Prisons
Lord Ramsbotham Excerpts(9 years, 1 month ago)
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Lord Ramsbotham
To ask Her Majesty’s Government why G4S was told to retract an invitation to the Howard League for Penal Reform to visit HM Prison Birmingham and HM Prison Oakwood.
The Minister of State, Ministry of Justice (Lord Faulks) (Con)
My Lords, a wide range of organisations and individuals independent of the Prison Service, including inspectors, monitoring boards, parliamentarians and researchers, are frequently given access to our prisons. It is right that prisons should face scrutiny and are subject to public debate. Our priority is the welfare of prisoners, their families and those who work in prisons. Inaccurate and irresponsible criticisms undermine their welfare. NOMS has the right to refuse access to those who voice such criticisms.
Lord Ramsbotham (CB)
My Lords, I sympathise with the Minister for having to try to defend the indefensible. In the future, the Secretary of State for Justice will be remembered and blamed for the havoc that he has wrought in less than three years on the entire criminal justice system, which will take years to resolve. Only those who fear the truth need to try to suppress it, which the Secretary of State is trying to do as regards a long-established, independent, voluntary organisation whose only crimes have been to oppose him and to expose untruths. Can the Minister please assure the House that this shameful instruction will be instantly withdrawn and never again repeated in a free United Kingdom?
Lord Faulks
My Lords, when the noble Lord became the Chief Inspector of Prisons in 1995, I am sure that in the course of inspecting prisons, he was anxious to be fair and objective in his inspections regardless of whether they were private prisons or public prisons. These two prisons are private prisons. Unfortunately, the chief executive of the Howard League for Penal Reform, Frances Crook, disapproves of private prisons and has been quoted as saying that,
“making money out of punishing people is both reprehensible and immoral and it is on these grounds that we have opposed the private management of prisons”.
Just before Christmas, she said on “Newsnight” that for a three-week period over Christmas, young offenders would be locked in their cells while there was a 40% reduction in staff numbers. Both these assertions were completely wrong. She was given an opportunity to retract, but she declined to do so. NOMS has to bear in mind the welfare of prisoners, the families who would be concerned about such misinformation, and the morale of prison officers.
Probation
Lord Ramsbotham Excerpts(9 years, 3 months ago)
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Lord Ramsbotham
To ask Her Majesty’s Government whether any emerging risks to the programme to transform the delivery of probation services have been reported to Ministers, and what action is being taken to mitigate any such risks.
The Minister of State, Ministry of Justice (Lord Faulks) (Con)
My Lords, on 1 February, new providers began delivering probation services for low and medium-risk offenders, working alongside the National Probation Service. We conducted comprehensive testing at each key stage of the reforms, reporting and managing risks as appropriate and proceeding to the next stage only when we considered it safe. With the new system established, the National Offender Management Service is providing robust oversight and management of providers to ensure that the public are kept safe.
Lord Ramsbotham (CB)
My Lords, I thank the Minister for that Answer. When I was Chief Inspector of Prisons, I used to tell Ministers that they could accept either observed facts from me or unobserved fudge from officials, but that improvements could follow only on facts. Since the Secretary of State denied parliamentary approval of the rushed Transforming Rehabilitation timetable, it has slipped. Among many other problems, community rehabilitation companies have been given only a bare five weeks to mobilise when they say that they need six months, and community probation service officers, for example, are having to perform tasks with high-risk offenders for which they are not qualified. Clearly, all is not well. Will the Minister please tell the House when the Government will give the public the facts rather than fudge about the delivery of probation services?
Lord Faulks
My Lords, I do not accept the characterisation given by the noble Lord. The suggestion that Parliament has not had the opportunity to consider this is not borne out by the fact that there were 50 hours of debate in Parliament, including debates on the Bill and a Westminster Hall debate. We have given information to Parliament and the public at every stage of the process, placing key documents in the Libraries of both Houses, including draft contracts, the staff transfer scheme and details of successful bidders. The matter has also been considered by the Justice Select Committee and the Public Accounts Committee. I also do not accept the noble Lord’s characterisation that there are problems. The issue has been carefully monitored. Of course, there may be some difficulties, and we are happy to hear any representations from anybody about how we can respond to these.
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 4 months ago)
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The Minister of State, Ministry of Justice (Lord Faulks) (Con)
My Lords, in speaking to this Motion, for the benefit of the House I should say that, with the agreement of Her Majesty’s Opposition, it is proposed that Motions B and C be put together and be debated together.
As to Motion A, we have spent a considerable amount of time debating the Government’s plans for secure colleges and our ambition to improve the education and reoffending outcomes of young people in custody. I am pleased that, since the last time we met to debate these provisions, which deal with who should be accommodated in secure colleges, the House of Commons has accepted a government amendment to the Bill to give Parliament a vote on the matter. I therefore beg to move that this House does not insist on its Amendment 74 and agrees with the Commons in its Amendment 74C, and I hope that noble Lords will welcome the Government’s response.
Before I go into the detail of the amendment, I take this opportunity to thank noble Lords for the quality of their scrutiny during the passage of the Bill. There have been many hours of informed and passionate debate on the important and sensitive issue of how young offenders are detained and the support that they receive to become rehabilitated. As well as those who featured prominently in our debates, there were other noble Lords who brought their expertise to bear on the issues, whether in meetings, of which there were a number, or in correspondence, and I acknowledge their contributions also. The co-operation that we have encountered has led us to find a compromise, which I am hopeful and even—dare I say?—confident will satisfy noble Lords.
As the Secretary of State and my other ministerial colleagues have made clear throughout the passage of the Bill, we do not want to prevent girls and under-15s in future being able to benefit from the pioneering approach and enhanced provision that secure colleges will offer. We recognise that these groups are more vulnerable and require tailored support, but as noble Lords will know, girls and younger boys are already safely accommodated together on the same site as older boys in both secure training centres and secure children’s homes, demonstrating that such an approach can work well. Our plans for the pathfinder secure college to open in 2017 have been carefully developed, in consultation with a number of noble Lords, to provide separate and tailored facilities for younger and more vulnerable children, should they be placed there. Of course, their placement will always be as a result of the intervention of the Youth Justice Board.
We recognise, however, that there remains concern about the accommodation of girls and under-14s in secure colleges. While I am confident that secure colleges will be able to meet the needs of these vulnerable groups and achieve improved outcomes for them, I appreciate that noble Lords are, and were, seeking further safeguards and a clearer role for Parliament. When this House last considered amendments made to the Bill in the other place, I made a commitment that, before girls or under-15s were introduced to the first secure college, the Government would lay a report before Parliament setting out the arrangements for accommodating, safeguarding and rehabilitating these groups. Today, I am able to go further and am seeking to amend the Bill to make the commencement of the power to provide secure colleges for the detention of girls and under-15s subject to a resolution of both Houses of Parliament. This will give Parliament a clear role in approving the use of secure colleges to detain these groups and will enable that decision to be informed by learning on how secure colleges are operating. The Government will, of course, fulfil the earlier commitment that I made to produce a report, and this will be laid before Parliament ahead of the debates on the commencement of the power in order to provide further detail on the plans and to inform the debate in both Houses.
I hope noble Lords will feel that their concerns have been recognised by the Government and that our response goes some way towards allaying those concerns. I believe that the amendment before the House represents a practical and common-sense solution that provides Parliament with the safeguards it is seeking, while ensuring that the opportunity remains for girls and under-15s to benefit in future from the enhanced provision that secure colleges will deliver. I therefore ask the House to accept this amendment in lieu of its previous amendment.
Lord Ramsbotham (CB)
My Lords, I am content to agree with Commons Amendment 74C and am most grateful to the Minister not only for the way in which he has presented the Government’s change of heart but for his courtesy in giving me and a number of other noble Lords advance warning, by letter and also in discussion, of what it would contain. I say again how much I, and I am sure many other noble Lords, have appreciated the courtesy and admired the skilled advocacy that he has deployed throughout the passage of this Bill. I do not include the Minister in any criticisms that I make of the secure college proposal, on which he and I may not agree, but which I will continue to oppose as strongly as I am able for as long as it takes. As I have said before, I regard the very idea of building the biggest children’s prison in the western world as a stain on our treasured national reputation for fairness, decency and humanity under the rule of law.
I appreciate that the Minister is under the strict riding instructions from a Lord Chancellor whose jurisprudential credibility has been forensically unpicked by my noble friend Lord Pannick and a Secretary of State for Justice who has wreaked havoc on the ability of the prison and probation services to protect the public. With that track record, noble Lords will appreciate why I pray that that same person never gets his way with his pet plan for the detention of vulnerable and damaged children.
At each stage of the Bill, I have drawn attention to some new development or piece of evidence that adds to the strength of the case against the secure college proposal, and today is no exception. First, last week came the welcome announcement that, thanks mainly to the determined efforts of the Youth Justice Board, there are now fewer than 1,000 children in detention. Does it really make sense to hold one-third of them in one place and plan a repeat with yet more?
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 5 months ago)
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Lord Ramsbotham
As an amendment to Motion A, leave out from “House” to end and insert “do insist on its Amendment 74”.
Lord Ramsbotham (CB)
My Lords, once again I admire the skilful advocacy of the Minister, this time in his presentation of a case that I totally reject, for reasons I will explain. I am grateful to him for providing me with an advance copy of his report proposal last night, but it does not answer the point made in Amendment 74, namely that boys under the age of 15 and girls should not be sent to a secure college under any circumstances. It is true that they are currently mixed in smaller secure children’s homes and secure training centres, but those are smaller places. Having small units within large units on a large site is not satisfactory, not least because the numbers of boys under 15 and girls are likely to be swamped by the vast majority of those older children who will be on the remainder of the site. What the Minister has outlined is not that Parliament will be given an opportunity to debate the issue, but merely how the Secretary of State will inform it once he has decided to send them there. Noble Lords will not be surprised to hear that I find that totally unsatisfactory.
I have a confession to make about the whole secure college proposal. For the first time in my life, I feel ashamed to be British because I am so appalled that anyone should have dreamt it up, let alone tried to blandish Parliament with spurious claims that an entirely untested and unevaluated proposal involving increased education will reduce children’s offending. All the available evidence, not least that the smaller the establishment the better when children and young people are detained—which I recognise from my experience when inspecting young offender institutions, secure training centres and secure children’s homes—points to the proposal to establish the biggest children’s prison in the western world being far more likely further to damage some of the most vulnerable and damaged children in our society with their multiplicity of problems and needs, not just lack of education.
I make no apology for yet again quoting some of Winston Churchill’s immortal words describing a decent criminal justice system. He said that the way in which it treats its crime and criminals is the true test of the civilisation of any country and marks and measures the living virtue in it. Would that he were here to pronounce his verdict on the proposal, because he would do it so much more effectively than I can.
In his letter dated 4 December, the Minister described the secure college proposal as a pioneering approach to educating young offenders and tackling stubbornly high reoffending rates. He is absolutely right to describe laying a proposal before Parliament about which no one, not even the proposer, knows any details, as a pioneering approach, but I hope that it is one that will never be repeated. I fear that those in both Houses who have voted for the proposal thus far have done so because they are attracted by the word “pioneering” and seduced by the blandished prospect of past failure being swept aside. But if anyone who voted in favour bothered to probe deeper into what the proposal actually meant other than the provision of more education, they would find nothing other than the assertion that the market will find the solution.
So far, the Secretary of State has awarded a building contract for a paper plan on a site with planning permission for an earlier young offender institution. One would assume that the education provider would have a say in the build of a new college with education at its heart, but no. Bidding for the educational contract has not yet started, nor do there appear to be any criteria against which competitors will be judged. One would presume that bidders would be required to compete for the delivery of a specified regime, but that, too, is far from the case. Rather than lay down a regime, the Secretary of State says that it will be the content of the as-yet-unknown winning bid. I admit that I cannot imagine any business daring to function like that or it would fail. But to personalise the point, would anyone consider sending any child with a multiplicity of problems to any school unless they had a very clear idea of how those problems might be treated?
Two weeks ago, the All-Party Parliamentary Penal Affairs Group, which I co-chair, and the packed audience at the annual Longford lecture, heard Nils Öberg, head of the Swedish prison service, describe how after long and careful scientific research into the characteristics, problems and needs of their young offenders, the Swedish authorities had concluded that the invariable multiplicity of young offenders’ needs could best be treated by trained experts in small, local establishments containing no more than 10. They knew that this was bound to be expensive because of the number of appropriately trained staff required—child-skilled staff do not come cheap—but they had a duty to secure the future for all Sweden’s children; a duty that applies in every civilised country, which ours still purports to be.
Lord Faulks
I thought that I had made it reasonably clear that there will be the laying of the report. That is the limit to which I committed and I commit to it now. It is beyond what we committed before. It may not be enough for some noble Lords but none the less the report, informed as I have said that it will be, will enable Parliament to consider whether it is appropriate.
Lord Ramsbotham
My Lords, I am very grateful to the Minister for his summing up but, as he will no doubt understand, I do not find it convincing at all because he has answered absolutely nothing. We have heard nothing about the details of this college and we have never heard any evidence of why the Government think that it is appropriate. We have heard yet again about education, and about a healthcare centre, but we have not had an acknowledgement of treating all the multiplicity of problems that these children face.
We keep hearing the word “might”, because there is no evidence to show that this approach has worked. In the absence of that, it would be irresponsible of us not to press further. I am extremely grateful to all noble Lords who have taken part in this very stimulating debate. They have shown yet again not only the vast amount of expertise in this House but the degree of compassion felt for the people we are talking about. I was particularly struck by the noble Baroness, Lady Williams, questioning why it was that this Government chose to rule Parliament out of any consultation on these issues. Here again, the offer of a compromise was thrown down and rejected by the Minister. I feel that I have no alternative than to seek to test the opinion of the House.
Prisoners: Work
Lord Ramsbotham Excerpts(9 years, 5 months ago)
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Lord Ramsbotham
To ask Her Majesty’s Government why there has only been a one per cent increase in the number of prisoners in England and Wales at work since 2010.
The Minister of State, Ministry of Justice (Lord Faulks) (Con)
My Lords, the number of prisoners working in industrial activity reported by public sector prisons increased from around 8,600 in 2010-11 to around 9,900 in 2013-14, an increase of 15%. Over the same period, the total number of hours worked increased by 33% from 10.6 million to 14.2 million in public sector prisons. That excludes activity such as cooking, serving meals, maintenance and cleaning, and work placements undertaken by offenders on release on temporary licence.
Lord Ramsbotham (CB)
My Lords, I thank the Minister for that Answer. The derisory increase to 15% in the numbers working in prisons is matched by a decrease by 2% since 2012 in the numbers of those who get work on leaving prison. Despite all the rhetoric we have had, recently a prison governor was brave enough to tell a court of the effects of the imposed new way of working in prisons, which has resulted in staff cuts and not enough work for prisoners to do. Only last week, G4S told the Justice Select Committee in another place that the ability of governors to govern their prisons was being undermined by government policy. Furthermore, the increase by 69% of the numbers who commit suicide raises the possibility of a charge of corporate manslaughter. Can the Minister please tell the House when Ministers—with the notable exception of Simon Hughes, who has been brave enough to admit that there is a crisis in our prisons—will stop fudging the public about what is happening in our prisons?
Lord Faulks
My Lords, I do not accept the noble Lord’s characterisation of what is happening in prisons. We have increased the number of working hours. Our aim is to replicate as far as possible the normal working week in the community, real work experience and the acquisition of skills, which support effective rehabilitation. As to deaths in custody, any death is a tragedy. We have a number of different ways of investigating them. A review chaired by the noble Lord, Lord Harris, is looking into the deaths in custody of 18 to 24 year-olds and we are expecting its report in April next year. We have a number of measures in place to ensure that those unfortunate incidents can be reduced.
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 6 months ago)
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Lord Ramsbotham (CB)
I apologise to the Minister for not raising the point that I am now going to mention. However, as it is based on a report that was published only last week, I have only very recently become aware of the position that I wish to raise. When I was the newly appointed Chief Inspector of Prisons, I found that the treatment of and conditions for women prisoners in Holloway was a national disgrace. I was frustrated to learn that current practice for handling inspection reports offered no hope of immediate remedial action, so I fell back on army practice and suspended my inspection for six months, during which period I expected defined action to be taken. I feel the same frustration about the proposal for a secure college contained in Part 2 of the Bill, having learnt that the rules of the House do not allow me to bring forward a Third Reading amendment based on a report that was published only last week, which I believe changes the whole nature of the proposal.
Before the Bill leaves the House, therefore, because the treatment of children is a matter of national importance, I feel that I must make one last appeal to the Government. Before doing so I assure the Minister that nothing I am going to say reflects on the way that he has taken the Bill through the House—during which, all noble Lords, while not necessarily agreeing with him, have admired the skill with which he, as a renowned advocate, has defended his brief, and been assiduous in briefing us, both verbally and in writing, on that brief. However, unlike the noble Lord, Lord Nash, during the passage of the recent education Bill, who was able to accept the case for inclusion of young offenders with special educational needs among those for whom education, health and care delivery must be provided, the noble Lord’s position in regard to any reasoned suggestion of change to the Secretary of State’s pet plan, appears akin to that of the tank commander with whom the Chinese student tried to reason in Tiananmen Square.
Last Tuesday, I took part in the launch of a British Medical Association report, entitled Young Lives Behind Bars: the Health and Human Rights of Children and Young People Detained in the Criminal Justice System. Welcoming it, Norman Lamb MP, Minister of State for Care and Support, wrote:
“The newly established Children and Young People’s Mental Health and Well-Being Taskforce, includes a specific working group on vulnerable children and young people, including young people in contact with the Youth Justice system and will focus on how services can best meet their needs”.
In her foreword, Juliet Lyon, director of the Prison Reform Trust, who has considerable experience of working with young offenders, wrote:
“This timely, authoritative report presents an overview of the complex reasons why children and young people offend, their multiple needs and the challenges they present. It enables practitioners and policy makers to reflect on their work with young people in trouble”.
She went on to say:
“An almost 60 percent reduction in child imprisonment over the last seven years … offers a tremendous opportunity for health and justice professionals to focus on the most vulnerable children and help them to get out of trouble”.
I quote two of the report’s recommendations:
“Practitioners should consider how best to encourage involvement and interaction with healthcare services, in a manner that is appropriate to the needs and concerns of children and young people in custody”,
and:
“Health and wellbeing of children and young people should be seen as concerns for all those working in the secure estate, not just healthcare professionals. To this end, all staff working in the secure estate must be adequately trained and supported in identifying and reporting health concerns”.
I said on Report that the House is being asked to rubberstamp a pet project of the Secretary of State for Justice, without the known agreement of the Cabinet committee appointed to ensure that all departments drive forward the aims of the government’s social justice strategy, key indicator number 3 of which is a reduction in the number of young offenders who go on to reoffend. In addition to ignoring proven national and international good practice, as well as the advice and pleas of countless people with experience of working with young offenders, I now understand that the Secretary of State has ignored the advice of paid consultants such as Deloitte, which recommended smaller establishments on the lines of Diagrama in Spain—the subject of a fascinating article in the Guardian on Saturday entitled “Tough Love”—and current practice in America.
I admit that this is the first I have heard of the children and young people’s mental health and well-being taskforce working group, charged with focusing on the needs of the very children whom the Secretary of State is proposing to detain in his secure college. Far from being children for whom normal education and security provision might be appropriate, these have a multiplicity of mental health and behavioural needs, and their reaction to any regime, let alone one based on the education that almost all have rejected or from which they have been excluded, will be conditioned by the complexity of their problems. Furthermore, the majority are to be uprooted from their family and local social or healthcare workers, whose involvement in their post-release rehabilitation is crucial. A recent conversation with NHS England has caused me to look again at two remarks made about healthcare by the Minister on Report:
“We also have been working closely with NHS England… to test our designs for the secure college pathfinder”,—[Official Report, 22/10/14; col. 660.]
and,
“a … health unit placed strategically in the middle of the design … will be the best way of delivering healthcare uniquely tailored to those individuals”.—[Official Report, 22/10/14; col. 663.]
True, a health unit is now placed strategically in the middle of the design, but it was not there when the Minister briefed us in July, suggesting that working closely with NHS England is a comparatively recent occurrence. What is more, as I am sure he realises, adequate tailoring of the delivery of healthcare appropriate to meet the multiple and complex needs of 320 damaged and vulnerable children requires more than just a strategically placed health unit. NHS England tell me that it is pressing for healthcare, particularly mental health care, to be embedded in the culture of the proposal, requiring confirmed resources, particularly of appropriately trained staff, without whom healthcare, adequately tailored or otherwise, cannot be delivered. But, as the Minister knows, there is an acute shortage of appropriately trained staff in the country, let alone in the middle of Leicestershire.
So the situation appears to be this. On the one hand, we have the Secretary of State for Justice who, without any evidence and in apparent defiance of government strategy as well as vast amounts of expert advice, insists on pressing ahead with his claim that his,
“new form of youth detention accommodation with”,
as yet unspecified,
“innovative education provision at its core … will equip young offenders with the skills, qualifications and self-discipline they need to turn away from crime”,
and believes that,
“it is right to focus on the educational outcomes that the establishment achieves rather than the staff it employs”.
On the other hand, we have the cross-government social justice strategy, a specific working party of the NHS children and young people’s mental health and well-being task force, and the declared opposition of countless experts who know from practical experience how essential trained professional staff are to the development and future well-being of this damaged and vulnerable cohort of children.
I said in Committee that the changed nature of the detained children population, resulting from the Youth Justice Board’s success, gave the Secretary of State ample justification for rethinking this proposal. I fully accept that I failed to persuade the House to vote that he should be required to obtain the approval of both Houses before proceeding with his proposal or to test the opinion of the House on a rethinking amendment. However, I submit that the evidence now available, thanks to the BMA report and the recent involvement of NHS England and the mental health and well-being task force, exposes serious flaws in the well intentioned, education-based secure college proposal, which clearly is not tailored to the characteristics, capabilities and needs of its suggested population.
I realise that that is not something that either the Minister or the Secretary of State can resolve, because of the involvement of the NHS and a Cabinet committee. I therefore ask the Minister that it be referred to the Prime Minister himself, who, I hope, will make a statement in the other place on whether, having examined all the available evidence, he authorises that the proposal should go ahead or that it should be put on hold until it has been rethought.
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 7 months ago)
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Lord Ramsbotham
“( ) No secure college may be established until comprehensive rules on the operation of secure colleges, including the use of force and the treatment of young persons with mental or physical health needs, have been made under section 52(2ZA).”
Lord Ramsbotham (CB)
My Lords, I shall speak also to Amendments 111 and 121.
Last Thursday, the noble Baroness, Lady Tyler, initiated a debate to take note of Her Majesty’s Government’s social justice strategy in which I quoted the words of the Secretary of State for Work and Pensions, Iain Duncan Smith, who, in launching the strategy in 2012, said that social policy could not be conducted in discrete parts, with different parts of government working on discrete issues in isolation. A strategy had to have a fundamental vision and driving ethos, without which it would be narrow, reactive and unworkable. As a result, a Cabinet committee has apparently been set up to ensure that all government departments drive forward the aims of the strategy. I say “apparently”, because I can find no evidence that it has passed judgment on the proposal in respect of a secure college that is the subject of my amendments.
Mr Duncan Smith listed five principles of the strategy: a focus on prevention and early intervention; concentration on recovery and independence, not maintenance; promoting work as the most effective route out of poverty; most effective solutions being designed and delivered at local level; and intervention providing a fair deal for the taxpayer. He also listed a number of key indicators of success or failure, of which number 3 is a reduction in the number of young offenders who go on to reoffend.
On 11 March this year, I tabled a sunrise amendment similar to Amendment 108, asking that implementation of the Secretary of State for Justice’s proposals for probation reform, which appeared to be being rushed through before they had been properly thought through, be conditional on the proposals being laid before and approved by both Houses of Parliament. The Minister, as befitting an advocate of his distinction, bravely defended the Government’s position, convincing the House that contract management of transparent reforms, which were not being rushed, was secure. As the Minister knows, all is not currently well with the now delayed reforms for a variety of reasons, many of which were raised in this House and of which I could list a number but do not have time to do so.
Yet again, Parliament is being asked by the Secretary of State for Justice to rubber-stamp a rushed and un-thought-through discrete proposal whose intent I and many others support but whose details remain shrouded in mystery. This time, he also appears to be in defiance of the Government’s social justice strategy. I hope that he noted the almost total opposition to his proposal by anyone who has any knowledge of the practicalities of dealing with young offenders and how they respond to youth custody, expressed in a letter to the Daily Telegraph signed by 29 such people last Monday. I understand that some of them were summoned to a meeting with Ministers last night, it being made abundantly clear to the five who were able to attend that the Government were not prepared to give one inch to their concerns.
On the one hand, we have a Secretary of State with no experience of the management of young offenders claiming that he can improve the dreadful track record of the current system, on which I reported adversely many times as Chief Inspector of Prisons, by providing young offenders with better opportunities, particularly in education, at less cost because of the economies of scale on a large site which is a young offender institution by another name. On the other hand, we have experienced experts saying that his proposals are bad for children, bad for justice, and bad for the taxpayer. Both cannot be right.
Noble Lords will no doubt remember that in “Henry IV, Part Two”, as Henry IV lies dying with the crown beside him on his pillow, Henry IV takes and tries it on in an adjoining room, being berated by his father with the words:
“Thy wish was father, Harry, to the thought”.
In this case, I feel that “wing and prayer” is more appropriate than “thought”, because, far from having a coherent and costed plan, which bidders are expected to deliver for a stated and realistic fee, the Secretary of State is hoping that inexperienced providers will come up with cost-saving innovations that experienced ones, both private and public, have tried and failed to find over many years. The winning bid, in a large institution, rejected as impractical by the rest of the world, will then be adopted as secure college policy. No business would dare to operate like that, or it would very soon be out of business.
We have already had deep discussion of this in Committee, which I do not intend to repeat. However, I shall repeat, and ask the House to reflect on, some statements that have been made by the Minister and others since then. There is an added urgency to my Amendments 111 and 118, which seek that further development of the secure college proposal should be put on hold until the draft of the secure college rules instrument have been laid before and approved by both Houses of Parliament. Only last Thursday, the Secretary of State, in launching a consultation on the rules for his pet secure college project, which closes on 27 November, announced that he intended the Bill to receive Royal Assent before the end of the year, two months before the Government are required by statute to publish the consultation response. In other words, he appears hell-bent on bulldozing through proposals, which will be binding on successive Governments for the next 10 years, without parliamentary approval and before the election. What is extraordinary is that, with presumed assent only a few weeks away, he says in the consultation document that no decisions have yet been made about who will be accommodated in the secure college.
For heaven’s sake, how can you possibly make or cost any realistic plans, if you do not know for whom you are making them? This smacks to me of contempt of Parliament, which will, quite rightly, be held to blame by the public, if something that it has approved fails to provide, or proves to cost more than forecast, which this proposal undoubtedly will. Bearing in mind that it will be held to blame, Parliament has not only a right but a duty on its own behalf and that of the taxpayer to ask the Secretary of State for proof of how he can deliver or justify the following claims and statements, before vast sums of money are committed, over 10 years, against all the evidence and advice that has been given to him. He has said that secure colleges are,
“a new form of youth detention accommodation with innovative education provision at its core which will equip young offenders with the skills, qualifications and self-discipline they need to turn away from crime”.
How do you do self-discipline? It has also been stated that,
“secure colleges must deliver a full and quality curriculum that motivates and challenges all young people”.—[Official Report, 21/7/14; col. 1034.]
There is no argument at all with the intent but there is a question mark over the practicality. It has been stated:
“The Government’s vision is that young people will receive a full day of education and training, rehabilitative intervention and enrichment activity, with sufficient flexibility to respond to the individual needs of young people”,
and that,
“secure colleges … will foster a culture of educational development and provide enhanced rehabilitation services while also achieving savings”.—[Official Report, 23/7/14; col. 1187.]
You do not deliver all those activities without people, and people cost money. Another statement claims:
“It is the Government’s view that setting out information about individual training courses and the standard to be reached in respect of such courses in secondary legislation is not appropriate.”—[Official Report, 21/7/14; col. 1036.]
Why on earth not?
“We are confident that the operating cost of the pathfinder will be lower than £100,000 per year, but the exact cost will be determined by competition”.
Surely the exact cost is determined by the provision and what you want.
“We believe that it is right to focus on the educational outcomes that the establishment achieves rather than the staff it employs”.
I have to say that I found that last statement really awful.
Lord Ramsbotham
My Lords, I am grateful to the Minister for his careful, thoughtful and wide-ranging response. I know that I speak for everyone in the House in saying that we agree with him both that we need to reduce the dreadful record of reoffending in our young offender establishments and that what is presently provided is not satisfactory and has not been for a long time.
I am very glad that the noble Lord, Lord McNally, is in his place; I would have expected the Minister to have paid tribute to the Youth Justice Board, which has been principally responsible for the reduction of the numbers, and in fact has been a remarkable example of good leadership and carefully researched innovation ever since it was formed.
Lord Faulks
I am very grateful to the noble Lord; he is quite right to reproach me for not giving credit to my noble friend Lord McNally, and I am very happy to do so.
Lord Ramsbotham
Having said that and witnessed the Minister’s customary graciousness, I agree with him that there has been an enormous amount of engagement and effort by officials and others to engage with people, but that engagement has been not about if the secure college will be established but when. We therefore still know nothing about what is to be done, who is to do it and how much it is to cost. I have quoted a number of times in this House the two definitions of the word “affordability”: first, can you afford it, and, secondly, can you afford to give up what you have to give up in order to afford it? Bearing in mind the current situation, financial and otherwise, I wonder whether it is worth spending the amount of money on this unproven and uncosted pilot when it could be diverted now to doing better by all the young people about whom we have been talking.
I accept that we are talking about a pathfinder and that the affirmative procedure for the rules is being proposed. However, the affirmative procedure will come only after the Bill has become law. Everyone knows that an affirmative procedure that comes after that has no clout anywhere—and certainly not with this.
I thank all noble Lords who have contributed to this debate for the wide and thoughtful contributions that they made. The one that perhaps struck me most was from the noble Lord, Lord Deben, who reflected on the fact that we all know and love people of the same age group as those whom we are talking about, whose interests are currently not well served by the country. Therefore, the country must have a very clear say in what happens to them.
I understand that the secure college pilot is to be rigorously evaluated and will open in 2017. I will return to NHS England and healthcare provision in the next group because I do not think we have had full coverage of it. My feeling is that the Government appear hell-bent on pushing this through, but I do not think that it is the right approach. I am not proposing to divide the House on this amendment, but I give notice that I will do so on Amendment 111, which specifically mentions the approval by Parliament of the rules before they are adopted. I beg leave to withdraw this amendment.
Lord Ramsbotham
My Lords, I will speak both to this amendment and Amendment 110. I know that I am up against a very strong three-line government Whip and, unlike the Minister, I am not a skilled advocate nor have I anything to do with party politics. If I were to be granted one wish before our deliberations, it would be that Part 2 should be removed completely from the party-political arena because it is not a matter of left or right politics—it concerns the future of some of the most damaged and vulnerable children in our society, which is a matter of national not electoral importance. Imitation being the sincerest form of flattery I can do no better in relation to this group of amendments and the next than to slightly adapt the words of the noble Lord, Lord Carlile of Berriew—of whose seminal review on the use of restraint and seclusion on detained children I was privileged to be a member—about an earlier amendment: that this is an issue on which all parents and grandparents, uncles and aunts, sitting on the political Benches should be entitled to and should exercise their consciences, reflecting that they are deciding on the treatment of children of the same age as those that they know and love; that is a very important responsibility.
I make no apology for quoting, yet again, the words of the then 36 year-old Home Secretary Winston Churchill, and ask the House whether it could imagine him making the proposal that is now before us. He said:
“We must not forget that when every material improvement has been effected in prisons, when the temperature has been rightly adjusted, when the proper food to maintain health and strength has been given, when the doctors, chaplains, and prison visitors have come and gone, the convict stands deprived of everything that a free man calls life. We must not forget that all these improvements, which are sometimes salves to our consciences, do not change that position. The mood and temper of the public in regard to the treatment of crime and criminals is one of the most unfailing tests of the civilisation of any country … and proof of the living virtue in it”.—[Official Report, Commons, 20/7/1910; col. 1354].
In this case, for “convict” and “man”, read “child”. Stripped to its basics, the proposed secure college at Glen Parva is a cost-saving exercise based on presumed economies of scale on a site which had previous planning permission for a young offender institution. All the other assertions, beginning with education, healthcare and safety being at the heart of the design, are what Winston Churchill recognised as “salves to our consciences” dressed up as generalisations with which no one could possibly disagree. Of course no one could disagree with any intention to improve education, healthcare and safety from what I used all too often to find as Chief Inspector of Prisons, and which persists today largely because no one has been made responsible and accountable for making improvements.
Lord Ramsbotham
Will the noble Lord exclude Clayfields from that, where the reconviction rate is 18% and costs are £185,000 a year?
Lord Faulks
I am perfectly happy to accept the costs from the noble Lord. As regards the offending rate, one needs to look over a long period. He tells me those rates but I have not had a chance to see those specific rates or for how long a period. However, I am sure that there are variations within the secure college estate. It would cost around £100 million each year to do what seems to be suggested, which is not a viable solution. It is, as we know, easy to forget the deficit, but this Government do not do so.
Although the secure college pathfinder will have a capacity of 320, the site is composed of seven distinct accommodation buildings, with some broken down into smaller living units. Young people can be accommodated in distinct groups, a sense of community can be fostered in each, and the younger and more vulnerable groups can be kept separately if that is considered appropriate. Our plans demonstrate that big does not mean imposing and impersonal. The size will enable a breadth of services and opportunities to be offered.
It is a consequence of the welcome and significant reduction in the number of young people in custody that there are fewer custodial establishments and that some young people inevitably will be detained further from home. This is not a new problem and, for the reasons I have outlined, a network of small, local facilities is not, sadly, a viable alternative. However, distance from home remains one of the factors taken into account by the Youth Justice Board when placing young people in custody. I am sure that that will be very much a factor. Furthermore, there will be visits as well as technology.
I recognise what lies behind these amendments. I acknowledge the very real concern of noble Lords about young people, whether they are under-15s, girls or more widely, but we genuinely believe that we have sufficient flexibility in the system. We do not think that these requirements should find themselves into law. I ask the noble Lord to withdraw his amendment.
Lord Ramsbotham
Lord Ramsbotham
“(2A) No contract may be entered into under sub-paragraph (1) until the Secretary of State has, by regulations made by statutory instrument, specified the criteria to be applied in the selection of such contractors.
(2B) A statutory instrument containing regulations under sub-paragraph (2A) may not be made unless a draft of the instrument has been laid before, and approved by a resolution of, each House of Parliament.”
Lord Ramsbotham
My Lords, I will be brief because much of what I am going to say has already been said, particularly in relation to the criteria. I would like to raise two points. First, I am concerned about the criteria, about which we know nothing, relating to the selection of application for contractors. I remind the House that there used to be in the Ministry of Defence every year an exercise called “basket weaving”. The Secretary of State laid down precisely what was to be done, and then the Treasury produced the money. Then the staffs had to look at the money that had been provided and see whether it allowed the Secretary of State’s direction to be delivered. Invariably, there was not enough money, so people listed in different baskets what was essential to have to carry out the task, what would be desirable to have and what would be nice to have. Those three baskets were then presented to Ministers, who were invited to decide what should not be done because the funding was not available, or to go and ask for more money. That was the decision that they had to take.
The reason I tabled this amendment is that we do not know what it is that the Secretary of State is requiring the contractors to provide, not least in the provision of the specialist staff, whom many noble Lords have mentioned today in connection with looking after this group of younger people. Therefore, my reason for putting down the amendment was to encourage the Government to release these criteria so that we know, and the taxpayer then knows, and can therefore judge, what is actually missing when the contractor puts in their bid. We will not have any say over the bid, but it would be very interesting to know what parts of the original intention could not be provided for these young people because of funding.
My second point relates to a practicality of the delivery of the sort of thing that I know the Minister intends in the secure college. In 1966, the Army’s secondary school in Hohne, in Germany, was achieving remarkable results with children who came or left throughout the term, to and from schools almost anywhere in the world because of the movement of their fathers. When I asked the headmaster the secret of his success, he said that he ran a comprehensive school: every pupil was assessed for their ability in different subjects, and their daily programme was dictated by their ability: top form in maths, bottom in English and so on. When I told him that if that was comprehensive education, I was all for it, he warned me not to hold my breath because streaming by talent was frowned on in England. It worked, because motivated, compliant children got themselves to and from their programmed classes—a total impossibility both in security and in practical terms with the cohort that is likely to be in custody in a secure college. Has anyone thought through the practicalities of limited staff numbers trying to conduct 320 difficult, disruptive and damaged children with fragile motivation and questionable compliance to and from 30 hours of unspecified education, plus myriad other health and social care requirements on this cramped site?
I include that, first of all, as an example of what might be done with all of these children with different needs and problems, as to how to get them to go to where it is most appropriate; but also because I am concerned that this House has not yet had the criteria on which the judgment should be based as to which bid is going to be able to meet them. I strongly support the amendment in the name of the noble Lord, Lord Beecham, about limiting the contract to five, rather than 10, years because I believe that to tie future Governments for 10 years to this proposal—with all that has been said about it around the House today—is several years too long. I beg to move.
Lord Beecham
My Lords, I support the amendment of the noble Lord, Lord Ramsbotham. My amendment is designed to avoid the situation that appears to be arising in relation to the awarding of contracts for the probation service. I do not know whether the Minister is in a position to confirm this or not, but it is said that the Government are deliberately proceeding with 10-year contracts for the outsourcing of that service, on the basis that, should a future Government decide to change the system, they would have, in effect, to pay up for the whole of the 10 years. In other words, it is really binding the hands of a future Government—in financial terms, if not necessarily in legal ones—in a way that is quite unacceptable. It would be quite wrong—perhaps, one could argue, even more wrong—to do so in this case, with a completely untried institution being set up. Whether or not that ultimately proves successful, in principle it would be entirely wrong. Five years is a perfectly adequate period within which to assess the merits of the proposal; that is, five years of operation, not just five years in chronological time, because the Minister has indicated that if the matter goes ahead, it will not be built until 2017. I hope that the Minister will accept both amendments, particularly the one in my name.
Lord Ramsbotham
My Lords, I am grateful to the Minister once again for the courtesy, care and attention he has paid to giving an answer, which, I must admit, was fuller and more reassuring than I had originally hoped.
I hope, however, that during this process between now and 2017 the same spirit of engagement between the Ministry of Justice, the Youth Justice Board and Members of both Houses will continue. As I am sure the Minister has detected, there is considerable interest, not just in the introduction of the secure college but in its method; we are particularly concerned about its ability to deal with these people.
The noble Lord mentioned the fact that staff move people around on sites but I am sure he reflects that very often the inertia in the day’s programme that prevents vast amounts of it being delivered is caused by trying to get people around a site and the problems that staff have in moving one lot while another lot have to stand fast, and so on. These are practicalities. If the complexity of the large site and keeping many groups separate is anything to go by, this is something that ought to be taken into account. Anyway, accepting the reassurances of the Minister, I withdraw the amendment.
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 7 months ago)
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Lord Ramsbotham (CB)
My Lords, I pay tribute to my noble and leaned friend, Lord Lloyd, for his tireless pursuit of this particular issue, which amounts to nothing less than a stain on our national reputation for observing the rule of law. More than that, as a former Chief Inspector of Prisons, I am most surprised that the Secretary of State, who is faced with enormous financial problems in the management of his prisons, should not be seeking every possible way of getting out of the prisons the people who should not be there. That is an avoidable expense, and I have said this over and over again.
Furthermore, as the Minister knows, the prisons do not have sufficient resources to provide the means by which these people can prove their right to be released to the Parole Board. Only last year, I reported to the House a most tragic case of an IPP prisoner who had already been in prison for more than three years after his tariff and was sent to a prison where he would receive the course that he required in order to satisfy the Parole Board, only to be told that not only did that prison not have the course, but it was not intending to do so for two years; so he committed suicide. He is not the only IPP prisoner to have taken his own life because of his despair of the Government exercising their obligations, which have been so clearly deployed by the noble and learned Lord, and observing this country’s reputation for observation of the rule of law.
Lord Hurd of Westwell (Con)
My Lords, this House is quite accustomed to criminal justice legislation and in debates of this kind looks inevitably to those who have genuine experience of the legal profession to take the lead. Every now and then, however, an issue comes up that requires some contribution from people like the noble Lord, Lord Ramsbotham, and myself who, although we are not trained lawyers and have never practised law, nevertheless in the course of our careers have come across, and have been made to come across, cases where injustice appears to have been done. This is turning into such a debate.
It is hard to unpick the excellent demonstration of the facts produced by the noble and learned Lord, Lord Lloyd of Berwick. We are left with those facts, but we have to find a remedy. The noble and learned Lord has set out in his amendment the only remedy that he thinks is to hand: to take back into Parliament, into our own hands, the permission—the discretion— which is given in the legislation to the Lord Chancellor, but which he repeatedly refuses to exercise, although the arguments for exercising that discretion have been made over and over again and are very strong indeed.
Therefore, I simply come in to say, as someone who is not a lawyer but who has been forced by his career to take an active interest in the effect of the law on individuals, that I see in this an example—I would say a flagrant one—of injustice being permitted, indeed committed, by those who do not intend it. Nevertheless, the law as proposed would have that effect. I therefore very much support the noble and learned Lord’s amendment and the arguments which have been put in its favour from all sides of the House.
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 10 months ago)
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Baroness Anelay of St Johns (Con)
My Lords, I wonder whether I might assist the noble Lord, Lord Ramsbotham, as I appreciate that the microphone did not come on at the beginning. I also appreciate that he is speaking from a position where many noble Lords are leaving either side of him. Perhaps noble Lords could leave speedily and the noble Lord, Lord Ramsbotham, might just hesitate for a few seconds to allow them to speed past him.
Lord Ramsbotham
My Lords, on Monday I listened with great interest to what the noble Lord, Lord Marks of Henley-on-Thames, said about the proposed secure college in moving his comprehensive Amendment 43C and to what the noble Lord, Lord Carlile of Berriew, said about the site selected for it and the unanimous opposition of all involved NGOs to the proposal. Both explained vividly why the noble Lord, Lord Beecham, and I feel sufficiently strongly about it to oppose Clause 29 standing part.
Before explaining my case, I compliment the Minister on honouring his admonition to the House at Second Reading to keep an open mind and for not resorting to the rhetoric used by his Secretary of State about what he clearly regards as his pet project. At Third Reading in the other place, Mr Grayling said that it was beyond him how the Opposition could criticise his once-in-a-generation reforms, urging them to “think again” before they played party politics,
“with the future of young people … and to turn away from siren voices that said that this was a brutal new regime”.—[Official Report, Commons, 17/6/14; col.1071.]
At a public conference I attended, he said that opposition to the secure colleges that he and the Deputy Prime Minister were committed to delivering with haste was a “totem of the left”.
Independent Cross-Benchers do not play party politics. I entirely agree, along with, I suspect, the vast majority of this House, with the Secretary of State’s analysis of why reform is needed and that the educational content of child custody must be improved. My criticism is not about the imposition of an alleged brutal new regime but, rather, that we lack any information about what regime is to be imposed on an establishment whose formation flies in the face of all the evidence of what does or does not work to satisfy the needs of children in custody. The Minister made much of the importance of allowing potential contractors to be creative and innovative but, as many noble Lords have pointed out, there are practical limits to that, such as the perpetual movement of children in and out of places of detention, requiring many individual syllabi.
My criticism is based on what I saw, marked, learnt and inwardly digested of the practical realities when responsible for inspecting secure children’s homes, secure children’s centres and young offender institutions, and on what I have seen and heard subsequently. Both at Second Reading and on Monday, the Minister said—unarguably—that we need to do better at rehabilitating young offenders because youth custodial outcomes are presently not good enough. By recognising that some people would continue to require separate specialist accommodation, the purpose of Part 2 of the Bill remains to establish a statutory framework for a pathfinder secure college, which the Government suggest is a solution to the problem. Educationalists and others will be invited to deliver a broad and intensive curriculum to support and engage young people. The House has already debated a consultation on the rules to ensure that establishments operate safely and securely, which is to be launched before Report.
In that connection, can the Minister confirm or deny that the person in NOMS responsible for writing the rules and policies for secure colleges is the former governor of HMYOI Brinsford, who was moved after the Chief Inspector of Prisons gave it a dreadful report, describing it as the single worst jail he had ever visited, to HMP Hewell—which is about to receive a dreadful inspection report—and from there to this role in NOMS? If that is true, I must question the judgment of whoever made the appointment.
While admitting that transformation could not happen overnight, the Minister claimed that the Government’s vision was justified by the fact that small local facilities simply could not deliver the high-quality and broad-ranging facilities that meet the diverse needs of young people. If Parliament did not share that vision, the construction of the next generation of facilities would have to take place within the existing framework.
Lord Faulks
I dealt with these points on Monday. We are proposing to keep these secure children’s homes open for the appropriate offender. The involvement of the Youth Justice Board will, we suggest, ensure that the right offenders find their way into secure colleges.
Lord Ramsbotham
My Lords, I must admit that I am disappointed by the line that the Minister has taken, particularly in view of the very helpful contributions made by the noble Lords, Lord Cormack and Lord Marks, and the right reverend Prelate. I had hoped that, by outlining all these suggestions, we would not have merely one solution put forward to us—pathfinder or not, staged or not—but there appears to be no give on the general intent. Yes, the Youth Justice Board is responsible for commissioning, but what the Youth Justice Board has always been responsible for commissioning is a situation that it inherited. So far, I am not aware that there has been any attempt to look right across the whole system and perhaps design something using the existing situation to make better use of it to provide the aims that we all want. The Government have come up with the solution of the secure training centre, which has attracted opposition from all those who have had anything to do with young offenders. I hope they will be given more attention.
I am grateful for the contributions that have been made across the Committee. As I said at the start, I do not intend to seek the opinion of the Committee with a vote at this stage, because we all have to go away and read not only what happened on Monday, to which the Minister referred—indeed, some of it has come up again—but what has been raised here. I hope that the Government will have considered this, on calm reflection, when we come back to it on Report. The Government will know that many people long to take part in the deliberations and contribute what they have because they feel excluded from this. They feel that this is a solution that has been put to them without any explanation. Yes, there have been meetings and they have had the site explained, but we have not had all the details of the regime and answers to all the other questions that have come up, because the Government have admitted that they simply will not know the answers to those until they have opened the envelopes from the competitive bidders.
Personally, I would have been much happier if any development of a site by a contractor was in conjunction with the provider of the education to make certain the contractor is doing what the education provider needs. However, as we do not know who the education person is, what is the point of a designer going ahead with something that the person who is going to use it has not had any say in?
I very much hope there will be a great deal of consideration. As I say, I hope the Government will engage those who want to get involved to make sure the solution for our young children is the best possible, based on all the experience there is and all the good practice that is known.
Criminal Justice and Courts Bill
Lord Ramsbotham Excerpts(9 years, 10 months ago)
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Lord Ramsbotham (CB)
I shall speak to Amendments 43, 44B, 45, 47 and 48 in my name and support without further comment Amendments 42F, 42G, 42J, 42K, 43, 43A, 44A and 45A, to which I have added my name, and about which the noble Lord, Lord Beecham, has spoken so eloquently. Later in the proceedings I shall speak on clause stand part, putting forward alternative proposals to those about which so many object so strongly—witness the complex Lib Dem Amendment 43C.
At Third Reading of the Bill in the other place, the Secretary of State said of the Government that they were not a Government who,
“legislated without taking into account the views of Parliament”. —[Official Report, Commons, 17/6/14; col. 1070.]
Those of us who observed the deliberate way in which Parliament was denied the opportunity to discuss changes to the way probation is delivered have reason to question this. There has already been discussion about secure college rules at Second Reading, when the Minister told the House that some, but not all, were to be subjected to the consultation process, which would be launched before Report. He assured us that this included those related to the use of reasonable force in the interests of good order and discipline, which subject is to be discussed in the next group. However, in addition to its incomplete nature I am concerned that the consultation process will not be completed before the Bill has completed its passage through both Houses, thus reducing parliamentary involvement in the consultation to something of a farce. The Minister will remember that I asked him, when he addressed a Cross-Bench meeting, whether or not these rules had been published. The head of the Bill team said that they had not, in contradiction to the Secretary of State, who told the other place at Third Reading that they had; that appears in col. 1071 of Hansard on 17 June.
As the noble Lord, Lord Beecham, has pointed out, instead of laying down what regime potential contractors are to provide in secure colleges, the Government appear to be inviting them to say what they propose to do, the best alleged value for money then presumably being adopted as government policy. But by no stretch of the imagination should any country that claims to be civilised do the same as far as rules governing the good order and discipline of children are concerned. Therefore Amendment 43 is designed to ensure that Parliament is given an opportunity to scrutinise and approve whatever the Government lay down in this regard.
I have a further plea for the Minister regarding the consultation on the rules. I hope that this time it will be a proper consultation and not yet another Ministry of Justice travesty which consists of calling for consultations and then publishing a pre-determined plan regardless.
Amendment 44B relates to changes made during the passage of the Children and Families Bill regarding children with special educational and speech, language and communication needs. Originally, children in detention were excluded from any provision, including education, health and care plans that home local authorities were required to make for any child with such needs. However, that has changed, and not only are places of detention now required to provide resources to enable an EHC plan to be continued while in custody, but that place is responsible for informing the local authority if the child is moved. Furthermore, a child can be assessed while in custody and an EHC plan made which is then binding on the home local authority on his or her release.
My amendment is designed to place a duty on the principal of a secure college, to use their best endeavours to ensure not only bthat the needs of those children arriving with the existing EHC plans are met but that staff are trained to identify those with problems so that they can then be assessed for such plans. This is not a new subject, because on Report in the other place, the Minister agreed that,
“a great deal of further thought will be given to how those needs can be met”.—[Official Report, Commons, 12/5/14; col. 538.]
What action has been taken in this regard?
Amendment 45 relates to the vexed issue of staffing. As the Minister knows, the principal reason for the relatively high cost of secure children’s homes is the high staff-child ratio, which reflects the numbers of specialists whom this age group needs. As I found when inspecting private sector prisons, companies were tempted to take risks with staffing to preserve their profit margins, which led to problems over safety. Furthermore, because of the wages that such companies pay to unskilled employees there is a very high turnover of junior staff, which is the very antithesis of a key point in successful working with the kind of children we are talking about, namely enabling long-term contact with responsible adults. Can the Minister say whether minimum staff-children ratios have been laid down, so that secure college contractors cannot take short cuts with children’s safety?
Amendment 47 seeks to ensure that the Secretary of State specifies the content of the educational programme that the Government have said they will provide in order to double current provision. So far, we have no details of whether this refers to academic-only content—related to the current 12 hours a week provided in YOIs, 25 hours in secure training centres or 30 hours in secure children’s homes—or what proportion will be vocational, physical, social or whatever. Without any baseline, how can the Government possibly judge the efficacy of any competitive bid? To be quite honest, it seems that the Government simply have not a clue about what is needed to satisfy their specious claim and that, under the smokescreen of phoney commercial in-confidence claims, they are hoping that potential providers will come up with some answers that they can then pretend are their programme. I challenge the Minister to prove that I am wrong by producing evidence of the details of the programme that has been put out to tender, and details of who evaluated its ability to meet the need.
Finally, Amendment 48 refers to the statutory training of secure college custody officers. To be utterly frank, the twin issues of quality and qualifications of staff trouble me greatly because of the damage that unsuitable or ill trained people can do to already damaged children. I remember meeting an old Army colleague—a member of my personal protection team when I was commanding my regiment in Belfast—after a gap of 20 years, when he was the senior officer responsible for the reception of children at HM YOI Onley, which was first the YOI that I inspected. I had added a social services inspector to my team because at that time we had no children’s custody expert. After two days, she told me that if Onley were a secure children’s home, she would have recommended the immediate closure of its children’s part because of the paucity of its regime and the lack of qualified staff.
I then met Corporal Gibbons and asked what I could give him if I had a magic wand. I shall never forget his answer: “Time—20 minutes trying to convince these young people that, for the first time in their lives, a responsible adult is taking an interest in them is worth all the hours of programmes, or whatever they call them”. The lesson still applies today and woe betide anyone who forgets it. The purpose of this amendment is to enable Parliament to ensure that all secure college staff are qualified to make the best use of the time available to them, which will enable them to make the vital breakthrough in changing troubled young lives.
Lord Marks of Henley-on-Thames (LD)
My Lords, in this group I speak principally to Amendment 43C in my name, and in the names of my noble friends Lady Linklater, Lord Carlile and Lord Dholakia.
In spite of the comment of the noble Lord, Lord Ramsbotham, to the effect that our amendment was unduly complex—
Lord Marks of Henley-on-Thames
I am very grateful: I certainly heard “complex” and was slightly surprised, because I have support from the Back Benches. I thought that we were rather saying the same things. A feature of this debate is that all the amendments in this group, including that of the noble Lord, Lord Hodgson of Astley Abbotts, have been directed really towards the same concerns and issues.
Since the proposal for secure colleges was published as part of the Bill it has provoked a great deal of public and well informed criticism. For my part, I am indebted to the Children’s Rights Alliance for England, the Howard League for Penal Reform, the Standing Committee for Youth Justice and others for their advice, for full and well informed briefings, and for meeting me.
We have sought in our amendment to set out two mandatory principles, the need for which we now consider is firmly established, and a number of aims that we believe the Secretary of State must strive to meet if the proposal for secure colleges is to be implemented. We completely agree with the aim of the Secretary of State to ensure that young people in custody enjoy full educational opportunities. He is right to start from the position that the involvement in education of many of our young people in custody has in the past been minimal and their educational attainment virtually negligible. If we are to address their criminality, a good starting point is to try to give them some genuine education from which they may benefit in their future lives. The question is how we achieve that effectively.
We are concerned that the idea that we could somehow create on a residential basis in the prison estate large but secure colleges with some resemblance to schools may be misguided and unrealistic. As I mentioned earlier today, the number of young people now in custody is below 1,100. On all the best evidence it is simply inappropriate to attempt to contain large numbers of those young people together, regardless of gender and age. As has been repeatedly emphasised in this debate and at Second Reading, young offenders in detention represent a group of young people with a mixture of diverse and serious problems.
The first subsection of our proposed new clause would therefore provide the two mandatory points mentioned: that secure colleges may not be used for the detention of girls or persons under the age of 15. The evidence has satisfied us that it is simply unsafe to mix boys of all ages from under 15 to 18 together with girls in custody in one institution. Given all the evidence, we cannot believe now that the Government would wish to proceed on any other basis. I invite the Minister to confirm as soon as he can that that is the position.
Our second subsection is designed to ensure that the welfare of persons detained in any secure college has to be the primary consideration that the Secretary of State will have in mind in making any decisions that affect the lives of those in custody. In one sense, that may be obvious, but we feel it should be clearly stated in the Bill.
Our third subsection, comprehensive or complex as it may be, sets out a number of aims that the Secretary of State should be required to keep at the forefront of his mind when setting up and providing any secure college. I do not shirk from saying that I fear that many of these aims are incompatible with what we understand to be the Government’s present intention to establish a large, secure college in the Midlands housing nearly one-third of all young offenders currently in detention.
The first consideration must be the provision of a safe and secure environment for all those detained in secure colleges. The next aim must be that any secure college is of an appropriate size. Having considered the question of size, I now have no doubt that what we mean by “appropriate” is “small”. All the evidence we have considered suggests that a small institution capable of giving young offenders individual attention is essential to rehabilitation and educational attainment.
We also believe that it is very important that young offenders are detained close to home. Their families should be able to visit them and stay overnight if necessary. We have stressed throughout this Parliament the importance of rehabilitating young offenders within their communities specifically so that upon release they may come out and rejoin their families, friends and communities with some hope of local employment to come. Education in custody should be directed to that end.
One aspect of the current proposal for secure colleges that causes us concern is the idea that young offenders may be moved miles from their families, which could prove profoundly damaging. An associated concern that follows from that is that supervision before and after release, which we have made a priority, will lack the continuity that we have promised. If an offender is in custody, as is proposed, in an institution near Leicester and is to be released to Cornwall, it is unlikely that there can be any meaningful continuity of supervision.
Furthermore, we believe that if secure colleges are to achieve what they set out to achieve, real thought needs to be given to the type of educational opportunities that can realistically be offered. It is bound to be very difficult to provide suitable courses for young offenders who are sentenced at different times, due to be released at different times and sentenced for different periods. The noble Lord, Lord Beecham, mentioned that 79 days is the average period in custody. We cannot imagine that courses can be arranged that will meet the needs of more than a very few offenders at a time. Given what noble Lords have said, I ask my noble friend to elucidate what the Secretary of State has in mind. The question of distance or online learning raised by my noble friend Lord Hodgson of Astley Abbotts may well merit further consideration.
There is also the question of outdoor and sporting facilities and facilities for indoor recreation. It is crucial that the recreational needs of these young people be catered for. In the proposed very large pathfinder secure college, we are concerned that these facilities may be, if not entirely, at least very largely, lacking.
There is considerable concern, which has been mentioned by other noble Lords, about staffing and the need for staff with specialist training across a range of skills: not just teachers but counsellors, medics and others. My noble friend needs no reminding that many of the young offenders detained in these colleges will have special educational needs. Many of them will also have particular problems relating to their physical and particularly mental health. A number of young offenders have problems arising from drug or alcohol abuse; many come from profoundly dysfunctional backgrounds, many from criminal families. These issues need careful and focused personal attention. Will a secure college environment, as is proposed, be able to meet these needs?
Our final proposed new subsection would require the Secretary of State to consult the Youth Justice Board as to how the aims that we have set out might be achieved. I fear that there is a great deal of work to be done. We doubt that the present proposal can in its present state properly proceed, and we urge the Secretary of State to ensure that all decisions in this area are firmly based on sound evidence and good advice. The rehabilitation of young offenders is too important to be the subject of a gamble on a less than fully developed idea.
In summary, we fully support the Government’s aim to provide more and better education in custody, but we doubt that the present proposals for secure colleges have any realistic prospect of achieving it.
Lord Marks of Henley-on-Thames
My Lords, Amendment 42L is merely formal. This group refers to the use of force in the secure colleges, and in particular to force against young persons detained there.
Amendment 42M, which is not purely formal, would require the secure college rules, in so far as they authorise the use of force against young offenders—it is much narrower than the other amendment relating to procedure—to be made by statutory instrument under the affirmative rather than the negative procedure. Under this amendment, it would also be a requirement that the Secretary of State should consult on the proposed secure college rules with the Youth Justice Board and the Independent Restraint Advisory Panel before laying a draft before Parliament.
The requirement for an affirmative resolution for secure college rules authorising force was a recommendation of the Delegated Powers and Regulatory Reform Committee, on which I serve. The recommendation was made notwithstanding that other prison rules—even for young people, as my noble friend has pointed out—are subject to the negative procedure. However, these are extremely important rules concerning the use of force against children. The committee was very influenced by the clear views of the Joint Committee on Human Rights and the decision of the Court of Appeal in 2009 in C v the Secretary of State for Justice that the proposals for the use of force for the purpose of maintaining good order and discipline were, as they stand in the Bill, inconsistent with Article 3 of the European convention.
The provisions authorising the use of force in the Bill for contracted-out secure colleges are indeed profoundly discouraging. As I mentioned, force is to be permitted to be authorised for purposes which include ensuring good order and discipline on the part of inmates and attending to their well-being. These purposes are far too wide. They smack of a military origin and are out of sympathy with contemporary views on the restriction of the use of force against children. Your Lordships will wish to be extremely vigilant where we are concerned with the authorisation of such force. We accept the Joint Committee’s clear view that the proposed authorisation of force would infringe Article 3.
Contemporary views on the use of force against young people are that the correct way to frame such authorisation is to ensure that the force used is minimal and restricted to what is absolutely necessary. Our Amendment 42N attempts to achieve this and its purposes are restricted by reference to five conditions. It says that,
“the first condition is that the force is authorised only for the purpose of … self-defence or the protection of others, including the protection of the person against whom the use of force is authorised … the prevention of serious damage to property”,
preventing escape and carrying out an authorised search. The second condition, which is crucial, is that force can be authorised for use only “as a last resort”. The third is,
“that the force authorised must be the minimum necessary to achieve the purpose”.
The fourth is that the force must be used,
“for the minimum duration necessary to achieve”,
that purpose, and the fifth is that the force should be,
“limited to techniques forming part of an approved system of restraint”.
We have added to that a requirement that:
“Secure college rules must provide that”,
all those who are “authorised to use force” should have been properly trained,
“in the use of force and in minimum restraint techniques”.
This represents a sensible contemporary view of the appropriate authorisation of the use of force in such colleges as are proposed for the restraint of young people. We contend that these restrictions should appear on the face of the legislation, in the terms that we have described. I beg to move.
Lord Ramsbotham
My Lords, I shall speak briefly to Amendments 46 and 46A in this group. All I want to say is that I for one simply do not understand why there is any need to have this proposal in here, when already there has been an independent review of restraint in juvenile secure settings, which was chaired by the previous chairman of the Royal College of Psychiatrists. She was a most eminent adolescent psychiatrist and she produced what were called minimum rules, which were published by the previous Secretary of State. If minimum rules for the use of restraint in secure children’s settings have already been produced by a Secretary of State, I simply cannot see why there is any need to go down this route, which seems to be an own goal of monumental proportions when there is already something to prevent you even being on that pitch.
Lord Faulks
My Lords, I am grateful for the opportunity to debate these amendments from various noble Lords. I recognise that the use of force in relation to young people in custody is a sensitive and important issue. I will explain the effect of these amendments, and also our intentions in respect of the use of force.
The effect of the amendment proposed by the noble Lord, Lord Ramsbotham, would be to remove the power of custody officers in secure colleges to use, if authorised to do so by the rules, reasonable force where necessary in carrying out their functions. I am sure that noble Lords would agree with me that there are some circumstances, such as to prevent an escape from custody or to prevent harm to themselves, another young person or staff member, in which the use of force could be necessary and where it is desirable to have rules setting out when, how and what force a custody officer is authorised to use. The effect of this amendment would be to prevent that, and we believe that that is too limiting.
Another amendment differs in that it sets out a series of circumstances in which rules may authorise the use of force. The effect of this amendment would be to restrict the circumstances in which custody officers can use force, if authorised by rules to do so, to the prevention of harm to the child or others.
Amendments 42N, 46B and 46C, tabled by the noble Lords, Lord Marks, Lord Carlile and Lord Dholakia, and the noble Baroness, Lady Linklater, would prevent the use of force to ensure good order and discipline and have the effect of setting out in detail the conditions which must be satisfied in relation to any use of force by secure college custody officers.
In relation to use of force more widely, I should like to make clear, and I can reassure your Lordships, that we agree with the conditions set out in these amendments that in all cases force should be used only as a last resort; that the minimum amount of force should be used for the minimum time possible; that only approved restraint techniques may be used; and that they should be used only by officers who have received training in those techniques.
Considerable improvements have been made to restraint practice in recent years, including the introduction of a new system of restraint known as MMPR. It has been independently assessed by a panel of medical and child welfare experts. The Independent Restraint Advisory Panel was formed specifically to monitor the implementation of MMPR. It is currently being rolled out to under-18 young offender institutions and secure training centres. It is our intention that this system of restraint would also be used in secure colleges.
The fundamental principle of MMPR is to minimise and, wherever possible, avoid the use of physical restraint. Staff working with young people in STCs and under-18 YOIs receive a comprehensive programme of training that puts considerable emphasis on using appropriate de-escalation and deceleration techniques—non-physical interventions—to ensure that restraint is only ever used as a last resort, when no other intervention is possible or appropriate, and that if use of force is required it is the minimum possible for the minimum amount of time.
I recognise that the issue of use of force to ensure good order and discipline is one of the primary concerns behind these amendments. A custody officer’s duties include ensuring good order and discipline, and the Bill provides that reasonable force may be used for this purpose, but only if specific provision is made in secure college rules. Rules are the correct place to be setting out the boundaries on use of force. The drafting in the Bill ensures absolute clarity on this point; a custody officer must be authorised by the rules to use force. I recognise that the term “good order and discipline” could be seen to be too broad in this context, and perhaps the term “discipline” is not helpful, as it could imply some element of punishment. We are clear that any use of force for the purposes of disciplining and punishing is prohibited. However, it is worth noting that use of reasonable force to ensure good order and discipline is provided for elsewhere in legislation. For example, although a different setting to custody and covered by specific guidance, use of reasonable force for maintaining good order and discipline is permitted in schools.
As I set out in the document that I sent to all Peers before Second Reading, the Government’s position is that force may be used only to ensure good order and discipline where there are clear risks to maintaining a safe and stable environment for young people, and that the use of force is a necessary and proportionate response in order to protect the safety and welfare of the individual or of others.
We consider that there may be limited situations in which all attempts at resolving and de-escalating an incident have failed, and where a young person’s behaviour is such that it is impacting on their own safety and welfare or that of others. In those limited situations, and then only as a last resort, we believe that some force—the minimum necessary, for the shortest time possible and subject to strict conditions and safeguards designed to ensure respect for the young person’s dignity and physical integrity—may be necessary.
Furthermore, force for reasons of punishment would not be permitted, and use of restraint techniques intended to cause pain would not be permitted. Use of force would be permitted only when staff are satisfied that they have assembled the resources to ensure the safest use of force and a full risk assessment has been conducted. This includes the attendance of healthcare staff.
As I explained to the House at Second Reading, ahead of Report we will launch a public consultation on our approach to secure college rules. This consultation will include our proposals relating to the use of force to ensure good order and discipline, as well as the use of force more widely. I will welcome responses from noble Lords and others on this important issue.
Regarding the noble Lord’s Amendment 42M, as a matter of principle I do not think it is necessary to specify in the Bill who the Secretary of State has to consult with. We will of course work closely with the Youth Justice Board as we plan for the introduction of the pathfinder secure college. At the end of April 2014, following the conclusion of its work, the Independent Restraint Advisory Panel was dissolved.
I recognise that the use of force in youth custody is a very sensitive issue. We are conscious of our international obligations and of the implications of the Court of Appeal’s decision in C. I hope in this reply I have been able to provide some assurance of the Government’s intentions regarding the use of force in secure colleges. I should also add that we are conscious of the Delegated Powers Committee’s recommendation, which we will consider, and I look forward to continuing this discussion through our public consultation. In the light of that reassurance I hope the noble Lord will withdraw the amendment.
Lord Ramsbotham
My Lords, I was responsible for conducting an inquiry into the death of an Angolan called Jimmy Mubenga in an aircraft on the way back from Heathrow. He was under the escort of G4S guards, who have subsequently been charged with his murder. One of the problems that has come up with the Home Office is that nobody is responsible for the oversight of the training and assessment of the security company guards who are meant to escort people who are being deported from this country.
The problem is that the secure college staff will also be from the private sector. The Home Office is currently working out a code of practice that includes the involvement of the Security Industry Authority, which has responsibility for the supervision of people working in the criminal justice system. I very much hope this will be included in the work. It is all very well saying that staff will be trained, but who is responsible for both supervising the training and making certain that people’s training is up to date? That has been one of the problems with the escorts of people who are deported.
Lord Faulks
I am grateful for that contribution. I do not propose to give a detailed response now, but it is something that we will factor in.