Peter Roffey, health and social services minister, said the consultation behind the proposals had concluded that giving a criminal record to children under 12 was inappropriate because they were not able to take full responsibility at this age.
Although the NSPCC recommended raising the age to 14, he said this would not be appropriate given the conservative nature of the local community.
Other measures include introducing child, youth and community tribunals for children who have broken the law, those at risk from abuse or neglect and those beyond control.
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