ࡱ> q bbjbjt+t+ AANX2$]<<<(d 8$T1tttttttt0000000$1300ttttt0ttttttZ0zt0>v>+Z0tH, pF8 `/| HOMELESS PERSONS LEGAL CLINIC 30 October 2024 The Honourable Rob Hulls MP Attorney-General of Victoria Department of Justice Level 1, 55 St Andrews Place Melbourne VIC 3002 Dear Attorney-General Review of the Vagrancy Act 1966 (Vic) We refer to our meeting with Clare Stone and Dr Steven Tudor on Monday, 14 October 2002. A. Background As you would be aware, the Scrutiny of Acts and Regulations Committee recently published its Final Report on the Review of the Vagrancy Act 1966 (Vic). In relation to the offence under section 6(1)(d) of the Act of begging or gathering alms, the Committee recommended: That a reference for a comprehensive investigation into the causes of begging and the links between begging, homelessness, poverty, drugs and crime be given to the appropriate parliamentary committee; and That, pending the outcome of such investigations, the offence of begging be re-enacted in the Summary Offences Act 1966 (Vic). B. Recommendations The signatories to this letter oppose the Committees recommendations and recommend: That section 6(1)(d) of the Vagrancy Act 1966 (Vic) be repealed and that it not be re-enacted in the Summary Offences Act 1966 (Vic); and That Government, through the Department of Human Services in collaboration with local councils, police, welfare agencies and homelessness service providers, develop and implement programs to respond more effectively to begging and address its underlying causes. C. Nature, Extent and Causes of Begging The most significant empirical research conducted in Victoria in relation to begging is detailed in A Question of Begging: A Study of the Extent and Nature of Begging in the City of Melbourne. The study was conducted by Hanover Welfare Services, in collaboration with Victoria Police and the City of Melbourne, to investigate the extent and nature of begging within Melbournes CBD, as well as examine the issues that often accompany or underlie begging behaviours. The study revealed that: an average of 23 charges per month for begging were laid between January 1999 and December 2000 (for a total of 567 charges over a two year period); the majority of persons charged are convicted and fined by the Court in the amount of $50 for a first offence, $100 for a second offence and up to $300 for a third or subsequent offence; 43 per cent of persons who beg adopt passive begging techniques (that is, sit or stand in one spot with a sign alerting passers-by that they need money) while 57 per cent adopt active begging techniques (that is, follow passers-by and ask for money); no persons charged with begging between January 1999 and December 2000 adopted aggressive begging techniques (that is, used stand over tactics or threatening speech or behaviour); and no persons charged with begging between January 1999 and December 2000 were charged with causing or procuring a child to beg. Hanovers research indicates that people who beg are usually the most marginalised, disadvantaged and disenfranchised in society. Hanovers study found that, of the persons observed to be engaged in begging behaviours over a four month period in 2000: 93 per cent were long term unemployed; 71 per cent were sleeping rough or in squats and a further 28 per cent were living in crisis accommodation or with family or friends; 43 per cent were long term homeless; 71 per cent suffered from substance addictions; and 93 per cent were receiving social security payments (although 28 per cent of persons had payments reduced or terminated as a result of Centrelink breaches). The main reasons given for begging included: the inadequacy of social security payments having regard to the costs of housing, clothing, food and medical treatment; psychiatric disabilities and disorders; and heroin, alcohol and gambling addictions. Hanover found that begging is generally a last resort activity a more acceptable means of satisfying immediate needs than resorting to other criminal activity such as theft, drug dealing or prostitution. Those engaged in begging reported it to be a harsh necessity that was humiliating, demeaning, degrading, frustrating and time consuming. As Hanover concludes, each of these indicators support the conclusion that begging is an income supplement necessary for survival at some level, related to the need for food, accommodation or addictive behaviours. There are clear associations between begging, substance abuse, homelessness, mental health issues, unemployment and poverty. The conclusions of Hanover are corroborated by Driscoll and Wood, who conducted a study on the incidence of homelessness and chronic disadvantage commissioned by the City of Melbourne in 1998. Their research found that a complex relationship exists between poverty, begging, drug use, psychiatric and physical disability and homelessness. According to Driscoll and Wood, many homeless and poverty stricken individuals use begging as a last resort means through which they can supplement their income for basic survival needs. The conclusions of Hanover and Driscoll and Wood regarding the underlying causes of begging are supported by extensive studies conducted in England and the United States. D. Arguments in Support of Retaining Begging as a Criminal Offence The Committee advanced four key arguments in favour of retaining begging as a criminal offence pending the outcome of further investigations into its extent, nature and causes: Begging is a serious problem in many communities; Local councils are not equipped to deal with begging; There is a significant correlation between begging and crime; and Relatively little research has been conducted into the issue of begging in Victoria. Each of these arguments is addressed in turn. Begging is a serious problem in many communities The contention that begging is a serious problem in many communities is not supported by research or statistics. Hanovers research indicates that between five and ten people beg within the CBD on any given day. Magistrates Court statistics disclose that only 306 begging charges were heard between 1 July 2024 and 30 June 2000. None of the submissions made to the Committee by local councils contended that begging is a serious problem in their communities. Hanovers research indicates that aggressive begging techniques are rarely, if ever, used. Notwithstanding the above, even if the incidence of begging is high, this does not sustain an argument for the criminalisation of begging conduct. Socio-economic responses that address underlying causes of begging are far more appropriate than legal or punitive responses that may exacerbate them. Local councils are not equipped to deal with begging The signatories agree that local councils are not equipped to deal with begging. Begging is a socio-economic issue that requires a holistic socio-economic response. It is clearly inappropriate to divest responsibility for the formulation or implementation of such a response to local councils. However, the decriminalisation of begging at a state level need not be associated with the divestiture of responsibility for dealing with begging to local councils. The state government can, and should, work in conjunction with local councils, police and homelessness agencies to develop and implement solutions aimed at responding effectively to begging and addressing its underlying causes. There is a significant correlation between begging and crime It appears from the Final Report that the Committee was significantly influenced by the uncorroborated evidence of its Chairman, the Hon Chris Strong MLC. The Chairman gave evidence to the effect that, in the United Kingdom, there is a significant correlation between begging and crime. He argued that the incarceration of beggars is likely to lead to a reduction in other crimes: cleaning these people off the streets has had quite a dramatic effect on all their other crime stats. The Chairman was over reliant on selected evidence from police based on experience of zero-tolerance initiatives. It is evident that highly visible policing in the streets will not only reduce begging, but also reduce levels of other crimes. However, the argument that there is a correlation between begging and crime is not supported by any research in Victoria. In fact, Hanovers research clearly demonstrates that begging is a last-resort activity which may be engaged in as a more acceptable means of satisfying basic subsistence needs than resorting to more serious criminal activity such as theft, drug dealing or prostitution. Neither the Police Association nor Victoria Police adduced any evidence demonstrating a connection between begging and crime. It is worth noting that the Committee could have requested supplementary analysis of this issue from existing police statistics. This was not undertaken. Notwithstanding the above, even if there is a link between persons who beg and persons who commit other crimes, a policy response that seeks to reduce criminal activity by using the criminal law to target marginalised or suspect groups in relation to conduct that is a manifestation of poverty and need is inappropriate. Just as it would be inappropriate to target young people or Aboriginal people both of whom arguably constitute suspect groups it is inappropriate to target people of disadvantaged socio-economic status. Relatively little research has been conducted into the issue of begging in Victoria The signatories disagree that the research conducted into the issue of begging in Victoria is inadequate to identify underlying causes or to develop effective socio-economic responses. Hanovers extensive research was conducted over the period of September 2000 to February 2001. Data was collected by way of collaboration between Melbourne City Council, Victoria Police and Hanover Welfare Services. Hanovers conclusion that there is a complex relationship between poverty, homelessness, begging, addictions, and psychiatric and physical disability is supported by the 1998 study conducted by Driscoll and Wood on behalf of the RMIT School of Social Science and Social Work for the City of Melbourne. The conclusions of both Hanover and Driscoll and Wood are corroborated by the 1992 Victorian Law Reform Commission Inquiry into the Summary Offences Act 1966 and Vagrancy Act 1966 and by more recent studies conducted in England and the United States. All of the research demonstrates that begging is most often a manifestation of chronic poverty, disadvantage and need that should be conceived of, and treated, as a social and economic issue. Responses to begging should address underlying causes of poverty rather than criminalise poor people. E. Arguments in Support of Decriminalising Begging The signatories advance the following arguments in support of repealing section 6(1)(d) of the Vagrancy Act 1966 (Vic) and developing targeted, appropriate socio-economic responses to begging. 1. Begging is a socio-economic issue requiring a welfare response Having regard to the nature, extent and causes of begging, it is clear that begging is a socio-economic issue requiring a socio-economic response. The criminal law is not equipped, appropriate or necessary to deliver this response. 2. Criminalisation exacerbates underlying causes of begging Criminalisation fails to address, and is likely to exacerbate, underlying causes of begging. For example, the imposition of a fine for begging may occasion severe financial, social and psychological hardship. As Ted Salerno of Ozanam House Support Services reports: Its common for homeless people to accumulate fines, but faced with the more urgent demands of finding food, support and a roof, most dont see them as a priority. However, the resulting debt can trigger a downward spiral. Their substance abuse usually escalates, it raises anxiety and can be quite destabilising. Other sentencing options also tend to fail to address underlying causes. Incarceration may perpetuate conditions underlying begging behaviours such as social isolation, frustration and a sense of disempowerment and disenfranchisement. Community based orders impose numerous onerous conditions with which homeless people may be unable to comply. These conditions include regular reporting to a community corrections centre or officer and notifying any change of address within two business days. Breach of the conditions of a community based order is an offence punishable by imprisonment. Criminalisation is a breach of fundamental human rights Domestic laws which criminalise begging breach fundamental human rights recognised by customary international law and international human rights instruments, including the Universal Declaration of Human Rights, the International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights. Anti-begging laws infringe the right to freedom of expression and political communication in that begging may be an expression of the way in which society treats its poor and disenfranchised. Begging may constitute both conduct and speech that is fundamental to social welfare and civic responsibility. It may be a statement of financial plight, alienation, homelessness and the effects of an inadequate social security safety net. Anti-begging laws infringe the right to life, liberty and security of person and the right to an adequate standard of living in that such laws may deny economic rights necessary to survival. As discussed above, begging is a necessary form of income supplementation for many homeless people, connected with such subsistence needs as adequate food, clothing and shelter. Anti-begging laws infringe the right to equality before the law and the norm of non-discrimination in that such laws fail to account for the disadvantaged position of very poor people and the need of such people to gather alms. Criminalisation may be inconsistent with the Constitution and anti-discrimination legislation Anti-begging provisions in the United States and Canada have been struck down on the basis of constitutional invalidity and incompatibility with international human rights law. The criminalisation of begging may be susceptible to similar challenge in Victoria. Section 6(1)(d) of the Vagrancy Act 1966 (Vic) arguably amounts to an infraction of the implied freedom of political communication recognised under the Constitution. Section 6(1)(d) may also be invalid under section 109 of the Constitution in that it is inconsistent with relevant provisions of the Disability Discrimination Act 1992 (Cth). Many persons who beg suffer from some form of physical or psychiatric impairment and are subject to significantly less favourable treatment under anti-begging laws than persons who do not need to beg to satisfy basic subsistence needs. Criminalisation is inconsistent with developments in overseas jurisdictions The trend in many states of the United States and many provinces in Canada is towards the decriminalisation of begging or the proscription of aggressive begging only. Scotland has also decriminalised begging and has not reported any increase in the incidence or nature of begging since decriminalisation. Criminalisation is inconsistent with the Bracks Labor Governments stated public policy platform In his Ministerial Statement, the Attorney-General, Rob Hulls, stated that: Justice is about openness, transparency and accountability. It is about protecting the rights of all citizens and ensuring that people are treated fairly. It is about ensuring equality of access before the law, regardless of financial resources Those who must beg are subject to discriminatory treatment by section 6(1)(d), as it is only they who must beg for their subsistence. This unfair and unjust treatment is exacerbated when poor people are targeted for the selective enforcement or sustained application of anti-begging laws. The signatories urge the Bracks Labor Government to add to its commendable law reform record and to honour its commitment to treat people fairly and equally by repealing section 6(1)(d). The Crimes Act 1958 (Vic) adequately proscribes undesirable conduct The signatories acknowledge that begging may, in some instances, be accompanied by aggressive or undesirable conduct. This conduct is, however, already adequately regulated by the common law and by Division 1 of the Crimes Act 1958 (Vic) which renders unlawful conduct including battery, assault and other crimes against the person. It is not necessary to criminalise begging in order to continue to proscribe aggressive or undesirable conduct associated with the act of begging. Enforcement may result in an increase in other illegal activity As discussed above, begging is most often a last resort activity engaged in for the purpose of meeting basic subsistence needs. Unless these needs are met, the enforcement of section 6(1)(d) may encourage people to engage in other more lucrative illegal income supplementation activities such as shop lifting, drug dealing or prostitution. Criminalisation is costly The criminalisation of begging is costly for the individuals engaged in begging behaviours, the police, the Courts and the broader community. For individuals, criminalisation fails to address, and may perpetuate, conditions which underlie begging such as social isolation, frustration, stigmatisation and disenfranchisement. For police, criminalisation requires the expenditure of substantial time and resources. There is no evidence that charging and prosecuting persons for begging reduces rates of recidivism. As discussed above, enforcement may also result in an increase in other illegal income supplementation activity. For the Courts, criminalisation also ties up time and resources. The Department of Justice and Courts (such as the Melbourne Magistrates Court) are to be congratulated for developing and implementing effective programs aimed at meeting the needs of persons who are homeless or who have other special circumstances. However, it would be far more appropriate and cost effective to deal with begging behaviours and underlying causes at a street level, through the involvement of homelessness agencies and outreach teams, than to deal with those issues when they reach Court. For the general public, criminalisation results in a more stratified, less cohesive and less safe community. The links between poverty and crime are well documented. Further, as the High Court recognised in Waters v Public Transport Corporation: A measure of the civilisation of a society is the extent to which it provides for the needs of the disabled (and of other minorities) and protects them from adverse and unjust discrimination which offends their human dignity. The signatories to this letter urge the Bracks Labor Government to repeal section 6(1)(d) of the Vagrancy Act 1966 (Vic) and, in conjunction with welfare agencies, local councils and police, to develop and implement street level programs aimed at responding more effectively to begging. We look forward to hearing from you. Yours sincerely Philip Lynch For and on behalf of: Homeless Persons Legal Clinic Council to Homeless Persons Hanover Welfare Services West Heidelberg Legal Service Signatories at Attachment A Attachment A This letter is endorsed and adopted by the following organisations: Anglicare Australian Federation of Homelessness Organisations Brimbank Community Legal Centre Coburg Brunswick Community Legal and Financial Counselling Centre Council to Homeless Persons Darebin Community Legal Centre Disability Discrimination Legal Service Eastern Access Community Health Federation of Community Legal Centres Fitzroy Legal Service Hanover Welfare Services Law Institute of Victoria Melbourne Citymission Melbourne Homelessness Network Murray Mallee Community Legal Service North Melbourne Legal Service Public Interest Law Clearing House Salvation Army Adult Services Society of St Vincent de Paul Community and Support Services Support and Accommodation Rights Service The Big Issue Urban Seed Victorian Aboriginal Legal Service Co-operative Victorian Council for Civil Liberties (Liberty Victoria) Victorian Council for Social Services Werribee Legal Service West Heidelberg Legal Service Western Suburbs Legal Service The letter is endorsed and adopted by the following individuals: Andrea Lott, Manager, Melbourne Citymission Western Dr Annemarie Devereux, Senior Solicitor, Public Interest Advocacy Centre Ashley Bleeker, Barrister and Solicitor of the Supreme Court of Victoria Bill Manallack, Managing Director, The Big Issue Burnie Durkin, Coordinator, Gamblers Help Eastern, Eastern Access Community Health Cassandra Goldie, Principal Solicitor, Darwin Community Legal Service Cath Smith, Chief Executive Officer, Victorian Council of Social Services Chris Maxwell QC, President, Liberty Victoria Denis Nelthorpe, Public Interest Lawyer David Wright-Howie, Policy Officer, Council to Homeless Persons Dianne Otto, Associate Professor, Faculty of Law, University of Melbourne Emma Hunt, Co-Executive Director, Public Interest Law Clearing House Felicity Hampel SC, Commissioner, Victorian Law Reform Commission Gary Sullivan, Principal Solicitor, West Heidelberg Legal Service Greg Connellan, Barrister and Committee Member, Liberty Victoria Ian Horrocks, Chief Executive Officer, Federation of Community Legal Centres Jacqueline Cole, Barrister and Solicitor of the Supreme Court of Victoria John Manetta, Barrister and Committee Member, Liberty Victoria Julian Burnside QC Kate Colvin, Policy Officer, Victorian Council of Social Services Livia Carusi, Coordinator and Advocate, Support and Accommodation Rights Service Liz Curran, Lecturer in Law and Legal Studies, La Trobe University Natalie Bugalski, Secondee Solicitor, Public Interest Law Clearing House Natasha Leigh, Secondee Solicitor, Public Interest Law Clearing House Netty Horton, Chief Executive Director, Council to Homeless Persons Paul Ronalds, Executive Director, Urban Seed Sam Biondo, Fitzroy Legal Service Samantha Burchell, Co-Executive Director, Public Interest Law Clearing House Sue Coleman, Advocate, Support and Accommodation Rights Service The Reverend Bevil Lunson, Lazarus Centre, Anglicare The Reverend Ray Cleary, Director, Anglicare The Reverend Tim Costello, Collins Street Baptist Church Tony McCosker, Community Director, Society of St Vincent de Paul  Michael Horn and Michelle Cooke, A Question of Begging: A Study of the Extent and Nature of Begging in the City of Melbourne (Hanover Welfare Services, Melbourne, June 2001).  K Driscoll and L Wood, A Public Life: Disadvantage and Homelessness in the Capital City (Royal Melbourne Institute of Technology School of Social Science and Social Work, Melbourne, 1998).  See generally, H Dean (ed), Begging Questions: Street Level Economic Activity and Social Policy Failure (Policy Press, Bristol, 1999); P A Kemp, The Characteristics of Single Homeless People in England in R Burrows, N Pleace and D Quilgars (eds), Homelessness and Social Policy (Routledge, London, 1997); J Hermer, Policing Compassion: The Governance of Begging in Public Space (Oxford University Press, Oxford, 2002); D B Taylor, Begging for Change: A Social Ecological Study of Aggressive Panhandling and Social Control in Los Angeles in Abstracts International (Los Angeles, 1999).  Ted Salerno quoted in Meg Mundell, Drunk, Begging, No Ticket: $100,000, The Age, 19 January 2002, B4.  Poverty and the International Covenant on Economic, Social and Cultural Rights, UN ESCOR, 4th Comm, 25th sess, Agenda Item 5, UN Doc E/C.12/2001/10 (2001); A John Bird, Law and Disorder, The Big Issue, 14-29 October 2002, 10.  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