ATTORNEY-GENERAL’S DEPARTMENT Evaluation of Indigenous Justice Programs Project A: Aboriginal and Torres Strait Islander Sentencing Courts and Conferences Final report January 2013 Prepared by: CULTURAL & INDIGENOUS RESEARCH CENTRE AUSTRALIA in collaboration with: Head Office (Sydney): Level 1, 93 Norton St, Leichhardt NSW 2040 Melbourne Office: Level 14, Como Centre, 644 Chapel St, South Yarra VIC 3141 ABN: 30 065 353 951 ATTORNEY-GENERAL’S DEPARTMENT: EVALUATION OF INDIGENOUS JUSTICE PROGRAMS – PROJECT A FINAL REPORT, JANUARY 2013 TABLE OF CONTENTS Executive summary ................................................................................................................................ 4 Acknowledgements ..............................................................................................................................11 Acronyms ..............................................................................................................................................12 1. Introduction ...................................................................................................................................13 2. Summary of programs .................................................................................................................16 3. Evaluation framework and methodology ...................................................................................19 3.1 Objectives and framework ....................................................................................................19 3.2 Methodology .........................................................................................................................22 4. Review of literature and prior evaluations .................................................................................24 4.1 Introduction ...........................................................................................................................24 4.2 Aboriginal and Torres Strait Islander Sentencing Courts and Conferences ........................25 4.3 Youth conferencing ...............................................................................................................36 4.4 Conclusion ............................................................................................................................42 5. Findings: Aboriginal sentencing courts and conferences in South Australia .......................45 5.1 Summary of programs ..........................................................................................................45 5.2 Profile of defendants .............................................................................................................49 5.3 Program logic........................................................................................................................70 5.4 Methodology .........................................................................................................................75 5.5 Findings against the good practice themes ..........................................................................76 5.6 Assessment against the good practice themes ..................................................................106 5.7 Key lessons ........................................................................................................................110 6. Findings: Youth Justice Conferencing (Queensland).............................................................113 6.1 Summary of program ..........................................................................................................113 6.2 Profile of YJC ......................................................................................................................114 6.3 Program logic......................................................................................................................118 6.4 Methodology .......................................................................................................................119 6.5 Findings against the good practice themes ........................................................................120 6.6 Assessment against the good practice themes ..................................................................144 6.7 Key lessons ........................................................................................................................149 7. Findings: Northern Territory Community Courts (Northern Territory) .................................153 7.1 Summary of program ..........................................................................................................153 7.2 Profile of defendants ...........................................................................................................154 7.3 Program logic......................................................................................................................160 7.4 Methodology .......................................................................................................................161 7.5 Findings against the good practice themes ........................................................................161 7.6 Assessment against the good practice themes ..................................................................182 7.7 Key lessons ........................................................................................................................186 8. Overall lessons about good practice ........................................................................................190 8.1 Framework for assessing what works ................................................................................190 8.2 Assessment of all programs against the good practice themes .........................................193 © CULTURAL & INDIGENOUS RESEARCH CENTRE AUSTRALIA _____________________________________ 2 ATTORNEY-GENERAL’S DEPARTMENT: EVALUATION OF INDIGENOUS JUSTICE PROGRAMS – PROJECT A FINAL REPORT, JANUARY 2013 8.3 Key lessons from all programs ...........................................................................................199 8.4 Strategies for improvement across all programs ................................................................202 8.5 Final conclusion ..................................................................................................................203 9. References ...................................................................................................................................205 © CULTURAL & INDIGENOUS RESEARCH CENTRE AUSTRALIA _____________________________________ 3 ATTORNEY-GENERAL’S DEPARTMENT: EVALUATION OF INDIGENOUS JUSTICE PROGRAMS – PROJECT A FINAL REPORT, JANUARY 2013 Executive summary It has been more than 20 years since the Royal Commission into Aboriginal Deaths in Custody. In that time all Australian governments have introduced initiatives to act on the recommendations of the Commission. However, despite concerted effort and resources being invested, the fact remains that Aboriginal and Torres Strait Islander people are still significantly over-represented in the criminal justice system, both as victims and offenders. In 2009 the Australian Government announced funding of $2 million for a major evaluation of 26 initiatives that aimed to reduce the over-representation of Aboriginal and Torres Strait Islander people in the criminal justice system. The aim was to build on the evidence base of what works in tackling crime and justice issues in Aboriginal and Torres Strait Islander communities. The evaluations also aimed to support work under the National Indigenous Law and Justice Framework, endorsed in 2009 by the former Standing Committee of Attorneys-General (now the Standing Council on Law and Justice). The evaluation comprises five projects (A to E), of which Project A considers programs relating to Aboriginal and Torres Strait Islander Sentencing Courts and Conferences. This report presents the findings of the evaluation of Project A, covering six programs across South Australia, Queensland and the Northern Territory. Structure of the report After a summary of the programs in Chapter 2, Chapter 3 describes the methodology adopted, which involved consultations with program managers and staff to develop a monitoring and evaluation framework; a comprehensive literature review; consultations with program managers, program staff, stakeholders, Elders and in some cases program participants; and a review of documentation and monitoring data for each program. Following the literature review in Chapter 4, the report presents evaluation findings for the six programs (for detailed findings on each program see the relevant chapter): • Port Adelaide and Murray Bridge Nunga Courts, and Port Augusta Aboriginal Sentencing Court (South Australia): courts that aim to provide a more culturally appropriate sentencing process for Aboriginal defendants who plead guilty; they are presided over by a Magistrate, assisted by Aboriginal Elders who provide advice and information about local, social and cultural issues and relevant matters about the person before the court – Chapter 5. • Port Lincoln Aboriginal Conferencing (South Australia): a program in which Aboriginal defendants who plead guilty can attend a conference prior to their sentencing hearing; Magistrates do not attend, with facilitation managed by a Conferencing Coordinator and Aboriginal Justice Officer and involving Elders, a Police Prosecutor, the defendant, the victim, support persons and respected