HMIP Annual Report 1997-98

8. Employment/Purposeful Activity

Introduction

8.1 Work has gradually developed over the years, from an extension of punishment and reparation, to the recognition that it has positive effects on rehabilitation and future rates of re-offending. More recently, the SPS opportunity agenda has extended the definition of employment to include ‘purposeful activity’, which incorporates vocational training (VT), education and physical education. Those programmes which are designed to assist offenders in recognising and/or addressing factors leading to criminal behaviour are also now included in this definition.

8.2 In 1996 a statement of ‘Policy, Purpose and Organisation’ was issued by the SPS. This confirmed that work would continue to be at the centre of prison regimes and would act as a focal point for the practice and consolidation of the knowledge and skills acquired through education, vocational training and group behaviour programmes. 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.

8.3 Additionally, a scoping review was established in order to define the employment and programme needs of individual establishments and to provide clear links between industry, VT, education, certification and pre-release training. This is still ongoing, with initial phases taking place at Perth, Shotts, Dungavel and Noranside.

Work Opportunities

8.4 Our inspection reports have commented favourably on the work opportunities which are available at Low Moss, Glenochil, Dumfries, Shotts, and Inverness. However the opportunities on offer at Peterhead, Cornton Vale and Greenock were judged to be relatively poor, whilst at Edinburgh and Perth there were just not enough places to go round. For the same reason, opportunities for influencing young offenders at Polmont were being missed, with up to 30% of the population being left "behind their doors" for most of the day.

8.5 We also commented unfavourably on the situation at Barlinnie, where only half the available workforce was being occupied. However, as part of the Government’s initiative to promote Welfare to Work, Barlinnie has now been selected to pilot the New Deal Gateway to Release Programme though we would hope that this will become a national programme in due course. This scheme, which is due to commence in June 1998, is targeted at 18-24 year old prisoners within the last two months of sentence and will provide education and job-related training in order to maximise their employment prospects upon release. It will also tackle offending behaviour problems, which might otherwise prevent a successful transition to work or resumption of employment and should go some way towards addressing current inadequacies in pre-release arrangements and strengthening inter-agency co-operation. Barlinnie is also looking to adopt a timetabling approach to activity - see paragraph 8.10 below.

8.6 Our inspection reports have highlighted the lack of regime and work opportunities which are available for remand prisoners. Though we recognise that there is no statutory requirement for them to work, we believe they should have the same opportunities for purposeful activities as their convicted counterparts. Nevertheless, overcrowding often dictates that there are insufficient places available for convicted prisoners, let alone remands.

Type of Work

8.7 There is considerable variety in the type of work on offer at establishments. For example, most have their own horticulture or garden parties, whilst others have tailoring, upholstery, textile, engineering or joiners shops, the latter being involved in tasks such as the production of garden furniture. Shoe repairs, printing, braille reproduction and the provision of ropes and helicopter nets for North Sea oil rigs are other ventures which are on offer. Additionally, most prisons now make domestic and industrial cleaning places available to prisoners.

8.8 We fully support any initiative which seeks to maximise the quality and commercial viability of Prison Industries, whilst recognising the need for appropriate accreditation and training skills to be given to prisoners better to prepare them for release.

Other Forms of Purposeful Activity

8.9 In last year’s report, we noted a reduction from the previous year in the number of community outplacements. This downward trend in the number of category ‘D’ prisoners who are able to work outside prison raises difficulties for the SPS and its prisoners, given the considerable benefits which these individuals receive from such opportunities. Whilst it is accepted that an element of risk is always involved and can never be totally eradicated, we would hope that the current SPS Security Category Review will give much greater clarity of definition for those prisoners who fit into the lowest security category.

An Integrated Approach

(i) Timetabling

8.10 Once again, we commend the timetabling approach which has been developed at Shotts. This has been introduced in order to keep every prisoner busy throughout the working day, with individuals being required to work for some sessions and to attend education and other programmes for the remainder of the time. It also ensures that prisoners have access to all activities and that they have a better chance of meeting the personal needs identified in their Sentence Plans. During our inspections we noted that other Governors were beginning to think in this direction; for example, Barlinnie has adopted a long term strategic approach to timetabling and in our intermediate report on that establishment, we commented that its plans were amongst the most comprehensive yet seen.

8.11 It has been encouraging to note that the work of the multi-disciplinary Programme Development Groups, with responsibility for the establishment of the four preferred programmes, has continued to develop. As a direct result of this initiative, Drug Relapse Prevention, Sex Offending, Anger Management and Cognitive Skills programmes are now being phased into the regimes of many establishments, with these programmes being underpinned by the introduction of a national risk/needs assessment process during Induction. This is an integral part of the Sentence Planning process and will identify regime opportunities at the appropriate stage of prisoners’ sentences.

8.12 Meanwhile, we believe that the different needs of young offenders ought to be more fully recognised and that a suitable risk/needs assessment methodology should be put in place for such individuals. The same applies at Cornton Vale, where the needs of women prisoners have been demonstrated to be very different from those of adult males. (See also Dr Loucks’ report and the more recent Joint Prisons/SWSI Inspectorates Report on Women Offenders.)

8.13 Recent inspection reports have noted that pre-release arrangements were often very poorly developed, with links to the relevant community-based agencies lacking in structure and regularity of contact. Given the critical nature of this phase and its potential impact on reoffending, we consider that this area should be afforded similar priority to that being given to the SPS Preferred Programmes initiative.

(ii) Pay

8.14 Last year we drew attention to the low level of prisoners’ wages, compared with increases in the cost of staple goods such as postage stamps, toiletries and tobacco. A national increase of 50p on each prison establishment’s per capita rate has since been implemented, with average rates of pay now being in the order of £6.60. A Prisoners Earnings Working Party, headed by the Deputy Director of Regimes, has been established to review the level and structure of prisoner earnings.

8.15 The Prison Industries Review Working Group has recommended the development of appropriate reward and incentive schemes, to ensure consistency in wage structures across Prison Industries. In addition, we suggest the introduction of a pilot scheme in the scoping review, whereby prisoners could earn an enhanced wage.