Governor’s Briefing

5.1 In his initial briefing at the start of the inspection, the Governor referred to the following major issues:-

(i) Condition of Estate and Future Development

5.1.1 The Governor expressed the view that the uncertainty regarding the long term future of Low Moss as a prison establishment was an inhibitor to staff motivation and successful Strategic Planning. The current ten year extension to the lease of the site was due to expire in the year 2002 and staff were concerned as much about their own future as they were about the establishment. It was also the Governor’s view that the fabric of the wooden huts, constructed over sixty years ago, could not be expected to last much beyond the millennium and the continuing uncertainty of tenure was increasingly inhibiting vital longer term strategic investment and staff confidence in delivering the required change agenda.

Comment

5.1.2 In principle and subject to strategic considerations regarding the predicted prisoner population, we firmly support the consolidation of Low Moss as a permanent part of the overall SPS estate. In our opinion, it is ideally located to accommodate the needs of low security prisoners - the majority of whom are from the Glasgow area and would otherwise be in an already overcrowded Barlinnie - whilst the new motorway which is being developed linking the City with the vicinity of the prison will make access even easier. In addition, since its opening as a category ‘C’ establishment in March 1969, the establishment has continued to play a vital role within the SPS as a very cost effective short-term adult male prison and we believe that an opportunity exists significantly to develop positive links with local support agencies.

5.1.3 Whilst we recognise that the uncertainty surrounding the future of Low Moss has the potential to impact upon staff’s level of motivation, we believe that the primary inhibiting feature was the lack of quality inherent within the Residential Officer’s role. Sentence Planning and Personal Officer commitments were not included in the role and with the exception of Alba House, involvement in Prisoner Programmes hardly existed. Too much of the Residential Officer’s time was spent on security related work normally defined under the role of an Operations Officer. Residential Officers require to be engaged in work of the quality for which they are being paid which, in turn, we believe will increase their understanding and subsequently their commitment to the direction and values of the SPS.

(ii) Population/Unit Costs

5.1.4 The Governor also stated that, following an agreement some eighteen months previously with his Area Director, Low Moss had changed the upper end of its sentence classification criteria from twelve to eighteen months for up to a maximum of 10% of its total population. That commitment to accommodating a greater proportion of longer term sentenced prisoners had ensured that the establishment would maximise its current capacity of 396 prisoners. Additionally, in order to minimise the number of returns to HMP Barlinnie, plans were shortly to be implemented to have one of the dormitories operating a modified regime for those prisoners who, for a variety of reasons, experience difficulty in coping with mainstream dormitory conditions. We were told that these new commitments reflected the establishment’s relative cost effectiveness within the SPS estate, with the existing annual cost per prisoner place of £12.7k being 54% lower than the national average.

Comment

5.1.5 Although dormitory accommodation is unlikely to meet with the individual preference of the majority of prisoners, it is a very cost effective means of containing in custody short-term low security category prisoners. We also recognise that Low Moss plays a crucial role in minimising overcrowding within the prison system - and particularly with regard to HMP Barlinnie - as evidenced by the fact that it processed over 3,900 receptions last year. However, the prison is now dealing with a population that has more complex needs, with problems of drug addiction and recidivism assuming greater importance than ever before. Whilst we believe that cost effectiveness is an important consideration in the administration of the establishment, it must be weighed against the overriding importance of delivering quality standards and providing basic facilities and a regime which appropriately meets prisoner needs. The Low Moss estate and its structures have been customised for their purpose, are of a temporary nature and are in desperate need of refurbishment. In order strategically to develop and deliver appropriate standards and regimes, management and staff must have some understanding of the organisation’s strategic intentions for the use of Low Moss as part of the SPS estate. We therefore recommend that an early decision should be taken with regard to the future of Low Moss.

5.1.6 We suggest that the Governor fully considers the implications of the proposed broadening of the criteria for admission to the establishment to include individuals with a variety of special support needs. In our view, this initiative could impact on health care management issues and eventually require an increase in the nursing complement, though we acknowledge that this would allow proper nursing supervision of the dormitory attached to the Health Centre and might also allow further thought to be given to the use of the dormitory attached to Alba House (see paragraph 8.5).

Drug Abuse

5.2 In the report of our previous inspection, there had been very little reference to illegal drug abuse. Five years later, however, it was apparent that many individuals were now arriving at the prison gates with well established habits or addictions. For example, over the previous 12 months, random Mandatory Drug Testing (MDT) was indicating that 21% of those tested were producing a positive sample. We suspect, however, that the overall number of those resorting to drugs in custody was probably very much higher than that level and that three probable types of users were involved:-

• Recreational cannabis users.
• Cannabis and occasional opiate users, who tended to ‘chase’ rather than inject when they used an opiate.
• Regular opiate users, who veered towards poly drug use. It was amongst this group that the likelihood of opportunistic intravenous drug use was highest.

5.3 Other evidence of increased drug abuse since 1993 included:-

• The number of disciplinary cases coming before the Governor (see paragraph 4.4) of which an average of just under 40% were MDT related.
• The number of drug finds, which could also be evidence of much improved intelligence targeting. In the 12 months prior to our inspection there had been 58 separate drug finds, most of which had taken place during visits or in the course of dormitory searches.
• A gradual increase in the number of visitors being excluded from the prison and the number of prisoners being confined to closed visits, of which there had been a total of 97 in the previous twelve months (though these could equally be cited as examples of improved security).

Anti-Drug Strategy

5.4 The establishment’s anti-drug strategy was based on the following elements:-

• Supply reduction
• Demand reduction
• Incentives for being drug-free

(i) Supply Reduction

Security

5.5 The general procedures for official entry and egress from the establishment were broadly comparable with those which existed in maximum security prisons. Nevertheless, the close proximity of a country road to a single security fence made it comparatively easy for illegal substances to be thrown over the fence at a variety of points on its lengthy perimeter. This unsatisfactory situation was further exacerbated by the limited extent to which relevant technology was available to detect the introduction of illicit drugs. Some contraband had been intercepted by staff, but we were told of other occasions when staff had been too late in arriving on the scene and the packages had been retrieved instead by prisoners. We have, therefore, written to SPS HQ drawing their attention to this situation and making suggestions which could lead to significant improvement, in addition to the regular perimeter patrols and searching programmes which were already in place.

Mandatory Drug Testing

5.6 MDT had been introduced in the establishment in December 1996 and was managed by two Officers who operated from well equipped and spacious accommodation. Testing took place mainly on weekdays though more recently, a limited weekend programme had been introduced. Prisoners who were selected for testing were collected by MDT Unit staff, who then supervised the process from start to finish; this included the charging of any of those found to have tested positive.

5.7 We were told that reception testing did not take place at Barlinnie (before transfer) or on arrival at Low Moss. Consequently, whilst there was a significant number of prisoners who subsequently tested positive for cannabis, many of those results had to be discounted as the individuals concerned had not served long enough for consumption in custody to be proven. There were also suggestions that because of that situation, some staff were reluctant to refer recently admitted prisoners for suspicion testing.

5.8 Between January and December 1997, 438 prisoners had been randomly selected for testing, of whom 143 had tested positive. Of that total, 54 had been discounted because they had not served long enough for the charge to be proved but 89 prisoners had been charged and brought before the Governor. However, we noted that of that number, only six had been placed on a frequent test programme.

5.9 Punishments for MDT related offences were being dealt with in a consistent manner but it appeared that the additional days being awarded as a punishment were more comparable with those given to longer term prisoners. We suggest, therefore, that this is an area which might be revisited by local management.

(ii) Demand Reduction

Alba House

5.10 Alba House is a residential dormitory-type unit, equipped to offer treatment and rehabilitation for those prisoners who persistently reoffend as a result of alcohol or drug dependency. The manner in which it operated was relatively unique for the SPS, as it was based entirely round a 12 step abstinence-based programme, whereas most other establishments work on chemical detoxification and a harm reduction approach. Individual counselling, group therapy and related education programmes were included and there was capacity for up to 10 prisoners to be treated at any one time. Rolling programmes lasted 12 weeks but were limited in availability to those serving sentences of six months or more. Prisoners volunteered for the programme but had to be screened and assessed by staff before being accepted for inclusion. Since opening in April 1996, over 70 prisoners had been accepted for treatment, out of a total of over 200 applicants.

5.11 The staff complement was six Officers, with two being on duty at any one time. Each Officer had received specialist training, whilst further support was now being provided, on a contractual basis, by an independent Consultant who attended for one week in six. The Residential Unit Manager was in overall charge for Alba House and reported directly to the Governor.

Maintenance/Detoxification

5.12 Whilst we were told that the medical team provided ad hoc care for those prisoners who were suffering from serious cases of withdrawal, it appeared that there was no regular substitute opiate maintenance or detoxification available for the majority of prisoners. This unsatisfactory situation ought, therefore, to be reviewed and remedied (see paragraph 5.24).

Group and Individual Programmes

5.13 With the exception of Alba House and some short drug awareness courses run by the Social Work Unit, it appeared that no sustained drug or health related programmes were being delivered. We were advised that this situation had come about because programmes had previously not been identified through any systematic assessment of aggregated needs and accordingly, their delivery had been suspended.

5.14 We also noted that there was no individual drug related counselling, other than what was taking place in Alba House. Reasons for this included the fact that Residential Officers who should have been involved in the delivery of such programmes, had been unable to develop that role due to their commitments to other security specific duties.

Throughcare

5.15 We could find little evidence of any community based agencies being involved in the delivery of the establishment’s anti drug strategy - again, other than what was on offer at Alba House. Management told us that this was because they were finding difficulty in obtaining the appropriate type of help from the outside community.

(iii) Incentives for being Drug Free

Drug Free Dormitories

5.16 One of the most laudable elements of the establishment’s drug strategy was the relatively major incentives scheme which had been introduced for those who remained free of drugs. Drug free dormitories, whose standard of accommodation and facilities had been significantly enhanced, were now being provided, though it was encouraging to find that there had been pressure for their creation from prisoners themselves. At the time of our inspection, four out of 15 dormitories were being termed as drug free.

Comment

5.17 Although MDT figures were indicating that 21% of prisoners were using illicit substances, the process was being distorted by the fact that no admission testing was taking place and we suggest, therefore, that such testing should be introduced. Consideration should also be given to increasing frequency testing for those who produce positive tests, together with greater emphasis on rewarding those prisoners who provide drug free samples after failing earlier tests - for example, by giving them ‘days back’.

5.18 We were very pleased with the support which was available in Alba House and suggest that its total abstinence-based approach is one which might be further explored by some other establishments, as it appeared to be making a valuable contribution to the management of prisoners with serious addiction problems. The staff/prisoner ratio was high but the emotional demands on the staff were considerable. For that reason, we believe it is essential that some form of counselling support continues to be available.

5.19 We were, however unable properly to assess the extent of the project’s success, mainly due to the fact that no comprehensive record-keeping system was in place. This situation ought, therefore, to be remedied and systems put in place to ensure that continuous evaluation is possible. We also believe that it is time for the role of Alba House to be independently evaluated to prove its effectiveness in achieving lasting abstinence for those who participate in its relatively expensive and uniquely focused programme.

5.20 Equally, it should be recognised that Alba House represents opportunities for less than 1% of the overall prisoner throughput at Low Moss, whereas the establishment accounts for over 20% of the adult male convicted admissions in Scotland. We therefore recommend that all programmes, including those which are drug-related, must in future be developed to match the aggregated needs of the majority of prisoners who pass through the establishment, despite the fact that most of them are short termers. The overall aim must be to break the endless cycle of recidivism in which many are trapped and whose crimes are often drug-related.

5.21 Similarly, we believe that the employment of a part-time worker from a community-based Harm Reduction Drugs Agency, who would be accountable to the Programmes/Activities Manager, would ensure the development of a needs-led drug support programme for the majority of the prisoner population. We recommend, therefore, that a part-time Harm Reduction Drugs Worker be appointed in the very near future.

5.22 Much greater benefit might also be achieved by bringing all aspects of the prison’s drug strategy into alignment with one another under the umbrella of a Drug Strategy Development Group, chaired by the Deputy Governor. We believe that the make up of such a group should reflect a multi-disciplinary approach and should include regular input from outside agencies, thus ensuring cross-fertilisation and contact with the local communities to which all prisoners will be returning.

5.23 More trained Officers should also be involved in the delivery of Drugs Programmes. Such a move would not only be in accordance with the principles inherent in the SPS Preferred Programmes policy but also it would enhance individual skills and further improve relationships with prisoners. We believe that all Officers so involved should be trained under the SPSC approved and validated Confederation of Scottish Counselling Agencies Course with future training budget allocations also taking this fully into account.

5.24 In relation to opiate substitute maintenance or detoxification, there ought to be more clear and flexible policies with consideration being given to using the 10 bed dormitory which is adjacent to Alba House - see paragraph 8.5. We believe that sufficient capacity and skills exist amongst the Alba House staff for them to extend their role, at little additional cost, to include the provision of a support programme for the additional prisoners who would be located in that area.

5.25 We commend the Governor, his management team and the prisoners for the creation of so many drug free dormitories and Low Moss would appear to have established a very credible lead in Scotland in this respect. There were, however, no formal systems for measuring the validity of individuals’ drug free status and it appeared that recent increases in the number of such dormitories had been achieved at a pace which had overtaken the implementation of some of the enhanced facilities. (For example, two of these dormitories contained prisoners who had signed the contract to remain drug free, but the incentives were not yet in place.) Some of these issues could be discrediting the overall concept in the eyes of some prisoners and staff and need therefore to be swiftly rectified. This should include random testing in each drug free dormitory on a weekly basis - a requirement which would be in addition to the standard requirements of MDT and subject to the formal guidelines which are being introduced via the SPS’s Strategy on Drug Free Areas.

5.26 As a clear signal of management’s commitment and adherence to the SPS Drugs Strategy, the formal SPS document ‘Guidance on the Management of Prisoners who Misuse Drugs’ ought to be circulated throughout the prison. This document, along with any other formal SPS guidance issued subsequently, should also form the basis for all future strategic policy developments within the establishment.

5.27 Finally, the following associated matters should also be addressed:-

• A drug awareness programme should be developed for all staff, possibly including some members of the Visiting Committee (VC).
• There needs to be a more comprehensive Hepatitis B strategy, which would also give consideration to the vaccination of prisoners, cost notwithstanding. (The possibility of joint community funding might also be investigated.)
• More comprehensive information on how to avoid Hepatitis C should be provided and HIV education and counselling should be expanded to all areas of the prison.
• More information for families is required, which may encourage them to be more involved in the prison’s anti-drugs strategy.

Violence

5.28 Statistics for 1997-98 were as follows:-

5.29 It was encouraging to note that, consistent with the previous year, there had been no serious assaults on staff and only one minor assault, compared with two the previous year. Recorded serious prisoner on prisoner assaults showed a marginal reduction from 15 to 14. To help combat the high levels of violence, local management had set up a group to develop an anti-bullying strategy and the group’s proposals were expected to be with the Governor shortly after the completion of our inspection.

5.30 The narrow and truncated nature of the corridors in the main residential complex did not lend itself to effective supervision of prisoners when they were moving to and from the dormitories. We were pleased to note, therefore, that the Governor had recently introduced a process whereby prisoners moved in a controlled manner, one dormitory at a time, and that the dining hall seating arrangements complemented that process. This was another way of reducing the risk of prisoner on prisoner assaults.

Comment

5.31 Although the trend towards recorded violence was marginally downwards, we were concerned that the number of assaults in general remained high. The range and type of individual prisoners being held in highly populated and largely unsupervised dormitories perhaps lends itself to the likelihood of more conflict, hence our suggestion that there should be a review of the maximum number of prisoners held in those areas (see paragraph 3.7). Likewise, the high level of illicit drugs available in the establishment will bring its own problems relating to debt, supply and perceived power. This is another compelling reason why drug programmes should be significantly increased, as a possible means of helping reduce the demand for drugs and its associated problems (see paragraph 5.20). We do, however, welcome the development of a local anti-bullying strategy and urge its early introduction.

5.32 We also had some concerns that the number of recorded incidences of ‘prisoner on prisoner’ violence did not reflect the actual level of such occurrences. Our concerns were based around the high number of reported ‘accidents’ in which the injuries incurred appeared to be more consistent with the individuals concerned having been assaulted but that no evidence was available to substantiate this. However, we thoroughly examined accident reporting and investigating procedures and we were content that all such suspect accidents had been properly investigated and that no alternative conclusions could be arrived at.

Suicide

5.33 Since 1993, there had been no deaths in custody and as far as we are aware, there has never been a suicide in the prison; similarly, attempted suicides were a rare event. Equally, we were told that any prisoner considered to be a suicide risk was transferred immediately to HMP Barlinnie.

5.34 The supervision of suicide risk management was in the hands of the Health Care Policy Group and included in their membership was an Officer who had the role of Suicide Risk Management Co-ordinator. From the minutes of the Group, it would appear that it had only been meeting regularly since October 1997. Since the Group was ultimately responsible for suicide risk management, this indicated to us that there may have been gaps in the past but it was gratifying to see that this had been remedied. There were three suicide prevention kits available within the prison and we were pleased to note that a new suicide observation cell had just been constructed.

Comment

5.35 It appeared obvious to us that despite its other pressures, being located in a dormitory made it more difficult for an individual to attempt to commit suicide without being noticed and at Low Moss it was an extremely rare occurrence for anyone to be alone at any time during their sentence. Given the high number of prisoners who transfer from Barlinnie to Low Moss, one wonders how this has positively impacted upon the number of suicides at Barlinnie.

5.36 Although to date there have been no suicides in the establishment, there should be no reason for complacency. We noted that overall responsibility for the management of this issue rested with the Health Care Policy Group but we suggest that there should be a review of local procedures as follows:-

5.36.1 The management of suicide related issues should be the responsibility of a group properly constituted under the SPS’s Suicide Risk Strategy.

5.36.2 The role of Suicide Risk Management Co-ordinator should be given to an individual at Management level.

5.36.3 Consideration should be given to the introduction of a Listener Scheme, which has been successful in other establishments.