Brothel laws criminalising sex workers: a feature, not a bug

It happens with depressing regularity, but reports of sex workers being prosecuted for “brothel-keeping” have actually got a fair bit of attention recently, both in mainstream and social media. None of it, of course, from the Turn Off the Red Light campaign or its leading member organisations, who are campaigning hard for new legislation which will double the penalties for this offence.

Supporters of the Criminal Law (Sexual Offences) Bill 2015 have done their best to keep this aspect of the bill quiet, regularly insisting that the bill “decriminalises” women in prostitution even after The Journal’s Fact Check established that it does no such thing. On the rare occasions they’re pressed on it, they usually witter on about how this law is “intended to punish pimps”, sometimes even suggesting that it’s the only mechanism the law has to do so.

They’re wrong on both counts.

To take the second point first: the Criminal Law (Sexual Offences) Act 1993, which currently governs sex work law, contains an offence of “organising prostitution” as well as one of “living on the earnings of prostitution”. Both of these offences will remain under the new law, so there’s no reason that any “pimps” found keeping brothels could not continue to be prosecuted if the brothel-keeping law was removed.

The first point – that the law is not aimed at pimps, but at sex workers themselves – can be proven clearly enough just by looking at how the law is actually used in real life. As Lucy Smyth’s media analysis shows, nearly all the reported prosecutions have in fact been of sex workers, not of anyone managing or controlling them. So maybe it’s a case of the Gardaí misusing the law and just in need of better guidance?

No, it’s not. Go back to the original debates over the 1993 Act and you see very clearly that sex worker prosecutions are a feature, not a bug, of the brothel-keeping law – which was intended to address the public nuisance factor of brothels. Introducing the bill to the Seanad, then-Minister Máire Geoghegan-Quinn said:

I would now like to briefly explain the thinking behind the provisions in the Bill on prostitution. Prostitution is not, and never has been, an offence. The criminal law has no role in trying to regulate sexual arrangements made in private between adults, whether or not money is a factor in those arrangements. What the law has in the past sought to regulate are certain public manifestations of prostitution which can cause upset and distress to members of the public, such as soliciting in public or the operation of a brothel. I think it must be acknowledged that these activities can cause genuine problems for the public, and that is a reality of life that we as legislators must deal with.

Over in the Dáil, meanwhile, Michael McDowell (of all people) attempted to introduce an amendment which would exclude from the definition of brothel “the bona fide home of a prostitute unless the premises are used by any other prostitute for the purpose of prostitution”. Implicit in this amendment is the understanding that the offence would be used against sex workers. The Minister rejected the amendment, saying:

As the Deputy rightly states “brothel” is a common law term and means a place resorted to by persons of both sexes for the purpose of prostitution. There must be at least two women or men plying their trade as prostitutes in the place. If two persons are using the premises for prostitution, the place is a brothel and it is immaterial that one of them is the occupier. Therefore, the home of a prostitute is not a brothel unless another person is also using the premises for prostitution.

So again, it was clearly envisaged by the law, at the time it was introduced, that a sex worker would be prosecuted under it – even in her own home, if she allowed someone else to sell sex there. This is not a law about pimps.

Which is not to say that the brothel-keeping law could never be used against pimps. It’s a hybrid offence, meaning it can be prosecuted either summarily (before a District Court judge) or on indictment (in the Circuit Court, before a jury, and at the risk of a much higher penalty). In real life, sex workers who are prosecuted under this law are inevitably prosecuted summarily; it’s only in the rare “pimp” prosecutions that indictment occurs. And – I think this is pretty significant – the new bill only increases penalties for the summary offence of brothel-keeping, while leaving the penalties for the indictable offence unchanged. In this respect, the new law is clearly going directly after sex workers. Not pimps.

And if you need any further evidence, just look at Frances Fitzgerald’s recent contribution to the Committee Stage debate on the present bill. Rejecting amendments that would reframe the brothel-keeping law to only target third parties, the Minister stated:

Women would come under pressure to claim that they were working independently when that was not the case and the Garda would be limited in the actions it could take to close brothels and disrupt the activities of pimps and criminal gangs.

So there you have it, straight from the horse’s mouth: sex workers – not pimps – are intended to be prosecuted under this law, in order that Gardaí can shut down their workplaces. The fluff about women being pressured to lie about their working arrangements is a complete non-sequitur; if anything, such pressure is probably more likely in the present set-up. When managed sex workers take the fall for the “real” brothel keepers, after all, there’s less incentive for the guards to go after their bosses.

So make no mistake about the brothel-keeping law. It is not an anti-pimp measure with an incidental, unfortunate side effect of occasionally catching the wrong target. It is not being misapplied by overzealous Gardaí who just need a bit of training or direction. Gardaí who go after sex workers with this law are doing exactly what it’s designed to do, and they will keep doing it as long as the law allows them to, and regardless of the dangers it creates for sex workers. And the Gardaí are doing it with the explicit approval of the Minister for Justice, and with the effective acquiescence (if not silent approval) of the Turn Off the Red Light campaign, and its constituent NGOs who continue to pretend they have these women’s interests at heart.

Sex workers are literally dying because of this law. We owe them at least our honesty about why we allow that to happen.