Chapter 3 - Disciplinary investigations
3.1
Responsibility for investigating suspected
contraventions of the DFDA rests with the three Service police forces, under
the overall command of the Provosts-Marshal. As the first step in any
disciplinary process, investigations are vital to the integrity of the entire
system. Inadequately conducted investigations have the potential to profoundly
corrupt the operation of subsequent disciplinary mechanisms, thereby inflicting
undue hardship on Service men and women.
3.2
It is imperative that disciplinary investigations are
rigorous, impartial, and properly executed, with due consideration given to
balancing the operational requirements of the ADF against the rights and
interests of Service members.
3.3
This chapter has three sections. Section one sets out
the framework within which disciplinary investigations are conducted. Section
two highlights problems with disciplinary investigations. It briefly outlines
shortcomings identified in previous inquiries and reviews the evidence before
this inquiry. The third section of this chapter examines the various solutions
offered, and outlines the committee's findings and recommendations.
Reporting and investigation of alleged offences
3.4
DI(G) ADMIN 45-2 outlines the primary requirements and
common procedures for the reporting, recording and investigation of alleged
offences within the Australian Defence Organisation. It describes the roles of
commanding officers, managers, and Defence Investigative Authorities (DIA).
3.5
Paragraph 8 of DI(G) ADMIN 45-2 identifies various
types of 'notifiable incidents' that must be reported by ADO
personnel to a DIA (through the chain of command if necessary). In addition to
the specific types of incidents, there are several other factors that personnel
should consider when determining whether an incident is notifiable, including
whether the incident is 'sensitive, serious, or urgent'. This is determined by
considering:
- the likelihood that the incident will bring the
ADO into disrepute;
- the likelihood that an incident will attract
media or parliamentary attention; and
- the likelihood that an incident may adversely
affect the efficiency of the ADO.[105]
3.6
Where an incident has occurred, the CO or manager
should determine whether it is 'notifiable' as soon as possible. All 'notifiable'
matters must be reported to a DIA. Some incidents must and/or should be
referred to civilian authorities for investigation. DI(G) PERS 45-2 provides
guidance for referring matters to civilian police authorities. It states:
Members of the ADF are subject to the Defence Force Discipline
Act and also to the ordinary criminal law of the Commonwealth, States and
Territories. The disciplinary provisions of the DFDA serve the purpose of
maintaining and enforcing Service discipline. This is different to the purpose
served by the criminal law, and justifies a separate existence. However, the
DFDA incorporates a number of offences which have recognisable counterparts in
the criminal law (for example, assault and theft). This situation gives rise to
the question of whether offences under the DFDA which also reveal ordinary
criminal offences should be dealt with under the DFDA or by the civil
authorities.[106]
3.7
Some offences must
be referred to civilian police authorities.[107]
In the case of other offences, jurisdiction under the DFDA may only be
exercised in Australia
during peacetime where proceedings under the DFDA can reasonably be regarded as
substantially serving the purpose of maintaining Service discipline. In cases
where jurisdiction is unclear, the advice of the relevant base, region or
command legal officer must be sought.
3.8
DIAs are the Service police organisations that report
to the Provosts-Marshal of the Navy, Army and Air Force, the investigative arm
within Inspector-General Division, the Fraud Investigation and Recovery
Directorate, and the Defence Security Authority.[108] DIAs are primarily
responsible for:
- making decisions about whether or not to
investigate notifiable incidents;
- preventing, detecting and investigating DFDA
offences;
- referring relevant civilian offences to civilian
criminal authorities for investigation where required;
-
liaising with civilian police authorities and
Defence Legal Officers (DLO) about matters referred to civilian authorities;
- determining whether to investigate civilian
criminal offences where civilian agencies decline to act;
- conducting investigations; and
- providing briefs of evidence to support
prosecutions.[109]
3.9
This chapter examines the disciplinary investigation
operations of the DIAs, with particular attention on the
Service police.
Shortcomings in the investigation of service offences
Previous inquiries
3.10
Previous inquiries conducted by various entities have
emphasised the importance of an effectively functioning disciplinary
investigations process. Four inquiries in particular have made pertinent
observations and recommendations about disciplinary investigations conducted by
DIAs:
-
the 1998 Commonwealth Ombudsman's Own Motion Investigation into How the ADF
Responds to Allegations of Serious Incidents and Offences;
-
the 1999 Joint Standing Committee
on Foreign Affairs, Defence and Trade report, Military Justice Procedures in the Australian Defence Force;
-
the 2001 Joint Standing Committee
on Foreign Affairs Defence and Trade report, Rough Justice? An Investigation into Allegations of Brutality in the
Army's Parachute Battalion; and
-
the 2001 Report
of an Inquiry into Military Justice in the Australian Defence Force,
conducted by Mr J.C.S. Burchett QC.
The 1998 Commonwealth Ombudsman's 'Own
Motion Investigation into How the ADF Responds to Allegations of Serious
Incidents and Offences'
3.11
On 14 July
1995, General Baker
(then CDF) asked the Ombudsman to conduct an 'own motion' investigation into
matters surrounding allegations arising from an incident at a Defence base.[110] The Ombudsman's report, released in
January 1998, examined the way the ADF responded to serious incidents. It
detailed the mechanisms for both disciplinary and administrative
investigations, highlighting many systemic flaws, and made a number of
recommendations concerning how the military justice system could be more
effectively structured.
3.12
The Ombudsman's observations revealed many shortcomings
in both disciplinary and administrative investigations. In relation to
disciplinary investigations, the Ombudsman noted:
-
lack of experience and inappropriate training of
those undertaking the investigation;[111]
-
inadequate questioning techniques, recording of
interviews and statement taking;[112]
-
lack of guidance about evidence gathering and
analysis;[113] and
-
absence of a structured process for supervising
or monitoring the progress of investigations.[114]
3.13
The Ombudsman best sums up the nature of the evidence
before her at paragraph 5.53 of her Report:
I consider that there is evidence of a range of problems experienced
in the conduct of investigations in cases examined by my office. These have
included:
- Inadequate planning of investigations
- Failure to interview all relevant
witnesses and assumptions made about the credibility of witnesses interviewed
- Pursuit of irrelevant issues in witness
interviews, use of inappropriate questioning techniques and failure to put contradictory
evidence to witnesses for a response
- Failure to record evidence properly and,
possibly, preparation of witnesses and unauthorised questioning of witnesses
- Failure to analyse evidence objectively,
and to weigh evidence appropriately, thereby leading to flaws in the way
conclusions were drawn and findings made, and
- Inadequate record keeping.[115]
The 1999 Joint Standing Committee
on Foreign Affairs, Defence and Trade Report 'Military Justice Procedures in
the Australian Defence Force'
3.14
The JSCFADT instigated the Military Justice report in 1999 following significant media and
public interest in a spate of internal ADF inquiries, and several High Court
challenges to the validity of aspects of the DFDA. Many of these inquiries
concerned the deaths of Service personnel, or injustices to members of the ADF
in their dealings with the military disciplinary system. Criticism was levelled
at the execution of internal inquiries and the overall operation of the
administrative and disciplinary systems. Questions were also raised concerning
natural justice and human rights protections.[116]
3.15
The JSCFADT's examination of the discipline system
highlighted several issues including:
-
failure to accord procedural fairness to Service
personnel, especially in relation to the conduct of secret investigations under
the auspices of the DFDA;[117] and
-
inadequate education and training in DFDA
operation, for both legally and non-legally qualified or educated users.[118]
The 2001 Joint Standing Committee
on Foreign Affairs Defence and Trade report 'Rough Justice? An Investigation
into Allegations of Brutality in the Army's Parachute Battalion'
3.16
The 2001 report Rough
Justice? An Investigation into Allegations of Brutality
in the Army's Parachute Battalion followed the 1999 JSCFADT Military Justice report, and examined
allegations of brutality in 3rd Battalion, Royal Australian Regiment
(3RAR) committed between 1996 and 1999.
3.17
Although relevant to its terms of reference, the
JSCFADT was not made aware of the 3RAR allegations or the ADF investigations
during the process of the 1999 Military
Justice inquiry. The JSCFADT was concerned that information may have been
withheld that could have materially affected the recommendations made in the
1999 report.[119]
3.18
The JSCFADT's findings in the Rough Justice report about the inadequacies of the Army's military
police and the military justice system are of particular interest to this
committee's current inquiry. With reference to the Army's military police
force, the JSCFADT stated:
It became readily apparent throughout the committee inquiry that
there were serious issues regarding the competency of Army Military Police to
carry out their policing and investigatory functions.[120]
3.19
The JSCFADT identified concerns about secrecy in the
investigation process,[121] poor
management practices,[122] inadequate
resourcing,[123] and excessively long
investigation and offence clearance times.[124]
The JSCFADT made several recommendations to improve investigatory procedures,
including:
-
the establishment of a pool of military
investigators for the conduct of military investigations;[125]
-
increased exposure of investigators to civilian
investigatory bodies as part of their training;[126] and
-
an increased role for reserve military police.[127]
The 2001 'Report of an Inquiry into
Military Justice in the Australian Defence Force' conducted by Mr
J.C.S. Burchett
QC
3.20
In December 2000, Admiral Barrie,
then CDF, appointed Mr J.C.S.
Burchett QC to examine the military justice
system. Burchett undertook his
examination at roughly the same time as the JSCFADT Rough Justice Inquiry. The Report
of an Inquiry into Military Justice in the Australian Defence Force (the 'Burchett Report') was completed in July 2001.
3.21
Burchett was empowered to examine broadly the
administration of military justice and investigate aspects of the 3RAR
allegations. The Burchett Report
identified several issues relevant to the terms of the current inquiry. The
report discussed a number of problematic aspects within the discipline system,
and stated 'many of the problems the subject of submissions to the Inquiry had
a strong link to a flawed investigation.'[128]
The report identified a number of what it termed 'investigative shortcomings',[129] including:
-
delayed investigations;[130]
-
unreasonable exertion of CO influence during
investigative processes;[131] and
-
procedural fairness and competence issues in
investigation conduct.[132]
3.22
An analysis of the various inquiries conducted into the
disciplinary system over the past decade reveals many recurrent flaws. Every
major review has, to varying degrees, highlighted issues such as:
-
delay in the conduct of disciplinary
investigations;
-
inadequate evidence gathering and analysis;
-
lack of process monitoring or quality control;
-
lack of transparency and contravention of
principles of natural justice; and
-
inadequate Military police training and guidance
in basic military justice procedures, investigation conduct, and application of
relevant policies and instructions.
3.23
The committee recognises that the ADF has endeavoured
to improve the effectiveness of the disciplinary system in response to the
various reports released over the past decade. Despite these efforts, however,
repeated inquiries and reports indicate that the same problems continue to
arise. Despite almost constant scrutiny, ADF personnel continue to suffer under
a system that is seemingly incapable of effectively addressing its own
weaknesses.
Difficulties highlighted in this inquiry
3.24
Evidence before the present inquiry reveals that many
of the problems outlined in previous reports have continued. The committee has received
a number of submissions and heard testimony that either provided anecdotal
evidence of flaws in military police investigations, or gave broader policy and
procedural insight into military police operations. The evidence gathered
echoed many of the themes from past reports.
Anecdotal evidence
3.25
Anecdotal evidence described delayed investigations;
the failure of investigators to pursue exculpatory evidence; investigator's
failure to disclose relevant material to the accused; investigator's and
commander's failure to advise the accused of allegations at the appropriate
time; and investigator's and prosecutor's failure to obtain and/or act on
specialist advice. This often led to prosecutor's failure to adequately weigh
and assess witness evidence, ultimately leading to deeply flawed prosecutions.
3.26
One circumstance in particular illustrates all that can
possibly go wrong in a disciplinary investigation, and the negative
consequences that can ensue. This circumstance is described below.
The East Timor
SAS Investigation
3.27
The committee was asked in its Terms of Reference to
consider the process and handling of the ADF's investigation into allegations
of misconduct by members of the Special Air Service (SAS) in East
Timor.[133] In considering
this term of reference, the committee paid particular attention to the case of
the SAS soldier charged with mistreating the corpses of two militiamen. The
treatment of the SAS soldier reveals most acutely the inadequacies of the
current investigation structure, and the consequences that can flow from
investigative failures.[134]
3.28
From the outset, the ADF gave repeated public
assurances that the Timor investigations would be
conducted to the highest standard. In the media briefing at which the ADF
announced its intention to pursue charges against the SAS soldier, Lieutenant
General Leahy briefed journalists on the
conduct and outcome of the investigations, stating:
The end result is a rigorous and thorough investigation, and I
would like to personally commend all those involved in the investigation for
their commitment, their professionalism and their plan [sic] hard work.[135]
3.29
With specific reference to the incident giving rise to
the charges against the SAS Soldier, Colonel Fogerty,
Director of Personnel Operations, Army, stated 'The investigation into that
matter has been particularly thorough'[136]
and Lieutenant General Leahy
gave assurances that 'a very thorough investigation has been conducted.'[137]
3.30
The committee has received evidence revealing that the
matter was grossly mishandled. Indeed, General Cosgrove
and Lieutenant General Leahy
felt obliged to issue the SAS soldier with a full and unreserved apology,
following the findings of an independent inquiry into his treatment.[138]
3.31
Perhaps the duration of the investigation is the most
patently obvious shortcoming in the inquiry into the SAS soldier's conduct. The
circumstances giving rise to the original allegations of mistreatment occurred
in October of 1999. In November of 1999 (then) Major General Cosgrove
commissioned a murder investigation into the deaths of the militia men. This
investigation was apparently conducted expeditiously and concluded there was no
impropriety surrounding the deaths of the two militia men or the conduct of any
ADF member.
3.32
Some months later, another investigation began into the
deaths of the militia men. This investigation took over three years to
complete. Evidence to the committee suggests that this investigation was
unnecessarily protracted, and caused unnecessary hardship for the SAS soldier.
In his submission to this inquiry, General Cosgrove
acknowledged 'the investigation into these two allegations clearly took too
long'.[139] The IGADF-Commissioned Report into the matter was also highly critical
of the delay in the investigation:
I am of the opinion that the investigation was unnecessarily
protracted, with the result that its overall cost could not be justified and it
served to exacerbate the pressure upon XXXX in circumstances which ought to
have been avoided.[140]
3.33
Moreover, during the three-year investigation, the SAS
soldier was not directly questioned about the allegations made against him. In
his evidence to the committee, the SAS soldier stated that he only became aware
of the allegations through colleagues and a series of newspaper reports. A
committee member asked the soldier whether the illegal killing allegations were
ever put to him. He replied that they were not. He only found out about them
when he was charged and given a copy of the Brief of Evidence against him.[141]
3.34
In his submission to this inquiry, General
Cosgrove informed the committee that, until
recently, it was standard Army Military police practice for persons not to be
informed that they were under investigation until the last possible moment. He
acknowledged that affected members sometimes became aware of the investigation
informally through third parties.[142]
This concession reflected the experiences of several submitters to this
inquiry.[143]
3.35
Despite the duration of the investigation (3 years and
two months from incident to interview), the media attention, and the
investigator's indiscrete conduct when interviewing potential witnesses, the
SAS soldier told the committee that, he was never informed that he was under
investigation.[144]
3.36
When various media organisations began to approach the
soldier, his family and his legal representatives, he was only provided with
advice and assistance about handling the media attention after repeated
requests, and even then the advice was neither timely nor effective. He told
the committee that initially his requests for assistance were not acknowledged
or responded to. No steps were taken to protect his identity or his family's
safety until he repeatedly requested a security assessment which was eventually
conducted. He was expected to continue to work as normal, despite the enormous
stress he was placed under.[145]
3.37
The committee finds it wholly unacceptable that the
soldier was not questioned during the investigation, was not told that he was
under investigation (despite its obvious conduct and the concomitant media
attention), nor provided with adequate support or assistance in the face of the
media glare. This delay, failure to inform, and failure to assist is wholly
unsatisfactory. It placed the soldier and his family under extreme pressure,
and calls into question claims that the system provides impartial, rigorous and
fair outcomes.
3.38
It should be emphasised that the investigation process
leading to the corpse-mistreatment charges was part of a major investigation
into 19 different allegations of 'wrong doing' in East Timor, ranging from
workplace harassment to illegal killing. The part of the investigation
specifically pertaining to the SAS soldier originally stemmed from the illegal
killing allegations (judged unfounded by an investigation launched by CDF in
November 1999). On Lieutenant General Leahy's
own admission the impetus for the new investigation arose from rumour and
innuendo, rather than any concrete allegation of wrongdoing.[146]
3.39
The investigation into the illegal killing
allegations—initiated on the basis of gossip—involved travel to four different
countries, interviews with 350 witnesses, and the exhumation of two bodies.[147] The evidence before the committee
suggests, however, that despite its duration and the amount of travel, time and
effort involved, the quality of the investigation was extremely poor. The SAS
soldier gave the committee his perspective:
The investigation by the service police was inadequate. The
material provided by the service police, which formed the basis of the
inculpatory witness statements was superficial... lacked particularity,
corroboration and concurrence and was not appraised against the statements of
the other 55 soldiers present...One of the senior investigators mentioned to
the head of the investigative team that some members of the team were too
inexperienced, but this was not acted upon. The length of the Service Police
investigation was inordinately long and very expensive.
In my case I have been utterly let down by an investigation that
has displayed such levels of incompetence that it has embroiled not only the
Chief of Army and the Chief of the Defence force, but also the Minister for
Defence and has been brought to the attention of the Prime Minister of
Australia on several occasions.[148]
3.40
The committee is aware that the soldier's assertions in
this regard are wholly substantiated by the IGADF—Commissioned
Report. The Report detailed a litany of deficiencies in the investigations
process, including poor interviewing, flawed evidence gathering and analysis,
and failure to adequately weigh or pursue exculpatory evidence. It found that
witnesses were essentially 'verballed'—the statements were conclusive rather
than descriptive, contained superficial content, irrelevant, prejudicial and emotive
material, and hearsay.[149] The Report
concluded:
My finding is that the investigators lacked the necessary
experience to conduct interviews of this type and that, although they
interviewed every person who was reasonably available to them, the product of
these interviews was not reflected by the effort and the attendant expense
involved.[150]
3.41
General Cosgrove's
initial submission to this inquiry acknowledged the poor quality of the MP
investigation as detailed in the IGADF-Commissioned
Report. He told the committee:
The inquiry also criticised the Service police investigation,
particularly its duration, the superficial content of the statements of
principal witnesses, and the inclusion of inadmissible, emotive material in
such statements.[151]
3.42
The committee shares the concerns of the SAS soldier,
when he states:
My case was investigated at the highest level using a triservice
investigative task force, yet, through inexperience, delay and indecision, it
ended up the fiasco that it is today.[152]
3.43
Unfortunately, the 'fiasco' was extraordinarily
expensive. Lieutenant General Leahy
indicated in a media release dated 16
April 2003 that the 'direct cost' of the investigation was in the
order of $130,000.[153] On 5 November 2003, the committee asked
for a breakdown of the 'total cost' of the investigation into the SAS soldier's
matter.[154] The question was taken on
notice, and the 'direct cost' figure of approximately $130,269 was given,
comprising:
Forensic Support
|
$ 7,000
|
Printing Costs
|
$ 513
|
Drawing Costs
|
$ 300
|
Travel and Accommodation
|
$ 122,456
|
Total[155]
|
$ 130,269
|
3.44
The committee was concerned that the answer provided by
the Department of Defence did not provide the 'total cost' as requested by the
committee. On 6 August 2004, the committee again requested that the total cost
of the investigation be provided, including travel and accommodation costs, the
man hours spent on the investigation, barristers fees and any travel or
disbursements incurred by external legal advice, exhumation costs, and any
costs relating to expert opinions sought.[156]
3.45
Following this explicit request for the total costs of
the investigation, the Department of Defence informed the committee that the IGADF-Commissioned Report conservatively
estimated the investigation to cost in excess of $500,000. This figure includes
the $130,000 'direct costs' figure, plus the approximate cost of the salaries
for the 18 personnel directly involved in this aspect of the Timor
investigations. It does not include the salaries of the senior staff officers in
Army Headquarters supervising or supporting the investigation on behalf of
Chief of Army, the Federal police investigators who assisted in the matter or
the reserve senior counsel who provided advice to the Army on this matter.[157] Half a million dollars would appear,
on the facts, to be a very conservative figure.
3.46
The initial investigation into the 6 October incident,
undertaken in November 1999, found no grounds for taking further action against
any soldier. To the contrary, the accounts before the committee suggest that
all soldiers under attack in Suai conducted themselves with integrity and
bravery of the highest order. Over half a million dollars was spent, however,
on another investigation. This investigation was based on gossip, 'secretly
conducted' and incompetently executed.
3.47
Following the release of the Media Statement containing
an unreserved apology to the SAS soldier, Lieutenant General Leahy
acknowledged during an Estimates hearing that the treatment of the soldier
raised serious questions about the quality of disciplinary investigations. Put
simply:
The investigation and some aspects of the service police
investigation were of concern.[158]
3.48
The committee concurs, and shares the ADF's concern
about the circumstances surrounding the treatment of the SAS soldier and the
military police's capacity to perform their investigatory function. Moreover,
it has grave concerns that the incompetence and lack of professionalism
demonstrated in this soldier's case is not limited to this single instance. The
question must inevitably arise—how many other ADF members are adversely
affected by inadequately conducted disciplinary investigations? How many ADF
members do not have the courage to speak out and just suffer in silence? The
SAS soldier's treatment raises fundamental questions about the military
police's capability to conduct the complex, serious and major investigations it
has the remit to conduct.
3.49
The committee questioned Lieutenant
General Leahy about the various shortcomings
evidenced in the SAS soldier's case. It was noted that the investigation was
initiated at the highest level, was particularly well-resourced, under
significant media scrutiny, yet its outcome was described in terms such as
‘superficial content of statements’, ‘inclusion of inadmissible material’ and
‘premature conclusions’, and led to an unreserved apology to the soldier for
the mistreatment he was subjected to. A committee member asked what confidence
the committee could have in the conduct of other minor matters, given that the
ADF's best ended so poorly.
3.50
Lieutenant General Leahy
responded by asserting that the system works. He stated that the personnel
involved did their best, and the solider was able to complain to the IGADF at
the end of the process. That complaint led to the identification of shortfalls,
which Army is now attempting to address through the initiation of a review of
the military police:
We are set up to handle certain things; this came as something
well beyond what we would normally expect to do. I think that our military
police, given the degree of training and the number of them that actually
exist, have done a solid job on the way through this. They admit and I admit
that they have made some errors. The acceptance of the fact that we need a
review, the fact that the review will be reporting in May this year, is
acknowledgment that we are seeking very clearly, using the justice system, to
improve. I am confident that towards the middle of this year I will see a very
positive way forward to make sure that this does not happen again.[159]
3.51
The system in this case clearly did not work, and the
committee considers the stated reason for systemic failure—that it was 'something
well beyond what we would normally expect to do'—is unacceptable.
3.52
Despite Lieutenant General Leahy's
assurances that 'the system works', the committee is simply not convinced that
this is the case. Furthermore, the capacity to lodge a complaint should not
excuse a flawed process. An unfair process is not cured of defect by mere
virtue of a complaints procedure.
Other anecdotal evidence
3.53
Other submissions to the inquiry have provided further
examples of shortcomings in the investigations process. Mr
Nigel Southam,
who served with the Royal Australian Corps of the Military Police for over 20
years, provided an account of inappropriate commanding officer involvement in
the investigation process, and the initiation of disciplinary action seemingly
in retaliation for Mr Southam's
lodgement of a redress of grievance about the conduct of the commanding
officer.[160]
3.54
Mr Geoff
Lewis detailed a secret investigation,
apparently initiated in December 2003, that caused considerable personal
hardship. Mr Lewis
has been a member of the Army reserve since 1967, and is also an Officer of
Cadets in the Australian Army Cadets. Similar to the SAS soldier, Mr
Lewis only became aware of the investigation
into his activities through rumours passed on from friends. He was not informed
that he was the subject of an investigation, and when he directly contacted the
Military police to ascertain the nature of the allegations against him, Mr
Lewis was stonewalled. Mr
Lewis was never questioned in relation to
the allegations made against him, but had inappropriate aspersions cast over
his character when the investigator repeatedly contacted his employer. In his
view, had he been given the opportunity to make representations about his case
to the investigator, the matter could have easily been cleared up.[161]
Systemic evidence
3.55
Anecdotal evidence to the committee has revealed poor
quality disciplinary investigations and instances where individuals have
endured significant hardship. Insight into the potential root causes for this
type of systemic breakdown was provided in submissions from individuals with
considerable experience in the various Service police forces. The committee was
also interested to receive the Ernst
& Young Review of Military Police Battalion
Investigation Capability (the Ernst & Young Report) which gave additional insight into the operation of the
Army's Special Investigations Branch (SIB).
Individual submissions
3.56
Lieutenant Commander Brian
Sankey, a member of the Navy for 27 years
with 18 years of experience in the Naval Police Coxswain, provided the
committee with an insight into the operation of the Royal Australian Navy's
police service. He acknowledged that, whilst military police work requires a
set of specialised skills for the collection, preservation and presentation of
evidence, the training, resourcing, and experience in investigation units is
wholly inadequate to support these activities. He noted that Naval
investigation units are 'suffering from a severe shortage of qualified and
experienced investigators,'[162] and
highlighted a number of problems within the Naval Police Coxswain including:
-
low priority given to the development and
maintenance of policing and investigative skills, compared with the priority
accorded to other Service obligations;
-
under-staffing in the face of increasing
workloads;
-
inability to maintain investigatory expertise
and proficiency due to the nature of 2-3 year postings (requiring different
skills sets);
-
inadequate preliminary and ongoing training and
career development.[163]
3.57
The committee took the opportunity to draw from Mr
Southam's military policing experience, in
addition to discussing his experiences outlined at para. 3.46, when he appeared
before the committee on 9 June 2004.
Mr Southam
was a member of the Royal Australian Corps of Military Police (RACMP) for over
20 years. His evidence echoed many of the concerns raised by Lieutenant
Commander Sankey.
3.58
Mr Southam
agreed that generally military police suffer from insufficient training, lack
of numbers and overall inadequate resources. He indicated that workloads are
increasing, the military police have lost, and continue to lose staff, and there
can be up to two year delays on investigations.[164] He also commented that it is
increasingly difficult to balance military policing functions with the other
requirements of service:
Quality investigations have occurred, but certainly there seems
to be too much else that MPs [Military Police] have to do—That is, be soldiers
and try and keep up with other issues that are not MP.[165]
3.59
Mr Southam
told the committee there were growing difficulties with attracting quality
personnel to a career with the military police, and that generally an MP career
was not considered to be prestigious:
I have worked in non-corps positions as well for over five years
in training establishments and I can say that, in all honesty, military police
are not held in great regard by other soldiers—not particularly for what they
have to do but I guess for the culture that exists.[166]
3.60
Both Lieutenant
Commander Sankey and Mr Southam
possess significant experience in the military police forces, and both have
identified several systemic issues that would indicate that the Service police
forces have significant failings—poorly resourced, trained, and motivated. The
themes raised by both these witnesses to the inquiry were reiterated in the Ernst & Young Report.
The
Ernst & Young 'Review of Military Police Battalion Investigation Capability'
3.61
During
the February 2004 Estimates hearings, Lieutenant General Leahy and General
Cosgrove indicated that, partly in response to the apparent shortcomings
evidenced by the SAS matter, an internal study had been commissioned into the
operation of the military police's investigatory function.[167] General Cosgrove indicated that this review could be
instructive for all three Services:
I am keenly interested
in the outcome of the internal Army sponsored review of military police. The
reason for this is that they are the largest policing part of the ADF and there
will quite possibly be—almost probably—be some very good insights for the other
services about smaller police groups.[168]
3.62
General Cosgrove's submission to this inquiry noted that the
study was being conducted by the consultancy firm Ernst & Young, and
concerned the 'quality' aspects of the Army's Military Police investigative
capability.[169] The Review of Military Police Battalion
Investigation Capability was completed in July 2004 and provided to the
committee in December 2004. In his covering letter enclosing and broadly
endorsing the Ernst & Young Report, Lieutenant General Leahy advised the committee:
The purpose of this
review was to analyse the current state of the military police capability and
recommend initiatives to move towards a better practice investigative
capability...[the report] provides a sound basis for future progress.[170]
3.63
The
Report made a number of observations that reflect a number of the problems highlighted
in the anecdotal and systemic evidence received during this inquiry. It gave
the committee another interesting perspective on the difficulties encountered
by Army's disciplinary investigations unit, the Special Investigations Branch
(SIB).
3.64
The Ernst and Young report found that the SIB's
investigation capability has significant shortcomings and is in need of reform
when compared to external investigative standards.[171] The report noted that the SIB has
not kept abreast of external reforms directed at professionalising
investigations capability; improving organisation effectiveness; improving
management efficiency and investigation processes; making greater use of
technology; and accepting heightened levels of accountability and governance.[172] Furthermore, the SIB's leadership
was found to have put 'little if no effort' into benchmarking against external
reforms or embarking on a programme of achieving improved standards since 2000.[173]
3.65
The
report highlighted inordinate delay in the reporting and investigation of
notifiable incidents as a persistent problem;[174]
inadequate staffing levels;[175]
excessive workload coupled with insufficient manpower and equipment;[176] and a lack of consistency in
decision making.[177] The report
questioned the competency of SIB investigators to manage major or sensitive
investigations, particularly investigations into serious crimes committed
overseas;[178] and also identified the
presence of a culture within SIB that 'contravenes the investigation principles
of impartiality and fairness'.[179]
3.66
Low morale
and management's failure to value SIB personnel was also raised as an issue:
We found many
investigators 'want out' and we understand very few 'want in'...We have noted in
our comparison with better practices elsewhere, that the effectiveness of SIB is
impaired by what we regard as an 'unhealthy' work environment. Old world
management practices and attitude on organisational effectiveness within SIB
needs a fundamental rethink...The exercise of an autocratic fear based control
paradigm adversely impacts upon productivity and performance—as well as
stifling innovation...Management's interest seems to be intent on getting the job
done at the expense of the social and family life of investigators.[180]
3.67
These
factors are all severely impacting upon the operational effectiveness of the
SIB, and affecting recruitment and retention rates:
We believe Army is in a
desperate situation with regard to attracting sufficient numbers of skilled
personnel to its investigation capability.[181]
3.68
The
report stated:
We found in our review
of the SIB against the Statement of Work that:
- the
investigative capability is unsustainable under current arrangements and
conditions;
- aspects
of the culture are inappropriate to the internal investigation function;
- organisational
effectiveness is constricted;
- investigation
processes are inefficient;
- management
tools, including case management are inadequate;
- some
degree of management inertia exists in relation to continuous improvement; and
- the
wellbeing of investigators is a secondary consideration.[182]
3.69
The
Ernst & Young Report highlighted that these difficulties were not
attributable to individual shortcomings on the part of certain personnel within
the SIB, rather that criticism:
Relating to the
timeliness and quality of work has its root causes in process, structure and
management rather than individuals' efforts and commitments.[183]
3.70
The
independent investigation of significant complaints against SIB was also raised
as 'an issue'.[184] The Report stated
'there is currently no oversight of the investigation of complaints against
SIB, other than within Army's chain of command'.[185] The report noted, however, the
capacity of the Inspector General Defence (IGD) and the IGADF to investigate
certain types of complaints.[186]
3.71
A number of recommendations aimed at improving the
capacity for the SIB to conduct its investigatory function were also made, and
are discussed below. The overall tenor of the Ernst & Young report, however, describes
an organisation in need of reform, and reiterates many of the committee's concerns
with regard to the ADF's capacity to deliver impartial, rigorous and fair
outcomes in the disciplinary context.
The Director of Military Prosecutions
3.72
In the course of his evidence to the committee on
Monday 2 August, the Director of Military Prosecutions, Colonel
Hevey, also expressed doubts concerning the
capacity of Service police (particularly Army) to perform their function adequately.
He informed the committee that, upon taking office as the DMP, he perceived a
'basic problem' in the training and policy development of military police.[187] He indicated that he had an informal
level of involvement in the training of Naval Investigative Service personnel,
providing basic lectures on the structure of a record of interview.[188]
3.73
The DMP
told the committee that upon taking office, he had assumed that investigators
were adequately trained. He quickly found, however, that a lot of capability
had been lost as a result of the disbandment of the special investigation
branches. He suggested that investigators were perhaps not properly focussed on
the things a prosecutor might require in order to conduct a matter adequately.
A committee member suggested that an appropriately drawn record of interview is
not a particularly unreasonable demand. Colonel Hevey agreed, but told the committee that twelve
months ago, the military police could not provide adequate records of
interview. He indicated that improvements in the last twelve months were
largely due to the informal training provided by his office, but also noted that
new training initiatives aimed at improving standards are to be developed, involving
the Australian Federal police and other professional organisations.[189]
The policy/procedural framework—manuals and
procedures
3.74
To
obtain a more detailed and in-depth perspective on the policies and procedures
governing the conduct of DFDA investigations, the committee requested the
manuals, guidelines and Service instructions used by the Army, Navy and Air
Force military police for the conduct of disciplinary investigations.[190] In the first instance, the committee
was referred to the Discipline Law Manual
(DLM). The DLM expressly provides
'Chapters 2 to 12 are
a layman's guide to this law'.[191]
True to this statement, the DLM contains a very scant and basic outline of the
policies and processes governing DFDA investigations in Chapter Three. It does
not contain any detailed guidance. Upon further request to the ADF, various documents were provided to the
committee, including:
-
Navy
Investigative Service Quality Manual;
-
5th
Military Police Company Special Investigation Branch Standing Orders;
-
Military
Police Technical Instruction Number 200 (Special Investigation Branch) Policy
and Procedures; and
-
Section
4 of the RAAF Police Manual (DI(AAF)AAP 4332.001).
3.75
These
documents reveal a considerable degree of inconsistency between the three
Services in the policies and procedures governing the conduct of disciplinary
investigations. Significant discrepancy in the manuals with respect to the
quantity and quality of detail and guidance provided in aspects of
investigation techniques, evidence collection and brief composition is also
noticeable.
3.76
Moreover,
the committee notes that Technical Instruction
Number 200, governing the conduct of the Army's Special Investigation
Branch was written some 19 years ago, and was apparently last updated in 1990.
The copy of the Technical Instruction provided
to the committee has numerous incomplete and missing sections, incorrect and
jumbled pagination, and missing pages. Notwithstanding this, it was formally
provided to the committee as a document tendered to this inquiry.
3.77
The
committee found several sections of the Technical
Instruction highly offensive. These sections contain material and guidance
reflecting outdated and prejudiced attitudes towards several sections of the
community. This material should have no have a place in any modern organisation's
operational manuals or guidelines. The committee has taken the view that the material
need not be placed on the public record. The committee would like to emphasise,
however, its concern at the grossly substandard state of Army's manual.
3.78
The ADF
has indicated that this manual contains 'The extant instructions for the
conduct of military police investigations' for the Army Special Investigations
Branch.[192] The committee acknowledges
that the Technical Instruction should
be read in conjunction with the various other policy documents concerning
Army's DFDA investigations, but is alarmed that these outdated 'extant
instructions' still form part of the body of reference material from which
Military police are expected to draw guidance for the conduct of
investigations.
3.79
Despite
the disarray evidenced in the Army's Investigation Manual, the committee notes
that new Defence Investigation Technical Instructions (DITI) are currently
under development. The new DITI are intended to consolidate the various single
Service manuals and instructions for the conduct of Service criminal
investigations and ensure that DFDA investigations are executed in accordance
with Australian Government Investigation Standards and industry best practices.
The ADF indicated that the DITI were intended for implementation in January
2005. This is a welcome and long-overdue development, but the committee is
nonetheless concerned that, similar to other planned improvements to the
investigations process, actual implementation of improvements encounters
significant delay.
3.80
The
Department of Defence was asked about the status of the new DITI during the
June 2005 Estimates hearings, but was unable to provide any further
information. The question was taken on notice.[193]
3.81
The
committee notes that the current Naval
Investigative Service Quality Manual and the excerpts from the Air Force
Defence Instructions relating to investigations are much more coherent, ordered,
comprehensive and up-to-date than Army's instructions. Whilst positive for Navy
and Air Force, this nonetheless reveals the kind of stark inconsistencies
between the three Services' attitudes, standards and practices.
3.82
Anecdotal evidence from victims of the system, evidence
from personnel with decades of experience in the military police, and the ADF's own report all indicate
fundamental shortcomings in the disciplinary investigations process. The
committee received evidence outlining inordinate delay, secret investigations,
inadequately trained investigators, lack of equipment, outdated manuals, low
morale, inability to attract and retain high quality personnel, and overall
inadequate resourcing—all occurring at a time when workloads are increasing and
community respect for Service personnel and expectations regarding standards of
fairness and accountability are rising. The committee believes that it is time
to address seriously the flaws within the disciplinary investigations system.
Solutions offered in
evidence
3.83
The committee received evidence outlining several
current ADF initiatives intended to improve the conduct of disciplinary
investigations, in addition to suggestions from other submitters. The committee
has also considered overseas developments of relevance and interest to its
terms of reference.
Suggestions from submissions to this inquiry
3.84
Lieutenant Commander Sankey
offered a number of recommendations to improve the quality of disciplinary
investigations.[194] He suggested that
military police should participate in up-to-date military and civilian police
training courses. This would enable investigators to maintain the capacity to
investigate offences and manage investigations both in Australia
and overseas. Another suggestion entailed the recruitment of reservists from
the civilian police force. Lieutenant Commander Sankey
suggested that this would solve the shortfall in experienced officers, increase
the professionalism of MP investigators, and increase MP exposure to personnel
who have considerable expertise and skills in civilian police practice and
procedures. Lieutenant Commander Sankey
also suggested that there needs to be an element of 'cultural shift' within the
Navy itself:
In my opinion the effectiveness and efficiency of the NPC
Category, and in particular the law enforcement aspects, are at an all time
low...it is sadly a case of neglect with little interest in the professional
development of the categories of officers...The military justice system can never
be effective in Navy until management gives policing and law enforcement the
prominence that it rightly deserves. The proficiency of the Naval Police
Coxswain can only improve after senior Navy management realises the important
requirement to have a consolidated, independent and professional investigative
service.[195]
3.85
The SAS soldier also gave the committee some
suggestions for improving the disciplinary investigations function. He
suggested that a serious criminal investigations branch could be established,
staffed with state police detectives acting as reservists on duty, and
possessed of an efficient and professional permanent staff.[196]
3.86
The experiences and suggestions given in evidence from Lieutenant
Commander Sankey and the SAS soldier reveal
that the problems with disciplinary investigations are clearly not confined to
any one Service—they are common to all three. As such, suggestions for reform
should be made with a view to improving the ability of all three Service police
forces to improve their capacity to conduct disciplinary investigations.
Recommendations from the IGADF-Commissioned report
into the SAS Soldier's matter
3.87
The instrument of appointment for the inquiry into the
treatment of the SAS soldier empowered the investigator to make recommendations
arising out of the findings in his report. In the report, the investigator
noted:
My comment, and it is only a comment, is that Service Police
are, by and large, not experienced in dealing with civil offences which are
service offences by reason of DFDA, save for offences of dishonesty and basic
assaults.[197]
3.88
To improve the capacity of Service police to perform
their investigatory function, the IGADF-Commissioned
Report suggested that a special criminal investigation branch should be
established. Members of this branch should include specialist
State police detectives serving as
reserve members and highly efficient and professional permanent investigators.[198]
Suggestions
from Michael Griffin's
Issues Paper
3.89
Mr Griffin
also made a number of suggestions concerning disciplinary investigation reform.[199] He stated:
Few would argue with the idea that the ADF needs to maintain its
own disciplinary system. However, that may not extend to operating an entire
criminal system in duplication of the civilian environment. Practical
considerations and harsh reality call into question the continued maintenance
out of the public purse of a small and under-skilled criminal investigation
service.[200]
3.90
Mr Griffin's
suggested initiatives to improve disciplinary investigation outcomes include:
-
outsourcing the investigative function
(potentially to the Australian Federal police) 'to allow Service police to
concentrate on their key military functions in support of the forces in the
field';[201]
-
in peacetime, referring all criminal activity to
civilian counterparts, whilst maintaining close liaison;[202] and
-
recruiting reservists from State police and the
AFP.[203]
3.91
Mr Griffin suggested that outsourcing would free up
resources for other ADF 'core business' activities, and relieve commanders of
having to decide which crimes to deal with, allowing them simply to 'refer all
suspected criminal activity to the civilian specialists located a few
kilometres past the barracks gate'.[204]
Suggestions from the Ernst & Young Report
3.92
Following the analysis of the various shortcomings
within the SIB, the Ernst & Young Report made a number of recommendations
to improve the SIB's investigative capability. As a general statement, the
Report argued:
Army will need to give its investigation capability a new
identity and image, appoint enlightened and expert investigation
managers/leaders, move to professionalise its investigators, improve
organisational effectiveness, recruit quality from across the ADF and attend to
issues of well being if it is to maintain a sustainable capability.[205]
3.93
In terms of specific recommendations, the Report
suggested:
-
changes to command and organisational structure,
essentially reconfiguring the SIB into an 'Army Investigation Service';
-
a new case management system;
-
the introduction of a personnel development
programme;
-
reduction of excessively bureaucratic
administrative procedures;
-
the establishment of Memorandums of
Understanding (MOU) with state and federal civilian police for the provision of
investigation, forensic, training and secondment services;
-
MOUs with civilian services for the provision of
quality assurance reviews;
-
the establishment of key indicators against
which performance can be monitored;
-
the appointment of a legal officer to provide
legal and quality assurance advice;
-
the formal appointment of the IGADF to
administer complaints against the proposed new 'Army Investigation Service';
-
a review of Brief of Evidence procedures
(preparation and circulation) and case and file management practices;
-
various legislative amendments to facilitate the
above changes, clarify powers of arrest, and allow specially qualified
investigators to conduct investigations under the authority of Chief of Army;
-
undertake a recruitment drive, and broaden the
recruitment pool;
-
review and modernise training practices to bring
military investigations in line with civilian standards; and
-
increase training to all investigation personnel
and introduce a coaching programme for junior/inexperienced investigators.[206]
3.94
The various recommendations contained in the
submissions to this inquiry, Mr Griffin's
issues paper and the Ernst & Young report, in addition to the suggestions
made by witnesses, have all aided the committee greatly in its inquiry, and all
warrant the attention and sustained consideration of the ADF. To inform its
deliberations, the committee also considered Canada's
experience.
The Canadian Military Police
Complaints Commission
3.95
The Committee notes
the statement in the Ernst & Young Report that the independent investigation of significant complaints against SIB was 'an
issue',[207] and the report's
recommendation that the IGADF be formally appointed to administer complaints.
It notes further that Canada has an independent mechanism for handling
and investigating complaints against Service police.
3.96
In response to a number of complaints and
serious incidents involving the military police, the Canadian Government
created the Military Police Complaints Commission in 1999 (MPCC). The MPCC was
established as a quasi-judicial, independent civilian agency to examine
complaints arising from either the conduct of military police members in the
exercise of policing duties or functions, or from interference in or
obstruction of their police investigations. All members of the MPCC are civilians, and are independent of the
Department of National Defence and the Canadian Forces.[208]
3.97
The Lamer Report, which reviewed the legislation
governing the MPCC, noted that the MPCC is an 'important oversight body
responsible for ensuring that complaints as to military police conduct and
interference with military police investigations are dealt with fairly and
impartially'.[209] The Lamer report
noted, however, 'the predicated scale of the workload of the Military Police
Complaints Commission...seems to have been significantly overestimated'.[210]
ADF initiated change
3.98
The committee notes that the ADF has attempted to
address a number of issues arising in the submissions and evidence provided to
this inquiry.
Secret Investigations
3.99
General Cosgrove
indicated that remedial action has been taken in an attempt to address the
problems surrounding secret investigations:
Chief of Army has indicated that this practice cease. Since
early 2003 all personnel who are the subject of an investigation are informed
of that fact through their chain of command at the commencement of the
investigation.[211]
3.100
The committee notes the submission from Mr
Geoff Lewis,[212] however, which provides detail
concerning a secret investigation begun in early December 2003. This evidence
casts doubt on whether Chief of Army's directive concerning the conduct of
disciplinary investigations has been fully implemented.
Improving
the Serious Crime Investigation capability
3.101
In his
evidence to the committee, Mr Geoff Earley, IGADF, indicated that he is currently working with the ADF to enhance
the serious crime investigation capability, possibly with the assistance of the
civil police. The programme is at the early development stage:
Further examination of
how we might go about that is under development right now with the
establishment of a working party and a project officer.[213]
3.102
The
committee asked Mr Earley if a time line had been established for the
implementation of this programme. Mr Earley indicated that there had not. 'In-principle' agreement had been reached
concerning the need for a tri-Service investigative capability. However, the
project team examining the practicalities of such an entity has only recently
been established.[214]
3.103
The
committee welcomes this initiative, but is concerned at the apparent lack of an
implementation timeframe.
Response
to the Ernst & Young Report
3.104
The
committee acknowledges that Lieutenant General Leahy initiated the Ernst & Young Report to improve the quality of
disciplinary investigations following a series of incidents, reports and
inquiries that cast serious doubts about the competence of the military police.
3.105
In his
correspondence enclosing the Ernst & Young Report, Lieutenant General Leahy
indicated to the committee that a number of recommendations contained within
the report require further development before being considered for
implementation, but nonetheless expects 'that most recommendations will be
accepted and implemented'.[215] Lieutenant General Leahy also informed the committee that a number
of initiatives resulting from the Ernst & Young Report, aimed at enhancing
individual investigators and improving the organisational environment, have
already commenced.[216] He stated:
I am confident that
initiatives already in place have resulted in a better capability and, when
combined with those that are currently being developed, will deliver a superior
investigative capability in future years.[217]
Findings and recommendations
3.106
Having considered the evidence before it, the committee
holds grave concerns about the ADF's capacity to conduct rigorous and fair disciplinary
investigations. Somewhat reminiscent of the concerns voiced in the 2001 Rough Justice Report, this committee
also considers that serious issues surround the competency of the military
police to carry out their policing and investigatory function.
3.107
The committee notes that there are three types of
offences that Service police may currently investigate:
-
specific disciplinary offences;
-
Service offences that have civilian criminal
equivalents; and
-
offences under the laws applicable in the Jervis
Bay Territory.
3.108
The committee considers that the ADF has proven itself
manifestly incapable of adequately performing its investigatory function. Whilst
noting the recommendations advanced in the Ernst & Young report, and seeing
great value in the ideas put forward, the committee does not think that the
implementation of these recommendations go far enough. A decade of rolling
inquiries has not met with the broad-based change required to provide adequate
protection of the rights of Service men and women. Each inquiry has led to the
recurrence of the same problems and further disappointment. Attempts to change
have proven ineffective.
3.109
The discipline process reaches its culmination in the
trial of charges before a Service Tribunal. The Service police investigative
function is critical to the effectiveness of the military justice system. As in
the civilian environment, an efficient and effective police force is the
cornerstone of a sound justice system. In many ways the present status of the
Service police is a metaphor for the entire military justice system. The Burchett
report and Lieutenant General Leahy's
reference to Ernst and Young show that the
organization is dysfunctional.
3.110
This committee has received submissions from Service
police members which describe an organization in crisis. Members complain of
poor morale, of being over-worked and under-resourced, of loss of confidence,
lack of direction and a sense of confusion about their role and purpose. The Committee
believes it is time to consider another approach to military justice.
3.111
Not long ago, the ADF and Army in particular, was a
totally self supporting entity, capable of being deployed to foreign shores
where it could and did support and administer itself. It had its own Survey
Corps, its own Education Corps, its own Pay Corps and its own Catering Corps
and performed numerous other logistic functions from its own personnel
resources. There were many reasons for this not least of which were the tyranny
of distance and the complete absence of alternatives sources of support.
3.112
However, the modern ADF and the battlefields and
operational theatres are very different. Civilian management principles of
‘core business’ and ‘outsourcing’ have been widely applied across the military.
Civilian contractors are everywhere, including Iraq,
and have played a significant role in most of the recent ADF operational
deployments. The committee believes the role of a criminal law system in the
'core business' is past, and it is appropriate to 'outsource' what is
essentially a duplication of an existing civilian system.
3.113
Broad criminal investigative experience and deep
knowledge of the law should be the hallmarks of any investigative
service—civilian or military. Civilian police investigators, however, are
generally better trained and more experienced in the conduct of criminal investigations
than military personnel. Whilst knowledge of the military context is important,
the attainment of rigorous and fair outcomes should be the primary aim of a
competent system of military justice.
3.114
Outsourcing criminal investigations in peacetime would
allow the Service police to concentrate on their key military functions in
support of the forces in the field. The committee believes that in peace-time Australia
they should refer all criminal activity to their civilian counterparts and
focus their resources on training and developing their core business.
3.115
The AFP has had a conspicuous presence in many recent
operational theatres. The high level forensic policing skills that the AFP
possesses were evident to the world in the aftermath of the Bali
bombing and were also used to great effect in the investigation of atrocities
in East Timor and the Solomon
Islands. When overseas and on active
service, these and other criminal law functions currently performed by
Servicemen and women could readily be 'outsourced' to the AFP, whose entire
business it is to conduct criminal investigations and prosecutions.
3.116
Few would argue that the ADF should not maintain its
own disciplinary system, and the committee certainly does not. The military
discipline system and the prosecuting of Service offences that undermine team
morale and cohesion, such as desertion, is very important. Military personnel
are best equipped to administer such a system.
However, this view does not logically extend to the ADF operating an
entire criminal system in duplication of the civilian environment. Practical
considerations (including financial) and harsh reality (in particular, the underdeveloped
criminal investigative skills and training of Service police compared with
mainstream police), call into question the continued maintenance out of the
public purse of a small and under-skilled criminal investigation service.
3.117
The question has to be asked: Why not keep the money
and spend it on other ADF ‘core business’ requirements, relieve the commanders
of having to decide which crimes they deal with and which they cannot and
simply refer all suspected criminal activity to the civilian specialists?
3.118
The evidence before this committee reveals that a
decade of rolling inquiries has not effected the kind of broad-based change
required to improve the military police's investigative capacity. Despite
constant scrutiny, the system is still plagued by delay and continually fails
to equip personnel with the skills and experience necessary to conduct rigorous
and fair investigations. Known problems have not been adequately addressed. The
continual failure of the ADF to rectify recurrent problems leads the committee
to the conclusion that the investigative function should be removed from the
defence forces altogether and referred to the civilian experts.
Recommendation 1
3.119 The committee recommends that all suspected criminal
activity in Australia
be referred to the appropriate State/Territory civilian police for
investigation and prosecution before the civilian courts.
3.120
The committee also considers that the investigative
function performed by the military police whilst the defence forces are on
operations overseas is also inadequate. The SAS soldier's case is highly
illustrative of shortcomings in this regard. Again, civilian policing expertise
is available and could easily be drawn on to enhance investigative capability.
The committee therefore recommends that the ADF make better use of the AFP's
expertise, and outsource the investigation of crimes committed whilst on
operations overseas.
Recommendation 2
3.121 The committee recommends that the investigation of all
suspected criminal activity committed outside Australia
be conducted by the Australian Federal Police.
3.122
Service police should only conduct investigations in
the first instance where the offence in question has no equivalent in the
civilian community. The committee acknowledges, however, that there may be
instances where the civilian authorities chose not to pursue a matter. Where
this occurs, the committee considers that current arrangements for referral
back to the military police should be retained.
3.123
Investigations involving civilian equivalent or Jervis
Bay Territory
crimes should therefore only be conducted by the Service police where civilian
authorities elect not to pursue a matter. To maintain the current limitations
on the capacity of the Defence Forces to investigate and prosecute individuals
in the military justice system, matters should then only be pursued where
proceedings under the DFDA can reasonably be regarded as substantially serving
the purpose of maintaining or enforcing Service discipline.
Recommendation 3
3.124 The committee recommends that Service police should
only investigate a suspected offence in the first instance where there is no
equivalent offence in the civilian criminal law.
Recommendation 4
3.125 The committee recommends that, where the civilian
police do not pursue a matter, current arrangements for referral back to the
service police should be retained. The service police should only pursue a
matter where proceedings under the DFDA can reasonably be regarded as
substantially serving the purpose of maintaining or enforcing service
discipline.
3.126
Referring matters to the civilian authorities in the
first instance will improve military justice outcomes. The committee considers,
however, that the training, expertise and competence of Service Police still
needs to be addressed. Where matters are not pursued by civilian authorities
and referred back to the military police, the capacity for military police to
adequately investigate must be improved. A Service member's right to a rigorous
and thorough investigation should not be dependent on a lottery of fluctuating
civil police workloads and military police capabilities.
3.127
The committee notes that the Service police's capacity
to perform its investigative function is in dire need of improvement. The
committee endorses the recommendations contained in the Ernst & Young
report for the improvement of the Service police's investigative function, and
encourages engagement with civilian agencies, including secondments, reserve
recruitment, and participation in civilian investigative training.
3.128
Regardless of whether criminal investigations are
conducted by civilian or military police, the fact remains that they should be
conducted competently. Several submissions have supported the proposition that
the Defence force needs people working within the military justice system who
have a sound knowledge and understanding of the institutional context in which the
discipline system operates. Recruiting civilian police into the military through
a reserve scheme, and exposing Service police to civilian police training through
secondments will increase the skills base and expertise of the Military police
investigation services. It would simultaneously allow for an appreciation of
the institutional context within which the alleged crime has been committed.
3.129
The committee considers that reserve civilian police
should assume a more important role in the investigation of discipline offences
and offences that are referred back from civilian authorities. Reserves should
be utilised to maintain and enhance the current skills base. Exposing permanent
Service police to the expertise of civilian reservists will also improve the
investigative function. The ADF should undertake an active reserve recruitment
campaign to attract personnel from the federal and state police forces.
Recommendation
5
3.130 The committee recommends that the ADF increase the
capacity of the Service police to perform their investigative function by:
-
fully implementing the recommendations contained
in the Ernst & Young Report;
-
encouraging military personnel secondments and
exchanges with civilian police authorities;
-
undertaking a reserve recruitment drive to
attract civilian police into the Defence Forces;
-
increasing participation in civilian
investigative training courses; and
-
designing clearer career paths and development
goals for military police personnel
3.131
Several submissions also suggested the creation of a
tri-service serious crimes investigative capability. The committee also notes
that the Canadian Forces have a 'National Investigation Service' that provides
specialized and professional investigative services to the defence forces on a
national and international basis. It has been suggested that the creation of a
similar service for the ADF would allow the development of investigative
expertise, streamline processes, utilise resources more efficiently, and would
create a more appealing and identifiable career path for recruits.
3.132
The committee considers that this proposal warrants the
attention of the ADF, and should be examined in detail. It would need to be
preceded by a tri-service audit to determine current and future staffing,
equipment, training and resourcing requirements. The committee further
considers that the Ernst & Young Report, although confined to an
examination of the Army's investigation capability, would provide a good
template upon which to base a subsequent examination of the ADF's investigative
capability across the three services.
Recommendation 6
3.133 The committee recommends that the ADF conduct a
tri-service audit of current military police staffing, equipment, training and
resources to determine the current capacity of the criminal investigations
services. This audit should be conducted in conjunction with a scoping exercise
to examine the benefit of creating a tri-service criminal investigation unit.
3.134
The committee acknowledges that recommending the
removal of all civilian criminal equivalent and Jervis
Bay Territory
offences will have fundamental implications for the discipline system. It will
now discuss the evidence concerning the provision of legal advice for decisions
to initiate prosecutions and the defence of accused service members, and make
flow-on recommendations.
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