ANNUAL REPORT
APRIL 2017 TO MARCH 2018
INTRODUCTION This report explains Integrated Offender Management (IOM) and how our partnership approach to managing offenders helps keep people safe across Hampshire, Isle of Wight, Portsmouth and Southampton. This is a public report which seeks to: •• Explain how we work together to manage offenders to keep communities safer •• Illustrate the many complex needs and vulnerabilities which contribute to offending and how with the right support, people can change and positively contribute to society •• Reassure the public that those offenders who choose to offend despite being offered support are pro-actively targeted to help keep the public safe •• Highlight the IOM service to other public services and the third sector with the aim of strengthening referral pathways and taking a whole system approach to reducing crime •• Demonstrate to commissioners the effectiveness of the IOM service in reducing reoffending to inform future commissioning decisions •• Celebrate the success of Integrated Offender Management in 2017/2018 and look to the future, continually reviewing and improving the service
EXECUTIVE SUMMARY Integrated Offender Management (IOM) is a partnership approach to managing offenders whose crimes cause damage and harm locally. The outcome is safer, more vibrant and thriving communities, achieved through reducing re-offending and supporting people to live crime free lives. The IOM partnership includes the Police and Crime Commissioner, Hampshire Constabulary, the Community Rehabilitation Company, the Society of St James, Community Safety Partnerships, the National Probation Service, prison, housing, drug and alcohol services, mental health services, domestic abuse services, counselling services, debt management advice, education, employment and training and many more. Research suggests 7 key areas which impact on offending. These are commonly known as ‘the 7 pathways of offending’ namely: attitudes thinking and behaviour, education training and employment, drugs and alcohol, children and families, finance and debt, health and housing. IOM involves working closely with each offender and partners to identify the root cause of offending (based on those 7 pathways of offending) including any other complex needs and vulnerabilities. Safety plans are then developed and interventions put in place unique to each offender which aim to reduce re-offending. It is important to acknowledge the higher prevalence of need amongst female offenders, such as mental health problems, and self-harm. Many experience chaotic lifestyles which are often the product of a life of abuse and trauma; almost 60% of female offenders have experienced domestic abuse (Female Offender Strategy 2018).
The IOM scheme has achieved the following successes during 2017/18: •• 40% reduction in custody entrants •• 30% reduction in offences arrested •• 25% reduction in positive disposals
The IOM partnership continually reviews and improves the IOM service, and is currently reviewing the criteria. The current IOM criteria is: An OGRS score of 75+ (relating to acquisitive or violent offences), PPOs (Prolific Priority Offenders), Women under a 12 month licence 75+ OGRS score and ETOs (Emerging Threat Offenders).
POLICE AND CRIME COMMISSIONER, MICHAEL LANE Following his election in May 2016, the Commissioner wrote his first Police and Crime Plan. The Plan is a high level strategic document setting out the Commissioner’s vision and priorities for policing and crime reduction across the Hampshire Policing Area until 2021: VISION - Hampshire, the Isle of Wight, Portsmouth and Southampton are amongst the safest places to live, work and visit, so that people are empowered to realise their life opportunities. MISSION - You, your family, and your community safer. STRATEGIC PRIORITIES - To stand up for every resident; by being visible, accessible and accountable to the people he represents, ensuring their concerns are heard and addressed. The Police and Crime Plan contains four key strategic priorities: •• Champion community needs •• Strengthen Partnerships •• Enabling effective and efficient operational policing •• Reduce offending In 2017/18 the Commissioner invested £3,610,303 in the local community through a range of services to support victims and reduce offending. An element of this is allocated to ‘managing offenders’. Funding is invested through contracts (£1,882.680) for core services to safeguard the most vulnerable to crime, and through the annual Safer Communities Fund grant programme (£1,727.623).
HAMPSHIRE CONSTABULARY Hampshire Police Officers work within the Integrated Offender management (IOM) scheme alongside other partners and are co-located at various sites across Hampshire. Police have an awareness of all offenders registered on the scheme and understand who is engaging, and who continues to offend. Police officers build a rapport with offenders on the IOM scheme and make clear that they will support them, but will be proactive if they choose to carry on offending. Their role within IOM falls within ‘Catch and Convict’ which involves carrying out enforcement opportunities against those offenders, who despite all the help and support offered to them continue to offend. Those offenders who continue to offend despite being offered support are prioritised by the IOM team. Various tactics are used including liaising with frontline police officers to ensure that IOM nominals are arrested at the earliest opportunity so they cannot continue to cause harm to the community. Police seek to prosecute offenders who do not engage with the IOM scheme and maintain involvement throughout the court process, keeping all partners up to date on the progress of each case. This can result in the offender receiving a prison sentence, and in these circumstances police continue to work with them whilst in prison. Once released from prison, police ensure the offender knows they are still involved in their management. IOM offenders are offered lots of support, and those who continue to offend are deemed the highest risk of re-offending and are targeted by the police in order to keep people safe. Regular visits are made to the IOM houses by police in support of the residents and IOM House staff. Police also have access to GPS tags which they encourage higher risk offenders to wear. This has proven to be a good preventative measure and keeps the IOM offender’s mind away from offending knowing that police would be able to place them at any crime scene due to GPS technology. If they choose to offend (which has happened on a couple of occasions), police use the data as part of their evidential package for the prosecution. ‘Working in IOM as a police officer is a unique role which is challenging and rewarding’. Insp 2758 Glen Stanford - IOM Police Inspector
POLICE IOM RE-OFFENDING DATA The following illustrates all those who were entered the IOM scheme in 2016/2017, and how the custody entrants and offences changed over two years. Then concentrating on 2017/2018, the report highlights the reductions in re-offending over those twelve months. In an attempt to measure the effectiveness of the IOM scheme it was decided to focus on re-offending rates to help determine whether or not the IOM scheme was having a positive impact. In order to measure re-offending rates, cohorts were created and the activity of each cohort was measured for the subsequent 2 years on a quarterly basis. The baseline was determined by measuring the activity of each cohort during the quarter (a 3 month period) prior to the registration period. Over the monitoring period, the number of times each person was arrested, the number of offences they were arrested for, and the number of positive disposals issued in custody were measured. Between 1 April 2016 and 31st March 2017 284 people were registered with the IOM scheme. For this group, between the baseline period (January-March 2016) and the last monitoring Quarter (January-March 2018), there was a: •• 39.6% reduction in custody entrants •• 16.9% reduction in offences arrested •• 4.4% reduction in positive disposals For the 2017/18 performance year, within this group there was a:
•• 40% reduction in custody entrants •• 30% reduction in offences arrested •• 25% reduction in positive disposals
Prepared by Hampshire Constabulary, Intelligence, Tasking and Development
SOCIETY OF ST JAMES The Society of St James in partnership with the Police and Crime Commissioner, Hampshire Community Rehabilitation Company (CRC) and Hampshire Constabulary delivers the Hampshire Integrated Offender Management Service (HIOMS) across the Hampshire area. The HIOMS service is commissioned by the Police and Crime Commissioner and provided by the Society of St James. Integrated Offender Management (IOM) brings a multi-agency response to crime and reoffending threats faced by local communities, by managing persistent and problematic offenders (“Service Users”). The HIOMS Service aims to provide specific specialised interventions to substance misusing IOM Service Users and is responsible for the coordination of a range of interventions designed to assist those within the IOM cohort to reduce their offending and aid their recovery from drug and alcohol dependency. HIOMS also assists service users to access housing services, education, training and employment, children and family services, health support services, finance and debts and Attitudes, Thinking and Behaviour support services, plus a range of additional ‘wrap around’ services in order to 'Break the Cycle' of their offending behaviour.
SOCIETY OF ST JAMES IOM HOUSES IN GOSPORT, PORTSMOUTH AND SOUTHAMPTON The Society of St James own and manage three IOM houses (20 bed-spaces in total) in Southampton, Gosport and Portsmouth. The IOM houses deliver specialised support housing to a maximum of 30 offenders per annum. Additional grant funding from the Police and Crime Commissioner, Community Rehabilitation Company and Portsmouth City Council pays for a support worker in each of the 3 IOM houses. The IOM houses are primarily for offenders leaving prison with a substance misuse issue, and they encourage healthy lives free from crime and substance abuse. The IOM houses offer support to adhere to the ‘no drug and alcohol’ rules and a minimum standard of expected behaviour. Residents must comply with a weekly timetable of meaningful activities and engage with peer mentors. Activities include sports and leisure, accredited courses and life skills. Residents are also offered group work and one to one support, as well as volunteering peer support. Residents are given random drug and alcohol tests to ensure they are obeying house-rules, and a warning system operates for those found breaking them. Whilst there is a strong ethos around ongoing, and intensive support, residents are sometimes regrettably evicted if they are unable to obey the rules. This helps those residents who really want to change as they may also be supported by more positive peers. IOM staff provide incentives to reward positive changes, for example, the offer of one of the larger bedrooms when things are going well e.g. someone is managing their budget better.
The IOM House Support Workers’ help residents tackle underlying causes of offending. This may include issues connected with: unemployment, housing problems, attitudes, thinking and behaviour, drug and alcohol abuse and mental health issues. The IOM Houses offer intensive support to help residents positively thrive within their communities, for example, support abstaining from drugs and alcohol, completing housing benefit applications and registering with local amenities e.g. GP, Dentist, drug/ alcohol support groups. Resident Quotes •• The atmosphere is safe & friendly and the house is clean •• I would have been back in jail if I didn’t have somewhere like this to come to when I was released •• Before I moved here I never worried about tomorrow or had goals •• I got over anxieties and was able to attend groups with support from the house
1ST APRIL 2017 - 31ST MARCH 2018 Referrals - 134 Accepted - 84 Moved in - 62 Evictions - 33 Positive move-ons - 15
Residents into Training, Voluntary Work and Paid Employment Training - 16 Voluntary Work - 23 Paid Employment - 8
The latest figures supplied by the police showed residents in the IOM Houses have a 50% reduction in re-offending.
CASE STUDY Before moving into the IOM house ‘Person X’ didn't hold out much hope for their future. They were addicted to heroin and crack cocaine and would commit crime daily to fund their habit. ‘Person X’ was eventually sent to prison, and was told about the IOM House by their probation worker. ‘Person X’ initially found the IOM House daunting as they hadn’t lived in a clean, safe environment for so long and weren’t sure how to cope. ‘Person X’ found everyone helpful and supportive which made things easier, describing the house as being like a big extended family. With support ‘Person X’ started working voluntarily and completed several college courses before taking up full time paid employment. ‘Person X’ is now living independently in their own flat and has regained access to their child. This is the longest ‘Person X’ has ever been free from using drugs and not committing crimes. ‘Person X’ was in the IOM House for 9 months.
Quote from Person X “If someone had told me this time last year that this is where I would be now I would have never believed them! The IOM house in my eyes has saved my life and will do many others that are willing to put in the work for their recovery anything is possible you just have to believe!” Quote from Society of St James – ‘We believe the IOM Houses to be a unique model because we are offering housing and opportunities to offenders who would usually be excluded from good quality accommodation. We offer a positive drug free environment where we bring together all the enhancements of the IOM scheme including access to training and education courses, paid employment, sports therapy and substance misuse treatment. Residents are given the best possible opportunities to escape addition and crime and this is exactly what we see happening! These houses are exceptional value for money; they are like a min rehab centre but only for a fraction of the cost! The House, the rent, the night security and many of the intervention are totally free to the IOM scheme and the resident. The only cost is the IOM Housing worker attached to each house’.
“The IOM house in my eyes has saved my life...”
THE COMMUNITY REHABILITATION COMPANY (CRC) The CRC approach to the IOM scheme is based on desistance and best practice research. The model is called ‘interchange’ and has 3 parts: INTERACT – Delivering 6 core modules which are Induction, Assessment, Planning, Networking, Review, and Exit whilst building a good working relationship with the service user. INTERVENE- selecting from a range of interventions delivered by the CRC or partner agencies. INTEGRATE- linking into the local community, finding constructive activities and developing supportive relationships to assist in building a crime free lifestyle. Interventions include: •• Accredited programmes – group work which has an evidence base •• DID - Drink Impaired Drivers (people with an excess alcohol conviction) •• BBR – Building better relationships (for medium to high risk domestic abuse perpetrators (men only) •• Resolve – for violent offenders •• TSP – Thinking Skills Programme •• Structured interventions •• HELP – Programme for low to medium risk domestic abuse perpetrators (men only) •• CSR – Creating Safer Relationships 1:1 Domestic abuse intervention •• IKON – Increasing Knowledge of New Psychoactive substances •• STAR – Shoplifting and Theft Activity requirement Others: •• ETE (Employment, Training, Education) •• Substance misuse •• Victim Empathy •• Parenting classes •• Women’s specific interventions •• Accommodation support •• Mental Health support •• Positive recreational activities •• Emotional management •• Attitudes which support crime
IOM cases currently on community sentences were identified from the HIOW CRC caseload using the IIOM register. These CRNs and sentence start dates were input to the OASys National Reporting system in order to extract assessment data in order to crossreference and identify criminogenic needs. Needs were identified in 262 current IOM cases, which the following analysis covers. Looking at registers 262 IOM cases were identified as currently being supervised by HIOW CRC within the community. Comparing the proportionality of these cases by operational hub reveals that IOM cases in the West are 7% under proportional, 5% over proportional in the North and 2% over-proportional in the East hub.
A comparison of the current IOM cohort across the hubs reveals that females constitute a greater proportion at 18% than they do on general caseload (16%). The gender-split contrasts across the hubs with females in the East making up nearly twice the proportion they do on the general caseload at 29%, while the proportions of females in the West and North remain within ‘normal’ levels. Again we see a more varied picture with analysis of age groups. The East has the lowest proportion of the under 25s at only 7% with a much greater proportion of those between 30-39 at 59%. By contrast the under 25s constitute 22% of IOM cases in the West and 12% in the North hub. A similar contrast is seen with the 30-39 years group that makes up 40% of the IOM West cohort and 43% in the North.
The chart above shows needs by hub with comparison with the whole IOM cohort. Again we see some variation across hubs with attitudes, alcohol misuse, homelessness and wellbeing greater issues in the North than in other hubs, whereas these seem less problematic within the West. Finance, lifestyle and drug misuse appear slightly more of an issue in the East. Further comparison of criminogenic needs across genders within the IOM cohort, as shown in the charts below, demonstrates that Lifestyle, drugs and finance are slightly more pertinent issues among females, with all female IOM cases in the East hub affected by drug misuse and nearly as many afflicted by finance issues. Males in the North appear to be more affected by emotional wellbeing, accommodation and being of no fixed abode. Alcohol misuse in the North appears to be more of an issue in female cases while homelessness impacts male cases more. Finance, drug misuse, accommodation and lifestyle appear to be more pertinent issues within the East. This is found particularly within women, where 43% of female cases are of NFA status. There is nothing in the West hub to cause concern as all needs are proportional, or under proportional.
Attitudes, accommodation and homelessness, relationships and emotional wellbeing appear to be key issues that may impact on service users’ motivation to move away from a life of offending as analysis has revealed that these needs are greater in those with greater barriers to addressing their lifestyle choices.
SUBSTANCE MISUSE As seen earlier drug misuse is more of an issue within the East with the highest number of IOM drug users across all three hubs at 61 cases, (70% compared with 69% in the North and 56% in the West). Looking at how motivated these drug users are to curb their addictions the picture is fairly bleak in the East and North, where only around 15% are motivated to address their drug misuse. This increases to 22% in the West. Around 20% have significant problems with drug misuse across all three hubs.
Charts show responses to OASys Sec8, Q9 and Sec8, Q2 The data strongly suggests that alcohol misuse is less problematic than drug misuse within the IOM cohort as 98 cases have been identified as ‘problem drinkers’ compared with 169 cases with drug misuse issues. Expressed in proportional terms alcohol causes criminal behaviour in 37% of this cohort while drug misuse affects the behaviour of 65%. Analysis of alcohol misuse suggests that there are greater problems with significant misuse in the North where alcohol promotes criminal behaviour in 46% of cases, compared with 34% in the East and 33% in the West. Similarly there is a greater proportion of cases that appear to have difficulty in motivating themselves to resolve their troublesome drinking in the North.
EMOTIONAL WELLBEING Analysis indicates that 68% of this cohort has difficulty with psychological problems or depression, T increasing to 72% in the East. Difficulties with mental health appear to be more of an issue within females in the East 82% (n19) and the North 92% (n12). It is disappointing to see that only 22% (n139) of these cases are taking any medication for their conditions and this appears to be more prevalent in those between 21 and 35 years of age. Further analysis reveals that 70% (n96) of those who are not medicated for mental health conditions are using illegal drugs. This is particularly marked in the North where 83% (n34) are misusing drugs while their mental health is un-medicated.
Charts show responses to OASys Sec9 , Q1 and Sec9, Q5
LIFESTYLE/THINKING AND BEHAVIOUR The great extent of substance misuse and psychological problems, that are all too often co-occurring, within this cohort should signal some awareness of cognitive deficit presenting in these cases. Looking at general lifestyle responses illustrate quite heavily entrenched criminal lifestyles as very many engage in pursuits that result in offending. Analysis indicates that work with cases to better encourage foresight into potential outcomes of their activity would be extremely beneficial as understanding the consequences of their actions is particularly problematic within this group.
Charts show responses to OASys Sec7, Q2 and Sec11, Q5
Similarly we see a great amount of difficulty with being able to identify situations or things as ‘problems’. One of these may indeed be drug or alcohol misuse, as if it is used as succour it certainly won’t be viewed by the user as a problem. Considering how entrenched these lifestyles may be these individuals’ scope for finding more beneficial alternatives will be very limited, therefore work to present and encourage more favourable habits and goals will be a particular challenge. The ability to view a problem as something disadvantageous appears very difficult within the IOM cohort likewise taking sensible steps to resolving these difficulties will feel very challenging.
Sec7, Q2 Ability to recognise problems Sec11, Q7 Awareness of consequences Sec11, Q5 Ability to recognise problems Q7 Sec11, Q6 Problem solving skills
THE NATIONAL PROBATION SERVICE (NPS) OUR PURPOSE – PREVENTING VICTIMS BY CHANGING LIVES Our work is about people: reforming those sentenced by the courts; keeping the public safe; and giving our staff – working across probation, prison and headquarters – the tools and support they need to do this.
OUR VALUES Purpose – We implement the sentences and orders of the Courts. We prevent victims by changing lives. Humanity – We believe that lives can change for the better. We work to encourage hope and to provide opportunities for rehabilitation. We treat everyone with decency and respect. Openness – We are fair. We know that clear and just decisions make a difference in our work. We are transparent about what we do and look to learn and innovate to do better. Together – We value diversity. We work across prisons, probation and youth custody and with our partners and providers to make a positive difference to communities.
NATIONAL PROBATION SERVICE LOCAL DIVISIONS This local IOM management is manged under the South West South-Central Division. Within this there are two Local Division Units (LDU), Hampshire and Portsmouth, Southampton and the Isle of Wight LDU clusters that cover the entire Hampshire locality. The National Probation Service are allocated cases at court that fulfil the following criteria: •• Sentenced under Multi Agency Public Protection (MAPPA) - Public Protection Sentences under CJA 2003. •• Cases not sentenced under ‘Public Protection’ but are assessed at the outset as posing a High Risk of Serious Harm. •• Cases in which there is an exceptional public interest and therefore management being retained by the NPS •• Cases of Foreign National Offenders who are sentenced to 12 months’ immediate imprisonment or more and/or who are recommended by the sentencing court for deportation. •• For those cases where the courts have deferred sentence, the NPS will act as supervisor for the period of deferment until the point of sentence Experience shows the value of IOM at both the strategic level, bringing greater crossagency coherence to the response to the crime and reoffending threats faced by local communities, and at the operational level, effectively managing locally identified cohorts of persistent and problematic offenders. In so doing, IOM helps to improve the quality of life in communities by reducing the negative impact of crime and reoffending, reducing the number of people who become victims of crime, and helping to improve the public’s confidence in the criminal justice system.
THE KEY PRINCIPLES (FEB 2015) IDENTIFIED THAT REFLECT THE ESSENCE OF IOM ARE: •• All partners manage offender’s together Although the NPS do not currently have co-located teams, we ensure that a local approach to IOM management is cohesive and offers offender ‘pathways out of crime’. There is no single governance for IOM and our local arrangements reflects the identified needs of our local communities. •• To deliver a local response for local problems The purpose of a crime and reoffending profile is to enable all partners to see and understand available information and intelligence that shape our Cohorts and interaction with those we manage. This ensures that we target the most persistent offenders likely to reoffend whose history demonstrates the requirement for the cohesive approach that IOM delivers. •• All offenders potentially in Scope This ensures that all partners have a coherent framework in place to ensure that no offender ‘falls through the gaps’ between programmes and approaches. This also requires a framework that eliminates duplication and overlap of local arrangements. This is specifically relevant for the NPS who already have cohesive engagement with the Police under the MAPPA arrangements. Therefore, those who are identified as beneficial for the IOM and registered under MAPPA are recognised under two Police initiatives – partners need to be assured in these incidents that IOM support will ‘add value’. •• Offenders facing up to their responsibility or facing the consequences of behaviour This centres around the ‘carrot and stick’ approach - rehabilitation to those who engage and make active change, and swift justice to those who continue to offend. •• Make use of the existing programmes and governance arrangements IOM needs to ‘add value’ and not duplicate existing arrangements. The statistical data captured under IOM scheme and the regular reviews of all existing cases by partner agencies demonstrate the progress and change achieved. This includes de-registering those who have achieved desistance from crime and achieved to secure social capital. •• To achieve a long-term desistance from Crime IOM partners put ‘exit strategies’ in place for offenders who come to the end of formal supervision, to ensure that they remain prioritised for interventions while they still pose a risk of further crime and reoffending. By ensuring that only those cases where IOM can ‘Add Value’ are referred into the scheme, the numbers of NPS offenders that are actively being manged are small in number. This is partly due to the majority of NPS cases being supervised under the police responsibility for MAPPA, which takes precedent. Though, the number of cases that have being referred and accepted has increased over the past 6 months due to the change in the cohort criteria. We are committed to continuing to develop and improve our engagement under IOM alongside our partner agencies to reduce the disruption, damage and harm caused by the small number of individuals who commit crime.
CONCLUSION This is the first IOM Annual Report. The intention is to produce a report each year from April 2019 to March 2020 which reflects on the successes of the past, and keeps our focus on development and ensuring IOM evolves and continually improves. A report will not be published for April 2018 to March 2019 as the IOM criteria is currently being reviewed and updated and the new ‘IOM model’ will be embedded during 2018/2019. It is well evidenced throughout this report how taking an integrated approach to managing offenders makes communities safer and reduces offending. The outcome is safer, more vibrant and thriving communities, achieved through reducing re-offending and supporting people to live crime free lives. ‘People make choices and behave in ways which cause hurt and harm to others and wider damage to our society. It is right that we punish those behaviours and expect individuals to take responsibility for their actions. However, that is only part of the story. Offenders are part of our society and we must take steps to understand and address the underlying causes of offending, if we are to improve the lives of victims and support offenders to turn their own lives around. The evidence shows us that vulnerability is not just a consequence of crime. It can also drive offending behaviour and prevent people from breaking out of a cycle of reoffending’ (Rt. Hon David Gauke MP Secretary of State for Justice).
“We must take steps to understand and address the underlying causes of offending...�