Probation in England and Wales Systems for Delivering Effective Practice

Transcription

1 Probation in England and Wales Systems for Delivering Effective Practice Workshop on Adult Intervention Programmes in Probation Services Antakya th May 2011

2 Agenda Introduction: The National Offender Management Service Structure, Legislation, Strategy Changing Lives and Making Communities Safer Systems for delivering Effective Practice Assessment Offender Management Interventions and selection of offenders Conclusion: Probation, Prisons and Communities working together 2

3 Introduction:- The National Offender Management Service (NOMS) of England and Wales 3

4 What is NOMS? Preventing victims by changing lives The National Offender Management Service (NOMS) was created as an executive agency of the Ministry of Justice in April 2008 with the goal of helping prison and probation services work together to manage offenders throughout their sentences. NOMS Prisons Probation Offender 4

5 How NOMS works Public Private Civil Society We operate through providers and partners in the public, private and civil society sectors to manage offenders in an integrated way. Our work protects victims and makes communities safer. What work needs to be done and who does the work is based on evidence and driven by ensuring value for money for the public. 5

6 NOMS Structure 1 HQ Locally- 136 Prisons (125 public 11 Private) 35 Probation Trusts 6

7 Some Facts and Figures (March 2011) 125 Public Prisons 11 Private Prisons 85,000 Prisoners 154 Prisoners /100,000 of Population Pre-trial 15%, Female 5%, Occupancy fallen 107% - 97% NOMS caseload 240, ,000 New prison admissions (remand/sentenced) 205,000 New community cases per year 165,000 Community orders, 67,000 Unpaid work orders, 106,000 EM 45,000 Staff directly employed 7

8 Responsibility of the NOMS Agency 1. Commission Adult offender services in custody and the community from public, private and civil society organisations 2. Provide public sector prisons 3. Oversee Trusts which provide public probation services 8

9 The Sentencing Framework 9

10 Purposes & Principles of the sentencing framework Purposes of Sentencing Punishment Public protection Reduce re-offending Rehabilitation Reparation Principles of sentencing Fair and proportional, according to: Seriouseness, (harm, culpability, persistence) Prison sentences delivered in prison & community one seamless sentence All purposes addressed throughout all sentences Thresholds: serious enough for community, so serious requires prison 10

11 Criminal Justice Act 2003 Community Order requirements unpaid work activity accredited programme prohibited activity curfew exclusion residence mental health treatment requirement drug rehabilitation requirement alcohol treatment requirement supervision attendance centre 11

12 Criminal Justice Act 2003 Prison Sentences: Whole sentence concept - Progressive Implementation Under 12 months (currently no supervised licence): 50% Intention: Custody 2-13 weeks, Licence 6-9 months Court sets licence conditions, Executive recall 12 months or longer imprisonment Served half in custody and half in community Case Manager agrees intervention plan and conditions Executive recall Intermittent and Suspended (court handles breach) options Life, indeterminate and extended sentences for serious and public protection cases Parole Board decides release of life-sentenced prisoners and those serving public protection sentences 12

13 Green Paper proposals/strategy Rebalancing - Diversion from custody Working with communities to reduce crime Increased reparation to victims through Restorative Justice, implementing Prisoners Earnings Act Focus on and payment by results Working Prisons 13

14 Courts are Advised by the Probation Service through A Pre-Sentence Report (PSR) 14

15 Community Tasks and Measures! 15

16 Probation Service - Tasks Providing Advice to Courts (Pre Sentence Report) Assessing Risks and Needs Supervising & Enforcing Community Sentences and Suspended Prison sentences 12 Possible Community Requirements including; Supervision, Community Service, Drug or Alcohol Treatment, Electronic Monitoring Supervising Prisoners early and post release Including Resettlement, Community Integration Public Protection, other Community Safety P ships 16

17 Changing Lives and Making Communities Safer What Works? 17

18 What Works to Reduce Re-offending and Protect the Public? Assessment: of Needs and Risks Case Management to address needs and risks, and support Responsivity, Motivation, and Desistence Interventions Programmes: especially to manage aggression and sex offending, and building victim empathy, controlling impulse, problem solving Community Integration: education, training and employment, accommodation, families, health, financial management MAPPA, Community Links, motivation, belief in change 18

19 Assessment 19

20 Offender Assessment System - OASys Developed by Prison and Probation services On-going validation against reconviction IT based Assesses risk of reconviction and serious harm Guides sentence planning Measures change Central, regional and local aggregation, analysis and reports to support planning 20

21 The ASPIRE Model Good assessment is recognised to be the starting point for managing offenders. This is reflected in the acronym of ASPIRE: ASSESS SENTENCE PLAN IMPLEMENT REVIEW EVALUATE 21

22 Assessment Health and other Offending information Analysis of offences Attitudes Accomm Thinking Behaviour OASys sections ETE Emotional well-being Finances Alcohol misuse Drug misuse Lifestyle Relations 22

23 Core assessment Risk of serious harm Summary sheet OASys components Risk Management Plan Selfassessment Sentence plan

24 Offending Related Needs Offending information Accommodation Education, training and employability Financial management and income Relationships Lifestyle and Associates Drug misuse, alcohol misuse Emotional well-being Thinking and behaviour Attitudes + Health and other considerations 24

25 OASys risk assessment Harm to: Public Staff Children Known adults Prisoners To the individual Levels of risk Low, medium, high, very high 25

26 OASys needs: % Probation & Prison Probation Prison ETE: Education, Training, Employment 0 Offending ETE Thinking Lifestyle Accom Relationships Drugs

27 Effective Practice and Needs Number of Needs/individual = 4 (Prison = 5). Practice therefore requires attention to a range of factors: Thinking and Behaviour Community Integration These are reflected in the Seven Pathways Underpinned by Case Management to support work on Responsivity, Motivation and Desistence Staff skills, offender engagement Desistence: Human and Social Capital 27

28 When are OASys assessments done? 1. Pre-Sentence to produce a pre-sentence report for the courts, recommending what sentence should be imposed Includes what interventions should be undertaken with the offender 2. At the start of their sentence In prisons In the community To review and confirm appropriate Sentence and Risk Management Plan 3. Reviewed regularly Every 12 months in prison Every 4 months in the community Or, if there is a significant change (eg: a new offence) 4. Key decision points To determine whether Parole / ROTL / HDC is appropriate 5. On Termination of the sentence

29 Offender Management 29

30 Principles of Offender (Case) Management One Offender Manager throughout the sentence to provide continuity Offender Manager is community based even for prisoners One Sentence Plan for the whole of the sentence Resource follows risk/needs achieved through 4 Tiers Consistent approach across Prison, Probation and others Concept of the OM team all agencies operating to common goals 30

31 Supervision Manage Community Sentence and Deliver Supervision Requirement High-Level Framework CJA Requirements Unpaid Work Programme Requirement Drug Rehab Requirement Activity Requirement Residence Requirement Alcohol Treatment Prohibition Exclusion Feedback MH Treatment Curfew Attendance Centre Offender Manager Transfer Enforce Assess Sentence Plan Implement Plan Monitor Review Terminate MANAGE COMMUNITY SENTENCE Public / Child Protection 31

32 Interventions 32

33 Core Curriculum of Programmes includes General offender programmes Substance Misuse related offenders Sex Offenders Violent offenders Individual one-to-one programmes Women offenders Drink Impaired Drivers Resettlement 33

34 Community Programmes Cognitive and Motivational Programmes The Thinking Skills Programme One to One Programme Cognitive Skills Booster Women s Programme 34

35 Community Programmes Violence Reduction Programmes CALM Aggression Replacement Therapy Community Domestic Violence Programme Integrated Domestic Abuse Programme 35

36 Community Programmes Sex Offender Programmes Adapted SOTP TV-SOGP N-SOGP CSOGP i-sotp 36

37 Community Programmes Accredited Substance Misuse programmes Addressing Substance Related Offending Drink Impaired Drivers Low Intensity Alcohol Programme Offender Substance Abuse Programme 37

38 Content may include: Motivation to change Problem-solving skills Managing emotions Behaviour/self-control Planning Relapse prevention /asking for help 38

39 Referral and Selection Process Assessing Risk To ensure the programme is appropriate Assessing Need To ensure the programme is relevant Assessing Responsivity Factors To ensure the programme will be understandable, and the offender will be able to engage with the programme Assessing Readiness for Treatment To see motivation to undertake the programme Assessing practical factors To ensure that the programme is possible 39

40 General Offender Progammes (Community) All type of medium/high risk offenders deficits in impulse control, emotional management, perspective taking, problem solving, interpersonal skills. Three group programmes, sessions, plus version, and booster active learning,cognitive restructuring, skills training, modeling, role play, role-shift selfmonitoring

41 Assessing Risk and Need (Programme Suitability Examples Only Not Complete) Thinking Skills Risk: OGRS3 Score 50+ Need: Awareness of consequences Temper Control Problem solving Understands Victim Impact Violence Reduction Risk: OGRS3 Score 75+ Also: 4+ violence convictions Need: Specialist assessments/ anti-social attitudes, cognitive distortion, lack of insight, poor emotional self control 41

42 Assessing Responsivity (Materials and Group Environment) Intellectual Ability Language Literacy Dyslexia Mental and Physical Health Current Substance Misuse Disability 42

43 Assessing Readiness, and Practical Considerations Readiness Motivation Denial Practical Considerations Consent (Aims, demands, consequences of failing to attend) Statement of Understanding 43

44 Other Considerations Prioritising Repeating Programmes If significant needs remain Offender and case manager are clear on reason not successful and are confident this time Sequencing and Combining Interventions 44

45 Supporting Programme Delivery Staff development and training Facilitators Treatment Managers Operational Managers Resettlement and interventions/services continuity Managers Clinical support Offender assessment Staff supervision and support Difficult and challenging cases Operational support and advice Identify appropriate interventions (offender, area, community links) Resources, practical issues

46 Supporting Programme Delivery What may reduce impact? Problems of going to large scale delivery - o Poor targeting of offenders, o Problem of drop out rates, o Less skilled staff, high turnover Application, Generalisation & Reinforcement o Offenders need opportunity to apply and practise skills o Offenders need assistance in generalising learning to their lives o They need Supervisors who reinforce the programmes

47 Completions (%) The Percentage of Starters Completing the Programme Year

48 Strengthening Rehabilitation through Involving Communities Public Agencies Police Social Services Local Authorities Health, Employment Probation and Prison Services Private Companies Civil Society and Volunteers 48

49 Community Integration 49

50 Social Exclusion (Prisoners) Relationship between exclusion and imprisonment (** before sentence) General Population Sentenced Prisoners Two or more mental disorder 5% (m) 2% (f) 72% (m) 70% (f) Unemployed 5% 67% ** No qualifications 15% 52% (m) 71% (f) Homeless 1% 32% ** Benefits 14% 72% **

51 The Seven Rehabilitation Pathways. 1. Attitudes, thinking and behaviour 2. Accommodation 3. Education, training and employment 4. Health 5. Drugs and Alcohol 6. Finance 7. Families All supported by case management! 51

52 Evaluation problems Difficult to establish RCTs - separate out treatment and selection effects Reconviction rate a crude measure Lack of interim measures reliably associated with re-offending Evaluating implementation failure Too many silo evaluations Attrition rate & non-starters

53 England and Wales Evaluation Cohort Released from custody or commencing a court order. Comparison of 2000 and 2006 adult cohort reoffending Frequency: -22.9% Offences classified as most serious: -11.1% Proportion re-offending: -10.7% Proportion re-offending compared with predicted (i.e. controlled for changes in offender characteristics): %

54 Thank you for your attention! Steve Pitts Head of International Relations and External Programmes NOMS Ministry of Justice 54