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4.1 In his various briefings at the start of inspection the Governor, who had been in post for over 10 years, referred to a number of issues. These included the following.
4.2 National Policy for Young Offenders. The Governor said that there was an overwhelming need for a national policy which involved an integrated approach to the management of prisoners in all YOIs. For example, those young men and women who were serving long sentences had no specific induction system - whereas adult male prisoners in a similar position were sent for several months to the National Induction Centre. There were no top end facilities for YOs nor any open conditions available to this group. Additionally, he felt that there needed to be more careful selection of staff in order to assess their suitability to work with adolescents and that their selection required to be followed up by specialist training.
4.3 We encountered very similar sentiments over a year ago when we inspected HMYOI Polmont but at the time, were told that a national policy would be forthcoming. For that reason, we held back from making any formal recommendations. Though we understand that this issue is included in a new SPS policy document that is being prepared, we nevertheless fully support the Governor's observations and recommend that such a policy is provided for the management of YOs. Such a policy should also recognise the need for staff to be selected on the basis of their suitability to work with adolescents and to receive the appropriate training.
4.4 Location. The majority of YOs came from the Central Belt and the Governor therefore felt that the use of Dumfries as a YOI was somewhat skewed.
4.5 Mix of Prisoners. The Governor alluded to the wide mix of the population who were required to be held in the establishment. In addition to the long-term YO population, he could be required to hold 16 year olds for short periods, remands and local convicted prisoners, both male and female. Currently, the bulk of the population was in the 17 to 20 age group and 34 of the 79 YOs were serving indeterminate sentences.
4.6 Ongoing Building Work. There was reference to the hiatus that had been created by Phase I of the refurbishment programme -; i.e. 'A' Hall and the central core. This rebuild was partly the consequence of remarks made in the Inspectorate's previous report but over recent months, this had led to considerable turbulence, including a loss of recreation for many YOs as well as some facilities for staff. At times, YOs or prisoners had had to be crowded three to a cell in the basement of 'B' Hall. Phase II would be starting shortly but could take up to 12 months to complete.
4.7 Female Unit. The Governor stated that there was currently not enough work for female prisoners (an assessment with which we subsequently agreed -; see paragraphs 5.17-20).
4.8 Violence. Violence was not normally a problem but at the end of 1998, there had been an upsurge in violence among the YO population.
4.9 During the course of our inspection, staff and YOs constantly referred to the "confrontation" that had occurred the previous November and there were separate references to a marked increase in prisoner on prisoner assaults. These assaults could be due, in part, to the recent rebuilding work and the associated turbulence and difficulties for control. (We had noted a similar situation during our 1997 formal inspection of HMP Perth when overcrowding caused by the decanting of prisoners during a major refurbishment had apparently contributed to an increase in violence.)
4.10 Drugs. The Governor referred to the fact that Dumfries was located on a major national drugs route and therefore, many local offenders were involved in regular drug misuse. However, the YOs from areas elsewhere in Scotland tended to be less organised and did not seem to have the same access to supplies from the local community, hence his assessment that fewer of them had a serious class A drug problem. (These facts were borne out subsequently in our own assessment -; see paragraphs 4.11-32. We were particularly disturbed by the reported high risk drug misuse activity in the local community from which came a number of adult prisoners, including females.)
4.11 A table summarising MDT results for random tests over the last year is shown below:-
| Substances | ||||||
| Month | No of tests | No of positive tests | % of positive tests | Cannabis | Benzodiazepine | Opiates |
| April | 14 | 4 | 29 | 2 | 1 | 2 |
| May | 14 | 2 | 21 | 2 | 1 | 1 |
| June | 14 | 7 | 50 | 7 | - | 1 |
| July | 11 | 2 | 18 | 1 | 1 | 2 |
| August | 11 | 2 | 18 | 2 | - | - |
| September | 13 | 2 | 15 | 2 | - | - |
| October | 15 | 4 | 27 | 4 | 1` | - |
| November | 14 | 5 | 36 | 2 | 3 | 3 |
| December | 14 | 7 | 50 | 7 | - | 2 |
| January | 13 | 1 | 8 | 1 | 1 | 1 |
| February | 13 | 0 | 0 | - | - | - |
| March | 13 | 1 | 8 | 1 | - | - |
| Total | 157 | 37 | Ave. 23% | 31 | 8 | 12 |
4.12 For the YO population, the most commonly used illicit substance was cannabis, which was found in over 80% of all positive tests. It is worthy of note that nine out of 10 YOs reported cannabis use in the community at their medical admission interview. There is therefore a significant change in drug taking behaviour by this group on reception to prison, as might be expected.
4.13 A different pattern of drug misuse appears to emerge for prisoners in 'D' Hall and the Female Unit. For example, opiate use was almost exclusively confined to those two groups. While there is a marked reduction in the amount and frequency of drug misuse in prison compared to the community, a high proportion of local prisoners were being admitted with heroin dependency. However, although intravenous drug taking was reported to be a feature of the local drug culture, especially for women, there was no recent evidence of such activity in the Institution (though syringes had been found in the past).
4.14 The level of illicit drug use amongst YOs suggested that the Institution was experiencing a degree of success in reducing the level of supply. However, the use within 'D' Hall reflected patterns of drug misuse in the community. Staff to whom we spoke saw the priority as reducing the supply of drugs into the establishment, whereas the objectives of reducing demand and the related harm of illicit drug use were seen as secondary.
4.15 Staff in 'D' Hall appeared to know which individuals used illicit substances and not only were they vigilant in their attempts to reduce this usage but they also encouraged prisoners to change their behaviour. Levels of substance misuse in 'D' Hall could be substantially higher were it not for these commendable efforts.
4.16 Addressing drug misuse requires a comprehensive and co-ordinated approach and we strongly suggest that the Institution considers some form of joint work with the local community drug team in order to establish a common approach and throughcare links.
(ii) Anti-Drug Strategy
(i) Local Formal Strategy
4.17 There was no formal drug strategy being followed, other than the SPS Guidance on the Management of Prisoners who Misuse Drugs. Consequently, while there were unco-ordinated elements that contributed to reducing the supply and demand for drugs, there were no systems in place to ensure that the approach was cohesive. There had been a Drug Strategy Management Group but we were advised that this group had disbanded sometime during the course of last year. On the positive side, 'C' Hall was operated as a drug-free area.
4.18 We suggest that the local Drug Strategy Management Group should be re-established under the chairmanship of a senior manager with a membership that reflects the range of roles involved in developing and implementing a comprehensive drugs strategy, the development and publication of which should be one of its first targets. Additionally, we suggest that consideration should be given to the creation of a Drugs Co-ordinator post similar to that developed at HMPs Aberdeen and Low Moss (and recently recommended for HMP Shotts).
4.19 The opportunity exists to build upon the success of 'C' Hall as a drug free area by developing drug free work parties within the Institution. Currently YOs from that Hall work alongside those from other parts of the establishment but we suggest that consideration should be given to developing an enhanced wages work-party for drug free YOs. (One option, which would provide ten spaces, would be the Gardens party.) This would further enhance the current arrangements for 'C' Hall and would serve to encourage and reward responsible behaviour.
(ii) Drug Testing
4.20 MDT testing required an average of 35 hours per month for two Officers to carry out the testing programme. With the time required for administration, the workload was the equivalent to 25% of one full-time Officer over the course of a year.
4.21 Current arrangements meant that testing was less likely to be carried out on Thursdays, Fridays and over the weekend, a situation that had apparently been recognised by some of the population. This undermined the effectiveness of MDT and could lead to underestimating the amount of heroin use in the establishment. It also reduced the deterrent effect of MDT in the establishment generally. We suggest that consideration should be given to revising current arrangements in order to make mandatory and voluntary drug testing much more effective.
4.22 It is important to recognise that the small population means that the results of random testing can vary significantly and thereby, make analysis difficult. There is, therefore, a need to review how random selection occurs in an establishment that consists of three very different prisoner groups. For example, the 1997-98 level of only two random tests in the Female Unit demonstrated that the current arrangements did not contribute to the deterrent effect of MDT.
4.23 Different patterns of drug misuse among the various groups, require to be discretely assessed. It is suggested, therefore, that the different groups are dealt with separately and that 10% of each group should be selected each month. Even although such a system would mean carrying out only one MDT test among the female prisoners each month, deterrence would be re-established. Such an approach would ensure that the patterns of misuse for each prisoner group could be monitored more effectively and responses tailored to meet developments.
4.24 In the year prior to our inspection, of 37 positive random tests, 10 had been discounted as outside Prison Rules or due to prescribed medication. ("Outside Prison Rules" means that the individual may not have been in prison, and therefore not subject to the Rules, at the time the drug was taken.) This is a fairly high rate but compares with other remand establishments. When these figures are taken into consideration, the rate of positive MDT tests falls from 23% to an average of 17%.
4.25 In the four months prior to our inspection, there had been an increase in the number of suspicion tests being carried out, with 14 out of the 19 tests carried out proving to be positive. This may have been a factor in reducing the level of drug use in the establishment.
4.26 In the year prior to our inspection, there had been 44 frequent tests, 24 of which had been carried out over the last four months. Some 25% had been positive, with heroin the drug most commonly found from those tests. Frequent testing is a necessary and useful tool in persuading those who provide positive test results to change their behaviour when used in conjunction with a range of measures to challenge drug use. When operated in isolation however, it is simply a punitive measure. We suggest, therefore, that the Institution should look at ways of establishing links with drug and health education, drug counselling, group work and other support measures to challenge repeated drug use.
4.27 All YOs in 'C' Hall undergo voluntary drug testing. Voluntary testing was introduced in November 1998 and accounts for 25% of all testing that takes place each month. To date, only two voluntary tests had proved positive and appropriate action was taken in both cases. Voluntary testing had led to an increase in the workload of the MDT Officers.
4.28 A basic Drug Addiction Course had been run three times over the last twelve months for a total of 25 YOs, for whom the content was appropriate. Comments from those who had completed the course were mainly complimentary with the participants indicating that they had benefited as a result of their attendance. This course gave YOs information about drug use in order that they could make informed decisions. We suggest that the basic drugs awareness course should be included in the induction programme.
4.29 An advanced drugs awareness course had been held twice over the last twelve months with a total attendance of 17. The potential contribution of such a course in helping to achieve drug reduction objectives was not being fully exploited and more could be done with the course material to support a comprehensive Drug Strategy.
4.30 The main area for improvement with the drugs courses was in evaluation and objective analysis of the work being done. Staff to whom we spoke referred to a lack of available time. Evaluation is, however, a vital part of any such course if it is to adapt and develop to meet changing needs, especially the needs of females and 'D' Hall prisoners.
(iv) Detoxification
4.31 Staff in 'D' Hall expressed concern that they were witnessing an increasing number of prisoners arriving in the establishment who were obviously drug dependent.
4.32 Detoxification using methadone was an option for those who were on a community programme and was monitored by the Medical Officer (MO), who prescribed symptomatic treatment for others. This issue was also being addressed nationally with the proposed introduction of a detoxification protocol (see also paragraph 8.12).
4.33 The establishment had a good record on the prevention of suicide. That said, in the year prior to our inspection there had been seven suicide attempts and three cases of self-harm, all of which served as a reminder of how vigilant staff had to be.
4.34 The SPS's new strategy -; ACT - had been introduced in June 1998 as part of the establishment's active policy for suicide prevention and since its introduction, there had been a total of 148 case conferences. We examined sample records of those cases and were satisfied that the documentation had been properly completed.
4.35 An ACT Strategy Group had been established and had held a meeting in December 1998. The Residential Manager acted as co-ordinator with the rest of the membership consisting of a Residential Supervisor, the Clinical Supervisor, a Reception Officer, a Residential Officer and a Practitioner Nurse. We noted from an examination of the minutes of the local Health Care Management Group (see paragraph 8.1) that they had also taken an active interest in the operation of the ACT strategy, including discussion of cases that were causing concern to staff.
4.36 An initial training course had been designed and we were advised that only six members of staff had still to undertake it. As part of a follow-up exercise, a sample of staff who had undergone this training had been asked to complete an evaluation form, the results of which showed that there was approval of the way the training had been carried out. An awareness programme had also been offered to YOs/prisoners and had resulted in a 40% take up rate.
4.37 At the time of our inspection, a new suite for the treatment of those considered to be potential suicide risks was being completed as part of the refurbishment of 'A' Hall. When it is brought into use, this should offer excellent facilities for male YO/prisoners at risk but it will not address the problem of female prisoners. The Female Unit will continue to have only one anti-ligature cell which means that when this is occupied, any other female prisoner at risk must be transferred to Cornton Vale.
4.38 We were impressed by the work of the ACT strategy co-ordinator and by the level of commitment which he and the Residential Supervisor demonstrated. We were pleased also to note that through the Health Care Management Group, the ACT strategy was constantly under review within the establishment. However, as the ACT co-ordinator was not a member of this Group, we suggest that the ACT Strategy Group should meet on a more frequent basis.
4.39 The management of female prisoners at risk of self harm is likely to continue to pose problems. Although the Female Unit does have one ligature-free observation cell, the design of the Unit does not easily allow for free association for a prisoner who is at risk. In addition, the existing facilities are clearly inadequate if more than one prisoner poses a risk of self-harm, whilst the transfer of a disturbed individual to another prison at such a critical time may not always be the best solution.
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