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An Examination of How the Methods Employed by the Criminal Assets Bureau Move Ireland in a New Direction of Crime Control

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An Examination of How the Methods Employed by the Criminal Assets Bureau Move Ireland in a New Direction of Crime Control An examination of how the methods employed by the Criminal Assets Bureau move Ireland in a new direction of crime control. Patrick Joseph Ryan Thesis submitted for the degree of Doctor of Philosophy. School of Law, University of Limerick. Supervisors: Prof. Shane Kilcommins, University of Limerick. Prof. Ray Friel, University of Limerick. Thesis submitted to University of Limerick February 2019. Abstract. Thesis Title: An examination of how the methods employed by the Criminal Assets Bureau move Ireland in a new direction of crime control. This work examines how the concept and operational outcomes achieved by the Criminal Assets Bureau (CAB) reflect a new model of crime control that has emerged and developed to a stage where it is a significant contributor to crime control in Ireland. The approach developed and implemented by CAB is not designed to produce a socially engineered solution to make the deviant better by correctionalist intervention and normalisation. Rather it is an actuarial approach to criminal wrongdoing, one which employs civil, administrative and regulatory mechanisms. The instruments employed by CAB attempt to permanently alter the criminogenic networks that exist around the individual and thereby neutralise the criminal threat. Following a doctrinal and socio-legal methodology this thesis examines the framework and conceptual underpinnings that lead to the establishment of CAB dealing with the long and short causal factors that lead to a refocusing of the overall approach to criminality. It adopts an operation analysis approach to consider the tri- part elements of forfeiture, revenue powers and social welfare powers that form the central tenants of the civil approach that CAB adopts. In highlighting the operational approach and actual outcomes achieved by CAB it provides a case study of a modern criminological tool of disruption and discontinuity that operates against the financial base of crime as opposed to the criminal actor. i Declaration. I declare that this dissertation, submitted in fulfilment of the degree of Doctor of Philosophy, represents my own work. PJ Ryan. February 2019. ii Acknowledgements. There are a number of people who helped, supported and endured me in the completion of this thesis. To my family and friends who always support, without question, my endeavours and do so in a positive manner a special word of thanks. To my work colleagues and coffee buddies thanks for all the encouragement, support and necessary distraction. For the good natured and positive guidance thanks to Prof. Ray Friel. Finally, and importantly, a special word of thanks to Prof. Shane Kilcommins for his support, guidance, overwhelming patience and academic support. iii Table of Contents Abstract. .................................................................................................................................... i Declaration. .............................................................................................................................. ii Acknowledgements. ................................................................................................................ iii Table of Contents .................................................................................................................... iv Thesis Introduction. ................................................................................................................. 1 Introduction. ........................................................................................................................ 1 Research Question and Thesis Structure. ............................................................................ 4 Part One. .......................................................................................................................... 5 Part two. ........................................................................................................................... 6 Part Three. ....................................................................................................................... 8 Methodology. ..................................................................................................................... 10 Contribution to Knowledge. ............................................................................................... 17 Part One. ................................................................................................................................ 21 Chapter 1. ............................................................................................................................... 22 The Modern Criminal Justice Environment. ........................................................................... 22 Introduction. ...................................................................................................................... 22 Governance. ....................................................................................................................... 25 Criminal Law safeguards and the flow to civil power. ....................................................... 31 The non-individualised approach....................................................................................... 36 Managing Systemic Risk. .................................................................................................... 39 Conclusion. ......................................................................................................................... 43 Part Two. ................................................................................................................................ 45 Chapter Two. .......................................................................................................................... 46 The expanding and contracting boundaries of Criminal Law. ........................................... 46 Introduction ....................................................................................................................... 46 What is Criminal Law? ........................................................................................................ 49 iv Administrative Sanctions. .................................................................................................. 56 Reconstituting real crime: the regulatory and white collar vortex. ................................... 62 A middle-ground system of justice. ................................................................................... 73 Conclusion. ......................................................................................................................... 75 Chapter 3. ............................................................................................................................... 78 The Environment for Forfeiture and Seizure in Ireland prior to 1996. ............................... 78 Introduction. ...................................................................................................................... 78 Forfeiture the Historical Context. ...................................................................................... 85 The Offences Against the State (Amendment) Act, 1985. ............................................... 102 The Influence of United States Legislation on Irish Forfeiture Provisions. ...................... 108 International Influence on the Development of Irish Forfeiture. .................................... 113 Criminal Justice Act 1994. ................................................................................................ 117 Restraint Orders. .......................................................................................................... 117 Confiscation Orders. .................................................................................................... 119 Forfeiture Orders. ........................................................................................................ 120 Challenges to the Legislation. .......................................................................................... 121 Conclusion. ....................................................................................................................... 126 Chapter 4. ............................................................................................................................. 129 The nature of the Criminal Assets Bureau and its primary options under Proceeds of Crime legislation. ........................................................................................................................ 129 Introduction. .................................................................................................................... 129 Establishment of the Criminal Assets Bureau. ................................................................. 132 Functions of CAB. ............................................................................................................. 136 Staffing of CAB and the Multi-Agency Approach. ............................................................ 140 Anonymity of CAB officers. .............................................................................................. 142 Funding of the Bureau. .................................................................................................... 147 Revenue and Social Welfare Matters. ............................................................................. 149 The Proceeds of Crime Act. .............................................................................................
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