Recent History

7.1 Work has long been the traditional approach to occupying prisoners and has gradually developed from an extension of punishment and reparation, to the recognition that it has positive effects on rehabilitation and future rates of re-offending. Work for prisoners is also a fundamental requirement under Prison Rules and the (non statutory) European Prison Rules, the latter stating that "sufficient work of a useful nature, or if appropriate, other purposeful activities shall be provided to keep prisoners actively employed for a normal working day: so far as possible, the work provided shall be such as will maintain or increase the prisoner’s ability to earn a normal living after release."

7.2 The SPS’s opportunity agenda extends the definition of employment to include ‘purposeful activity’ incorporating vocational training (VT), education and physical education. Also included are programmes which are designed to assist offenders in recognising those factors which have led to criminal behaviour.

7.3 A statement of ‘Policy, Purpose and Organisation’ was issued by the SPS in October 1996 in respect of prison industries. This confirmed that work would continue to be at the centre of prison regimes whilst acting as a focal point for the practice and consolidation of knowledge and skills acquired through education, vocational and group behaviour programmes. This statement also underlined the recognition that work opportunities should mirror, as far as is practicable, the commercial practices which are to be found in the community. There were to be increased opportunities for prisoners to gain more relevant experience and if possible, to earn more economic wages via increased contact with the private sector. This statement of policy also encouraged individual Governors of establishments to explore local market opportunities - previously this aspect had tended to be centrally directed.

7.4 A scoping review is now seeking to define the work needs of individual establishments and to provide clear links between industry, VT, education, certification and pre-release training. Thereafter, a full implementation exercise is expected to take upwards of two years to complete.

Availability of Work

7.5 During our inspections, we found that there was a considerable variety in the type of work on offer. For example, most establishments had their own horticulture or gardens parties and integral laundries in which prisoners could work. Others had tailoring, upholstery or textile shops, whilst most had joiners shops which were involved in tasks such as the production of garden furniture. In one prison we were able to see roadsigns and post office trolleys being constructed as well as the building of small glass fibre boats, whilst shoe repairs, printing and braille reproduction were seen elsewhere. Ropes and helicopter nets for North Sea oil rigs was another commercial venture which was noted at Peterhead, which also had a contract to supply camouflage nets to the MOD. Most prisons were also able to offer domestic and industrial cleaning places.

7.6 Recent inspection reports have commented favourably on the opportunities which were available at Low Moss, Glenochil, Dumfries, Polmont, Shotts and Inverness. Equally, we thought that the opportunities on offer were poor at Peterhead, Cornton Vale, Aberdeen and Greenock. At Edinburgh and Perth there was just not enough work to go round, whilst at Barlinnie only half the available work-force was being occupied.

7.7 Indeed, it is estimated that across the SPS estate, only 55% of the convicted population is currently involved in industrial work on a daily basis (though many more are involved in domestic duties such as catering.) This situation is, of course, exacerbated by overcrowding which results in a lack of supervisory staff and facilities and a concomitant reduction in the opportunities available, a situation which is most prevalent at the larger remand or local prisons. However, because it is at the those establishments that most prisoners begin their sentences, it is there that the ethic of meaningful participation in work should begin.

7.8 Prisoners often complained to us that much of their work was boring and unrewarding. Low wages also reinforced the belief that work was considered to be of low value, which in turn generated low self esteem. It is perhaps not surprising, therefore, that we found some prisoner populations who seemed to be work shy. This was manifested in significant numbers reporting sick during the working week in an effort to avoid work or individuals being placed on discipline report for refusing to work.

7.9 That said, our inspections did find much of which the SPS can be justifiably proud. VT courses were popular, well attended, well taught and offered prisoners the opportunity to gain certification in a variety of trades. (However, during a recent inspection at HMP Greenock, it was disappointing to note that two VT posts had been lost as part of a budget review exercise; this is doubly damaging as the industrial work opportunities were also poor.)

7.10 The range of VT opportunities (which varied at each establishment) included catering, hairdressing, painting and decorating, bricklaying and domestic electrical appliance repair. However, all those courses must be reviewed to ensure that they retain relevance to the employment market. Access should also be carefully controlled to ensure that prisoners who attend are those who are most likely to derive maximum benefit from them.

Other Forms of Employment

7.11 Community Outplacements. The average number of Category ‘D’ prisoners (ie those in the lowest security group) who were working outside prisons in 1996-97 had reduced from the previous year, with no more than 130 being so employed on a daily basis. Individuals who qualified and were considered suitable, were mainly from the open regimes at Penninghame, Noranside and the new Category ‘D’ regime at Castle Huntly. Some limited placement schemes were also available elsewhere, including those for prisoners located in TFF hostels.

7.12 The range of work on offer was generally adequate and those employers to whom we spoke seemed satisfied with the arrangements. Payment varied according to task but employers could generally rely on the individuals’ willingness to work. Employers also felt that they were putting something back into society via these individuals. There were, however, some local difficulties in relation to outplacements; for example, a lack of suitable public transport at some establishments for ensuring that individuals could get to outlying areas to work on time. At some locations there were insufficient outplacements or those that were available were seasonal. We were, however, satisfied that outplacement liaison officers at each prison worked quickly and effectively to address any problems with the community as they arose.

7.13 Prisoners appeared to derive considerable benefit from outplacements, especially in terms of self esteem, sense of purpose, preparation for final release and eventual resettlement in the community. In our view these schemes have the potential to contribute to the longer term reduction of crime and represent a very imaginative step by those members of the public who are willing to employ prisoners in this way. An element of risk is involved and can never be completely eradicated. However, all that we have seen continues to indicate that sensible precautions are taken to minimise the risk, though one or two isolated incidents have recently led to an increase in adverse media attention in this area.

An Integrated Approach

7.14 The scoping review recognises that the development of co-ordinated programmes for prisoners requires a range of activities to be available - including specific courses designed to impact on individual offending behaviour. More recently a number of multi-disciplinary Programme Development Groups has been established to ensure that properly accredited programmes are developed. This has included four core programmes - viz, Drug Abuse, Sexual Offending, Anger Management and Cognitive Skills - though it has been recognised that a standard induction process for long term prisoners is also essential. The last is to be based on a risk/needs assessment process which, as an integral part of the Sentence Planning process, will enable prisoners to be directed towards activities which are appropriate to their particular circumstances. This approach has the obvious advantage of ensuring that resources are channelled to the most appropriate activities.

7.15 Professional staff have been recruited to support and help advance this approach; for example, the provision of an in-house psychology service, the use of an educational professional from the Scottish Further Education Unit and the decision to appoint a Social Work Adviser all point to a commitment by the SPS to ensure a co-ordinated approach to reducing offending behaviour. Delivery of this co-ordinated approach at establishment level will be by multidisciplinary teams, with prison officers playing a leading role both as Personal Officers and as members of the programme delivery teams.

7.16 Timetabling. We commend the timetabling approach which has been developed at Shotts in order to keep all prisoners busy. As there are not enough work opportunities to go round, the working week has been split into 20 sessions, with all prisoners being required to work for no less than 12 of those sessions and to attend education and other programmes for the remainder. This ensures that all prisoners have access to all of the activities some of the time and thereby have a better chance of meeting the personal needs identified in their Sentence Plans. We were, therefore, pleased to see on other inspections that Governors were beginning to think in this direction, irrespective of the outcome of the scoping study, whose findings are in any case some time off.

Pay

7.17 The cost of staple goods (such as postage stamps, toiletries and tobacco) has risen considerably in price but prisoners’ wages have changed very little by comparison. The average wage is about £6 per week or £3 for those with no opportunity to work.

7.18 We place credence on the argument which suggests that low wages encourage the growth of a prisoner economy in which bullying, drug dealing and trading in phonecards and other items of value to prisoners becomes an accepted way of supplementing income. For those who do not engage in such activities, there is the increased temptation to pressurise families and friends to provide personal items and private cash, which is an unwelcome and heavy burden for low income families and does little to improve relationships. In addition to this, there is the perception already alluded to that low pay equals low value and that low skilled work is poor preparation for release, though it is clear from our inspections that the majority of prisoners would prefer to work (if only because it helps pass the time). We have, in fact, seen many workshops where prisoners are regularly to be found working in a diligent and constructive manner.

7.19 We believe that pay levels should be reviewed and increased. They need to be sufficient to enable prisoners to purchase a reasonable range and quantity of goods from the prison canteen and to keep in regular contact by phone and letter with family and friends. One way forward may be the introduction of a pilot scheme under which prisoners could earn a realistic wage, part of which could be saved for release, part of which could be sent out to dependants and part of which could be offset against the cost of imprisonment. Such a scheme might even be included in the scoping review.