05 July 2024
C182172
Caleb
[FYI request #26869 email]
Tēnā koe Caleb
Thank you for your email of 19 May 2024 to the Department of Corrections – Ara Poutama
Aotearoa, requesting information about sexual assaults in prisons. Your request has been
considered under the Official Information Act 1982 (OIA).
You requested:
I am writing to request information under the Official Information Act 1982 (OIA)
regarding sexual assaults within New Zealand prisons. Specifically, I am interested in
understanding the measures in place to prevent and address sexual assaults, as wel
as any failings that may exist.
Double Bunking and Safety Measures:
1. Please provide details on the practice of double bunking in New Zealand prisons.
How has this practice evolved over the years?
2. What policies, processes, and tools does Corrections use to identify and mitigate
safety concerns when placing individuals in shared cel s?
3. How does the Shared Accommodation Cell Risk Assessment (SACRA) tool inform
decision-making regarding cel mate compatibility? Are there specific risk factors
considered?
4. How are individuals with a history of sexual offending assessed for suitability to
double bunk?
Double bunking has been a long-standing practice in the New Zealand prison system and is
common practice internationally.
Corrections has a range of policies, processes and tools in place to identify and mitigate any
safety concerns when placing a person in a shared cell. In particular, Corrections staff use a
comprehensive assessment tool called the Shared Accommodation Cell Risk Assessment
(SACRA), to review the compatibility of individuals before they are placed in a shared cell.
The SACRA does not replace staff judgement, but helps to inform their decision-making and
minimise any potential risk.
NATIONAL OFFICE, WELLINGTON
Mayfair House, 44 – 52 The Terrace, Wellington, 6011, Private Box 1206, Wellington 6140,
Phone +64 4 460 3000
www.corrections.govt.nz
The SACRA tool identifies key risk factors, including the risk of sexual assault toward others,
to consider before placing a person in a shared cell. The assessment captures a range of
information about a person, including their age, security classification, offending history,
history of imprisonment, gang affiliation, notable physical characteristics, mental health
concerns and any other special needs.
Further information regarding the policy for how we assess prisoner suitability for cell
sharing, including a link to the SACRA compatibility guidelines, is publicly available here:
https://www.corrections.govt.nz/resources/policy_and_legislation/Prison-Operations-
Manual/Induction/I.08-Shared-Accommodation-Cel -Risk-Assessment
The rates of double bunking in our prisons over the last few years can be found on the
Corrections website:
https://www.corrections.govt.nz/resources/statistics/double_bunking_in_prisons
Reporting and Safety Alerts:
5. How can prisoners notify staff of potential safety risks while in custody? What
channels are available for reporting concerns?
6. What immediate actions are taken when an allegation of assault is made by a
person in prison?
7. How are individuals who pose an identifiable threat to others handled? Is there a
process for placing a “Not to Double Bunk” (NTDB) alert on their electronic file?
Corrections takes its duty of care to staff and people in prison extremely seriously. We are
constantly working to provide the safest possible environment in prisons, including
encouraging staff and people in prison to report al assaults.
We make sure that people in prison are aware of the many ways in which they can alert
staff to any concerns for their safety. This includes using their cell alarm when they are in
their cell, or making a disclosure directly to staff, via a family member or friend, or by
contacting an Inspector, the Office of the Ombudsman or anonymous crime reporting line
Crimestoppers – the latter two options available through a free 0800 number. They can also
make a confidential/private disclosure to the health team by using the Health Request Form
process. These forms are completed by the person and placed into a locked box which is
cleared by nurses daily when they are in the units for the medication rounds.
We appreciate that for someone in prison, raising a concern about a sexual assault may be
very difficult, which is why there are a number of avenues available.
When an allegation of sexual assault is made by a person in prison, we act to ensure that the
al eged victim is safe, supported and that Police are notified. Support may be provided by
Health Services staff, a chaplain or other spiritual support person, a kaiwhakamana or other
cultural support person, senior staff or the person’s family and friends. We work closely
with Police to ensure that they have access to al information and evidence that may assist
any criminal investigation they are undertaking.
In relation to question six, please find enclosed a copy of Corrections’ guidance for
responding to sexual assault in custody. This outlines the immediate steps taken when an
allegation of assault is made by a person in prison.
If a person is deemed not suitable to double bunk, a NTDB (Not To Double Bunk) alert is
activated on their IOMS (Integrated Offender Management System) profile. The NTDB alert
includes the reason(s) why the person is not suitable for shared accommodation. The
person assessed as not suitable to be double bunked is placed in a single accommodation
cell. Further information about these processes is outlined in the link above.
Staff Assaults and Accountability:
8. How many sexual assault charges have been laid against prisoners who assaulted
Corrections staff in the last five years?
All assaults on our staff are unacceptable. Corrections staff come to work every day to keep
New Zealanders safe. They deal with some of New Zealand’s most challenging people, and
do an exceptional and brave job in often very difficult circumstances.
Staff are encouraged to report al assaults, and we take al possible steps to support any
member of staff who has been the subject of a sexual assault. This can include supporting
them to report the assault to Police.
When an incident occurs, that involves serious potential or actual harm to an employee, the
Post Incident Response Team (PIRT) process is triggered. The type of PIRT support provided
wil vary according to the situation and needs of the staff concerned but typical y wil
involve:
• peer support briefing for al staff involved in the incident
• individual peer support – individual discussions with an appropriately trained PIRT
team member
• counsel ing support – individual support via an external qualified counsellor (EAP) for
employees affected by an incident (and family members as required). Counsel ing is
not provided by any PIRT member
• critical incident response – immediate external support and advice may be provided
• trauma support – individual specialist trauma support counselling via referral from a
regional HR manager, EAP counsellor or the employee’s manager to an appropriate
external expert.
The Employee Assistance Programme (EAP) is a service available to all Corrections staff and
their families free of charge. EAP is a confidential service provided by an independent
company and is delivered by qualified, registered and highly experienced professionals. EAP
services provide brief, solution focused support to staff and families to help deal with any
difficulties and minimise their impact on people’s lives. More information about EAP can be
found her
e: https://www.eapservices.co.nz/
Corrections also has staff welfare coordinators who support peoples’ rehabilitation needs
when a significant event has taken place and when staff or their family need more intensive
support. Staff welfare coordinators provide extremely valuable support, but they are not
trained counsellors. Therefore, staff are also encouraged to seek help from their general
practitioner (GP), Health New Zealand – Te Whatu Ora or a Community Mental Health
Team, as required. Should a staff member require more in-depth mental health care, the
local staff welfare coordinator can assist the staff member with this process and will check
in with them regularly.
People who commit sexual assaults against staff or other prisoners can be held to account
through the misconduct system, a change in security classification or a referral to Police for
investigation.
We work closely with the Police to ensure they have access to information or evidence that
may assist any criminal investigation. Corrections does not determine whether charges are
laid against a person, this is the responsibility of Police. Corrections has worked alongside
Police to use the 105 online reporting tool to report staff assaults. The 105 online reporting
tool enables our staff to report assaults directly to Police through an online form, allowing
Police to take action in a consistent and transparent way.
The fol owing table shows the number of people in prison who have been charged with a
'Sexual Assault and Related Offences' offence after committing a sexual assault against a
staff member between 1 July 2017 and 30 June 2024, broken down by year.
Financial year
Number
2017/18
2
2018/19
6
2019/20
1
2020/21
2
2021/22
1
2022/23
3
9. How many allegations of sexual assault by staff against prisoners were made
during the same period, and what actions were taken in response?
Corrections expects the utmost professionalism from our employees. All employees are held
to a high standard of integrity and professionalism and must act as role models for the
people and communities we work with. Al staff are expected to meet the expectations set
out in the Corrections’ Code of Conduct. We employ around 10,000 staff , and the
overwhelming majority of our people act with integrity, honesty and professionalism in
what is often a high pressure and chal enging environment.
When staff do not meet the standards required of them, we take appropriate action. This
may involve further development or support to bring the staff member’s performance up to
the standard required. Misconduct or serious misconduct may result in disciplinary action,
including the termination of employment.
Our Code of Conduct is available to view here:
https://www.corrections.govt.nz/about_us/who_we_are/our_privacy_commitment/our_co
de_of_conduct
Information relating to sexual assaults by staff against prisoners and the actions taken is not
held in a central manner, rather it is held on individual incident records or employee files.
We would be required to initiate a significant project to extract, analyse and present the
data to you. We consider this would amount to substantial col ation and research and
therefore, this part of your request is refused in accordance with section 18(f) of the OIA, as
the information cannot be made available without substantial collation and research.
In accordance with section 18A and 18B of the OIA, we have considered whether fixing a
charge, extending the time limit or asking you to refine or amend your request would
enable us to provide a response. However, given the scale of the request, we do not
consider this would be an appropriate use of our publicly funded resources.
Unreported Sexual Assaults:
10. Are there any documented cases of sexual assaults within prisons that were not
official y reported to Corrections? If so, how are these incidents addressed?
We encourage all staff and people in prison to report all assaults, however, we appreciate
that for someone in prison, raising a concern about a sexual assault may be very difficult.
When an assault is reported to staff, they fol ow the steps outlined in the responding to
sexual assault in custody guidance, which is referenced above and attached. If sexual
assaults are not official y reported to Corrections, we won’t know that they have happened.
Statistics and Trends:
11. Please provide the most recent data on sexual assaults in New Zealand prisons,
including both national and prison-specific statistics.
12. How has the incidence of sexual assaults changed over the past decade?
The fol owing table shows the number of incidents of sexual assault against a staff member
between 1 July 2014 and 30 June 2024.
As noted in response to question 8, people who commit sexual assaults against staff or
other prisoners are held to account, such as through the misconduct system, a change in
security classification or a referral to Police for investigation.
We reiterate that Corrections does not determine whether charges are laid against a
person, this is the responsibility of Police. We work closely with the Police to ensure they
have access to information or evidence that may assist any criminal investigation. For
further information on why the Police may not be able to progress with a complaint, we
suggest you contact the Police.
2014/ 2015/ 2016/ 2017/ 2018/ 2019/ 2020/ 2021/ 2022/ 2023/
15
16
17
18
19
20
21
22
23
24
Auckland South
Corrections
-
-
-
-
4
1
-
2
2
1
Facility
Auckland Prison
-
2
-
-
-
-
1
-
1
1
Christchurch
Men’s Prison
-
-
-
1
1
-
1
-
1
1
Hawkes’ Bay
Regional Prison
-
2
2
5
2
-
2
-
4
1
Manawatu Prison
-
1
-
1
1
-
1
-
2
1
Mt Eden
Corrections
1
3
1
1
3
2
3
2
4
7
Facility
Northland Region
Corrections
-
-
1
-
-
-
-
1
2
-
Facility
Rimutaka Prison
-
-
1
-
1
-
1
-
-
-
Spring Hill
Corrections
-
-
1
1
2
-
5
1
8
1
Facility
Tongariro Prison
-
-
-
-
-
1
-
-
-
-
Waikeria Prison
-
1
-
-
1
3
-
-
-
-
Whanganui
Prison
-
-
-
-
-
-
-
-
1
-
Total
1
9
6
9
15
7
14
6
25
13
Please note that this response may be published on Corrections’ website. Typical y,
responses are published quarterly or as otherwise determined. Your personal information
including name and contact details will be removed for publication.
I hope this information is helpful. I encourage you to raise any concerns about this response
with Corrections. Alternatively, you are advised of your right to raise any concerns with the
Office of the Ombudsman. Contact details are: Office of the Ombudsman, PO Box 10152,
Wellington 6143.
Ngā mihi
Leigh Marsh
Commissioner Custodial Services
