IRC
Cat IRC
Key Concerns Identified
Positive Findings
Heathrow Immigration Removal Centre
IMB Annual Report 2021 · Published 28 June 2022
The IMB report for Heathrow IRC (Jan-Dec 2021) identifies generally safe conditions but raises serious concerns regarding the management of Short-term Holding Facility (STHF) detainees, particularly South Coast Arrivals (SCAs), which compromised safety and humane treatment. Significant issues include the inappropriate detention of individuals with severe mental health needs, a critical lack of engagement from the Detention Engagement Team (DET), and unacceptably prolonged detention periods for many. The Board calls for urgent policy reviews, capital investment in infrastructure, and improved communication and service provision to address these systemic problems.
Positive Findings
The Board commends the contractor for their efforts at managing the Covid-19 virus during challenging times and for maintaining a good provision of services throughout lockdowns. Staff demonstrated professionalism and care, particularly by officers in the Care and Separation Units and during the 'home delivery' shop service. The centre has shown a continual shift towards focusing on detainees' needs and sensitivities, with positive impacts on the atmosphere and the provision of stress-reducing activities. The IMB also noted adequate food provision, generous portions, and popular cultural kitchens.
Key Concerns
Safety
The arrival and management of SCAs in the STHF area severely compromised safety for the SCA men, for existing detainees and for staff. Overcrowding on arrival and truncated health assessments were particularly evident and created unacceptable pressures.
Regime/Time Out of Cell
The situations described later in this report relating to the use of the domestic visits hall on the arrival of significant numbers of SCA were neither fair nor humane.
Mental Health
We remain concerned that people who are mentally unfit for detention are still being detained. Furthermore, for some detainees, the IMB feels that failings of the detention engagement team (DET) to engage effectively may have contributed to feelings of frustration and powerlessness, potentially leading to incidents of self-harm. We do not believe that the immigration detention estate (IDE) should be expected to take responsibility for those who are mentally or physically unfit for detention.
Complaints/Property
The ongoing lack of engagement by DET remains one of our biggest concerns. The Board considers that the lack of face-to-face, or even, in many cases, basic telephone assistance is unfair.
Mental Health
Repeated
The Board continues to observe detainees arriving at the centre with severe mental health issues, often exacerbated by overly-long periods of detention. We suggest that, as last year, this highlights shortcomings with the detention gatekeeping process.
Resettlement/Release
The Board is concerned about the number of detainees recognised as particularly vulnerable to harm in detention and placed on the adults at risk (AAR) register, specifically those at level 3 (the highest level), who remain in detention for prolonged periods of time with no imminent chance of removal. We do not believe that their lengthy detention is fair.
Segregation
The repeated use of the CSU to house detainees with severe mental health conditions for prolonged periods of time is not fair.
Resettlement/Release
Repeated
The Board repeats its concern from previous years that too many detainees are held for unacceptably long periods of time with no chance of imminent removal. Although fewer detainees were held for extended periods in 2021, there are still too many, with the worst example being 815 days.
Resettlement/Release
The Board observed little progress in 2021 with the time taken to find suitable bail accommodation for detainees once bail had been granted in principle. In a number of cases the Board observed an apparent lack of constructive communication between the Home Office and Probation Service, leading to extended periods of time for time served foreign national offenders (TSFNO) detainees within the IDE.
Estate/Conditions
Repeated
During the course of 2021, issues relating to heating and ventilation remained to the fore, with different units experiencing problems with temperatures in rooms and communal areas. We reiterate that we believe that a major investment is required to resolve the issue.
Food/Catering
Food does, however, remain the source of a small, but vociferous, number of verbal and written complaints to members of the Board. It also came up on nine separate occasions during DCC meetings. The menus unfortunately ceased including photos of food, thus making it more difficult for detainees whose first language is not English to understand what was being offered.
Board Commentary
Staffing
Staffing levels remained at pre-pandemic levels throughout 2021, resulting in a high staff-to-detainee ratio. Despite 145 staff testing positive for Covid-19, the contractor continued to fulfill service obligations. Staff are commended for their efforts to minimise violent incidents through de-escalation techniques. However, some wellbeing initiatives were put on hold due to staff being redeployed to manage the influx of South Coast Arrivals. Recruitment challenges were noted for the Detention Engagement Team (DET), and the mental health team within healthcare was seriously understaffed.
Healthcare
Healthcare provision is generally good, with Harmondsworth having extensive primary healthcare facilities including inpatient wards, while Colnbrook has a GP clinic setup without inpatient capability. The Board welcomes the ongoing good provision of primary healthcare during the pandemic, and complaints about healthcare declined. However, the Board firmly believes that detainees with severe mental health needs are not being met and should not be held in the centre, reiterating this concern from previous years. There was only one mental health transfer in 2021, despite 2,825 referrals. Staffing gaps remain in important healthcare roles, particularly in mental health.
Regime & Daily Life
The regime was significantly impacted by the pandemic, with times altered and staggered, and units put into isolation, leading to reduced access to activities. The designation of Cedar and Dove units as a Short-term Holding Facility (STHF) for South Coast Arrivals (SCAs) led to challenging situations including overcrowding and the temporary, inhumane use of the domestic visits hall as a makeshift dormitory. Cleanliness in STHF units deteriorated due to actions of some detainees and overwhelmed cleaning teams. Recreational space is limited in units, particularly in older hostel-style accommodation. Ongoing issues with heating and ventilation require major investment, and there were continued complaints about food quality, range, and lack of explanatory photos on menus.
Applications to the IMB
Prisoners can apply to their IMB about any aspect of their treatment. This table shows application counts by category.
| Category | Current | Previous | Change |
|---|---|---|---|
| Accommodation (including transfers) | 45 | 38 | |
| Activities (including access to education, gym, recreation, religious facilities) | 23 | 18 | |
| Communications (including access to phones, computers, internet, post) | 15 | 16 | |
| Detention (concerns about reasons for detention, length of detention, bail issues) | 261 | 219 | |
| Facilities (concerns about repairs, amenities, cleanliness, heating, water) | 28 | 21 | |
| Finance (including wages, banking, foreign currency) | 4 | 6 | |
| Food | 24 | 25 | |
| Healthcare (including medical and mental health) | 153 | 172 | |
| Immigration case issues (concerns about documentation, interviews, appeals, removals) | 494 | 371 | |
| Other | 7 | 10 | |
| Property (including clothing, laundry) | 38 | 39 | |
| Staff behaviour (concerns about treatment by staff including bullying) | 23 | 27 | |
| Total | 1,124 | 925 | |
| Visits (including legal visits, family visits, restricted visits) | 9 | 13 |
Recommendations (17)
Ministry of Justice: 3
Home Office: 7
Governor / Director: 4
NHS / Healthcare Provider: 3
5 repeated
Recommendation 1
Repeated
Prev. unaddressed
The policy which results in people with severe mental health issues being held in IRCs should be reviewed. Despite the introduction of a new Detention Service Order (DSO) published in June 2020 on ‘mental vulnerability and immigration detention’, the Board feels that further action is necessary as the problem remains.
Ministry of Justice
Mental Health
Recommendation 2
Repeated
Prev. unaddressed
Much more needs to be done to remove TSFNOs on completion of time served, rather than moving them to the IDE before making arrangements for their removal. Despite a new operating model being introduced by the Ministry of Justice in 2021, the Board still observed too many TSFNOs entering HIRC to begin their immigration detention.
Ministry of Justice
Resettlement
Recommendation 3
Given ongoing recruitment challenges faced by the DET, consideration should be given to using alternative resources, such as the contractor, to provide some services currently the responsibility of DET but which they appear unable to deliver.
Ministry of Justice
Staffing
Recommendation 4
Repeated
Prev. unaddressed
DET should immediately restore face-to-face contact by the engagement officers and systematically track its occurrence.
Home Office
Complaints
Recommendation 5
The Home Office should not routinely allow telephone conversations as a substitute for face-to-face engagement with detainees, and should hold frequent, well-advertised surgeries in both Harmondsworth and Colnbrook to provide additional interaction with detainees.
Home Office
Complaints
Recommendation 6
The Home Office must find ways to stop using the CSU as a way of managing vulnerable detainees with mental health issues.
Home Office
Mental Health
Recommendation 7
DET needs to review the process for providing mobile phone numbers for engagement officers to ensure detainees are guaranteed access to a human being.
Home Office
Complaints
Recommendation 8
The Home Office should consider ways of improving the multi-disciplinary team (MDT) reviews in the CSU in order not to ‘overcrowd’ or overwhelm detainees.
Home Office
Mental Health
Recommendation 9
Repeated
Prev. unaddressed
The Home Office should fund a complete overhaul of the heating and ventilation system on both sites.
Home Office
Estate
Recommendation 10
The Home Office should fund a complete replacement of the core lift in Harmondsworth – vital for enabling detainees with mobility issues to access healthcare.
Home Office
Estate
Recommendation 11
C&C should more proactively market the availability of the comprehensive educational activities via the use of direct text messaging to detainees and other tools.
Governor / Director
Education
Recommendation 12
C&C should consider working more closely with the healthcare provider to maximise the value of the care suite for respite care for vulnerable detainees.
Governor / Director
Healthcare
Recommendation 13
C&C should review the translator service from thebigword to one which enables access to a wider pool of translators.
Governor / Director
Equality
Recommendation 14
C&C should be more nimble regarding food selection to accommodate the varying detainee population, and better anticipate changing legislation on food safety (eg: Natasha’s Law). To help detainees with limited command of the English language, menus should always be provided with explanatory photos, reflecting the choice available each week.
Governor / Director
Food
Recommendation 15
Repeated
Prev. unaddressed
The healthcare manager’s efforts to achieve full staffing should continue to be supported, especially in the area of mental health, which is seriously understaffed.
NHS / Healthcare Provider
Staffing
Recommendation 16
The healthcare provider should continue to review how they communicate with detainees, especially in relation to the role of the person the seeing, and the associated benefits – for example, promoting the benefits of seeing a nurse. The Board observes that many detainees do not attend a medical appointment they have booked, as they are unsure about seeing a nurse instead of a doctor.
NHS / Healthcare Provider
Healthcare
Recommendation 17
The healthcare provider should review the high level of ambulance call outs given they have a 24/7 fully-serviced medical suite on site.
NHS / Healthcare Provider
Healthcare