E31(138) NovemberMarch 2016, 2010, Wellington, Wellington, New New Zealand Zealand | | REPORT REPORT 138 119 STRANGULATION THE CASE FOR A NEW OFFENCE March 2016, Wellington, New Zealand | REPORT 138 STRANGULATION THE CASE FOR A NEW OFFENCE The Law Commission is an independent, publicly funded, central advisory body established by statute to undertake the systematic review, reform and development of the law of New Zealand. Its purpose is to help achieve law that is just, principled and accessible and that reflects the heritage and aspirations of the peoples of New Zealand. The Commissioners are: Honourable Sir Grant Hammond KNZM – President Honourable Dr Wayne Mapp QSO Honourable Douglas White QC Helen McQueen The General Manager of the Law Commission is Roland Daysh The office of the Law Commission is at Level 19, 171 Featherston Street, Wellington Postal address: PO Box 2590, Wellington 6140, New Zealand Document Exchange Number: sp 23534 Telephone: (04) 473-3453, Facsimile: (04) 471-0959 Email: [email protected] Internet: www.lawcom.govt.nz A catalogue record for this title is available from the National Library of New Zealand. ISBN: 978-1-877569-74-6 (Print) ISBN: 978-1-877569-73-9 (Online) ISSN: 0113-2334 (Print) ISSN: 1177-6196 (Online) This title may be cited as NZLC R138 This title is also available on the Internet at the Law Commission’s website: www.lawcom.govt.nz ii Law Commission Report 7 March 2016 The Hon Amy Adams Minister Responsible for the Law Commission Parliament Buildings WELLINGTON Dear Minister NZLC R138 – STRANGULATION: THE CASE FOR A NEW OFFENCE I am pleased to submit to you the above Report under section 16 of the Law Commission Act 1985. Yours sincerely Sir Grant Hammond President Strangulation: The case for a new offence iii Foreword The Commission has been asked to report on a possible new crime of strangulation. This Report discharges that obligation. The Commission has considered: (a) the rationale for establishing such a crime; (b) if a crime of non-fatal strangulation is to be created, what the appropriate elements of the offence should be; (c) what the maximum penalty should be having regard to the structure and terms of other offences in the Crimes Act 1961; and (d) whether there are other legislative or operational options that would better address the concerns the proposed crime is intended to address. This reference forms part of a range of initiatives the Minister of Justice is considering in respect of family violence. The current government has made the scourge of family violence in New Zealand one of its highest priorities. The Police deal with over 100,000 family call-outs per year. Studies have shown that strangulation, often to the point of unconsciousness, is a common form of family violence. It is a dreadful tool for coercion and control within a domestic relationship. It is not well accommodated within the existing offences in the Crimes Act. This particular form of attack, which is not limited to family violence, has been criminalised in a number of countries (for instance, almost three-quarters of American states). It has been better investigated in these jurisdictions, and is understood as being an important indicator of lethality risk. In the Commission’s view, it is appropriate and suitable for inclusion in our Crimes Act as a new offence. It meets the usual criteria for the establishment of a new crime. The Commission has had the benefit of consultation with a broad range of people and agencies who operate particularly in the family violence sector and who represent both the victims and perpetrators of family violence, including the Police, members of the judiciary, women’s refuges, prosecuting and defence counsel and academics specialising in family violence. A list of these people and agencies can be found at Appendix B. Sir Grant Hammond President iv Law Commission Report Acknowledgements We are grateful to all the people and organisations that provided input during this review. We would especially like to thank the members of our expert advisory group—Annabelle Markham, Ang Jury, Judge Caren Fox, Elisabeth McDonald, Helen Cull, John Billington, Julia Tolmie and Tusha Penny. A list of those with whom we consulted can be found in Appendix B of this Report. The lead Commissioner for this project was Judge Peter Boshier and, upon his resignation, Dr Wayne Mapp. The Senior Legal and Policy Advisers were Linda McIver and Bridget Fenton. While Helen McQueen and the Honourable Douglas White QC held warrants as Law Commissioners from 9 February 2016, they did not participate in this project, which was largely completed prior to that date. Strangulation: The case for a new offence v vi Law Commission Report Contents Foreword .............................................................................................................................. iv Acknowledgements ............................................................................................................... v Summary of recommendations .............................................................................................. 3 Chapter 1 Introduction ......................................................................................................... 4 The New Zealand context .................................................................................................................... 5 This project ........................................................................................................................................... 6 Our recommendations .......................................................................................................................... 7 Chapter 2 Background .......................................................................................................... 8 What is strangulation? .......................................................................................................................... 8 Signs and symptoms of strangulation .................................................................................................. 9 Strangulation and family violence .................................................................................................... 10 Chapter 3 Strangulation in the criminal justice system ..................................................... 15 Introduction ....................................................................................................................................... 15 Charging ............................................................................................................................................. 16 Sentencing .......................................................................................................................................... 19 Conclusions ........................................................................................................................................ 22 Chapter 4 Current problems prosecuting strangulation ..................................................... 23 A lack of awareness of the risks and effects of strangulation ......................................................... 23 A lack of accountability for the perpetrators of strangulation ........................................................ 26 Is reform justified? ............................................................................................................................. 33 Chapter 5 A specific strangulation offence ......................................................................... 34 Other jurisdictions enacting strangulation offences ........................................................................ 34 The elements of a strangulation offence .......................................................................................... 37 Should a strangulation offence be limited to family violence circumstances? ............................... 39 Consent ............................................................................................................................................... 40 Maximum penalties ........................................................................................................................... 41 Chapter 6 Other Crimes Act options for reform ................................................................ 43 Amending the aggravated offences ................................................................................................... 43 Offence of recklessly endangering life .............................................................................................. 45 Aggravated versions of offences increasing penalty ........................................................................ 47 Chapter 7 Additional options for reform ............................................................................ 48 Aggravating factor for sentencing ..................................................................................................... 48 Recording strangulation .................................................................................................................... 50 Strangulation: The case for a new offence 1 Contents Increasing the availability of medical evidence ................................................................................ 50 Education about strangulation .......................................................................................................... 50 Chapter 8 Recommendations for reform ...........................................................................