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{\fhimajor\f31535\fbidi \froman\fcharset186\fprq2 Cambria Baltic;}{\fhimajor\f31536\fbidi \froman\fcharset163\fprq2 Cambria (Vietnamese);}{\fbimajor\f31538\fbidi \froman\fcharset238\fprq2 Times New Roman CE;}
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{\flominor\f31554\fbidi \froman\fcharset178\fprq2 Times New Roman (Arabic);}{\flominor\f31555\fbidi \froman\fcharset186\fprq2 Times New Roman Baltic;}{\flominor\f31556\fbidi \froman\fcharset163\fprq2 Times New Roman (Vietnamese);}
{\fdbminor\f31558\fbidi \froman\fcharset238\fprq2 Times New Roman CE;}{\fdbminor\f31559\fbidi \froman\fcharset204\fprq2 Times New Roman Cyr;}{\fdbminor\f31561\fbidi \froman\fcharset161\fprq2 Times New Roman Greek;}
{\fdbminor\f31562\fbidi \froman\fcharset162\fprq2 Times New Roman Tur;}{\fdbminor\f31563\fbidi \froman\fcharset177\fprq2 Times New Roman (Hebrew);}{\fdbminor\f31564\fbidi \froman\fcharset178\fprq2 Times New Roman (Arabic);}
{\fdbminor\f31565\fbidi \froman\fcharset186\fprq2 Times New Roman Baltic;}{\fdbminor\f31566\fbidi \froman\fcharset163\fprq2 Times New Roman (Vietnamese);}{\fhiminor\f31568\fbidi \fswiss\fcharset238\fprq2 Calibri CE;}
{\fhiminor\f31569\fbidi \fswiss\fcharset204\fprq2 Calibri Cyr;}{\fhiminor\f31571\fbidi \fswiss\fcharset161\fprq2 Calibri Greek;}{\fhiminor\f31572\fbidi \fswiss\fcharset162\fprq2 Calibri Tur;}
{\fhiminor\f31575\fbidi \fswiss\fcharset186\fprq2 Calibri Baltic;}{\fhiminor\f31576\fbidi \fswiss\fcharset163\fprq2 Calibri (Vietnamese);}{\fbiminor\f31578\fbidi \froman\fcharset238\fprq2 Times New Roman CE;}
{\fbiminor\f31579\fbidi \froman\fcharset204\fprq2 Times New Roman Cyr;}{\fbiminor\f31581\fbidi \froman\fcharset161\fprq2 Times New Roman Greek;}{\fbiminor\f31582\fbidi \froman\fcharset162\fprq2 Times New Roman Tur;}
{\fbiminor\f31583\fbidi \froman\fcharset177\fprq2 Times New Roman (Hebrew);}{\fbiminor\f31584\fbidi \froman\fcharset178\fprq2 Times New Roman (Arabic);}{\fbiminor\f31585\fbidi \froman\fcharset186\fprq2 Times New Roman Baltic;}
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{\pntxtb (}{\pntxta )}}{\*\pnseclvl9\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}\pard\plain \ltrpar\s28\qc \li0\ri0\sl-360\slmult0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5469818 \rtlch\fcs1 
\af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5640193\charrsid5469818 IN THE HIGH COURT OF THE COOK ISLANDS
\par HELD AT RAROTONGA
\par (CRIMINAL DIVISION)
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5469818 JP APPEAL 3/97
\par CR NO: 101/97}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 
\par 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5640193\charrsid5469818 THE }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5469818 SUPERINTENDENT }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5182018\charrsid5469818 OF}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\b\insrsid5640193\charrsid5469818  ARORANGI PRISON}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5640193 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5469818 Arorangi, Rarotonga}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5469818\charrsid5469818 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 Appellant
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5469818\charrsid5640193 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 v
\par 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid5640193\charrsid5469818 NGATEINA MAKITAE
\par Inmate of Arorangi, Rarotonga
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 Respondent
\par }\pard \ltrpar\s28\ql \li0\ri0\sl-360\slmult0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5640193 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12805012 
\par Hearing: 6 March 1997
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 Date}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12805012  of Delivery}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 : 11 March 1997 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12805012 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 Mr. Graham for Appellant}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 Mr. Mason for Respondent}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193 
\par }\pard\plain \ltrpar\ql \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5640193 \rtlch\fcs1 \af0\afs24\alang1025 \ltrch\fcs0 \fs24\lang3081\langfe1033\cgrid\langnp3081\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193 
\par }\pard\plain \ltrpar\s39\qc \li0\ri0\sb240\sa240\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5640193 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 
\af0 \ltrch\fcs0 \b\insrsid5640193\charrsid12805012 REASONS FOR JUDGMENT
\par }\pard \ltrpar\s39\ql \li0\ri0\sb240\sa240\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10776793 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
On the 26 February 1997 the Respondent appeared in the High Court before three Justices of t
he Peace and pleaded guilty to a charge of escaping from lawful custody. He was sentenced to 6 months' imprisonment, that term to be concurrent with the sentence of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793 4 \'bd }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193 years' imprisonment which he}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 was then serving. In addition the Justices ordered that 
the Respondent be released forthwith from maximum security. The Superintendent of the Prison has appealed against the sentence and the order made and that appeal was heard by me}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid5640193\charrsid5640193 by telephone conference on}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 6 March 1997. I then gave my decision allowing the 
appeal against sentence and directing that the sentence be served cumulatively rather than concurrently. As to the order for release from maximum }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793\charrsid5640193 security}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193 , I expressed doubt as to the Court's jurisdiction and recommended that a Visiting Justice be asked to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793\charrsid5640193 investigate}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193  the matter of the Respondent's confinement. I undertook to put my reasons in writing and this I now do.
\par The Respondent has a very long list of previous offending, including two previous instances of escaping from custody. On 2 August 1996 he was sentenced to 4}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  \'bd }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193 years' imprisonment on a charge of aggravated wounding and two}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
charges of burglary. On 25 October 1996 he took advantage}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 of a moment of relaxed supervision and walked out of the}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 prison. He w}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12805012 as recaptured on 9 November 1996,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
 and, on}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 the direction of the Superintendent was held in the maximum security block within the prison.
\par For the Appellant it was argued that a concurrent sentence of 6 months' imprisonment was, in effect, no sentence at all for a person already serving a long term of i
mprisonment and that the need to deter others who may be contemplating escape required a realistic sentence. On behalf of the Respondent Mr. Mason did not feel able to offer any real opposition to this, and I had no hesitation in saying that the sentence 
must be regarded as manifestly inadequate. It was, in fact, a meaningless sentence. Because of the rather open nature of the prison,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
and the need for prisoners to be outside the prison frequently for the purpose of being occupied with work, the temptation to escape must be present much of the time, an}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10776793 d t}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193 he history of frequent escapes reinforces this. It is}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11340358  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 therefore incumbent on the Court, when an escape has }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018\charrsid5640193 occurred}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 , to make it clear that such an offence will attract a significant punishment.
\par For these reasons the appeal against sentence was allowed and the sentence changed to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11340358 one }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 of cumulative imprisonment.
\par }\pard \ltrpar\s39\ql \li0\ri0\sb240\sa240\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid11094847 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
A matter of considerably greater difficulty concerns the order made for the Respondent's release from maximum}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
security. I had occasion previously to con
sider the provisions of the Prisons Regulations 1968 as they applied to confinement in what is known as the punishment cell. This was on the sentencing of Metuevaine Miri, and on that occasion I delivered my reasons in writing which, however, did not have
 to deal with the matters which arise in this case.
\par The imprisonment of offenders is controlled by the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 Prisons Act 1967 and the Prisons Regulations 1968. Section}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 26 of the Act defines what are "offences against }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11340358 discipline}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847\charrsid5640193 "}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11340358  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847\charrsid5640193 which}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193  may be committed by an inmate. Section 26 (1) creates}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 12 categories of offences, and s. 26 (2) creates a further}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193 9 categories. The latter are plainly the more serious}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 offences, and they include escaping from custody. Section}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 27 empowers a Visiting Justice to deal with any offence aga
inst discipline and to impose penalties, one of which is "confinement in a cell for any period not exceeding fifteen}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
days". Section 28 gives the Superintendent power to deal}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
with the lesser offences under s. 26 (1), but there is no power for him to deal with offences under s. 26 (2).
\par The Regulations contain provisions as to the treatment}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 of inmates who are undergoing }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847 p}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 unishment. Reg. 79 specifies the conditions to be observed by inmates sentenced to}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
confinement in a cell. While the expression "confinement}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
in a cell" may appear sufficiently descriptive, there remains a question as to whether confinement within the maximum security block in the prison is to be equated with confinement in a cell. Without}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847 
 an inspection and the opportun}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 ity for the presentation of argument I do not feel able to make an express finding on this.
\par }\pard \ltrpar\s39\ql \li0\ri0\sb240\sa240\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5182018 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 Regulation 80 then makes provision for the transfer of an 
inmate to "penal grade". That expression is nowhere defined, and the problem in this case (and no doubt in others) arises}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
because neither "confinement in a cell" nor "penal}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 grade" is defined. Instead, the practice appears to be}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid11094847  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 to refer to "maximum security block" and "punishment cell".}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
Whether these terms are synonymous with those used in the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 Regulations I am unable to say. It seems that the prison}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid7081903  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 authorities have simply devised their own expressions and have not attempted to follow the provisions of the Act and}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 Regulations. Having regard to the fact that imprisonment}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7081903  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
is a major deprivation of liberty, often for long periods, it is of the first importance that this is carried out only}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
so far as the law allows. It cannot be said that this}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 principle has been observed in the past.
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \lang1024\langfe1024\noproof\langnp2057\langfenp2057\insrsid2972805 
{\shp{\*\shpinst\shpleft-2981\shptop13726\shpright8580\shpbottom13726\shpfhdr0\shpbxcolumn\shpbxignore\shpbypara\shpbyignore\shpwr2\shpwrk0\shpfblwtxt0\shpz0\shplid1026{\sp{\sn shapeType}{\sv 20}}{\sp{\sn fFlipH}{\sv 0}}{\sp{\sn fFlipV}{\sv 0}}
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\dpx-2981\dpy13726\dpxsize11561\dpysize0\dplinew5\dplinecor0\dplinecog0\dplinecob0}}}}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
I can see no basis upon which the Justices had any jurisdiction to make the order they did for the Respondent's release from maximum security, although I have no doubt}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5640193\charrsid5640193 they were moved by humanitarian considerations. I think I am obl
iged to quash the order they made, but I confirm my request to counsel that a Visiting Justice be asked to investigate and inspect within the powers given by the Regulations.
\par }\pard \ltrpar\s39\ql \li0\ri0\sb240\sa240\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid13834695 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 In the longer term interests of Justice, however,}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 I recommend that the Act, and more particularly the Regulations, be examined by the Crown Law Office with a view to}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 their clarification. In particular I consider urgent}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
consideration be given to the expressions "confinement in a cell", "maximum security block", "penal grade" and}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 "punish
ment cell". There should be clear definitions of}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
such of them as are properly to be used, and of the provisions to be attached to each. I recommend also that}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5182018  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5640193\charrsid5640193 
any necessary amendments be made as a matter of urgency in order that the possibility of inmates being held in conditions which may be contrary to the provisions of the Constitution, and in particular of Article 64, is eliminated.
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