5. Supplementary memorandum submitted
by the Home Office
Following the evidence I gave before the Home
Affairs Committee on 8 November 2005, this letter provides the
information I promised on five subjects, and also provides clarification
on three additional points.
Self-inflicted deaths in June 2005
The 16 self-inflicted deaths in June were the
highest ever for a calendar month. June 2005 saw also a then record
prison population. Experience tells us that the number of deaths
does fluctuate—for example, there were only four deaths
in April and May, the lowest in two months since 1992. Regarding
the change in prisoner population in June 2005, I can confirm
that the prison population rose by 49. Comparing this with other
months in 2005:
Population at end January: 74,204
Population at end February: 75,354 (increase
of 1,150)
Population at end March: 74,734 (decrease of
620)
Population at end April: 74,891 (increase of
157)
Population at end May: 76,141 (increase of 1,250)
Population at end June: 76,190 (increase of
49)
Population at end July: 76,524 (increase of
334).
Ministerial Roundtable on suicides
I also undertook to provide a summary of the
minutes of the last (18th) meeting of the Ministerial Roundtable
on Suicide in Prisons. This took place on 14 July 2005. 17 people
attended, including representatives from the Howard League, National
Council for the Independent Monitoring Board, PPO, YJB, Prison
Reform Trust, HMCIP, Prison Health and Probation. Phil Wheatley
and Martin Narey also attended. The latest statistical position
was discussed, as well as ACCT, mental health in-reach and mental
health awareness training. The PPO representative highlighted
themes that were emerging through PPO investigations, one of which
was information keeping and sharing in prisons, which was then
discussed at some length. A key item on the agenda was a suicide
prevention stocktake. Members were reminded of the key tenets
of the prisoner suicide prevention strategy, with subsequent discussion
focussing on: the role of families, young people, the implementation
of recommendations from investigations, delays in inquests, and
staff training. I suggested, and it was agreed, that Rosie Winterton
attend the next meeting of the Roundtable, to reflect the vital
need to integrate suicide prevention and mental health and broader
health approaches.
At the 16th meeting of the Roundtable in December
2004 (the 17th meeting in March 2005 was cancelled due to the
General Election), which was chaired by Paul Goggins, the agenda
included an item on the future of the Roundtable, as members wished
to consider whether it conducted its business in the most effective
way possible. The JCHR had published its report on deaths in custody
the day before, and so the report's final recommendation to establish
a cross-government task force provided a useful and timely basis
for discussion. Members agreed that the Roundtable was a vital
forum for sharing developments and knowledge; its usefulness was
enhanced by the informality of a "hands-on" group that
found practical ways to address a very serious issue; it brought
together different groups which all had a shared commitment; it
facilitated learning; it effected real change; and it ensured
Ministerial attention to this important area. Members were concerned
that the Roundtable should not become too large or bureaucratic
or that its expertise on prison matters should not become diluted
by taking on too wide a remit. But they recognised that closer
links with groups working in parallel in respect of other institutional
settings could bring benefits and that the Roundtable could have
a role in bringing together experiences and learning. It was unanimously
agreed that the Roundtable should be retained; should continue
to focus broadly on prison issues and meet in prison settings;
and should seek to improve its links with others working in parallel,
for example, the newly constituted cross-sector learning group,
currently chaired by John Wadham of the IPCC.
You asked about the chances of a new person
going into the prison system being placed in a safer cell rather
than a traditional one. The likelihood of a newly received prisoner
being placed in a safer cell depends on a number of factors, including
the needs of that individual (and of others possibly considered
at greater risk) and the availability of unoccupied safer cells
at the prison he/she is sent to. Across the estate there are approximately
4,200 safer cells with another 1,100 expected to become available.
The number of safer cells at any one prison may depend on the
age of the prison, or how recently it has been refurbished, or
local safer custody risk assessments. It is important to remember
that no cell can be considered totally "safe;" safer
cells are designed to make the act of suicide or self-harm as
difficult as possible, and can complement (but not replace) a
regime providing care of at risk prisoners and reduce risks around
impulsive suicide attempts. The use of this type of accommodation
should be seen as just one part of the multi-faceted suicide prevention
strategy; at-risk prisoners need to be supported through continuing
interactive supervision, appropriate specialist care and full
access to regime activities and peer and family support. NOMS
and Prison Service suicide prevention policy emphasises that care
should be individualised—those caring for newly received
prisoners need to consider the benefits to the prisoner of companionship
(a shared cell) in lessening the likelihood of self-harm—and
that normalisation (caring for at-risk prisoners on normal location
rather than in any form of specialist location) is frequently
preferable as it often reduces prisoner distress (linked to suicide
risk) and is less likely to hinder positive interaction with other
prisoners (a supportive factor).
ACCT and contracted prisons
Janet Dean asked whether ACCT would apply in
private prisons as well as public. I can confirm that ACCT (Assessment,
Care in Custody and Teamwork)—the new assessment and care
planning system that is being rolled-out across the estate—is
designed to apply in all prisons. Contractors have been involved
in the Care Of At-Risk Prisoners project (the project that has
overseen the development of ACCT and its sister system for court
escorts) from its earliest stages, and the Prison Service Instruction
(PSI 18/2005) that explains the requirements around introducing
and implementing ACCT at establishment level includes Directors
and Controllers of contracted prisons. Following the piloting
of ACCT, roll-out is being undertaken on an area basis, planned
by Area Managers supported by their specialist training and safer
custody staff. The timing of individual contracted prisons taking
up use of the new system remains a decision for them to make in
conjunction with Area Managers' plans.
Tagging on bail
When I gave evidence to the Committee I stressed
the need for courts to consider tagging on bail as an alternative
to remanding in custody. Tagging on bail has important potential
benefits. Time spent in remand should of course be minimised but
also, particularly for those who subsequently receive a short
custodial sentences, it is difficult to achieve much real rehabilitation
if a significant portion of the sentence is served pre-trial.
There is also a greater chance of keeping alive an individual's
links with family, employment and community which are so vital
in reducing offending patterns. There may have been some uncertainty
as to whether curfew requirements supported by an electronic tag
could be imposed as a condition of bail on adult defendants. A
recent business information circular from Her Majesty's Court
Service has made clear the view, shared by the Home Office, that
tagging can be imposed as a condition of bail under existing legislation.
In addition, the cost of tagging on bail has since April this
year been significantly reduced. NOMS has advised that the resources
are now available for greater use of tagging on bail in place
of remand in custody, should courts choose to use this option.
I said I would provide the Committee with the most recent statistics
on tagging adults on bail. The Home Office receives information
from the contractors on the number of starts and caseload. The
table below shows the caseload for tagging on bail for adults
up to the end of October 2005.
TAGGING OF ADULTS ON BAIL: WORKLOAD APRIL
2005—OCTOBER 2005
| April | 215
|
| May | 184 |
| June | 182 |
| July | 215 |
| August | 157 |
| September | 165 |
| October | 254 |
| |
Self-harm among women
I would also like to address the issue of self-harm among
women prisoners, as I see was raised by Jeremy Browne with Deborah
Coles. Deborah mentioned some figures in the latest edition of
Safer Custody News—I attach a copy for your information.
It is estimated that there are currently about 20,000 self-harm
incidents occurring in custody each year, the majority of which
are by women—even though women only constitute around 6%
of the prison population. This reflects a real increase but also
the fact that the incidence of less severe repeat self-harm among
women prisoners (often several times a day) as a coping mechanism
is much higher than male prisoners. In recent years greater efforts
have been put into recording self-harm. The following chart illustrates
trends.
In December 2002 a new self harm form was introduced (F213SH).
The subsequent dramatic rise in recorded self-harm incidents for
women is believed to reflect multiple self-harm incidents for
this particular group. However, the subsequent numbers from 2004
onwards strongly suggest that the actual numbers for women have
been increasing at a much faster rate than for men. The reasons
for the increase are unclear: the increases may reflect a change
in the risk mix of female prisoners coming into the prison system,
but accurate measurement of this mix remains problematic.
There are a number of possible definitions for severity.
The following chart illustrates one example with the numbers of
self-harm incidents that involved detention in outside hospital.
This reveals that about 2% of self-harm incidents by female prisoners
involve detention in outside hospital compared with 9% of male
prisoners. It is therefore fairly safe to conclude that self-harm
incidents by female prisoners tend to be less severe/lethal than
those by male prisoners.
A number of intervention strategies have been introduced
into establishments for people who self-harm. These include counselling,
support groups, and specialised psychological interventions. The
Prison Service has set up a network of establishments to develop
interventions, facilitate evaluation and share good practice.
Comprehensive electronic guidance to staff on managing people
who self-harm has been issued (on CD-ROM and on the Prison Service
intranet); this was developed in close partnership with the Department
of Health and NIMHE and aims to be of use to all those working
with people who self-harm within a secure environment. An information
leaflet about managing self-harm written by a prisoner for prisoners
includes information on how to manage self-injury and how to get
help within the prison context. And touch screen technology is
being developed in prisons to inform prisoners of where to obtain
support and how to support other prisoners.
Early period in custody
We discussed what the Government are doing to address self-inflicted
deaths during the early period in custody. In addition to the
evidence I provided on 8 November, I would like to point out that
there is significant investment planned in better integrated drug
services for prisoners in respect of improved assessment and the
more frequent use of maintenance prescribing as a short term measure
to allow prisoners to settle into their new environment. Evidence
from international research and practice suggests that maintenance
prescribing can reduce the number of post-release overdoses, levels
of injecting (and hence blood-borne infections) and reoffending
to fund drug taking.
Clarification re Joseph Scholes
A final point of clarification: I said that the Home Secretary
would be issuing a response with respect to the call for a public
inquiry into the tragic death of Joseph Scholes. In fact, there
is no statement due. Paul Goggins announced on 16 September 2004
that the circumstances in which Joseph received a custodial sentence
on three counts of attempted robbery would be referred to the
Sentencing Guidelines Council; that David Lambert, a former Assistant
Chief Inspector of the Social Services Inspectorate, would examine
the operational issues raised by this case; and that the YJB would
take full account of the Coroner's findings in the preparation
of proposals for its vision for the future juvenile custodial
estate. The latest position is that the SGC's draft robbery guidelines
should be issued to statutory consultees by the end of 2005. The
YJB's draft Strategy was published in November 2004 as a consultation
document, and reflects the lessons from Joseph's case. The Strategy
has been approved by Ministers and will be published shortly.
David Lambert's report is close to completion.
I hope this information is helpful to the Committee.
Baroness Scotland of Asthal QC Minister of State
PS Rosie Winterton and Baroness Scotland attended the Ministerial
Roundtable on Suicide on 24 November at HMP Preston.
28 November 2005
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