Underpinning the report, A Safer Way, is the idea the majority of women sent to Cornton Vale are a nuisance rather than a serious threat to the community and that they need not be behind bars.

The authors nail their colours to the mast on the fly-leaf by quoting the Prison Reform Trust's generalisation: ''The number of women prisoners who actually pose a grave danger to the general public can probably be counted on the fingers of one hand.''

Home Affairs Minister Henry McLeish emphasised to The Herald that he had taken a very tough stance on a number of issues since taking office - notably on sex offenders - and that by now forcing up the agenda the use of alternatives to custody, he was not watering down that approach.

''Violent and dangerous women need to be in prison and I have no problem with that. But in 1998 we must have a much smarter approach to some of the problems in society. The seminal issue here is that we are moving outwith the walls of Cornton Vale and getting down to the real causes of crime.''

That is the rationale behind the Glasgow steering group, that by working together the disparate parts of the criminal justice system can solve problems which as individuals they cannot.

''I want to see a range of community alternatives, because that is what the sentencers want and in a sense that is redefining what 'tough' really is. Sentencing people to prison, have them coming out after a few days and reoffending, then going back into prison again and again is not the way forward,'' said Mr McLeish.

The report points out that the number of fine defaulters imprisoned is a long-term problem for the system as a whole. The overall proportion of prison receptions for fine default in Scotland has been described recently as very high by international standards, accounting for 52% of receptions at Cornton Vale in 1995.

The prostitution-related prison receptions showing the startling differences between Glasgow and Edinburgh ''reflected long-standing differences in local policies'', the authors said, suggesting this should be examined in detail to see if lessons could be learned to inform long-term policy.

Women jailed for fine default were likely to be imprisoned for very short periods with little impact on their behaviour. But the resources required to process them through the criminal justice system and receive them into prison were considerable and methods to reduce the numbers had to be considered by police and local authorities.

On community sentences, there was compelling evidence suggesting that men and women offenders were dealt with differently by the system. Few women were offered a second period of probation and appeared to ''exhaust'' the range of community sentences sooner than male offenders.

In view of the minor nature of the offending and the severe associated problems for the women, deferred sentence would be a more appropriate route in many cases.

For some women, particularly chaotic repeat offenders, repeated short probation orders might be necessary and appropriate, and consideration should be given to these by social workers and sentencers where the offender was found to be in breach of existing probation or community service orders.

The authors also urge a review of specialist and supported bail accommodation to ensure that it can house, supervise, and support women, particularly those with severe drug or alcohol problems, who are rejected by other community resources because of their behaviour.

The Scottish Office said yesterday it intended to re-examine the availability of bail accommodation and the provision of social work support for people on bail to strengthen the confidence of the courts that bail conditions could be met in the community. The use of custodial remands for bail is more prevalent in the west of Scotland than elsewhere.

The Scottish Office also promised to examine the possible extension of tagging orders to bail offenders. Tagging pilot schemes start in Scotland later this year.

Mr Mcleish also accepted that women under 18 should be held in local authority secure accommodation rather than in Cornton Vale but was less clear on how this should be achieved. The small numbers involved would obviously mean a dedicated unit would entail high cost.

The report recommended the number of cells in Cornton Vale should be reduced over the next 18 months by adaptations to produce many more permanent double cells or bed-sit accommodation - a relatively inexpensive measure which would provide much-needed mutual support for vulnerable women.

The aim was to limit the female population, currently more than 170, to 100 or fewer on a daily basis by the year 2000.

''There should be regular reviews with the aim of keeping the numbers in prison restricted to those who are a real threat to the community rather than to themselves. Some of the conclusions in this study might equally apply to males.

''Society may have to accept that effective community penalties for women offenders are expensive; however, sending women to prison is more costly both in financial terms and in the loss of young lives and damage to many others,'' the authors state.

Mr McLeish added: ''It is not my job to influence or determine what sentences are handed out in the courts of Scotland. That lies with the judges and sheriffs and that is vital. What they deserve is a much wider range of serious, tough alternatives to custody and that is the challenge to me. I accept that challenge.

''The new Government has seen a problem, commissioned a report, and accepts the recommendations in that report and we will be judged by the actions we take.''