DOCUMENT IS T H E P R O P E R T Y OF HEP, B B J T A N N I C M A J E S T Y ' 3 G O V E R N M E N T ) C ( 6 8 ) 68
5th A p r i l , I960
CABINET
R E F O R M S OF T H E L A W A N D P R A C T I C E ON C H I L D R E N A N D YOUNG PERSONS; D R A F T WHITE P A P E R Memoranduxti by the S e c r e t a r y of State f o r the H o m e D e p a r t m e n t
The Plorne A f f a i r s C o m m i t t e e at their m e e t i n g today a p p r o v e d m y
p r o p o s a l s f o r the r e f o r m of the law and p r a c t i c e r e l a t i n g to children and
young p e r s o n a .
T h e s e p r o p o s a l s p r e s e r v e the e s s e n t i a l p r i n c i p l e s of
the White P a p e r " T h e C h i l d , the F a m i l y and the Young O f f e n d e r "
( C m n d . 2742) published in A u g u s t , 1965, and at the same time m e e t the
most important of the c r i t i c i s m s w h i c h it e v o k e d .
The m a i n purpose w i l l
be to enable j u v e n i l e offenders to be d e a l t with outside the courts so f a r
as p o s s i b l e , and to integrate the a p p r o v e d schools within a c o m p r e h e n s i v e
s y s t e m of r e s i d e n t i a l establishments f o r children in the c a r e of l o c a l
authorities.
2.
Although c o n s i d e r a t i o n of n e x t Sessionhu l e g i s l a t i v e p r o g r a m m e
has not y e t been c o m p l e t e d , I v e r y much hope that the C h i l d r e n B i l l
w i l l find a place in the m a i n p r o g r a m m e .
It would be r e g a r d e d a s
making a significant advance in the G o v e r n m e n t s p r o g r a m m e of s o c i a l
legislation.
I should l i k e t h e r e f o r e to publish as soon as p o s s i b l e a
White P a p e r setting out m y p r o p o s a l s , in o r d e r to end the p r e s e n t
uncertainty as to the G o v e r n m e n t s intentions, and as a f i r m b a s i s f o r
consultation on the d e t a i l s with i n t e r e s t e d organisations b e f o r e the B i l l
is d r a f t e d .
A d r a f t of the White P a p e r is annexed; m y p r o p o s a l s are
s u m m a r i s e d in p a r a g r a p h s 49-54.
3.
I seek the a g r e e m e n t of m y c o l l e a g u e s to the e a r l y publication
of the White P a p e r
0
L, J, C.
Home
Office,
5th A p r i l , 1963
DRAFT WHiTlS BAP&R
CHILDREN IN TROUBLE
1 .
INTRODUCTORY
I, In A u g u s t , 1 9 6 . 5 s the Government p u b l i s h e d a d h i t e P a p e r ,
the C h i l d , the Family arid t h e Young O f f e n d e r " , i n o r d e r t o i n v i t e
jiscussion o f p o s s i b l e measures t o support t h e f a m i l y , f o r e s t a l l
aid reduce d e l i n q u e n c y , and r e v i s e t h e law and. p r a c t i c e r e l a t i n g t o
young o f f e n d e r s i n England and W a l e s .
The o b j e c t i v e s and broad
strategy o f t h e s e p r o p o s a l s were w i d e l y welcomed.
There was, however
less agreement about machinery,- and. e s p e c i a l l y about t h e p r o p o s a l t o
establish f a m i l y c o u n c i l s . '
I This P a p e r , which owes much t o t h o s e who c o n t r i b u t e d t o t h e
aiscassion o f t h e e a r l i e r p r o p o s a l s , s e t s out t h e reforms which the
Sovernment now p r o p o s e s t o i n t r o d u c e i n t h e law f o r England and .7ales
delating t o c h i l d r e n and young persons.,
), The p a p e r does not p r o p o s e changes a f f e c t i n g t h e s e who commit
loffences a f t e r r e a c h i n g t h e age o f 1 7 ; or i n t h e system o f c o u r t s
These a r e
for d e a l i n g w i t h o f f e n d e r s b o t h o v e r and under 1 7 a
jitters which w i l l r e q u i r e f u r t h e r c o n s i d e r a t i o n i n t h e l i g h t o f the
deport o f t h e Committee on t h e Age o f M a j o r i t y and o t h e r e n q u i r i e s
bhich a r e i n p r o g r e s s .
It, The Government a t t a c h e s g r e a t importance t o the f u r t h e r d e v e l o p ­
sent of the s e r v i c e s concerned w i t h t h e p r e v e n t i o n and treatment o f
juvenile d e l i n q u e n c y and w i t h o t h e r s i m i l a r problems a f f e c t i n g
shildren and t h e i r f a m i l i e s , and. t o t h e c o n t i n u e d growth o f c o ­
between t h e s e s e r v i c e s .
The reforms o u t l i n e d i n t h i s
Ifeper are complementary t o t h e c o - o p e r a t i v e development of t h e s e
services, and n o t h i n g i n the Paper p r e nudges the outcome of the
]overnment's c o n s i d e r a t i o n o f the R e p o r t of t h e Departmental
jtamittee on l o c a l a u t h o r i t y p e r s o n a l s o c i a l s e r v i c e s .
The
"lovernmeut s aim has been t o p r o v i d e a s e t t i n g f o r developments which
Iran be g i v e n e f f e c t i n i t i a l l y by t h e s e r v i c e s as a t p r e s e n t o r g a n i s e d ,
;afl in d i e course by the s e r v i c e s as t h e y may be o r g a n i s e d i n the
pture.
; 3 p e r a t i c n
1
5i Part I I o f t h i s Paper d i s c u s s e s some g e n e r a l c o n s i d e r a t i o n s which
jaderlie the Government * s s p e c i f i c p r o p o s a l s f o r a d d i t i o n s t o , or
Parts I I I - V d e s c r i b e these proposals
teges i n , the p r e s e n t l a w .
jhhroad terms and Appendices A t o D s e t t h e s e out i n more d e t a i l ,
fad w i l l form the b a s i s f o r e a r l y c o n s u l t a t i o n s w i t h r e p r e s e n t a t i v e s
ftf those who w i l l be r e s p o n s i b l e f o r o p e r a t i n g the new system,
II.
CSI^JidRAL
I
?! Juvenile d e l i n q u e n c y has no s i n g l e c a u s e , m a n i f e s t a t i o n o r c u r e .
Iits o r i g i n s are many, and. the range o f b e h a v i o u r which i t c o v e r s i s
Really w i d e .
A t some p o i n t s i t merges almost i m p e r c e p t i b l y w i t h
tehaviour which does not c o n t r a v e n e the l a w .
A child. s b e h a v i o u r ^influenced by g e n e t i c , e m o t i o n a l and i n t e l l e c t u a l f a c t o r s , h i s -turity, and h i s f a m i l y , s c h o o l , neighbourhood and w i d e r s o c i a l ^ting.
I t i s p r o b a b l y a m i n o r i t y o f c h i l d r e n who grow up v
" ­
t/ithout e v e r misbehaving i n ways which, may be c o n t r a r y t o the l a w .
frequently such b e h a v i o u r i s no more than an i n c i d e n t i n t h e p a t t e r n
But sometimes i t i s a r e s p o n s e
of a c h i l d ' s normal d e v e l o p m e n t
to u n s a t i s f a c t o r y f a m i l y o r s o c i a l c i r c u m s t a n c e s , a r e s u l t of boredom
in and out o f s c h o o l an i n d i c a t i o n of maladjustment o r i m m a t u r i t y ,
or a symptom o f a d e v i a n t , damaged o r abnormal p e r s o n a l i t y .
Early
recognition and f u l l assessment a r e p a r t i c u l a r l y i m p o r t a n t i n t h e s e
sore s e r i o u s c a s e s .
V a r i e t y and f l e x i b i l i t y i n t h e measures t h a t
can be t a k e n a r e e q u a l l y i m p o r t a n t , i f s o c i e t y i s t o d e a l e f f e c t i v e l y
and a p p r o p r i a t e l y w i t h t h e s e m a n i f o l d a s p e c t s o f d e l i n q u e n c y .
These measures i n c l u d e s u p e r v i s i o n and support of the c h i l d i n t h e
familys
the f u r t h e r development of the s e r v i c e s working I n the
community: and a v a r i e t y o f f a c i l i t i e s f o r s h o r t - t e r m and l o n g - t e r m
care, t r e a t m e n t ana c o n t r o l , i n c l u d i n g some which a r e h i g h l y
specialised,
c
9
7, The s o c i a l consequences o f j u v e n i l e d e l i n q u e n c y range from minor
nuisance t o c o n s i d e r a b l e damage and s u f f e r i n g f o r the community.
-An
important o b j e c t o f the c r i m i n a l law i s t o p r o t e c t s o c i e t y a g a i n s t
such consequences: but t h e community a l s o r e c o g n i s e s the importance
of c a r i n g f o r those who a r e t o o young t o p r o t e c t t h e m s e l v e s ,
Over
recent y e a r s t h e s e two q u i t e d i s t i n c t grounds f o r a c t i o n by s o c i e t y
in r e l a t i o n t o young p e o p l e have been moving s t e a d i l y c l o s e r t o g e t h e r .
It has become i n c r e a s i n g l y c l e a r t h a t s o c i a l c o n t r o l o f harmful
behaviour by the young, and s o c i a l measures t o h e l p and p r o t e c t the
young, a r e not d i s t i n c t and s e p a r a t e p r o c e s s e s .
The aims of p r o ­
tec t i n g s o c i e t y from j u v e n i l e d e l i n q u e n c y , and o f h e l p i n g c h i l d r e n
in t r o u b l e t o grow up i n t o mature and l a w - a b i d i n g p e r s o n s , a r e e o m p l e ­
mentary and not c o n t r a d i c t o r y ,
8. The c r i m i n a l l a w , i n i t s a p p l i c a t i o n t o j u v e n i l e o f f e n d e r s , has
for many y e a r s recognised, the w e l f a r e o f the i n d i v i d u a l as an
important c r i t e r i o n , and has made p r o v i s i o n f o r s p e c i a l forms of
treatment.
There has been f o r s i x t y y e a r s a s e p a r a t e system o f
juvenile c o u r t s , w i t h l e s s formal p r o c e d u r e s than t h o s e o f the a d u l t
courts
These c o u r t s a r e s t a f f e d b y s p e c i a l l y s e l e c t e d m a g i s t r a t e s
who have g i v e n much d e v o t e d a t t e n t i o n t o the problems o f young p e o p l e c
Voluntary o r g a n i s a t i o n s have p l a y e d a l a r g e p a r t i n p r o v i d i n g r e s i d e n t
tial and o t h e r f a c i l i t i e s f o r c h i l d r e n . .
The p r e oat i o n s e r v i c e has
played a p i o n e e r i n g r o l e , w i t h the young as w i t h a d u l t s , i n d e v e l o p i n g
the concepts o f d i a g n o s i s and t r e a t m e n t , b o t h i n i t s s t a t u t o r y
function and i n g i v i n g i n f o r m a l h e l p and a d v i c e *
The approved
schools have done much t o d e v e l o p t h e concept o f s o c i a l e d u c a t i o n
based on an understanding o f i n d i v i d u a l needs and c i r c u m s t a n c e s .
The i n s t i t u t i o n of j u v e n i l e l i a i s o n o f f i c e r schemes I n some a r e a s i s
an example o f the d i s t i n c t i v e c o n t r i b u t i o n which t h e p o l i c e are
siahing in the j u v e n i l e f i e l d , as p a r t o f t h e i r p r i m a r y duty of crime
prevention,
The c h i l d r e n s departments o f l o c a l a u t h o r i t i e s have
"fide g r e a t s t r i d e s i n t h e t w e n t y y e a r s o f t h e i r e x i s t e n c e ;
together
with the e d u c a t i o n a l and h e a l t h s e r v i c e s t h e y a r e now c l o s e l y
involved i n p r e v e n t i v e work and i n p r o v i d i n g f a c i l i t i e s f o r t r e a t m e n t .
a
1
9. The l e g i s l a t i v e p r o p o s a l s d e s c r i b e d i n t h i s Paper p r e s e r v e f o r
each of the s e r v i c e s concerned an important r o l e in c o - o p e r a t i o n
*ith the o t h e r s ,
10. This l e g i s l a t i o n w i l l e s t a b l i s h a new l e g a l b a s i s f o r s t e a d y
development o v e r a p e r i o d o f t i m e .
The changes w i l l be i n t r o d u c e d
gradually o v e r a p e r i o d o f y e a r s .
S u f f i c i e n t t r a i n e d s t a f f and
other r e s o u r c e s are not a v a i l a b l e t o p e r m i t a l l the changes t o be
introduced a t o n c e , o r a t any one t i m e .
I t i s important t h a t the
services concerned should not be asked t o c a r r y out new t a s k s b e f o r e
2
D
they have t h e r e s o u r c e s t o do s o .
The p r e p a r a t i o n and subsequent
implementation o f area development p l a n s and schemes o f i n t e r m e d i a t e
treatment ( d e s c r i b e d i n P a r t V ) w i l l i n any e v e n t take t i m e
provision w i l l a c c o r d i n g l y be made f o i d i f f e r e n t days t o "be
appointed f o r the commencement o f d i f f e r e n t p a r t s o f the new system;
these w i l l not n e c e s s a r i l y be t h e same i n a l l p a r t s of t h e c o u n t r y .
The f i x i n g o f a p p o i n t e d days w i l l he d e c i d e d i n c o n s u l t a t i o n w i t h
the l o c a l a u t h o r i t i e s and o t h e r s e r v i c e s , i n t h e l i g h t o f the
resources a v a i l a b l e .
I n p a r t i c u l a r . , i t i s l i k e l y t h a t t h e new
legal p r o c e d u r e s d e s c r i b e d I n P a r t I I I w i l l he brought i n t o o p e r a t i o n
in s e v e r a l s t a g e s , p o s s i b l y s t a r t i n g w i t h c h i l d r e n aged t e n and
eleven o n l y .
Meanwhile, t h e new system o f r e s i d e n t i a l c a r e "will
enable e x i s t i n g r e s o u r c e s t o be used more p r o d u c o i v e i y
e
1
0
1
1
1
o
CHANGES
Ij^LEGA^jgROgljDUI^S
Aims 11. The response t o "The C h i l d , the F a m i l y and t h e Young O f f e n d e r "
indicated w i d e support f o r t h e aim t h a t , so f a r as p o s s i b l e , j u v e n i l e
offenders should he d e a l t w i t h o u t s i d e the c o u r t s w i t h t h e agreement
of t h e i r p a r e n t s .
T h e r e were many comments, however, t h a t t h i s
could most e f f e c t i v e l y be done on an i n f o r m a l b a s i s "by s o c i a l workers
rather than through f a m i l y c o u n c i l s ;
and t h a t the b a s i c c h o i c e o v e r
the p r o c e d u r e t o be a d o p t e d i n each i n d i v i d u a l case should t h e r e f o r e
lie b e t w e e n , on the one hand, c o u r t p r o c e e d i n g s and, on t h e o t h e r ,
the p r o v i s i o n o f help and guidance on an e n t i r e l y v o l u n t a r y basis,,
The weight o f o p i n i o n was i n f a v o u r o f r e t a i n i n g t h e s e v e n t e e n t h
birthday as t h e upper ags l i m i t f o r the j u v e n i l e system., p a r t i c u l a r l y
for c a r e , p r o t e c t i o n o r c o n t r o l p r o c e e d i n g s .
There were a l s o
several s u g g e s t i o n s t h a t t h e r e should be d i f f e r e n t arrangements f o r
younger and o l d e r j u v e n i l e o f f e n d e r s .
The p r o p o s a l s i n t h i s P a r t
give e f f e c t t o t h e s e views...
12. These p r o p o s a l s a l s o t a k e account o f the f a c t t h a t the t r a n s i t i o n
from the young c h i l d ' s dependence on h i s p a r e n t s t o the independence
and r e s p o n s i b i l i t y c f the young a d u l t i s a gradual p r o c e s s .
For
most, i t reaches a c r i t i c a l phase when t h e c h i l d i s t h i r t e e n o r
fourteen.
The new l e g a l p r o c e d u r e s d e s c r i b e d i n t h i s P a r t w i l l
provide a graduated and f l e x i b l e system v/hich r e f l e c t s t h i s p r o c e s s .
The p?coeedure f o r c h i l d r e n under 10 w i l l remain as a t p r e s e n t ;
there w i l l be new p r o v i s i o n s f o r those aged 10 and under 1h, which
will be added t o t h e s e r e l a t i n g t o c h i l d r e n under 1 0 ; and new
provisions a l s o f o r t h o s e aged 1h and under 17 which w i l l be added
to those r e l a t i n g t o t h e younger age g r o u p s .
The p r o c e d u r e f o r
offenders a g e d t e n and under f o u r t e e n w i l l narrow down t h e e i r e urn­
stances i n which court p r o c e e d i n g s a r e now p o s s i b l e
I t represents
a half-way s t a g e between c a r e , p r o t e c t i o n o r c o n t r o l p r o c e e d i n g s
and p r o s e c u t i o n .
I t i s d e s i g n e d t o encourage p a r e n t s t o f u l f i l
the r e s p o n s i b i l i t i e s which a r e p r o p e r l y t h e i r s , and t o ensure that
the c h i l d ' s home background i s c o n s i d e r e d b e f o r e a d e c i s i o n i s
taken whether c o u r t p r o c e e d i n g s should be i n s t i t u t e d .
Proceedings
will remain p o s s i b l e where t h e y a r e n e c e s s a r y f o r the p r o t e c t i o n of
o r f o r the sake c f the c h i l d .
For o f f e n d e r s aged fourbeeu
snd under s e v e n t e e n , p r o s e c u t i o n w i l l he a v a i l a b l e i n d e f i n e d
circumstances, as w e l l a s t h e new p r o c e d u r e f o r o f f e n d e r s under
fourteen.
The p r o c e d u r e f o r those aged f o u r t e e n and under
seventeen w i l l p r o v i d e meichinery and c r i t e r i a f o r d e c i d i n g whether
0
S o c i e t y
the i n t e r e s t s o f s o c i e t y o r o f t h e young p e r s o n r e q u i r e a p r o s e ­
cut ion o r whether t h e s e i n t e r e s t s can "best be s e r v e d i n o t h e r ways,
juvenile" c o u r t s and m a g i s t r a t e s
1j, These p r o p o s a l s mean t h e r e t e n t i o n of the j u v e n i l e c o u r t s ,
provision w i l l be made f o r the L o r d C h a n c e l l o r ( i n t h e County
palatine of L a n c a s t e r t h e C h a n c e l l o r o f the Duchy) t o a p p o i n t
juvenile c o u r t p a n e l s i n a l l p a r t s o f t h e c o u n t r y , as he a l r e a d y
does i n I n n e r London, when t h e n e c e s s a r y arrangements can be made.
At p r e s e n t , j u v e n i l e court p a n e l s in o t h e r a r e a s a r e a p p o i n t e d by
the j u s t i c e s .
T h i s may i n v o l v e i n v i d i o u s c h o i c e s , and d i f f i c u l t i e s
of s e l e c t i o n i n t h o s e a r e a s where t h e bench i s l a r g e and i t s i n d i v i d ­
ucl members a r e not c l o s e l y a c q u a i n t e d w i t h many o f t h e i r c o l l e a g u e s .
After t h e enactment o f l e g i s l a t i o n i t w i l l be n e c e s s a r y t o r e v i s e
the s t a t u t o r y r u l e s r e l a t i n g t o p r o c e e d i n g s i n j u v e n i l e c o u r t s ,
in the l i g h t o f t h e new l e g a l p r o c e d u r e s .
The o p p o r t u n i t y w i l l be
taken t o conduct a g e n e r a l r e v i e w o f t h e d e t a i l e d p r o c e d u r e and
practice of j u v e n i l e c o u r t s , i n c o n s u l t a t i o n w i t h r e p r e s e n t a t i v e s
of those i n v o l v e d i n t h e i r day t o day w o r k , w i t h t h e o b j e c t o f
making any changes t h a t w i l l a s s i s t i n t h e achievement o f the aims
set out i n t h i s T a p e r .
The c o n c l u s i o n s o f t h i s r e v i e w w i l l be
reflected i n t h e r e v i s e d r a l e s , and w i l l be c i r c u l a t e d t o c o u r t s
for guidance so f a r as t h e y r e l a t e t o m a t t e r s o f p r a c t i c e .
Further
steps w i l l a l s o be t a k e n t o promote t h e amalgamation o f j u v e n i l e
court p a n e l s where t h i s i s d e s i r a b l e ,
The new l e g a l p r o c e d u r e r e l a t i n g t o o f f e n d e r s aged t e n and under
fourteen.
1a, The commission o f an o f f e n c e by a c h i l d o f t h i s age w i l l cease
tc b e , by i t s e l f , a s u f f i c i e n t ground f o r b r i n g i n g him b e f o r e a
court.
Where p r o c e e d i n g s a r e necessary,, t h e s e w i l l be brought
under the c a i e , p r o t e c t i o n o r c o n t r o l p r o c e d u r e , which w i l l be
widened a s f o l l o w s .
Under the p r e s e n t l a w , c o n t a i n e d i n s e c t i o n 2
of the C h i l d r e n and Young Persons A c t 1963? a child, i s i n need, o f
care, p r o t e c t i o n o r c o n t r o l i f i t i s e s t a b l i s h e d t h a t :
( a )
(i)
he i s not r e c e i v i n g such c a r e , p r o t e c t i o n and guidance as a good p a r e n t may r e a s o n a b l y be expected, t o g i v e , and ( i i )
any one o f a number o f c o n d i t i o n s i s s a t i s f i e d .
( e . g . , he i s f a l l i n g i n t o bad a s s o c i a t i o n s o r i s exposed
t o moral danger, o r t h e l a c k o f c a r e , p r o j e c t i o n or
guidance i s l i k e l y t o cause him unnecessary s u f f e r i n g o r
s e r i o u s l y t o a f f e c t h i s h e a l t h or p r o p e r d e v e l o p m e n t ) ; OR
( b )
he i s beyond the c o n t r o l
of h i s parent or g u a r d i a n .
This d e f i n i t i o n w i l l be amended by a d d i n g , t o t h e c o n d i t i o n s
mentioned.at ( a ) ( i i ) , t h a t t h e c h i l d has committed, an o f f e n c e .
This means t h a t p r o c e e d i n g s on account o f an o f f e n c e w i l l be
possible o n l y i f the t e s t a t ( a ) ( i ) can a l s o be s a t i s f i e d o r i f
the o f f e n c e , e i t h e r by i t s e l f o r t o g e t h e r w i t h o t h e r f a c t o r s ,
indicates t h a t t h e c h i l d i s beyond t h e c o n t r o l o f h i s p a r e n t s ,
15. Where a ground f o r p r o c e e d i n g s i s t h e a l l e g e d commission
an o f f e n c e , e i t h e r the p o l i c e o r t h e l o c a l a u t h o r i t y w i l l be
to bring t h e p r o c e e d i n g s .
Except i n cases o f u r g e n c y , t h e y
consult t o g e t h e r b e f o r e d e c i d i n g whether t o do s o .
I f the
denies h a v i n g committed t h e o f f e n c e , i t w i l l b e n e c e s s a r y t o
of
able
will
child
prove
CONFID^mAL
I this in t h e same way as a t present,,
I t w i l l normally he f o r t h e
j police t o b r i n g f o r w a r d t h e n e c e s s a r y e v i d e n c e
I f the court I s
not s a t i s f i e d t h a t the c h i l d committed the o f f e n c e , t h a t w i l l be
I f the o f f e n c e i s a d m i t t e d o r p r o v e d ,
I the end c f the p r o c e e d i n g s .
\ evidence w i l l t h e n be brought f o r w a r d by t i i e l o c a l a u t h o r i t y
or the p o l i c e , i n t h e same way as i n e x i s t i n g c a r e , p r o t e c t i o n o r
I control p r o c e e d i n g s , t h a t t h e c h i l d i s not r e c e i v i n g such c a r e ,
protection or guidance as a good p a r e n t may r e a s o n a b l y be e x p e c t e d
The courses open t o t h e c o u r t
I to g i v e , o r i s beyond c o n t r o l .
if i t i s a l s o s a t i s f i e d on t h e l a t t e r p o i n t w i l l be t h e same as i n
care, p r o t e c t i o n o r c o n t r o l p r o c e e d i n g s brought on any o t h e r grounds,
j and are s e t out i n t h e summary i n paragraph 5h
B
&
R e s t r i c t i o n s on t h e p r o s e c u t i o n o f o f f e n d e r s aged f o u r t e e n and under s e v e n t e e n 116. P r o s e c u t i o n o f an o f f e n d e r o f t h i s age ( e x c e p t on a charge o f
] nomicide) w i l l be p o s s i b l e o n l y on t h e a u t h o r i t y o f a summons o r
warrant i s s u e d b y a j u v e n i l e c o u r t m a g i s t r a t e .
The m a g i s t r a t e
I will he empowered t o grant an a p p l i c a t i o n f o r a summons o r
warrant o n l y i f one o r more p r e s c r i b e d c r i t e r i a a r e s a t i s f i e d . ,
1 Any p e r s o n who p r o p o s e s t o make such an a p p l i c a t i o n w i l l be r e q u i r e d
\ to inform t h e l o c a l a u t h o r i t y i n a d v a n c e .
The p r o c e d u r e f o r
dealing w i t h t n e a p p l i c a t i o n w i l l be s i m i l a r t o e x i s t i n g p r o c e d u r e ,
I Before t h e m a g i s t r a t e t a k e s h i s d e c i s i o n , h o w e v e r , he w i l l hear t h e
views which the l o c a l c h i l d r e n s department and t h e p o l i c e have
j formed a f t e r c o n s u l t i n g each o t h e r about: t h e c a s e .
The p r o p o s e d
I c r i t e r i a f o r p r o s e c u t i o n a r e s e t o u t , and t h e p r o c e d u r e i s
These c r i t e r i a a r e
I described i n more d e t a i l , i n Appendix A ,
: intended t o c o v e r a l l those s i t u a t i o n s i n which p r o s e c u t i o n may
be n e c e s s a r y , and c o u r t p r o c e e d i n g s would n o r m a l l y be t a k e n i n
] cases where one o r more o f the c r i t e r i a were s a t i s f i e d ;
but t h e r e
1 will be no l e g a l o b l i g a t i o n on t h e p o l i c e t o make an a p p l i c a t i o n
; for p r o c e s s , o r on t h e m a g i s t r a t e t o grant i t , i n a l l such c a s e s .
2
17. Under t h i s scheme, t h e normal course o f e v e n t s , where t h e p o l i c e
I identify an o f f e n d e r aged f o u r t e e n and under s e v e n t e e n , t h e o f f e n c e
\ is not d e n i e d , and something more t h a n an o r a l w a r n i n g on t h e spot
\ seems t o be r e q u i r e d , w i l l be as f o l l o w s .
The p o l i c e w i l l c o n s u l t
A v a i l a b l e i n f o r m a t i o n about t h e young
! the c h i l d r e n ' s d e p a r t m e n t
j perscVs background w i l l be c o n s i d e r e d , and f u r t h e r e n q u i r i e s made
if n e c e s s a r y .
I n some cases i t w i l l be a g r e e d t h a t no q u e s t i o n
I f i n f o r m a l a c t i o n seems l i k e l y
of court p r o c e e d i n g s need a r i s e
I n some c a s e s t h e e n q u i r i e s
; to be h e l p f u l , t h i s w i l l then be t a k e n .
I may show t h a t c a r e , p r o t e c t i o n or c o n t r c l p r o c e e d i n g s would be
oore a p p r o p r i a t e than a p r o s e c u t i o n .
Such p r o c e e d i n g s w i l l t h e n be
f initiated.
The remaining c a s e s w i l l be put t o a m a g i s t r a t e t o
I decide whether one o f t h e s t a t u t o r y c r i t e r i a f o r p r o s e c u t i o n I s
j satisfied and, I f s o , whether t h e r e should b e a p r o s e c u t i o n , ,
a
0
SSr ope r a t i o n between
services
1o, One major e f f e c t o f the p r o p o s a l s d e s c r i b e d i n t h i s P a r t w i l l be to encourage and s t r e n g t h e n c o n s u l t a t i o n and c o - o p e r a t i o n Between the j u v e n i l e c o u r t m a g i s t r a t e s , the p o l i c e , t h e c h i l d r e n ' s The r e g u l a r d i s c u s s i o n o f department and the p r o b a t i o n s e r v i c e , ,
^dividual cases w i l l be v a l u a b l e i n e n a b l i n g m a g i s t r a t e s , p o l i c e *fl s o c i a l workers t o a p p r e c i a t e d i f f e r e n t a s p e c t s o f the problems a
of delinquency,,
I t w i l l be s u g g e s t e d t o l o c a l a u t h o r i t i e s ,
chief o f f i c e r s o f p o l i c e , j u v e n i l e c o u r t p a n e l s and p r o b a t i o n
committees t h a t t h e y should arrange p e r i o d i c m e e t i n g s , at which
each a r e r e p r e s e n t e d , t o r e v i e w the o p e r a t i o n o f the new p r o c e d u r e s
in t h e i r area and t c d i s c u s s how each can make the most e f f e c t i v e
contribution;
and. t h a t o t h e r s who a r e c o n c e r n e d , such as t e a c h e r s ,
The changes w i l l
might a l s o be i n v i t e d to a t t e n d such m e e t i n g s
increase the scope f o r s o c i a l casework by the l o c a l a u t h o r i t y -under
section 1 o f the A c t o f 1963c
I n f o r m a l w a r n i n g s , and f o r m a l
I t w i l l also
cautions, of o f f e n d e r s by the p o l i c e w i l l c o n t i n u e
be p o s s i b l e t c c o n t i n u e and extend the work of p o l i c e i u v e n i l e
l i a i s o n schemes i n a r e a s where i t i s a g r e e d t h a t p o l i c e
p a r t i c i p a t i o n i n p r e v e n t i v e work i s valuable.-,
The c o u r t s w i l l
continue t o p r o v i d e the s a f e g u a r d o f j u d i c i a l p r o c e d u r e s i n
cases where a l l e g a t i o n s a r e d e n i e d o r c o a p u l s i o n i s e x e r c i s e d .
0
0
Miner ^nd. c o n s e q u e n t i a l
changes
IS, The mo .e important minor and c o n s e q u e n t i a l changes are
described i n Appendix B,
These a f f e c t p o l i c e powers, remands,
and the d e f i n i t i o n o f " i n need of c a r e , p r o t e c t i o n or c o n t r o l "
1
0
j
i
IV CHANGES AFFECTTNG TREATMENT S i m s ;
20* The aim of the changes d e s c r i b e d i n t h i s P a r t i s t o i n c r e a s e
the e f f e c t i v e n e s s of the measures a v a i l a b l e t o d e a l w i t h
juvenile delinquency.
E f f e c t i v e n e s s means h e l p i n g c h i l d r e n whose
behaviour i s u n a c c e p t a b l e t o grow up, t o d e v e l o p p e r s o n a l
r e l a t i o n s h i p s end t o accept t h e i r r e s p o n s i b i l i t i e s towards t h e i r
f e l l o w s , s o t h a t they become mature members o f s o c i e t y ;
in some
cases i t a l s o means f i r m c o n t r o l of a n t i - s o c i a l b e h a v i o u r .
In
order t o a c h i e v e t h i s aim. I t i s n e c e s s a r y t o d e v e l o p f u r t h e r our
f a c i l i t i e s f o r o b s e r v a t i o n and assessment, and t o i n c r e a s e t h e
v a r i e t y of f a c i l i t i e s f o r c o n t i n u i n g t r e a t m e n t , both r e s i d e n t i a l
and n o n - r e s i d e n t i a l .
I n c r e a s e d f l e g i b i l i t y i s needed so as t o
make i t e a s i e r t o v a r y the t r e a t m e n t when changed circumstances
or f u l l e r d i a g n o s i s suggest the need f o r a d i f f e r e n t approach.
O r g a n i s a t i o n a l changes a r e a l s o d e s i r a b l e so as t o p r o v i d e a
r o t t i n g f o r c l o s e r c o - o p e r a t i o n between the s e r v i c e s c o n c e r n e d ,
21 * Three main changes i n the powers o f the j u v e n i l e court w i l l
be made f o r t h i s purpose. F i r s t , the approved, school order w i l l
te a b o l i s h e d ;
an order f o r the compulsory removal of a c h i l d from
home w i l l in a i l c a s e s take the form o f committal t o the care of
the l o c a l a u t h o r i t y .
Second, p r o v i s i o n w i l l be made f o r the
development of new forms of t r e a t m e n t , I n t e r m e d i a t e between
s u p e r v i s i o n i n the home and committal t o c a r e .
Third, a l l
s u p e r v i s i o n of c h i l d r e n under f o u r t e e n w i l l oe by the l o c a l
authority.
The f i r s t change was proposed In "The C h i l d , the
The
Family and the Young O f f e n d e r " , and was w i d e l y s u p p o r t e d
third i s a m o d i f i c a t i o n of a proposal i n that h h i t e Paper,
The
second i s new.
These t h r e e changes are d e s c r i b e d in more d e t a i l
in paragraphs 2h-3h; paragraphs 22-23 s e t out the powers of the
higher c o u r t s which w i l l remain.
0
Powers of "hhe h i g h e r c o u r t s t o d e a l w i t h serious, o f f p n e e s
22c The p r o p o s a l i n "The C h i l d , hhe F a m i l y and the Young O f f e n d e r "
that the r i g h t t o claim t r i a l by jury should be a b o l i s h e d f o r
persons up t o s i x t e e n , e x c e p t those charged w i t h h o m i c i d e , met w i t h
almost unanimous agreement.
I n v i e w o f the d e c i s i o n t o r e t a i n an
upper age o f s e v e n t e e n f o r the j u v e n i l e c o u r t , t h i s r i g h t w i l l be
a b o l i s h e d up t o t h a t a g e , hut w i t h an a d d i t i o n a l e x c e p t i o n .
S e c t i o n 5 3 ( 2 ) of the C h i l d r e n and Young Persons A c t 1933 g i v e s the
s u p e r i o r c o u r t s power t o o r d e r a young p e r s o n found g u i l t y o f a
grave o f f e n c e t o be d e t a i n e d in a p l a c e d i r e c t e d by the S e c r e t a r y
of S t a t e f o r a p e r i o d s p e c i f i e d by the c o u r t .
This power w i l l be
retained.
In p r a c t i c e i t i s e x e r c i s e d a t p r e s e n t mainly i n
r e l a t i o n t o young persons aged s i x t e e n who commit v e r y s e r i o u s
offences, often involving v i o l e n c e .
The e f f e c t w i l l be t h a t ,
where a young p e r s o n i s charged w i t h an o f f e n c e punishable i n an
adult by imprisonment f o r f o u r t e e n y e a r s ov more, and the
j u v e n i l e c o u r t c o n s i d e r s t h a t the e x e r c i s e of t h i s power would
he warranted i f he were found g u i l t y , the c o u r t w i l l commit him
f o r t r i a l by a h i g h e r c o u r t .
I f he i s found g u i l t y , the h i g h e r
court w i l l have power t o o r d e r h i s d e t e n t i o n under s e c t i o n 5 3 ( 2 )
of the 1933 A c t , i n a d d i t i o n t o a l l the powers a v a i l a b l e t o a
juvenile court.
c3. At p r e s e n t young persons of f i f t e e n and s i x t e e n may be
committed t o q u a r t e r s e s s i o n s , and sent t o b o r s t a l by q u a r t e r
s e s s i o n s , i f no o t h e r method of d e a l i n g w i t h them i s a p p r o p r i a t e .
Power w i l l be r e t a i n e d f o r the p r e s e n t t o commit t o b o r s t a l
young p e o p l e o f t h i s age f o r whom committal t o , or a
c o n t i n u a t i o n i n , care would be u n s u i t a b l e .
T h i s power w i l l b e
discontinued when new arrangements have been made f o r t r e a t i n g ,
7
where n e c e s s a r y under c o n d i t i o n s
persons whose b e h a v i o u r p r e s e n t s
of s e c u r i t y , c h i l d r e n and young
serious problems.
Supervision
2k'
A t p r e s e n t c h i l d r e n and young persons who have committed an
o f f e n c e may be p l a c e d on p r o b a t i o n and a r e s u p e r v i s e d by
probation o f f i c e r s .
Those found i n need of c a r e , p r o t e c t i o n or
c o n t r o l may be p l a c e d under the s u p e r v i s i o n of a p r o b a t i o n o f f i c e r ,
the l e c a l a u t h o r i t y or any o t h e r p e r s o n .
Under the new
arrangements, the s u p e r v i s i o n of a c h i l d under f o u r t e e n found
to be i n need o f c a r e , p r o t e c t i o n or c o n t r o l w i l l be by the l o c a l
authority;
in cases where the p r o b a t i o n s e r v i c e was a l r e a d y
working w i t h the c h i l d ' s f a m i l y , arrangements c o u l d be made f o r
the p r o b a t i o n o f f i c e r concerned t o s u p e r v i s e the c h i l d .
For
young persons aged f o u r t e e n and under s e v e n t e e n , s u p e r v i s i o n ,
f o l l o w i n g both c r i m i n a l p r o c e e d i n g s and c a r e , p r o t e c t i o n or
c o n t r o l p r o c e e d i n g s w i l l be by the l o c a l a u t h o r i t y or by a
p r o b a t i o n o f f i c e r (but n o t , as a t p r e s e n t , by any other person.) as
decided by the c o u r t .
T h i s means t h a t t h e a s s o c i a t i o n of the
p r o b a t i o n s e r v i c e w i t h young persons aged f o u r t e e n and under
seventeen w i l l be p r e s e r v e d .
S u p e r v i s i o n w i l l be f o r a s p e c i f i e d
p e r i o d of not more than t h r e e y e a r s .
I n t e r m e d i a t e forms of
tieatment
25o E x i s t i n g forms of t r e a t m e n t a v a i l a b l e t o the j u v e n i l e c o u r t s
d i s t i n g u i s h s h a r p l y between those which i n v o l v e complete removal
from home and those which do n o t .
The j u v e n i l e courts have v e r y
d i f f i c u l t d e c i s i o n s t o make i n judging whether circumstances
r e q u i r e the d r a s t i c s t e p of t a k i n g a c h i l d away from h i s p a r e n t s
and h i s home. The view has o f t e n been e x p r e s s e d t h a t some form
or forms of i n t e r m e d i a t e t r e a t m e n t should be a v a i l a b l e t o the
c o u r t s , a l l o w i n g the c h i l d t o remain in h i s own home but b r i n g i n g
The j u n i o r
him a l s o i n t o c o n t a c t w i t h a d i f f e r e n t environment
attendance c e n t r e s go some way towards meeting t h i s need, but
the time spent by an i n d i v i d u a l o f f e n d e r i n an attendance c e n t r e
is s h o r t (up t o 2h hours a t most, spread over a number of
S a t u r d a y s ) , and i t has not been p o s s i b l e t o p r o v i d e c e n t r e s
o u t s i d e the more populous a r e a s .
The j u n i o r d e t e n t i o n c e n t r e
i n v o l v e s removal from home which, although r e l a t i v e l y b r i e f , i s
sudden and c o m p l e t e . A new l e g a l and a d m i n i s t r a t i v e framework w i l l ­
t h e r e f o r e be e s t a b l i s h e d f o r the development of a v a r i e t y of forms
of i n t e r m e d i a t e treatment f o r c h i l d r e n and young persons p l a c e d
under s u p e r v i s i o n by the j u v e n i l e c o u r t s .
One o b j e c t i s t o make
p o s s i b l e the use f o r thd s purpose of f a c i l i t i e s not p r o v i d e d
e x p r e s s l y f o r those who have been b e f o r e the c o u r t s .
These new
methods of treatment w i l l be l i n k e d t o s u p e r v i s i o n , but a
s t r a i g h t f o r w a r d s u p e r v i s i o n o r d e r w i l l remain p o s s i b l e .
The new
framework i s o u t l i n e d i n paragraphs 26-29. F u r t h e r d e t a i l s a r e
given in. Appendix C.
B
26.
I n t e r m e d i a t e treatment w i l l f a l l i n t o two c a t e g o r i e s .
The
f i r s t w i l l i n v o l v e temporary r e s i d e n c e , attendance or
p a r t i c i p a t i o n , f o r a perioc or p e r i o d s t o t a l l i n g not more than
one month during each y e a r of s u p e r v i s i o n .
The c o u r t v/ill f i x
the a c t u a l p e r i o d , w i t h i n t h i s maximum. The s u p e r v i s o r ( i . e . ,
the l o c a l a u t h o r i t y or p r o b a t i o n o f f i c e r ) w i l l d e c i d e on the
p a r t i c u l a r p l a c e t o be a t t e n d e d or a c t i v i t y t o be undertaken,
s e l e c t i n g the most a p p r o p r i a t e of the f a c i l i t i e s a v a i l a b l e under
the l o c a l scheme mentioned i n paragraph 28,. These powers w i l l
be capable o f use in a wide v a r i e t y of ways. P o s s i b l e i n s t a n c e s
are a t t e n d a n c e f o r a number of e v e n i n g s , or week-end a f t e r n o o n s ,
or e n t i r e week-ends, at a p l a c e f o r t r a i n i n g , treatment or
recreation;
or t a k i n g p a r t f o r a s p e c i f i e d t o t a l o f hours or
days i n some o r g a n i s e d work p r o j e c t , or s o c i a l s e r v i c e , or
adventure t r a i n i n g .
There a r e many other p o s s i b i l i t i e s .
The aim
1
8
I w i l l be t o b r i n g the young p e r s o n i n t o c o n t a c t w i t h a new
1 environment, and t o secure h i s p a r t i c i p a t i o n in some c o n s t r u c t i v e
I activity,
1 27- The second c a t e g o r y w i l l i n v o l v e r e s i d e n c e at a s p e c i f i e d
I place f o r a f i x e d p e r i o d cf not more than t h r e e months, b e g i n n i n g
within the f i r s t y e a r o f s u p e r v i s i o n ,
A g a i n the a c t u a l l e n g t h of
the p e r i o d o f r e s i d e n c e w i l l be set by the c o u r t , w i t h i r the
s t a t u t o r y maximum.
I t s t i m i n g and nature w i l l be d e c i d e d by the
s u p e r v i s o r , who w i l l be r e s p o n s i b l e f o r s e l e c t i n g the most
a p p r o p r i a t e of the f a c i l i t i e s a v a i l a b l e under the l o c a l scheme.
This type of treatment w i l l be a v a i l a b l e f o r use where the b a s i c
need i s f o r h e l p and s u p e r v i s i o n in the home, but a s h o r t p e r i o d
away from home a l s o seems d e s i r a b l e .
I t w i l l , f o r example,
enable a c h i l d or young person t o be p l a c e d f o r a s h o r t time i n a
home or h o s t e l , or w i t h r e l a t i v e s who a r e w i l l i n g t o r e c e i v e him,
I while h e l p i s o f f e r e d i n remedying a d i f f i c u l t f a m i l y s i t u a t i o n .
I t w i l l a l s o be s u i t a b l e f o r use in cases where the c h i l d
himself needs some form of s h o r t - t e v m t r e a t m e n t i n a r e s i d e n t i a l
establishment or the k i n d o f r e s i d e n t i a l e x p e r i e n c e now b e i n g
; provided by a number of l o c a l e d u c a t i o n a u t h o r i t i e s ,
28o
I t w i l l be the r e s p o n s i b i l i t y o f the l o c a l a u t h o r i t i e s ,
acting through the J o i n t P l a n n i n g Committee d e s c r i b e d i n P a r t V
I of t h i s P a p e r , t o p r e p a r e schemes s e t t i n g out the range o f i n t e r ­
mediate t r e a t m e n t s which they propose t o make a v a i l a b l e , whether
d i r e c t l y or by arrangement w i t h v o l u n t a r y b o d i e s .
Representatives
of the j u v e n i l e c o u r t j u s t i c e s and o f the p o l i c e and p r o b a t i o n
s e r v i c e s i n each area w i l l be a s s o c i a t e d w i t h the p l a n n i n g
committee in p r e p a r i n g t h e s e schemes.
The f a c i l i t i e s i n c l u d e d
in each scheme w a l l have t o come w i t h i n g e n e r a l c a t e g o r i e s
authorised by the S e c r e t a r y of S t a t e , or t o be approved
e x p r e s s l y by him;
the l o c a l a u t h o r i t i e s and o t h e r s e r v i c e s w i l l
be c o n s u l t e d about the t y p e s o f f a c i l i t i e s t o be a u t h o r i s e d .
Except so f a r as f a c i l i t i e s are provided, by l o c a l a u t h o r i t i e s
s o l e l y or p r i m a r i l y f o r the purposes of a scheme, t h e e x t e n t t o
which, and the c o n d i t i o n s on which, any f a c i l i t y i s made a v a i l a b l e
for t h i s purpose w i l l be a m a t t e r f o r agreement between the J o i n t
Planning Committee and the a u t h o r i t y , body or person r e s p o n s i b l e
for t h a t f a c i l i t y .
Each scheme w i l l be n o t i f i e d t o the S e c r e t a r y
of S t a t e , and by him t o the c o u r t s i n the a r e a c o n c e r n e d .
:
29c
Once a scheme has been so n o t i f i e d , the new powers r e l a t i n g
to i n t e r m e d i a t e forms of treatment w i l l oecome a v a i l a b l e to those
c o u r t s . When adequate f a c i l i t i e s f c r a t t e n d a n c e or p a r t i c i p a t i o n
are p r o v i d e d under a scheme the e x i s t i n g powers o f t h o s e c o u r t s t o
make j u n i o r attendance c e n t r e orders w i l l l a p s e .
S i m i l a r l y , when
adequate f a c i l i t i e s f o r s h o r t term r e s i d e n c e a r e p r o v i d e d under a
scheme, e x i s t i n g powers t o commit t o a j u n i o r d e t e n t i o n c e n t r e
will lapse.
These new forms of treatment w i l l be b u i l t up
g r a d u a l l y , and the i n i t i a l scheme w i l l be amended and added t o as
this i s done.
I n the meantime, the Government w i l l c o n t i n u e t o
maintain j u n i o r attendance c e n t r e s and j u n i o r d e t e n t i o n c e n t r e s ,
and w i l l be r e a d y t o d i s c u s s w i t h l o c a l a u t h o r i t i e s ways i n which
these f a c i l i t i e s might be i n c o r p o r a t e d w i t h i n new schemes of
s u p e r v i s i o n or residence,,
I n p a r t i c u l a r , i t i s important t h a t
the v a l u a b l e work of p o l i c e o f f i c e r s in the j u n i o r attendance
centres should not be l o s t .
Residential
treatment
30. The a b o l i t i o n of the approved s c h o o l o r d e r means t h a t
children and young persons who would now be committed t o approved
schools w i l l come i n t o the c a r e of the l o c a l a u t h o r i t y i n whose
area they l i v e .
The b a s i c duty of l o c a l a u t h o r i t i e s towards
children i n t h e i r care w i l l remain that of p r o v i d i n g the c a r e ,
9
protection, guidance or t r e a t m e n t which t h e y c o n s i d e r a p p r o p r i a t e
in the i n t e r e s t s of each c h i l d .
This duty w i l l i n c l u d e
restoring the c h i l d t o h i s home as soon as p r a c t i c a b l e and
desirable, h a v i n g r e g a r d t o the need t o p r o t e c t s o c i e t y w h i l e
children and young persons whose b e h a v i o u r i s d i f f i c u l t t o c o n t r o l
are undergoing t r e a t m e n t .
The S e c r e t a r y of S t a t e w i l l have a
reserve rower t o g i v e d i r e c t i o n s t o a l o c a l a u t h o r i t y i n any case
where he i s s a t i s f i e d t h a t a p a r t i c u l a r form o f c o n t r o l i s
necessary f o r the p r o t e c t i o n of s o c i e t y .
31. L o c a l a u t h o r i t i e s w i l l be r e s p o n s i b l e f o r d e v e l o p i n g a
comprehensive system of r e s i d e n t i a l care and t r e a t m e n t f o r the
children r e c e i v e d or committed i n t o t h e i r c a r e who a r e n o t boarded
out w i t h f o s t e r p a r e n t s ,
A c o n s i d e r a b l e v a r i e t y of p r o v i s i o n
will be needed w i t h i n t h i s system, which w i l l b e d e s c r i b e d f o r
legal purposes as the p u b l i c system of community homes f o r c h i l d r e n
and young p e r s o n s .
The needs of the g r e a t m a j o r i t y o f c h i l d r e n
will be met by homes which, as now, w i l l c a r e f o r them as n e a r l y
as p o s s i b l e i n the same v/ay as a good f a m i l y , making use o f t h e
education, h e a l t h , and o t h e r s e r v i c e s which are g e n e r a l l y
available.
I t w i l l remain the aim t o secure t h a t as many as
possible of the c h i l d r e n i n r e s i d e n t i a l care use t h e s e s e r v i c e s .
This w i l l become e a s i e r as the movement towards c l o s e r c o ­
ordination between t h e s e s e r v i c e s g a t h e r s momentum. Even in the
long term, however, t h e r e w i l l remain a s u b s t a n t i a l m i n o r i t y of
children whose needs cannot be met i n t h i s way.
There w i l l thus
be a con+inuing need f o r some e s t a b l i s h m e n t s p r o v i d i n g e d u c a t i o n
and treatment on the p r e m i s e s .
I n some c a s e s t h i s w i l l be w i t h the
limited aim c f p r e p a r i n g f o r an e a r l y r e t u r n t o the use of the
normal s e r v i c e s .
I n o t h e r s t h e f i r s t p r i o r i t y w i l l be a
therapeutic approach t o s o c i a l e d u c a t i o n .
Some of these
children, p a r t i c u l a r l y those whose b e h a v i o u r i s most d i f f i c u l t ,
will a l s o need c o n t r o l i n secure c o n d i t i o n s , or v e r y s p e c i a l i s e d
forms of t r e a t m e n t .
32. These p r o p o s a l s w i l l not d i m i n i s h the need f o r r e s i d e n t i a l
facilities.
I n p a r t i c u l a r , t h e r e t e n t i o n of t h e s e v e n t e e n t h
birthday as the upper age l i m i t f o r the j u v e n i l e c o u r t s means t h a t
all the e x i s t i n g approved s c h o o l s , i n c l u d i n g the s e n i o r s c h o o l s ,
will p r o b a b l y be r e q u i r e d f o r the accommodation of c h i l d r e n and
young persons i n c a r e .
The s c h o o l s w i l l r e t a i n an imporcant
role w i t h i n the new system of community homes, i n c o n t i n u i n g t o
provide f o r the needs of both o f f e n d e r s and n o n - o f f e n a e r s .
33. Centres f o r o b s e r v a t i o n and assessment w i l l form an e s s e n t i a l
part of the system.
They w i l l p r o v i d e f a c i l i t i e s on both a
r e s i d e n t i a l and a d a y - a t t e n d a n c e b a s i s f o r c h i l d r e n remanded
or subject t o i n t e r i m o r d e r s by the c o u r t s , and w i l l a d v i s e on
the treatment o f c h i l d r e n i n c a r e , so that d e c i s i o n s can be
soundly based on the b e s t p o s s i b l e d i a g n o s i s of the c h i l d ' s
needs and c i r c u m s t a n c e s .
O b s e r v a t i o n c e n t r e s w i l l not be
distinguished i n law, however, from o t h e r community homes.
The
present l e g a l d i s t i n c t i o n s between remand homes, r e c e p t i o n c e n t r e s ,
c h i l d r e n ' s homes and approved s c h o o l s impose unnecessary
r e s t r i c t i o n s on making the b e s t use o f these r e s o u r c e s .
3d. A young person who i s now committed t o an approved s c h o o l
at the age of s i x t e e n i s l i a b l e t o be d e t a i n e d up t o h i s n i n e t e e n t h
birthday.
Committal t o the care o f a l o c a l a u t h o r i t y ends at the
eighteenth b i r t h d a y .
A p e r i o d of l i t t l e o v e r one y e a r may not be
s u f f i c i e n t f o r the t r e a t m e n t o f a young person who i s n e a r l y
seventeen when committed t o c a r e .
A c c o r d i n g l y , where a
young person has a l r e a d y reached the age of s i x t e e n , committal
to care w i l l he u n t i l the n i n e t e e n t h b i r t h d a y .
Provision w i l l
l s o he made f o r a young p e r s o n t o be r e t a i n e d i n care up t o
10
a
this a g e , even i f he came i n t o care b e f o r e r e a c h i n g the age of
sixteen, i f he has been a d m i t t e d t o a s p e c i a l e s t a b l i s h m e n t f o r
the treatment i n secure c o n d i t i o n s of v e r y d i s t u r b e d and
d i f f i c u l t young p e o p l e .
The r i g h t t o apply at any time f o r the
revocation of an o r d e r committing t o care w i l l remain.
11 V
COMMUNITY M E S ^ F O R ^ CHILDREN
AKD "YOlim "PERSOM
55, The p u b l i c system o f community homes f o r c h i l d r e n i n the care
;f l o c a l a u t h o r i t i e s w i l l be an i n t e g r a t e d system;
"community
some" w i l l oe the common l e g a l d e s c r i p t i o n f o r a w i d e range o f
jstablishments meeting the needs which are now s e r v e d by l o c a l
authority c h i l d r e n ' s homes and h o s t e l s , remand homes, r e c e p t i o n
and remand c e n t r e s , l o c a l a u t h o r i t y and v o l u n t a r y approved
schools, and some v o l u n t a r y c h i l d r e n ' s homes which r e g u l a r l y
accommodate c h i l d r e n i n c a r e .
The Government a t t a c h e s g r e a t
importance t o the f u r t h e r development o f p a r t n e r s h i p between p u b l i c
and v o l u n t a r y b o d i e s i n m e e t i n g t h e s e n e e d s , and t h e p u b l i c system
sill t h e r e f o r e i n c l u d e b o t h l o c a l a u t h o r i t y and v o l u n t a r y homes.
?he machinery f o r d e v e l o p i n g the p u b l i c system o f community homes,
and the new forms o f p a r t n e r s h i p which w i l l enable l o c a l
authorities and v o l u n t a r y b o d i e s to work t o g e t h e r i n c a t e r i n g f o r
children i n c a r e , a r e d e s c r i b e d i n t h i s P a r t and i n Appendix D ,
Mies o f l o c a l
authorities
fi, The new system w i l l have to s t r i i c e a r e a s o n a b l e b a l a n c e
ietween two r e t s o f c o n s i d e r a t i o n s .
On the one hand, t h e r e i s
a need f o r c l o s e l i n k s between community homes and the communities
iibey s e r v e . Many c h i l d r e n i n r e s i d e n t i a l care a r e s t i l l members
of f a m i l i e s , w i t h deep r o o t s i n a l o c a l environment to which they
ill one day r e t u r n .
Success i n treatment t h e r e f o r e depends, i n
part, on h e l p i n g the f a m i l y as w e l l as t h e c h i l d :
i t a l s o depends
1 the e x t e n t t o which the s t a f f o f the home understand the c h i l d ' s
family and s o c i a l environment.
These r e q u i r e m e n t s a r e d i f f i c u l t
3 meet unless homes are p r o v i d e d on a g e n u i n e l y l o c a l b a s i s , w i t h
lose l i n k s between the s t a f f o f the home and t h e f i e l d s t a f f o f he l o c a l a u t h o r i t y .
On the o t h e r hand, many o f the f a c i l i t i e s quired are t o o s p e c i a l i s e d t o be p r o v i d e d on a w h o l l y l o c a l
iasis, and some must be planned n a t i o n a l l y .
Every a u t h o r i t y w i l l
ish to make the f u l l e s t p o s s i b l e p r o v i s i o n t o meet i t s own n e e d s ,
tat should a l s o be a b l e to p a r t i c i p a t e i n the p l a n n i n g , p r o v i s i o n
nd management o f those f a c i l i t i e s which must be shared w i t h
eighbouring a u t h o r i t i e s .
1
3?. The powers and d u t i e s o f c h i l d r e n a u t h o r i t i e s w i l l a c c o r d i n g l y
te extended'.
To enable each a u t h o r i t y t o f u l f i l i t s d u t i e s
wards the c h i l d r e n i n i t s c a r e , s e t out i n paragraph 3 0 , i t s pities w i l l a l s o i n c l u d e : (a)
the p r e p a r a t i o n , i n c o - o p e r a t i o n w i t h t h e o t h e r a u t h o r i t i e s i n a j o i n t planning area d e s i g n a t e d by t h e Secretary o f S t a t e , o f (i)
a comprehensive p l a n f o r t h e development o f a f u l l
range o f r e s i d e n t i a l f a c i l i t i e s f o r c h i l d r e n and young
persons i n c a r e , and of f a c i l i t i e s f o r o b s e r v a t i o n and
assessment 1 and
( i i )
a scheme s p e c i f y i n g the f a c i l i t i e s t o be made
a v a i l a b l e f o r the i n t e r m e d i a t e forms o f t r e a t m e n t
described in Part IV;
(b) t h e p r o v i s i o n , o r a s s i s t a n c e w i t h the p r o v i s i o n , o f the
f a c i l i t i e s s p e c i f i e d i n the development p l a n and scheme o f
intermediate t r e a t m e n t
e
1 2
joint P l a n n i n g Conunlttees
:jg J o i n t P l a n n i n g Committees w i l l be e s t a b l i s h e d , c o v e r i n g a r e a s
^proved by the S e c r e t a r y o f S t a t e a f t e r c o n s u l t a t i o n w i t h the The aim w i l l be t o r e s p e c t e x i s t i n g local a u t h o r i t i e s o
arrangements f o r c o - o p e r a t i o n between a u t h o r i t i e s and, wherever possible, t o secure a s e n s i b l e r e l a t i o n s h i p between the areas of ;he new d o i n t P l a n n i n g Committees and those o f o t h e r r e l e v a n t services, p a r t i c u l a r l y p o l i c e , s p e c i a l e d u c a t i o n , h o s p i t a l s and probation.
The Committees w i l l be a p p o i n t e d by t h e p a r t i c i p a t i n g children a u t h o r i t i e s .
The a u t h o r i t i e s ' education and h e a l t h Committees w i l l a l s o be r e p r e s e n t e d , and the p r o b a t i o n and o t h e r statutory s e r v i c e s w i l l be c o n s u l t e d as n e c e s s a r y .
O f f i c i a l s of central Government Departments concerned w i t h c h i l d c a r e , -education and h e a l t h w i l l a s s i s t the Committees i n t h e i r work,
particularly by i d e n t i f y i n g needs f o r which p r o v i s i o n must be made
Ion a n a t i o n a l b a s i s ,
s
39. l'he i n i t i a l t a s k o f the J o i n t P l a n n i n g Committees w i l l be t o prepare and. submit f o r the S e c r e t a r y o f S t a t e ' s a p p r o v a l comprehensive development plans f o r a system o f community homes pin t h e i r a r e a s .
The plans w i l l be based on an a n a l y s i s of t h e
[needs o f c h i l d r e n and young persons i n c a r e , d i s t i n g u i s h i n g
between those which r e q u i r e the p r o v i s i o n o f a v a r i e t y o f
jestablishments p r o v i d e d f c r t h a t p u r p o s e , and those which can be
I let by p l a c i n g c h i l d r e n i n f o s t e r homes, normal boarding s c h o o l s ,
Hoarding s p e c i a l s c h o o l s o r independent e s t a b l i s h m e n t s .
The
I plans w i l l a l s o s p e c i f y the proposed f u t u r e f u n c t i o n s of e x i s t i n g
homes and approved s c h o o l s , b o t h l o c a l a u t h o r i t y and v o l u n t a r y ,
jiiich w i l l p r o v i d e f a c i l i t i e s w i t h i n the p u b l i c system.
There
p i l l be f u l l c o n s u l t a t i o n with t h o s e r e s p o n s i b l e f o r v o l u n t a r y
establishments, w i t h a view t o r e a c h i n g an agreed d e f i n i t i o n o f
the f u t u r e r o l e o f the home or s c h o o l .
F i n a l l y , the plan w i l l
set out p r o p o s a l s f o r f i l l i n g any gaps i n the a v a i l a b l e f a c i l i t i e s .
jShen the p l a n has been approved, i t w i l l be f o r each l o c a l
(authority, oody o f managers or v o l u n t a r y o r g a n i s a t i o n t o carry out
Jfcneir p a r t o f the p l a n ,
1
(lO. The second task o f the Committees w i l l be t o p r e p a r e schemes of i n t e r m e d i a t e t r e a t m e n t ( s e e paragraph 2 8 ) ,
I t w i l l also be I open t o the members o f any J o i n t Planning Committee, i f they so
wish, t o make use of t h e Committee f o r the d i s c u s s i o n or p l a n n i n g
of other matters o f mutual concern i n t h e c h i l d care f i e l d , such as
J training or research.,
The J o i n t P l a n n i n g Committees w i l l have a
continuing r e s p o n s i b i l i t y to r e v i e w p r o g r e s s , t o arrange f o r the
I evaluation o f e x p e r i m e n t a l d e v e l o p m e n t s , and t o keep development
Iplans and schemes o f i n t e r m e d i a t e t r e a t m e n t up t c d a t e ,
Wl. I t w i l l be open to J o i n t P l a n n i n g Committees t o propose a r o l e
for e x i s t i n g homes o r approved s c h o o l s o u t s i d e the new system o f
community homes.
For example, most e x i s t i n g approved s c h o o l s
Iwill p r o b a b l y continue to s p e c i a l i s e i n s o c i a l e d u c a t i o n , bat a
j few might become b o a r d i n g s p e c i a l s c h o o l s o r even o r d i n a r y b o a r d i n g
schools o p e r a t i n g under the Education A c t s .
I t w i l l a l s o be open
to Committees t c s p e c i f y needs which seem to r e q u i r e a n a t i o n a l
I approach.
W h i l e the Government hopes t h a t each J o i n t P l a n n i n g
s Committee w i l l be a b l e to meet, w i t h i n i t s own system, the g r e a t
; Majority o f n e e d s , i n c l u d i n g secure accommodation f o r v e r y
i disturbed c h i l d r e n and young p e r s o n s who do not r e q u i r e o r are not
I susceptible t o h o s p i t a l t r e a t m e n t , i t may be thought that some of
: the long-term p r o v i s i o n f o r such c h i l d r e n should be the s u b j e c t o f
13 jtional planning.
T h i s v / i l l be a m a t t e r f o r d i s c u s s i o n when
P l a n n i n g Committees are e s t a b l i s h e d , ,
The S e c r e t a r y of
State w i l l be g i v e n r e s e r v e powers to p r o v i d e , m a i n t a i n o r a s s i s t
joimunity homes needed f o r h i g h l y s p e c i a l i s e d p u r p o s e s .
L i n t
^
.
Liantary' e s t a b l i s h m e n t s
12, The new c a t e g o r i e s of community home a v a i l a b l e w i t h i n t h e
public system are d e s c r i b e d i n Appendix D.
The d e t a i l s w i l l be
:he s u b j e c t o f e a r l y d i s c u s s i o n s w i t h r e p r e s e n t a t i v e s o f the l o c a l
k i n o r i t i e s and o f v o l u n t a r y homes and approved s c h o o l s .
The
Isethod o f d e c i d i n g the r o l e and s t a t u s of v o l u n t a r y e s t a b l i s h m e n t s
Jjithin the p u b l i c system w i l l be as f o l l o w s .
IJ, The J o i n t P l a n n i n g Committees w i l l d i s c u s s w i t h the managers
of v o l u n t a r y approved schools the f u t u r e r o l e and s t a t u s o f each
istablishment w i t h i n t h e new system.
I t w i l l a l s o be open t o
laCommittee t o a g r e e w i t h the managers o f a v o l u n t a r v home
registered under s e c t i o n 29 o f the C h i l d r e n A c t 19h8 that t h e home
jshould p r o v i d e r e g u l a r f a c i l i t i e s w i t h i n the p u b l i c system.
When
agreement has been reached on the f u t u r e r o l e o f each e s t a b l i s h m e n t ,
and the a r e a development plnp. has been approved by the S e c r e t a r y of
State, formal s t e p s w i l l fvg %&ken t o e s t a b l i s h the new s t a t u s o f
the v o l u n t a r y home o r schdoCU
Arrangements w i l l be made t o
safeguard the i n t e r e s t s o f tfi& s t a f f , and o f the managers o f
voluntary e s t a b l i s h m e n t s , an r i n g , the p e r i o d o f t r a n s i t i o n t o t h e
i c t system.
:
1. There may he some c a s e s where the new f u n c t i o n s o f the home o r
school are a p p r o p r i a t e t o the p u b l i c e d u c a t i o n a l s y s t e m .
I n such
leases the c h o i c e s o f s t a t u s w i l l be those a v a i l a b l e under t h e
^/Education A c t s , and the agreement both o f the l o c a l e d u c a t i o n
authority and o f t h e S e c r e t a r y o f S t a t e f o r Education and S c i e n c e
all be needed b e f o r e the change i s made.
The managers or
governors w i l l , however, be asked to r e s e r v e , o v e r a p e r i o d o f at
least seven y e a r s , a s u b s t a n t i a l but d i m i n i s h i n g number o f the
/places i n the s c h o o l f o r the use o f c h i l d r e n and young persons in.
le care o f l o c a l a u t h o r i t i e s who have been a s c e r t a i n e d as i n need
of s p e c i a l e d u c a t i o n .
These t r a n s i t i o n a l arrangements w i l l be
/needed t o p r o t e c t c h i l d r e n a u t h o r i t i e s from the r i s k o f a l o s s o f
existing f a c i l i t i e s b e f o r e t h e y have had time to make o t h e r
arrangements.
15. V o l u n t a r y o r g a n i s a t i o n s which wish t o c o n t i n u e , o r t o e s t a b l i s h
hhildren's homes o p e r a t i n g o u t s i d e the p u b l i c system w i l l remain
ifree to dc s o , s u b j e c t t o the e x i s t i n g s t a t u t o r y p r o v i s i o n s as t o
-"egistration, i n s p e c t i o n and o t h e r w i s e The
homes v/ill be known
jas r e g i s t e r e d v o l u n t a r y homes.
V o l u n t a r y homes p a r t i c i p a t i n g i n
the public system w i l l no l o n g e r need to be r e g i s t e r e d .
Registered
I voluntary homes w i l l remain f r e e t o accommodate c h i l d r e n in l o c a l
authority care on terms agreed between the l o c a l a u t h o r i t y concerned
ad the managers o f the home.
Any standing arrangements f o r d o i n g
may be s p e c i f i e d i n the p l a n s o f J o i n t P l a n n i n g Committees.
s e
So
po. The i n t e n t i o n i s to enable t h e v o l u n t a r y approved schools t o
Home w i t h i n t h e p u b l i c system on a b a s i s a c c e p t a b l e to t h e i r
Managers and to the r e s p o n s i b l e l o c a l a u t h o r i t i e s ;
the managers
- voluntary homes on whom a u t h o r i t i e s r e l y f o r the accommodation
' ^ children i n t h e i r care w i l l have a s i m i l a r o p p o r t u n i t y .
If in
any instance a v o l u n t a r y approved s c h o o l cannot f i n d an a g r e e d r o l e
land status w i t h i n the new system, i t w i l l be open to the managers
I
:
;
jo surrender t h e c e r t i f i c a t e o f a p p r o v a l , and the e x i s t i n g financial arrangements f o r the repayment o f g r a n t s and loans
Ipply. 7
1
RESEARCH,
DKVl^iOPHENT
:
AND
i^VISORY
will SERVICES
\], The A d v i s o r y C o u n c i l on C h i l d Care i s b e i n g r e c o n s t i t u t e d so I as to become t h e c e n t r a l forum f o r the c o - o p e r a t i v e p l a n n i n g and discussion o f r e s e a r c h , development and t r a i n i n g i n c h i l d c a r e , f o r ensuring t h a t the r e s u l t s o f r e s e a r c h and development are
ade w i d e l y known.
The membership o f the new C o u n c i l w i l l
include members nominated by t h e l o c a l a u t h o r i t y and o t h e r
associations and by v o l u n t a r y b o d i e s , and u n i v e r s i t y and o t h e r
aembers s e l e c t e d b y the S e c r e t a r y o f S t a t e , under an independent
jdhairman appointed by him.
The C o u n c i l w i l l have a r e s e a r c h and Idevelopment Committee, which w i l l d i s c u s s r e s e a r c h and development in c h i l d care and h e l p i n c o - o r d i n a t i n g e f f o r t i n t h i s f i e l d and 'in d i s s e m i n a t i n g the r e s u l t s .
The C h i l d r e n ' s I n s p e c t o r a t e o f t h e
.jHome O f f i c e w i l l c o n t i n u e to e x e r c i s e i t s e x i s t i n g s t a t u t o r y
Junctions, but g r e a t e r emphasis w i l l be l a i d on a d v i s o r y r a t h e r
jtnan r e g u l a t i v e f u n c t i o n s ;
i t w i l l be the r e s p o n s i b i l i t y o f the
I local a u t h o r i t i e s o r managers to ensure observance of the s t a t u t o r y
rules g o v e r n i n g the conduct o f community homes
Inspectors w i l l
t take p a r t i n t h e work o f J o i n t P l a n n i n g Committees and w i l l form a
link between t h e Home O f f i c e , l o c a l a u t h o r i t i e s and v o l u n t a r y
^organisations as p a r t o f the c o - o p e r a t i v e e f f o r t t o f o s t e r t h e
spread o f new knowledge and t e c h n i q u e s i n t h e care o f c h i l d r e n ,
Development Group i n the Home O f f i c e C h i l d r e n ' s Department w i l l
I also be c l o s e l y concerned i n s t i m u l a t i n g development,,
T h i s Croup
j was e s t a b l i s h e d r e c e n t l y t o c o - o p e r a t e w i t h tliose concerned w i t h
j practical developments i x i the f i e l d and i n a s s o c i a t e d r e s e a r c h ,
ite Home O f f i c e Research U n i t w i l l a s s i s t i n the e v a l u a t i o n o f new
j developments and o f the new p r o c e d u r e s and treatments d e s c r i b e d
I earlier i n t h i s P a p e r , as p a r t o f i t s f u n c t i o n s i n the f i e l d s o f
\ child c a r e ana j u v e n i l e d e l i n q u e n c y ,
land,
u
jfhe
VII
FINANCE
1$. The f u n c t i o n s o f l o c a l a u t h o r i t i e s under these p r o p o s a l s w i l l
form p a r t o f t h e i r c h i l d care f u n c t i o n s .
They w i l l be f i n a n c e d
through r a t e support grant i n t h e same way as l o c a l a u t h o r i t y c h i l d
care f u n c t i o n s are f i n a n c e d a t p r e s e n t , the e x p e n d i t u r e b e i n g taken
into account i n d e t e r m i n i n g t h e amount of g r a n t .
Local authorities
will thus assume a share o f f i n a n c i a l r e s p o n s i b i l i t y f o r t h o s e forms
of treatment which w i l l e v e n t u a l l y r e p l a c e j u n i o r attendance
centres, j u n i o r d e t e n t i o n c e n t r e s and b o r s t a l f o r those under
seventeen.
D e t a i l e d d i s c u s s i o n s w i l l be h e l d w i t h the l o c a l
authority a s s o c i a t i o n s on the p r e c i s e f i n a n c i a l i m p l i c a t i o n s .
VIII
SUMMARY
OF
MAIN
PROPOSALS
^9. There are many i n f l u e n c e s on the b e h a v i o u r o f c h i l d r e n , and
that of the f a m i l y i s p a r t i c u l a r l y I m p o r t a n t .
Much misbehaviour
by c h i l d r e n i s p a r t o f tho p r o c e s s o f growing up, but some has more
ieep-seated c a u s e s .
A c t i o n by s o c i e t y t o d e a l w i t h c h i l d r e n i n
15 ifcub 3. e should t a k e account o f each c h i l d s f a m i l y and w i d e r
social background, and should be d e s i g n e d where p o s s i b l e to support
jjie c h i l d i n t h e f a m i l y , encouraging and h e l p i n g p a r e n t s t o f u l f i l
their r e s p o n s i b i l i t i e s and p r e s e r v i n g the c h i l d ' s l i n k s w i t h h i s
The measures a v a i l a b l e should be v a r i e d and
:tcal community
hlexible, so t h a t the a c t i o n taken i n each case can r e f l e c t the
Circumstances which gave r i s e t o i t and can be a l t e r e d as t h e
circumstances a l t e r .
The use of f o r m a l p r o c e d u r e s should b e
Reserved f o r s i t u a t i o n s where t h i s i e n e c e s s a r y i n the i n t e r e s t s
if the c h i l d or o f s o c i e t y .
Firm and c o n s i s t e n t d i s c i p l i n e i s ,
fjiov/ever, a normal and n e c e s s a r y p a r t o f a c h i l d ' s u p b r i n g i n g ,
ijiiildren may r e q u i r e c o n t r o l as w e l l as b e l p , i f they are to
overcome t h e i r problems and t o become mature c i t i z e n s ;
end s o c i e t y ay have to p r o v i d e t h i s c o n t r o l , f o r i t s own p r o t e c t i o n and f o r the sake o f the c h i l d , where the p a r e n t s are unable t o do s o . fee p r o p o s a l s i n t h i s P a p e r , which a r e summarised i n the f o l l o w i n g
^paragraphs, are i n t e n d e d to promote t h e s e aims, p r o v i d i n g a
comprehensive y e t f l e x i b l e l e g a l framework f o r t h e development o f
pork w i t h c h i l d r e n i n t r o u b l e o v e r the coming y e a r s .
1
0
juv eniiiep j;purfcs
50, J u v e n i l e c o u r t s w i l l be r e t a i n e d and t h e i r e x i s t i n g
jurisdiction and age l i m i t s w i l l be p r e s e r v e d .
The Lord C h a n c e l l o r
sill make appointments to j u v e n i l e court p a n e l s e l s e w h e r e i n the
country, as he a l r e a d y does i n I n n e r London,
The p r a c t i c e ,
procedure and a r e a s o f j u v e n i l e c o u r t s w i l l b e r e v i e w e d .
Changes^ i n Tegal^^ix^cedu^rj^s
51.
(a)
C h i l d r e n aged ten and,under f o u r t e e n
;
The p r o s e c u t i o n o f c h i l d r e n o f t h i s age w i l l c e a s e , and
a c t i o n t o d e a l w i t h o f f e n d e r s and t o h e l p t h e i r p a r e n t s w i l l
be t a k e n , where p o s s i b l e , on a v o l u n t a r y b a s i s .
If a child
commits an o f f e n c e and h i s parenos are not p r o v i d i n g adequate
c a r e , p r o t e c t i o n and g u i d a n c e , o r the o f f e n c e i n d i c a t e s t h a t
he i s beyond p a r e n t a l c o n t r o l , i t w i l l be p o s s i b l e t o t a k e
him b e f o r e a j u v e n i l e court as i n need o f c a r e , p r o t e c t i o n or
control.
(b)
Young p e r s o n s aged^jfj?ur;fceen
and:undereseventhen.
To enable young persons to be d e a l t w i t h so f a r as
p o s s i b l e on a v o l u n t a r y b a s i s without r e c o u r s e t o the c o u r t s ,
i t w i l l be p r o v i d e d t h a t p r o s e c u t i o n w i l l be p o s s i b l e o n l y i f
one or more p r e s c r i b e d c r i t e r i a are s a t i s f i e d , and o n l y on
the a u t h o r i t y of a m a g i s t r a t e .
The c a r e , p r o t e c t i o n o r
c o n t r o l p r o c e d u r e , extended as mentioned at ( a ) , w i l l a p p l y
up to the s e v e n t e e n t h b i r t h d a y .
Changes i n the powers o f the j e o u r t s
52.
(a)
P r o b a t i o n o r d e r s w i l l cease to be l e g a l l y d i s t i n c t from supervision orders.
S u p e r v i s i o n o f c h i l d r e n under f o u r t e e n w i l l be by t h e l o c a l a u t h o r i t y , and o f young persons aged f o u r t e e n and under seventeen by the l o c a l a u t h o r i t y or a probation o f f i c e r . (b)
P r o v i s i o n w i l l be made f o r new forms o f i n t e r m e d i a t e
t r e a t m e n t , f o r use i n c o n j u n c t i o n with s u p e r v i s i o n , t o be
d e v e l o p e d by l o c a l a u t h o r i t i e s .
These w i l l i n due course
r e p l a c e j u n i o r attendance c e n t r e s and j u n i o r d e t e n t i o n centres,.
16 (c)
C h i l d r e n end young persons r e q u i r i n g c o n t i n u i n g
treatment away from home w i l l he p l a c e d i n t h e care o f l o c a l
authorities.
The s e p a r a t e approved s c h o o l o r d e r w i l l c e a s e
t o e x i s t , and b o r s t a l f o r those under s e v e n t e e n w i l l i n due
course he r e p l a c e d .
ftildren
53.
i n the c a r e o f
local
authorities
(a)
L o c a l a u t h o r i t i e s w i l l be r e s p o n s i b l e f o r d e v e l o p i n g
a comprehensive system o f community homes f o r c h i l d r e n , which
w i l l be planned by j o i n t committees o f a u t h o r i t i e s , and i n
c o n s u l t a t i o n w i t h v o l u n t a r y b o d i e s wishing t o p a r t i c i p a t e
and w i t h o t h e r s t a t u t o r y s e r v i c e s concerned.
Development
p l a n s drawn up by these committees w i l l be s u b j e c t t o t h e
a p p r o v a l o f the S e c r e t a r y o f S t a t e , who w i l l have a r e s e r v e
power t o arrange f o r the p r o v i s i o n of homes t o meet any
r a t i o n a l needs which l o c a l a u t h o r i t i e s are unable t o c a t e r
for.
(b)
The s t a t u t o r y framework f o r the work o f the J o i n t
P l a n n i n g Committees w i l l p r o v i d e f o r a p a r t n e r s h i p between
p u b l i c and v o l u n t a r y e f f o r t .
In particular i t w i l l provide
a . r a n g e o f p o s s i b i l i t i e s w i t h i n which t h e e x i s t i n g v o l u n t a r y
approved s c h o o l s may be e x p e c t e d t o f i n d an a p p r o p r i a t e p l a c e
i n the system o f p u b l i c p r o v i s i o n .
I t w i l l a i s o be made
p o s s i b l e f o r v o l u n t a r y c h i l d r e n ' s homes t o become more c l o s e l y
a s s o c i a t e d w i t h t h i s system i f they and the r e l e v a n t p l a n n i n g
committee w i s h
c
j Summary o f
l e g a l procedures
and^pp^prs
j 5h0 When the changes i n l e g a l procedures d e s c r i b e d I n P a r t I I I ,
I and the changes i n the powers o f the c o u r t s d e s c r i b e d i n P a r t I V ,
I have a l l come i n t o o p e r a t i o n , t h e p o s i t i o n w i l l be as summarised
1 in t h i s c h a r t .
17 O
L
Nature o f l e g a l o r
informal action available
fier cen
Pov/ers o f the
i u v e n l l e courts
S o c i a l casework by l o c a l
authorityo
In care, protection
or control
p r o c e e d i n g s ( o n any
ground, a l l ages up
to seventeen):
I n f o r m a l a c t i o n by o t h e r
services .
m and under
fourteen
Care, p r o t e c t i o n or c o n t r o l
p r o c e e d i n g s ( w i t h amendment
d e s c r i b e d i n Appendix B ) .
Committal t o care o f
local authority.
Same as c h i l d r e n under t e n ;
and
Supervision, with or
w i t h o u t Intermediate
treatment.
Extended c a r e , p r o t e c t i o n o r
H o s p i t a l o r guardian­
control proceedings described\
s h i p o r d e r under
i n paragraphs 1 2 - 1 3 ,
Mental
Health A c t .
j
)
Caution o r other informal
) B i n d i n g over Barents
police action.
,
crteen and
under
seventeen
*
)
)
bame as ^ i ^ r e n under
fourteen;
and p r o s e c u t i o n if^ a u t h o r i s e d under t h e scheme \ d e s c r i b e d i n p a r a g r a p h s 1h-i3^ '
and Appendix A ,
An c r i m i n a l
proceedings"
same
o r d e r s as i n c a r e ,
protection or
control proceedings
and
c
Absolute or
conditional
discharg
P i n e up t o £ 5 0 .
Payment o f damages
o r compensation.
D e t e n t i o n c e n t r e or
attendance centre
( u n t i l intermediate
treatments are
available).
B . Q S t r i c t l p n s on j t h e ^ P r o s e c u t i o n of Young-'.Persons' Aged Fourteen^and^..Under["Ssyenteen -
1.
The f o l l o w i n g
provisions w i l l
be enacted by s t a t u t e : ­
( a )
Where a young person i s a l l e g e d t o have committed an
o f f e n c e , c r i m i n a l p r o c e e d i n g s may be t a k e n onl,.' on
account o f the s e r i o u s n e s s o f the o f f e n c e o r of some
other prescribed circumstance.
( b )
The s o l e procedure f o r i n s t i t u t i n g a p r o s e c u t i o n
a g a i n s t a young person ( e x c e p t i n the case o f h o m i c i d e )
w i l l be by a p p l y i n g f o r a summons or a ^ a r r a n t t o a
member o f the j u v e n i l e court p a n e l , s i t t i n g i n p r i v a t e ,
who w i l l be under a duty t o c o n s i d e r - b o t h e r any o f the
p r e s c r i b e d circumstances i s s a t i s f i e d and . i f n o t , t o
refuse the a p p l i c a t i o n .
5
( c )
2.
I t w i l l be open t o the m a g i s t r a t e t o d e c l i n e t o i s s u e
p r o c e s s i f , h a v i n g regard t o a l l tin- c i r c u m s t a n c e s , he
c o n s i d e r s that., although one of the p r e s c r i b e d
circumstanc:. s i s satisfied.,, the case can a p p r o p r i a t e l y
be d e a l t w i t h w i t h o u t r e c o u r s e t o p r o s e c u t i o n .
Statutory Regulations
(1)
will:­
P r e s c r i b e the circumstances i n vhich i t w i l l be
p o s s i b l e f o r c r i m i n a l p r o c e e d i n g s t o be t a k e n f o r an ,
a l l e g e d o f f e n c e , p o s s i b l y on the f o l l o w i n g l i n e s
( a )
the o f f e n c e
offence;
I s homicide or some o t h e r
serious
( b )
the o f f e n c e
concern;
i s of a t y p e causing much p u b l i c
( c )
the young person appears not t o be i n need o f
s u s t a i n e d support or t r e a t m e n t , but the n a t u r e o f
the o f f e n c e and h i s home circumstances suggest
t h a t a c o u r t appearance and a simple d e t e r r e n t
( e . g . a f i n e ) would be a p p r o p r i a t e ;
( d )
the known circumstances of the young person or
h i s f a m i l y i n d i c a t e t h a t a c t i o n w i t h o u t the
backing of a court o r d e r would n o t be l i k e l y
to succeed;
( e )
the o f f e n c e i s a t r a f f i c o f f e n c e c a r r y i n g a
l i k e l i h o o d of d i s q u a l i f i c a t i o n from d r i v i n g
or endorse nent of the l i c e n c e t h a t r i l l remain
e f f e c t i v e a f t e r he hoe reached h e minimum age
f o r holding a driving l i c e n c e ;
4
( f )
h e l p or t r e a t n e n t on a v o l u n t a r y b a s i s " o u l d not
be f e a s i b l e because the young person does not
r e s i d e i n England and wales or has no f i x e d
ab o d e ;
-
1
­
( g )
the o f f e n c e was committed in company w i t h some
o t h e r p e r s o n , whether o v e r or under' s e v e n t e e n ,
who i s t o be p r o s e c u t e d .
( 2 )
Require en i n t e n d i n g p r o s e c u t o r of a young person t o
inform t h e l o c a l a u t h o r i t y b e f o r e a p p l y i n g f o r a
summons o r w a r r a n t .
( 3 )
Confer on the l o c a l a u t h o r i t y a r i g h t t o be heard b y
a m a g i s t r a t e c o n s i d e r i n g an a p p l i c a t i o n f o r a summons
or warrant.
(ij.)
Require the m a g i s t r a t e t o take i n t o account whether
the l o c a l a u t h o r i t y , or some o t h e r s o c i a l agency, i s
a l r e a d y engaged o r proposes t o engage i n p r e v e n t i v e
work w i t h the young person or h i s f a m i l y
and t o
c o n s i d e r the a d v i c e of
he agency concerned.
(5)
Empoi e r the m a g i s t r a t e ( a ) t o r e q u i r e the attendance
of l o c a l authority or p o l i c e representative':, i f e i t h e r
or both a r e not p r e s e n t ;
( b )
( 6 )
t o adjourn the a p p l i c a t i o n , e i t h r f o r t h i s
pui-qpose or so t h a t f u r t h e r i n q u i r i e s can be made
by the l o c a l a u t h o r i t y or a p r o b a t i o n o f f i c e r , or
by the p o l i c e .
P r o v i d e t h a t a m a g i s t r a t e i s s u i n g a summons or warrant
i n r e s p e c t o f a young person s h a l l not be a member o f
t h e court h e a r i n g the c a s e .
3. The d e t a i l e d , a d m i n i s t r a t i o n o f t h i s scheme w i l l depend t o
some e x t e n t on l o c a l arrangements, but w i l l be b r o a d l y as
described b e l o w .
( T h i s scheme r e l a t e s only t o cases where
the ground on which a c t i o n i s being c o n s i d e r e d i s the commission
of an o f f e n c e .
I t w i l l not a f f e c t e x i s t i n g arrangements f o r
taking c a r e , p r o t e c t i o n or c o n t r o l p r o c e e d i n g s on o t h e r grounds,
or f o r h e l p t o be g i v e n t o c h i l d r e n and f a m i l i e s by c h i l d r e n ' s
departments and, o t h e r s e r v i c e s . )
( 1 )
(a)
The p o s s i b i l i t y of a c t i o n on a v o l u n t a r y b a s i s
w i l l be c o n s i d e r e d o n l y where the i n i t i a l i n v e s t i ­
g a f i o n s by the p o l i c e i n d i c a t e t h a t the o f f e n c e
i s n o t denied..
Where i t becomes known at any
s t a g e t h a t the c h i l d o r h i s p a r e n t s deny the
o f f e n c e he i s a l l e g e d t o have committed, i t w i l l
be f o r the p o l i c e t o d e c i d e in the o r d i n a r y way
v h e t h e r t o apply f o r a summons o r a r r a n t i f one
of t h e s t a t u t o r y c r i t e r i a i s s a t i s f i e d , or t o
take no a c t i o n .
, v
( b )
In ca^es h e r e the po i c e do not no'? p r o s e c u t e ,
but e i t h e r take no a c t i o n or i s u e an informal
warning, there ' i l l be no change.
,r
r
( c )
Where i t seems c l e a r t h a t , a c c o r d i n g t o the
p r e s c r i b e d c r i t e r i a , t h e r e i s bound t o be a
p r o s e c u t i o n ( e . g . , i n a case o f g r a v e c r i m e )
the p o l i c e w i l l a p p l y f o r a summons o r warrant,
f i r s t informing the c h i l d r e n ' s department of t h e
local authority;
i n cases of homicide i t w i l l
remain p o s s i b l e f o r the p o l i c e to charge the
a l l e g e d o f f e n d e r in the same way as a t p r e s e n t ,
i n f o r m i n g the c h i l d r e n ' s department.
^ h -
-
2
­
not d e a l t w i t h
i n ( - 1 ) the f i r s t step w i l l
be consults.ti n between the p o l i c e and the c h i l d r e n ' s
department.
This w i l l i n c l u d e , so f a r as they t h i n k
i t n e c e s s a r y , assembling and c o n s i d e r i n g t h e a v a i l a b l e
i n f o r m a t i o n about the c h i l d and h i s background ( e . g . ,
from h i s t e a c h e r s ) , c o n s u l t i n g any o t h e r s known t o be
i n v o l v e d a l r e a d y w i t h the c h i l d or h i s f a m i l y ( e . g . ,
the p r o b a t i o n s e r v i . c e ) , and a home v i s i t i f t h i s seems
r e q u i r e d b e f o r e the c h i l d r e n ' s department can d e c i d e
whether v o l u n t a r y a c t i o n w i t h the f a m i l y would be worth
attempt i h g ,
I
n
c
a
s
e
s
a
s
( a )
I f , a f t e r t h i s c o n s u l t a t i o n , i t i s agreed t h a t v o l u n t a r y a c t i o n without the support o f a c o u r t order should be t r i e d or c o n t i n u e d , or that a f o r m a l c a u t i o n would be a p p r o p r i a t e , or that no a c t i o n i s n e c e s s a r y , the case w i l l be d e a l t w i t h a c c o r d i n g l y and t h e r e w i l l be no a p p l i c a t i o n f o r proce s s . ( b )
I f the p o l i c e and. the c h i l d r e n ' s dep rtment a g r e e
that i t i s a case f o r p r o s e c u t i o n
or f o r c a r e ,
p r o t e c t i o n or c o n t r o l proceedings, p r o c e s s w i l l
be a p p l i e d f o r a c c o r d i n g l y .
( c )
Cases not f a l l i n g c l e a r l y under paragraphs 3(1 )
( b ) t o 3 ( 3 ) ( b ) w i l l be r e f e r r e d t o the m a g i s t r a t e
f o r a d e c i s i o n , by the p o l i c e applying f o r a
summons.
Where an a p p l i c a t i o n f o r p r o c e s s i s made, the m a g i s t r a t e
w i l l c o n s i d e r i t in accordance w i t h the p r o v i s i o n s set
out in paragraphs 1 and. 2 ( h ) and. ( 5 ) of t h i s Appendix.
He w i l l take i n t o account a l l the i n f o r m a t i o n g i v e n by
the p o l i c e , the c h i l d r e n ' s department and the p r o b a t i o n
o f f i c e r where he i s concerned w i t h the case and w i l l be
f r e e t o ask them q u e s t i o n s and t o d i s c u s s the circum­
stances and p o s s i b l e c o u r s e s of a c t i o n w i t h them b e f o r e '
taki ng hi. s deci s i o n .
I f v o l u n t a r y a c t i o n i s t r i e d but the young person or h i s p a r e n t s do n-t in the event p r o v e t o be c o ­
o p e r a t i v e , no f u r t h e r a c t i o n w i l l be taken u n l e s s f r e s h grounds f o r c o u r t p r o c e e d i n g s a r i s e .
I f the young p e r s o n o f f e n d s a g a i n paragraph 2(1 ) ( d ) w i l l then a p n i y , and i t w i l l be p o s s i b l e t o a p o l y f o r a summons or warrant i f p r o s e c u t i o n seems the appro ­
p r i a t e form of court p r o c e e d i n g s . - 3 -
CO^IFI
INITIAL APPENDIX B
Minor and c o n s e q u e n t i a l
changes
iincillary procedure
1,
Power w i l l s t i l l be r e q u i r e d f o r the p o l i c e t o take immediate
preventive a c t i o n where a c h i l d -under f o u r t e e n i s found committing
an offence,,
I n r e l a t i o n t o an o f f e n d e r aged, ten and under
fourteen, they w i l l "be g i v e n powers t o take him t o a p l a c e of s a f e t y
in a l l circumstances i n which t h e y would have power t o a r r e s t w i t h o u t
warrant an o f f e n d e r of f o u r t e e n or o v e r .
2,
The e x i s t i n g power of the p o l i c e t o take to a p l a c e of s a f e t y ,
without r e f e r e n c e t o a m a g i s t r a t e , a c h i l d or young p e r s o n thought t o
be in need of c a r e , p r o t e c t i o n or c o n t r o l w i l l he r e f o r m u l a t e d .
It
-/ill be made c l e a r t h a t t h i s power may p r o p e r l y be e x e r c i s e d i n
situations where the p r o t e c t i o n o f the c h i l d or young person c l e a r l y
requires h i s immediate removal from the p l a c e where he i s found,
although the p o l i c e are n o t i n a p o s i t i o n t o e s t a b l i s h s t r a i g h t a w a y
whether i t w i l l be n e c e s s a r y t o b r i n g him b e f o r e a c o u r t .
3.
where a young p e r s o n aged f o u r t e e n and under seventeen i s
arrested f o r an o f f e n c e but not r e l e a s e d , on b a i l , the case w i l l be
referred t o a m a g i s t r a t e w i t h i n 72 h o u r s .
The m a g i s t r a t e w i l l ' h a v e
power t o remand on b a i l , or t o t h e c a r e of the l o c a l a u t h o r i t y ,
pending a d e c i s i o n whether c o u r t p r o c e e d i n g s should be taken.
k.
Adjustments w i l l be made in the powers of the c o u r t s t o remand
children and young p e r s o n s i n c u s t o d y , and t o make i n t e r i m o r d e r s .
The e x i s t i n g law s p e c i f i e s i n d e t a i l the p r e c i s e circumstances, i n
which children, and young persons of p a r t i c u l a r ages may be committed
to p a r t i c u l a r t y p e s of i n s t i t u t i o n .
These p r o v i s i o n s w i l l be
replaced by a p r e v i s i o n t h a t a l l remands ( o t h e r w i s e than on b a i l ) of
young p e r s o n s aged f o u r t e e n and under s e v e n t e e n s h a l l be t o t h e c a r e
of the l o c a l a u t h o r i t y , and a l l i n t e r i m o r d e r s f o r c h i l d r e n under
seventeen s h a l l commit to the temporary care of the l o c a l a u t h o r i t y .
The developments o u t l i n e d i n P a r t V w i l l , i n t i m e , make i t p o s s i b l e t o
accommodate a l l t h e s e c h i l d r e n and young p e r s o n s ( a p a r t from those
accommodated in h o s p i t a l s ) in e s t a b l i s h m e n t s p r o v i d e d or managed by
local a u t h o r i t i e s .
I n the meantime, the Government w i l l continue t o
provide remand, c e n t r e s or o t h e r e s t a b l i s h m e n t s f o r those young
persons aged f o u r t e e n and -under s e v e n t e e n whose b e h a v i o u r i s such
that they cannot be c o n t a i n e d s a t i s f a c t o r i l y i n l o c a l a u t h o r i t y
establ i shrnent s.
Amended d e f i n I t i o n
-
o f " i n need of
c a r e , p r o t e c t i o n or
control"
5.
As e x p l a i n e d i n paragraph 1h of t h i s p a p e r , one of the t e s t s
in s e c t i o n 2 of the C h i l d r e n and Young Persons A c t 1963 i s t h a t the
child i s n o t r e c e i v i n g such c a r e , p r o t e c t i o n and guidance as a good
parent may r e a s o n a b l y be expected, t o g i v e .
T h i s t e s t w i l l be
c l a r i f i e d so as t o make i t c l e a r t h a t the c o u r t may p r o p e r l y c o n s i d e r
not only the c a r e , p r o t e c t i o n and guidance g i v e n d i r e c t by the
child's p a r e n t s , but a l s o whether the p a r e n t s are s e c u r i n g f o r him
any c a r e , p r o t e c t i o n or guidance which they a r e n o t themselves a b l e
to give but which a good p a r e n t might r e a s o n a b l y be e x p e c t e d t o
secure f o r h i s c h i l d .
T h i s amendment w i l l a p p l y t o a l l c h i l d r e n
up to the age of s e v e n t e e n .
APPENDIX C
I n t e r m e d i a t e forms of
Treatment
1,
The form of the p r o p o s a l s d e s c r i b e d in p a r a g r a p h s 25-29 and
this Appendix r e f l e c t s s e v e r a l important g e n e r a l c o n s i d e r a t i o n s which
were d i s c u s s e d i n the Report " N o n - R e s i d e n t i a l Treatment of O f f e n d e r s
Under Twenty-One" made i n 19b2 by the A d v i s o r y C o u n c i l on the
Treatment of O f f e n d e r s ,
One such c o n s i d e r a t i o n i s t h a t , where
p o s s i b l e , a c h i l d or young p e r s o n under s u p e r v i s i o n should be t r e a t e d
as a member of h i s l o c a l community and i n a s s o c i a t i o n w i t h o t h e r s
of h i s own a g e , and treatment of t h i s nature should n o t be
r e s t r i c t e d to groups of d e l i n q u e n t s a l o n e .
I t i s important t h e r e f o r e
to make the b e s t c o - o p e r a t i v e use of a l l a v a i l a b l e l o c a l r e s o u r c e s
and s e r v i c e s , both s t a t u t o r y and v o l u n t a r y , i n p r o v i d i n g s u i t a b l e
f a c i l i t i e s f o r t h i s purpose.
These w i l l v a r y from one area to
another, and the b a s i c r e s p o n s i b i l i t y f o r t h e i r p r o v i s i o n should be
l o c a l r a t h e r than c e n t r a l .
A second c o n s i d e r a t i o n i s that any form
of i n t e r m e d i a t e t r e a t m e n t i s l i k e l y t o be l e s s b e n e f i c i a l i f forced,
upon an u n w i l l i n g r e c i p i e n t .
V o l u n t a r y b o d i e s may p r e f e r n o t t o
offer f a c i l i t i e s t o those who make use of them o n l y under compulsion
and who might d i s t u r b other u s e r s .
But, w h i l e w i l l i n g acceptance
of a c h i l d or young person of an i n t e r m e d i a t e form of treatment w i l l
always be d e s i r a b l e , t h i s may n o t always m a n i f e s t i t s e l f immediately.
Much of the p o t e n t i a l b e n e f i t of the new scheme would be l o s t i f i t s
use were c o n f i n e d t o c a s e s where i t was f r e e l y a c c e p t e d r i g h t from
the s t a r t .
T h i r d l y , the need f o r c o n t i n u i n g d i a g n o s i s and
f l e x i b i l i t y of r e s p o n s e , d e s c r i b e d e a r l i e r i n . t h i s p a p e r , a p p l i e s i n
a l l s i t u a t i o n s where a c h i l d or young person i s r e c e i v i n g c o n t i n u i n g
treatment.
T h i s means t...at t h e r e must be some scope f o r the
supervisor t o d e c i d e , w i t h i n l i m i t s f i x e d by the law or by the
court, the p r e c i s e n a t u r e and t i m i n g of i n t e r m e d i a t e t r e a t m e n t .
2.
A. c o u r t which, i n a d d i t i o n t o p l a c i n g a c h i l d or young p e r s o n
under s u p e r v i s i o n , makes use of the new powers d e s c r i b e d i n
paragraphs 25-29 w i l l normally have r e c e i v e d r e p o r t s on him and
his background- which i n d i c a t e t h a t one of the a v a i l a b l e forms o f
intermediate t r e a t m e n t i s l i k e l y t o be b e n e f i c i a l .
He may a l r e a d y
have expressed h i s w i l l i n g n e s s t o c o - o p e r a t e , and t h e r e may be
l i t t l e d i f f i c u l t y i n s e l e c t i n g the most a p p r o p r i a t e form of t r e a t ­
ment.
In other c a s e s he may be u n w i l l i n g or u n c e r t a i n in g r e a t e r
or l e s s d e g r e e , or the s e l e c t i o n of the a p p r o p r i a t e treatment may
require a more e x t e n s i v e i n v e s t i g a t i o n of the circumstances them
had. been p o s s i b l e b e f o r e the c o u r t ' s d e c i s i o n .
This closer
f a m i l i a r i t y w i t h the c h i l d or young p e r s o n and h i s background may
even i n d i c a t e on o c c a s i o n that none of the a v a i l a b l e forms of
intermediate treatment would be a p p r o p r i a t e .
In such a case the
supervisor would be f r e e to continue the s u p e r v i s i o n alone w i t h o u t
additional treatment.
Unless t h i s i s s o , the s u p e r v i s o r w i l l , as
part of h i s g e n e r a l duty t o h e l p the c h i l d or young person and h i s
family, t r y to s e c u r e t h e i r acceptance of the treatment which he
selects.
There i s l i k e l y t o remain a m i n o r i t y of cases where the
supervisor i s unable t o do s o .
The chances of a s u c c e s s f u l outcome
f o l l o w i n g the use of compulsion may then be s m a l l .
Equally there
w i l l be cases where the c h i l d or young person and h i s p a r e n t s
co-operate f o r a time and then cease t o do s o .
I n such s i t u a t i o n s
i t w i l l be f o r the s u p e r v i s o r t o d e c i d e , a c c o r d i n g t o h i s assessment
1. of the s i t u a t i o n a t the time and of the l i k e l y outcome of the
courses of a c t i o n open t o him, whether t o make use of the power
of compulsion a v a i l a b l e t o him under t h e order of the c o u r t ,
w i t h the s a n c t i o n of b r i n g i n g the c h i l d or young p e r s o n a g a i n
b e f o r e the c o u r t i f he r e f u s e s t o comply.
2. APPENDIX D
The
public
system
of
c o m m u n i t y homes f o r
children
a n d y o u n g pe r s o n s
-I.
There
will
be
three
local
authority
of
community
homes
voluntary
homes
The s o l e p u r p o s e o f t h e s e l e g a l d e s c r i p t i o n s
the v a r i o u s c a t e g o r i e s o f h o m e s , w h i c h w i l l
statutory provisions.
The a c t u a l t i t l e o f
w i l l be f o r the l o c a l a u t h o r i t y er managers
Local
authority
homer­
homes
assisted voluntary
Controlled
categories
w i l l b e to d i s t i n g u i s h
b e s u b j e c t to
different
e a c h i n d i v i d u a l home
to decide.
homes
2,
Homes p r o v i d e d a n d m a i n t a i n e d b y l o c a l
authorities,
including e x i s t i n g l o c a l a u t h o r i t y approved s c h o o l s , w i l l
known a s l o c a l a u t h o r i t y h o m e s .
I t w i l l be f o r
local
a u t h o r i t i e s t o make a r r a n g e m e n t s f o r t h e i r m a n a g e m e n t ,
be
3.
I t w i l l a l s o b e made p o s s i b l e f o r a v o l u n t a r y a p p r o v e d s c h o o l
or a v o l u n t a r y c h i l d r e n ' s home r e g i s t e r e d u n d e r s e c t i o n 29
of t h e C h i l d r e n ^ c t 1 9 4 8 ,
to become a l o c a l a u t h o r i t y h o m e
It w i l l then be t r a n s f e r r e d , as a g o i n g concern, to the l o c a l
a u t h o r i t y s p e c i f i e d f o r the p u r p o s e i n an a r e a d e v e l o p m e n t p l a n .
Voluntary
homes
k*
T n e s e w i l l b e c o m m u n i t y homes p r o v i d e d , m a i n t a i n e d a n d
managed b y a p a r t n e r s h i p b e t w e e n p u b l i c and v o l u n t a r y
effort.
T h e i r f u n c t i o n s and s t a t u s w i l l b e t h o s e s p e c i f i e d i n a n
approved a r e a development p l a n .
I n t h e c a s e of w h a t a r e new
v o l u n t a r y approved s c h o o l s , i t w i l l be f o r the j o i n t p l a n n i n g
committee f o r the a r e a i n which the s c h o o l i s s i t u a t e d to
i n i t i a t e d i s c u s s i o n s w i t h the s c h o o l a u t h o r i t i e s a b o u t i t s
f u t u r e f u n c t i o n s and s t a t u s .
I n v i e w o f the u n e v e n g e o g r a p h i c a l
d i s t r i b u t i o n of approved s c h o o l s , however, a school might
e v e n t u a l l y b e i n c l u d e d i n the development p l a n o f a n e i g h b o u r i n g
area.
I n t h e c a s e o f v o l u n t a r y c h i l d r e n ' s homes i t w i l l b e
ypen t o t h e m a n a g e r s t o make p r o p o s a l s t o a j o i n t p l a n n i n g
committee, o r f o r the committee to approach the m a n a g e r s ,
if
t h e y w i s h t h e home t o b e c o n s i d e r e d f o r i n c l u s i o n w i t h i n t h e
public system.
N e i t h e r w i l l b e u n d e r any o b l i g a t i o n t o make
or a c c e p t s u c h p r o p o s a l s .
The r o l e w h i c h e a c h
existing
voluntary establishment p l a y s under a development p l a n w i l l
depend u p o n t h e j o i n t p l a n n i n g c o m m i t t e e ' s a g r e e m e n t t o t h i s
r o l e , and t h e S e c r e t a r y o f S t a t e ' s a p p r o v a l o f the plan,,
9
5,
E v e r y a s s i s t e d o r c o n t r o l l e d v o l u n t a r y home w i l l b e
conducted i n a c c o r d a n c e w i t h i t s t r u s t . , s u p p l e m e n t e d b y
r u l e s o f m a n a g e m e n t t o b e made b y t h e S e c r e t a r y o f S t a t e , ,
He w i l l a l s o make a n i n s t r u m e n t o f m a n a g e m e n t
constituting
for
the p u r p o s e s o f t h e p u b l i c
the h o m e ' s m a n a g i n g b o d y
system o f c o m m u n i t y h o m e s , a f t e r c o n s u l t a t i o n w i t h t h e t r u s t e e s
tr o t h e r r e p r e s e n t a t i v e s o f t h e o r i g i n a l f o u n d a t i o n c r
woluntary b o d y c o n c e r n e d and with t h e l o c a l a u t h o r i t y e r
a u t h o r i t i e s who a r e t o b e i t s m a j o r u s e r s .
The p r e m i s e s o r
otner a s s e t s w i l l b e v e s t e d i n t r u s t e e s o r o t h e r
t o whom c o n t r o l
r e p r e s e n t a t i v e s o f the o r i g i n a l f o u n d a t i o n
and u s e w i l l r e v e r t i f a t a n y t i m e i t c e a s e s t o f o r m p a r t o f
the p u b l i c s y s t e m .
I f the property i s t h e n sold, or i s
used f o r a n y p u r p o s e o t h e r t h a n one a p p r o v e d b y t h e S e c r e t a r y
of
S t a t e , t h e t r u s t e e s w i l l b e r e q u i r e d t o pay the E x c h e q u e r
a sum e q u i v a l e n t t o a n y v a l u e t h e n a t t a c h i n g t o t h e p r o p e r t y
as a r e s u l t o f t h e e x p e n d i t u r e of p u b l i c
funds.
y
9
R e s p o n s i b i l i t y f a r a r r a n g i n g f o r the a s s e s s m e n t of the
5
needs o f c h i l d r e n a n d y o u n g p e r s o n s , a n d f o r
deciding
a l l o c a t i o n s t o p a r t i c u l a r h o m e s , t r a n s f e r s t o o t h e r homes o r
forms o f t r e a t m e n t and d i s c h a r g e s f r o m r e s i d e n t i a l c a r e w i l l
rest w i t h the l o c a l a u t h o r i t y h a v i n g the c h i l d i n i t s c a r e
Where t h e home o f f e r s a v a r i e t y o f t r e a t m e n t s i t w i l l
also
be t h e r e s p o n s i b i l i t y o f t h e a u t h o r i t y h a v i n g t h e c h i l d I n i t s
care t o d e c i d e , a f t e r c o n s i d e r i n g the a d v i c e o f t h e m a n a g e r s ,
the g e n e r a l c h a r a c t e r o f t h e c h i l d ' s c a r e , c o n t r o l o r t r e a t m e n t , ,
Other d e c i s i o n s a b o u t t h e t r e a t m e n t o f a c h i l d w h i l e
residing
i n a v o l u n t a r y home w i l l b e t a k e n b y t h e m a n a g e r s o r
directing
s t a f f , w i t h i n t h e f r a m e w o r k o f the g e n e r a l s t a t u t o r y
rules
and t h e r u l e s if
m a n a g e m e n t f o r e a c h home,.
0
0
f
Assi^t^ed^ s t a j b u s
7.
The p r o v i s i o n , e n l a r g e m e n t and m a i n t e n a n c e o f a n a s s i s t e d
v o l u n t a r y home w i l l b e t h e r e s p o n s i b i l i t y o f t h e m a n a g e r s , who
will charge f e e s f o r the use of f a c i l i t i e s they p r o v i d e
for
c h i l d r e n i n the c a r e of l o c a l a u t h o r i t i e s .
I t w i l l be
e l i g i b l e f o r E x c h e q u e r g r a n t a t the r a t e o f 100$ o f the
approved c o s t o f any b u i l d i n g w o r k , c r o t h e r p r o v i s i o n on
c a p i t a l a c c o u n t , needed t o f i t i t f o r the p u r p o s e d e f i n e d
for
it in the development p l a n .
The r a t e a t w h i c h b u i l d i n g w o r k
or o t h e r c a p i t a l e x p e n d i t u r e c a n b e a p p r o v e d w i l l d e p e n d on
the c o u n t r y ' s e c o n o m i c c i r c u m s t a n c e s , .
The i n s t r u m e n t o f m a n a g e m e n t w i l l p r o v i d e f o r t w o - t h i r d s o f
8
the m a n a g e r s t o b e a p p o i n t e d b y t h e t r u s t e e s o r o t h e r
representative
5 f the o r i g i n a l f o u n d a t i o n .
The p a r t i c u l a r r e s p o n s i b i l i t y
ef
t h e s e f o u n d a t i o n m a n a g e r s w i l l b e t o e n s u r e t h a t t h e home i s
conducted i n a c c o r d a n c e w i t h i t s t r u s t d e e d o r s i m i l a r document.
The r e m a i n i n g o n e - t h i r d of
the managers ( t h e
representative
managers) w i l l n o r m a l l y b e a p p o i n t e d b y t h e l o c a l a u t h o r i t y o r
authorities which are i t s major u s e r s .
I n t h e c a s e o f homes
s e r v i n g n a t i o n a l n e e d s , r e p r e s e n t a t i v e m a n a g e r s may b e a p p o i n t e d
ty t h e S e c r e t a r y o f
State.
0
9,
R u l e s of management w i l l p r o v i d e t h a t the m a n a g e r s must
a l l t i m e s make a v a i l a b l e -j0% o f t h e p l a c e s f o r c h i l d r e n o r
young p e r s o n s i n t h e c a r e o f l o c a l a u t h o r i t i e s , and m u s t
a c c e p t a n y c h i l d who i s r e c o m m e n d e d f o r t h a t home b y the.
o b s e r v a t i o n c e n t r e o r o t h e r agency l o c a l l y r e s p o n s i b l e
for
o b s e r v a t i o n and a s s e s s m e n t , ,
T h e y may a l s o b e r e q u i r e d t o
make a v a i l a b l e a f u r t h e r 25% o f p l a c e s , o n t h e same
conditions, a f t e r r e a s o n a b l e n o t i c e has been given b y the
l o c a l a u t h o r i t y or a u t h o r i t i e s r e p r e s e n t e d en t h e managing
body.
I t w i l l b e o p e n t o them t o a c c e p t a s many l o c a l
B e y o n d t h e 50%
of
authority placements as they w i s b
r e s e r v e d p l a c e s , o r t h e 75% i f t h e o p t i o n t o I n c r e a s e
is
e x e r c i s e d , the m a n a g e r s ' c o n s e n t t o t h e a c c e p t a n c e o f any
particular child w i l l be required,
at
D
10,
Jnen c o n s i d e r i n g p r o p o s a l s i n d e v e l o p m e n t p l a n s , t h e
Secretary of State w i l l normally b e prepared to accord
assisted
s t a t u s o n l y t o homes w h i c h h a v e t h e s u p p e r t o f a n o r g a n i s a t i o n
l a r g e r t h a n t h e i r cwn m a n a g i n g b o d y ( e , g , a r e l i g i o u s
community o r c h a r i t a b l e
foundation),
Cpnjroll-eq
status
11,
The a r r a n g e m e n t s w i l l b e g e n e r a l l y s i m i l a r t o t h o s e
d e s c r i b e d i n p a r a g r a p h s 7 t o 9* b u t w i t h t h e f o l l o w i n g
three
specific differences,
F i r s t , f i n a n c i a l r e s p o n s i b i l i t y on
beth c a p i t a l a n d c u r r e n t a c c o u n t w i l l b e w h e l l y a s s u m e d b y t h e
lffcal a u t n o r i t i e s d e f i n e d f o r t h i s p u r p o s e i n t h e
relevant
area d e v e l o p m e n t p l a n .
S e c o n d l y , the i n s t r u m e n t of management
w i l l p r o v i d e f o r t?/o-th.irds o f the m a n a g e r s t o b e
representative
managers, and c n e - t h i r d f o u n d a t i o n m a n a g e r s .
Thirdly,
the
R u l e s o f M a n a g e m e n t w i l l r e q u i r e 90% o f t h e p l a c e s t o b e
a v a i l a b l e f o r c h i l d r e n i n the care of l c c a l a u t h o r i t i e s ,
should
the a u t h o r i t i e s w i s h t o t a k e them u p .
^nei^al
12
- a l l c o m m u n i t y homes w i t h i n t h e p u b l i c s y s t e m w i l l b e
s u b j e c t t o i n s p e c t i o n b y members o f t h e Home O f f i c e
Children's
Inspectorate.
Minimum s t a n d a r d s o f a c c o m m o d a t i o n , a n d
general p r i n c i p l e s f o r t h e i r conduct, w i l l be p r e s c r i b e d by
statutory r u l e s .
The S e c r e t a r y o f S t a t e w i l l h a v e p o w e r t o
determine any d i s p u t e b e t w e e n a l o c a l a u t h o r i t y and t h e
managers o f a n a s s i s t e d e r c o n t r o l l e d v o l u n t a r y h o m e ,
including
disputes about the f e e s c h a r g e d to l o c a l
authcrities
8
0