Care or Custody? Mentally Disordered

This book is a comprehensive account of how mentally disordered offenders are treated when they come into contact with the criminal justice system. It traces the historical developments and analyzes the existing mental health and criminal provisions. It includes a theoretical overview of the law and an analysis of some of the theoretical issues surrounding the treatment and detention of mentally disordered offenders.

Judith Laing is a Lecturer in Law at The Liverpool Law School, Liverpool University

List of Figures

xiv

List of Tables

xv

Abbreviations

xvi

List of Cases

xviii

List of Statutes

xix

PART I

The Basic Principles

3

(53)

Introduction

3

(1)

Who are Mentally Disordered Offenders?

4

(11)

The Nature and Meaning of Mental Disorder

4

(1)

The Statutory Definition of Mental Disorder

4

(10)

Summary

14

(1)

What Role does Psychiatry Play in the Treatment of Mental Disorder?

15

(10)

`Legalism' or `Professional Discretion'?

15

(1)

`Orthodox Psychiatry'

16

(1)

Anti-Psychiatry: The Main Accusations

17

(4)

The Contemporary View

21

(2)

The Battle in Practice

23

(2)

How Should Mentally Disordered Offenders be Treated?

25

(20)

Mad or Bad?

25

(2)

The Liberal Approach

27

(2)

The Treatment Approach

29

(9)

Penal Sanctions or Therapeutic Intervention?

38

(7)

What is Diversion?

45

(10)

The Meaning of Diversion

45

(2)

Diversion within the Context of the Criminal Justice System

47

(8)

Conclusion

55

(1)

The Historical Context

56

(26)

Introduction

56

(1)

The Origins of Contemporary Policies and Philosophies

57

(8)

The Growth of Psychiatry and Community Mental Health Services

57

(1)

The Royal Commission on the Law Relating to Mental Illness and Mental Deficiency

58

(2)

The Mental Health Act 1959

60

(1)

Mentally Disordered Offenders and the Mental Health Act 1959 in Practice

61

(4)

The 1970s Reform Movement

65

(7)

The Report of the Committee on Mentally Abnormal Offenders

65

(4)

General Reaction to the Butler Report

69

(1)

Government Reaction: The 1976 Consultative Document

70

(1)

MIND: Further Calls for Reform

71

(1)

Government Action

72

(3)

The 1978 White Paper

72

(1)

The 1979 Parliamentary Debate

73

(1)

The 1981 White Paper

74

(1)

The Mental Health (Amendment) Act 1982

75

(3)

The Mental Health Act 1983

78

(1)

Reaction to the New Act

79

(1)

Conclusion

79

(3)

Diversion under the Mental Health Act 1983 and Related Provisions

82

(76)

Introduction

82

(1)

Arrest

83

(15)

Police Powers

83

(15)

Prosecution

98

(9)

The Police

98

(3)

The Crown Prosecution Service

101

(6)

Remand

107

(15)

The Right to Bail

107

(4)

Remands to Hospital for Report or Treatment

111

(6)

The Transfer of Unsentenced Prisoners

117

(3)

Additional Criminal Law Provisions

120

(2)

Sentencing

122

(32)

Obtaining Medical Reports

122

(2)

The Therapeutic Disposals

124

(30)

Conclusion

154

(4)

The Development of Diversion Policy for Mentally Disordered Offenders

158

(55)

Introduction

158

(1)

Setting the Stage for Reform: The Failures of the 1980s

158

(1)

The Solution: The Diversion of Mentally Disordered Offenders

159

(4)

`The Sentence of the Court'

159

(1)

Home Office Circular 66/90

160

(1)

Experiences in Other Jurisdictions

161

(2)

The Introduction of Diversion Schemes

163

(3)

The Hertfordshire Panel Assessment Scheme

163

(1)

The Bow Street and Marlborough Street Magistrates' Courts' Psychiatrist Assessment Scheme

164

(2)

National Recognition and Implementation of Diversion Policy

166

(16)

Official Recognition

166

(6)

Increasing Awareness and Implementing Diversion

172

(1)

National Diversion Schemes

173

(9)

A Collaborative Strategic Approach

182

(1)

The Impact of Diversion Policy

183

(3)

The Difficulties with Diversion

186

(27)

Practical Limitations

186

(2)

Resource Difficulties

188

(10)

Inter-Agency Collaboration: `Cold War or Entente Cordiale?'

198

(3)

Improving Prison Mental Health Care

201

(2)

Addressing the Theoretical Concerns

203

(3)

Criminal Justice Policy: `Tough on Crime and the Causes of Crime'

206

(1)

Conclusion

207

(6)

PART II

Diversion in West Yorkshire: A Process Study

213

(61)

Introduction

213

(1)

Research Methodology

213

(1)

Identifying the Research Site

214

(1)

The Data Collection Process

214

(1)

The Quantitative Study

214

(1)

Method

214

(1)

Objectives

215

(1)

The Qualitative Study

215

(3)

Method

215

(2)

Objectives

217

(1)

Stimulus for Reform: The Conference on Mentally Disordered Offenders

218

(1)

The Development of Local Diversion Initiatives

219

(17)

Leeds Magistrates' Court: A Pilot Duty Psychiatrist Scheme

219

(5)

Bradford, Keighley, and Bingley Magistrates' Courts: Court Liaison and Assessment Service

224

(4)

Wakefield and Pontefract Magistrates' Courts: Diversion from Custody Scheme

228

(2)

Huddersfield Magistrates' Court: Court Diversion Scheme

230

(4)

Dewsbury and Batley Magistrates' Court: Court Diversion Scheme

234

(1)

Calderdale Magistrates' Court: Diversion of Mentally Disordered Offenders Scheme

235

(1)

Region-wide Developments

236

(11)

The West Yorkshire Probation Service

236

(3)

The Yorkshire Regional Health Authority

239

(2)

The Area Criminal Justice Consultative Committee

241

(1)

The Local Prisons

242

(5)

A Process Evaluation: Overview

247

(25)

Practical Problems

247

(4)

Diversion to Where?

251

(5)

Discretion and Accountability

256

(4)

Inter-Agency Co-operation

260

(12)

Conclusion

272

(2)

Diversion in West Yorkshire: An Impact Study

274

(37)

Introduction

274

(1)

PART One: The Quantitative Analysis

275

(25)

Distribution of Demographic Characteristics

275

(1)

The Client Profile

276

(2)

Ethnicity

278

(2)

Previous Psychiatric History

280

(1)

Previous Offending

281

(2)

Recidivism

283

(2)

Drug and Alcohol Abuse

285

(1)

Homelessness

286

(1)

The Recorded Offence Categories

286

(3)

The Outcomes

289

(7)

The Rates of Discontinuance

296

(1)

Discussion of the Quantitative Data

297

(3)

PART Two: The Qualitative Analysis

300

(8)

Introduction

300

(1)

The Interview Sample

300

(1)

The Interview Results

301

(6)

Discussion of the Qualitative Data

307

(1)

Conclusion

308

(3)

Conclusion

311

(15)

Concluding Remarks

311

(6)

Future Directions for Research

317

(2)

The Future of Diversion Policy

319

(7)

Appendix A. Diversion under the Existing Provisions

326

(1)

Appendix B. Police Station Assessment (PSA Model)

327

(1)

Appendix C. Court Psychiatrist Assessment (NAC/PAC Models)

328

(1)

Appendix D. Court Panel Assessment (MAAP Model)

329

(1)

Appendix E. Covering Letter and Interview Schedule for Research Study

330

(2)

Bibliography

332

(27)

Index

359

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Care or Custody? Mentally Disordered Offenders in the Criminal Justice System

Summary

Author Biography

Table of Contents

Supplemental Materials