Introduction
Currently people subject to the Ministry of Justice
(MoJ) contract get tagged in one of three ways; on bail, on home detention
curfew and as a community punishment. In Hansard; Written Answers for 14th
January and 16th January 2013 the following information is
supplied.
Between May 2010 and December 2012 , 281,000 new
tagging starts took place of which 78,000 were bail cases, 41,000 were Home
Detention Curfew cases and 162,000 were community penalties, proving monthly new
start averages of 2,500 (bail), 1300 (HDC) and 5225( Community Penalty)
On
average during the years 2005 – 2011 offenders wore a tag for between
70 and 74 days; meaning that at any time between 21000 and 23000 people
are tagged. Their tags simply monitor compliance with a curfew. It
cannot indicate what they were doing or where they were outside of their
curfew address. Few tagged offenders are prolific or serious
criminals. The non-tagging of these important offenders represents a
missed opportunity. The strictures of the legislation nominating a
single monitoring agent as EM supplier combined with a flawed MOJ
methodology (as far as preventing crime is concerned) hinders courts
from imposing on prolific offenders a requirement to be subject to
meaningful GPS monitoring.
What is required to enable police
forces to prove that using electronic monitoring offers an opportunity
to prevent and detect crime and to keep communities safe is a temporary
and limited relaxation of the law that gives to Capita alone the status
of responsible officer for tagging purposes If local integrated
offender management teams were given the responsibility for monitoring
prolific offenders, using up to date crime maps as a reference point for
tag wearers’ movements a significant amount of crime would be
prevented.
Why Serious and Prolific Offenders are rarely tagged at present.
The
tagging of offenders is currently almost exclusively in the domain of
the MoJ, who use it to enforce court orders, provide suitable penalties
for convicted offenders and manage prison populations. These aims,
although wholly unobjectionable are not the same as those of the Police
and the Home Office, who want to cut crime and manage operational risk.
The
MoJ tagging regime, and the legislation that enables it, selects
candidates for tagging carefully and in such a way that most prolific
offenders are outside its reach. An offender can only be tagged if on
bail, sentenced to a non custodial penalty or released early by a
prison. Prolific offenders, who commit house burglary, or street
robbery, the sort of people that the police want to monitor and manage,
usually do not get bail, do not get sentenced to a community punishment
and often are not allowed home early by prison governors on a HDC
because of their likelihood of reoffending.
The Opportunity
Relatively
small numbers of offenders commit a very high proportion of recorded
crime. Across the whole country about 5,000 individuals are responsible
for 10% of all crime (whom we might call chronic offenders) and 100,000
offenders (whom we might call repeat offenders) are responsible for 50%
of all crime . These two cohorts of offenders use up large amounts of
police investigative resources; prison and probation management time and
court lists are filled with their cases. Together they constitute the
majority of offenders whom we currently call prolific offenders. This
is the group of offenders rarely tagged under the current regime that
GPS Electronic Monitoring could and should impact.
What Offenders Think and Do
Two
prominent findings from criminological research are that punishment
certainty is far more consistently found to deter crime than punishment
severity , and furthermore the speed at which the punishment is meted
out also contributes to its deterrent effect .
For prolific
offenders punishment is currently insufficiently certain and too slow to
deter them. They reoffend repeatedly. Of those in prison in 2012 on
short sentences of six months or under, 50% had 15 or more previous
convictions, 26% had more than seven and only 5% had no previous
convictions at all . It is clear that for a substantial number of
offenders the current regime of punishment and imprisonment are of
little or no deterrent effect. Furthermore punishment only follows on
from getting caught and even prolific offenders do not get caught that
often. We know from the Surveying Prisoner Crime Reduction Survey (SPCR)
that prolific offenders commit many offences for which they are never
caught. Those surveyed were asked about their offending in the year
leading up to their eventual imprisonment. Those who admitted any
offences at all (65% of the 1421 surveyed) reported that in the four
weeks prior to being arrested for the offence for which they had been
imprisoned, and not including that offence, they had committed on
average 44 offences for which they had not been caught. This figure was
skewed by a small number of incredibly prolific offenders but removing
them still left a figure of 20 offences per offender.
Yet the
heartening thing about offenders even as prolific and recidivist as
these is that they do want to stop. When asked in the survey 97% said
that they wanted to give up offending.
Using GPS Tags to Manage Offenders
GPS
tags can help offenders in their aspiration by supplying them with a
significant external motivator. Knowing that they will get caught almost
instantly for any offence they commit that can be linked to a location
(burglary, car theft, robbery, assault) acts as a significant deterrent
to them both in resisting their own impulses and being able to resist
the encouragement of their criminal associates.
In one fell swoop
offenders by being required to wear a GPS tag can be supplied with what
research has shown is most likely to deter them from reoffending
(certainty and speed of detection) and in doing so we can harness their
self confessed desire to desist.
GPS tags provide offenders with
assistance and also help the general population. Should their wearers
reoffend, spree offending (twenty offences in four weeks as described in
SPCR) can also be prevented. Offenders wearing a GPS tag may commit
crime but they can only do so briefly before getting caught. This
prevents further additional harm to communities and reduces wider
victimisation.
Being caught through GPS location technology for
committing substantial crimes ensures that offenders are actually dealt
with for the offences they have committed rather than “mere” failures of
compliance. Courts in the knowledge that an offender has not committed a
crime (because the GPS data say that he has not) could be freed up from
hearing cases of licence condition breaches which could be better dealt
with by their probation officers.
How to Deploy GPS tags
Even
though the new MoJ contract expects there to be an expansion in the use
of GPS tags there is little room in the current regime for getting more
prolific offenders to wear them. Burglars and street robbers will still
not get bail, will not receive a community penalty and may not be
released early by prison governors even with a GPS tag. Even if they did
the current contractual data monitoring arrangements do not allow for
the comparison of tag wearers’ movements with police crime maps; which
is essential if GPS tagging is to be effective.
However outside
the MoJ contract Police Forces, Police and Crime Commissioners and the
Mayor’s Office on Policing and Crime are beginning to be alive to the
fact that, there is a real possibility of getting much better
oversight and control of the sort of offenders that commit so much
damage in their communities. In Hertfordshire and Bedfordshire and in a
number of Boroughs in London a number of offender management projects
invite prolific offenders as volunteers to change their lives and in the
course of doing so to wear a GPS tag. These programmes are delivering
crime reduction and crime detection results that are leading to steady
expansion into other Police Areas.
New Laws New Opportunities
These
pilot programmes have so far involved volunteer offenders; men and
women who want to desist from crime. Forces would like to expand into
compulsory programmes but until very recently finding a legal way of
compelling offenders to wear a GPS tag has been difficult. However the
new Anti Social Behaviour Act (enacted 20th October 2014) offers the
Police opportunities to apply for a criminal behaviour order (CBO)
against a convicted offender which can be in place for as long as five
years and which can be in addition to a prison or any other sentence.
This could also include tagging. The same legislation will also enable
them to ask for tagging orders for shorter periods against people who
have not even been charged or convicted when in early 2015 Anti Social
Behaviour Injunctions (ASBI) are introduced. These offer the same
opportunity for courts to compel offenders to take part in monitored
programmes.
This legislation offers the opportunity for a
paradigm shift in the deployment of GPS tags against prolific
offenders because through it they will be available against a much wider
range of people ( and for longer) than the current MoJ tagging
legislation allows for.
However applying for a CBO or an ASBI puts
additional expense on the Police (and the local authority who can also
apply for an ASBI) because they have to pay to apply and bear their
costs of any hearing that determines the application.
The
imposition of an EM requirement on its own or as part of a package of
measures included in a community sentence could include the
requirement to wear a GPS tag. However the current MoJ contract cannot
deliver effectively against such a requirement; The Responsible Officer
(Capita) and their nominated monitoring agent (Astrium) have nothing
to contribute to the meaningful monitoring of GPS data. This requires as
a minimum reasonably fast time comparison with police records of crime
and incidents. Only the police can and should do this and it is only
this comparison that renders GPS tags effective.
So the Barnet,
Hackney, Hertfordshire and Bedfordshire and other GPS tagging programmes
would be significantly enhanced operationally if there was a small
alteration to the law (cited at foot note 2) which allowed courts to
make an EM requirement under sec 177 – 215 Criminal Justice Act 2003
nominating the Police or some other partner from the local IOM team as
the responsible officer. This would only apply in cases where the IOM
team actually sought to be the monitoring officer. In all other cases
where EM is required the current arrangements would remain in place.But
for those prolific offenders known to IOM teams, where GPS tracking
offers rehabilitation and desistance opportunities , they could make the
application to be the monitoring agent , thereby giving efficacy to GPS
technology. This has the potential to significantly reduce crime.