DOCUMENT IS THE PROPERTY OF HEP, BBJTANNIC MAJESTY'3...

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DOCUMENT IS THE P R O P E R T Y OF HEP, BBJTANNIC M A J E S T Y ' 3 G O V E R N M E N T )

C(68) 68

5th A p r i l , I960

CAB INET

REFORMS OF THE LAW AND P R A C T I C E ON CHILDREN AND YOUNG PERSONS; D R A F T WHITE P A P E R

Memoranduxti by the Secretary of State for the Home Department

The Plorne A f fa i r s Committee at their meeting today approved my proposals for the r e f o r m of the law and practice relating to children and young persona. These proposals p rese rve the essential pr inciples of the White Paper "The Child, the F a m i l y and the Young Of fender" (Cmnd. 2742) published in August, 1965, and at the same time meet the most important of the cr i t i c isms which it evoked. The main purpose wi l l be to enable juvenile offenders to be dealt with outside the courts so far as poss ib le , and to integrate the approved schools within a comprehensive system of residential establishments f o r children in the care of local authorit ies.

2. Although consideration of next Sessionhu leg is la t ive p rog ramme has not yet been completed, I v e r y much hope that the Children Bi l l wi l l find a place in the main p rog ramme . It would be regarded as making a significant advance in the Gove rnmen t s programme of social leg is lat ion. I should l ike therefore to publish as soon as possible a White Paper setting out my proposals , in order to end the present uncertainty as to the Gove rnmen t s intentions, and as a f i r m basis for consultation on the detai ls with interested organisations before the Bi l l is drafted. A draft of the White Pape r is annexed; my proposals are summarised in paragraphs 49-54.

3. I seek the agreement of my col leagues to the ear l y publication of the White Pape r 0

L, J, C.

Home Office,

5th Ap 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 publ ished a dhite Paper, the Chi ld , the Family arid the Young O f f ender " , in order to i n v i t e jiscussion of poss i b l e measures to support the f am i l y , f o r e s t a l l aid reduce del inquency, and r e v i s e the law and. p r a c t i c e r e l a t i n g to young o f fenders i n England and Wales. The o b j e c t i v e s and broad strategy of these proposals were w ide l y welcomed. There was, however less agreement about machinery,- and. e s p e c i a l l y about the proposal to establish f ami l y c ounc i l s . '

I This Paper, which owes much t o those who contr ibuted t o the aiscassion of the e a r l i e r p roposa l s , se ts out the reforms which the Sovernment now proposes t o introduce i n the law f o r England and .7ales delating to ch i ld ren and young persons.,

), The paper does not propose changes a f f e c t i n g these who commit loffences a f t e r reaching the age o f 1 7 ; or in the system of courts for deal ing w i th o f fenders both over and under 1 7 a These are jitters which w i l l requi re fur ther cons ide ra t i on in the l i g h t o f the deport of the Committee on the Age of Ma jor i t y and other enqu i r i es bhich are in p rog r ess .

It, The Government attaches great importance t o the fur ther deve lopsent of the s e r v i c e s concerned wi th the prevent i on and treatment o f juvenile del inquency and w i th other 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 the continued growth of c o

; 3 p e r a t i c n between these s e r v i c e s . The reforms out l ined in t h i s Ifeper are complementary t o the co -opera t i v e development of these services, and nothing in the Paper pre nudges the outcome of the ]overnment's cons idera t ion of the Report of the Departmental jtamittee on l o c a l author i t y personal s o c i a l s e r v i c e s . The

1"lovernmeut s aim has been t o prov ide a s e t t i n g f o r developments which Iran be g iven e f f e c t i n i t i a l l y by the s e r v i c es as a t present organ ised , ;afl in die course by the s e r v i c e s as they may be organised in the pture.

5i Part I I of t h i s Paper discusses some general cons iderat ions which jaderlie the Government * s s p e c i f i c proposals f o r addi t ions t o , or teges in , the present law. Parts I I I - V descr ibe these proposals

jhhroad terms and Appendices A t o D s e t these out in more d e t a i l , fad w i l l form the bas is f o r e a r l y consul ta t ions w i th r epresen ta t i v es ftf those who w i l l be respons ib le f o r operat ing the new system,

I I . CSI JidRAL

I ?! Juvenile del inquency has no s ing l e cause, mani fes tat ion or cure . Iits origins are many, and. the range o f behaviour which i t covers i s Really w ide . At some po in t s i t merges almost impercept ib ly w i th tehaviour which does not contravene the law. A child.v s behaviour ^influenced by g ene t i c , emotional 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 his f ami l y , s choo l , neighbourhood and wider s o c i a l ^ting. I t i s probably a minor i ty of ch i ld ren who grow up

t/ithout eve r misbehaving in ways which, may be contrary to the law. frequently such behaviour i s no more than an inc ident in the pa t t e rn of a c h i l d ' s normal development c But sometimes i t i s a response to unsa t i s fac to ry f am i l y or s o c i a l c ircumstances, a r e s u l t of boredom in and out o f s choo l 9 an i nd i ca t i on of maladjustment or immaturity, or a symptom of a d e v i a n t , damaged or abnormal p e r s o n a l i t y . Ear ly recognition and f u l l assessment are p a r t i c u l a r l y important in these sore ser ious cases . V a r i e t y and f l e x i b i l i t y i n the measures tha t can be taken are equa l l y important, i f s o c i e t y i s t o dea l e f f e c t i v e l y and appropr ia t e l y w i th these manifold aspects of de l inquency. These measures include superv is ion and support of the c h i l d in the familys the fur ther development of the s e r v i c e s working In the community: and a v a r i e t y of f a c i l i t i e s f o r short- term and long-term care, treatment ana c o n t r o l , inc luding some which are h igh ly special ised,

7, The s o c i a l consequences o f juven i l e del inquency range from minor nuisance to cons iderable damage and su f f e r ing f o r the community. -An important ob ject of the cr iminal law i s t o p ro t ec t s o c i e t y against such consequences: but the community a l s o recognises the importance of caring f o r those who are too young t o p r o t e c t themselves , Over recent years these two qui te 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 to young people 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 inc r eas ing l y c l e a r that s o c i a l con t ro l o f harmful behaviour by the young, and soc i a l measures t o help and p ro t e c t the young, are not d i s t i n c t and separate processes . The aims of p r o tec t ing s o c i e t y from juven i l e del inquency, and of he lp ing ch i l d r en in trouble t o grow up in to mature and law-ab id ing persons , are eomplementary and not c on t rad i c t o r y ,

8. The cr imina l law, i n i t s app l i c a t i on t o j u v en i l e o f f ende r s , has for many years recognised, the we l f a r e of the ind i v idua 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 spec i a l forms of treatment. There has been f o r s i x t y years a separate system of juvenile cour t s , w i th l e s s formal procedures than those o f the adult courtsa These courts are s t a f f ed by s p e c i a l l y s e l e c t e d magis t rates who have g iven much devoted a t t e n t i o n t o the problems of young peoplec Voluntary organisat ions have played a l a r g e par t i n p rov id ing r es iden t tial and other f a c i l i t i e s f o r children.. The pre oat ion s e r v i c e has played a p ioneer ing r o l e , w i th the young as w i th a d u l t s , i n deve lop ing the concepts of d iagnos is and treatment , bo th in i t s s t a tu to r y function and in g i v i n g informal help and adv ice* The approved schools have done much t o develop the concept of s o c i a l educat ion based on an understanding o f ind i v idua l needs and c ircumstances. 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 In some areas i s an example of the d i s t i n c t i v e cont r ibut i on which the p o l i c e are siahing in the j u v en i l e f i e l d , as par t of t h e i r primary duty of crime prevention, The ch i l d r en 1 s departments of l o c a l a u t h o r i t i e s have "fide great s t r i d e s i n the twenty years of t h e i r e x i s t e n c e ; t oge ther with the educat ional and hea l th s e r v i c e s they are now c l o s e l y involved in p r e ven t i v e work and in p r o v i d ing f a c i l i t i e s f o r t reatment .

9 . The l e g i s l a t i v e proposals descr ibed in t h i s Paper p rese rve f o r each of the s e r v i c e s concerned an important r o l e in co -opera t i on *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 ab l i sh a new l e g a l bas i s f o r steady development over a p e r i od o f t ime . The changes w i l l be introduced gradually over a per iod o f y ea r s . S u f f i c i e n t t ra ined s t a f f and other resources are not a v a i l a b l e to permit a l l the changes t o be introduced at once, or a t any one t ime . I t i s important that the services concerned should not be asked t o carry out new tasks be fo re

they have the resources t o do s o . The prepara t ion and subsequent implementation of area development p lans and schemes o f intermediate treatment (descr ibed i n Par t V) w i l l i n any event take t i m e e

provision w i l l accord ing ly be made f o i 1 d i f f e r e n t days t o "be appointed f o r the commencement of d i f f e r e n t par t s of the new system; these w i l l not n e c e s sa r i l y be the same in a l l par ts of the country. The f i x i n g o f appointed days w i l l he dec ided in consu l ta t i on wi th the l o ca l a u t h o r i t i e s and other s e r v i c e s , i n the l i g h t o f the resources a v a i l a b l e . In par t i cu lar . , i t i s l i k e l y that the new legal procedures descr ibed In Part I I I w i l l he brought i n t o operat ion in severa l s t a g es , p o s s i b l y s t a r t i n g w i t h ch i ld ren aged t e n and eleven on l y . Meanwhile, the new system of r e s i d e n t i a l care "will enable e x i s t i n g resources t o be used more p roduco i ve i y 0

1 1 1 o CHANGES I j ^LEGA^ jgROg l jDUI^S

11. The response to "The Ch i l d , the Family and the Young Offender" indicated wide support f o r the aim t h a t , so f a r as p o s s i b l e , juven i l e offenders should he dea l t w i th outs ide the courts wi th the agreement of t h e i r pa r en t s . There were many comments, however, tha t t h i s could most e f f e c t i v e l y be done on an informal bas is "by s o c i a l workers rather than through f ami l y c ounc i l s ; and that the bas ic choice over the procedure to be adopted in each i nd i v i dua l case should there fore lie between, on the one hand, court proceedings and, on the other , the p r o v i s i o n of help and guidance on an e n t i r e l y vo luntary basis,, The weight of opinion was in favour o f r e ta in ing the seventeenth birthday as the upper ags l i m i t f o r the juven i l e system., p a r t i c u l a r l y for care , p r o t e c t i o n o r con t ro l proceed ings . There were a l s o several suggest ions that the re should be d i f f e r e n t arrangements f o r younger and o l d e r juven i l e o f f ende rs . The proposals in t h i s Part give e f f e c t to these views...

12. These proposa ls a l s o take account o f the f a c t that 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 parents t o the independence and r e s p o n s i b i l i t y cf the young adult i s a gradual p rocess . For most, i t reaches a c r i t i c a l phase when the c h i l d i s t h i r t e e n or fourteen. The new l e g a l procedures descr ibed in t h i s Par 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 process . The p?coeedure f o r ch i ldren under 10 w i l l remain as a t p r esen t ; there w i l l be new p rov i s i ons f o r those aged 10 and under 1h, which will be added to these r e l a t i n g to ch i ld ren under 10; and new provisions a l s o f o r those aged 1h and under 17 which w i l l be added to those r e l a t i n g to the younger age groups. The procedure f o r offenders aged ten and under four teen w i l l narrow down the e i r e urnstances in which court proceedings are now p o s s i b l e 0 I t represents a half-way stage between c a r e , p r o t e c t i o n or cont ro l proceedings and prosecut ion. I t i s designed t o encourage parents 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 are p r ope r l y t h e i r s , and t o ensure that the ch i l d ' s home background i s considered be fore a dec i s i on i s taken whether court proceed ings should be i n s t i t u t e d . Proceedings will remain poss ib l e where they are necessary f o r the p r o t e c t i o n of S o c i e t y or f o r the sake c f the c h i l d . For o f fenders aged fourbeeu snd under seventeen, prosecut ion w i l l he a v a i l a b l e in de f ined circumstances, as we l l as the new procedure f o r o f fenders under fourteen. The procedure f o r those aged four teen and under seventeen w i l l prov ide meichinery and c r i t e r i a f o r dec id ing whether

the i n t e r e s t s of s oc i e t y or o f the young person requ i re a p r o s e cut ion o r whether these i n t e r e s t s can "best be served i n other ways,

juvenile" courts and magis t rates

1j, These proposals mean the r e t en t i on of the juven i l e cour t s , provision w i l l be made f o r the Lord Chance l lor ( i n the County palatine of Lancaster the Chancel lor of the Duchy) to appoint juvenile court panels i n a l l pa r t s o f the country, as he a l ready does in Inner London, when the necessary arrangements can be made. At present , juven i l e court panels in other areas are appointed by the j u s t i c e s . This may invo l ve inv id ious cho ices , and d i f f i c u l t i e s of s e l e c t i on i n those areas where the bench i s l a r g e and i t s i n d i v i d ucl members are not c l o s e l y acquainted w i th many of t h e i r c o l l e agues . After the enactment o f l e g i s l a t i o n i t w i l l be necessary t o r e v i s e the s ta tu to ry ru les r e l a t i n g t o proceedings in juven i l e cour ts , in the l i g h t of the new l e g a l procedures . The opportuni ty w i l l be taken to conduct a general rev iew o f the d e t a i l e d procedure and practice of j u ven i l e cour t s , in consul ta t ion with r ep resen ta t i v es of those invo l ved in t h e i r day t o day work, w i th the ob j ec t o f making any changes that w i l l a s s i s t in the achievement o f the aims set out i n t h i s Taper. The conclusions of t h i s review w i l l be reflected in the r e v i s ed r a l e s , and w i l l be c i r c u l a t e d t o courts for guidance so f a r as they r e l a t e t o matters of p r a c t i c e . Further steps w i l l a l s o be taken to promote the amalgamation o f juven i l e court panels where th is i s d e s i r a b l e ,

The new l e g a l procedure r e l a t i n g t o o f f enders aged ten and under fourteen.

1a, The commission of an o f fence by a c h i l d o f t h i s age w i l l cease tc be, by i t s e l f , a s u f f i c i e n t ground f o r br ing ing him be fo re a court. Where proceedings are necessary,, these w i l l be brought under the c a i e , p r o t e c t i o n or cont ro l procedure, which w i l l be widened as f o l l o w s . Under the present law, contained in sec t i on 2 of the Chi ldren and Young Persons Act 1963? a child, i s in need, of care, p r o t e c t i o n or cont ro l i f i t i s e s tab l i shed 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 parent may reasonably be expected, t o g i v e , and

( i i ) any one of a number o f condi t ions i s sa t i s f i ed . ( e . g . , he i s f a l l i n g in to bad assoc i a t i ons or i s exposed t o moral danger, or the lack o f care , p r o j e c t i o n or guidance i s l i k e l y to cause him unnecessary su f f e r ing or s e r i o u s l y to a f f e c t h is hea l th or proper deve lopment ) ; OR

(b) he i s beyond the cont ro l of h is parent or guardian.

This d e f i n i t i o n w i l l be amended by adding, t o the cond i t i ons mentioned.at ( a ) ( i i ) , that the c h i l d has committed, an o f f e n c e . This means that proceedings on account o f an o f fence w i l l be possible on ly i f the t e s t at ( 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 ence , e i t h e r by i t s e l f or t o ge the r wi th other f a c t o r s , indicates that the ch i l d i s beyond the cont ro l o f h i s parents ,

15. Where a ground f o r proceedings i s the a l l e g e d commission of an o f f ence , e i t h e r the p o l i c e or the l o c a l au thor i t y w i l l be ab le to bring the proceed ings . Except in cases of urgency, they w i l l consult t oge the r be fore dec id ing whether to do so . I f the ch i l d denies having committed the o f f e n c e , i t w i l l be necessary t o prove

C O N F I D ^ m A L

I this in the same way as a t present,, I t w i l l normal ly he f o r the j police to bring forward the necessary ev idence B I f the court I s

not s a t i s f i e d that the ch i l d committed the o f f e n c e , that w i l l be I the end c f the proceed ings . I f the o f f ence i s admitted o r proved, \ evidence w i l l then be brought forward by ti ie l o c a l au tho r i t y

or the p o l i c e , i n the same way as in e x i s t i n g c a r e , p r o t e c t i o n or I control p roceed ings , that the ch i l d i s not r e c e i v i n g such ca r e ,

protection or guidance as a good parent may reasonably be expected I to g i v e , or i s beyond c o n t r o l . The courses open t o the court

if i t i s a l so s a t i s f i e d on the l a t t e r po int w i l l be the same as i n care, p r o t e c t i o n or con t ro l proceed ings brought on any o ther grounds,

j and are s e t out i n the summary in paragraph 5h&

Restrictions on the prosecut ion o f o f f enders aged fourteen and under seventeen

116. Prosecut ion o f an o f f ender of t h i s age ( except on a charge of ] nomicide) w i l l be poss i b l e only on the author i t y of a summons or warrant issued by a ju v en i l e court mag i s t ra te . The magistrate

I will he empowered t o grant an a p p l i c a t i o n f o r a summons or warrant only i f one or more p r esc r i bed c r i t e r i a are sa t i s f i ed . ,

1 Any person who proposes t o make such an a p p l i c a t i o n w i l l be requ i red \ to inform the l o c a l au thor i t y i n advance. The procedure f o r dealing w i th tne app l i c a t i on w i l l be s im i l a r to e x i s t i n g procedure ,

I Before the magistrate takes h i s d e c i s i o n , however, he w i l l hear the views which the l o c a l ch i l d r en 2 s department and the p o l i c e have

j formed a f t e r consul t ing each o ther about: the case . The proposed I cr i ter ia f o r prosecut ion are s e t out , and the procedure i s I described i n more d e t a i l , in Appendix A , These c r i t e r i a are : intended t o cover a l l those s i tua t i ons in which prosecut ion may be necessary, and court proceedings would normal ly be taken in

] cases where one o r more of the c r i t e r i a were s a t i s f i e d ; but there 1 will be no l e g a l o b l i g a t i o n on the p o l i c e t o make an a p p l i c a t i o n ; for process , or on the magistrate t o grant i t , i n a l l such cases .

17. Under th is scheme, the normal course of e v en t s , where the p o l i c e I identify an o f f ender aged four teen and under seventeen, the o f f ence \ is not denied , and something more than an o ra l warning on the spot \ seems to be r equ i r ed , w i l l be as f o l l o w s . The p o l i c e w i l l consult ! the c h i l d r e n ' s department a Avai lable in format ion about the young j perscVs background w i l l be cons idered , and fur ther enqu i r i es made

if necessary. I n some cases i t w i l l be agreed that no quest ion of court proceedings need a r i s e 0 I f informal a c t i o n seems l i k e l y

; to be he l p fu l , t h i s w i l l then be taken. I n some cases the enqui r i es I may show that c a r e , p r o t e c t i o n or con t r c l proceedings would be

oore appropr iate than a p rosecut i on . Such proceed ings w i l l then be f ini t iated. The remaining cases w i l l be put to a magistrate t o I decide whether one o f the s ta tu to ry c r i t e r i a f o r prosecut ion I s j satisfied and, I f s o , whether there should be a prosecution,,

SSr ope ra t ion between s e r v i c e s

1o, One major e f f e c t of the proposa ls descr ibed i n t h i s Part w i l l be to encourage and strengthen consu l ta t i on and co -opera t i on Between the juven i l e court mag i s t ra t e s , the p o l i c e , the c h i l d r e n ' s department and the probat ion serv ice , , The r egu la r d iscuss ion of ^dividual cases w i l l be va luable in enabl ing mag i s t ra t es , p o l i c e a*fl soc ia l workers to apprec ia te d i f f e r e n t aspects of the problems

of delinquency,, I t w i l l be suggested to 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 , juven i l e court pane ls and probat ion committees that they should arrange p e r i o d i c meet ings, at which each are represented , to rev iew the operat ion of the new procedures in t h e i r area and t c discuss how each can make the most e f f e c t i v e contribution; and. that others who are concerned, such as t eachers , might a l s o be i n v i t e d to at tend such meet ings 0 The changes w i l l increase the scope f o r s o c i a l casework by the l o c a l author i t y -under section 1 of the Act o f 1963c Informal warnings, and formal cautions, of o f fenders by the p o l i c e w i l l cont inue 0 I t w i l l a lso be poss ib l e tc continue and extend the work of p o l i c e iuven i l e l ia ison schemes i n areas where i t i s agreed that p o l i c e par t i c ipa t ion in prevent i ve work i s valuable.-, The courts w i l l continue to prov ide the safeguard of j u d i c i a l procedures i n cases where a l l e g a t i o n s are denied or coapuls ion i s exe rc i s ed .

Miner ^nd. consequential changes

IS, The mo1.e important minor and consequent ia 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 care , p r o t e c t i o n or c o n t r o l " 0

IV CHANGES AFFECTTNG TREATMENT

S i m s ;

20* The aim of the changes descr ibed in t h i s Part i s to increase 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 to deal with juveni le de l inquency. E f f e c t i v e n e s s means he lp ing ch i ld ren whose behaviour i s unacceptable t o grow up, t o deve lop personal re la t ionsh ips end to 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 ows , so that they become mature members of s o c i e t y ; in some cases i t a l s o means f i rm cont ro l of a n t i - s o c i a l behaviour. In order to achieve th i s aim. I t i s necessary to develop fur ther our f a c i l i t i e s f o r observat ion and assessment, and to increase the va r i e t y of f a c i l i t i e s f o r cont inuing treatment, 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 . Increased 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 vary the treatment when changed circumstances or f u l l e r d iagnos is suggest the need f o r a d i f f e r e n t approach. Organisational changes are a l s o des i r ab l e so as to prov ide a ro t t ing f o r c l o s e r co-operat ion between the se rv i c es concerned,

21 * Three main changes in the powers of the juven 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 abo l ished; 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 cases take the form of committal to the care of the l o c a l au tho r i t y . Second, p r o v i s i on w i l l be made f o r the development of new forms of treatment, Intermediate between supervis ion in the home and committal t o c a r e . Third, a l l supervis ion of ch i ldren under fourteen w i l l oe by the l o c a l author i ty . The f i r s t change was proposed In "The Chi ld, the Family and the Young Of fender" , and was wide ly supported0 The third i s a mod i f i ca t i on of a proposal in that hh i t e Paper, The second i s new. These three changes are descr ibed in more d e t a i l in paragraphs 2h-3h; paragraphs 22-23 set out the powers of the higher courts which w i l l remain.

Powers of "hhe h igher courts to deal w i th serious, of fpnees

22c The proposal in "The Chi ld , hhe Family and the Young Offender" that the r i g h t to claim t r i a l by jury should be abol ished f o r persons up to s i x t een , except those charged with homicide, met with almost unanimous agreement. In v iew of the dec i s ion t o r e t a i n an upper age of seventeen f o r the juven i l e court , th is r i gh t w i l l be abolished up to that age, hut with an add i t i ona l excep t i on . Section 53(2) of the Chi ldren and Young Persons Act 1933 g i v e s the superior courts power to order a young person found g u i l t y of a grave o f fence to be detained in a place d i r e c t ed by the Secre tary of State f o r a per iod s p e c i f i e d by the cour t . This power w i l l be re ta ined . In p rac t i c e i t i s exerc ised at present mainly in r e l a t i on to young persons aged s ix teen who commit very ser ious of fences, o f ten invo l v ing v i o l e n c e . The e f f e c t w i l l be tha t , where a young person i s charged with an of fence punishable in an adult by imprisonment f o r fourteen years ov more, and the juveni le court considers that the exe rc i se of th i s power would he warranted i f he were found g u i l t y , the court w i l l commit him for t r i a l by a higher court . I f he is found g u i l t y , the h igher court w i l l have power to order h i s de tent ion under sec t i on 53 (2 ) of the 1933 Ac t , in add i t i on to a l l the powers ava i l ab l e to a juveni le cour t .

c3. At present young persons of f i f t e e n and s i x t een may be committed t o quar ter sess ions , and sent to bo r s t a l by quarter sessions, i f no other method of dea l ing with them i s appropr i a t e . Power w i l l be r e ta ined f o r the present t o commit to b o r s t a l young people of t h i s age f o r whom committal t o , or a continuation in , care would be unsui tab le . This power w i l l be discontinued when new arrangements have been made f o r t r e a t i n g ,

where necessary under condi t ions of s ecur i t y , ch i ldren and young persons whose behaviour presents serious problems.

Supervision 2 k ' At present chi ldren and young persons who have committed an offence may be placed on probat ion and are supervised by probation o f f i c e r s . Those found in need of care , p ro t ec t i on or control may be placed under the superv is ion of a probat ion o f f i c e r , the l e c a l author i t y or any other person. Under the new arrangements, the superv is ion of a chi ld under fourteen found to be in need of care, p r o t e c t i on or contro l w i l l be by the l o c a l author i ty ; in cases where the probation s e r v i c e was a lready working wi th the c h i l d ' s f ami l y , arrangements could be made f o r the probat ion o f f i c e r concerned t o supervise the c h i l d . For young persons aged fourteen and under seventeen, supervision, f o l l ow ing both cr iminal proceedings and care , p r o t e c t i on or contro l proceedings w i l l be by the l o ca l author i ty or by a probation o f f i c e r (but not , as at present , by any other person.) as decided by the cour t . This means that the assoc ia t i on of the probation s e r v i c e with young persons aged fourteen and under seventeen w i l l be preserved. Supervis ion w i l l be f o r a s p e c i f i e d period of not more than three y ea r s .

Intermediate forms of t ieatment 25o Ex i s t i ng forms of treatment a va i l ab l e to the juven i l e courts d is t ingu ish sharply between those which invo l v e complete removal from home and those which do not . The juven i l e courts have very d i f f i c u l t dec i s i ons to make in judging whether circumstances require the d ra s t i c step of taking a ch i l d away from h is parents and h i s home. The view has o f ten been expressed that some form or forms of intermediate treatment should be ava i l ab l e to the courts , a l lowing the ch i ld to remain in h i s own home but br ing ing him a l s o in t o contact with a d i f f e r e n t environmentB The junior attendance centres go some way towards meeting th i s need, but the time spent by an ind i v idua l o f fender in an attendance centre is short (up to 2h hours at most, spread over a number of Saturdays) , and i t has not been poss ib l e t o prov ide centres outside the more populous a reas . The junior detent ion centre invo lves removal from home which, although r e l a t i v e l y b r i e f , i s sudden and complete. A new l e g a l and admin is t ra t i ve framework wi l l there fore be es tab l i shed f o r the development of a v a r i e t y of forms of intermediate treatment f o r chi ldren and young persons placed under superv is ion by the juven i l e cour ts . One object i s t o make possib le the use f o r thd s purpose of f a c i l i t i e s not provided expressly f o r those who have been be fore the cour t s . These new methods of treatment w i l l be l inked to superv is ion, but a stra ight forward superv is ion order w i l l remain p o s s i b l e . The new framework i s out l ined in paragraphs 26-29. Further d e t a i l s are given in. Appendix C.

26. Intermediate treatment w i l l f a l l i n to two c a t e g o r i e s . The f i r s t w i l l i nvo l v e temporary res idence , attendance or pa r t i c i pa t i on , f o r a perioc1 or per iods t o t a l l i n g not more than one month during each year of superv is ion . The court v/ill f i x the actual pe r i od , wi th in t h i s maximum. The superv isor ( i . e . , the l o c a l author i t y or probat ion o f f i c e r ) w i l l decide on the par t i cu lar p lace to be attended or a c t i v i t y to be undertaken, se l ec t ing the most appropr iate of the f a c i l i t i e s a va i l ab l e under the l o c a l scheme mentioned in paragraph 28,. These powers w i l l be capable of use in a wide v a r i e t y of ways. Poss ib le instances are attendance f o r a number of evenings, or week-end af ternoons, or en t i r e week-ends, at a p lace f o r t ra in ing , treatment or recreat ion ; or taking part f o r a spec i f i ed t o t a l of hours or days in some organised 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 are many other p o s s i b i l i t i e s . The aim

I w i l l be t o b r ing the young person in to contact with a new 1 environment, and to secure h is p a r t i c i p a t i o n in some cons t ruc t i ve I a c t i v i t y ,

1 27- The second category w i l l invo lve res idence at a s p e c i f i e d I place f o r a f i x e d per iod cf not more than three months, beginning

within the f i r s t year of superv is ion , Again the actual l ength of the per iod of res idence w i l l be set by the court , w i t h i r the statutory maximum. I t s t iming and nature w i l l be decided by the supervisor, who w i l l be responsib le f o r s e l e c t i n g the most appropriate of the f a c i l i t i e s a v a i l a b l e under the loca 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 basic need i s f o r he lp and superv is ion in the home, but a short per iod away from home a lso seems d e s i r a b l e . I t w i l l , f o r example, enable a ch i l d or young person to be placed f o r a short time in a home or h o s t e l , or wi th r e l a t i v e s who are w i l l i n g t o r e c e i v e him,

I while he lp i s o f f e r ed in remedying a d i f f i c u l t fami ly s i t u a t i o n . It w i l l a l so be su i tab le f o r use in cases where the ch i ld himself needs some form of short-tevm treatment in a r e s i d e n t i a l establishment or the kind of r e s i d e n t i a l exper ience now be ing

; provided by a number of l o c a l education a u t h o r i t i e s ,

2 8 o I t w i l l be the r e s p o n s i b i l i t y of the l o c a l a u t h o r i t i e s , : acting through the Joint Planning Committee descr ibed in Part V I of th i s Paper, to prepare schemes s e t t ing out the range of i n t e r

mediate treatments 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 with vo luntary bod i es . Representa t i ves of the juven i l e court j u s t i c e s and of the p o l i c e and probat ion serv ices in each area w i l l be assoc ia ted w i th the planning committee in prepar ing these schemes. The f a c i l i t i e s included in each scheme wa l l have to come w i th in genera l c a t e go r i e s authorised by the Secre tary of S ta t e , or t o be approved expressly by him; the l o c a l a u t h o r i t i e s and other s e r v i c e s w i l l be consulted about the types of f a c i l i t i e s to be author ised . 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 so le ly or p r imar i l y f o r the purposes of a scheme, the extent to which, and the cond i t i ons on which, any f a c i l i t y i s made a va i l ab l e for th i s purpose w i l l be a matter f o r agreement between the Joint Planning Committee and the author i t y , body or person respons ib le for that f a c i l i t y . Each scheme w i l l be n o t i f i e d to the Secretary of S ta te , and by him to the courts in the area concerned.

2 9 c 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 intermediate forms of treatment w i l l oecome a v a i l a b l e to those courts. When adequate f a c i l i t i e s f c r attendance or p a r t i c i p a t i o n are provided under a scheme the e x i s t i n g powers of those courts to make jun ior attendance centre 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 short term res idence are prov ided under a scheme, e x i s t i n g powers to commit to a junior de tent ion centre w i l l l ap s e . These new forms of treatment w i l l be b u i l t up gradually, and the i n i t i a l scheme w i l l be amended and added to as this i s done. In the meantime, the Government w i l l continue to maintain jun ior attendance centres and jun ior de tent ion cen t res , and w i l l be ready to discuss wi th l o ca l au tho r i t i e s ways in which these f a c i l i t i e s might be incorporated w i th in new schemes of supervision or residence,, In p a r t i c u l a r , i t i s important that the va luable work of p o l i c e o f f i c e r s in the jun ior attendance centres should not be l o s t .

Resident ia l treatment

30. The a b o l i t i o n of the approved school order means that children and young persons who would now be committed to approved schools w i l l come into the care of the l o c a l author i ty in whose area they l i v e . The bas ic duty of l o c a l au tho r i t i e s towards children in t h e i r care w i l l remain that of prov id ing the care ,

protection, guidance or treatment which they consider appropr ia te in the i n t e r e s t s of each c h i l d . This duty w i l l include restoring the ch i l d to h i s home as soon as p r a c t i c a b l e and desirable, having regard to the need to p r o t e c t soc i e t y whi l e children and young persons whose behaviour i s d i f f i c u l t t o c on t ro l are undergoing t reatment . The Secre tary of State w i l l have a reserve rower t o g i v e d i r e c t i o n s to a l o c a l author i ty in any case where he i s s a t i s f i e d that a p a r t i c u l a r form o f cont ro l i s necessary f o r the p ro t ec t i on of s o c i e t y .

31. Local au tho r i t i e s w i l l be responsib le f o r deve loping a comprehensive system of r e s i d e n t i a l care and treatment f o r the children rece i ved or committed in t o t h e i r care who are not boarded out with f o s t e r parents , A cons iderab le v a r i e t y of p rov i s i on will be needed w i th in t h i s system, which w i l l be descr ibed f o r legal purposes as the publ ic system of community homes f o r ch i ld ren and young persons. The needs of the great ma jor i t y of ch i l d r en will be met by homes which, as now, w i l l care f o r them as near l y as poss ib le in the same v/ay as a good fami ly , making use of the education, hea l th , and other s e r v i c e s which are genera l l y avai lable . I t w i l l remain the aim to secure that as many as possible of the ch i ld ren in r e s i d e n t i a l care use these 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 these se rv i ces gathers momentum. Even in the long term, however, there w i l l remain a substant ia l minor i ty of children whose needs cannot be met in th is way. There w i l l thus be a con+inuing need f o r some establ ishments prov id ing educat ion and treatment on the premises. In some cases t h i s w i l l be with the limited aim cf prepar ing f o r an e a r l y return to the use of the normal s e r v i c e s . In others the f i r s t p r i o r i t y w i l l be a therapeutic approach to s o c i a l educat ion. Some of these children, p a r t i c u l a r l y those whose behaviour i s most d i f f i c u l t , will a l so need contro l in secure cond i t ions , or very s p e c i a l i s e d forms of treatment.

32. These proposals w i l l not diminish the need f o r r e s i d e n t i a l f a c i l i t i e s . In p a r t i c u l a r , the r e t en t i on of the seventeenth birthday as the upper age l i m i t f o r the juven i l e courts means that all the e x i s t i n g approved schoo ls , inc luding the senior schoo ls , will probably be required f o r the accommodation of ch i l d r en and young persons in ca re . The schools w i l l r e t a i n an imporcant role wi th in the new system of community homes, in continuing to provide f o r the needs of both o f fenders and non-o f f enaers .

33. Centres f o r observat ion 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 prov ide f a c i l i t i e s on both a res ident ia l and a day-attendance bas is f o r ch i l d r en remanded or subject to in ter im orders by the courts , and w i l l adv ise on the treatment of ch i ldren in care , so that dec i s i ons can be soundly based on the best poss ib l e d iagnos is of the c h i l d ' s needs and circumstances. Observation centres w i l l not be distinguished in law, however, from other community homes. The present l e g a l d i s t i n c t i o n s between remand homes, recept ion cen t res , chi ldren's homes and approved schools impose unnecessary restr ic t ions on making the best use of these resources .

3d. A young person who i s now committed to an approved school at the age of s i x t een i s l i a b l e to be detained up to h is n ineteenth birthday. Committal t o the care of a l oca l au thor i t y ends at the eighteenth b i r thday . A per iod of l i t t l e over one year may not be suf f ic ient f o r the treatment of a young person who i s near l y seventeen when committed t o ca re . Accord ing ly , where a young person has a lready reached the age of s i x t e en , committal to care w i l l he u n t i l the n ineteenth b i r thday . P rov i s i on w i l l a l so he made f o r a young person t o be r e ta ined i n care up t o

this age , even i f he came into care be fore reaching the age of sixteen, i f he has been admitted to a spec ia l establishment f o r the treatment in secure condi t ions of very d is turbed and di f f icul t young peop l e . The r i gh t t o apply at any time f o r the revocation of an order committing to care w i l l remain.

V COMMUNITY M E S ^ F O R ^ CHILDREN AKD "YOlim "PERSOM

55, The pub l i c system of community homes f o r ch i ldren in the care ;f local a u t h o r i t i e s w i l l be an in t eg ra t ed system; "community some" w i l l oe the common l e g a l d e sc r i p t i on f o r a wide range o f jstablishments meeting the needs which are now served 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 ep t i on and remand cen t r e s , l o c a l au thor i t y and vo luntary approved schools, and some vo luntary c h i l d r e n ' s homes which r e g u l a r l y accommodate ch i ld ren in care . The Government at taches great importance t o the fur ther development of par tnership between pub l i c and voluntary bodies in meeting these needs, and the pub l i c system sill there fore include both l o c a l author i ty and voluntary homes. ?he machinery f o r deve lop ing the publ ic system of community homes, and the new forms o f par tnersh ip which w i l l enable l o c a l authorities and vo luntary bodies to work together i n ca te r ing f o r children in ca r e , are descr ibed i n th i s Par t and in Appendix D,

Mies of l o c a l a u t h o r i t i e s

fi, The new system w i l l have to str i ice a reasonable balance ietween two r e t s o f cons ide ra t i ons . On the one hand, there i s a need f o r c lose l inks between community homes and the communities

iibey serve . Many ch i ldren i n r e s i d e n t i a l care are s t i l l members of famil ies , with deep roo ts i n a l o c a l environment to which they ill one day r e turn . Success i n treatment the r e f o r e depends, i n part, on he lp ing the fami ly as w e l l as the ch i l d : i t a l so depends 1 the extent to 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 requirements are d i f f i c u l t 3 meet unless homes are provided on a genuinely l o c a l b a s i s , with lose l inks between the s t a f f of the home and the f i e l d s ta f f of he local au tho r i t y . On the other hand, many o f the f a c i l i t i e s quired are too spec i a l i s ed t o be prov ided on a whol ly l o c a l

iasis, and some must be planned n a t i o n a l l y . Every author i ty w i l l ish to make the f u l l e s t poss i b l e p rov i s i on to meet i t s own needs, tat should a lso be able to p a r t i c i p a t e i n the p lanning, p r ov i s i on nd management o f those f a c i l i t i e s which must be shared with eighbouring a u t h o r i t i e s .

13?. The powers and dut ies o f ch i ldren au tho r i t i e s w i l l according ly te extended'. To enable each author i ty to f u l f i l i t s dut i es wards the ch i ld ren in i t s care , set out in paragraph 3 0 , i t s pities w i l l a l so inc lude :

(a ) the prepara t ion , i n co -operat ion with the o ther author i t ies i n a j o i n t planning area designated by the Secretary o f S t a t e , o f

( i ) a comprehensive plan f o r the development of 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 ch i ld ren and young persons in care, and of f a c i l i t i e s f o r observa t i on and assessment 1 and

( i i ) a scheme spec i f y ing the f a c i l i t i e s to be made a v a i l a b l e f o r the intermediate forms o f treatment descr ibed in Part IV ;

(b) the p r o v i s i on , or ass istance w i th the p r o v i s i o n , of the f a c i l i t i e s s p e c i f i e d i n the development plan and scheme of intermediate t reatment e

joint Planning Conunlttees

:jg Jo in t Planning Committees w i l l be es tab l i shed , cover ing areas s

^proved by the Secretary of State a f t e r consul ta t ion with the local a u t h o r i t i e s o The aim w i l l be to respect e x i s t i n g arrangements f o r co-operat ion between au thor i t i e s and, wherever possible, to secure a sensible r e l a t i o n s h i p between the areas of ;he new doint Planning Committees and those o f other re levant 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 education, hosp i t a l s and probation. The Committees w i l l be appointed by the 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 heal th Committees w i l l a lso be represented, and the probat ion and other statutory s e r v i c e s w i l l be consulted as necessary. O f f i c i a l s of central Government Departments concerned with ch i ld care,

-education and heal th w i l l a ss i s t the Committees in the i r work, particularly by i d e n t i f y i n g needs f o r which p ro v i s i on must be made Ion a na t i ona l b a s i s ,

39. l'he i n i t i a l task of the Joint Planning Committees w i l l be to prepare and. submit f o r the Secretary o f S t a t e ' s approval comprehensive development plans fo r a system o f community homes

pin their a reas . The plans w i l l be based on an analys is of the [needs o f ch i ldren and young persons in care, d i s t ingu ish ing between those which require the p r o v i s i on of a v a r i e t y of jestablishments prov ided f c r that purpose, and those which can be I let by p lac ing ch i ldren in f o s t e r homes, normal boarding schoo ls , Hoarding spec i a l schools or independent establ ishments. The I plans w i l l a lso spec i f y the proposed future funct ions of e x i s t i n g homes and approved schoo ls , both l o c a l au thor i t y and vo luntary , jiiich w i l l prov ide f a c i l i t i e s w i th in the publ ic system. There pi l l be f u l l consul ta t ion with those respons ib le f o r vo luntary establishments, wi th a view to reaching an agreed d e f i n i t i o n o f the future r o l e o f the home or schoo l . F i n a l l y , the plan w i l l set out proposals f o r f i l l i n g any gaps i n the ava i l ab l e f a c i l i t i e s .

jShen the plan 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 voluntary o rgan isa t i on to carry out Jfcneir part of the p lan , 1 (lO. The second task of the Committees w i l l be to prepare schemes of intermediate treatment ( see paragraph 2 8 ) , I t w i l l a lso be

I open to the members o f any Joint Planning Committee, i f they so wish, to make use of the Committee f o r the d iscuss ion or planning of other matters o f mutual concern in the chi ld care f i e l d , such as

J training or research., The Jo in t Planning Committees w i l l have a continuing r e s p o n s i b i l i t y to rev iew progress , to arrange f o r the

I evaluation o f experimental developments, and to keep development Iplans and schemes of intermediate treatment up tc da te ,

Wl. I t w i l l be open to Joint Planning Committees to propose a r o l e for ex i s t ing homes or approved schools outs ide the new system of community homes. For example, most e x i s t i n g approved schools

Iwill probably continue to s p e c i a l i s e in s o c i a l education, bat a j few might become boarding spec i a l schools or even ordinary boarding schools operat ing under the Education A c t s . I t w i l l a lso be open to Committees tc spec i f y needs which seem to requi re a na t i ona l

I approach. While the Government hopes that each Jo int Planning s Committee w i l l be able to meet, w i th in i t s own system, the g rea t ; Majority of needs, inc luding secure accommodation f o r very i disturbed ch i ld ren and young persons who do not require or are not I susceptible to hosp i t a l treatment, i t may be thought that some of : the long-term p rov i s i on f o r such ch i ldren should be the subject o f

j t ional p lanning. This v/il l be a matter f o r d iscuss ion when L i n t Planning Committees are establ ished,, The Secre tary of State w i l l be g iven r e s e r v e powers to p r o v i d e , maintain or a s s i s t joimunity homes needed f o r h i gh l y s p e c i a l i s e d purposes.

Liantary' establ ishments

12, The new ca t ego r i e s of community home a v a i l a b l e wi th in the public system are descr ibed in Appendix D. The d e t a i l s w i l l be :he subject o f ear ly discussions with r epresen ta t i v es of the l o c a l k inor i t i es and of vo luntary homes and approved schoo l s . The Isethod of dec id ing the ro l e and status of vo luntary establ ishments Jjithin the publ ic system w i l l be as f o l l o w s .

IJ, The Jo int Planning Committees w i l l discuss with the managers of voluntary approved schools the future r o l e and status o f each istablishment w i th in the new system. I t w i l l a lso be open to laCommittee to agree with the managers of a vo luntarv home registered under s e c t i on 29 o f the Chi ldren Act 19h8 that the home jshould prov ide regu lar f a c i l i t i e s w i th in the pub l i c system. When agreement has been reached on the future r o l e of each establ ishment, and the area development plnp. has been approved by the Secre tary of State, formal steps w i l l fvg :%&ken to e s t ab l i sh the new status of the vo luntary home or schdoCU Arrangements w i l l be made t o safeguard the i n t e r e s t s of tfi& s t a f f , and of the managers of voluntary estab l ishments , an r i n g , the per iod o f t r a n s i t i o n to the i c t system.

1. There may he some cases where the new funct ions o f the home or school are appropr iate to the pub l i c educat iona l system. In such leases the choices of s tatus w i l l be those a v a i l a b l e under the /Education Ac t s , and the agreement both of the l o c a l education authority and o f the Secre tary of State f o r Education and Science all be needed be fore the change i s made. The managers or governors w i l l , however, be asked to r e s e r v e , over a per iod o f at least seven years , a substant ia l but diminishing number o f the /places in the school f o r the use o f ch i ldren and young persons in. le care of l o c a l a u t h o r i t i e s who have been ascer ta ined as i n need of specia l education. These t r a n s i t i o n a l arrangements w i l l be /needed to p ro t ec t ch i ldren au thor i t i e s from the r i sk of a l oss of existing f a c i l i t i e s be fo re they have had time to make other arrangements.

15. Voluntary organ isa t ions which wish to cont inue, or to e s t a b l i s h hhildren's homes operat ing outs ide the publ ic system w i l l remain ifree to dc so, subject to the e x i s t i n g s ta tu to ry p rov i s i ons as to -"egistration, i nspec t i on and o therwise - T h e homes v/ill be known s e

jas reg is tered vo luntary homes. Voluntary homes p a r t i c i p a t i n g i n the public system w i l l no longer need to be r e g i s t e r e d . R e g i s t e r e d

I voluntary homes w i l l remain f r e e t o accommodate ch i ldren in l o c a l authority care on terms agreed between the l o c a l author i ty concerned ad the managers o f the home. Any standing arrangements f o r doing So may be s p e c i f i e d i n the plans o f Jo int Planning Committees.

po. The in t en t i on i s to enable the voluntary approved schools to Home within the publ ic system on a bas is acceptab le to t h e i r Managers and to the respons ib le 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 in t h e i r care w i l l have a s im i l a r opportuni ty . I f i n any instance a vo luntary approved school cannot f i nd an agreed r o l e

land status w i th in the new system, i t w i l l be open to the managers I ;

jo surrender the c e r t i f i c a t e o f approval , and the e x i s t i n g financial arrangements f o r the repayment o f grants and loans w i l l Ipply.

7 1 RESEARCH, DKVl iOPHENT : AND i V ISORY SERVICES

\], The Advisory Counci l on Chi ld Care i s being r econs t i tu t ed so I as to become the c en t ra l forum f o r the co -opera t i ve planning and discussion of research , development and t r a in ing in ch i l d care,

land, f o r ensuring that the r e su l t s of research and development are ade w ide l y known. The membership o f the new Council w i l l include members nominated by the l o c a l author i ty and o ther associations and by vo luntary bod i e s , and u n i v e r s i t y and other aembers se l ec t ed by the Secre tary o f S t a t e , under an independent jdhairman appointed by him. The Council w i l l have a research and

I development Committee, which w i l l discuss research and development in ch i ld care and he lp in co-ord inat ing e f f o r t in th i s f i e l d and 'in disseminat ing the r e s u l t s . The Ch i ld ren ' s Inspectorate of the

.jHome O f f i c e w i l l continue to e x e r c i s e i t s e x i s t i n g s ta tu to ry Junctions, but g r ea t e r emphasis w i l l be l a i d on adv isory rather jtnan r e gu l a t i v e func t i ons ; i t w i l l be the r e s p o n s i b i l i t y of the

I local au tho r i t i e s or managers to ensure observance of the s ta tutory rules governing the conduct o f community homes u Inspectors w i l l

t take part in the work of Jo in t Planning Committees and w i l l form a link between the Home O f f i c e , l o c a l au tho r i t i e s and vo luntary

^organisations as par t of the co -opera t i ve e f f o r t to f o s t e r the spread o f new knowledge and techniques in the care of ch i l d r en ,

jfhe Development Group in the Home O f f i c e Ch i l d r en ' s Department w i l l I also be c l o s e l y concerned in s t imulat ing development,, This Croup j was es tab l i shed r e c en t l y to co-operate wi th tliose concerned with j practical developments i x i the f i e l d and in assoc iated research, ite Home O f f i c e Research Unit w i l l a ss i s t i n the eva luat ion o f new

j developments and o f the new procedures and treatments descr ibed I earlier i n th i s Paper, as part o f i t s funct ions i n the f i e l d s of \ child care ana j u v en i l e del inquency,

V I I FINANCE

1$. The funct ions o f l o c a l au tho r i t i e s under these proposals w i l l form part of t h e i r ch i l d care func t i ons . They w i l l be f inanced through ra te support grant i n the same way as l o c a l author i ty ch i l d care functions are f inanced at present , the expenditure being taken into account i n determining the amount of g ran t . Local au tho r i t i e s 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 for those forms of treatment which w i l l e ventua l l y rep lace junior attendance centres, jun ior de tent ion centres and bo r s ta l f o r those under seventeen. D e t a i l e d d iscuss ions w i l l be he ld with the l o c a l authority assoc ia t i ons 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 .

V I I I SUMMARY OF MAIN PROPOSALS

^9. There are many in f luences on the behaviour o f ch i ld ren , and that of the fami ly i s p a r t i c u l a r l y Important. Much misbehaviour by chi ldren i s part o f tho process o f growing up, but some has more ieep-seated causes. Ac t i on by soc i e t y to deal wi th ch i ldren in

if cub 3. e should take account of each c h i l d 1 s f ami l y and wider social background, and should be designed where poss ib l e to support jjie ch i l d i n the f am i l y , encouraging and he lp ing parents to f u l f i l their r e s p o n s i b i l i t i e s and prese rv ing the c h i l d ' s l i nks with h i s :tcal community0 The measures a v a i l a b l e should be var i ed and hlexible, so that the act ion taken in each case can r e f l e c t the Circumstances which gave r i s e to i t and can be a l t e r e d as the circumstances a l t e r . The use of formal procedures should be

Reserved f o r s i tua t i ons where t h i s ie necessary i n the i n t e r e s t s if the ch i l d or o f s o c i e t y . Firm and consistent d i s c i p l i n e i s ,

fjiov/ever, a normal and necessary par t of a c h i l d ' s upbr inging, ijiiildren may r equ i r e cont ro l as w e l l as b e l p , i f they are to overcome t h e i r problems and to become mature c i t i z e n s ; end s o c i e t y ay have to prov ide th is con t ro 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 parents are unable to do s o . fee proposals i n t h i s Paper, which are summarised in the f o l l o w i n g ^paragraphs, are intended to promote these aims, p rov id ing a comprehensive ye t f l e x i b l e l e g a l framework f o r the development o f pork wi th ch i ldren i n t rouble over the coming y e a r s .

juv eniiiep j;purfcs

50, Juveni le courts w i l l be r e ta ined and t h e i r e x i s t i n g jurisdiction and age l im i t s w i l l be preserved . The Lord Chancel lor sill make appointments to juven i l e court panels elsewhere in the country, as he already does in Inner London, The p r a c t i c e , procedure and areas of j u v en i l e courts w i l l be rev iewed.

Changes i n Tegal^^ix^cedu^rj^s

51. ( a ) Chi ldren aged ten and,under; f our teen

The prosecut ion of ch i ld ren of th is age w i l l cease, and ac t i on to deal wi th o f fenders and to he lp t h e i r parents w i l l be taken, where p o s s i b l e , on a vo luntary b a s i s . I f a c h i l d commits an o f f ence and h i s parenos are not p rov id ing adequate care , p r o t e c t i o n and guidance, or the o f f ence ind i ca tes that he i s beyond parenta l c o n t r o l , i t w i l l be poss i b l e to take him be fore a juven i l e court as i n need o f ca re , p r o t e c t i on or c o n t r o l .

( b ) Young persons aged^jfj?ur;fceen and:undereseventhen.

To enable young persons to be dea l t wi th so fa r as poss ib l e on a voluntary bas is without recourse to the c ou r t s , i t w i l l be prov ided that prosecut ion w i l l be poss ib l e only i f one or more prescr ibed c r i t e r i a are s a t i s f i e d , and only on the author i t y o f a mag i s t ra t e . The care , p r o t e c t i o n or contro l procedure, extended as mentioned at ( a ) , w i l l apply up to the seventeenth b i r thday .

Changes i n the powers o f the jeourts

52. ( a ) Probat ion orders w i l l cease to be l e g a l l y d i s t i n c t from superv is ion o rde r s . Superv is ion of ch i l d r en under f our teen w i l l be by the l o c a l au thor i t y , and of young persons aged fourteen and under seventeen by the l o c a l au thor i t y or a probat ion o f f i c e r .

( b ) P rov i s i on w i l l be made f o r new forms o f in termediate treatment, f o r use i n conjunction with superv i s i on , to be developed by l o c a l a u t h o r i t i e s . These w i l l in due course rep lace jun ior attendance centres and jun ior de tent ion centres,.

( c ) Chi ldren end young persons requ i r ing continuing treatment away from home w i l l he p laced in the care of l o c a l a u t h o r i t i e s . The separate approved school order w i l l cease t o e x i s t , and b o r s t a l f o r those under seventeen w i l l i n due course he r ep l a c ed .

ftildren i n the care o f l o c a l a u t h o r i t i e s

5 3 . ( a ) Loca l a u t h o r i t i e s w i l l be respons ib le f o r deve lop ing a comprehensive system of community homes f o r ch i l d r en , 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 in consu l ta t ion with voluntary bodies wishing to p a r t i c i p a t e and wi th other s ta tutory s e r v i c es concerned. Development plans drawn up by these committees w i l l be subject to the approval of the Secretary o f S t a t e , who w i l l have a r ese rve power to arrange fo r the p r o v i s i on of homes to meet any r a t i o n a l needs which l o c a l au tho r i t i e s are unable to ca te r f o r .

( b ) The s ta tu to ry framework fo r the work of the Jo in t Planning Committees w i l l p rov ide f o r a partnership between pub l i c and vo luntary e f f o r t . In p a r t i c u l a r i t w i l l p rov ide a.range of p o s s i b i l i t i e s w i th in which the e x i s t i n g vo luntary approved schools may be expected to f ind an appropr iate p lace i n the system o f publ ic p r o v i s i o n . I t w i l l a iso be made poss i b l e f o r vo luntary c h i l d r e n ' s homes to become more c l o s e l y assoc ia ted with t h i s system i f they and the r e l e van t p lanning committee wish 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 descr ibed In Part I I I , I and the changes i n the powers of the courts descr ibed in Part IV , I have a l l come i n t o opera t i on , the pos i t i on w i l l be as summarised 1 in t h i s char t .

Nature o f l e g a l or Pov/ers o f the informal a c t i on ava i l ab l e iuven l l e courts

fier cen

m and under fourteen

crteen and under seventeen

S o c i a l casework by l o c a l In care , p r o t e c t i o n a u t h o r i t y o or contro l

proceedings (on any Informal act ion by other ground, a l l ages up

se r v i c e s . to s even teen ) :

Care, p r o t e c t i o n or cont ro l Committal to care of proceedings (w i th amendment l o c a l au thor i t y . descr ibed in Appendix B ) .

Superv is ion , wi th or Same as ch i ldren under t en ; without Intermediate and treatment .

Extended care, p r o t e c t i o n or Hosp i ta l or guardiancontro l proceedings described\ ship order under in paragraphs 12-13, ,* Mental Health A c t . j

)Caution or other in formal p o l i c e ac t i on . ) Binding over Barents

bame as ^ i^ren under c

f ou r t e en ; and prosecut ion if^ author ised under the scheme \ descr ibed in paragraphs 1h-i3^ and Appendix A, ' An cr imina l

proceed ings" same orders as i n care , p r o t e c t i o n or con t ro l proceedings and

Absolute or cond i t i ona l discharg

Pine up to £50.

Payment of damages o r compensation.

Detent ion centre or attendance centre ( u n t i l intermediate treatments are a v a i l a b l e ) .

B .QStrictlpns - on j the^Prosecut ion of Young-'.Persons' Aged Fourteen^and^..Under["Ssyenteen

1 . The f o l l ow ing p rov i s i ons w i l l be enacted by s tatute :

( a ) Where a young person i s a l l e g e d to have committed an o f f ence , cr iminal proceedings may be taken onl,.' on account o f the seriousness o f the o f f ence or of some other prescr ibed circumstance.

( b ) The so le procedure fo r i n s t i t u t i n g a prosecut ion aga inst a young person (except in the case of homic ide ) w i l l be by apply ing f o r a summons or a ^arrant t o a member of the juven i l e court panel , s i t t i n g in p r i v a t e , who w i l l be under a duty to consider - bother any of the prescr ibed circumstances i s s a t i s f i e d and5. i f not , to refuse the app l i c a t i on .

( c ) I t w i l l be open to the magistrate to d e c l i n e to issue process i f , having regard to a l l tin- c ircumstances, he considers that., although one of the p resc r ibed circumstanc:. s i s satisfied.,, the case can appropr i a t e l y be dea l t w i th without recourse to prosecut ion .

2. Statutory Regulat ions w i l l :

(1) Prescr ibe the circumstances in vhich i t w i l l be poss ib le f o r cr iminal proceedings to be taken f o r an , a l l e g ed o f f ence , poss ib ly on the f o l l o w i n g l i n e s

( a ) the o f fence I s homicide or some o ther ser ious o f f e n c e ;

( b ) the o f f ence i s of a type causing much publ ic concern;

( c ) the young person appears not to be i n need of sustained support or treatment, but the nature o f the o f f ence and h i s home circumstances suggest that a court appearance and a simple de te r rent ( e . g . a f i n e ) would be appropr ia t e ;

( d ) the known circumstances of the young person or h is f ami l y ind ica te that ac t i on without the backing of a court order would not be l i k e l y to succeed;

( e ) the o f f ence i s a t r a f f i c o f fence carry ing 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 ence that r i l l remain e f f e c t i v e a f t e r he hoe reached 4 h e minimum age f o r ho ld ing a d r i v ing l i c e n c e ;

( f ) help or t reatnent on a vo luntary bas i s " ou ld not be f e a s i b l e because the young person does not r es ide i n England and wales or has no f i x e d ab ode;

( g ) the o f fence was committed in company with some other person, whether over or under' seventeen, who i s to be prosecuted.

( 2 ) Require en intending prosecutor of a young person t o inform the l o c a l author i ty be fore applying f o r a summons or warrant.

( 3 ) Confer on the l o c a l author i ty a r i gh t to be heard by a mag is t ra te consider ing an app l i c a t i on f o r a summons or warrant.

(ij.) Require the magistrate to take into account whether the l o ca l author i t y , or some other soc i a l agency, i s a lready engaged or proposes to engage in prevent ive work wi th the young person or h is fami ly and to consider the advice of he agency concerned.

(5) Empoi e r the magistrate ( a ) to require the attendance of l o ca l author i ty or p o l i c e representat ive ' : , i f e i t h e r or both are not present ;

( b ) t o adjourn the app l i c a t i on , e i th r f o r th is pui-qpose or so that fur ther i nqu i r i e s can be made by the l o ca l author i ty or a probat ion o f f i c e r , or by the p o l i c e .

( 6 ) Provide that a magistrate issuing a summons or warrant in respect of a young person sha l l not be a member of the court hearing the case.

3. The detai led, adminis t rat ion o f t h i s scheme w i l l depend to some extent on l o c a l arrangements, but w i l l be broadly as described below. (This scheme r e l a t e s only to cases where the ground on which ac t ion i s being considered i s the commission of an o f f ence . I t w i l l not a f f e c t ex i s t ing arrangements f o r taking ca r e , p ro t e c t i on or cont ro l proceedings on other grounds, or f o r he lp to be g i ven to ch i ldren and f ami l i e s by ch i l d r en ' s departments and, other s e r v i c e s . )

( 1 ) ( a ) The p o s s i b i l i t y of ac t i on on a vo luntary basis w i l l be considered only where the i n i t i a l i n v e s t i ga f ions by the p o l i c e ind ica te that the of fence is not denied.. Where i t becomes known at any stage that the ch i l d or h i s parents deny the o f fence he i s a l l e g ed t o have committed, i t w i l l be f o r the p o l i c e t o decide in the ordinary way vhether to apply f o r a summons or , v a r ran t i f one of the s ta tutory c r i t e r i a i s s a t i s f i e d , or to take no ac t ion .

( b ) In ca^es , r here the po i c e do not no'? prosecute, but e i t h e r take no ac t i on or i s r u e an informal warning, there ' i l l be no change.

( c ) Where i t seems c l e a r that , according to the prescr ibed c r i t e r i a , there i s bound to be a prosecut ion ( e . g . , in a case of grave cr ime) the p o l i c e w i l l apply f o r a summons or warrant, f i r s t informing the ch i l d r en ' s department of the l o c a l author i t y ; in cases of homicide i t w i l l remain poss ib le f o r the po l i c e to charge the a l l e g ed o f fender in the same way as at present, informing the c h i l d r e n ' s department.

^ h - - 2

a sI n c a s e s not dea l t w i th in ( - 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 inc lude , so far as they think i t necessary, assembling and cons ider ing the a va i l ab l e information about the c h i l d and his background ( e . g . , from h is t e a c h e r s ) , consu l t ing any others known to be invo lved a l ready with the c h i l d or h i s fami ly ( e . g . , the probat ion se rv i . c e ) , and a home v i s i t i f t h i s seems requ i red be fo re the c h i l d r e n ' s department can decide whether vo luntary ac t i on with the f am i l y would be worth attempt i hg,

(a ) I f , a f t e r th i s consu l ta t i on , i t i s agreed that voluntary act ion without the support of a court order should be t r i e d or continued, or that a formal caution would be appropr ia te , or that no ac t i on i s necessary, the case w i l l be deal t wi th accord ing ly and there w i l l be no app l i ca t i on fo r proce ss .

(b ) I f the p o l i c e and. the c h i l d r e n ' s dep rtment agree that i t i s a case f o r prosecut ion or f o r care , p r o t e c t i on or c on t ro l proceedings, process w i l l be app l i ed for a cco rd ing 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 to the magistrate f o r a dec i s ion , by the p o l i c e apply ing f o r a summons.

Where an app l i ca t i on f o r process i s made, the magistrate w i l l consider i t in accordance with the prov i s i ons set out in paragraphs 1 and. 2 (h ) and. (5) of t h i s Appendix. He w i l l take in t o account a l l the information g iven by the p o l i c e , the c h i l d r e n ' s department and the probat ion o f f i c e r where he i s concerned with the case and w i l l be f r ee to ask them quest ions and to d iscuss the circumstances and poss ib l e courses of ac t i on with them b e f o r e ' taki ng hi. s deci s i on .

I f vo luntary act ion i s t r i e d but the young person or his parents do n-t in the event prove to be c o ope ra t i v e , no further ac t i on w i l l be taken unless f resh grounds fo r court proceedings a r i s e . I f the young person offends again paragraph 2(1 ) ( d ) w i l l then apniy, and i t w i l l be poss ib l e t o apo ly f o r a summons or warrant i f prosecut ion seems the appro pr ia t e form of court proceed ings .

CO^IFI INITIAL

APPENDIX B

Minor and consequent ia l changes

iincillary procedure

1, Power w i l l s t i l l be r equ i r ed f o r the p o l i c e to take immediate preventive ac t i on where a ch i l d -under four teen i s found committing an offence,, In r e l a t i o n to an of fender aged, ten and under fourteen, they w i l l "be g iven powers to take him t o a p lace of sa f e t y in a l l circumstances i n which they would have power t o a r r es t without warrant an of fender of fourteen or over .

2, The e x i s t i n g power of the p o l i c e to take to a p lace of s a f e t y , without r e f e rence t o a mag is t ra te , a ch i l d or young person thought to be in need of care , p r o t e c t i on or cont ro l w i l l he re formulated. I t -/ill be made c l ear that t h i s power may p rope r l y be exerc i sed in situations where the p r o t e c t i o n of the ch i l d or young person c l e a r l y requires h i s immediate removal from the p lace where he i s found, although the p o l i c e are not in a p o s i t i o n to e s t ab l i sh straightaway whether i t w i l l be necessary to b r ing him be fo re a court .

3. where a young person aged f our teen and under seventeen i s arrested f o r an o f fence but not released, on b a i l , the case w i l l be referred to a magis trate w i th in 72 hours. The magistrate w i l l ' h a v e power to remand on b a i l , or to the care of the l o c a l author i t y , pending a dec i s i on whether court proceedings should be taken.

k. Adjustments w i l l be made in the powers of the courts to remand children and young persons in custody, and to make inter im orders . The e x i s t i n g law s p e c i f i e s in d e t a i l the p r e c i s e circumstances, in which children, and young persons of p a r t i c u l a r ages may be committed to pa r t i cu l a r types of i n s t i t u t i o n . These p rov i s i ons w i l l be replaced by a p r e v i s i o n that a l l remands (o therwise than on b a i l ) of young persons aged four teen and under seventeen sha l l be to the care of the l o c a l au thor i t y , and a l l in te r im orders f o r ch i ldren under seventeen sha l l commit to the temporary care of the l o c a l author i t y . The developments out l ined in Part V w i l l , in t ime, make i t poss ib l e to accommodate a l l these ch i ldren and young persons ( apar t from those accommodated in h o s p i t a l s ) in establ ishments prov ided or managed by local a u t h o r i t i e s . In the meantime, the Government w i l l continue to provide remand, centres or other establ ishments f o r those young persons aged four teen and -under seventeen whose behaviour i s such that they cannot be contained s a t i s f a c t o r i l y in l o c a l author i ty establ i shrnent s.

Amended- d e f i n I t i o n of " i n need of care , p r o t e c t i on or con t ro l "

5. As expla ined in paragraph 1h of th i s paper, one of the t e s t s in sect ion 2 of the Chi ldren and Young Persons Act 1963 i s that the child i s not r e c e i v i n g such care , p ro t e c t i on and guidance as a good parent may reasonably be expected, to g i v e . This t e s t w i l l be c lar i f i ed so as to make i t c l ea r that the court may proper ly consider not only the care , p r o t e c t i o n and guidance g iven d i r e c t by the child's parents , but a l so whether the parents are securing fo r him any care, p r o t e c t i on or guidance which they are not themselves able to give but which a good parent might reasonably be expected to secure f o r h i s ch i l d . This amendment w i l l apply to a l l ch i ldren up to the age of seventeen.

APPENDIX C

Intermediate forms of Treatment

1, The form of the proposals descr ibed in paragraphs 25-29 and this Appendix r e f l e c t s severa l important genera l cons iderat ions which were discussed in the Report "Non-Res ident ia l Treatment of Offenders Under Twenty-One" made in 19b2 by the Advisory Council on the Treatment of Of fenders, One such cons iderat ion i s that , where possib le , a c h i l d or young person under superv is ion should be t r ea t ed as a member of h i s l o c a l community and in assoc i a t i on with others of his own age, and treatment of th i s nature should not be r es t r i c t ed to groups of del inquents a lone . I t i s important there fo re to make the bes t co -opera t i ve use of a l l a va i l ab l e l o c a l resources and s e r v i c e s , both s tatutory and vo luntary , in p rov id ing su i t ab l e f a c i l i t i e s f o r th i s purpose. These w i l l vary from one area to another, and the bas i c r e s p o n s i b i l i t y f o r the i r p rov i s i on should be local rather than c e n t r a l . A second cons iderat ion i s that any form of intermediate treatment i s l i k e l y to be l e s s b e n e f i c i a l i f forced, upon an unw i l l i ng r e c i p i e n t . Voluntary bodies may p r e f e r not t o offer f a c i l i t i e s to those who make use of them only under compulsion and who might d is turb other users . But, whi le w i l l i n g acceptance of a ch i l d or young person of an intermediate form of treatment w i l l always be d e s i r a b l e , t h i s may not always manifest i t s e l f immediately. Much of the p o t e n t i a l b ene f i t of the new scheme would be l o s t i f i t s use were conf ined t o cases where i t was f r e e l y accepted r i g h t from the s t a r t . Th i rd l y , the need f o r cont inuing d iagnos is and f l e x i b i l i t y of response, descr ibed e a r l i e r i n . t h i s paper, app l i e s in a l l s i tua t i ons where a ch i l d or young person i s r e c e i v i n g cont inuing treatment. This means t...at there must be some scope f o r the supervisor to dec ide , w i th in l i m i t s f i x e d by the law or by the court, the p r ec i s e nature and t iming of intermediate treatment.

2. A. court which, in add i t i on to p l a c ing a ch i l d or young person under superv is ion , makes use of the new powers descr ibed in paragraphs 25-29 w i l l normally have r e ce i v ed r epor t s on him and his background- which ind ica te that one of the a va i l ab l e forms of intermediate treatment i s l i k e l y to be b e n e f i c i a l . He may a l ready have expressed h is w i l l i n gness to co -opera te , and there may be l i t t l e d i f f i c u l t y in s e l e c t i n g the most appropr iate form of t r e a t ment. In other cases he may be unw i l l i ng or uncer ta in in g rea te r or l ess degree , or the s e l e c t i o n of the appropr iate treatment may require a more ex tens i ve i n v e s t i g a t i o n of the circumstances them had. been poss ib l e be fo re the c o u r t ' s d ec i s i on . This c l ose r f ami l i a r i t y with the c h i l d or young person and h i s background may even ind ica te on occasion that none of the a v a i l a b l e forms of intermediate treatment would be appropr ia te . In such a case the supervisor would be f r e e to continue the superv is ion alone without additional treatment. Unless th i s i s so , the supervisor w i l l , as part of h i s general duty to he lp the ch i l d or young person and h i s family, t ry to secure the i r acceptance of the treatment which he selects. There i s l i k e l y to remain a minor i ty of cases where the supervisor i s unable to do so. The chances of a successful outcome fol lowing the use of compulsion may then be smal l . Equal ly there wi l l be cases where the ch i l d or young person and h i s parents co-operate f o r a time and then cease to do so. In such s i tua t i ons it w i l l be f o r the superv isor t o dec ide , according to h is assessment

of the s i t u a t i o n at the time and of the l i k e l y outcome of the courses of ac t i on open to him, whether to make use of the power of compulsion ava i l ab l e to him under the order of the court , with the sanct ion of b r ing ing the ch i l d or young person again be fore the court i f he re fuses to comply.

APPENDIX D

The p u b l i c s y s t e m o f community homes f o r c h i l d r e n

and young pe r s o n s

-I. T h e r e w i l l b e t h r e e c a t e g o r i e s o f community h o m e r

l o c a l a u t h o r i t y homes

a s s i s t e d v o l u n t a r y homes

C o n t r o l l e d v o l u n t a r y 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 w i l l b e to d i s t i n g u i s h the v a r i o u s c a t e g o r i e s o f homes, which w i l l b e s u b j e c t to d i f f e r e n t s t a t u t o r y p r o v i s i o n s . The a c t u a l t i t l e o f e a ch i n d i v i d u a l home w i l l b e f o r the l o c a l a u t h o r i t y e r manage r s t o d e c i d e .

Loca l a u t h o r i t y homes

2, Homes p r o v i d e d and m a i n t a i n e d b y l o c a l a u t h o r i t i e s , i n c l u d i n g e x i s t i n g l o c a l a u t h o r i t y a p p r o v e d s c h o o l s , w i l l b e known a s l o c a l a u t h o r i t y homes . I t w i l l b e f o r l o c a l 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 management,

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 9

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 the 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 I t w i l l t h e n b e t r a n s f e r r e d , a s a g o i n g c o n c e r n , t o 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 .

V o l u n t a r y homes

k* Tnese w i l l b e community homes p r o v i d e d , m a i n t a i n e d and 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 e f f o r t . The 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 an approved a r e a d e v e l o p m e n t p l a n . I n the ca se of what a r e new v o l u n t a r y a p p r o v e d s c h o o l s , i t w i l l b e 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 wh i ch 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 uneven g e o g r a p h i c a l d i s t r i b u t i o n o f a p p r o v e d s c h o o l s , h o w e v e r , a s c h o o l might e v e n t u a l l y b e i n c l u d e d i n the deve l opment p l a n o f a n e i g h b o u r i n g a r e a . I n the 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 manage r s t o make p r o p o s a l s to a j o i n t p l a n n i n g committee , o r f o r the committee to a p p r o a c h t h e m a n a g e r s , i f they 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 p u b l i c s y s t e m . N e i t h e r w i l l b e unde r any o b l i g a t i o n t o make or a c c e p t such p r o p o s a l s . The r o l e wh ich each e x i s t i n g v o l u n t a r y e s t a b l i s h m e n t p l a y s u n d e r a d e v e l o p m e n t p l a n w i l l depend upon the 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 p lan , ,

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 upp l emented by rules o f management to b e made b y the S e c r e t a r y o f S ta te , , He w i l l a l s o make an i n s t r u m e n t o f management c o n s t i t u t i n g the h o m e ' s manag ing b o d y y f o r the p u r p o s e s o f the p u b l i c system o f community homes , 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 he 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 w i th 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 to be i t s ma jo 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 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 9 t o whom c o n t r o l and use w i l l r e v e r t i f a t any t ime 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 t h e p r o p e r t y i s t h e n s o l d , o r i s used f o r any 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 p a y the E x c h e q u e r a sum e q u i v a l e n t to any v a l u e then a t t a c h i n g t o the p r o p e r t y as a r e s u l t o f the e x p e n d i t u r e of p u b l i c f u n d s .

50 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 o f the needs o f c h i l d r e n and young p e r s o n s , and f o r d e c i d i n g a l l o c a t i o n s to p a r t i c u l a r homes , t r a n s f e r s to 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 r e s t 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 0

Where the 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 a l s o be the 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 to 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 the 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 the c h i l d ' s c a r e , c o n t r o l o r t r ea tment , , Other d e c i s i o n s a b o u t the t r e a t m e n t o f a c h i l d w h i l e r e s i d i n g in a v o l u n t a r y home w i l l b e t a k e n b y the manage r s o r d i r e c t i n g s t a f f , w i t h i n t h e f r amework o f the g e n e r a l s t a t u t o r y r u l e s and the r u l e s fif management f o r each home,.

Assi^t^ed^ stajbus

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 an a s s i s t e d v o l u n t a r y home w i l l b e the r e s p o n s i b i l i t y o f the m a n a g e r s , who w i l l c h a r g e f e e s f o r the u s e o f f a c i l i t i e s t h e y p r o v i d e f o r c h i l d r e n i n the c a r e o f l o c a l a u t h o r i t i e s . I t w i l l b e 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 f o r i t i n the d eve l opment p l a n . The r a t e a t w h i c h b u i l d i n g work 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 depend on the c o u n t r y ' s economic c i r c u m s t a n c e s , .

80 The i n s t r u m e n t o f management 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 the managers t o b e a p p o i n t e d b y the t r u s t e e s o r o t h e r r e p r e s e n t a t i v e 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 e f these f o u n d a t i o n manage r s w i l l b e to e n s u r e t h a t the 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 eed 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 t he manage r s ( t h e r e p r e s e n t a t i v e 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 a u t h o r i t i e s w h i c h a r e i t s m a j o r u s e r s . I n the c a s e o f homes se rv ing 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 the S e c r e t a r y o f S t a t e .

9, R u l e s of management w i l l p r o v i d e t h a t the manage r s must a t 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 the c a r e o f l o c a l a u t h o r i t i e s , and must accept any c h i l d who i s recommended 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 f o r o b s e r v a t i o n and assessment , , They may a l s o be 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 , on the same c o n d i t i o n s , a f t e r r e a s o n a b l e n o t i c e h a s b e e n g i v e n b y t h e l o c a l a u t h o r i t y o r 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 manag ing body. I t w i l l b e open t o them t o a c c e p t a s many l o c a l a u t h o r i t y p l a c e m e n t s a s t h e y w i s b D Beyond the 50% of r e s e r v e d p l a c e s , o r the 75% i f the o p t i o n to I n c r e a s e i s 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 p a r t i c u l a r c h i l d w i l l b e r e q u i r e 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 deve l opment p l a n s , t h e S e c r e t a r y o f S t a t e w i l l n o r m a l l y b e p r e p a r e d t o a c c o r d a s s i s t e d s t a tus o n l y to homes w h i c h h a v e the s u p p e r t o f an 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 manag ing 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 f o u n d a t i o n ) ,

Cpn j ro l l - eq s t a t u s

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 the f o l l o w i n g t h r e e s p e c i f i c d i f f e r e n c e s , 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 and 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 assumed b y the 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 the r e l e v a n t 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 manage r s t o b e r e p r e s e n t a t i v e 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 . T h i r d l y , the Rules o f Management w i l l r e q u i r e 90% o f t h e p l a c e s to 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 c a r e o f l c c a l a u t h o r i t i e s , s h o u l d 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 community homes w i t h i n the p u b l i c sys tem w i l l b e 8

sub jec t to i n s p e c t i o n b y members of t he Home O f f i c e C h i l d r e n ' s I n s p e c t o r a t e . Minimum s t a n d a r d s o f a ccommodat i on , and genera l p r i n c i p l e s f o r t h e i r c o n d u c t , w i l l b e p r e s c r i b e d b y s t a t u t o r y 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 an 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 home, i n c l u d i n g d i spu te s a b o u t the f e e s c h a r g e d to l o c a l a u t h c r i t i e s 0

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