Tomorrow’sPrisons:
Designingthefutureprisonestate
RickMuirandIanLoader
April2010
©ippr2010
InstituteforPublicPolicyResearch
Challengingideas– Changingpolicy
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Contents
Aboutippr ...........................................................................................................................2
Abouttheauthors.............................................................................................................. 2
Acknowledgements............................................................................................................. 2
AboutWatesGiving ............................................................................................................ 3
Executivesummary ............................................................................................................ 4
1.Introduction ................................................................................................................... 6
2.Prisondesignandpublicpolicy ...................................................................................... 7
3.Anoverviewoftheprisonestate.................................................................................... 9
4.Thechallengesfacingtheprisonestate ....................................................................... 14
5.Alternativefuturesfortheprisonestate....................................................................... 26
6.Conclusion..................................................................................................................... 35
AppendixA:Listofinterviewees ...................................................................................... 37
AppendixB:PrisoncapacityandovercrowdinginEnglandandWales............................ 38
AppendixC:ListofallprisonsinEnglandandWales....................................................... 39
AppendixD:Datausedtocreatethemapsshowninthispaper ..................................... 41
AppendixE:TheageofprisonsandyoungoffendersinstitutionsinEnglandandWales .. 46
References......................................................................................................................... 50
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Aboutippr
TheInstituteforPublicPolicyResearch(ippr)istheUK’sleadingprogressivethinktank,
producingcutting-edgeresearchandinnovativepolicyideasforajust,democraticand
sustainableworld.
Since1988,wehavebeenattheforefrontofprogressivedebateandpolicymakinginthe
UK.Throughourindependentresearchandanalysiswedefinenewagendasforchangeand
providepracticalsolutionstochallengesacrossthefullrangeofpublicpolicyissues.
WithofficesinbothLondonandNewcastle,weensureouroutlookisasbroad-basedas
possible,whileourGlobalChangeprogrammeextendsourpartnershipsandinfluence
beyondtheUK,givingusatrulyworld-classreputationforhighqualityresearch.
ippr,30-32SouthamptonStreet,LondonWC2E7RA.Tel:+44(0)2074706100E:[email protected]
www.ippr.org.RegisteredCharityNo.800065
ThispaperwasfirstpublishedinApril2010.©ippr2010
Abouttheauthors
DrRickMuirisaSeniorResearchFellowatippr.Hisresearchfocusesondemocraticrenewal,
publicparticipationandpublicservices.Heleadsippr’sworkoncriminaljusticereformwith
publicationsincludingArrestedDevelopment:Unlockingchangeinthepoliceservice(2009),
thechapter‘Crimeandjusticeafterdevolution’inDevolutioninPracticeIII(2010,ed.Guy
LodgeandKatieSchmuecker)andANewBeat:Optionsformoreaccountablepolicing
(2008,withGuyLodge).HehasadoctorateinPoliticsfromOxfordUniversityandwas
formerlyalocalCouncillorinOxford.
ProfessorIanLoader isProfessorofCriminologyandDirectoroftheCentreforCriminology.
HearrivedatOxfordin2005fromKeeleUniversity,wherehehadworkedsince1992inthe
DepartmentofCriminology.PriortothathewasaLecturerinCriminologyandJurisprudence
attheUniversityofEdinburgh,fromwhereheobtainedhisPhDin1993.Hisbooksinclude
CrimeandSocialChangeinMiddleEngland(2000,Routledge,withE.GirlingandR.Sparks),
PolicingandtheConditionofEngland(2003,Oxford,withA.Mulcahy),CivilizingSecurity
(2007,Cambridge,withN.Walker)andPublicCriminology?(2010,Routledge,withR.
Sparks).Hehasalsowrittennumerouspapersonpolicingandsecurity,andonthe
intersectionsbetweenpoliticsandcrimecontrol.IanisanEditoroftheBritishJournalof
Criminology,AssociateEditorofTheoreticalCriminologyandisontheEditorialBoardsof
PolicingandSociety,Policing:AJournalofPolicyandPractice,TheOpenCriminology
JournalandIPS:InternationalPoliticalSociology.IanwasamemberoftheCommissionon
EnglishPrisonsTodayfrom2007–2009.Heisco-convener,withthePoliceFoundation,of
theOxfordPolicingPolicyForumandaResearchAssociateatippr.
Acknowledgements
TheauthorswouldliketothankWatesGivingforprovidingthefundingthatmadethis
researchpossible(seep3).ThanksalsogotoKarlHallamofCadenceWorksforlayingthe
groundworkfortheresearch,toJohnPritchard,SheffieldUniversityforproducingthemaps
thatgowiththereportandtoJonathanClifton,ippr,forcarryingoutsomanyofthe
interviewsandtheinternationalcomparativeresearch.
Thanksalsogotothefollowingpeoplefortheirhelpandadvice:BrianWheelwright,Andrew
Wates,KateStanley,LisaHarker,GeorginaKyriacou,StuartMitson,AndyHullandGuyLodge.
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AboutWatesGiving
WatesGivingisacharitableprogrammefocusedonmakingarealdifferencetocommunities
forthelongterm.TheprogrammeisrunandfundedbytheWatesFamilyEnterpriseTrust,
whichwassetupbytheWatesFamilyownersin2008withtheaimofstrengtheningtherole
businesshastoplayinsociety.
SincethelaunchofWatesGiving,over£1.9mhasbeeninvestedinlocalinitiatives.The
majorityoftheseareproposedandchampionedbyWatespeople.Projectscurrently
underwayinclude:redevelopingcommunitycentres,supportingprogrammestoreduceantisocialbehaviour,investinginprisonerrehabilitationschemesandsupportingeducation
resources.
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Executivesummary
Theaimofippr’sTomorrow’sPrisonsprojectistosetoutanambitiousagendafor
redesigningtheprisonestateinEnglandandWales.Itaskswhattheprisonsofthefuture
shouldlooklikeandhowtheestateasawholeshouldbereconfiguredinordertofacilitate
therehabilitationofoffenders.
Untilnowtheprisonsdebatehasfocusedalmostexclusivelyonsentencingandthequestion
ofwhoshouldbesenttoprisoninthefirstplace.Whilethesequestionsareimportant,far
toolittleconsiderationhasbeengiventothekindofprisonswewant.Asaresultwe
continuetobuildthesametypesofprison,evenwhenweknowtheyarefailingto
rehabilitateoffenders.
Withmuchoftheprisonestatefartoooldtomeetmodernneeds,thereisanurgentneed
forfreshthinkingaboutwhatwedoinourprisons–andhowtheyshouldbedesignedto
facilitatethoseobjectives.Thisproject,ofwhichthispaperisthefirstoutput,aimsto
providesuchnewthinkingbysettingoutachallengingbutachievableagendaforchange.
Findings
Thecurrentstateofourprisons
OurauditshowsthattheprisonsofEnglandandWalesfacemultipleandseriouschallenges:
• Theprisonestateisperilouslyovercrowded.
• Ourprisonsarenotrehabilitatingoffenderseffectively.
• Thereareverymanypeopleinprisonwhowouldbebetterrehabilitatedinalternative
settings.
• Prisonsarepoorlylocatedaroundthecountry:theyaresitedtoofarfromthe
communitiesoffenderscomefrom,whichhindersresettlement.
• Theestateisageing,withathirdofourprisonsbeingmorethanacenturyoldand
anotherhalfover50yearsold.
Theimpactofprisondesignonpenaloutcomes
Interviewswithstakeholdersfromwithintheprisonserviceandthewiderpenalreform
community,aswellasareviewoftheprisondesignliterature,revealthatarangeofprison
estatecharacteristicsarelikelytoimpactonrehabilitation.Theseare:
• Theoverallmixtureofpenalinstitutionsinthesystem
• Thefunctionofthoseinstitutions
• Wheretheyarelocatedgeographically.
Turningtoindividualprisons,anumberofcharacteristicsofprisondesignarelikelytoaffect
penaloutcomes:
• Size
• Relationshipwiththeoutsidecommunity
• Securityandsafetymeasures
• Theroleofpurposefulactivityinthelifeofaprison.
Conclusions:Twoalternativefutures
Weseetwoalternativefuturesfortheprisonestate:
• Wecancontinueonourpresentcourse,expandingtheestatebybuildingeverlarger
prisonsbasedonstandarddesigns.Thismightseemlikethepoliticallysafercourse,but
itisahighlycostlyoneandwilldolittletoaddressthechallengesidentified.
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• Wecanembraceanambitiousbutpracticalagendaofprisonmodernisation,whichwould
createamorediverserangeofpenalinstitutionsthataresmaller,locallyrooted,
specialisedandfocusedonrehabilitatingprisoners.
Thereportsetsthesceneforthesecondphaseoftheproject,whichwillsetoutindetail
whatthatalternativescenariocouldlooklikeandhowthepolitical,financialandpractical
challengestoitcanbeovercome.
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1.Introduction
Britain’sprisonsareincrisis.Aroundathirdoftheprisonestatewasbuiltoveracenturyago
–andhalfover50yearsago.Partlyforthisreasonourprisonsareexpensivetorunand
maintain.Thedirectcostofholdingeachprisonercomestoaround£39,000ayear–or£100
anightperprisoner.Ourprisonsareovercrowdedandconsequentlyindecent:arounda
quarterofprisonersaresharingcellsdesignedtoholdonepersonless.
Crucially,ourprisonsdonotwork–atleastintermsofrehabilitatingthoseconvictedof
crime.55percentofprisonersre-offendwithintwoyearsofreleaseand39percentwith
oneyear(HomeOffice2007,MinistryofJustice2009a).Wearespendingvastsumsof
moneyonholdingpeopleininstitutionsthatappeartomakethemmore,ratherthanless,
likelytooffendwhentheyleave.Thisrepresentsamonumentalfailureofpublicpolicy.
Thispaperfromippristhefirstoutputofawiderprojectonthefutureoftheprisonestate,
calledTomorrow’sPrisons.Webelievethat2010representsanopportunitytore-thinkwhat
wedoinourprisons.Whicheverpartywinsthegeneralelectionwillneedtofaceuptothe
challengeofredevelopinganageingandovercrowdedestate.
Moreover,therecessionandthedirestateofthepublicfinancesprovideapowerfulrationale
fordoingthingsdifferentlyandanopportunitytochartadifferentcourse.Theprisonestate
itselfisanenormouspieceofpropertyportfolio,rapidlyageing,inefficientandineffective
fromthepointofviewofrehabilitatingprisoners.Weshouldgrasptheopportunityofthe
currentbudgetdeficittoradicallyre-thinkhowweusethatportfolioandtheoptionsfor
redevelopment.Theprize,ifitcanbegrasped,wouldbeoneofamodernanddecentprison
estatethatwouldchangeprisoners’livesforthebetterandreducethecosttothetaxpayer
ofrunningourprisons.
Thisprojectstepsbeyondthetraditionaldebateaboutpenalpolicy.Thatdebatefocuseson
sentencingandwhetherornotthereshouldbesomanypeopleinprisoninthefirstplace.
Whilethesequestionsarevitalandwhiletheredevelopmentoftheestatehastobelinkedto
widercriminaljusticereform,therehasbeenmuchlesspublicdiscussionaboutthekindof
prisonswewant.Thisprojectisintendedtofillthatgap.
OnehundredyearsagoWinstonChurchillsaidthatthecivilisationofasocietyshouldbe
judgedbyhowittreatsitsprisoners(Ramsbotham2003).Thatisnolesstruetoday.Almost
everycommentator,includingthemostliberal,recognisesthatwewillalwaysneedprisonsto
dealwithseriousandviolentoffenders.Yettherehasbeenrelativelylittlediscussionabout
whatmodernandeffectiveprisonsshouldlooklike.Whatfacilitiesshouldamodernprison
have?Howdoesthedesignofaprisonimpactontherehabilitationwewanttosee?How
shouldtheprisonrelatetothecommunityinwhichitsits?Canweeventalkofsuchathing
asa‘goodprison’?
Structureofthereport
Thisreportfirstsurveysthecurrentprisonportfolio,describingthemake-upoftheestate
andthosewhopopulateit.Secondly,itscopesoutthekeychallengesfacingtheestatein
thecomingdecade.Finally,onthebasisofinterviewswithkeystakeholdersandareviewof
theprisondesignliterature,itsetsoutthosefeaturesofprisondesignthatneedtochangeif
wearetorehabilitateprisonersmoreeffectively.
Thisisascopingpaper,intendedtoframethesecondphaseoftheTomorrow’sPrisons
project,whichwillsetoutanambitiousbutfeasibleagendaformodernisingBritain’sprisons.
Itwillexploreindetailtheconfigurationofthefutureestate,thekindoffacilitiesmodern
prisonsshouldhaveandhowtheycouldbebetterdesignedtoaidrehabilitation.
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2.Prisondesignandpublicpolicy
Thispaperfocusesonprisondesignintwosenses.First,itexaminestheoveralldesignofthe
prisonestate:whereourprisonsarelocated,whattypeofprisonsarerequiredtomeetthe
needsofdifferenttypesofoffender,andhowprisonsshouldrelatetotherestofthecriminal
justicesystemandotherpublicservices.
Second,itaskswhattheprisonsofthefutureshouldlooklike:canweimproveonthe
standardmodelsofprisondesignwehave?Whatlessonscanwelearnfromprisondesignin
othercountries?Whatarethekeycharacteristicsofa‘goodprison’?
Thisfocusonprisondesigniscontentious–indeed,manyinthepenalreformcommunity
arguethatweshouldleavethisquestionwellalone.Theyarguethatprisondoesnotworkin
termsofrehabilitationandthatweshouldfocusondevelopingalternativestoit.They
contendthatunlesswedealwiththecausesofprisonovercrowding–mainlypublic,media
andpoliticalpressurefortoughersentences–itdoesn’tmatterhowwelldesignedprisons
are:theywillsimplybeswampedbyunsustainablenumbers.Todiscussprisondesign,these
scepticsargue,istoavoidthemostimportantquestions.
Thisargumentisrightinanimportantsense:wecannotdeliverproperrehabilitationuntilwe
lookatalternativestocustodyanddealwiththeovercrowdingproblem.Thisrequiresreform
tothewidercriminaljusticesystem–aswellaswidersocialchange.Weneedmoreeffective
community-basedalternativestocustody,greaterinvestmentindrugtreatmentprogrammes
inthecommunity,andtodivertpeoplewithmentalhealthproblemsintosupportive
programmesbeforetheygetcaughtupinthecriminaljusticesystem.
Let’sbeclear:reformtothewidercriminaljusticesystemtobetterrehabilitateoffendersand
reducetheprisonpopulationisaprerequisitetoachievingtheaimssetoutinthispaper.We
knowthatprisonisnottherightplacetorehabilitateverymanyoffendersandweknowthat
wecannoteffectivelyrehabilitateinovercrowdedconditions.Insimplepracticalterms,we
cannotmoderniseageingprisonsunlesswereducethenumbersandhavesomesurplus
spacestomovepeopleinto.
However,thequestionofdesignremainsimportantandunavoidable.Evenifwedidsucceed
inreducingtheprisonpopulation,wewillalwaysneedprisonstocontainseriousandviolent
offenders.Atsomepointinthedecadeaheadthequestionofhowtoredevelopand
modernisetheageingprisonestatewillneedtobeaddressed.
Weshouldalsomakeitclearthatprisondesignislessimportantintermsofoutcomesthan
thekindofregimesthatareruninourprisons:forexample,howmuchtimeisspenton
productiveactivityorthekindofdrugtreatmentormentalhealthservicesavailable.
Neverthelessthedesignofaprisoncanimpedeorfacilitatetheimplementationofany
particularpenalregime.Theamountoftimespentonproductiveactivitydependsinparton
howintegratedprisoners’livingaccommodationiswitheducationaloremploymentfacilities.
Ifthesetwocomponentsofprisonlifearehighlysegregateditmakesitmuchmoredifficult
toincreasetheamountoftimeprisonerscanspendlearningorworking.
Withoutfallingintoaformofarchitecturaldeterminism,weknowfromotherpublicpolicy
domainsthatthewayinstitutionsaredesignedplaysanimportantroleinthesocial
outcomestheyaffect.Forexample,theCommissionforArchitectureandtheBuilt
Environment(CABE)hasfoundthatnewlydesignedhospitalwardscanhaveasignificant
impactontreatmenttimes,thedegreeofverbalabusetowhichstaffaresubjectedand
patients’satisfactionwiththeirtreatment(Allsop2007).
Thepowerofprisondesigntoaffectpeoplebothwithinandoutsideprisonwallswaswell
understoodbythosewhobuiltprisonsinthe18thand19thcenturies;manyofthesestill
standtoday(Johnson1973).Prisonexteriorsweredeliberatelycraftedtoinstilfearand
communicateamessageofdeterrence.Theinteriorsweredesignedtochangetheprisonerin
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certainways,especiallythroughafocusonsolitarypersonalreflectioninindividualcells.Itis
truethatthen,andnow,theoverwhelmingpriorityinprisondesignwascontroland
containment,ratherthanrehabilitation.
Ifwearetochangeprisonsintomorerehabilitativeinstitutions,progressivesneedtothink
abouthowtheylook,workandfeel–andtheimpactthishasonthosedetainedwithin
them.
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3.Anoverviewoftheprisonestate
Thereare140prisonsinEnglandandWales1(seeAppendixC,p39).Themajorityarerunby
HerMajesty’sPrisonsService(HMPS),and11byprivatecontractors.
Prisonsarecategorisedas‘open’or‘closed’.Mostprisonsareclosedprisons,ofwhichthere
arethreekinds:
• Localprisons:prisonersaresenthereonremand,beforetheyhavebeentriedor
sentenced,orimmediatelyuponsentencing.Dependingonthelengthoftheirsentence
theyarethenallocatedtoatrainingprison.
• Trainingprisons: themajorityofprisonsaretrainingprisons,whichholdprisonersonce
theyhavelefttheirlocalprisonorhavebeentransferredfromanothertrainingprison.
TheyarecategorisedasA,B,CorDdependingontheirlevelofsecurity.
• Highsecurityprisons: thisisaspecialcategoryoftrainingprison,holdingCategoryAand
Bprisonerswhowouldposeahighrisktothepublicweretheytoescape.Thereare
currentlyeighthighsecurityprisons.
Alladultprisonersareallocatedtoaparticularsecuritycategoryandthentoanappropriate
trainingprison:
• CategoryA prisonersarethoughttobehighlydangeroustothepublicorathreatto
nationalsecurityshouldtheyescapeandtheaimistomaketheirescapeimpossible.
• CategoryB prisonersarethoseforwhomthehighestdegreeofsecurityisnotnecessary
butforwhomescapemustbemadeverydifficult.
• CategoryC isforthosewhocannotbetrustedinopenconditionsbutwholackthewill
orresourcestomakeadeterminedescapeattempt.
• CategoryD isforthosewhocanbereasonablytrustedinopenconditions.
Inadditiontothemajorityofadultmaleprisons,thereare13adultfemaleprisonsholding
justover4,000womenprisoners.ThePrisonServicealsoprovidessecureaccommodationfor
youngadults(aged18–20),youngpeopleaged17whoareonremand,and15–17yearold
malesand17yearoldfemaleswhohavebeengivenacustodialsentence.Thereare
approximately2,600youngmenandaround70youngwomeninprisonservicecustody.
TheyareheldinYoungOffenderInstitutions(YOIs)(HMPrisonService2009b).
Whoisinprison?
Thereare84,231peopleinprisoninEnglandandWales(MinistryofJustice2009).Figures
3.1–3.3belowshowhowthispopulationbreaksdownintermsofthetypesofoffences
committed,thelengthofsentenceoftheprisonpopulationandthelengthofsentenceof
thosereceivedintocustodyin2008.
1.ThispaperisconcernedwiththeprisonestateinEnglandandWales.Forabriefcomparisonwiththechallengesfacingthe
prisonestatesofScotlandandNorthernIrelandseeMuir(2010).Scotlandfacessimilarpressuresintermsofovercrowding,while
NorthernIrelandhasseenitsprisonpopulationfallasaresultofthepeaceprocess.
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Figure3.1.
Theprison
populationby
offencetype,
2008
Note:Sentenced
prisoners
Other offences
9%
Violence against
the person
28%
Motoring offences
2%
Drug offences
16%
Source:Ministryof
Justice2009b
Fraud and forgery
3%
Sexual offences
11%
Theft and handling
6%
Burglary
12%
Figure3.2.
Theprison
populationby
sentence
duration,June
2008
Source:ibid
2%
Robbery
13%
Lengthofsentence
5%
18%
Less than or equal to 3 months
4%
3%
6%
6%
18%
20%
Greater than 3 months, up to and
including 6 months
Greater than 6 months, less than
12 months
12 months
Greater than 12 months, less than or
equal to 18 months
Greater than 18 months, less than or
equal to 3 years
Greater than 3 years, less than 4 years
4 years
5%
8%
5%
Greater than 4 years, less than or equal
to 5 years
Greater than 5 years, less than or equal
to 10 years
Greater than 10 years, less than
indeterminate
Indeterminate
Thesechartsshowthatalthoughshort-stayprisoners(thosewithsentencesunder12
months)representjust11percentoftheprisonpopulationatanyonetime,theymakeup
themajorityofthosesentencedprisonersreceivedintocustodythroughouttheyear(64per
cent).Inotherwordswhileasnapshotofourprisonswouldtellyouthatshort-stayprisoners
areonlyaroundatenthofthepopulation,overthecourseoftheyeartheymakeupthe
majorityofthe‘churn’inprisonpopulation.
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Figure3.3.
Receptionsinto
custodyof
sentenced
prisonersby
sentencelength,
2008
Source:ibid
2%
7%
2%
Fine defaulter
Less than or equal to 6 months
Greater than 6 months to less
than 12 months
25%
12 months to less than 4 years
54%
4 years or more (excluding
Indeterminate)
Indeterminate sentences
10%
Figures3.4to3.6showthedemographiccharacteristicsofthoseinprison:
• Figure3.4showsthattheprisonpopulationhasbeengettingolderovertime,witha
sharpriseinthenumbersagedover40.Thishasbeencausedbothbythelongerlength
ofsentencesandtheincreasingnumberofindeterminatesentencesissued.
• Figure3.5showsthegendermixinourprisons,demonstratingariseintheproportionof
womeninourprisons,growingfrom2,367in1998(4.5percentofthetotal)to3,535
(5.1percentofthetotal)in2008.
• Figure3.6showstheethnicmake-upoftheprisonpopulation.Blackandminorityethnic
groupsareover-representedintheprisonpopulation,makingup27percentofthe
total,comparedtojust12percentofthepopulationasawhole.
Source:ibid
20,000
18,000
16,000
Population number
Figure3.4.
Theprison
populationby
age,1998to
2008
Note:Sentenced
prisoners
15-17
18-20
21-24
25-29
30-39
40-49
50-59
60 and over
14,000
12,000
10,000
8,000
6,000
4,000
2,000
0
1998
2000
2002
2004
Year
2006
2008
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Figure3.5.The
prison
populationby
gender,1998to
2008
Source:ibid
70,000
60,000
Number of prisoners
12
50,000
40,000
Males
Females
30,000
20,000
10,000
0
1998
2000
2002
2004
2006
2008
Year
Figure3.6.The
prison
populationby
ethnicity,1998
to2008
Source:ibid
2%
15%
White
Mixed
7%
Asian or Asian British
3%
Black or Black British
73%
Chinese or Other ethnic
group
FigurescollatedbytheGovernment’sSocialExclusionUnit(SEU)in2002comparedthe
socialcharacteristicsofprisonerswiththoseofthepopulationasawhole.Table3.1
demonstratesveryclearlythatprisonersoverwhelminglycomefromsociallydisadvantaged
backgrounds.
AstheSocialExclusionUnitsummarisedatthetime:
…beforetheyevercomeintocontactwiththeprisonsystem,most
prisonershaveahistoryofsocialexclusion,includinghighlevelsof
family,educationalandhealthdisadvantageandpoorprospectsinthe
labourmarket.Thefailureofmainstreamagenciestodealwiththese
aspectsofsocialexclusionmeansthatthePrisonServiceandProbation
Serviceareinmanycasesbeingaskedtoputrightalifetimeofservice
failure.(SocialExclusionUnit2002:18)
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Table3.1.SocialcharacteristicsofprisonersinEnglandandWales,2002
Characteristic
Prisoners
Ranawayfromhomeasachild
Male47%
Female50%
Takenintocareasachild
27%
Familymemberconvictedofacriminaloffence
43%
Unmarried
85%sinceimprisonment
Divorced
9%
Youngfather
25%ofyoungoffenders
Loneparenthood
21%ofwomenprisoners
Regularlytruantedfromschool
30%
Excludedfromschool
Male49%
Female33%
Leftschoolat16oryounger
Male89%
Female84%
Attendedaspecialschool
Male23%
Female11%
Noqualifications
Male52%
Female71%
NumeracyatorbelowLevel1(expectedatage11) 65%
ReadingabilityatorbelowLevel1
48%
Unemployed
67%fourweeksbefore
imprisonment
Twoormorementaldisorders
Male72%
Female70%
Threeormorementaldisorders
Male44%
Female62%
Psychoticdisorder
Male7%
Female14%
Personalitydisorder
Male64%
Female50%
Druguseinpreviousyear
Male66%
Female55%
Hazardousdrinkinginpreviousyear
Male63%
Female39%
Long-standingillnessordisability
Male49%
Smoking
Male77%
Female82%
Inreceiptofbenefits
72%immediatelybeforeprison
Debt
48%historyofdebt
Sleepingrough
Homelessness
4.7%immediatelybeforeprison
32%notinpermanent
accomm’nbeforeimprisonment
Generalpopulation
M/F:11%
2%
16%
39%
4%
4%
9%
3%
M/F:2%
M/F:32%
M/F:1%
M/F:15%
23%
21–23%
M/F:5%
Male5%
Female2%
Male1%
Female0%
Male0.5%
Female0.6%
Male5.4%
Female3.4%
Male13%
Female8%
Male38%
Female15%
Menaged18–4929%
Male28%
Female27%
13.7%workingagepopulation
10%householdswithdifficultor
multipledebts
0.001%
0.9%
Source:SocialExclusionUnit2002:18–22
ThissectionhasscopedoutthetypesofprisonthatexistacrossEnglandandWalesandthe
characteristicsoftheprisonersheldwithinthem.Wenowturntothechallengesfacingthe
prisonestate.
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4.Thechallengesfacingtheprisonestate
Havingprovidedabriefdescriptionofwhattheestatelookslikeandwhoisheldwithinit,we
nowturntothemajorchallengesourprisonsface.Wepresentthemultipleproblemswiththe
prisonssystemandthenaskhowimaginativeprisondesigncanhelpusmeetthesechallenges.
Overcrowding
Latestfigures–forDecember2009–showthereare84,231peopleinprisoninEnglandand
Wales.Thisisjust1,755belowexistinguseableoperationalcapacitywithintheprisonestate
(MinistryofJustice2009a).EnglandandWaleshavethesecondhighestimprisonmentrate
inWesternEurope,with149prisonersforevery100,000people,comparedtotheEuropean
Unionaverageof102per100,000(althoughthatisinthecontextofoneofthehighest
crimerates)(CentreforSocialJustice2009:37).
Figure4.1showstheprisonpopulationandprisoncapacityfrom1994to2015.Thepurple
lineshowsoperationalcapacity,whichisdefinedas‘thetotalnumberofprisonersthatan
establishmentcanholdtakingintoaccountcontrol,securityandtheproperoperationofthe
plannedregime.Itisdeterminedbyareamanagersonthebasisofoperationaljudgement
andexperience’(HMPrisonService2009a).
ThegreenlineshowsCertifiedNormalAccommodation(CNA),oruncrowdedcapacity.Itis
definedas‘thePrisonService’sownmeasureofaccommodation.CNArepresentsthegood,
decentstandardofaccommodationthattheServiceaspirestoprovideallprisoners’(HM
PrisonService2009b).Theredlineshowstheoverallprisonpopulationpast,presentand
projectedintothefuture.
Whatthisgraphshowsisthattheprisonpopulationrosesignificantlyoverthelasttwo
decadesandthishaspushedprisoncapacitytobreakingpoint.In2008thenumbersin
prisonexceededtheoperationalcapacityoftheestate,whichledtomanyprisonersbeing
heldforprolongedperiodsincourtandpolicecells.Asimilarcrisispointispredictedfor
2012,withtheestateliterallyrunningoutofcapacity.However,iftheriseintheprison
populationlevelsoffaspredictedandiftheGovernmentissuccessfulinbuildingthefive
newprisonsitisplanning,thenthereshouldbeenoughoperationalcapacitytomanagethe
numbersafter2012.
Unfortunately,evenifwecanphysicallycontainthenumbersrequiredwecanonlydosoin
overcrowdedconditions(thegreenline).Indeedourprisonshavebeenovercrowdedevery
yearsince1994andtheaveragenumberofpeopleheldtwotoacellcertifiedforone
increasedfrom9,498in1996/97to17,974in2006/07(CentreforSocialJustice2009).
100,000
90,000
80,000
70,000
60,000
50,000
40,000
19
9
19 4
9
19 5
9
19 6
9
19 7
9
19 8
9
20 9
0
20 0
01
20
0
20 2
03
20
0
20 4
0
20 5
0
20 6
0
20 7
0
20 8
0
20 9
1
20 0
1
20 1
1
20 2
1
20 3
1
20 4
15
Figure4.1.
Actualand
projectedprison
capacityand
population,
1994–2015
Sources:Prisoner
numbersfrom
PrisonReform
Trust(1994to
2008)and
MinistryofJustice
projections(2009
to2015).SeeApp.
Bforthefigures
behindthisgraph
Prisoners
Capacity (CNA)
Operational capacity
15
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Overcrowdinghasanumberofalarmingconsequences.Amongtheseare:
• Overcrowdingbreachesthestandardsofdecencytowhichtheprisonserviceaspires.
Around17,000prisonersaredoublingupincellsdesignedforonepersonandover
1,000aretreblingupincellsdesignedfortwopeople.Thismeansthatnearlyaquarter
oftheprisonpopulationishousedincellsdesignedforonepersonless(Conservative
Party2008).
• Overcrowdingposesarisktoprisonersafety:followingthemurderofZahidMubarekat
thehandsofhiscellmatein2000,the2006Mubarekreportcalledforanendto
enforcedcellsharing(ZahidMubarekInquiry2006).Giventhecurrentpressuresonthe
estatethisisimpossibletodounlessthenumberscomedownorcapacityisdramatically
increased.
• Overcrowdingpreventsafocusonrehabilitativeactivitiesbecauseresourcesarestretched
andtoomuchstafftimeisspentonmanagingnumbers.
• Asituationofcrisismanagement,withprisonersbeingplacedsimplywhereverthereis
sparecapacity,includinginpoliceorcourtcells,meansthatprisonersarenotplacedin
appropriateinstitutionswiththerightprogrammestotackletheiroffendingbehaviour.
• Overcrowdingmakesitimpossiblefortheprisonservicetomoderniseageingprisons,
simplybecausethereisnosparecapacitytowhichprisonerscanbemovedwhilethe
workiscarriedout.Overcrowdingisafundamentalobstacletotheredevelopmentofthe
prisonestate.
Briefly,themaincausesofprisonovercrowdingare:
• Greateruseofcustodialsentences:therewasa40percentriseintheuseofcustodial
sentencesbetween1997and2007(CentreforSocialJustice2009).
• Longercustodialsentences:theaveragesentencelengthincreasedfrom14.7monthsin
1995to16.8in2005.Thenumberofpeopleservingsentencesofover12monthsrose
from32,000in1995to54,000by2005,a70percentincrease(HouseofCommons
JusticeCommittee2008).TheaveragelengthofsentenceshandeddownbyMagistrates
Courtsforrobberyrosefrom3.7monthsin1997to8.4monthsin2009.IntheCrown
Courtsimmediatecustodialsentencesforburglaryincreasedbyonemonthanddrugs
offencesbyfivemonthsoverthesameperiod(CentreforSocialJustice2009).
• TheintroductionofImprisonmentforPublicProtectionsentencesmeansthatprisoners
canbeheldinprisonindefinitelyiftheparoleboardjudgesthattheyarearisktopublic
safety.Itisestimatedthattheremaybe12,000prisonersonIPPsby2012,manymore
thantheGovernmentoriginallyestimated,whichputssignificantadditionalpressureon
theprisonpopulation(PrisonReformTrust2007).
Theincreaseduseofcustodyandthelongerlengthofsentencesreflectwhatpoliticianstake
tobeapunitiveclimateofpublicopinion,reflectedandverylikelyintensifiedthroughthe
waythemedia,especiallythetabloidpress,reportscrime.Thishashelpedcreateapolitical
logjamonpenalreform,simplybecausenopoliticalpartywantstobeportrayedas‘softon
crime’.
WhiletheGovernmenthasmadeitclearthatitexpectsonlyseriousandviolentoffendersto
besenttoprison,thecourtsremainreluctanttousenon-custodialsanctionssuchas
communityorders.TheHouseofCommonsJusticeCommitteeinarecentreportfoundthat
thiswasbecausethecourtsdonotfeelthepublichaveconfidenceinthesesentences,but
alsobecausetheyarenotsufficientlyresourcedsothatthecourtscanbeconfidentthatthey
canbeeffectivelysupervisedandimplemented(HouseofCommonsJusticeCommittee
2008).
16
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Prisons:ineffectiveatrehabilitation
Weknowthatourprisonsaregenerallyineffectiveatrehabilitatingoffenders:approximately
39percentofprisonersre-offendwithinoneyearoftheirreleasefromprisonand55per
centre-offendwithintwoyears(HomeOffice2007,MinistryofJustice2009a).The
Government’sSocialExclusionUnitfoundthatfouroutoffiveadultmaleprisonershad
previouslybeenconvictedofanoffenceandmanyofthesehadspenttimeinprison(Social
ExclusionUnit2002).Whileprisonisintendedtopunishandcontainthosewhohave
committedcrimes,itisalsowidelybelievedthatitshouldrehabilitateprisoners.Thesefigures
showthatourprisonsarecomprehensivelyfailingtodothis.
Whileitisdifficulttosayhowwecomparewithothernations,becausethefiguresarenot
collectedconsistently,itisclearthatsomecountriesdobetter.Denmarkhasareconviction
ratewithintwoyearsof45percentandthreeAustralianstateshaveevenlowerratesofjust
38percentwithintwoyears(ibid).
Thereisofcourseahumancostinvolvedinthefailuretorehabilitate:thewastedlifeofthe
offenderconcerned,andtheimpactontheirfuturevictims.Butthereisalsoanenormous
financialcost.Itisestimatedthatthecostjusttothecriminaljusticesystemofcrime
committedbyare-offenderwaslikelytobe£65,000perpersoneveryyear,withthecostof
prolificre-offendersrunningmuchhigher.Overall,crimecommittedbyex-prisonerscosts
societywellinexcessof£12billioneveryyear(CentreforSocialjustice2009).Ifprison–or
alternativestoit–couldmoreeffectivelyrehabilitateoffenders,thiswouldbringabout
considerablesavingsforthetaxpayer.
Thesadrealityisthatweknowwhatworksbutarestillnoteffectivelyprovidingit.Ina
groundbreaking2002reporttheSocialExclusionUnitidentifiedthekeyfactorsthat
facilitatetherehabilitationofoffenders–andconcludedthatourprisonsaregenerally
deficientindeliveringthem.Thesefactorsaredescribedbelow.
Educationandtraining
30percentofprisonerswereregulartruantsatschool,49percentofmalesentenced
prisonerswereexcludedfromschooland52percentofadultmaleprisonershaveno
qualificationsatall.
Canadianresearchhasfoundthatparticipationinbasicskillscanreducere-offendingrates
by12percent.Anotherstudyfoundthatprisonerswhohadnottakenpartineducation
programmeswerethreetimesmorelikelytobereconvictedthanthosewhohad.Ofcourse
improvingliteracyandraisingskillslevelsalsohelpsprisonersgetjobsafterrelease,whichin
turnisalsoakeyfactorinpreventingre-offending(SocialExclusionUnit2002).
TheGovernmenthasincreasedinvestmentineducationservicesinprison,risingfrom£57
millionin2001–2to£156millionin2006–7(CentreforSocialJustice2009).However,
althoughHerMajesty’sInspectorofPrisons,AnneOwers,hasfoundanimprovementinthe
qualityofeducationprovidedinprisons,aquarteroftheeducationprovidedwasstillfound
tobeinadequate(HMInspectorofPrisons2008).
TheNationalAuditOfficefoundthattherewaspoorprovisionforprisonersonshort
sentences,thatonlyaquarterofprisonershadbeensubjecttoaninitialeducational
assessmentandthatathirdofprisonerlearningplanswereinadequateanddidnotspecify
whichcourseprisonersshouldenrolin(CentreforSocialJustice2009).Anumberofthe
expertsinterviewedbyipprarguedthatthekindofeducationalprovisionmadeinprisons
wasatfartoobasicalevelandwasnotthereforeambitiousenoughtomeettheneedsofall
prisoners.
Employment
Mostprisonersareunemployedwhentheyenterprison,mosthavespentmuchoftheirlife
outsidestableemploymentandmostwhohaveajobwhentheyenterprison,loseit.The
17
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
SocialExclusionUnitfoundthatbeinginemploymentafterprisonreducestheriskof
re-offendingbybetweenathirdandahalf(SocialExclusionUnit2002).
Andyetemploymentwithinprisonandhelptogainemploymentafterreleaseremainpoorin
quantityandquality.Withinprisonworkisgenerallylow-skillandmenialincharacter:
prisonerscanworktomaintainandservicetheprisonitself(inthekitchen,thelaundryor
thegrounds),ordorepetitivemanualorsomemoreskilledworkforexternalcontractorsor
internalconsumption.
Thereisnotenoughworktogoround:therearejust32,000workplacesforover80,000
prisoners(CentreforSocialJustice2009).Workinprisonhasalsobeenfoundtobeillsuited
totheneedsofthelabourmarket,meaningthatprisonersarenotwellpreparedonrelease.
Onleavingprison,prisonersgetlittlehelpfindingemployment:onestudyfoundthatonly
oneinfivewhohadajoborwerelookingforonehadreceivedhelporadviceinprison
(SocialExclusionUnit2002).
Drugandalcoholmisuse
Themajorityofprisonershaveahistoryofdrugandalcoholmisuse:twothirdsofprisoners
hadusedillegaldrugsintheyearpriortogoingintoprison,witharoundaquarteroverall
usingcrackcocaineorheroin.Threefifthsofmaleprisonersandtwofifthsoffemale
prisonersadmittedtohazardousdrinkingpriortoimprisonment(SocialExclusionUnit2002).
Onerecentreportfoundthat‘drugsflowlikeriversthroughourprisonsystem’(Centrefor
SocialJustice2009:116).In200640percentofprisonersadmittedtousingdrugsintheir
currentprisonandtheHomeOfficehasfoundthat75percentofprisonerssaytheyhave
takendrugswhileinprison(ibid).
Allprisonershaveaccesstoaformofclinicalintervention,suchasdetoxificationor
maintenance,andCARAT(Counselling,Assessment,Referral,AdviceandThroughcare)
workersoperateinallprisons.However,only11,000ofthe135,000interventionsdelivered
in2007–8wereintensiverehabilitationprogrammesandonly7,412prisonerscompleted
drugtreatmentprogrammesduringthatperiod.Giventhatmostprisonershavedrug
problems,itisclearthatdemandoutstripssupply(CentreforSocialJustice2009).
Researchhasalsofoundthatcoordinationbetweenprisonprogrammesandcommunitybasedservicesafterreleaseisverypatchy.TheInspectorateconcludedinitsannualreportof
2006/7thattreatmentforalcoholmisuseremainedinadequate(HMInspectorofPrisons
2007).
Mentalhealth
Thestatisticsonthementalhealthofprisonersaretrulyshocking:
• 72percentofmaleand70percentoffemalesentencedprisonerssufferfromtwoor
morementalhealthdisorders,14and35timesthelevelinthepopulationasawhole
respectively.
• 64percentofmaleand50percentoffemaleprisonershaveapersonalitydisorder.
• 20percentofmaleand15percentoffemaleprisonershavepreviouslybeenadmitted
toamentalhospital.
• 7percentofmaleand14percentoffemalesentencedprisonershaveapsychotic
disorder.
• 95percentofyoungprisonersaged15to21sufferfromamentaldisorderand80per
centsufferfromatleasttwo.
• 20percentofmaleand37percentoffemalesentencedprisonershavepreviously
attemptedsuicide.Everyyear50prisonerscommitsuicideuponrelease.
18
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Itiswidelybelievedthatcustodyworsensmentalillnessandincreasestheriskofsuicideand
self-harm(Bradley2009).Theenvironmentandcultureofaprisonisnotconducivetogood
mentalhealthandemotionalwell-being,whichdependsonfactorssuchasaccesstonature
andthestimulationofthesenses,regularphysicalexercise,purposefulactivity,the
developmentofapositiveself-identityandpositivesocialandfamilyrelationships(HM
InspectorofPrisons2007).Ofcourse,prisonbyitsverynatureremovesmanyofthese
thingsfromaprisoner’slife.
Numerousreportscontinuetofindthattoomanypeoplewithmentalillnessesarebeing
caughtupintheprisonsystemduetoalackofearlytreatmentandcare.TheBradleyReport
onmentalhealthandthecriminaljusticesystemfoundthatthesystemfailstoassessor
understandmentalhealthissuesearlyenoughintheoffenderpathway(Bradley2009).
Youthoffendingteamsandthepolicehaveverylittletraininginhowtoidentifyanddeal
withmentalhealthissues.Mentalhealthdiversionaryschemesdoexistincourts,butthere
areoftennotenoughplaces,leavingsentencerswithcustodyastheironlyoption.
Withinprisonmentalhealthserviceshaveimproved,butstillsufferfrommajordeficiencies.
Mentalhealthprofessionalsareoftennotavailablewhenprisonersarereceived,screeningfor
mentalhealthproblemsupontransfertoanotherprisonispoorandthereistoolittlefollowupfromtheinformationreceivedatthescreeningstage.Only23percentofprisonofficers
havereceivedmentalhealthtraining.Therearedelaysintransferringprisonerstohospitals
becauseofthelackofsecurebeds.Thereisverylittlefamilyinvolvementincaseplanning
andthereispoorcoordinationforthecontinuityoftreatmentuponrelease(HMInspectorof
Prisons2007,Bradley2009).
Attitudesandself-control
Mostprisonerscomefromverysociallyexcludedbackgroundsandmanyseecrimeasthe
onlywayoflifeorwillhavegrownupinanenvironmentwherecrimeisseenasacceptable.
Prisoncanbeanopportunitytochallengetheseattitudes:weknowthatoffending
behaviourprogrammes,usedinprisonssince1992,canlowerreconvictionratesby14
percentagepoints.Butnotallprisonershaveaccesstotheseprogrammesandinparticular
therearetoofewprogrammesfocusedonshort-stayprisoners(SocialExclusionUnit2002,
NationalAuditOffice2010).
Wealsoknowthatrestorativejusticeprogrammesinwhichoffendershavetofacetheir
victimscandramaticallylowerreconvictionrates(inonestudyby27percent).Andyetas
onereportfound,restorativejustice‘hasbeenunimpressivelypresented,poorlyunderstood
andonlysporadicallyimplemented’(CentreforSocialJustice2009:194;seealsoSherman
andStrang2007).
Lifeskillsandinstitutionalisation
Verymanyprisonersenterprisonhavingspentmuchoftheirlifewithoutthebasicskills
requiredtoliveanormallife,sustainajoborahome,managetheirfinancesormaintain
relationships.Manyhavespenttimeincareaschildren,verymanyhaveplayedtruantfrom
school,mosthavespentconsiderabletimeunemployed,manyhavementalhealthand/or
drugproblemsandmanyhaveweakorpoorfamilyrelationships.Prisoncanmakematters
worse,simplybecauseprisoncorrodesaprisoner’sautonomyandsenseofpersonal
responsibility.Thismakesitevenlesslikelythattheywilladaptsuccessfullyuponrelease.
Prisonersspendtoolittletimeoutoftheircells,engagedinthekindofpurposefulactivity
thatwouldenhancetheirsenseofpersonalresponsibility.TheSocialExclusionUnitfound
thattimespentunlockedfromcellswasonly9.5hoursonweekdaysand8.3atweekends.
Theamountoftimespentonpurposefulactivityrangedfrom20hoursaweekinlocal
prisonsto42.4inopentrainingprisons(SocialExclusionUnit2002).
19
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
ArecentNationalAuditOfficereportfoundthatbetweenathirdandahalfofshortsentencedprisonersarenotinvolvedinworkorcoursesandspendalmostalldayintheir
cells(NationalAuditOffice2010).Lookingatthreedifferentprisons,theNAOfoundthat:
• atLancasterFarmsYoungOffenderInstitution,short-sentencedprisonersundertookthe
equivalentofapproximatelyonehourand34minutesofpurposefulactivityevery
weekday
• atHMPDoncaster,short-sentencedprisonersundertookanaverageof31minutesof
purposefulactivityeveryweekday
• atHMPBelmarsh,theaverageshort-sentencedprisonerspent74percentofweekdays
doingnothing.
Maintainingfamilyrelationships
Weknowthattheexistenceandmaintenanceoffamilyrelationshipsreducesre-offending
andincreasesthechancethatprisonerswillsettlebackintocommunitylifeoncetheyhave
beenreleased.TheMinistryofJusticehasfoundthatoffenderswhoreceivefamilyvisitsare
significantlylesslikelytore-offend:there-offendingoddswereupto39percenthigherfor
thosewhoreceivednovisits(CentreforSocialJustice2009).AndyetastheSocialExclusion
Unitfound,familiescanbeshutout:‘ateverystageofaprisoner’smovementthroughthe
criminaljusticesystem,familiesarelargelyleftoutofthedecision-makingprocessandrarely
gettheopportunitytosupportprisonerseffectively’(SocialExclusionUnit2002:111).The
crimereductioncharityNacrofoundthat43percentofsentencedprisonerslostcontact
withtheirfamilyafterenteringprison(ibid).
Prisontendstocorrodefamilylinks:
• Manyprisonersendupservingtheirsentenceveryfarfromthecommunitiestheycome
from,aproblemexacerbatedbyovercrowding.
• Inparticular,women’sprisonstendtobeinremoteruralareaswithpoortransportlinks,
meaningitisverydifficultforprisonerstoseetheirchildren.
• Prisoners’familiesaregenerallyfromlow-incomebackgroundsandsoaffordingthecost
ofvisitsisaproblem(thoughthereissomesupportavailablethroughtheAssistedPrison
Visitsscheme).
• Visitors’facilitiesinmanyprisonsarepoor,whichaddstothenervousnessmanyfamilies
feelaroundvisitingprison.
• Familiesaregenerallynotinvolvedinsentenceplanning,despiteevidencethattheir
supportcanhelpreducere-offending.
Thereareotherfactorsthatareknowntoaidrehabilitation,includingtheabilitytomaintain
accommodationoutsideprisonandhelptosortoutdebtandbenefitissuestoaid
resettlementuponrelease.Whatthisbriefsummaryhasdemonstrated,however,isthatour
prisonsaregenerallynotproperlyequippedtochangelivesandaidrehabilitation.Thelater
partsofthispaperwillexplorehowchangestothedesignoftheprisonestatecouldhelpto
changethat.
Alternativesettingswouldbetterrehabilitatemanyprisoners
Anumberofpointscanbemadehere.First,therearetoomanyoffenderssenttocustody
forlessthansixmonthsforrelativelyminoroffences.Thenatureoftheseoffencessuggests
thattheycouldappropriatelybesubjecttonon-custodial,community-basedsentences.In
2008,ofthe55,333prisonersreceivedforsixmonthsorless,18,368wereconvictedfor
theftorhandlingstolengoodsand5,610formotoringoffences.Therewere17,624
convictedof‘otheroffences’thatwerenotsexualorviolentoffences,andwhicharelikelyto
includemanythatcouldbeappropriatelydealtwithinthecommunity(MinistryofJustice
20
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
2008).Althoughatanyonetimetheseshort-termprisonersonlyamounttoabout7percent
ofsentencedprisoners,theirpresenceandmovementthroughthesystemdoestakeupa
considerableamountoftimeandresource(ibid,RethinkingCrimeandPunishment2008).
Second,around13,000prisonersareonremandawaitingtrialorsentencing.Ratherthan
beingheldincustodyalternativesforthesepeoplecouldincludebeinggivenbailwith
conditionssuchasacurfeworastayinasupervisedhostel(RethinkingCrimeand
Punishment2008).
Third,thereisnoneedformanyofthethousandsofwomenprisonerstobeheldincustody.
InaradicalreportfortheGovernmentonthefutureofwomenandthecriminaljustice
system,BaronessJeanCorstonsaidthat:‘Ihavebeendismayedatthehighprevalenceof
institutionalmisunderstandingwithinthecriminaljusticesystemofthethingsthatmatterto
womenandattheshockinglevelofunmetneed’(Corston2007:16).Corstonconcluded
thatcustodywasunnecessaryforallbutafractionoftheroughly4,000womeninprison.
Thisisbecauseveryfewwomeninprisonhavebeenconvictedofthekindofseriousand
violentoffencesthatgovernmentguidelinessayshouldleadtoacustodialsentence–one
thirdareinfordrugsoffencesandveryfewposeanyrisktothepublic(ibid).ThePrisons
OmbudsmanStephenShawhasagreed,sayingthat‘thecurrentuseofimprisonmentas
reflectedinStyal,Hollowayandotherwomen’sprisonsisdisproportionate,ineffectiveand
unkind’(ibid).Almosthalfofwomenprisonershavesuffereddomesticviolenceand70per
centsufferfrommentalhealthproblems.
TheCorstonreportconcludedthat‘Imprisonmentofwomenoffersnocompensatingbenefit
tosociety.’Itdescribedthecostsofimprisoningwomen‘enormous’,notonlyinfinancial
terms(about£77,000annually),butalsointermsoffamilydisruption,damagetochildren
andsubstitutecare,lostemploymentandsubsequentmentalhealthproblems.(Thereport
recommendedthattheGovernmentshouldclosedownexistingwomen’sprisonsandreplace
themwithsmall,geographicallydispersed,multi-functionalcentres,runningprogrammes
alongsidecommunity-basedpenaltiestohelptacklethecausesofoffendingbehaviour,plus
somesmalllocalcustodialunitsforthesmallnumberswhoneedtobeheldincustody.)
Finally,thereareverymanypeopleinprisonwhohavementalhealthproblemsandwho
shouldbedivertedawayfromthecriminaljusticesystemandtowardstreatment.TheBradley
reportrecommendedthatthereshouldbemuchgreatertraininginmentalhealthawareness
throughoutthecriminaljusticesystemsothatpeoplecanbereferredtomentalhealth
serviceswellinadvanceofgettingsuckedintocustody.Bradleyalsorecommendedthat
thereshouldbemuchgreateruseofcommunityorderswithmentalhealthtreatment
requirementsanddiversionaryschemessothatoffenderswithmentalhealthproblemscan
bedivertedtohospital.
TheCentreforSocialJusticehasarguedthatmanyprisonerswithmentalhealthproblems
couldserveasignificantpartoftheirsentenceinsupervisedresidentialhomesinthe
community,ratherthanincustody.
Prisonsarepoorlylocated
PrisonsarecurrentlyinappropriatelydistributedacrossEnglandandWalesandcertain
categoriesofprisonerinparticulartendtobeheldveryfarfromtheirhomecommunities.
Thisshouldnotbeentirelysurprisinggiventhatthelocationofprisonshastendedtobethe
resultofhistoricalaccidentratherthandesignorforesight.
LordCarter’sReviewofPrisonsfoundthatalargenumberofprisons,suchasHMPRanby
(Nottinghamshire),HMPAcklington(Northumberland)andHMPChanningsWood(Devon),
arebuiltonoldMinistryofDefencesites,atsignificantdistancesfromlargeurbancentres
andnotclosetowell-developedtransportlinks.
Map4.1showsthedistributionofalltheprisonsthatmakeuptheestateinEnglandand
Wales.AfulllistisprovidedinAppendixC.
21
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Map4.1.The
locationof
prisonsin
Englandand
Wales
Note:Fornames
ofprisonssee
AppendixC
Government Office Regions
Existing prisons
New prisons
New and existing prison
Themapsthatfollowshowthatsomeregionsofthecountryarebetterservedbyprisons
thanothers.
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
22
Male prisons
Places per 1000 men
1.0
2.2 - 2.9
3.0 - 3.4
3.5 - 4.3
5.4
Map4.2.MaleprisonplacesbyGovernment
OfficeRegion,2009
Male prisons
Places per 1000 men
0.0
1.0 - 2.4
2.5 - 4.9
5.0 - 6.9
7.0 - 7.9
Map4.3.MaleprisonplacesbyCriminalJustice
Area,2009
Female prisons
Places per 1000 women
0.0
0.2
0.3
0.4
Map4.4.FemaleprisonplacesbyGovernment
OfficeRegion,2009
Map4.5.Closestfemaleprison
23
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Adultmaleprisons
Map4.2showsmaleprisonplacesbyGovernmentOfficeRegionin2009.Eachreddot
representsanadultmaleprison.Theshadingindicateshowmanymaleprisonplacesthere
areper1,000menineachregion.Areaswithlightershadinghavethefewestplaces;darker
shadedareashavethemost.2 Onaregionalbasis(andwithoutaccountingfordifferential
crimerates,whichwedobelow)London,theSouthWestandWaleslookparticularlypoorly
served.
Map4.3showsmaleprisonsbysmaller,CriminalJusticeAreas:againthelightercoloursshow
areaswheretherearefewerprisonplacesperheadofmalepopulation.Thepoorestserved
areasonthismapareNorthYorkshire,Warwickshire,NorthWalesandDyfedPowys.
Adultfemaleprisons
Map4.4showsfemaleprisonplacesbyGovernmentOfficeRegionin2009.Eachreddot
representsanadultfemaleprison.Aswiththepreviousmaptheshadingindicateshowmany
femaleprisonplacesthereareper1,000womenineachregion.Areaswithlightershading–
inthiscaseWalesandtheEastofEngland–havethefewestplaces;darkershadedareas
havethemost.
Wehaveusedthisdatatoestimatewheretheclosestfemaleprisonisforanyplaceinthe
wholeofEnglandandWales,usingThiessenpolygons(Map4.5).(Pleasenotethatthedata
usedtodothiscalculationpre-datedtherecentre-classificationofCookhamWoodinKent
asamalejuvenileprison.)Thiessenpolygonsareasimplewaytoestimatethecatchment
areaofeachprison.Anywherewithinaprison’sThiessen(catchment)polygoniscloserto
thatprisonthantoanyotherprison,asthecrowflies.Soiftheonlyconsiderationwhen
choosingaprisonforapersonwasdistancefromhome,thismapwouldshowtheclosest
prisonforanypointinEnglandandWales.Ifapolygonislarge,itsuggeststhattherearetoo
fewprisonsinthatarea,againassumingtheonlyconsiderationwasproximitytohomearea.3
InsimpletermsthistellsusthatanadultfemalefromSouthWestEnglandorSouthWales
willbeincarceratedalongerwayfromhome,iftheygotothenearestprison,thanawoman
fromanotherregion.
Areprisonslocatedwherethereismostdemandforlocalprisonplaces?
Sofarwehavefoundthatsomeregionsorcriminaljusticeareasarebetterservedthan
othersbyprisons.Butaretheytherightregions?Toanswerthatquestionweneedto
considerwhichregionsarethehomeoforiginformostprisoners.Basedontheprinciplethat
mostprisonersshouldremainclosetotheircommunitytoaidreintegration,wecanthensee
whetherornotprisonsarewelllocatedfromarehabilitationpointofviewandwherewe
shouldbebuildingprisonsinthefuture.
Ideallywewouldliketoanalysehowfarawayfromtheirhomesprisonersareincarcerated,
butthatwouldrequirethepostcodesofallinmates.Insteadwehaveusedgeographicaldata
ontotalrecordedcrimes.Inthisweareassumingthatthenumberofprisonersservingfrom
anyparticularlocationisdirectlyproportionaltothenumberofrecordedcrimesinthat
location.
InMap4.6wehavetakenthetotalmaleprisonpopulationin2009,andproducedan
estimateofthenumberwhowouldcomefromeachCriminalJusticeAreaifthenumberof
prisonersweredirectlyproportionaltothetotalnumberofcrimes.Lightshadedareas
indicatetheplaceswheretherearethelowestnumbersofprisonplacesavailablefor‘local’
offenders.
Accordingtothismapdemandforlocalprisonplacesoutstripssupplymostdramaticallyin
Wales,WarwickshireandNorthYorkshire(allshadedwhite).Thethreeareasthatgenerate
2.ThedataonwhichallthemapsinthissectionarebasedcanbefoundinAppendixD.
3.SeeBBCh2g2guideatwww.bbc.co.uk/dna/h2g2/A901937forfurtherexplanationofThiessenpolygons.
24
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Prisons
Places per 100 prisoners
0.0
29.8 - 64.9
65.0 - 109.9
110.0 - 149.9
150.0 - 232.9
Map4.6.Supplyanddemandofprisonplaces,
2009
Adult women prisons
Local female prisoners estimate
25 - 49
50 - 99
100 - 199
200 - 302
303 - 654
Map4.8.Supplyanddemandofadultwomen
prisonplaces,2009
Young Offender Institute
Local young offenders estimate
66 - 99
100 - 149
150 - 299
300 - 583
584 - 1420
Map4.7.Supplyanddemandofmaleyoung
offenderinstituteplaces,2009
themostamountofrecordedcrime–London,the
WestMidlandsandGreaterManchester(allshaded
green)–arealsopoorlyserved.Theblueshadedareas
comeoutbestservedfromthepointofviewofthe
rationoflocalprisonerstoprisonplaces.Theseare
Kent,Suffolk,Cambridgeshire,Leicestershire,
Nottinghamshire,WestMercia,Staffordshire,
LancashireandCountyDurham.
Map4.7showsanestimateofthenumberofmale
prisonersaged18–20estimatedtocomefromeach
CriminalJusticeArea,andalsothelocationofYoung
OffendersInstitutes.Theestimateinvolvedtakingdata
onthenumberofconvictionsof18–20yearoldsin
eachCJA,andcombiningitwiththetotalnumberof
prisonersaged18–20inEnglandandWales.Themap
showsthatthattheregionsgeneratingthelargest
numbersofyoungmaleoffendersareLondon,Greater
Manchester,ThamesValley,Northumbria,Merseyside,
WestYorkshireandGreaterManchester.Those
generatingthefewestnumbers(shadedwhiteonthe
map)areDorset,Wiltshire,Gloucestershire,Gwent,
DyfedPowys,Warwickshire,Cambridgeshire,
Bedfordshire,CumbriaandNorthYorkshire.
Map4.8showsanestimateofthenumberofadult
(21+)femaleprisonersoriginatingfromeachCriminal
JusticeArea,andalsothelocationofthe14adult
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ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
femaleprisons.Thisestimateinvolvedtakingdataonthenumberofconvictionsofwomen
over21ineachCJA,andcombiningitwiththetotalnumberofadultfemaleprisonersin
EnglandandWales.Themapshowsthattheregionsestimatedtogeneratethemostadult
womenprisonersareLondon,theWestMidlands,WestYorkshireandGreaterManchester.
Becauseoftheverysmallnumberofwomenprisons,manywomenprisonersareinevitably
heldfarfromtheirhometown.
Theprisonestateistooold
Theprisonestateisextremelyoldandmuchofitisinneedofredevelopment.Extraordinarily
thereareeightprisonscurrentlyinusethatareover200yearsold.Aroundhalftheestate’s
institutionsaremorethan50yearsoldandalmostathirdareover100yearsold.
AsLordCartersaidinhisfirstprisonsreview,‘ageisnotitselfanindicatorofqualitybutitis
generallyapredictorofhigherrunningcostsandpoorerfacilities…theVictorianprisons
generallysufferthehighestlevelsofovercrowdingandinadequateregimeprovision’(Carter
2003).Indeed,muchofthemorerecentpost-warestateisofparticularlypoorquality,as
theseprisonsareoftenconvertedarmybarracksorlargecountryhomesthatareexpensive
tomaintainandnotdesignedfortheircurrentpurpose(Lockhartetal 2007).
Agedoes,however,addsignificantlytomaintenancecosts:the2007CarterReview
estimatedamaintenancebacklogof£1.127billion.ItalsofoundthatwhiletheNational
OffenderManagementService(NOMS)neededtospend£125millionayearon
maintenancein2006/7itonlyspent£60million,suggestingthatthisbacklogmaybe
growing(Carter2007).
Becausetheestateissoovercrowdedandthereisnosparecapacityinthesystem,NOMS
hasbeenunablesofartomodernisetheoldestandmostinefficientpartsoftheestate.
Challenges:conclusion
Thischapterhassketchedoutapictureofaprisonestatefacingmultiplechallenges:the
estateisperilouslyovercrowded,itisnoteffectivelyrehabilitatingoffenders,itcontainstoo
manyoffenderswhowouldbebetterrehabilitatedinalternativesettings,itispoorlylocated
anditisoldandinneedofmodernisation.Thisisourcaseforchange.Inwhatfollowsthe
papersetsouthowaredesignedprisonestatemighthelpbetterdeliverourpenalpolicy
objectives.
26
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5.Alternativefuturesfortheprisonestate
Thissectionexploreshowadifferentlydesignedprisonestatemightbetteraidrehabilitation.
Indoingsoitlaysthegroundworkforthenextphaseofippr’sTomorrow’sPrisonsproject,
whichwillexploreindetailsomealternativescenarios.
Thissectiondrawsbothontheprisondesignandpenalpolicyliteratureandonippr’s
interviewswithleadingexpertsinthefield(seeAppendixA).
Whatisthepurposeofprison?
Despitetheheateddebatesthatregularlytakeplacebetweenpenalreformersontheone
hand,andwhatisoftendescribedasthe‘hang’emandflog’embrigade’ontheother,there
aresomebasicobjectivesofimprisonmentthatcommandpublicsupport(RethinkingCrime
andPunishment2004).
First,prisonshouldincapacitatecriminals–removethemfromthestreetstopreventthem
fromcommittingfurthercrimesandtherebyimprovepublicsafety.
Second,prisonisintendedasapunishmentforthosewhohavecommittedcrimes,andthus
toprovidetheirvictimswithanappropriatemeasureofjustice.Thereisadebateabouthow
imprisonmentshouldpunish,ofcourse.Wetaketheview,expressedbyLeonBrittanwhen
HomeSecretary,thatthedeprivalofaperson’slibertyinandofitselfconstitutes
punishmentforanoffence.Othersbelievethattheprisonregimeshouldcontinuetopunish
prisonersinvariouswaysthroughtoughandpunitivetreatmentoverthecourseofa
sentence.Theproblemwiththislatterviewisthatitconflictswithourthirdobjective–
rehabilitation(aswellaspotentiallybreachingbasicstandardsofdecency).
Finally,then,mostpeoplethinkthatprisonshouldrehabilitateandseelittlepointinsending
peopletoprisonsinwhich‘theycomeoutworsethanwhentheywentin’.
ThethenLiberalHomeSecretaryWinstonChurchillmovinglydescribedtheproperbalance
betweenpunishmentandrehabilitationinaspeechtotheHouseofCommonsin1910:
Wemustnotforgetthatwheneverymaterialimprovementhasbeen
effectedinprisons,whenthetemperaturehasbeenrightlyadjusted,
whentheproperfoodtomaintainhealthandstrengthhasbeengiven,
whenthedoctors,chaplainsandprisonvisitorshavecomeandgone,
theconvictstandsdeprivedofeverythingthatafreemancallslife.We
mustnotforgetthatalltheseimprovements,whicharesometimes
salvestoourconsciences,donotchangethatposition.
Themoodandtemperofthepublicinregardtothetreatmentofcrime
andcriminalsisoneofthemostunfailingtestsofthecivilisationofany
country.Acalmanddispassionaterecognitionoftherightsofthe
accusedagainsttheStateandevenofconvictedcriminalsagainstthe
State,aconstantheartsearchingbyallchargedwiththedutyof
punishment,adesireandeagernesstorehabilitateintheworldof
industryallthosewhohavepaidtheirduesinthehardcoinageof
punishment,tirelesseffortstowardsthediscoveryofcurativeand
regeneratingprocesses,andanunfalteringfaiththatthereisa
treasure,ifyoucanonlyfindit,intheheartofeveryman–theseare
thesymbolswhich,inthetreatmentofcrimeandcriminals,markand
measurethestored-upstrengthofanation,andaresignandproofof
thelivingvirtuewithinit.
(WinstonChurchillMP,20July1910,quotedinRamsbotham2003)
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Theobjectivesofredevelopment
Anyprogrammeofestateredevelopmentthereforeshouldbeorientedtothefulfilmentof
theseoverarchinggoalsofimprisonment:tocontain,punishandrehabilitateoffenders.They
shouldalsomeetthebasictestsofahealthyprisonsetoutbyHerMajesty’sInspectorateof
Prisons:safety,respect,purposefulactivityandself-improvement,andmaintenanceoffamily
andcommunitylinks(Ramsbotham2003).
Takingallofthatintoaccount,whatshouldbetheobjectivesofanyprogrammeofestate
modernisation?Fromourinterviewswithexpertsandourreviewoftheliterature,wewould
highlightatleasteightobjectivesforaprogressiveprogrammeofprisonmodernisation.The
firstare:
1. Security:forreasonsofpublicsafetyandinordertocontainprisoners,prisonsneedto
besecure.
2. Safety:prisonsshouldbesafeplacesforprisoners,staffandvisitors.
3. Decency:allprisonersshouldbetreatedwithrespectasindividuals.
4. Purposefulactivity:prisonshouldbedesignedasplacesorientedtowardspositive
personalchange.
5. Familyandcommunitylinks:prisonsshouldbelocatedanddesignedtosupportfamily
relationshipsandcommunityreintegrationuponprisoners’release.
6. Focusonindividualneeds:prisonsandotherpenalinstitutionsshouldbebettertailored
totheresettlementandrehabilitationneedsofindividualprisoners.
Inaddition,anyprogrammeofmodernisationmusttakeintoaccounttwofurtherpractical
considerations:
7.Feasibility:thereisonlyalimitedamountofpublicmoneyavailable,andtherearealso
practicalconsiderationsaroundwhereprisonscanbelocated,especiallytheneedto
securelocalplanningconsent.Thesepracticalconsiderationsinevitablyrubupagainstour
otherobjectives,andanyprogrammetomodernisetheestatewillneedtotacklethose
tensions.
8.Flexibility:weneedtodevelopprisonsthatanticipatefutureaswellasmeetcurrentneeds.
Wenowturntothedifferentwaysinwhichthedesignoftheestatecouldhelpusmeet
theseobjectives.Wefocusfirstontheoveralldesignoftheestatebeforethenconsidering
individualprisons.
Theoveralldesignoftheestate
Thefirstquestionweneedtoaskis:Dowehavetherightmixofpenalinstitutionsinthe
prisonestateatthemoment?
Localandtrainingprisons
Currentlythemaindistinctionbetweenprisontypesisbetweenlocalandtrainingprisons.
HerMajesty’sformerChiefInspectorofPrisonsLordRamsbothamhasarguedthatthereis
stillaneedforsuchadistinction,butthateachcategoryofprisonneedsaclearerfocus.He
arguesthat‘Localprisonslackbothstrategicandtacticaldirection.Havingnoclearaim,their
governorsdonotknowwhattheyshouldbedoingwithandfortheirprisoners’
(Ramsbotham2003:99-100).
Long-termsentencedprisonersshouldideallynotbesenttolocalprisons;rather,theyshould
gostraighttotrainingprisonswherethereisgreatercapacitytosupportpurposefulactivity
andgreateraccesstosupportiveprogrammes.Ifthisweredone,localprisonswould:
•Receiveprisonersimmediatelyuponarrestandholdthemuntiltrialandconviction
(remandprisoners)
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ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
•Holdprisonerswithshortsentences
•Receivelong-termprisonersfromthelocalareaforthelastfewmonthsoftheir
sentencesothattheycanbeappropriatelyresettled.
Trainingprisons,whichmakeupthemajorityofourprisons,shouldfocusonthe
rehabilitationofthosewithlongersentences.Weexploresomepotentialdesignsfornew
trainingprisonsbelow.
Degreeofspecialisation
Shouldwebuildalargenumberofsmallprisonsthatspecialiseinrehabilitatingcertaintypes
ofoffender?Ordowebuildlarge,multi-functionalprisonsthatdealwithdifferentgroups
underoneroof,oratleastwithinoneperimeter?Weturntotheissuesofsizebelow–but
firstweaddressthequestionofhowspecialisedprisonsshouldbe.
Therewasverystrongresistanceamongourintervieweestotheideaoflargeprisonsthat
seektocaterforaverydiverserangeofprisonertypes.Oneintervieweesaidthatifvarieties
ofsecuritylevelsaremixedononesite,‘highsecuritypollutestherest’,simplybecausethe
wholeprisonhastoberuntoamuchhigherlevelofsecuritythanisnecessaryformanyof
theprisoners.Anotherarguedthatwherepopulationsandfunctionsaremixed,thehardest
casesreceivealltheattention,‘sowhereyouhavemenandwomenonthesamesite,allthe
attentiongetsfocusedonthemen’.
Onewayofachievingeconomiesofscalewithoutbuildinglarge,multi-functionalprisons
wouldbethrough‘clustering’.Thisiswherearangeofinstitutions,eachwiththeirown
particulardegreeofsecurityandfocus,operateondifferentneighbouringsites,undera
commonleadershipandmanagementumbrella.
Intermediaryinstitutions
Therearesomecategoriesofoffenderwhowouldbebetterrehabilitatedinintermediary
institutions,ratherthaninprisons.
Box1.CommunitySupervisedHomesforOffenders
(CSHOs)
JonathanAitken’sreviewofprisonspolicyfortheCentrefor
SocialJustice(2009)recommendedthatinsteadofthe
constructionoffourlargeTitanprisons,astheGovernment
wasproposing,anumberofsmaller,community-basedprisons
shouldbebuiltalongsideanetworkofhalfwayhousesknown
asCommunitySupervisedHomesforOffenders(CSHOs).
Withdifferentlevelsofsecurityandsupervisionthesehomes
wouldaccommodaterecentlyreleasedprisonersandin
carefullyselectedcasesprisonerswhowerenearingtheendof
theirsentence.Inthelattercaseprioritywouldbegivento
women,elderlyanddisabledprisoners,prisonerssuffering
fromlessseverementalhealthdisordersandex-servicemen.
Thesehomesmighthaveasfewastwoorasmanyas12
residents.Theywouldbesupervisedbywell-trainedmanagers
underthedirectionoftheprobationservice.Itwouldcost
muchlesstohouseanoffenderinaCSHOthaninprison.
Thehomeswouldfocusonprovidingthekindofrehabilitative
programmesthatareknowntolowertheriskofreoffending.
Source:CentreforSocialJustice2009:101-103
First,therecouldbesupervisedhomesto
housecarefullyselectedprisoners,whoposeno
risktopublicsafety,towardstheendoftheir
sentence,toaidtheirreintegrationintothe
community,asoutlinedinBox1.
Second,community-basedcentres,someof
themresidential,mightalsoprovidean
alternativetocustody,towhichsomeone
couldbereferredaspartofacommunity
order.Forexamplesofsuccessindealingwith
youngoffendersseeBoxes2and3.
TheCorstonreportintowomenandthe
criminaljusticesystemproposedthatexisting
women’sprisonsshouldclose.Baroness
Corstonconcludedthatonlyafractionofthose
womencurrentlyincustodyactuallymeetthe
guidelinesthatsaythatprisonshouldbe
reservedforseriousandviolentoffenders.She
madethecaseinsteadforcommunity-based
sentencesthattakeintoaccountwomen’s
particularneeds,inparticulararoundchildcare
andfamilylife.TheMinistryofJusticeis
currentlyinvestingindevelopingalternativesto
custodyforsomefemaleoffenders.
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Box2.CentreforAdolescentRehabilitation(C-FAR)
Priortoitsclosureduetofundingcuts,theC-FARlifechange
programmewastargetedatpersistentoffendersandserial
substanceabusers,allagedunder25.Theprogrammecomprised
threeparts:contactinprisonsandthecommunitywith
motivationalinterviewsandsupport;aninitial11-weekresidential
coursefollowedbya40-weekaftercareprogramme.
Whereshouldprisonsbelocated?
C-FARstaffcomprisedamultidisciplinaryteamwhowerecalledon
todealwithawiderangeofmattersrelatingtothetrainees’
rehabilitation.Thisspannedsuchdiversetopicsasparenting,health
andsafety,remedialeducation,physicalfitness,information
technology,teamwork,leadership,counselling,victimawareness,
drugeffects,andmanagementofpersonalfinances.Inadditionto
thesetrainingfunctionsC-FARtriedtoobtainhousingfortrainees
andtofindthememploymentorplacethemontrainingcourses.
•Aidresettlementbackintothe
Oncetraineesgraduatedfromtheresidentialphaseofthe
programme,C-FARprovidedcontinuingsupportforaminimumof
40weeksthereafter.
Forthesereasons,andonthebasisofour
findingsinthelastchapter,newprisons
shouldbelocated:
TheprojectwassetupbytheformermarineTrevorPhilpottwho
toldipprthattheprojecthadmanagedtoreducere-offending
ratesto40percent,20percentagepointslowerthanre-offending
ratesfromprison.Thepositiveimpactoftheprojectonyoung
traineeswasdemonstratedbyanindependentacademicstudy
(WilsonandKillingley2004).Philpottbelievesthatthesekindsof
supervisedresidentialprogrammesshouldbeusedinplaceof
custodyforverymanyyoungoffendersandwouldbemuchmore
successfulatrehabilitation.
Box3.UradPrevzgojnidomRadece,Slovenia
UradPrevzgojnidomRadeceisacorrectionalhomethatisusedas
analternativetojuvenileprison.Itpartlyfocusesondiverting
peoplebeforetheyentercriminaljusticesystem.Itsharesfacilities
withthelocalcommunity–forexample,localorganisationsusethe
home’sswimmingpool.Itwasbuiltwithasecurecorebuildingat
thecentre,andoutsideofthesecureestatethereisanother
propertyusedbythoseoffenderswhoareapproachingtheendof
theirsentences.Theyareexpectedtotakemoreresponsibilityand
sohavetheirownkitchenandlivingarea.Theyundertakework
experienceandinterviewsinthecommunitytolookforjobs.
Peoplearereferredbythecourtsorbysocialservices.
Re-offendingratesareonly20percentandoverthelasteight
yearstheinstitutionhashadnonegativeincidents.
Weknowfromthepreviouschapterthat
prisonersshouldbekeptasclosetothe
communitiestheycomefromaspossible,
inorderto:
•Maintainfamilylinks,whichwe
knowarecrucialforrehabilitation
community,suchasbypreparingthe
wayforfindingajobor
accommodation
•Facilitatethecontinuityoftreatment
programmesforprisonerswithdrug,
alcoholorothermedicalproblems.
•Inandaroundtheurbanareaswhere
mostoffenderscomefrom
•Inareaswithgoodtransportlinks
•InandaroundGreaterLondon,the
WestMidlandsandGreater
Manchester,whichtogethergenerate
themajorityofrecordedcrimein
EnglandandWales(Walkeretal
2009,Carter2007).
TheConservativePartyrecently
proposedthattofundprisonestate
modernisation,aselectionofoldprisons
sittingonprimerealestatecouldbesold
topayfornewprisonselsewhere
(Lockhartetal 2007).Thisproposalwas
droppedfollowingthecollapseofthe
propertymarket(TheGuardian,7
January2010).
Thisproposalhighlightsaproblemfor
prisonredevelopment:thesitesthatare
ideallysuitablefromtheperspectiveof
resettlementmightalsohaveveryhigh
landcosts.Itismuchcheapertobuild
outsidetowns.Oneofourinterviewees
Source:Philpott2005
expressedstrongreservationsaboutthe
developmentofwhattheycalled‘outof
townpenalestates’.However,solongas
prisonsarebuiltneartothebigcitiesandareeasilyaccessiblebypublictransport,it
shouldbepossibletomaintaincommunitylinks.
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Designofindividualprisons
LeslieFairweathernotesthattherehavebeenonlytwomajordevelopmentsinprisondesign
inEnglandinthelast160years(Fairweather2000).Thefirstwasthedevelopmentinthe
19thcenturyofaradialprisondesign,madeupofanumberofgalleriedcellblocksradiating
outfromacentralpoint–theclassichub-and-spokemodel.Thisdesignwaspioneeredby
architectslikeJohnHavilandintheUnitedStates(forexample,theEasternState
PenitentiaryinPhiladelphia)andSirJoshuaJebbinEngland(forexample,HMPPentonville
inLondon).Thedesignhadtheadvantageofallowingclearsightlinesalongthecorridorsto
ensuresafetyandallowedasmallnumberofstafftocontroltheprisonefficientlyfroma
centralhub(Johnson1973).
ThesecondsignificantdevelopmentwasofthePrisonDesignBriefingSystem(PDBS),
drawnupbytheHomeOfficeinthe1980stoguidearchitectsonhowtomeettheneedsof
theprisonservice.ThePDBSsetoutindetailthestandardsandspecificationsfornew
prisons.ThePDBSwasbasedontheneedsofaCategoryBtrainingprisonfor600adult
maleprisonersandidentified27differentprisonfunctions(‘PFs’),includingsiteplanning
andconstruction,housing,segregatedunits,administrativebuildings,visitors’centresand
perimetersecurity.Foreachoftheseitsetoutdetailedtechnicalspecifications.
FairweatherpointsoutthatthePDBSwasnotadoptedwholesaleandthatprivateprisons
coulddepartfromitsspecifications.Hearguesthatprisondesignissplitbetweenthose
behindthegeneralapproachsetoutinthePDBS,theprisonserviceitself,andthearchitect
andconsortiawhowinthecontract.Heclaimsthismeansthatthere‘isnooneinJebb’ssolo
roleasprisonsupremo,givenresponsibilitytoforcedesignreformsthroughortosetand
insistonhighstandardsofdesignquality’(Fairweather2000).
ThePDBShasnowbeensupersededbyupdatedguidancefromtheNationalOffender
ManagementService,whichcoversmuchofthesamegroundandsetsoutthetechnicaland
securityspecificationsforthedifferenttypesofbuildingswithinaprison.Interviewees
emphasisedtousthatfollowingtheWoolfe,LearmontandWoodcockreportsthegeneral
focusofguidancehasbeentowardsimprovingsafetyandsecurity,ratherthanthinking
creativelyaboutrehabilitation.Giventhatsecuritymeasurestakeupconsiderableresource,
thereisthereforelessresourceforradicalinnovationsthatmightsavemoneyinthefutureby
reducingrecidivism.
Howlargeshouldprisonsbe?
TheGovernment’sproposaltobuildfour2,000-capacityTitanprisonsmetwithfierce
resistancefrommanystakeholdersincludingthePrisonReformTrust,thewidercriminal
justicecharities,HMChiefInspectorofPrisons,thePrisonGovernorsAssociation,thePrison
OfficersAssociation,theoppositionparties,andmanyLabourMPs.
Verylargeprisonsareassociatedwithanumberofsignificantproblems:
•Theytendtobelocatedfarawayfromlocalcommunitiesinawaythatundermines
familycontactandresettlement.
•Theyaremorelikelytobeunsafe(CentreforSocialJustice2009).
•Becausestaffspendsolittletimewitheachprisoner,theyaremorelikelytorelyon
coercionthanonhealthyprisoner/officerrelationshipstomaintainorder(HMCIP2009,
CentreforSocialJustice2009).
•Largerprisonsfindithardertocaterforprisoners’needs.ThePrisonReformTrust
foundthatsmallerprisonsscoredbetteracrossthewholerangeofoutcomes,including
forexamplesafetyandresettlement.Oneofourexpertintervieweessaidthatideallyto
makesureindividuals’needsaremet,‘thegovernorshouldknoweveryprisoner’sname
–thatmakesaverybigdifference’.
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Theseconsiderationsobviouslyhavetobebalancedagainstanumberofpracticalissues:
•Itislikelytobedifficulttogetplanningpermissionforalargenumberofsmall
prisons.
•Ifprisonsaretoosmallandspecialisttheymaynotbesufficientlyflexibleto
accommodatechangingneeds.
•Therearepotentiallyadministrationcostsinhavingalargenumberofsmallprisons.
So,howbigshouldprisonsbe?Ourexpertintervieweesindicatedthatthereisnomagic
numberofprisonersbuttheiranswerstendedtofallwithinarangeof350to700inmates.
Theclearconsensusintermsofprisondesignisthatsmallerisbetter.
Scandinaviaisoftenhailedasamodelforitssmall,morerehabilitativeprisons.Thesmallest
prisoninNorwayhouses12prisoners,thelargest400(Dobson2008).InScandinavia
generallythereisalargenumberofsmallprisons,oftenwithunder100inmates.Thebiggest
prisonshavearound350inmates(Pratt2008).(SeeBox7,p33.)
Purposefulactivity
Onemajordisadvantageoftheradialprisonmodel,andofmostoftheotherstandard
prisondesigns,isthatitseparatesthecellblocksfromanypurposefulactivity.Prisoners
arekeptinlargegalleriedresidentialhalls,andatallottedtimesaretransportedelsewhere
tocarryouttheireducation,work,drugtreatmentandsoforth.Thisresultsinmuch
labour-intensivemovementofprisonersfromonepartoftheprisontoanother.Itcuts
offtrainedprisonofficerstafffrompurposefulactivity,generallycarriedoutbyoutside
staffwithlesstraininginhowtodealwithprisoners.
Moresignificantlyitmeansthatmostofthedayisnotspentonpurposefulactivity,but
withprisonerssittingarounddoingnothing–simplybeingheldorwarehoused,either
Box5.TheMitsonAcademyModel
ThismodelhasbeendevelopedbyformerprisongovernorStuartMitsonandwas
endorsedbyJonathanAitken’sPrisonReformTaskforce(CentreforSocialJustice2009).
Thecentralinnovationinthisdesignisthatthelivingaccommodationisintegratedwith
oneoftheprison’sservicebuildingstoforman‘academy’.
Aprisonwouldbesplitintobetweensixand12residentialacademies,suchasacatering
academy,asportsacademyandacollegeunit.Prisonerswouldbeplacedaccordingto
theirinterestsandwouldliveandworkinthesameblock.
Forexample,inthecollegeunit,prisonerswouldhavestudycellsalignedaroundan
educationblock,withclassroomsandalibrary.
Thishasanumberofadvantages:
•Itcreatesanexcitingandstimulatinglearningenvironment
•Prisonersarepotentiallyengagedinpurposefulactivitythroughouttheday,rather
thanduringatinyfractionofit
•Stafftimeonmovingprisonersaroundwouldbereduced
•Disciplinestaffareengagedwithprisoners’constructiveactivitiesandservicestaffare
notisolated
•Combiningtwobuildingsintoonesavesonconstructioncostsandenergy
consumption.
Source:CentreforSocialJustice2009
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lockedintheircellsorminglingduringtheirfreeassociationtime.Itisduringthisfree
timeinthecellblocksthatmostofthebullying,drugdealingandviolencetakesplacein
prison.
Twoimpressiveproposalsforintegratingresidentialaccommodationandpurposeful
activityarecontainedinBoxes5(above)and6(below).
Box6.Learningworks:the21stcenturyprison
DesignerHilaryCottamhascreatedanaward-winningproposalforaprisonoriented
aroundeducationandlearning.
Thisprisonwouldbebasedonlive–workcellsarrangedaroundcommunalareaswhere
purposefulactivitywouldtakeplace.Thisagainintegratesresidentialaccommodationwith
constructiveactivity.
Thelive–workcellswouldencouragepersonalresponsibilityandreduceinstitutionalisation,
simplybecauseprisonerswouldbeencouragedtoworkthroughoutthedayandmotivate
themselvesandtheirpeers.Eachcellwouldbeelectronicallynetworked,behindafirewall,
tofacilitatelearning.
Thisradicaldesignwouldbeaccompaniedbyalearningregimethatwouldaimtoachieve
atleast40hoursaweekofeducationalactivity.
Source:Cottam2002
Associationversusseparation
Haviland’sEasternStatePenitentiaryandJebb’sPentonvillewereearlyexamplesofanother
aspectofprisondesign,knownas‘theseparatesystem’.Prisonsor,moreappropriately,
‘penitentiaries’wereintendedtoextractpenancefromtheprisoner,whowouldbekeptin
solitaryisolationfromtheirfellowprisoners.UndertheinfluenceofthePennsylvania
Quakers,prisonersinPhiladelphiawerekeptinaustereindividualcells,leavingthemaloneto
reflectandfaceGod’sjudgement.Thissystemofsolitaryconfinementwasalsointendedto
preventyoungprisonersfrombeing‘polluted’byunscrupulousoldtimersandprotectthem
fromthecorruptinginfluenceofwiderprisonculture.Noassociationatallwithother
prisonerswouldensureorderbypreventingescapeplotsandattacksonguards(Johnson
1973).
ThisphilosophyofseparationisaliveandwelltodayinAmericanSupermaxprisons.These
havebeenbuiltinlast20yearsinresponsetoproblemswithgangsanddrugsinsideprisons.
Inthesejails‘prisonersarelockeddowninconditionsofseparateconfinementinan
environmentvirtuallydevoidofstimulation.Whentheyleavetheircellsitisonlywhen
handcuffed,leg-ironed,bellychained…’(King2007:118).
Weshouldnotethatasystemofindividualcellsisnotauniversalone:manycountries,
includingBrazilandRussia,havedormitorysystemswherebygroupsofprisonerssharelarge
bedrooms.InBraziltheprisonsareactuallyregulatedbyprisonergangsthemselves,known
asfaxinas,andstaffsimplypatroltheexterioroftheprison,leavingtheinmatestoorganise
theprisonthemselves(King2007).
Moderncommentatorstendtoagreethatsolitaryconfinementhasanegativeimpactonthe
mentalhealthandemotionalwell-beingoftheprisoner.Forexample,BaronessCorston
wroteinherreportonwomenandthecriminaljusticesystem:
Womenareoftendistressedandsometimesfrightenedofspending
longhourslockedaloneintosinglecells.Amotherofayoungwoman
whotookherownlifeinprisontoldmeverymovinglyofwhatshe
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believedhadcontributedtoherdaughter’stragicaction.She
consideredthattheextended,uninterrupted,involuntarysingle
occupationwithinaconfinedspacewithnovistacoupledwith
deprivationofhumancontactformanyhoursatatimewouldhave
escalatedherdaughter’sanxieties,feelingsofhelplessness,
hopelessnessanddespairtointolerablelevels.Thisistherealityofthe
‘custody’thatweimposeonwomen. (Corston2007)
What18thcenturyQuakersthoughtwouldsavesomeone’ssoul,wenowknowisveryoften
likelytomakethemmentallyunwell.Positiverelationships–withprisonguards,other
prisoners,one’sfamily,aninspirationalteacher–thesearethefactorsthatweknowcanhelp
torehabilitateprisoners.So,associationtimeisveryimportant–anditwouldbemost
positiveforrehabilitationifitwerestructuredmuchmorethanitisnowaroundpurposeful
activitylikelearningoremployment.
Communitylinks
Prisonsalsovaryintheir
degreeofinterfacewiththe
communityaroundthem.
YvonneJewkesarguesthatin
the20thcenturypeople
tendedtolookuponprisons
withdistasteandasaresult
theywereincreasinglybeing
builtfarawayfromresidential
communities(Jewkesand
Johnston2007).Withtheir
highwallsandheavysecurity
mostprisonsinEnglandand
Waleshaverelativelylittle
interactionwiththeir
surroundingcommunities.
Thisisinmarkedcontrastto
prisonsinScandinaviaand
Slovenia;seeBoxes7and8.
Safetyandsecurity
Someclaimthereisatradeoffbetweensecurityand
othergoalsoftheprison
regime,especiallyhuman
rightsandrehabilitation.
King(2007)argues,‘itis
verydifficultindeedtorun
prisonsthatarevirtually
escapeproof,orderlyand
safe,whichprovide
programmesaimedat
changingoffending
behaviourandoffering
prospectsforrehabilitation
andwhichrespectthe
humanrightsofstaffand
prisoners’(p.329).Thisis
becausesomeofthethings
Box7.CharacteristicsofScandinavianprisons
PrisonsinScandinaviaaresmallandlocalandtherefore
allowprisonerstobeneartotheirfamilies.Thisalso
makesprisonmorevisibleandnormaltothewider
population.Coreservicessuchashealthandeducation
arenotrunbytheprison,butbymainstream/community
providers.Theythereforereflecttheethosofthehealth
andeducationdepartment,notthatoftheprisonservice.
20–30percentoftheprisonpopulationareinopen
prisons.Theseprisonsserveasaninducementforgood
behaviour.Aprisonerisimmediatelysentbacktoclosed
prisonifheorshebreakstherulesinanopenprison
(eachyear15–20percentofreferralstoopenprisonare
recalledtoclosedinstitutionsforbreakingtherules).
Evenhighsecurityprisonshavefamilyaccommodationso
partnersandchildrencanstayfortheweekend.Thisisan
importantmechanisminmaintainingrelationshipsand
reducingtensionandinreducingbullying/sexualassault.
ThevisitingsysteminEnglandandWaleswithitsstrict
‘notouch’rulesisinmarkedcontrast.
Openprisonsareveryopen:prisonerscanearnwages
throughwork(whichhavetobeusedtopayrent,pay
victims,supportfamilyandforsavingsforrelease);
barriersarereducedtoaminimum;prisonerscanwalk
intolocalcommunitiesintheirfreetime(Pratt2008).
Box8.KoperCommunityPrison,Slovenia
Kopercommunityprisonholdsjust130prisonersand
employs68staff.Itisbuiltnexttoamajorshopping
centre,wheremanyoftheprisonerswork.47ofthe
prisonersliveinsemi-openconditions,undertakingwork
inthecommunityeachday.Theprisongovernorknows
eachprisonerbynameandholdsregularmeetingswith
them.Beingclosetothecommunityenablesregular
familyvisitsandrelationshipsaregenerallymaintained.
Koperprisonhasare-offendingrateofjust40percent.
Source:CentreforSocialJustice2009:100
34
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thatarerequiredfromthepointofviewofrehabilitation(physicalcontactwithfamily,
workinthecommunity)mightalsoundercertaincircumstancesposeathreattoorder
withintheprisonortoexternalsecurity.
Therearetwoverydifferentapproachestomaintainingorderinprisons.One,aswiththe
SupermaxfacilitiesintheUnitedStates,isthe‘situationalapproach’–torelyonsurveillance
andtechnologytomonitorprisonersandtoreducetheopportunitiesfordisorderthrough
extremelockdown(King2007).
Bycontrastmanyprisonshaveremainedriot-freebyestablishingaprisonregimethathas
legitimacysuchthatprisonerswillinglycooperatewithit.Thisisdonethroughgood
relationshipsbetweentheprisonleadership,staffandprisonersandhasbeencalledthe
‘social’approachtointernalorderinprisons.Itisanapproachmuchmorelikelytobe
compatiblewithrehabilitation(King2007).
Ordermaintenancemeasuresmayhaveamutuallyreinforcingrelationshipwithothergoals
suchasrehabilitation–thisisthepointofthesocialratherthansituationalapproach.The
virtuouscircleinvolvesdevelopingrelationshipsthatarepositiveandthattherebyavoid
unrestintheprison.Theviciouscirclehereisthatifofficersfeelunsafetheyaremorelikely
toreverttosituationalmeasures/haveinmateslockeddownforlongperiods.Thiscaneasily
becomeself-sustaining.
Alternativefuturesfortheprisonestate:conclusions
Thischapterhassetoutarangeofwaysinwhichadifferentlydesignedprisonestatecould
helpbettermeetpenalpolicygoals.Fortheestateasawhole:
•Aricherecologyofpenalinstitutionscouldhelpbetterdeliverrehabilitation,with
greaterclarityaroundtheroleoflocalandtrainingprisons,greaterspecialisation
withintheestateandgreateruseofintermediaryinstitutionswhereappropriate.
•Prisonsshouldbebuiltclosetothecommunitieswhereoffenderscomefrom,meaning
thatnewprisonsshouldbelocatedneartolargeurbanareas.
Asfarasindividualprisonsareconcerned:
•Therearesignificantadvantagestobuildingsmallerprisons.
•Prisonsshouldbedesignedsothatpurposefulactivityisattheirheart.
•Prisonsshouldencourageassociativeactivityamongprisoners,throughshared
purposefulactivity.
•Thereareresettlementbenefitsinre-thinkingtherelationshipbetweenprisonsand
thecommunitiesaroundthem.
•Socialrelationshipsandlegitimacyshouldbethekeytomaintainingorderwithin
prisons,ratherthananexcessiverelianceontechnologyandcoercion.
35
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Conclusion
Thereareanumberofalternativefuturesfortheprisonestate,butmostoptionstendto
coalescearoundtwodifferentscenarios.
Continuingalongthecurrentpath
Thefirstinvolvesmuddlingonaswehavebeendoing:expandingtheprisonestate,building
everlargerprisonsthatinthelongtermcostusmorebecausere-offendingratescontinueat
currentlevels.Thereareanumberofforcescurrentlydrivingusinthisdirection–butnoneis
insuperable.
1. Politicalfatalism. Thismanifestsitselfinthebeliefthatthisissueistoohottotouch.
Therearenovotestobegainedfrompenalreform:itistoohighriskpoliticallyand
thereisnoplausiblepathoutofthepoliticallogjam,whereanypartythatembraces
reformrisksbeingbranded‘softoncrime’.Nevertheless,publicopiniononcrimeand
punishmentismorecomplicatedthanitisoftenportrayed:thepublicdothinkprison
playsanimportantroleinpunishingoffenders,buttheyalsothinkthereislittlepoint
insendingpeopleintoprisonsifthey‘comeoutworsethanwhentheywentin’.The
2010generalelectionrepresentsanopportunityforafreshstartonprisonreform,
whicheverpartywins.
2. Financialfatalism. Thisistheviewthatweareabouttoenteranageofausterity,and
thattherewillbenomoneyfortheredevelopmentofthepenalestate.Therealityis,
however,thatwearealreadycommittedtoaround£2billionofnewspendingon
prisonmodernisationinthenextspendingcycle.Thedebateshouldbeoverwhether
ornotitisrighttospendthismoneydoingexactlywhatwehavebeendoingfor
decadesortotryadifferentapproach.Thosepropoundingthisformoffinancial
fatalismalsoneedtoaccountforthehighcostinvolvedincarryingonasweare,with
over-relianceonexpensivecustodialsentencesandre-offendingratesof55percent
withintwoyearsofreleasefromprison.Reformandredevelopmentwillsavemoney
downtheline.
3.Institutionalfatalism.ThePrisonServicehasbeeninpermanentcrisismodeforyears,
havingtodealwiththeproblemscausedbyover-crowdingandunable,therefore,to
liftitssightsandthinkofalternativestoitscurrentcourse.Thereisaneedforstrong
politicalleadershiptohelpthetankerchangeitsusualcourse.
Doingthingsdifferently
Theoutlinesofanalternativescenarioweresketchedinthepreviouschapter.Itwouldhave
thefollowingcharacteristics:
•Spendingthemoneycurrentlysetasideforbuildingfivelargeprisonsonalarger
numberofsmallerprisons
•Developingasetofnewprisonsthatareinnovativelydesignedtoenhance
rehabilitation,suchasmakingpurposefulactivitythecorecomponentofprisonlife
andculture.Let’snotsimplybuildthesametypesofprisonwehavebeenbuilding
•Developingaricherecologyofpenalinstitutions,includinggreateruseofintermediary
institutionswhereappropriate
•Reformingthecriminaljusticesystemtoeventuallyhelpreduceover-crowdingand
releasesparecapacityintothesystem.Overtime,thiswouldallowustomodernise
theoldestandmostcostlypartsoftheestate.
Tomorrow’sPrisons:nextsteps
ThenextphaseoftheTomorrow’sPrisonsprojectwillbuildonthispaperbytestingsomeof
theideassetoutabove.Weproposetoworkwiththepublicandstakeholderstoconsider
36
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thealternativescenarios.Thiswillinvolveresearchingpublicattitudesandassessingwhether
apublicconsensuscanbedevelopedarounddoingthingsdifferently.Itwouldexaminethe
costandplanningimplicationsofdifferentproposals.Itwillincludedeliberativeworkand
othermethodsofbringingpeopletogetherinaproblem-solvingfashion.
Byapplyingtheideasidentifiedinthispapertorealcasesofprisondesignandconstruction,
thenextphaseoftheprojectwillmakeasignificantcontributiontothedebateonthefuture
ofourprisonestate.Itaimstoproduceambitious,progressive–butalsofeasible–options
forchange,andtoinformandigniteamuch-neededpublicdebateaboutthekindofprisons
wewantinthecenturytocome.
37
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
AppendixA.Listofinterviewees
DianeCurry,chiefexecutive,PartnersofPrisoners
ErwinJames,writeronprisonsandpenalreform
YvonneJewkes,professorofcriminology,LeicesterUniversity
AndyKeen-Downs,director,PrisonAdviceandCareTrust
NicolaLowitt,MinistryofJustice
PeterMellor,architect,CapitaSymonds
StuartMitson,independentprisonconsultant,formerprisongovernor
AndrewNeilson,assistantdirectorinchargeofpolicyattheHowardLeagueforPenal
Reform
AnneOwers,HMInspectorofPrisons
TrevorPhilpott,headofLifeChangeUKandFreedom(twocharitiesfocusingoneducation
inprisons/ex-offenders)
JohnPodmore,NOMS;formergovernor,HMPBrixtonandformerprisonsinspector
PeterSelby,presidentoftheIndependentMonitoringBoard,visitingprofessorof
criminology,King’sCollegeLondon,andformerlyaChurchofEnglandBishoptoprisons
StephenShaw,PrisonOmbudsman
38
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
AppendixB.PrisoncapacityandovercrowdinginEnglandandWales
ThetablebelowshowsthedatausedtoplotthechartinFigure4.1.Itincludesacolumn
showingthegapbetweenwhatthePrisonServiceaspirestointermsofprisoncapacityand
whatishasbeenprovidinginrecentyears.
PrisoncapacityandpopulationinEnglandandWales,1994–2015
Year
No.ofprisoners
‘Uncrowded’
Operational
capacity(CNA)
capacity
1994
48,929
48,291
n/a
1995
51,086
50,239
n/a
1996
55,256
53,152
n/a
1997
61,467
56,329
61,900
1998
65,727
61,253
67,800
1999
64,529
62,369
69,800
2000
65,194
63,346
71,230
2001
66,403
63,530
71,270
2002
71,112
64,046
74,775
2003
73,627
66,104
76,070
2004
74,468
67,505
75,901
2005
76,079
69,394
77,333
2006
77,962
70,085
79,478
2007
81,040
71,465
81,058
2008
83,667
73,452
83,180
2009
83,454
74,849
85,727
2010
84,900
n/a
86,207
2011
86,900
n/a
87,707
2012
87,700
n/a
87,707
2013
87,600
n/a
90,707
2014
88,000
n/a
96,000
2015
88,700
n/a
n/a
Gapbetween‘uncrowded’
capacityandno.ofprisoners
-638
-847
-2,104
-5,138
-4,474
-2,160
-1,848
-2,873
-7,066
-7,523
-6,963
-6,685
-7,877
-9,575
-10,215
-8,605
n/a
n/a
n/a
n/a
n/a
n/a
39
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
AppendixC.ListofallprisonsinEnglandandWales
Thetableshowsthefulllistofprisons.ThenumberscorrespondwiththoseinMap4.1.
Code
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
34
35
36
37
38
39
40
41
Prison
HolmeHouse
KirklevingtonGrange
Durham
Frankland
Deerbolt
LowNewton
Acklington
Castington
Risley
Styal
ThornCross
Haverigg
BuckleyHall
Manchester
ForestBank
Hindley
Garth
Kirkham
LancasterCastle
Preston
Wymott
LancasterFarms
Altcourse
Kennet
Liverpool
Everthorpe
FullSutton
Hull
Wolds
AskhamGrange
Northallerton
Lindholme
Doncaster
MoorlandClosed
MoorlandOpen
Leeds
Wakefield
Wealstun
NewHall
Wetherby
FostonHall
Code
42
43
44
45
46
47
48
49
50
51
52
53
54
55
56
57
58
59
60
61
62
63
64
65
66
67
68
69
70
71
72
73
74
75
76
77
78
79
80
81
82
Prison
Sudbury
Ashwell
Gartree
Leicester
Stocken
GlenParva
Lincoln
MortonHall
NorthSeaCamp
RyeHill
Wellingborough
Onley
LowdhamGrange
Nottingham
Ranby
Whatton
Dovegate
Featherstone
Stafford
Brinsford
DrakeHall
SwinfenHall
Werrington
Hewell
LongLartin
Shrewsbury
StokeHeath
Birmingham
Bedford
Littlehey
Peterborough
Whitemoor
BullwoodHall
Chelmsford
TheMount
Wayland
Norwich
Blundeston
EdmundsHill
Highpoint
HollesleyBay
40
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Code
83
84
85
86
87
88
89
90
91
92
93
94
95
96
97
98
99
100
101
102
103
104
105
106
107
108
109
110
111
112
113
114
115
116
117
118
119
120
121
122
123
124
125
126
127
Prison
WarrenHill
BelmarshandBelmarsh
West
Brixton
LatchmereHouse
Pentonville
Wandsworth
WormwoodScrubs
Feltham
Holloway
IsleofWight
Kingston
Winchester
BlantyreHouse
Canterbury
CookhamWood
Elmley
Maidstone
Rochester
StandfordHill
Swaleside
EastSuttonPark
Bronzefield
Coldingley
Downview
HighDown
Send
Ford
Lewes
Bullingdon
Grendon
SpringHill
Woodhill
Reading
Aylesbury
Huntercombe
Bristol
Leyhill
SheptonMallet
Ashfield
EastwoodPark
ChanningsWood
Dartmoor
Exeter
Dorchester
TheVerne
Code
128
129
130
131
132
133
134
135
136
Prison
GuysMarsh
Portland
Gloucester
Erlestoke
Usk
Prescoed
Swansea
Cardiff
Parc
41
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
AppendixD.Datausedtocreatethemapsshowninthispaper
Map4.2.MaleprisonplacesbyGovernmentOfficeRegion,2009
Theplacesper1000ofpopulationaresortedanascendingorder.
GovernmentOfficeRegion
Malepopulationaged
21+,2007
No.ofmaleadult
prisons
No.ofmaleadult
prisonplaces
Wales
London
SouthWest
WestMidlands
YorkshireandTheHumber
EastofEngland
SouthEast
NorthWest
NorthEast
EastMidlands
1,062,940
2,759,440
1,889,260
1,921,060
1,862,680
2,041,920
2,978,760
2,449,420
924,140
1,597,360
2
6
10
7
8
11
16
12
5
13
1034
6009
4874
5922
6109
7039
10,546
9798
3954
8605
Maleadult
placesper1000
maleadults
1
2.2
2.6
3.1
3.3
3.4
3.5
4
4.3
5.4
Map4.3.MaleprisonplacesbyCriminalJusticeArea,2009
Thedatainthetablebelow(cont.p42)issortedinascendingorderofprisonplacesper1,000malepopulation.It
showsthatthenumberofplacesper1,000adultmalesvariesfrom0to7.9.
CriminalJusticeArea
Malepopulation
aged21+,2007
No.ofmaleadult
prisons
No.ofmaleadult
prisonplaces
NorthYorkshire
Warwickshire
DyfedPowys
NorthWales
Sussex
Gwent
Essex
Gloucestershire
Derbyshire
WestMidlands
GreaterManchester
SouthWales
Hertfordshire
Northumbria
Wiltshire
Metropolitan
Avon&Somerset
Bedfordshire
Cheshire
WestYorkshire
2,897,00
193,460
183,560
245,060
553,200
196,480
602,980
210,620
362,980
907,420
914,660
437,840
377,960
507,400
232,440
2,759,440
578,140
213,340
361,300
771,580
0
0
0
0
1
1
2
1
1
1
2
1
1
1
1
6
3
1
1
3
0
0
0
0
557
250
923
323
581
1450
1650
784
720
946
470
6009
1324
506
1085
2282
Maleadult
placesper
1000maleadults
0
0
0
0
1
1.3
1.5
1.5
1.6
1.6
1.8
1.8
1.9
1.9
2
2.2
2.3
2.4
3
3
42
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
CriminalJusticeArea
Malepopulation
aged21+,2007
No.ofmaleadult
prisons
No.ofmaleadult
prisonplaces
Devon&Cornwall
ThamesValley
Dorset
Norfolk
Cumbria
Hampshire
Lincolnshire
Surrey
SouthYorkshire
Humberside
WestMercia
Northamptonshire
Staffordshire
Kent
Merseyside
Cleveland
Lancashire
Suffolk
Cambridgeshire
Leicestershire
Durham
Nottinghamshire
609,860
782,820
258,200
312,420
183,880
669,340
254,100
392,600
470,120
331,280
432,320
243,480
387,860
580,800
471,020
197,340
518,560
258,980
276,240
349,040
219,400
387,760
3
4
2
1
1
3
2
2
2
3
3
2
3
6
3
2
5
3
3
4
2
4
1910
2502
847
1017
644
2444
1044
1616
2135
1692
2244
1306
2228
3427
2850
1277
3569
1849
2024
2622
1731
3052
Maleadult
placesper
1000maleadults
3.1
3.2
3.3
3.3
3.5
3.7
4.1
4.1
4.5
5.1
5.2
5.4
5.7
5.9
6.1
6.5
6.9
7.1
7.3
7.5
7.9
7.9
Map4.4.FemaleprisonplacesbyGovernmentOfficeRegion,2009
GovernmentOfficeRegion
Femalepopulation
aged21+,2007
No.offemaleadult No.offemaleadult
prisons
prisonplaces
Wales
EastofEngland
SouthWest
WestMidlands
NorthWest
London
NorthEast
YorkshireandTheHumber
EastMidlands
SouthEast
1,156,040
2,181,520
2,030,800
2,040,900
2,627,620
2,878,580
998,700
1,973,640
1,683,840
3,207,060
0
0
1
1
1
1
1
2
2
4
0
0
362
315
459
501
336
574
682
1205
Femaleadult
placesper1000
femaleadults
0
0
0.2
0.2
0.2
0.2
0.3
0.3
0.4
0.4
43
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Map4.6.Prisonplacesper1000estimatedlocalprisoners,2009
Thedatabelowissortedinascendingorderofestimatedprisonerscomingfromeacharea.
CriminalJusticeArea
(CJA)
No.ofmaleadult
prisonplaces
Totalrecorded
crimes2008/9
DyfedPowys
Cumbria
Warwickshire
Wiltshire
Gloucestershire
Durham
Bedfordshire
NorthWales
Suffolk
Norfolk
Gwent
Lincolnshire
NorthYorkshire
Dorset
Cleveland
Northamptonshire
Cambridgeshire
Surrey
Derbyshire
Cheshire
Hertfordshire
WestMercia
Staffordshire
Leicestershire
Humberside
Devon&Cornwall
Northumbria
Sussex
Essex
Nottinghamshire
SouthWales
Lancashire
Merseyside
Kent
SouthYorkshire
Avon&Somerset
Hampshire
ThamesValley
WestYorkshire
WestMidlands
GreaterManchester
Metropolitan
0
644
0
470
323
1731
506
0
1849
1017
250
1044
0
847
1277
1306
2024
1616
581
1085
720
2244
2228
2622
1692
1910
946
557
923
3052
784
3569
2850
3427
2135
1324
2444
2502
2282
1450
1650
6009
24,114
30,961
37,468
41,468
44,136
45,074
45,578
46,134
46,504
49,171
49,171
49,547
50,460
50,648
55,094
59,904
64,790
65,132
73,660
75,098
76,152
77,443
85,237
86,322
89,767
102,737
105,234
107,591
112,841
115,182
117,196
117,575
117,818
121,049
130,172
138,083
159,403
195,530
217,223
227,720
283,040
851,520
Recordedoffences
per1000pop’n
2008/9
48
62
71
65
76
75
77
68
66
58
88
72
64
72
98
88
85
59
74
75
71
65
80
89
99
62
75
70
67
109
95
81
87
73
100
87
86
90
100
87
110
112
Estimateno.male
prisonerscomingfrom
thisCJA,2009
411
528
639
708
753
769
778
787
794
839
839
845
861
864
940
1022
1106
1111
1257
1281
1299
1321
1454
1473
1532
1753
1796
1836
1925
1965
2000
2006
2010
2066
2221
2356
2720
3336
3707
3886
4830
14,530
44
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Map4.7.Supplyanddemandofmaleyoungoffenderinstituteplaces,2009
TheMinistryofJusticefiguresfromJune2009show8,593maleprisonersaged18–20,and353femaleprisoners
aged18–20.Columns2and3inthetablearetakenfromtheMinistryofJusticepublicationEnglandandWales
2008AnnexA:Additionaltables(www.justice.gov.uk/publications/criminalannual.htm).Columns4and5are
estimatesbasedontheconvictionsdataandthenumberof18–20yearoldsinprison.
CriminalJusticeArea
Maleaged18–20found
guiltyorcautioned(1)
for,indictableoffences
bypoliceforcearea,per
100,000,2008(2)
Femaleaged18–20
foundguiltyor
cautioned(1) for,
indictableoffencesby
policeforcearea,per
100,000,2008(2)
795
1288
781
907
1218
1233
800
647
769
1097
1269
897
1217
908
752
755
1043
730
829
949
696
1139
1069
647
894
786
570
1197
1337
1202
997
1198
1070
1266
725
937
783
865
922
1257
1058
853
Est.male18–20
prisonersoriginating
fromthisCJA,2009
Est.female
18–20prisoners
originatingfrom
thisCJA,2009
AvonandSomerset
4193
197
9
Bedfordshire
5228
90
5
Cambridgeshire
4069
97
4
Cheshire
5482
143
6
Cleveland
6812
116
5
Cumbria
5771
71
4
Derbyshire
4018
105
5
Devon&Cornwall
3291
152
7
Dorset
4192
80
3
Durham
5199
102
5
Dyfed-Powys
5935
90
4
Essex
4511
225
10
Gloucestershire
5459
85
4
GreaterManchester
5727
462
17
Gwent
5803
87
3
Hampshire
4447
260
10
Hertfordshire
5657
153
7
Humberside
4627
121
4
Kent
4718
212
9
Lancashire
5892
262
10
Leicestershire
3553
122
6
Lincolnshire
5812
103
5
London
6844
1420
51
Merseyside
7029
323
7
Norfolk
4825
107
5
NorthWales
5926
112
3
NorthYorkshire
3509
78
3
Northamptonshire
5654
103
5
Northumbria
6804
313
14
Nottinghamshire
5855
209
10
SouthWales
4547
195
10
SouthYorkshire
6094
264
12
Staffordshire
5017
164
8
Suffolk
5768
100
5
Surrey
3943
111
5
Sussex
4811
193
9
ThamesValley
4800
315
12
Warwickshire
5814
81
3
WestMercia
5069
157
7
WestMidlands
6496
583
26
WestYorkshire
4966
364
18
Wiltshire
4194
66
3
Total
8593
357
(1)Formotoringoffences,onlypersonsfoundguiltyareincluded;theseoffencesmayattractwrittenwarnings,whichare
notincludedinthistable.(2)ExcludesconvictionsdataforCardiffmagistratescourtforApril,JulyandAugust2008
45
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Map4.8.Supplyanddemandoffemaleadultoffenderplaces,2009
TheMinistryofJusticefiguresfromJune2009show4296femaleprisonersaged21-plus.Column2inthetableis
takenfromTable16ofEnglandandWales2008AnnexA:Additionaltables(MoJ,ibid).Column3contains
estimatesbasedontheconvictionsdataandthenumberofadultfemalesinprison.
CriminalJusticeArea
AvonandSomerset
Bedfordshire
Cambridgeshire
Cheshire
Cleveland
Cumbria
Derbyshire
Devon&Cornwall
Dorset
Durham
Dyfed-Powys
Essex
Gloucestershire
GreaterManchester
Gwent
Hampshire
Hertfordshire
Humberside
Kent
Lancashire
Leicestershire
Lincolnshire
London
Merseyside
Norfolk
NorthWales
NorthYorkshire
Northamptonshire
Northumbria
Nottinghamshire
SouthWales
SouthYorkshire
Staffordshire
Suffolk
Surrey
Sussex
ThamesValley
Warwickshire
WestMercia
WestMidlands
WestYorkshire
Wiltshire
Total
Femaleaged21+foundguiltyor
cautionedfor,indictableoffencesby
policeforcearea,per100,000,2008
219
296
243
270
537
277
186
172
189
289
252
221
251
357
251
203
230
231
207
327
203
248
314
360
208
231
197
261
436
380
320
433
276
245
140
242
207
196
202
419
328
140
Estimatedfemaleaged21+prisoners
originatingfromthisCJA,2009
99
48
52
78
85
40
53
85
40
51
37
121
42
256
40
108
69
60
97
134
55
50
654
142
52
45
45
49
178
115
113
160
84
50
44
110
125
29
69
302
201
25
4296
46
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
AppendixE.Theageofprisonsandyoungoffendersinstitutionsin
EnglandandWales
Prison/YOI
Dateopened
BuckleyHall
Peterborough
Bristol
Leeds
Stocken
Castington
Wealstun
Lindholme
Frankland
NewHall
Ashfield
Brixton
MortonHall
EastwoodPark
Acklington
Coldingley
Dovegate
Hull
Kirkham
LatchmereHouse
Leyhill
Nottingham
Bronzefield
ForestBank
Manchester
Shrewsbury
Leicester
Cardiff
Featherstone
WormwoodScrubs
BullwoodHall
Winchester
Whatton
BlantyreHouse
Kingston
Prescoed
ThornCross
Wolds
CookhamWood
WarrenHill
Wandsworth
2006
2005
2004
2001
2001
2000
1999
1998
1997
1997
1996
1994
1994
1993
1992
1992
1992
1992
1992
1992
1992
1992
1991
1991
1991
1991
1989
1988
1988
1988
1987
1987
1986
1985
1985
1985
1985
1985
1983
1982
1980
Yearssince
built/opened
3
4
5
8
8
9
10
11
12
12
13
15
15
16
17
17
17
17
17
17
17
17
18
18
18
18
20
21
21
21
22
22
23
24
24
24
24
24
26
27
29
Notes
Openedasaprisonin1996,datebuiltnotknown
47
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Prison/YOI
Dateopened
SpringHill
Gartree
Liverpool
LowdhamGrange
Elmley
GlenParva
Deerbolt
Belmarsh
Risley
Highpoint
Garth
Onley
Birmingham
HollesleyBay
Ford
1979
1978
1977
1977
1974
1974
1973
1972
1970s
1971
1969
1968
1967
1966
1965
Yearssince
built/opened
30
31
32
32
35
35
36
37
37
38
40
41
42
43
44
Gloucester
LowNewton
SheptonMallet
StokeHeath
Hewell
SwinfenHall
Woodhill
Canterbury
ChanningsWood
Parc
Styal
TheMount
Hindley
DrakeHall
Preston
Swaleside
RyeHill
Wetherby
Dartmoor
FullSutton
Whitemoor
Swansea
Wayland
Holloway
Chelmsford
Dorchester
Wymott
Erlestoke
HighDown
1965
1965
1964
1964
1963
1963
1963
1962
1962
1962
1962
1962
1961
1960
1960
1960
1958
1958
1955
1955
1954
1953
1953
1950
1949
1948
1948
1946
1946
44
44
45
45
46
46
46
47
47
47
47
47
48
49
49
49
51
51
54
54
55
56
56
59
60
61
61
63
63
Notes
In1995oldprisonsmerged.Theseprisonshadbeen
opensince1965
Formedin2008asanamalgamationof3older
prisons,HewellGrangeoriginallyopened1946
48
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Prison/YOI
Dateopened
Huntercombe
Send
Rochester
Norwich
Pentonville
LancasterCastle
LancasterFarms
Brinsford
Werrington
NorthSeaCamp
Littlehey
Lewes
MoorlandOpen
HolmeHouse
Bullingdon
Usk
Stafford
Everthorpe
Ashwell
StandfordHill
Kennet
Reading
Haverigg
Feltham
EastSuttonPar
MoorlandClosed
AskhamGrange
KirklevingtonGrange
Wakefield
Portland
Altcourse
Aylesbury
Downview
Exeter
Sudbury
Maidstone
Ranby
1946
1946
1941
1939
1938
1935
1933
1910
1895
1891
1890
1887
1886
circa1880
1877
1877
1874
1872
1870
1870
1868
1861
1855
1853
1852
1851
circa1850
1849
1849
1848
1847
1847
1847
1844
1844
1842
1840
Yearssince
built/opened
63
63
68
70
71
74
76
99
114
118
119
122
123
129
132
132
135
137
139
139
141
148
154
156
157
158
159
160
160
161
162
162
162
165
165
167
169
FostonHall
EdmundsHill
Bedford
IsleofWight
Lincoln
Grendon
Durham
1830
1825
1819
1819
1819
1809
1808
179
184
190
190
190
200
201
Notes
Boughtin1955bytheprisonservice
Closed,changeduseandbecamecivilianprisonin
1948
Hassincebeenexpanded
49
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
Prison/YOI
Dateopened
Blundeston
1805
Yearssince
built/opened
204
LongLartin
Wellingborough
Northallerton
Doncaster
TheVerne
GuysMarsh
1801
1794
1783
1782
1610
1594
208
215
226
227
399
415
Notes
Formedin2009amalgamatingParkhurst(1805),
Albany(early1960s),CampHill(1912)
Hassincebeenexpanded
Closedin1930;reopenedin1966asacivilianprison
MostcurrentbuildingsareVictorian
50
ippr |Tomorrow’sPrisons:Designingthefutureprisonestate
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