Throughout the last decade the Department of Corrections was faced with the need to accommodate significant increases in the number of prisoners, and to do so cost-effectively. Amongst a number of strategies in response, extending the level of double bunking was pursued over a period spanning 2009-2011.
This report outlines the findings of two separate phases of research exploring double bunking in New Zealand prisons. Of particular interest in the first phase was the perceptions of double bunking held by prisoners who had been housed in this manner, and staff who had worked in double bunked units. The objective of this research was to identify issues which should be addressed before double bunking was further extended. The research involved a series of interviews with prison managers, staff and prisoners, in twelve prison units.
The second phase occurred during the period over which the level of double bunking was expanded. This examined rates of incidents (such as prisoner assaults and incidents of disorder) for the purpose of determining whether, as double bunking expanded, the rates at which such events occurred were increasing. A core objective of this phase was to clarify the extent to which double bunking, on the scale planned, remained consistent with the goals of safe, secure and humane containment of prisoners.
Key Results
Phase 1 research: Key findings
The majority of prisoners interviewed preferred single cell accommodation in prison, as it provided them with privacy, and reduced exposure to conflict. However, the overall impression gained from interviews was that, when assigned to a double bunked cell, prisoners simply got on with things and made the best of the situation. Although many had stories to tell of previous cell sharing experiences that were unpleasant, almost all prisoners reported that their current cell sharing arrangement was satisfactory. Prisoners appeared able to change cellmates reasonably readily, which means that within a reasonable period of time they were usually able to find a tolerable, if not agreeable companion to share a cell with. Interviews suggested that the majority of staff took care in thinking through the implications of placement decisions.
Some prisoners expressed a distinct preference for being double bunked, stating that it had positive benefits such as companionship, mutual support, and the sharing of resources. The research findings indicated that safe and humane containment under double bunking conditions requires that certain risks are monitored and managed. Important risk management strategies discussed by staff and prisoners were as follows:
- considered placement decisions that avoid prisoners being placed with another prisoner who has potential to cause them emotional or physical harm
- monitoring of cellmate combinations by staff to ensure that interpersonal conflict and tension do not become unduly elevated
- facilitating time away from the cell so that cell-sharing prisoners have time to themselves
- providing options for prisoners to securely store personal items.
Improved ventilation, and fittings such as modesty screens and access to extra toilets in the wider unit, were regarded as important for mitigating personal hygiene-related aspects of cell-sharing for prisoners.
Double bunked units were found to create a number of challenges for staff working within them, mainly related to the demands associated with the greater volume of prisoners within the unit confines. However, staff were found to be managing these challenges through good practice, processes and systems. Staff practice is critical in preventing or mitigating risks and potential downsides of double bunking. The knowledge, experience and level of professionalism they bring to the job makes the difference in ensuring the safety, security and humane containment of prisoners and the effective running of units where cells are double bunked. Operating in a thoughtful, responsive and flexible way to the needs of prisoners helps minimise the likelihood of problems occurring and reduces the severity of negative outcomes when problems do arise.
Phase 2 research: Key findings
A statistical analysis of incidents in prison units, within which double bunking was recently introduced or expanded, was undertaken.
The analysis indicated no measurable increase in the rate of incidents involving prisoners in those units during periods when the proportion of double-bunking increased from zero to around 70% of each unit. Thus, no evidence was found to support the hypothesis that double bunking resulted in, or was associated with, increased incident rates. Instead, the analysis found an slight inverse relationship (negative correlation) with the rate of double bunking as it has increased through the 19-month analysis period. That is, during the analysis period, as the rate of double bunking has increased, the overall and notifiable incident rates actually decreased slightly.
Overall conclusion
The two phases of the research point to a general conclusion that, while some prisoners find sharing a cell with another prisoner disagreeable, the practice per se is consistent with principles of safe and humane containment of prisoners.