Safety in Youth Custody

Marie Rimmer Excerpts

Wednesday 20th January 2016 Westminster Hall

[Judith Cummins]

I thank the hon. Gentleman for raising that interesting point, which I hope to cover later.

My belief is that, no matter what someone’s upbringing is, and whatever their political affiliation and perspective on law and order, there is a shared and enduring view that the safety of children and young people is of paramount concern. Each and every one of us believes that we must ensure that each and every child and young person is able to feel safe, wherever in the country they live. As we all know instinctively, each child and young person deserves to grow up in a nurturing, encouraging and, most importantly, safe environment. That is true in all settings—in the home, in schools or, as we are debating today, in our custodial institutions. The setting does not matter because whatever the circumstances, and whatever children and young people may have done in their short lives, regardless of whether they have been found to have acted criminally, they remain children.

We have always quite rightly held children and young people to be different from adults. Children and young people with their whole lives ahead of them are still finding their way in life and learning what it is to make their way in the world. As we sorely know, too many children and young people, especially those who find themselves in custody and in the care system, far too often find their way in life in the most desperate of circumstances. Too many live in unsafe homes or go hungry. Too many see horrific things that no person, never mind a child, should ever see. Too many suffer from mental illness that is often unrecognised and untreated, or have not received the help and support that might, in better circumstances, have lifted them away from criminal behaviour and supported them into becoming successful, loving and humane children and young people.

At this point, I pause and acknowledge that we could very easily spend all day debating the desperate circumstances that so many children find themselves in, but that is not the topic today. Today, I wish to discuss just one very important element of the safety of, without doubt, our most vulnerable children—those who are held in our custodial institutions. In leading the debate, we cannot ignore the scandalous revelations of the past weeks, broken by BBC’s “Panorama”, concerning Medway secure training centre, an institution managed by G4S. I am sure we all recoiled with revulsion at the scenes that played out on our screens during the programme: young people subjected to the most horrific maltreatment and children struggling to breathe as they were restrained by apparent professionals. Such scenes in a documentary about prisons in developing nations would have sent a shiver up our backs, but those scenes took place in a UK establishment that exists to care for children while they are held in custody.

I do not propose to discuss the “Panorama” allegations in any great deal as they are subject to an ongoing police investigation but, as we debate this important matter, the scenes that we saw on our television screens should remain vividly in our minds because they confirm one thing: complacency is never an option. The safety of our most vulnerable children—those held in custody in establishments throughout the country—is forever fragile and under threat. We must be forever vigilant. Further incidents are only a hair’s breadth of complacency away.

With those thoughts clear in our mind, it is worth reminding ourselves of what this House passed into law in 1998. The Crime and Disorder Act 1998 did two important things. First, it stated that the youth justice system’s principal aim was to prevent reoffending by our children and young people. Secondly, it established the Youth Justice Board, which was given the job of making that noble aim a reality. The Youth Justice Board, in setting its strategic objectives for 2014 to 2017, recognised that an undeniable cornerstone of successfully helping children back into society is

“to promote the safety and welfare of children and young people in the criminal justice system”.

In recognising that safety and wellbeing is a fundamental cornerstone of the successful rehabilitation of children and young people, the Youth Justice Board acknowledged in clear and unambiguous terms what we all know instinctively as parents, as brothers and sisters, as aunties and uncles and as other family members: where children and young people feel unsafe, insecure, intimidated and under threat of violence, everything else becomes background noise. Efforts to help children to socialise, learn and become confident in themselves stop and begin to regress, as do efforts to teach children the values and principles of choosing to live respectfully, humanely and in a law-abiding manner in society and communities.

If the principal aim of the Youth Justice Board is to prevent reoffending, safety in custodial institutions is not only key, but imperative. Without it, helping children and young people to become respectful, humane and law-abiding adults is an empty hope. Everything else is simply background noise. The question is: what success is our youth justice system having in ensuring that children and young people are being held in a safe environment while they are custody? Sadly, from the statistics provided by the House of Commons Library, the picture is depressing and worrying. That remains the case for the use of restrictive physical intervention—in layman’s terms, when staff restrain children—incidents of self-harm by children, assault on children and young people in custody or, most damningly and depressingly, deaths in custody.

Thankfully, the number of children who have been committed to custody in recent years has steadily fallen. All hon. Members would surely welcome this improving position but, although the number of each type of incident has dropped over recent years, the number of each type of incident per hundred children and young people in custody—the most accurate measure—has steadily increased. Whichever way we look at it, those in custody are becoming proportionately more likely to find themselves in an unsafe environment. With the “Panorama” revelations of the past weeks in mind and the erosion of safety in our custodial establishment only serving to bring the issue into sharper focus, it prompts the question: what are this Conservative Government doing to improve the safety of children and young people, and to help them to re-enter society, equipping them to become law-abiding, respectful and humane members of our communities?

In recent years, there have been a number of expert reports that have explored the safety of children and young people in custody. Inquest, alongside the Prison Reform Trust, released a report in 2012 raising important questions about the number of self-inflicted deaths in our custodial institutions. More recently, in 2015, Inquest released another report raising unsettling questions about deaths in our institutions. The Howard League for Penal Reform released a report in 2011 exploring the questions of restraint in our institutions—that work has become especially resonant following the “Panorama” revelations of the last week. I pay tribute to each of those organisations alongside so many others that I have not been able to mention which, through their continuing and valiant efforts, are successfully keeping the question of safety so firmly on both the parliamentary and public agendas.

[Marie Rimmer (St Helens South and Whiston) (Lab)]

Does my hon. Friend agree that probation and pre-sentence reports should consider the impact of maturity on a young person’s ability to cope with prison? There should be up-to-date information on local alternatives to prison, which should also be considered. We should consider transforming sentencing policies; radically restructuring the training of the judiciary; and introducing far-reaching and well-resourced alternatives that are well staffed by individuals who are properly trained to address the complex issues that confront many young people. We should develop a criminal justice system in which prisons for young people are used as a last resort, as the Harris review said. Does she agree?

[Judith Cummins]

I agree wholeheartedly with my hon. Friend. Her Majesty’s inspectorate of prisons, to its credit, has remained committed, as it has under previous Governments, to continuing scrutiny of the safety of children and young people in custody. Today, I will focus on one element of the Government’s responsibilities —their responsibility to ensure that restraint in our institutions is limited to an absolute minimum and is used solely when all other avenues fail. As I said earlier, although it is only one element of the Government’s responsibilities, restraint is arguably one of the most important. When children and young people are unnecessarily restrained, they will inevitably feel unsafe, threatened and intimidated. In such circumstances, everything else is background noise, progress ceases and children regress.

In 2012, the previous coalition Government set up the independent restraint advisory panel, which, among other things, was responsible for rolling out across all custodial institutions a new restraint system called “Managing and Minimising Physical Restraint.” That was the coalition Government’s commitment to improving the unsafe environment of all those in custody. By setting in train that cultural shift in which unnecessary restraint would become unacceptable, they displayed laudable ambition, for which I commend them.

As seems to be the case with many initiatives under this Government, despite laudable ambitions and promises of much-needed cultural shifts, the ambition and promises have not been borne out in reality. As has recently become clear, the much-needed change on the ground has been, and continues to be, painfully and unacceptably slow. In November 2015, Her Majesty’s inspectorate of prisons published a report on behaviour management and restraint of children in custody, which objectively measured the Government’s progress in rolling out their new restraint system. Depressingly, Nick Hardwick, Her Majesty’s chief inspector of prisons, offered a damning indictment of progress under this Government:

“The implementation…is taking place against a backdrop of a substantial fall in the number of children in custody, the decommissioning of beds…and staffing shortages… This has caused significant delay in the roll out”.

It is not only Her Majesty’s inspectorate of prisons that has challenged the Government on their complacency in driving improved safety in our custodial institutions. The Joint Committee on Human Rights recently conducted an inquiry into the UK’s compliance with the UN convention on the rights of the child. Children in custody was one area that the Joint Committee rightly considered to be deserving of scrutiny. Although the Joint Committee welcomed the Conservative Government’s progress in recognising children’s rights in law and policy, it said in no uncertain terms that there is no room for complacency and that much more needs to be done. On child custody, the Joint Committee said:

“We remain very concerned about the use of force on children in custody and believe that the recent provisions with regard to secure colleges in the Criminal Justice and Courts Act cannot be considered compatible with the UN Convention on the Rights of the Child.”

Worryingly, despite those critical remarks not only from the Government’s own independent inspectorate but from a cross-parliamentary Committee, the Government continue to act with disturbing complacency. In response to an urgent question granted by Mr Speaker following the “Panorama” revelations, the Justice Secretary offered nothing more than cursory assurances about the safety of our children and young people in custody. There were no firm guarantees and no commitment to action. One line of his response underlines that the Government’s commitment to laudable ambition is backed up by little to no substance:

“my Department and the Youth Justice Board—under the determined leadership of my right hon. and noble Friend Lord McNally—will do everything we can to assist the police and the local council.”—[Official Report, 11 January 2016; Vol. 604, c. 573.]

Why do I say little to no substance? Well, the Justice Secretary failed to mention the financial backdrop—a 5%, or £13.5 million, in-year budget cut to the Youth Justice Board, the very institution that he believes will be front and centre in helping the local council to respond to the scandalous revelations of the past week. He also did not mention that £9 million of the £13.5 million cut, the lion’s share, is to be found by cutting the youth justice grant, the very grant that is used by local councils to fund their local youth justice teams.

The Justice Secretary recently announced the Taylor review of youth justice. The stated purpose of that review, due to report in summer 2016, is to explore whether the youth justice system remains fit for purpose in these modern times. Following today’s debate, it will be clear to the Government that, despite their ambitions and the Justice Secretary’s warm words, many believe that there is a distinct lack of substance and that there is wide-ranging evidence of complacency. That serves no one, particularly not our children and young people, who so very much need our help and support, especially to ensure that they are safe while held in our custodial institutions. I urge the Justice Secretary and the Minister to reflect on today’s debate and on the recommendations of the Taylor review later this year.

--- Later in debate ---

[Kelly Tolhurst (Rochester and Strood) (Con)]

I would like first to thank the hon. Member for Bradford South (Judith Cummins) for securing this debate in Westminster Hall today. As hon. Members will know, the Medway Secure Training Centre is in my constituency, and for me it was heart-breaking and horrifying to witness the “Panorama” programme and watch the activity that was taking place. We knew this programme was going to be broadcast, but what I saw was not what I had expected to see. I say that because, on an individual level and prior to becoming an MP, I did a lot of work with looked-after children, particularly children with foster carers or in children’s homes, so I understand not only some of the challenges that some of our young people face when they are looked after, but the upbringing that some of them have had prior to arriving in a place such as the Medway Secure Training Centre.

I know that we will not go into detail, because the investigation is ongoing and there are still questions that need to be answered, but one of the concerns for me is about how we can support the workers in these particular institutions to enable them to carry out their role in a safe manner, to make sure that the young people under their control are looked after and safe. Having worked with some very challenging young people and experienced what I would call situations that have not always been pleasant or easy to manage, I know that the people working in the service and dealing with young people are in an incredibly pressurised environment. It is extremely intense, and sometimes we do not quite know how we will deal with a particular situation.

I absolutely accept that that is not an acceptable excuse for how some young people are treated when they are in our care. However, as an outcome of this process I would like to consider how we support the officers who work with these young people to do that job effectively, including from a mental health perspective, because obviously some of the things they might be subjected to and the backgrounds of some of the young people they deal with might be awful for them to understand.

In Medway, we have three secure units up at the Medway Secure Training Centre site. One of the challenges I have seen, both as a constituency MP and as a local councillor for the ward where the unit is, is that we have struggled to recruit people into the youth justice element of the secure centres—because, fundamentally, working there is very different from working in an adult prison and the pressures are much more strenuous. I would welcome it if the Government looked at ways to support those officers far more effectively—that would probably have national implications—and also to encourage people to come into the service and work. As we know, however, we are struggling to recruit social workers and other such workers.

[Marie Rimmer]

Does the hon. Lady agree that if prison is to be justified as a last resort, it must operate in a small, rehabilitative and therapeutic environment, rather than having big prisons? What we need is a well structured induction programme, adapted to suit each individual—many children do not see anyone in the first 24 hours after they go in—with thorough background checks carried out; risk assessments; well attended safeguarding and daily morning meetings, allowing for effective and robust measures to be applied; strong monitoring of bullying and support for prisoners who are victimised—

[Phil Wilson (in the Chair)]

Order. I remind the hon. Member that she is making an intervention and not a speech.

--- Later in debate ---

[Andrew Selous]

There was a competitive bid to run the contract. Ministry of Justice officials, who are wholly independent from Ministers, scrutinised all the bids using set criteria. They demanded higher standards than we currently have in the STCs. We are satisfied that there was a robust, proper, independent and legal process.

Following the re-tendering of the Rainsbrook STC last year, we selected a new provider, MTCnovo, to take over the running of the centre from May 2016. The YJB put in place an enhanced monitoring plan that aims to support G4S to continue to make the required improvements, as well as supporting MTCnovo as it takes over delivery. We are clear that standards must continue to rise before MTCnovo takes over the contract.

Although youth offending has fallen, reoffending rates have remained high, particularly for those leaving youth custody. We acknowledge that violence in custody has risen and that we are dealing with an increasingly challenging cohort of young people in our custody. As I said earlier, there are no simple solutions to that, which is why the Secretary of State and I agree that the youth justice system requires reform.

As Members will be aware, we asked Charlie Taylor, the former chief executive of the National College for Teaching and Leadership, to conduct a review of youth justice. He is looking at the evidence and current practice in preventing youth crime and rehabilitating young offenders; how the youth justice system can most effectively interact with wider services for children and young people; and whether the current arrangements are fit for purpose. The review will publish an interim report shortly and conclude this summer.

I recognise and share Members’ concern about the allegations featured in the “Panorama” programme, but hope I have reassured colleagues that young people’s safety and wellbeing will remain central to how we look after young people in custody. As my hon. Friend the Member for Rochester and Strood said, the vast majority of those working in the youth justice system display high levels of professionalism and dedication in working with young people from particularly complex and challenging backgrounds. They are committed to the rehabilitation and support of the young people in their care.

[Marie Rimmer]

Will the Minister please consider introducing a duty of candour for custodial institutions, as has been introduced in the health service?

[Andrew Selous]

I am aware that a duty of candour has been introduced in the NHS to good effect, I believe. I commit to look carefully at the lessons learned from its introduction in the NHS to see whether one could be applicable to the youth justice system.

I am clear that the provision of safe, decent and secure environments is an essential foundation for achieving our objectives to protect the public and reduce reoffending. We will continue to challenge the youth justice system to provide the best possible support and the highest levels of care for young people in youth custody.