ANNUAL REPORT 1995-96

3. POPULATION STATISTICS AND ACCOMMODATION

Population

3.1 The throughput of prisoners in 1995-96 was as assessed below, figures for the previous year in brackets:

3.2 The average daily population was 5,632 (5,630) which included 988 (1,008) unconvicted or remand prisoners who account for approximately 20% of those held in custody in Scotland: further details at the end of March 1996 were as shown below:

3.3 Security categories were as follows:

3.4

Design Capacity/Overcrowding

3.5 As at the end of March 1996 a total of 5,418 cells was available for use against a population of 5,697 (5,156 and 5,645 respectively).

3.6 The total number of cells available will rarely ever match demand. Some places are always required to be kept vacant for national contingency purposes and others must be emptied for refurbishment (see page 1). However, in addition there are always variations between the security category of prisoners and the availability of cells with appropriate matching security levels. There is also an obligation to segregate sexes and wherever possible to separate remand from convicted prisoners and adults from young offenders. The overall and unavoidable result is that some prison cells may be under-utilised whilst others, particularly at local prisons, are constantly in use, this situation already pertaining before the Courts make their disposals, and over which there can be no control.

3.7 The following establishments were consistently overcrowded:

3.8 Chronic overcrowding in some parts of the prison estate is one of the most debilitating problems facing the SPS, its staff and prisoners and has prevailed for many years now. Overcrowding in already austere conditions not only stretches taught resources but also has other unsatisfactory consequences in terms of hygiene, heightened tension and prisoners located two and sometimes three to a cell without integral sanitation. Many individuals are prevented from taking part in regime activities such as offending behaviour programmes because there is no space for them, staff morale is lowered and discipline and control is much more difficult to effect. The pressures of overcrowding also mean that staff are unable to devote sufficient time to those prisoners who are often most in need of attention - particularly remands and others during the early stage of their sentence. Thus, when large numbers of remands are being processed there will inevitably be a small proportion of potentially suicidal individuals whose vulnerability is masked by the sheer weight of numbers involved in the admission process.

3.9 In mid 1995 the Secretary of State announced a series of initiatives to deal with overcrowding and forecast increases in the prison population - including a feasibility study into the construction of a new prison. A consultancy was then engaged to examine potential sites, including land already owned by the SPS, and it has since been announced that a site at Bowhouse, south of Kilmarnock was the choice. The submission of planning applications will follow and construction is unlikely to be complete before 1999 at the earliest. The capacity of this new prison is expected to be in the region of 500 places for remand prisoners, although maximum flexibility in design will be incorporated so that the establishment is capable of changing its function according to need. Funding is to come from the Private Finance Initiative (PFI) and initial costs could be in the order of £60 million, recoverable over 25 years. The possibility of this or other PFI prisons being managed and run by SPS staff has not been entirely ruled out. We see considerable merit in such a joint venture as the experience of SPS staff who have worked in a variety of prisons offers greater flexibility and scope than those who might only ever work at one site.

3.10 In the interim, the Secretary of State has indicated that the severe problems being created by overcrowding were also to be addressed through a reduction in the number of fine defaulters being sent to prison and by the application of many more supervised attendance and Community Service Orders (CSOs). The use of bail hostels for some categories of remand prisoners was to be given much greater consideration - such options are widely available in England, but not at present in Scotland.

3.11 We too recognise the need for diversion from custody and estimate that a significant number of suitable individuals might be safely directed away from prison, which is by far the most expensive option. Together with the other diversions mentioned, up to 500 custodial disposals might well be avoided, in our opinion, through the establishment of Bail Hostels in each of the Sheriffdoms.

3.12 Progress on these initiatives is, however, likely to take some time, though an increase in the use of CSOs is now being seen. In the interim, Sacro has been investigating the establishment of a pilot bail hostel scheme in Tayside, which has had no practical outcome as yet. Funding for this and other Bail Hostels still unfortunately appears to be at a very embryonic stage, but as each day passes, significant sums of money are meanwhile being spent on individuals who might be dealt with outwith prison if suitable alternative disposals were available to the Courts.

It costs over £500 per week to imprison a male prisoner, and even more for females (the latter due to present high staff/prisoner ratios which the SPS is now seeking to address).

Bail hostels are comparatively cheaper to run as they need not be as staff intensive as closed prisons, yet can offer appropriate levels of supervision.

The ratio of individuals sent to prison for fine defaulting in Scotland, compared with the rest of the UK is believed to be comparatively greater.

Community based punishments are more likely to leave families intact and leave offenders with employment, thereby further reducing the financial burden on the public purse. Their visibility could be an added deterrent and more importantly, could well offer reduced rates of recidivism as exposure to hardened criminals in prison is avoided. They also ensure that valuable spaces in prison are reserved for those for whom this is the only viable solution - ie the violent and persistent criminals from whom the public must be protected.

3.13 Unless the range and level of non custodial alternatives are increased, then we are not optimistic about an end to overcrowding in the years immediately ahead - though the construction of a new 500 place prison will help considerably. However, in its last corporate plan, the SPS predicted that the prison population could rise by 200+ per year - a forecast which is apparently based on reliable crime statistic projections - which means that by 1998 there might be up to 500 more prisoners in the system, ie a population of 6,100 could be a possibility, (although this years latest figures do not indicate quite such a steep rise). The latter total was estimated before the proposal to alter remission rates was announced, which in turn might lead to an additional 1,000 prisoners by the end of the century - see paragraphs 4.64.

Other Statistics

3.14 During 1995-96 there were 15 deaths in prison (25) which included eight suicides (16). There were 108 serious assaults, by prisoners on other prisoners (50) with staff suffering a total of 14 serious assaults on them (5). Three members of SPS staff were also convicted for an assault on a prisoner.