Offender Rehabilitation: Entrepreneurship Training
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The Advocate-General for Scotland (Lord Keen of Elie) (Con)
My Lords, I thank the noble Lord, Lord German, for securing this debate. The Government are committed to ensuring that prisons are places of reform and we recognise that training in entrepreneurship can help to provide offenders with the skills that they need to become productive, contributing members of society. Although entrepreneurship may help some—I will return to this point, which has already been made by the noble Lord, Lord Beecham—it is questionable whether it will assist the majority, who very often require rather more basic skills in order to achieve any form of employability.
Let me first answer the question that the noble Lord, Lord German, asked. In terms of the Prison Rules, rule 32 provides:
“Educational classes shall be arranged at every prison”.
That is our policy. It is also our policy that prison governors should be empowered to decide what that education offer should be and should then be held to account for what is achieved. We do not regard that as fragmentation but as a means of innovation.
Before discussing the question of entrepreneurship in more detail, however, I mention briefly the reforms already under way in our prison system. With respect to the opening remarks of the noble Lord, Lord German, the present Justice Secretary has made clear her plans to drive through one of the most far-reaching prison reforms in a generation. Those offenders in prison have committed a crime for which prison is the rightful punishment but, at the end of their sentence, almost all prisoners will need to reintegrate back into the community. Currently, almost half of prisoners reoffend within the first 12 months of release. In 2010, it was estimated that this cycle of reoffending was costing the economy up to £13.5 billion a year. I believe that all noble Lords and the noble Baroness acknowledged the scale of the problem that exists. The Government are committed to ending this cycle and ensuring that prisoners use their time in prison to reform.
First, we need to make prisons safe—safe for learning and safe for reform. The rising levels of violence against prisoners and indeed staff, as well as an increase in self-harm and self-inflicted deaths, are not acceptable and require immediate attention. We are investing £14 million to provide more than 400 staff in prisons to help address increasing levels of violence and provide much-needed, individual support for prisoners. The Government are also investing £1.3 billion to modernise and reform the prison estate, which will have appropriate facilities for learning, training and the reform of prisoners.
We realise that many prisoners have led challenging lives and may have missed out on the opportunity to learn. For example, nearly one-third struggle with learning difficulties or disabilities. Indeed, the noble Baroness gave a number of figures with regard to those who suffer from various disabilities or difficulties, be they mental health, learning difficulties or otherwise. The prevalence of drug problems is also well known. More than half of the prison population is unable to read or write to a basic standard. Even more have similarly poor mathematics skills. We need to utilise the time spent in prison ensuring that prisoners engage in purposeful activity, so that they can contribute to society upon their release.
While there are some excellent examples of education in prison, we would of course like to see more consistency. Dame Sally Coates’s review of education in prison, published earlier this year and mentioned already, set a clear agenda for education reform. Prisoners are often not being given the appropriate skills and knowledge needed to find jobs, while prison governors are hampered by an overly bureaucratic system. We are determined to improve prison education to help prisoners turn their lives around. The Government intend to change the way that we run prisons, so there is an unremitting emphasis on safety and reform. We want prisons to be places of hard work and high ambition, with incentives for prisoners to learn. We want prison staff to prioritise employment opportunities. To do this, we will put the tools to drive this change into the hands of those on the front line. Prison governors must be empowered to innovate and find better ways of reforming offenders in a system geared towards innovation and local partnerships.
Following the recommendations in Dame Sally Coates’s report, we have already given prison governors greater autonomy over the education curriculum. As of 1 October, governors have been able to offer courses that do not necessarily lead to an accreditation, should they deem it in their prisoners’ best interests. This will give governors greater immediate flexibility to respond to the differing, and indeed often complex, needs of prisoners. For example, a governor could choose to commission a focused preparation for a self-employment programme for those nearing release who have shown a keen interest in pursuing this option, or an enterprise-themed programme aimed at initial engagement of “hard-to-reach” offenders who are furthest from the labour market.
Sixteen million hours of work were delivered in prisons during 2015-16. There are also significant numbers of prisoners in other learning, vocational training or in-prison work opportunities that contribute to the effective running of a prison. Supporting offenders into meaningful employment is a vital aspect of this Government’s approach. I am conscious that many members of your Lordships’ House have detailed knowledge of prison education and employment opportunities—this has been exhibited this evening—but it was, I have to say, a surprise to me in taking up this portfolio to find that a significant number of our prisons have railway tracks within their grounds, albeit stopping short of the gates. These are used to train prisoners in track maintenance, delivering a trade-standard NVQ level 2 qualification and the necessary rail safety and other skills, so that they secure paid employment on key infrastructure projects, such as Crossrail, once they are released.
We want to see more work in prisons leading to jobs on the outside. For example, a scaffolding workshop has just opened at Her Majesty’s Prison Brixton in an excellent collaboration involving Land Securities and Bounce Back. The first four graduates of the programme have gone into full-time work and there is a waiting list of employers anxious to employ the next 20 prisoners. The noble Lord, Lord Marks, alluded to Clinks and the running of four fine dining restaurants. He perhaps omitted to mention that the restaurant at Her Majesty’s Prison Cardiff has been voted 10th best fine dining restaurant in the United Kingdom and a graduate of the Clink restaurant at Brixton has gone on to be a sous chef at one of London’s leading hotels.
More private sector companies are employing ex-offenders. However, we are keen to increase the number of employers who can provide valuable vocational work for offenders in prison and who are able to offer them employment on release. The noble Lord, Lord Marks, mentioned some who have done splendid work. We want more businesses to work with us to give prisoners a second chance. Those who already do tell us that offenders are often some of their most loyal and committed employees. The National Offender Management Service works closely with the Employers’ Forum for Reducing Re-offending to ensure that there is a pool of employers willing to employ offenders. A significant number of schemes are in place locally but of course we want to see more. Giving governors autonomy over decisions made in prisons will allow them to target training and work in prisons to match more closely the needs of a local labour market.
We know that the majority of prisoners want to work and that, in the context of keeping themselves occupied, pay, for example, is not an issue. We also know that getting prisoners into employment is a key factor in reducing reoffending—a point already made by noble Lords—but many face barriers when trying to enter employment as employers may be reluctant to hire. The noble Lord, Lord Marks, alluded to Ban the Box; the Government encourage all employers to look at their recruitment practices to ensure that ex-offenders are considered on their merits and not on their criminal records, through options such as banning the box. Indeed, the former Prime Minister announced government support for Business in the Community’s Ban the Box campaign. The Civil Service will be banning the box from the initial recruitment stage except for those jobs that have a specific security requirement. The Ministry of Justice, at headquarters, already bans the box. So some progress has been made in that regard
Turning to the theme of this debate, enterprise skills and entrepreneurship, I should make it clear that when I refer to the training in entrepreneurship that is currently offered in prison, I am referring to two separate things. First, there are the courses that we offer on preparing prisoners to start a business venture and to aid their understanding of business enterprise. One can be entrepreneurial without being self-employed and these courses are not necessarily delivered with the hope that the prisoner will become self-employed as a result. Rather, these courses can provide prisoners with translatable skills for any kind of employment. For example, a prisoner enrolled on such a course may learn that they need to go back and improve their maths skills before starting their own business. This might lead them to getting basic qualifications they would not otherwise have sought. Or perhaps a prisoner will realise that they must first go out and get some work experience to prepare them for having a business of their own. These aims are equally as beneficial as encouraging a prisoner to enter self-employment directly on release.
Secondly, there is the specific support we offer to help offenders into self-employment. These courses are popular with prisoners and we recognise the value for prisoners that becoming self-employed has, as it can help overcome some of the barriers that have been mentioned with regard to securing employment. On these courses you may find a prisoner who has already taken part in a business enterprise course, or a prisoner who has been studying on a vocational course, such as plumbing or barbering, which have been mentioned, who will then seek to use the skills they have learned to set up their own business.
In 2015, an enterprise pilot was run by the then Department for Business, Innovation and Skills, with the aim of helping to reduce reoffending and helping individuals progress to self-employment, or other employment if more suited, on release. While it is too early to assess the impact of this pilot on reoffending, we learned valuable lessons that will help governors in deciding what type of enterprise provision to commission for their prisons. For example, for enterprise provision to be effective, it is important that prisoner learners are engaged and keen to participate, that there is improved communication between those delivering training in custody, those providing support to prisoners on release and those supporting prisoners’ engagement in custody—as the noble Lord, Lord German, observed in his opening remarks, this does not stop at the gateway of the prison, but has to go further if it is to succeed—and that therefore further research is considered and planned.
When considering self-employment options, we must remember that start-ups have a high rate of failure and, certainly, we do not want to set prisoners up to fail. For many prisoners already in debt, accessing the necessary start-up loan is impossible. It is no use equipping prisoners to start up their own business if, on release, they find they are prohibited from accessing the resources needed to achieve their goal. Work must first be done, therefore, to address prisoners’ existing debt issues, setting up a payment plan if necessary, before any plans for self-employment can take place. This is a staged process. A one-size-fits-all approach will not work. Rather, a holistic approach is required in order to encourage self-employment, with a concerted focus on partnership working. We also need to ensure that if prisoners seek the route of self-employment, they receive the Through The Gate support to which the noble Lord, Lord German, referred.
The noble Baroness, Lady Bakewell, raised a number of questions. She too mentioned the barrier of the requirement to disclose convictions. I hope I have explained that the Government wish to encourage schemes such as Ban the Box that might reduce, or displace, any such barrier. She also mentioned the low levels of literacy skills encountered among those in our prisons. That is where some of the fundamental problems lie. We need to increase that level of educational attainment, which is fundamental to making progress in this area.
The noble Lord, Lord Marks, suggested that conditions in prisons frustrate the provision of education and training. They do not frustrate it, because education and training are going on, but of course they make it more difficult. That is one reason why we are committed to spending £1.3 billion on a new prison estate that will be far better equipped to provide the sort of education and training that can reduce recidivism among the prison population.
The noble Lord, Lord Beecham, alluded to the need also to look at this across government. We accept that this is not just a case of prison reform in isolation. We have to look at the health issues, particularly the mental health issues, which afflict such a large proportion of the prison population, and the drug issues that also afflict such a large proportion of the prison population. We also have to look at prison overcrowding. However, I say again that that is now being addressed by the determination to produce a new and effective prison estate for the future.
In conclusion, we intend to modernise and reform the way that we run our prisons. We intend to help deliver a safer and more secure environment, because only with a safer and more secure environment will there be the opportunity for education and training to take root. We understand the ambition of some prisoners to become self-employed but recognise the point made by the noble Lord, Lord Beecham, that that may be an effective route for some but not for all. We have to have regard to the totality of the prison population. But rather than imposing a top-down, centralised policy, the Government are giving governors the autonomy they need to best meet the needs of their prisoners to ensure that they obtain fulfilling, purposeful employment, or even the opportunity of self-employment, on release. I am grateful to noble Lords who have spoken in this debate. I hope that I have been able to address their questions and concerns to some extent.