Limerick East): The purpose of the Bill is to provide the criminal courts with a further sanction which they may apply in appropriate cases. Essentially, the Bill provides that where a person is convicted of an offence for which the court considers that in the ordinary way the appropriate sentence would be one of imprisonment, the court may, with the offender's consent, instead order him to perform a specified number of hours of unpaid work. The work would be of a kind which would benefit the community but which people could not readily be got to do in the ordinary way for pay. The arrangement of the work would be a matter for the Probation and Welfare Service of the Department of Justice and that service would be expected to find tasks for offenders which would be of a worthwhile nature. The work would also be carried out under the general supervision of the Probation and Welfare Service and under the direct supervision of voluntary or paid on-site supervisors.
Before going on to deal with the advantages which will follow from the passing of the Bill, I feel that the Bill ought to be put in perspective. While a very important and progressive piece of legislation, it is only one of a number of measures being taken and planned to cope with the problem of rising crime which concerns us all. For example, as already indicated, another Criminal Justice Bill is in the course of preparation which will include measures to deal with strengthening the power of the gardaí in dealing with persons suspected of having committed serious offences and with new measures to deal with the problem of offences committed by persons on bail.
Now I would like to return to the present Bill and the advantages of it. First of all, it would be of considerable advantage to the courts by giving them an extra sanction and it will improve the ability of the courts to match the penalty to the crime. In some other jurisdictions where community service is already a court sanction rather striking use has been made of the principle of suiting the sanction to the crime: for example, State and municipal courts in the United States of America order traffic offenders to carry out work in hospitals, and in the Federal Republic of Germany juvenile courts can order young offenders with alcohol problems to help in homes for inebriates. However, I do not see it as important that there should be any close connection between the nature of the crime and the penalty imposed, but I think it would be quite appropriate, for example when offenders are convicted of acts of vandalism, that they should be required to repair the damage.
Community service orders have a number of advantages for offenders. First of all the making of the order will require the offender's consent and thus he will be given a say in the way in which he will repay the community for his criminal activity. An order would not upset the offender's daily routine because he could fulfil the obligations of the order in his spare time. Accordingly, he could continue with his education or employment. In addition, there would be the minimum disruption to the offender's family life. Then community service orders have the advantage to the community in that work of value to the community, which would not otherwise be done, would be performed under the orders. Some examples of this work would be: helping the disabled and the old with some of the problems which they have to face in dealing with their incapacities or helping organisations both voluntary and statutory which provide assistance for those people.
Other examples of the kind of work which might be undertaken are set out in a White Paper dealing with community service orders which was published in June 1981. Incidentally, the widely-distributed White Paper invited the public to give their views on community service orders and it is a source of some disappointment to me that there were very few responses to it.
An important advantage of community service orders is the help they should give in containing any increases in the numbers being committed to custody. So, hopefully, community service orders would play their part in reducing the need to resort to the undesirable but necessary practice of "shedding" offenders from custody after they have served part of their sentences. However, it ought to be borne in mind that community service orders are not a panacea for the current pressure on prison accommodation: the immediate solution to this pressure lies in the provision of additional accommodation. In this regard moves have been made in the right direction by the recent opening of Loughan House as an open centre and of a second wing in Cork Prison.
Some members of the community may be slightly apprehensive about offenders coming to work among them. I would like to allay any such apprehension. In general in the Bill I have tried to achieve a situation whereby as far as possible there is little or no risk to the ordinary members of the community by reason of the fact that offenders are sent to work among them: first of all community service orders will not be an option to courts in respect of crime for which the law has provided a mandatory sentence. This would exclude offenders convicted of murder. Secondly, community service orders will not be an option open to the Special Criminal Court and accordingly community service orders would be ruled out for persons convicted of the serious offences which come before that court. Thirdly, the judge dealing with the case is required before making his decision to satisfy himself that the offender is a suitable person for community service and for this purpose to consider a report about the offender prepared by a probation and welfare officer. In addition while performing community service an offender will be under the general supervision of a probation and welfare officer as well as being under the direct supervision of the paid or voluntary on-site supervisors to whom I have already referred. I am convinced that these safeguards are adequate and they should go a long way towards easing the worries which some people might have about community service.
Under the Bill offenders who are aged 16 years or older will be eligible for community service. The reason such a low age is being fixed is that community service orders have been found to be particularly suitable in the case of the young offender. In Britain the minimum age for community service orders was 17 years since the early seventies but, due to the success of the community service order for young offenders, the minimum age was reduced to 16 years a month or so ago. During the passing of the Bill through the Dáil it was suggested that the minimum age be reduced to 15 years, but this suggestion was opposed on the grounds that as a general rule persons under 16 years of age are not sentenced to detention in St. Patrick's Institution or to imprisonment, though they can be committed to institutions under the control of the Department of Education. It was considered that it was best not to interfere with this situation at least until the whole area of child care comes up for consideration in the context of the Children Bill now being prepared by the Minister for Health. The question of the proper way to dispose of charges where an offender is under 16 years is one which ought, more appropriately, to be considered in the wider context of that Bill rather than in a Criminal Justice Bill.
An important aim of the Bill is to try to ensure that compliance with the community service order will not jeopardise the offender's employment or his availability for employment or unduly disrupt his family life. The Bill, therefore, provides that directions as to the times for which an offender may be required to do the work as far as practicable will avoid any interference with the times the offender normally work or attends school and the Bill is framed on the basis that the work will be carried out in the District Court district where the offender resides. If he fails to comply with the order proceedings will be taken against him for such failure and he may be fined up to £300 without prejudice to the continuance of the order. There is an alternative method, of course, of dealing with the offender for failure to comply with the community service order: he can be returned to the court which made the order and dealt with there for the original offence. The court to which he has returned may revoke the order. This might be appropriate if, for example, the offender was clearly determined to disregard the requirements of the order.
The Bill also provides that if the offender moves from one part of the country to another, for example in the course of his employment, the community service order may be amended to allow him to do his community service in the area to which he has moved.
It is necessary to provide in the Bill for a review of the community service orders when circumstances have changed since the order was made and the interests of justice dictate that it ought to be reviewed. Such review will be carried out by the District Court in the area where the offender resides. An example of where an order might be reviewed in the interests of justice could be where the offender, because of deterioration of his health or for family reasons, will be unable to continue with the work.
It is an important requirement of the Bill that the offender must have consented to the making of an order and I consider that I ought to explain why this requirement has been included. First, it would be highly unlikely that an offender would comply with the order unless he had accepted it in the first instance. Secondly, it is important that we do not breach the letter or even the spirit of international conventions dealing with forced labour to which we have subscribed. I anticipate that there will be no shortage of offenders who would consent to the making of community service orders: after all, the alternative is imprisonment or detention. I believe that many offenders will appreciate that there is a positive side to community service as opposed to the negative aspects of custodial sentences.
The Bill provides that the maximum and minimum periods of work under community service orders shall be 240 hours and 40 hours respectively. When at first a sub-committee considered this particular aspect of community service in Britain they recommended a minimum of 40 hours and a maximum of 120 hours. However, in the course of the passage of the Bill through Parliament the upper limit was raised to 240 hours. Incidentally, France have how adopted the same limits. As regards the minimum number of hours I consider that anything much less than 40 hours would lead to administrative difficulties. The maximum of 240 hours seems to me to be about right. An order requiring very long hours could influence the offender as to whether he should continue to comply with the order.
The Bill provides that it should come into operation on such day as the Minister for Justice by order appoints. The selection and necessary training of staff for this scheme and the making of necessary rules and regulations will take some time but I can assure the House that there will be no unnecessary delay in bringing the Bill into operation.
Finally, I would like to reiterate that I consider the Bill to be important and progressive. The Bill brings into our criminal justice system a new sanction which is fundamentally different from other sanctions.
I am not advocating it as a panacea for all the ills of our court system or prison system, but I do recommend it as an important contribution, an alternative sanction which is progressive, liberal in intent, and which will help to deal with our problems of overcrowding in our prisons and in the shedding which has taken place from our prisons in recent years. I commend this Bill to the House.