Aboriginal Communities and the Police’s Taskforce Themis: Case studies in remote Aboriginal community policing in the Northern Territory James Pilkington October 2009 NAAJA North Australian Aboriginal Justice Agency This research was funded under a grant from the Australian Government. Any views expressed in this report are not necessarily those of NAAJA or CAALAS staff or board members or the Australian Government. North Australian Aboriginal Justice Agency www.naaja.org.au Central Australian Aboriginal Legal Aid Services www.caalas.com.au Inquiries to: Advocacy Manager North Australian Aboriginal Justice Agency 1 Gardiner St GPO Box 1064 Darwin, NT 0801 Phone: 08 8982 5100 Fax: 08 8942 9619 Email: [email protected] Researcher contact: James Pilkington [email protected] Acknowledgements Thanks to the following people who provided research assistance and community facilitation for the project: Russell Bray, Graham Campbell, Jessica de Campo, Maxine Carlton, Louise Cavanagh, Pam Corbett, Danial Kelly, Roy Larry, Elizabeth McFarlane, Mara Murungun, Natasha Patana and Della Pearce. Thanks also to the following people who provided advice, support and direction to the project: Simone Ah Mat, Priscilla Collins, Megan Davis, Norman George, Yingiya Guyula, Wayne Harris, Julian Johnson, Yikaki Maymuru, Joel McLennan, Noel Morris, Anne-Marie Murphy, Mark O’Reilly, Vernon Patullo, Peter Pohlner, Hannah Roe, Derek Schild, Bec Sharkey, Jared Sharp, Lorraine Synoch, Helen Wodak and Rranytjing Wunungmurra. Thanks to all participants who gave their time and stories generously. Traditional Owners of Australia are always acknowledged. Australia is Aboriginal Land. 2 CONTENTS PLAIN ENGLISH SUMMARY ............................................................................................. 5 EXECUTIVE SUMMARY.................................................................................................... 8 RECOMMENDATIONS .................................................................................................... 14 For Police .......................................................................................................................... 14 For governments, shires and Aboriginal organisations.................................................... 17 LIST OF ACRONYMS ...................................................................................................... 20 INTRODUCTION .............................................................................................................. 21 Background....................................................................................................................... 21 Taskforce Themis ............................................................................................................. 24 Method…………………………………………………………………………………………..27 Participation ...................................................................................................................... 29 PART 1: RESULTS OF THE RESEARCH ON ABORIGINAL COMMUNITIES AND TASKFORCE THEMIS....................................................................................................32 SUMMARY OF THE RESEARCH FINDINGS ................................................................. 33 CHANGES IN CRIME....................................................................................................... 36 Key factors in crime reduction .......................................................................................... 37 Underpolicing .................................................................................................................... 39 Culturally appropriate policing and trust........................................................................... 39 Community approval of police presence and work .......................................................... 43 Court Volumes .................................................................................................................. 51 COMPLAINTS AND LAW................................................................................................. 52 Police entry into houses and yards, including searching houses .................................... 52 Entry to ceremony/sacred areas by police ....................................................................... 57 Taser and Pepper Spray Use ........................................................................................... 59 Problems with contacting police ....................................................................................... 66 Lack of communication – police activity ........................................................................... 67 Community Law and Justice Groups................................................................................ 69 PART 2: COMMUNITY CASE STUDIES ........................................................................73 Community A..................................................................................................................... 79 Community B..................................................................................................................... 84 Community C .................................................................................................................... 87 Community D .................................................................................................................... 91 Community E..................................................................................................................... 95 Community F................................................................................................................... 101 Community G .................................................................................................................. 104 Community H .................................................................................................................. 108 Community I.................................................................................................................... 114 Community J ................................................................................................................... 117 Community K................................................................................................................... 121 Community L................................................................................................................... 126 Community M.................................................................................................................. 129 Community N .................................................................................................................. 134 PART 3: DISCUSSION ON THE NATURE OF REMOTE COMMUNITY POLICING IN THE NORTHERN TERRITORY....................................................................................138 Summary ………………………………………………………………………………..139 UNDERSTANDING POLICE PRACTICE....................................................................... 140 3 Key Concepts.................................................................................................................. 143 Redefining appropriate policing ...................................................................................... 147 UNDERSTANDING ABORIGINAL ENGAGEMENT WITH POLICE ............................. 153 Why Aboriginal people value the police ......................................................................... 153 Factional Capture............................................................................................................ 155 Multiple avenues for problem resolution......................................................................... 157 PART 4: THE ‘OVERDETERMINATION’ OF ABORIGINAL OFFENDING: THE EXAMPLES OF ALCOHOL AND TRAFFIC OFFENCES .............................................169 Introduction ..................................................................................................................... 170 ALCOHOL ....................................................................................................................... 170 Changes in drinking behaviours ..................................................................................... 180 Responsible drinking ...................................................................................................... 184 MOTOR VEHICLES AND CRIMINALISATION.............................................................. 185 The pervasiveness of offending on Traffic Act-related matters ..................................... 185 The ‘overdetermination’ of traffic offences ..................................................................... 186 The Police Dilemma........................................................................................................ 189 SOURCES ....................................................................................................................191 APPENDICES...............................................................................................................198 Appendix A: Survey 1 ..................................................................................................... 199 Appendix B: Survey 2 ........................................................Error! Bookmark not defined. 4 PLAIN ENGLISH SUMMARY In the Intervention, the government built 18 new police stations in Aboriginal communities in the Northern Territory. They called this ‘Taskforce Themis’. Aboriginal