pr.is0n psychiatrist was tha,t there was no cure for M.r. B. 's concl.i tion a21cl. coulCI. see :no acl.vant8:ce i:n transfer. Recommendat:i.ons fo!' t"7ansfer to a psychia,tric hospital hP-ve more recentJ.y been made by the I,ife Sentence Review Oommi ttee and SU}):,c')ortecl. t>y the Parole Officer. The prison psychiatrist ma:i.ntaj.ns his or.igi:n.al view. (c) JTr. J. (mu-rder. Hov, 197:4-) 5.4 Mr. J. was admittea. to the observation section at J,ong Bay following his arrest a'.'ld. has remained there as a swee:per ·>E- Date of couvictio:n -30- altb oue;h no 1onc:er for m.e IvTr., ~J ~ res];)ond.ec1. I}"U.iekJ..y to m.e<.1:.i .. c::3-tj .. o:n foJ.' !"liS })3.. T2XlOi.d 5 .. 5 .:\lthou.e:h :r:eiJor-ts t:rvJJ.cate tJ~.c~.. t he is re~:\sone.l)1.y conte11t s statern~::;nts mad.e l)y }ffr o J., indtc2.. te that lt.e th.:i.nks he >rv'iJ..J. OYtl.y need:. to serve a short tj_r::e tn lJr:Lson ~ Iv!ro J" states "'Ghat l'te 1vas told by hj.. s solj... citOl" that :h.e WOlJ.ld be t:re_y);:.fe~cred to l~To:c:tsset :Fsychi_~-' .. t~r·ic Hosrital wi thtn a mont;b of th,:; -t·,]::-j_al ancl e.t the exyi -r.·at.i.on of this t:i.me 1J.e enc,:uLr:;:~d. of the }):ci::Jot.l psycldJ:'.t::cist wheY'~ }!(~ 7to-u.1c3. be transferred(\ L'lr o tT ~ st~:\tes the.t the re];)Jy v;as ths:t he wouJ.d not 1)e tT'8.ns:ferrecl. to a psychiatric }·LoS])j_ taJ as he t.T" concl::..1.des that s:Lnce he is no loneer consi.dered m~ntally ill and s e he v:as :fo·~)nd re1ee.. se~ 3\rj.. clence~'<~ j .. :n.•.1:Lcates ?. '. becominc more p::ee"':r'~18Xlt 8JD.o ..n.g in perh2.JlS this :::ef1ects tbe t:~ro\vi:nc:, concern i'oT i~0di 'r.id.ue.l richts tl1::::ol..J.Chout th.e co·:·:·lm.IJ_nj_ty f•enerally 10 (d) a life sentence but this was changed to a Governor's Pleasure te1:m ·by the Court o:" Criminal A}):oeal :i.n l\:ay ·1975, M:r o F Q vvas rei.~-GT·ned to I~o:rtg Ba.y after the t:r"5_ci.l v.:nd t:ca11sfe:c:red to the 0 ~B .. .s j) Section·:+* beea1).Se of hj_s refusal to take medication~ 5 e 7 T,~r 0. p e was diag:t"J.OSBd. as a chronic sch:LZOlJhrenic 2.n0.. Temained I.JSycJ:.otic fo:2 a. consi.de~catJle arr.ou.nt of tin.e even thoueh he v.ras :recei.vi2:._c: medication e A Parole R.epo;:'t of "' ? ., O.isyJ.. ayed n general lack o:f * Verb2.l comnun5cati.on, :r··obati..on and Parole O:ffi.C(or ->*--* 01)servation s~.-~c-tlon, IJone Bay Gom:-s)lex. -·31- 2.}!}1T0I-'T5. affect in his reactions be a s:J.tciJ.e risk.. r.che Ts.::-:oJ.e O.ff:Lcer recor:::rr: ed. transfer:· to a mctxim\)J:n secu:ci:ty :0sychie.tT~LC 1::-.ospj.talo J\,Ir c F ~ irn]")roved suff:Lci eJJ..tljr 5.n tb.e en:3 said ·to :no lon-::e:'? s!::.o'H a~.y ove~r·t~ })B~;,rcl:ot.j.c sym:;:i:.oms he 1?emai11s slo-·.:v and :cet8.J~decl .. 5 .,8 e T' ~ is a Kevt Zeale:r.:(lsr ar-1.C1 the na t.te:c of his deporta:tion is at }"J:cesent v.ndcr COY".tSj.rJe:::-ati.on by tl1.e Immi:SI'8.t5.on :DepaTtn1ent ~ ISr~ 7 is not l.lable for del)ortcttion tn1Cte:c· Sectio:r1. 12 of the Imm:i.e,::catj_orJ. Act as he J..s not co.,_;victed o.f a cr.·imi:na1 offen.ce a:n.d he has not bet~:!. t:\dmi tted to a psychie.tr.i_c hos~1.i ta1" The only section u~n(~_e:c \vh:icb ~h.e can De d.erorter1s w1.Jj.J_e h.e ren<:·d.. ns l1:1. :rxriso:.n., is Seet:i. on 14 of the Act V·r1: ..ir;h gJJ..o~ns ::~or !!LmCtes.i.rahle ]!e:csor:.s 11 to be dero:rted(l The case h?.s been refe~red to tht; I..-TJ .. n.iste~c of Immie:~catio:n fo:c foT'liEtl dt:~·ectlo:fl_ BJ1fl such a cl.ec:i.sio~l rnay ta1(e severe.l mont}J.s" ~Che psych:Lat~cic rer)oJ.::-ts from tl1e p~cison ind1cate ~-<- StJpr>o:ct fo:c d.epoJ... tat:Lon on the concl.i t:i.oY:. that he is admitted to a psychiatrj_c hos11:Ltal OYl a..:-crival .in New Zealand .. 5.9 It is d5.fficul t to ascertain why r:r.. 11., has not been , transferred to e. psychts.tric hoSlJi tal since hj_s trj.. a1 ~ Both mar:e.t,~ement aXH'l d erJortati on would seem to be mo~ce apyropriatc-:1y ha:1dJ..ed i.n Sl..i.ch a sett111Le (e) 5,10 Ilr, S. quickly remitted from his yaranoiil. scJlj_sO})lJJ~enic condition wj_th meclicat5.on. In Sept. 1976 Mr, s. was exa.minecl by a consultant ysych.iatr.ist w:i.th a view to comi)leting a Schedule Three for transfer. to a psychiatric hospitaL Althoue:h the doctor was convb1.ced that M::ce S~ WEtS sttll schiZOlJhrenic he V!CJ.S un8.b1e to compl~~te a Schedule Three as he v;as not acti ve1y psyc:botic at the time of examination. He v;as therefo:ce not ab1e to be transferred to a :psych.iatric hospital, -32- o S~ was recornmGndei for ~e~ortation back to his family in t Germany 1Yn.t depo'"('t:::1.tlon vu1s 1."'.ot pos~~:i..l;Jle a.s he VIas :not co1;.v·icted. o.f (.1. cr:i.mina1 offe:I:!ce ~ nor we.. s he provided the non ey fo:.:- hi.s passa.z.c as tbi.ti 'l!as tl;e OYJ1y. means of securiJlC release~ He was released into the custoCty of a :E'i:~t:rnily friend verba GSco:::-tE~c1 him OJ1 thr:; :f.Jj_r,~ht \Vht~:r'e he :fotu:1r:l. :.t dif:fic•Jlt to contl"01 hitJ ilYiJJv.lses to reta l:Ls.:te o 5" 13 J.~ro K~ .is at present J.. ocated at Ber:ri..010- Yrhi.ch. see:ns to 'be the 1nost al)lJTO~)J:?i2;,te of the:: J)r1sons in vt~1icJ:1 :he has l)een })1aced, o.lt}'}ough he is still Sl:tlJjt3Ct to a co:n__ sj_d~:rabJ.e amount of tatnJ.tin.c c 5. 14 }'sychia j_)J. the re....no·r· "" ..~...ti (1 5.15 ~2heTe seems to be few places where 2. })e:r'son su<:h as 1-:Ir C> K 0 can be suitably pla.cecl.. ILLs fam1ly are not j::nte-r.ested in h5 s welfare and he reqy5.res the care and supervision tho.t would be offered by a concern eel fam5.1y environment. It may be noted 1 however, that pa.tients Vlith varying dee;rees of retard.ation cor,st.i.tute the ms.jority of the lone term popul&.tion at M.orisset Psychiatric Hospital and this settine: may o:ffer an alternattve for mentally defect).ve G,P,s. -33- (e) J,Tr ~ ~r. o r rl_;~_ll 1 rJJ:rr-; to r:~eo·cJer·t:\r .-! ..'n exr;(::~!r:; of ;~ 10 ~ ~ .:\tu~ .. 1 ~J71) -··--·~--.....\~ ...... --~---"----' -----·-'"'----··-·------~-'"""'"·----~~-·--·-"--- c -s S.Lnce 1JJ.s offence he h::\s bee~n. <:~secl on licence which was revoked for not reporting to his Probation and J)e:rol.e Of~fj_cG).~ Sl)ent 12 mOJ' ln RoZ<:::lle Hospi t8J. ·and vvas retu:r~ned to :prison after Hea.1 t he the r_;sYchie.tJ>i.st b<).t i.t 'became k:n.o~.vn to - 0 . c; p2.role o?.ficer Sltrft3..(J:8 1> S:he 80~~1me:o.1t ill?.de by t}J.t? rs~TC}:d.8:·:-~~Ci..t>t in }:JJ.~; S1J.. bsec1u·~nt re~1o:c·t was t1Jat thi~3 case j_l]:u.stTP.ted_ most forc:LOly the adve,:n.ta[:e o:f a mu1t1-c15.mensloJ'~.a1 8-)J~J:r:·o~":J.Ct.L to e. yn::-iso:n~;r to cnroid. }"LiS be.tng 2.ble to nl)'D.ll the wool ov-er the eyes :t ~ Tho rJsyctJ.at~ciet became \:7e11 avva:re of tlle acl\rcr~_rtr),..ge of :-not cleyenrJ~u:~_p solely on h5.s j_:rJ.tervievv£-:: vt5.t!J. the p?~tie:o.·c ~ (h) ~ L~ wa.s transferred to a psych5.atr5.c h.ospital with:Ln a vveek o:f corJ.vj_ctj_o:n a:nC1 s~Jent ei.p:ht months theJ:e before being ::ceturner1_ to y:rj_son as ?~ res1_(~t of a deci..sio:n rnacle by th-3 }:Ien.taJ. Hea.lth rl?J:i h1)..Y;_2v1 * Durj.rJ.;3: this ti::~e at Rozel1e Hospital J:,~.r" IJ.. made COJlSi.d e:ca.ble j_rni)rO',reme:n.t and at the t.i.rn.e of th0 Tri1)una1 t s decision the mental health. authorities 'Here consiO.er:i.:ng an B-1'2;->::tication to have VT" L .. transferred to an open ward wi +,h a view to gradual re introduction into the community, 5,19 The !~ental Health Tribunal :i.s only concerned w:i.th the issue of mental illness e.nd not with the issue of sui tabili.ty for release into the corm:mni ty in terms of the "dangerou.sness 11 issue6 In this case the intervention of the Tribuna.l 1 s decjsion may be seen as i.. nter:rn}lti.:nc a p:cogramme of rehab ilitation and may pro1onr:; the time before eventual release, -3~-- (i) th.e effect of excessi:'t.re drinkinG of a1cohole ~rhe major issue :Ln conslde~ci1"~2; release o:? }.Tr c: R o is not one of rne:-1taJ. illness 1Ju·t. of r:Lsk t;o the eorr~r:runi ·ty v I.tc .. R" he.. s bee~n under rev.i..Pw for release since 1967 and durinc; the subsequent years numei'O"~J.s psychiHtr5 c repo:cts he.ve l)er:::tl pTesented containing ve.ryin{: Ol)inj_o~':'"lS as to whether j,.:,:.r. ~ R" is likely to offend 2vgaino a R .. h~"3.. S .rrresenteCl. Vie11 in prison anil there aTe :no Q:he reseTvations eX}):t:·essed by gsycld.~.tri.sts are bEt-Sed ort J:d.s behavio·c:.r relatinz; to the off(::T').ce a11.D. a:ny fu~the:L' testinc: ov.t a.s to bow he wou1rl react u:r:t.d.er the influence of alcohol or in tb.8 cor.1p2.n. .y of females was not y:-oss1h1e Q The rese~:::ve;t:.i.ons the~:·efo::::·e remain and the resnlt of reviBtrl rem8.. ins the s?.<.I'i.e ~ 5. 21 The I.:Lfe sc~ntel'lce R.evie'>v Corm:1lttee cons.iders tra1>sfer to ce:..n be tested in v-aryine socia} si t.t_;_;itions a:r.~B. eo t}J.a t sorce resocialization can teJre place 0 Since he ca.~w.ot be t:C'i:?.!''l_f:;fe:c:cecl by means of a Sc}H~d:uJ~e thE~ v5J~w is that he s11 .. 01:tld. be x·e1eased vv:t th the condition t.he:t he aclrni ts hirnself as a vo1untaJ.::y r)a.tient 0 5,22 Tbj_s case :i.llustrates the prob1en of the 1o:rJ.£: tcn:.. ·m G .. I> .. where insa~"15.ty iE3 no longer the j_ssne but whe~ce conser\ratism may enter the revj_ev1 1)rocess ]_)artly because of tho length of time alree.cly serve(} in prison. Seconcl.ly' thB rroble:n of sui table means of testing behaviour e,:t;_cl resocialization to :p:rovide a lllOre realistic basis for review is highl5 5 ~ 23 Mr" N'.,. bc:cP.me a G .. P .. as a result of the mtn::der o:f his m:Lstress afte:::- she terrni.nated the relatj_ons~_il;., After the mu.:.-der l~x-~ H ~ attempted S1.1J ciO.e by shootlne.; h5mseJ.f i11 the hee.Cl.. At the tlmB psych.tatTists vveJ..:•e concer1":1.ecl that the shootin::; may affect h:i.s 8.bllity to con:trol emotio:ns feEl:C was J.a.ter c0:r1si(}r-;red to be unfou:n.iled a:nc1 that, ln J:act, the injury seemed to have the effect o:f rJakinE; him mo:>::"e :placid, -35- 5.24 vras :f.i.::c parole l'epo~ts 5.n Aarly 1970 hut in ·1973 a repo~t was recPj_ved an ins~cctor of poJ.ice cont;:t5.:n5J1C alle{3ations of ac;c:cess1-.:te behavj.on::: to~Ne.T·d.r:; mer:lbers o.f the O})])OSine: fa.ct:iOJ1 j,n. t}~e Yuc:oslr?t'T eor;28.un.i :Parole Repo:::ts i:n.:J.icate tl:~at polit1cs h1s c:onnecti.or. \'d.. th e:rou:p 0 ~· diffScultJr i.n S 1J.hsta~.tie;t5.:ng t}Je f?.cts "~/V8.. S recor~:n.:Lsed ~-:'ro::n the OIJ:.tr>e-t a.r10. s·p"oser:uent1y tl':e 2J.. J..ee;c\tlo11.s vrere ~U?t~~··cr.::J.3; prese~n.t 1:;e1:.. avio:.1T, whlch rr'lay have ~oeen effectecl "by t.he su.icide atte-rnrt. 5.25 " H 10 1vas eventua1Iy re1e8.sc0. t:n Nov. 1976., In the licht of the dec:Lsion the:t had. to be rn2,.de, the con8eY:n. of the decisj.. on makeJ:·s o\re:r the B.J..1eg<:Ltions met de is YtnO.eJ'_~st,?.~nd able~ Hovve\rer, thi.s case :i.JJ.ust::r:·e,~tee. lone: delays "'oBt·,':een :r.ecommenD.atio:r:.s iYl. repo:cts ;::1.nrl S1)bse!~:uent act5.. on ·which .·eere ae:e:ravated "by the .i:nvol:\re:n.e:n.t of the _D_ttor-ney GeneJ?cJ .. Canberra{) The J..onc, clel2,y·s J..ecl to the need for furtli.er- U})- to-cl.e:te psycl1i2.tric re:po:::·ts vihJ.ch take t:Lme as the :p:r~·j .. soner has to be transfe:c·recl to I,onz 3ay for· psychie~tric examination, 5.:-26 Detention :i:r.. priSOJl ts considered. as a ser:Lo;;s I'!.::,_tt&r ancl clel?-YS j_nvolved. in rele2.se es2_)ec:La.lly VIhe~ce it does not involve 0uestj.o~0.s of chari::~e j_n t1:.c-; r:risoner' s be!:.aviot.lr or chance h1 release Jlla.ns, need to be consi.c1ered as rer;_,_.l.i.ri:ng urt::ent attention, A re-examj_nation of the commu:'lj_cat:Lon channels~ es:pecially "~:vhere a::_ outs:Lrl.e body is conce:c:ned, ma.y be needed. -36- 6., 1 :Sefore dj_sc-~.:tssiDG tb_e p:r.·ocerJ.u:r·es ~~;1d ~:r·s.cticcs ado}-;ted. in the cllS})Osa1~ treatment an.cl c1J .. sche..:rce of G .. P~s, descri.oec1 i.n the f:ixst sections of this rero::·t, so'PcC B-T'e cen·tral t.o the ctec.i.sj_on-maJ:.~:L:n.(:~ :process .for t}liG f:TOU~9 o:~ of.fenr1er is p:r~~sentecl ~ ~~:}1ey aTe the eonc:sY:Jt of B. 6., 2 Da~ncer·o:)_Sr_,_ess tends to be a vag1::.e conceJ/C ~',;hen related. to t:h.e rnentalJ..y j 11 of~fe~n.d0.:r.. \V};j_]_st there night Oe some consensus :Ln j_ t p:cov5.des 1i. ttle or DO assist::-'.:1c e in 8.-J'~ply.:i..nr; the te:c·m to t!1.e •notent:La.1 for _i_·rrfJ..5.ctinrt..>( se:cious' boD.5 .. 1v' hf.::r3:·n1 on anothe:-c ( ar:/1 so:,1et5.mes onese1:f) . ·J?.. J The }3u.t1er Repo:c"t extenCls tJ'"!.e clef5ni tlon to include Js.stir;c~ r:sycholoc~:"Lcal hRI'l11 ~ j 3 ) .... -· Firstly 1 1 CG.L an cngo1ns coEl})lJ_J.sion or r1eed. to j_nf1:Lct in:juJ:'Y or l)S-in g~nd. seco:nd.J.y, -the }· 6.4 The avaD.able :cese"lrch o:n tl:.e predic:tion of future dan-2e:cousness t-2YH1s to concentrate on :Lden.tifyi·ng 11 prol)abi.li ty grou:ps," wldch ha.ve a hicher or 1ovrer :cisk. -37- t it is not ~ossible to acc1Lr·ately "O:::"eCU.et fr~:t.ur•.::: d~'.n.c:e:cous 1)e}l.a:vlcnn:· for aY1 jJyJ.ivicluo.L (-i 5) ccrnservz::t:tlsr:;. T'esultin~{ 5.n t:hr:; detention of to prev8nt ... . (iG) 'l ll t1:J.e acttons of ·a few·.: NorvcJ.l L':OI'TJ.S :poses "G._!.8 JYCO ). ~Gr;J. aB a moral di.lemm?- = how· rru?.:r:y fa1se JIO,sd .. tive _pr<:vl .. ir:.~-tioJ.lS of Clanz:e::r:uo_s·.rJ.ess c2,.YJ be j·l)s-t;i_f:Led foe the s:?.ke of lJ:r_,eve::lt5..:n8 cr5.m.es i)y t,}; e trrte 3.>os:L ti.ves? }:.1o:::~~:·is £~oes on to say about OVC:)7~p:red.iction: n ~ .. o 1.ve }.JOf3Sess art extre:-nely COLY\te·nj_e~c!.t mec1ta:r~j_srn by which to co:nceal from ouJ~se1ves Ol11"' ci"·i.ttc21 incalJactty e.s 1n:·edicto:cs:- the Fta.Sk of ove,.(-~ 7 -o:)~erlioti.on c If 5.r:t dou.~t;t, put him Ln. or keep h:Lrn t:n o H J 7) 1 --~Soci.o1oftics_l .. -...... ,_.,.~...-.. ___ ?esea:-cch ,______- '0:JE:;:~~·atio:0 , ___ ,_,~------Baxst:rornn 6 c 6 Over-p:r-c~di c.d:;io~(t also mak.es it di.ffj_ c:J.lt to va1ida tf-1e pTeclj_cti1/B cape.. oityo A recent Ol)I)o:rt1.-1.nity to test t!1e is:::~ue caYtle as a result of a ju(1_icta1 decision.. In Feb~cu.a:cy ~i 966 the Unj. ted States Su.}!:t:'eme Cou;·~t :.rulec1 that the detention of expiration of l1is rr.ri.son senten.ce, wl tb.out T·eceJving the V.S"~J.a1 due }1roc;ess !-'roteotion.s o:f the o·.r.c11na~cy c.tvil comnd.tment, vias u.nconst:tt1J.tiona1., The im.media.te effect of this decision was that 967 nJ3axstrom 11 pc-ttients vrere t:ransfer:cecl fl"'OEt S}!ecieJ_ secur.i ty hos:pit:gls to eivtl hospitals -vri thj_n the year.. 'l:J:J.ese y;atients we:..:·e all convict eO. cr:\.mtne.ls vrh.o were not only consiclered too dane:erous to ·oe released but too oancerous to be transferred to civi.l hospi t;;J.ls. 6, 7 The proe;ress of the "Baxstrom" p2.tients in the civil hospitals v:as moni.to:c·ed 2... nd e:eneratec1 a :n.v.m.ber o:f follow-up studies.: The broad conclusion of the follow-uu studies was one of f1?oss over-:9recliction of clane;ero1)_Sness.- Research ( H',) in the first year in.dicates that the Baxstrom pe.tients became indisti.nguis>,.. ab1e from the general pe.ti.ent po~ml;;1.tion. After .fou:::o yt::ars only 2 "6?·6 of the j_yd:tj_o.l crou.p vrere sent 19 back to srH::ci..al s~cu:ci ty hoSIJi ta1s 11 ( ) In. the fo1low-up s·~_.\J_dy on a 20% ra11.d.om sam:pJe of males E~.nd 2.11 the females, 567~ of the males an1 435-b of fem:::1.les 1.''1ere relea,sed,. Of thE'.~ ·+.P 08:; m·l•s! a. t. · re~"La ,_,a sed , 11 uarde_ e COllV.l.C.. v8·.. .L O.~ .. L COffiLtl-"++•-u ,, vJ.H;_, a cri.r:te -38- j"n the snbse felo:n:L"::~s, on1y OYlC conclrt(!.r::s t.}! c~x~ 1 to blJ..t o~ne j_D"l~e1:·rrY~etatio::<.: t.:he ttJ~::".ts \~!ere 11ot very d::~.~~r:·erons ~ n t ?i) Sj.rnil~:-I' con.r:~·J).sion.s c~:~rl. be rJ.ra.vl:n o~t1Je~::.· ;;esee..~r~ch fj_-r:;cl:Ln~:::s ~ ( 22 ) (c) 2 6 (' 8 Ko~~al et ,C 3) em~loy a mo~o clini app:coa.ch ·::o the :psychj_.~:._ t:r:.i. c ec1 crt c{. tW.l.d incJ:Lvj.cl11e~lJ~z2,.·tio:n .is e essen~e of t~ea Koza1 s·tuc1y the :f:ceq_ue:n.c:;r of asf-:;at.J..1ti "(..re De!:'!.avion:r· \Vf'J.EJ mo:rt0 tb.an .J'Oi).:!.'"' tjJnes f:C'e~-.ter fen:- those :Ct._~J.easec1 CJ.gaJ.nst e.d'\d.ce .. Kor:r:i. .. s; h.o~.-".reve:f' ~ lJoj"nts Oll.t ·t.he cost~ Of t11e 49 who \vA-r'e rele(:>"sed ac.:ai·nst the aclv·ice of s Xoza1 tec.r:1, 32 (l ..td not (a) 6~9 P:eesen.t 18..'/r pe:cmits t.h.e co;npu1sory deten.tion, for an indefinite :perioci, of an OD the e;rounds of' mental i11ness.. CC!1e offender has no richt of , • J.. .(> 1 appea .. c J.n a cour" o.J: aw agalnst his co:n.t:Lnued clete·o.tion.c. The o:ffend.er is c1etatncc1 at the r+ove:rnor 's Plee.su:re e.nr1 Brj_ tish law c.oes not allow J.eeal action to be taken the Crown. 'l:he only aven.ue left open to a G.P. is direct })eti t.ion to the Cro1'\Yn .. (b) 6.10 United States Lw1, on the other hand, is unde:<:'pi:nn.ed b:v a Bill of Riehts and in{l.:L vid1J. .::::..ls can ap1)ea1 to a court that these rie;hts be u:rheld. In relation to persons "found not g1.1.i.lty by reason of insanityH (N' .. G .. R.oi.) 1 cour·t cases have been successful on issues of nright to treatment" and "equal protection". The latter upholds the right of' N.G.R,I. offenders to be subject to procedures of inv-oluntary commitment similar to those in civil commitment (c) 6.11 A prison sentence is primarily considered as a form of sanction. A G.P. is acq_u.i tted. o:f any criminal responsibility yet he 5.s detained in a prison. The warrant is ostensibly :for the psychia·i;ric benefi >G of the i.ndividual, yet the legislat.ion is silent on treatlllent or therapy. 6.12 Continued detention of a G.P. is usually justified by ~vo reasons: he is still mentally disordered and/or still considered to be potentially dangerous. In both instances the irwti tution used implies the existence of adequate treatment and assessment facilities. In the first instance. detention in a psychiatric inst.i·l;ution seems to be the only appropriate facility. In the second instance the ultimate objective is to modify the offender's dangerous potential, (in cases where this is possible), to a point where it can be reasonably predicted that he will not be a danger to the community, Whether the treatment facilities should be provided in a prison setting is, and will probably continue to be, a contentious issue. (a) J::resent Dispositi,on Procedures 6.13 An offender acquitted on the grounds of mental illness requires the trial judge to order the offender to be "kept in strict custody ••• until the Gov·e=.or 1 s pleasure is known". In N.s.w. this is interpreted by the court as meaning detention in pri.son. On one occasion at least, however, a Judge has ordered detention of a G.P. in a private psychiatric institution. Subsequent to this order being made advice was sought from the Crown Solicitor as to the validity of the Order. The Crown Solicitor concluded that there was nothing in the provisions in a.23(3) which necessarily restricts the powers of the Judge in relation to place of detention of a G.P. However, in relation to any discretion being with the Governor as to place of safe custody, the conclusion was yv that he had to order prison as the :place of safe custody. The Crown Solicitor expressed doubts as to the possibi.lity of the case simply being reported to the Governor, and that the Governor shoulct :no order pending a further reporte 6.14 settln.gs proced:ures beco::::H~ the :procedure has been established the more diff':l.cult it is to eff·ect • This tend is even more p:n:mounced in the courJcroom setJGing since the judges rely not only on legislation but on precedent and tradition. (b) Judicial Attitudes _,,__...... ,., ...--- ...... 6.15 A factor which may be contributing to the contirraance of the existing procedures without seemingly questioning its appropriateness, is the view of the cou:rt officials themselves as to what happens to the offender after the trial. No generalised sta.tement can be made but several judgements and statements by court officials indicate some misconceptions as to the future of these offenders. 6,.16 In the case of R. v. Fuller (1974) defence counsel made application to the judge (while the jury was absent) that the jury be informed of the consequences of the verdict of 11 not guilty on the grm.mds of mental illness u. "··• the accused is detained usually in the maximum security section of a mental hospital ••• the· verdict of manslaughter by reason of diminished responsibility leaves the accused liable to the ordinary penalty of penal servitude." Similarly in the judgement handed down in the Court of Criminal Appeal in the case of R. v. Veen (Aug. 1976) Justice O'Brien states that, n ••• where the ••• verd1ct is an acg_ui ttal by reason of mental illness ••• his disposal is to a mental . hospital in New South Wales by direction of the executive by virtue of S.23 (2) and (3)* of the Mental Health Act 1958. 11 In terms of established procedure this interpretation is questionable as the executive order is made for detention in a prison. A G.P.s route to psychiatric hospital is determined by the same procedures as apply to other prisoners suffering from mental illness - by c0mpletion of two certificates in * The transcript of the judgement reads' 1'824( 2) and (3) 11 • This appears to be a typographical error. -41- the fo:r.:-rt-:. of e~l.1).J.e e" 6e 17 Other of:f'5 cj.a.l...s J.1.ave o;:l_5. st terJ. his soli.citor toJ_d ( S:Lnce he :n_o The c:::lt5.o:0. j n the c~t is t~~t he is consid as is a~]~ro~riate, at least ~~~eo 1 s p::oc~raJ](Jile o:·}. t!.1.e s of e, Ir:.~or,~.:L-sG of hell) ;:·tJ':c~. then :not to t he1D :Ls decegt:i.ve ~ ":':f.hen 5.. nclete:ec:j_1_":_acy rn.ea:_( P1 eP.SUI'P. Offeror)_ e~r>S :i.~n. :Pri s O!i --.. ~--·~··---~--~----- 61) 18 ~2l1e c:._l..:testj,.on of the aprn:op:r:>:i.. ateness ot }Jrj_son 2~s thB place of detent~Lon for G~:P,s JJ.as alre2.dy ;oee·n :r.·~:1.:Lsed. j_n a :o.um1)e:r· of (lj_ffe:r~e:""d~ contexts in thj_s rerort ~ Inaprn."OIJ:ciateness is most eviO.er::.. t :Ln terms of the indi vj_c):~:tal rip-hts issue &.ncl the tJ~eatment i.ssu.es: custody a!'.d '""·' - DUnisl"nnen1:i rernain the l)~:ime;:ry reasons fo:c gi vine: a yn:ison sentence, 6~ i9 Althou.zh Jrl8.:n.y G~P~s a:re al)lYr·opriate1y t:r.."'ansfe:r:·iec1 to psychie,t:>:>ic institutions there are a mml)e:<::- of covertly 8.nd overtly psychotic G,P,s in prison, (See Section 5 (b)(~) (e)(c;) ), It is di.fficu1t to disttne;uisll a-r.y uniform cr:i.teria e:overr:i.ng transfer to l)Sychj_e~trlc hospitals{, In instances vih.e:re offenclers :have eo:r,e into :::-ea.sonaf)ly e_:ood rerr1ission as a resv.l t of medicat:Lon and the psychJatr:i.sts wish to. transfer a G ~ P .. to a ps,ych1c.tric ho.s:p.i tal, dLfficulties are sometirnes encountered in COP'.p1eti11.£; the re(111ired Scher1:n.Je so I:n the case of T1Tr ~ S., ( :pare.era_I)h 5 ~ 10) the consequent non-transfer 1ecl to a rejection of a request did JJot fn1.fil tJ1e rGrllJ5Tements o~f Section 12 of the ImT:1i.[~J:a.t5.on f.»c·t as 110. V-I2.S not (:-t COYJv-5.cted c:r·:Lmi.n2.1 e:0.3 not in a :ysychiatr5.c instj_tut5.on<) A simi.l?.r s:Ltnati.on occur~eed. :I.n the case of remaj_ned in 1n:·tson even thou{~h :ce~)orts indicate t}.,_r-~.t he is psychotic, despite medication, 6.,. 20 For Tf1(l:ny of the the.;: d.eJ..usio1:1 5.t~.F~1f, ce!'t~3.1n· stress s.l.t1.. ·u:j.t:Lons can :r:eactivf-lte a psyc}t.otic C01-:td:i .. t:7_onl> Such st:cess sl tio:r.s (Section 5(j) ) which demonstrates the difficulty o:f 1)rlson setti:nc_: I) T11.e~r cr.ce a m.:Lno:r·5 .. t,y g:cc-n:-cJ anci. cexn.1ot ·be ex}Jecte(1 to :recei Ye a f~Y"ef:-\.t deal of sym2_Y:d~!"ty from othe:r· inne~tes and fe1v }x::1so:n o:C':ficers WOiJ.J.d Oe CXJ:)eJ:."'ier:c:ecl. 5.n. ma11asJ.ne; the Oehr~:•rj_our JY::.:·oblems of s·nch 2.n offe:t:.. cle:r·" saT~.e a,t the tim~.? of tr:LaJ.. or \V1J.o :cec~aiJ.J. He:.nj_ty whtle 1:-n p:r:ison that tJ:.ey e.:re ser•t:i.1J,g a 2entence eYe:c. t~ouch t·~.ey are found not gu.:i.J:ty ~~ A c:::cow:i..nc: nt.1.mbeJ? of G~ Po s a~.ce raj_ sine questj. ons abo:J.. t the reaso:ns for their con.ti.rcJ.f::d dJ~:te~·.. tion anc1 some develo}) a d.eep resentment ac;ainst the atrtho:?i t5.es wh5..c!.J. h.s..ve the l'ON er to !told. them :i .. nf1ete:rr:1ine.te1y., Further more, 1ong-te~'m d.etPrri.::5_on can res·:I1t in increasirte; institutioDa1tzat:lo:n.o ~:1l5.s ma,y be seen as counter.- proc1v.cti ve .i..n ter.ras o:f rehabiJ..i ta:t:ion for life in the community, -43- basically l."(~ :c-ed to COll.sj_'.l.. er Yl}J_et1tc:c to refuse 8. doctoJ:? 1 s of the Pri;:;on I,Ic:~O.ic::.tl Service¢ ~J~ltese Tb.eTe is no rnedtcc>J.. of.fj_cer on t~1e Paro1e Board. Vlho caJ1 evidence: to assist in de6i.sj_on- making 8.hou.t 1J.o1v· much weieht i.s ·to be plc\ced Oil tl.1.e reservati. one expressed, 6 .. 24- Vth.e:~ t~h.e B11t1er Comm:Ls,s.i.cn i:n J~:ng1&.nd. iNa.s con8ider5.Jtf whether the Parole Board sho1)ld tal-ce on the role of revi.c-;vlinr::: patients on Tec;tJ:icti_on orcl.ers 1t co:ncltH1ed th.?.t the two tyyes of rev:L evr re.:u:L:ce,)_ roles the:t were or:)os.i.. te 5 :n. ]!rj_~'l c5.ple artd that it vvas i.m:!)OTtant t1~at ar1.y :rc~v:t.ev:r for~ suclt offenders should not be associe.ter1 w5 .. th the :penal system. (?.6 ) (b) 6 "25 The assessment by the psych5~e,t:rj_st is a lonsi tudi11.2.1 one~ basec1 on a collectj_on of repo:r:·ts macl.e over a period of tj_me ~ Although the offend.er is inte;~v:i.ewed by the :psychiatrist before each :report j_s eu.bm:t ttecl he has to rely heavily on rn:-ecedine re:ports, nos t often vvri tten by himself -?~:ncl _}.)erhalJS another :psychiatrist. The :psychtatri c The :Lnclus5 on of :pc:obation and. ~;arole officers' re~)orts gives an assessment of tlr_~; r>ocial sj. -~c,-;J.ati.o:ns ~.nd sorn.etimes adds info:r:t!lation. about the :psyc:td.ed:;J~.. ic eoncli tion of the offender, 1 as j_n tb.e case of T,lJ:' ~ 1:" (see T!8-J::'8.£:1.''8.lJh 5 tl 17), \vh:Lch comp1ete1y altered the psychi~;.t:e.i..c assessme:n.t.. ~Nhen tJd.s 1ongi tu.dtnal approaeh to 2~e,sessr:\Ant is aclo1)t.e(1 the ten0.e:t1.cy • ..l... .., • ' l ' . . J~s vCN!8.ro.s recap1 ""G1L,i:3...Glng rrev1.ous re}!o~:ts and recornme:rv1.::~.tions (1, -ii4- "lack o:f opportunities for observation ancl S<::-;r.i.01.lS 0 ~c t11. e Qlre-nt tLe o.t~fe:r;.der \?:LJ .. i .. T~?.act to J a:c t:I.ons outside 6. 27 the :psycJ.~, t:r:ic sett::i a:nd re-soc5.f\~Li::-:;a-'e,icn:1s cj_.vj_:nc a. moTe ree.1istj_c base to c1.eeiBion-rr;sJ;:-i::1~~ .::tl)(Yi.'.t J:~eJ.easo 01 The clt.:f~f:Lc:.;J.ty is that a p~isoner, At this staee, cqnnot be sferred to a psychiatric Sometfd2"1g of a cye1ica1 d.ec:Lsi..o:n--ma}:::i..nc ]_)atte~cn c;=.~.D aJ:-:Lse: there is a reluct2.nce to relec,~se on licence l!ec:e..use of the dou.bts c~bcrut the c1a1~.cerous }.JOtE~:n:tial of th.. e offent).er G.l!c1 tJ.1.e op~)ortunit:tes c8.nnot be macle av::-:d.la"blF: to teErt Ql).t their basis ql One f31Jch ca.se is out:li11ed in Section 5 ( i) 1.> 6. 28 0che chart o:f communi.cati.on flo"! in the review process (fj_.£3lir·e 3 "'4) sho-ws the :nunber of Qj_ffercnt lcve1s 'Which nTu .. st be ner,otiatec1 befo:"te rev1ev; taJ.ces place and l:n the case of a recommerJdation for release, before the licence is issued. This can take cons.i.lle:rable t.i.me and i.n matters of consideration for I'elease from prison it would seem that delays should be avoided as rmJ.ch as possible oil Another possible effect o-F~ such a rru:m.,oer of eormnu.:nication levels i.s that perj_ods betv1een revievr may become lont~er than j_s -!lE- considered n~ces line tb:Ls })J.'O~ess ~ U:1.dcr e:r'J.t I)01:i.. c;;y rPI}l.lests fo--;.• e-N a:r·e :ceceJ by r::. F~t~cole :so--1~cd fror"' the IT.i.:r1.L~trn" .$ Th1:~ alterna.ti.1re }Jroced.ure v-Tou1d 1Je fo:c· the I:ife Sentence Rev:iJ~\V Committee, via tb.e Corrrni.ss:i.o~nc::T, to rrt8.. ke r~~quests to the :Ln.t tial cor~ i"(J.Y01Ye1Tc8nt of th.r-; T-:5. level Ln considereQ j11st after a rne~ti. "loefo:c e r:om.r.1:i. the Pe~:cole coincides wi·th thet Rcnrj.ew Committee, the :Board 1 s recoJmJWncla.tion is sent diJ:>ect1y- to the }';·in:Lst~.·:c~ r;:J.~,e Commi.ttf;:')e is j_:cl.volv<::d. only e Faro 1 e J3 oa:rrJ. ! s G, Inte·t."f;:'J~c of t!~e :ry;o Svstr~r-t:.s - Co:cT~~ct:Lo·ps ;?:n~l. He8J.th -··-----·.. ··---··--... ·------·---~··--···-···----~-.. -··"'-"'"---·-----"'·""'·-""·-·-·- ( 2.) of Co~c:cective SeJ::·~.r~Lc es 8.s h2.v:i ne; the rnajo:c res~Jons:1.b5.l:i.ty fo:r the cu.s-to~·1.y 2:nd J:eJ.e,?~se of G~? .. s., This is re:f1r;ct~~o. the relevant secti.o~:13 of J!~covis.io::·ts are i:n.cluded. i:n m2r~.ta1 1"~eaJ.. th 1e!:::Ls tion, v.,r}"lj_c]-:. 1m})li.es ·t}!_::~i; the Gove:rnol" ts 1.varx:•ant :is osi:enslbJ..y fo:r."' t"he psyc;}l.i<:d.--.r:Lc 1Jene:f~tt o:f t}1.f~ :j_n(l.i.vjJl1J.a.1, the lec;5.sJ.a:t:i.OlJ. is -46- c~es .. 6 .. 3 i l"lP.~!.y G .. ? 6 s ,:::c:ce trans:f err eel to vsych.iat2···j_c :Lnstj. tut.i_ ons for t:ccatme:nt bttt the me.jo~ci ty of cc':.ses ax-e :cetu:cnec1 to Drlson once thls t:ceatme-nt j_s seen f:tS comTleted or t1'1(~ 11t.:rson is se.:Ld ~~o be :n.o 1onr;er r18!l.taJ.1:-;r i11 <> 6 ~ 3 2 J:h(:; T.J errta..1 HeaJ.th ~:·.-r5.1)unal b;;ls Yl.O offj.cial role 5.. rl cons.ic1e:cin~s s:.1.i ·t;ri.(d.l:i. ty :fo~~.., ~release of G ~ J? 0 s, 1)eing o-r.:.1y the :cecorn.mendat5.ons of t1:."~ medical o:~~f.icer c-tr1d. a n1JJ!lber of G., P. s have :r:eTnc.d. .-n.ecl l1eyon.rl the term of actual r:~onta1 111.3\ess a:r.~d he.ve been re1eased. i:nto the ess ceRses to be aeJ."~.ta,J_ heaJ... t11. s;,rstern ur:d.e:·cta.kes t:cea.tment to the poin.t <~t 'Nhich it feels th.c:tt :r.J) fu:c·the:t· :p:rof:::r·ess can 1Je made o prison 5_ncJJ.Jd.G cone ern a1)0lJ.t :potent;5.al :c:i.sk ·t:o socie1.;y 5 B.dve:C'se soeia1 co:o.d5..t}.02''}1 :~n"'everd:;j.)J£; rele2.Be 7 j_}J.tE:rve:nti.JJY: of a IIe:otaJ. Health T~cib·L:tnaJ.. dec:Ls1on., o:r t11.e :pat5.ents ex:p::r.essin:: a des:i.:~e to :coturr1. to ;'):ci.son~ so:net:lJiieS the ·ne15.ef tl:.?~t t!1ey 'Nill Oe :re1ea-sed. soonr::;r from l1r5.son tltan from a psychiatrj.c institution. 6., 33 Som•2 comrnertts 1)y a cJ.octor wY~o woTks 5.n a }.:lsychiB.t:r1c servlce i.n HevJ" York, w:b.icil f:Lnds itself pJ.. ac.<:!c1 bet~Neen these ·two systerns, m.ay add BODle t1-~.eoretica1 I;ers:pectives to the c.•-re<·=·erl 1 ( 27 T)·n "'""oy•'"" ;)"·"n'"1l .t.1"?.-l- Q",all-1.-.:. ___ '··':J'·)lt ->~ '·~l~·J·'~'"·"'1~'"'")'~0"C .c... .,.l_.,l ) ·-~-" J..L,_,_,-::>CJ...~.i.:::i, 0'0c""'~'""'V8°>.:.:>CJ.. · .. ,J l,JJ.<.... b s+~..c.-.o..~._,.J_J_ of insti tutioDs as vrell 8S 5.rtrrta tes can becor,1e insti·tlJ.tionali zed institv.tlons as ~,'-tell as wit.hin :i.nstj_tutions ... tt.,.,., pe.. :c··t;j_ct.J.. la:cly· j_n those J?i T!.~;;-Pong C8.t:es i.n wJ-;_ic}1 an inCU .. vid1..1.2.1 5.s b011ne:ecl back a~0..d forth be~.veen or:r: s ystr:m .s.··:~~- an.o th. 0r " ~ ., j) ~'That i.Ve B P. e ~L s 0 i .. ff e::'e:n.tia1 J.e,.tH.::llJ .. n~~ t}:e ~~~aJ~'"c1 cal15.T<':: htm s:!.ck, 8.nd t}"J.B d.octor caJ.l:i.:n.::~ }:j.JJ_ e:rj_minaJ.... rchese ;c:~_:('e tJ1.c '[e:ebal mess?.. .r~·es, but be!·d.YJJ1 t}:em 2.. ~ce ~c2.ther dj.. ffe::~en.t r:J.essan··~s '..\!1-"!j_ch are tr.s:n::::md.ttE;d r:.on ve:cb~:..1ly 1n th~.:: :-:;,c:t·v.. al ... tr.:::.ns·(or~ .. ~ These rn.essc"l.zes (::t.. ;:e sqyJ:n.g b~LJ..A..terally, 1··se c'1.on tt \VP-.lJ.t hj.m, you take }lim'~rl(28) The 11:r.~oce.ss of 5.r!.Sti tut.i o:n.e.li/~ation J.s ref1r~ctec~ i:~·1 -~;he nee<1 ttbotJt. :::;vsterns feel to keen one's ovrn. ""01ac~e i:n his O"Nn VH.?..y and 2 con.sc:n::v:ltively to resist ;J..ny char:.c:e 11 ~ ~ 9) -47- (b) 6.,34 I:n 1S?~:i a Cor:1r:·1j_ t ·t; e e or.1 5.11 O\J__ lD. be ;:; c o::1c lus i .. o:-(1 ·,,.,,re.s lJlJ. t t the p:co-v'5. de a th 8Y'Et pr::r;_ tic secu.::':i. lrn.i.t lnJ.t t}·;_e t o:f 1Jor:::cct5.ve S8)~'"1Ti.ces of site and v:iJ:tbj_1.ity of Sl:;_ch a rn:o ject, at He recomDe-n.dr::.~ct ~ .1:.n tJ.tB i~n.tr:n::ixn. J> t,o t.Tt:L 6 ~ 35 These ~TrO}')OSals env:i.sctee the emp1o:.nnent of }!Tison officers fo:c seeiJ!:'ity p1J:CIJOSes., This ralses tb.e (!1.JJ~stioJ1 of the effect of the d"tlal ro1es of security anO. treB.trrt.ent being performed ln the se.me settj_:r:g 1)y d:Lfferen.t officers employed by c1iffe:cent c1epartrn.81!·t;s ~ Is it possi"ble to so distine:uish these two ro1es so t1Jat they c~\n l)e efficiently pe:C'formecl by d:i. ~~tinct e:rou:0s, vih.:tch are often i nfl.1;.enced by comr,cting veJucs a:ncl. objectives? If these roles 8,re IJe:cfm:mec1 by the sarne lY:::-rson, as t]J ey have been ln }Jsycld.e.tric hospi ta1s j_ n the pc.st, a jndeement is me.cle in each i.n.(li vl:JlJ.a1 case as to hovr much we:i.~ht is to lJe r:a.e .. cerJ. on the varyine 8-S})r.::cts"' If these roles s.~ce })r.;:tfor:m.efl by cffj_ce:::-s of c1i:ff'e:rent der1;;.rtm.ents con.flict rn.ay e.. rise a,Yr(1. the battle for t~1G st2.ff of each depa:ctm0~nt to rreserv:; tlv:;tr~ nterritorte.l k1-:::_,gc1ornsH, as desc:r.·i.bed "by "D:c., J-.Te:·csereau (paracrs.ph 6~32), may be fouGht -118- Hospital or to any other psyc.!1iatric insti tut:Lon anc1 thi.. s is only the to be no lon~er mAntalJy i11 or·if e conD.:Lt:Lvns c· wi recreRtional and inJustrial facili es as ~el.l o tJ1.e associate~ with dete~tj_on of G.P.s in ~rison, discnssed in })art 4 of tfd.s secti.on_, and the issue of 5.ndj_>riduc:t1 ri.e:hts of offendel"'S ~ f()ln:r.c1 not ;?:l1_:llt~T 1Jecause of rr~e:rtaJ.. i.11ness, would remain 1aJ~e:ely unl."esolved j_n tl-te abse~nce of leg1s1a.t,ion g:i.vi:ng the :ci.gf:.t of 2.riJea1 against continued detelltio'l, A review of r)oJ.j.c3r e.nd 1ee:ls.1c.tj_o:r:.. affect::ine G "}J .. s is in.dj_cated.o 11 The cr.imj_nal ments.l T)at:l .. e:nt ls the ne.r::1ecte\1 off'-snrtnD· of society, labelled-as psychotic, feionious, - - ~ da:nf~Ercous, anti-socis.l o:r -vj_ole:0.t" ReJeeateCt to penal i.nsti.tu ti ons o~e -to maxtmun1. security state :i.n.Rti tution8, the :n.egJ..ect of tlH~ esso:r:J.ti.a.Ily urd.(J_<:te features of these }X?.ti.e:nts, C01J..l")led v:rtth restre.tr:.t ., 41 ~ ~.1er:petuates de})enden.cy, deter5.. oration a:?Jd deS}:Jaj.r.. The C1J.:crent1y evoJvine; :pltiloso:_:)]~lies JJ.1)eraliziJ1B mental hOS}Ji tal urocedu.:res and nl"cv;tices is an attemnt to emulate those asr)ects o;~ the cornmuYllty that St:cengt~n.en ego bOundaries; that is- f8.mily contact, vrork, ~cec:::-eation, self determin,;.tion etc. 'l'he men"i".aJ.J.y c1.5.sot:derec1 offender h8.s (often) beRn exc1u.d.ed as 11.0-t amena1)le or ...vOO a2.ne;erous' , • , v·.·rlS ac t'lD('. · on"· -'- J.n· a VlO_enT· l · 9.'Yl.Ct" dangrc:rous manner is the ca11 fo:c help that outrages socie-ty aJ:"!.(l d~?man.. ds- rett:-:t1 ie.tory neas1.:1.res • (' ~ Thj_s -LIS- disors2~i~ed reTson full u·tj_l5.satinn of c1 irne!I.S i.o21J: Some l)OS::>i i)le aJtern~~:ttves :for d e~;:;-l:Ln;::; w5.t1-l G .. 1:; c s a:r·e presented in Section 7~ 6 ~39 Oondit~Lo~nal li.be::cty reco::=-n5 .. zes the j_rn~;o:ctance of contiD.u.ed assessment of ~Je~csons an offe:-nce of v5.o1encG: or to J)GJ:ce:i..ve ot}J.r:::r Si-f::ns indicatins the ]_j_keli.hoo~ of a beh2.viou:c- I> c 1J.. ceJ.1See if necessary which aettle c1.0\'TIJ. ir\ the e vrfti1e h.i..s attj_ tude to t:LB Sl_l-0e:cvj_s5.n-r: o:ffice:c --i ,_)<:' 2 be se~c:tovsly unde-:emined 11 c (3 ) 6 o40 In cases ·Hhe:ce o:nc_~oj__ ;jg ys:rch.:Lat:rj__ c s~ssessment -8-Y\8. tJ~.:,C.vl.!J....-.,..El .. 1+.,..r'lt= ~- comrnun~Lty rrr.entaJ.. heal.tlt c1i.:n:l.c is usua1ly e:nli sted (l .,::._, J. n c e the G .. P .. is u.s,.:.c.l1y :cele£-?.sec1 from. p:·cj .. s01!., the hos:r):ttal 'Nhich may h2.YG (;e(-:!11 invoJ.\red. 5.r:. treatment :l.s not necessar5.1y :i.ncl\u1ed i:n superv.i..siOJi... In some cases tl:d.s n01'.-:i.nvolvemen1.: of the hoSl)j. te.l r:t.?1.3r he~ve s OiJ.S r~peJ.:·cussio1;.s·x-, A case vr:?.s rerorteO. whe~ee the Prob:::t-'cion anc1 -* VerOal con~m.unicat1on, 1.~ec1ica1 Of.ftcer, Rozelle Hos]!ita1 k Parole Officer was concerned that bn;akdovrn was imminent and that there was a risk involved, The licensee was taken to the psychiatric institution serving the area in which he lived but they were not com<5.nced o:f the necessity to admit him, The licensee was subgeg_uently aclrr:it-t;ed to Rozelle They were familiar with the case and the conseg_uences of a failure to recall in a deterioratir1g situation were appreciated. This may ind:Lcate that a close working relatim1ship is needed between the responsible med.ical officer at the hospital, ;ino was previously involvecl in the case, the supervising officer, and the local mental health clinic so that progress or changes in the patient!l social circumstances and mental condition may be made known and their implications fully appreciated, Furthermore, it would seem desirable that a G.P. licensee be admitted to the hospital where he may have spent some time during his G.P. term if hospitalisation is necessary. -51- SECTIOJLL. AIJTlillltL&,.TIVES IN PROCEDURE AND LEGISMTION 7 ~ 1 It ha.s suggested 5.. J.1 paragre,ph 6 o 13 that the judge may have discretion in the disposition. of G.J? .s. The ju.o.ge is only :t'equired to order "strict custody" and if this inplies discretion.ary power as to place of custody then a unit offering such security is av-ailable within Morisset Psychiatric Hospital. Should such a disposition be ordered and a G.P. is detainecL at Morisset, then an assessment could be made as to the most suitable placement of that offender. The Principal Adviser, Mental Health has the power to direct what security conditions are necessary for each individual. 7.2 This alternative procedure tr~~sfers the responsibility for custody and care to the Health Commission thus avoiding the historical problem of detaining unconvicted mentally ill persons in a prison, without side-stepping the issu.e of dangerousness. The legislation, however·, is unclear and is subject to a number of interpretations. For this reason it would seem desirable to review the legislation ~~d consider· changes that would make more explicit the most appropriate forms of disposition. (b) N.1h_\!_:, ,Proposed Mental mHealth Act 7.3 The draft of the proposed Mental Health Act makes no changes in the sections referring to the disposition of G.P.s. Transfer: Section 25, which refers to the transfer of prisoners, other than G.P.s, to psychiatric hospital, has, however. been considerably broadened. The condition of 11mental illnessn is broadened to persons "suffering from a mental condition which could be more appropriately treated in a mental hospital". The condition for transfer back to custody in prison is broadened from "no longer mentally ill" to "no longer require treatment in a mental hospi tal11 • By implication these same definitions would operate in relation to transfer of G.P.s. Section 23(4), which relates to the transfer of G.P,s, contains no specific criteria for transfer of G.P.s to psychiatric hospital. -52- The p:r:--oposecl T.:enta1 Health _\ct ly :::~ .. :~:~;:~ unf:Lt ~;o "tH~ -'crj_ed, Section 23A(10(f) ) i.s d1scharge the cou..:ctt fo:r. (, comricted by a "special trial". These provisions • however, do apply to G" P. so Th.is apparent exto:llaly to be closely exam:ined. 7 ~5 ThB })TOIJOSed T\·~e-r"\te.. l Health lt.ct cloes not a}_)lJear to s:i_g;_·Jific?.1'}.tly chanr (c) The (}::~.:nadj_a:r~ P~conosal 7.6 In L1arch 1976 the Low Refo:r:-m Co7;mission of Cc:n•P.da submitted a re})o:r:-t to ParUamtmt(33 ) on mentalJy diso:cdered offenclers which refers to offenders held on a L.ie·ute11.ant Governor t s VI arrant (t The report concludes that the use of a Governor's warrant as a means of disposition j_s incom}_)atible with overall sentencing l)Olicy and suggests n O<>Ct that dispositions should be made openly, according to known criteria, be reviewable and. of determinate le11gth (34), The Commissio:te., therefore recommends that this form of cJjs:position be abolished and that the verd.ict of "not gnil ty by reason of insanity" be made a :cee,l acquittal, subject only to a :post-acc:;,uittal hearing to dete=,ine whether the indi.vidua.l should be civilly d.ets.ined on the basis· of his psychiatric dangerousness( 35) or :9sychiatric illness, 7. 7 In oril.er to make the verdict of "not guiity because of mental illness" a real acqy.ittal inN ,S,'7,, Sections 23 a,nd. 29 woul<'i need to be re:peeded as reclundant, A new section vrould be rer1u:i.red to allow the court to conduct a post-acC]_ui ttal hearine; to (let :L:n. t.l~e s he ::1.e person ca~no·~ be 0eta5. (d) J.5ajesty' s J)1easu~r:e.. rph.:ts systen~, ho',·?R"~te~c J O.oBn not all ov; dJ.rect :ce1e8.ED .tn-'c,o tJ'H~ co:·:~:;:_lJ.:nlty from t}H::: oou:r.-.-1~¢ TJ1e· Ene1:i sh cj_:r·cum.vent t}:j_g l;y r:·~oJ."e exte:n.s:Lve use o:f the d. e:;ce o.f O.i.minJehed 2-"'esrons:L1.1i15.-t:/ i.?}"l_.ic:-t pJ..J ..ryvs th:_:; co1.n:t t0 is-s-:Js 7,10 Int:to61H.:tlcn1. of t:nls system o.f tlj_s:pos1tio:n v,rould r·E;TLTj_;:.·e son.e cha·(;_,c;e:s i;o the e-x:istins ler::).s19"t5.on Q> Sectj_cn 23 ( 3) \V01).1d ne<=?d to specify a hcSJ:)i taJ. as t:r.. e p1e~ce of dete)r_tior1. a:r1d. sect::l.oT; 23(4) 'Nr.n~ld 'be :r·e71ec:t1ed as :tt l.VonJ.d no 1onse~r' be necesss.ry to complete ceY'ti cates to efff;ct a tra:n.. sfex· from 11riso~rl to me:r:tal hOS}JitP,.l, Admi.n.. istre.ti>:re1.y $ .~che cr.~_re c.nd custody of G~P~s would be tra:n.sferred entLreJ..y to t11.e Health Comm5_ss:i_on (a) 7 o 11 The rn:-OllOS\~0. lee:islatton does not substantially change rev1 ew l)J:·ovision.s f o~ G.. P .. s.. A rror.lose(l nevi subs ect:Lo:n to aection 23 :provides for a yer:-1-rJ..y ro"~ri.e:!il by tJ.1e }:lenta-1 Health Tri buna1 i:-nstead of the one :r~;view p~·.:esentJ..y d·on.e at the eX})i.ra t.i. on of th.r::: fi:cst si.x months (l The revj"e\v, ho·Never, j_s sti11 con:ftned to recomme~nd.a:tions Has to the necessj_ty fox· Bl.)_:L tr~.b:Ll}. ty r e into cou1d be to p~ison, ~s is the p~cs (b) 1e.~:::1. e i'l._(;' ,_,) $ \'.,15, t}~~- e C:.J(; as v be: C9.J. e c.l. ne:vi :::3ec:t:i..c1~n ·t of such R ~o~rd, its co2posi.tion, fT2tl_U8J1CY of :t'e>;ri 0.\V c 7 o 7) -~~l! e;:1. 5. t nay be ur.rn.ec essary tc revj_ew l)e:.::·sons ?.cr:rui tted o:r_ tJ1.8 g-:co1.i.:nds of rt,_en·i~t:l.1 :i..l1rcess e,nd. ad.Eli tted to a })Syc}-_l_iat:cic hospi.tal as i1.rvoluxrtary patie:n.ts o (c) Th8 E:n:-rli-S}! -Svst:em - .~d•.r5..so~('\t Board t.o the J-1om~~ Sec·r·et8_rv --~-;,....._,..,,,..,_ __,...., __ ~·-·--·-·--··-"-'-~ -··-·--~--·--·-""''-~R .. ,-,...,..-.,-·-··~~~'"""''''" 7., 15 ~Chere i.s no statutoTy bot:t~cd. of review j_n I:nc1:?.nc1 w}J.ich de?.ls exclu.si veJ.y o:rde-:c, al--thouch the l .. ~e-;:J.ta.l Heal t1.:. Trj_-blJ.Y.:?-.1 revl GY·iS rjuch pat5.. e:n.ts i.f tbey apply, 2.nd for·wa~cd.s t:hej_r :cecormne:n/tR.tj.. oYlS to the Home Sec:eeta.ry <) ~rhe Ad.vj_sox-y Board to the Eor:.e S8creta~cy, e. non-statuto:r~y 1)oc1y (descri.hed. i11 :pa:::·a.craph 3 ~34.), J~eviE~VlS }X::trttcu1r:.tx• rest~cictec1 pat:Lents ~ At prese\1t the Ailv:l..sory -55- reJease G.P.s liAs ix1 orcle:r~ to be este.~ulishec1 ~ Fo~veve:c', this m2.J' 1Je se2:n. as desirrt.b1e 7 in orcler to safee;varct tJ.1e richt of t!'!e o.fferHJer to systen<:?.t5.c revJ evT., 7" 17 ·J:Ihc core :Lssue focuses on wJJ.etheJ:: the soJ.e res1JO:ns:Lb:i .. 1ity fox: the cf::.rt:J ~~:n.:l. custody of G~J?~s s}Jc·~_,_lcl l)e vested i.n on~~ cle;>:-~.. r-trnent o This neec1s to be :cesolvscl. befo:r·e the full. 5.m~)Jications of tlle est.aOJ.is}:n'fle:n.t of sueT: a :cevj.e:w board ear~ be assest>ed. ., At :rn~ese:n_t ·both the 1~~.i': 1 5t~-l~er of Justice eo.x1.rl. the JTj.nLster of Hc:a.1-Sh CE\il. be Lnvolved :.l.n fo:r'wardLn.g reco:r.:rnen.d.ations t~o the Gu1re:cnor Q 7.18 The present legislation, in relation to G.P.s, has remained largely u:nchanged since 1878. However • many changes have since occurred in ·i;he manag<;ment and treatment of the mentedly ill, with far more emphasis on cornmuni ty programmes. 7. "19 This report is an attempt to present a factua.l description of the current management of G.P.s from the court process to release. Any attempts to streamline the legislation and administrative procedures relating to Governor's Pleasure detainees needs to take into account the following ethical and administrative issues. E"l:hica1 ge_ue.§!.: detention in prisml .crf: a:n· Qf:fe11der who is acquitted of any criminal responsibility; _;;11'~ the rights of the il1dividual to ade~aate treatment and to systematic review; the limitations of the assessment of dangerousness and its predid;ion. -56- --Administrative issues:-- -the di:fi'ioulties in the dual responsibility of the Department o:f Corrective Services and the Health Commission in the care and custody of G.P.s. the difficulties of assessment in a prison setti:ng; the role of the Parole Board as the reviewing boc'.y o - 57 - 1. The A~Jd ROP2l!, H.M.S.O., 1973. 3. ~·' p. 69. p. 70. 5. 7. "Special Hosp1tals 11 , Ministry o:f Health H.JE.s.o. quoted in N. Walker, op. cit., p.12.. 8. 9. lb~d.' 11. ~ •• p. 63. 12. 13. "Bu tler Repor" -'-" •2..:•"'~"~ c i·',, , , p. 59 • 14. ill5!·· p. 58. 15. ~.. p. 60. 16. 17. ~ •• p. 72. 18. The study is quoted in H.J. Steadman, 2n~~· 19.' H.J. Steadman, ~., p. 104. -58- 21. ~ •• p. 140 23. H.r,, Kozol, R.J. Boucher & R.F. G-arofalo, "The 11 Diagnosis and Treatment of Dangerousness • in Crim~a.;~a. It21i11.~.£Z• Oct. 1972, p. 371-392. 25. 26. ButlerReport, Q..ll.~<;:j,!., p. 65. 27. 28. 29. 30. L. Fink, "The Criminal Mental Patient: Tho Step·~ Child of Psvchj.atry in Excer,.,ta Meil.5.ca. International Congress sei-:ra:J:"'·7K/.b'"T'rt';~A.msterdam 1966 o 31. Butler Report, Q..ll.~... s!:!~,-. p. 68. 32. -Ibid.• 33. 34. --Ibid., p. 38. 35. ];b:Lq_. • p. 22 o fcE~JTAL !-FLATH ACT 1S'c8. ---''"'"""'"'-~-··- 23. (1) If any person indi.cted for any offence is mentally ill and, u;.~on , is found to be so by a jury lavvfu-11/ empane1led for th:::::.t purpcse, so trva.t. such person ca.nnot be tried upon such indictment, or if upon the trial. of any person so i;~dicted such. person is found by ths jury, before whom he is tried, to be mentally ill, ths judge before whom any such person ·121 brought to be arraigned or tried as aforesaid may direct such finding to be recorded, and thereupon may order such person to be, kept in strict custody in such place and in such manner as to such judge msy seem fit until he is dealt with as provided by section twenty-four of this Act. (2) In all cases ·where it is given in evidence upon the trial of any person charged with any treason, felony or misdemeanour that such person vvas 1 at the time the act or omission the subject of the charge was done or omitted to be dor:e, mentally i.ll, and such person is acquitted, the jury shall be requil"ed to find spec;ially whether such person was at such time mentally ill and to declare whether such person was acquitted by them on the ground that he was at such time mentally ill. In this subsecti.on "mentally il1" means in relation to any person charged as aforesaid, ~-:;o insane as not to be responsible, according to law, for the act or omission the subject of the charge. (3) If the jury find that such person was at the time t:-le act or omission the subject of the charge weis done or omitted to he done mentally ill as aforesaid, the judge before whom such trial is had shall order such person to be kept in strict custody, in such place and in such manner ·as to such judge seems fit until the' Governor's pleasure is known, and thereupon the Governor may give such order for the safe custody of such person during the Governor's pleasure in a prison as the Governor deems fit. (4) Upon the receipt of certificates by two medical practitioners in or to the effect of the form of Schedule Three, the Governor, by warrant under his hand, may direct that such person be conveyed to and detained in a mental llospi tal during the Governor's pleasure, rv1enta.1] 29. Go verne \' '' custody of ~-3iJCh per:::.mn rnay br::: renewed and varied from tj.me to time or revoked; :::1r,d the GCJ\/<:?rnor :::ay convey:;c.d ~co and dtab.'O·lined :i..n a tn8nt~al ho'.'-'>p:i. tal pursuent to a d:i.rsction by the GovE:rnor l not being a pc;rson under conviction and sentence} to be liberated from custody or suc1·1 mental hospital, upon such terms and conditions as the Governor may think fit; and if any such term or condition :is brokenf such person may be retaken and dealt with as provided in section thirty of this Act. 29A. (1) This section sh. No such leave shall be granted unless the Minister has approved of a recommendation of the superintendent for this purpose and of the terms and conditions upon which such lea\.8 shall be granted. No such recommendation shall be made by the superintendent unless the superintendent is of the opinion that no. danger to the community or any member therof vvould result if the person in rsspect of whom the recommendation is made were granted such leave. If any term or condition upon which special leave o absence is granted to any person pursuant to this section is broken such person may be reta'c<:en and dealt with as provided in section thirty of this Act. (3) In this section - "emergency' tneans visit to a sick or dying near relative, attendance at the funeral of a near relative or such other circumstance as may be deemed by the superintendent and approved by the Minister as an emergency; "near relative" has the meaning ascribed thereto in suusection seven of section twelve of this Act. 298 ( 1) If 3t the ("xpiration of six months from the date of his conveyance, removal or bej_ng sent to a montal hospi ta1 pursuc:.mt to the provisions of this Part of this Act, such person is still a person detained in a mental hospi ta.l pursum The Tribunal shall determine whether or not such person should be detained in a mental hospital for further observation and treatment. If the Tribuna.l determines that such person should be so detained such person shall be , detained in accordance with such determination. If the Tribunal determine" that such person should not be so detained, such person shall, if he remains subject to be continued in custody, be removed to the prison or other place from where he was taken or to some other prison or place of confinement or if such person does not remain subject to be continued j_n custody he shall be discharged,