Report by HM Inspectorate of Prisons on HM Prison, Penninghame 1997

9. Staff and Management

Complement

9.1 Staffing at the time of inspection was as follows:-

Management

9.2 Immediately prior to our inspection, the Governor I/C had left to take up duty in another prison and the Deputy Governor had been temporarily placed in charge of the establishment. The absence of a Governor I/C for any extended period could have placed considerable pressure on the two remaining managers and we were pleased, therefore, to learn that a new Governor had been formally appointed in February 1997. That appointment would re-instate the Senior Management team to a Governor and two Managers.

9.3 The Deputy Governor was responsible for all Residential and Operational matters and had three Supervisors reporting to him. The Resources and Services Manager was responsible for industries, catering, administration, social work, education, chaplains and medical services. Additional support was available to the Governor from the Human Resource (HR) Manager who was shared with HMYOI Dumfries, as was the Staff Training Officer (STO). The HR Manager had only recently taken up post but subject to final agreement it was intended that he would attend Penninghame on one day per week.

9.4 Evening, weekend and night visits were carried out by the Senior Management Team in addition to their normal duties. The meetings structure was appropriate for the size of the establishment and the Governor's daily meeting was attended by the Managers and all Supervisors on duty.

Comment

9.5 The management structure, though small, was entirely appropriate for the needs of the establishment. At the time of our inspection, changes were being made in senior personnel but we were satisfied that the relationships which existed between departments and between management and staff were robust and would ensure continuity and stability during the period of adjustment which inevitably follows such a change.

Human Resources

9.6 As noted above, the HR Manager, who had been in post for only four weeks at the time of our inspection, planned to spend one day per week at Penninghame. He considered that that level of availability would ensure that necessary work on complementing, recruitment and selection procedures as well as the staff training and development function, would proceed smoothly.

9.7 Although sharing a senior manager with another establishment over fifty miles away is not entirely satisfactory, we recognise that Penninghame is unlikely to generate sufficient HR activity to warrant a full time post. We were satisfied, therefore, that the proposed arrangement whereby the HR Manager would spend one day a week in the establishment was acceptable.

Staff Training

9.8 As with the arrangement regarding the HR Manager, Penninghame shared its STO with HMYOI Dumfries. The STO had no specific timetable which ensured his presence at Penninghame but he was available as and when required. Courses were held in either the Conference Room or the visits room and an area for Breathing Apparatus (BA) training had also been developed and was well used by both staff and the local Fire Brigade - see paragraph 7.36.

9.9 We examined the local staff training returns and we were satisfied that requirements such as Control and Restraint and BA training were up to date. Other training tended to be concentrated during the summer months but national requirements such as the Personal Performance Programme had been completed as required. MDT had required a staff training input and we noted that it was on target for introduction in February 1997. A number of appropriate external courses for staff, including industrial staff, had also taken place.

9.10 Staff training was overseen by a Staff Training Committee chaired by the Resources and Services Manager. The Committee had met twice in the previous 12 months. However, the establishment was in the preliminary stages of seeking accreditation under the Investors in People (IIP) Scheme and it was anticipated that the recently formed IIP Project Management Group would take over the role of the Staff Training Committee until IIP status had been achieved.

9.11 Constraints on the further development of staff training were identified as a lack of proper identification of training needs, no day-to-day availability of advice and guidance and the lack of availability of staff. However, those issues had been identified by the HR Manager and he was considering developing distance learning methods and looking at different media to deliver training.

Staff Grievance Procedure

9.12 The Deputy Governor and the Resources and Services Manager had assumed joint responsibility for the scheme so that should any case arise, a neutral stance could be taken in considering any relevant action. In the event, since the scheme had been introduced no formal cases had been raised, any issues being resolved informally at local level. Management within the establishment operated an open door policy for any member of staff who wished to air any grievance and that seemed to work well given the small numbers involved. Copies of the staff grievance procedure booklet were available for anyone who might wish to raise an issue on a formal basis.

Staff Facilities

9.13 The staff muster room was located on the first floor of the main building and had been split into two areas. The kitchen area had been provided with adequate cooking and storage facilities and a small dining area. The sitting area had a number of comfortable easy chairs, a coffee table and a television. The whole area was pleasantly decorated and kept to a high standard of cleanliness by a passman. Though relatively small, the facility was more than adequate for the number of staff on duty at any one time.

9.14 The staff locker room was situated next door to the muster area; it was quite small but provided enough space for every member of staff to have a locker. Also within that room was an area which had become rather cluttered with various pieces of furniture and we have written to the Governor suggesting that that area should be cleared.

9.15 There was a number of staff toilet and shower areas at various locations throughout the establishment, many of which were uni-sex. Though we were satisfied that their number was adequate, we were less than impressed with the condition of most of them. We found damaged floor coverings, holes in the walls, dark and/or flaking paintwork and areas which had been repaired by plastering and subsequently not painted. We suggest, therefore, that there should be a complete refurbishment/redecoration of these facilities.

Staff Perceptions

9.16 During the course of our inspection we met formally with a wide range of staff of all grades, specialisms and levels of experience. Although there was inevitably duplication among the groups, a wide range of issues was raised. We have recorded the views of staff as they were put to us but that should not be taken to imply that the Inspectorate is in full agreement with every point raised. We do feel, however, that it is important that the views and perceptions of staff on aspects of the establishment be recorded. Where issues raised relate to aspects of the establishment on which we have commented in detail elsewhere in this report, we have cross-referenced the relevant paragraphs. The following is a summary of the main topics raised.

9.17 Staff Facilities came in for mixed comments. Though staff were satisfied with the muster room facilities, they considered their toilets to be of a low standard with the one situated near the muster room being particularly in need of major refurbishment and the others requiring decorating - paragraph 9.15.

9.18 Concern was expressed about the problem of staff shortages. Because of the low staffing levels within the establishment, any unexpected situation such as a sick absence or a prisoner escort had potential knock-on effects for staff training or prisoner programmes.

9.19 On the specific issue of staff training, the general view was that Penninghame was the loser in the sharing arrangement with Dumfries. Although it was acknowledged that full use was made of the prisoners' summer and Christmas leave breaks for training, overall staff felt that they rarely saw the STO and claimed that it was left to staff locally to organise training on a regular basis - paragraphs 9.8-11.

9.20 Relationships with senior management were described as good though there was a feeling among staff that they were taken for granted and there were claims that members of the management team did not always respond to out-of-hours incidents.

9.21 One of the major concerns raised related to the arrangements for night duty cover. Only one Officer was on duty during the night but with the prisoners' accommodation being split between the main building and the lodges, there was concern about the potentially serious implications of a fire or medical emergency - paragraph 7.39.

9.22 It was claimed that management was not taking a firm enough line with prisoners appearing in the Orderly Room, particularly in cases where prisoners had tested positive for drugs on more than one occasion. It was claimed that in such cases, prisoners were not always being returned to closed conditions - paragraph 4.4.

9.23 The generally held view was that drug use among the prisoner population was nowhere near as bad a problem as could be found in closed establishments. However, staff had some concerns about the use of methadone for known addicts - paragraphs 5.1-8 and 8.5.

9.24 There was criticism of the paucity of recreation facilities for prisoners, particularly over the winter months when it was not practical to use the grounds of the estate. Although the new facility which was being built would help with that problem, the fact that it was outside the main building meant that what few staff were on duty would then have to cover two separate areas - paragraph 3.8.

9.25 Concern was also expressed about increases in the size of the prisoner population and the type of prisoner now being sent to the establishment. The generally held view was that prisoners were being given promises of certain privileges by the sending establishments which were not actually available when they arrived.

9.26 In general terms, communications were considered to be quite good though as with any other establishment, there was always room for further improvement - paragraphs 9.29-31.

Comment

9.27 Whilst we can understand why staff consider themselves to be the losers in the staff training sharing arrangement with Dumfries, in our opinion the balance of time being spent between the two establishments was about right. We noted that a considerable amount of staff training, particularly in connection with national initiatives, had taken place and developments further to improve those arrangements were actively being considered.

9.28 We did share staff's concern about the condition of their toilet/shower areas and at paragraph 9.15 we have suggested that they should be refurbished/redecorated. Similarly, we had serious concerns about the arrangements for night duty cover and that issue is the core recommendation in this report - see paragraph 7.39. However, in our view prisoners were being dealt with properly in the Orderly Room (paragraph 4.4) and we were satisfied with the security of the system which had been put in place for methadone prescription (paragraph 8.5). Given the nature of the establishment, we did not have any concerns about the new recreation area being away from the main building and we were pleased to see that the criteria for prisoner selection had been changed so that maximum use could be made of this establishment.

Communications

9.29 Communications within the establishment were the responsibility of the Resources and Services Manager but we noted that neither had he a Deputy nor was there a local committee, shortfalls which we suggest should be addressed with some urgency. On the positive side, we were pleased to note there was a communications plan which was in the process of being updated.

9.30 Within the establishment there was a communications room which doubled as a general purpose conference room. The Governor's Order Book and copies of any committee minutes were held at the Gate together with all SPS circulars. Team briefing was available for all staff and in addition to shift hand-over meetings, the Governor had a monthly meeting with all staff; special meetings were also called if any topic of specific interest had to be discussed. As a further aid to good communications, all the Supervisors attended the Governor's morning meetings.

9.31 We noted with interest that a prisoners' committee had been established though the number of members seemed to vary according to the level of interest being shown. Each member was allocated a specific area of interest - eg catering, recreation, etc - though at the time of our inspection only about three prisoners were actively involved. The committee held regular meetings with the Governor but most of the prisoners to whom we spoke felt that the whole process served little or no purpose because most of the proposals which their representatives put forward were rejected by management. In our opinion, it was a worthwhile initiative in that it offered another possible line of communication and we trust, therefore, that it will continue in existence.

Industrial Relations

9.32 The Scottish Prison Officers Association was the only union with any membership at Penninghame with the result that a local Whitley Council as such did not exist. Meetings, both formal and informal, were being held between the Governor and the Local Branch Committee and the relationship between management and the union was described as "business like". Agreed minutes were being produced following formal meetings.

9.33 We noted that the one issue which was ongoing and where agreement had not been possible, was over the issue of the singleton night patrol - see paragraph 7.39. That apart, industrial relations appeared to be good with appropriate consultation taking place as necessary.

Race Relations

9.34 The Office Manager was the establishment's Ethnic Minority Liaison Officer (EMLO) and though there was no formal deputy, the office staff were familiar with those duties and would provide cover for the EMLO in his absence.

9.35 There had, in fact, been very few prisoners from ethnic minority backgrounds in recent years but the establishment did maintain a list of contacts who would ensure that any special needs which the establishment could not provide would be made available. Because of the transfer arrangements, the EMLO always had advance notice of the arrival of any ethnic minority prisoners which gave time for appropriate arrangements to be put in place, including the provision of halal meat.

9.36 In overall terms, we were satisfied that the needs of ethnic minority prisoners were being properly looked after.

Equal Opportunities

9.37 The Office Manager was also the Equal Opportunities Officer and a decision had been taken not to have a Committee because the prison was considered to be too small for such a formal structure. The SPS's standard equal opportunities statement had therefore been adopted as the local policy.

9.38 In total, there were six female staff on the complement, for whom there was one designated toilet; all other toilets in the establishment were unisex. The toilet adjacent to the Governor's Office had been fitted with baby changing facilities and had, therefore, been designated as a visitors toilet; it was also suitable for people with disabilities. However, there was no ramp to allow wheelchair access into the establishment and we suggest that one should be installed.