Major's government was generally seen as hard-line on law and order issues, especially after Michael Howard became Home Secretary in 1993. Howard aimed to reform a criminal justice system he saw as being overly lenient on offenders, famously stating that "prison works", and over the course of the decade prisoner numbers grew by a third. The controversial Criminal Justice and Public Order Act was passed in 1994 which aimed to crack down on New Age travellers, squatters, fox hunt saboteurs and illegal raves, as well as ending the 'right to silence' of an accused person, allowing for inferences to be drawn from their silence, and increasing police powers of 'stop and search'. Police numbers and the use of CCTV also increased during the 1990s. These initiatives took place against a background of public and media concern with high crime levels, aided by the media's depiction of a seemingly lawless 'underclass', with such high-profile crimes as the killing of the toddler James Bulger by two young boys in February 1993 and the murder of headteacher Philip Lawrence as he attempted to stop an attack on one of his pupils in December 1995. The rise in the number of single mothers was also touted as evidence of moral decay in society by many Conservatives, and the Child Support Agency was created to chase absentee fathers failing to financially contribute to their children's upbringing. Severe curbs on handguns were also brought in on the recommendation of the Cullen Enquiry, set up following a school shooting in Dunblane, Scotland in 1996 in which 16 children and a teacher were shot dead.