re-offending & desistance
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Re-offending & Re-offending & DesistanceDesistanceTroy Hutchinson Troy Hutchinson
Information ManagerInformation Manager
Luton Youth Offending ServiceLuton Youth Offending Service
September 2008 Presentation
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The brief/project:The brief/project:
Project: Narrative based research project Project: Narrative based research project analysing the patterns of desistance from analysing the patterns of desistance from offending in Lutonoffending in Luton
Super Goal: Super Goal: The reduction of re-offending in The reduction of re-offending in Luton and achievement of national indicatorLuton and achievement of national indicator
The study aims to produce a coherent The study aims to produce a coherent performance management framework to performance management framework to research the desistance of offending research the desistance of offending behaviour, reflecting research & practice behaviour, reflecting research & practice management of LYOS around the principles of management of LYOS around the principles of ‘What works’‘What works’
BackgroundBackground
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ForwardForward One of the principal ‘outcome’ measures on the One of the principal ‘outcome’ measures on the
effectiveness of YOSeffectiveness of YOS Measure is linked to public confidence in the Measure is linked to public confidence in the
ability of Youth Justice agencies. ability of Youth Justice agencies. Local Priority indicator under the LAALocal Priority indicator under the LAA Measure tracks Re-offenders and frequency of Measure tracks Re-offenders and frequency of
their behaviour across 4 Youth Justice tierstheir behaviour across 4 Youth Justice tiers 2008/09 ahead of CAA; streamlined 2008/09 ahead of CAA; streamlined
Performance framework culture, therefore of Performance framework culture, therefore of more significancemore significance
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(Background cont…)(Background cont…) Traditionally high rates of Recidivism in Traditionally high rates of Recidivism in
BoroughBorough Actual re-offending levels are focused on YJB Actual re-offending levels are focused on YJB
scored methodologyscored methodology Luton is consistently marked a ‘Red’ indicatorLuton is consistently marked a ‘Red’ indicator Re-offending outcomes has therefore taken Re-offending outcomes has therefore taken
on greater significance.on greater significance.
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Governance/AccountabilityGovernance/Accountability
1998 Crime and Disorder act; introduced the 1998 Crime and Disorder act; introduced the current multi-agency Youth Offending Teams current multi-agency Youth Offending Teams
Enshrining the principle to “prevent offending Enshrining the principle to “prevent offending and to and to Reduce Re-offendingReduce Re-offending””
2004 Children's Act; Every Child Matters2004 Children's Act; Every Child Matters Youth Justice Board Youth Justice Board Children’s Trust YOS standing partnerChildren’s Trust YOS standing partner Local authority Children ServicesLocal authority Children Services
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Scrutiny & InterestsScrutiny & Interests
LocalCriminalJustice Board
Local Children’s
Safeguarding Board
Children’sTrust
Crime & DisorderPartnership DCSF
Ministry ofJustice
LAA
GO East
YOS Management
Board
YouthJustice Board
Re-offending Outcome
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The Measure: The Measure: National National Indicator 19Indicator 19 Random identificationRandom identification Based on receipt of substantive outcomeBased on receipt of substantive outcome Cohort based on 10-17 year oldsCohort based on 10-17 year olds 1-year tracking period 1-year tracking period 2008/09 introduction of quarterly reporting2008/09 introduction of quarterly reporting Outcomes measured against 2005 Outcomes measured against 2005
BaselineBaseline 5% Reduction target* (upto 2007/08)5% Reduction target* (upto 2007/08)
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Outcomes/How Outcomes/How monitored:monitored:
MethodMethod Outcomes basedOutcomes based Quarterly Performance Quarterly Performance
ReportingReporting YJB League Tables YJB League Tables
Scored outcomesScored outcomes Traffic LightsTraffic Lights CommentaryCommentary Outcome justification Outcome justification
agendaagenda
Context/Comparison:Context/Comparison: Luton BaselineLuton Baseline Reduction TargetReduction Target Statistical NeighboursStatistical Neighbours RegionRegion National outcomesNational outcomes
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Current OutcomesCurrent Outcomes Published Re-offending Published Re-offending
(2007 Figures)(2007 Figures) Luton =32.8%Luton =32.8% National= 37.4%National= 37.4%
Luton was unable to Luton was unable to achieve its reduction achieve its reduction target of 30.4%target of 30.4%
BreakdownBreakdown Re-offending outcomes Re-offending outcomes
against 4 tiersagainst 4 tiers Pre-Court= 20%Pre-Court= 20% First Tier=52%First Tier=52% Community Community
Penalties=56%Penalties=56% Custodial Licences= Custodial Licences=
50%50%
PlanningPlanning& Context& Context
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SignpostsSignposts TheoryTheory
Indicator-related/National policyIndicator-related/National policy DesistanceDesistance
Performance Management CulturePerformance Management Culture Consultation:Consultation:
Focus GroupFocus Group Strategic ManagementStrategic Management PractitionersPractitioners
Emerging AgendaEmerging Agenda PrioritiesPriorities
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The Traditional DebateThe Traditional Debate
Numbers based (The Beast!)Numbers based (The Beast!) YJB methodologyYJB methodology YOS specialism/AutonomyYOS specialism/Autonomy Annual scrutinyAnnual scrutiny Its Luton it’s an industrial townIts Luton it’s an industrial town Blame: Blame:
““the reason is…the reason is… ““it was a bad year”it was a bad year” ““Difficult cohort”Difficult cohort” ““Staffing gaps”, “poor retention”Staffing gaps”, “poor retention” ““We don’t really know”We don’t really know” The weather!The weather!
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Performance Performance Management CultureManagement Culture
Division between Strategic Management & Division between Strategic Management & Operational StaffOperational Staff
KPI’s,League Tables &Traffic LightsKPI’s,League Tables &Traffic Lights External commissioning (LBC trend)External commissioning (LBC trend) Practice focused Practice focused Reactive fire-fightingReactive fire-fighting Competing Interests: OBTJ/Compliance/Child Competing Interests: OBTJ/Compliance/Child
Welfare (Tensions!)Welfare (Tensions!) ““With time we would….”With time we would….” Recognition towards planning processRecognition towards planning process
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Practitioner:Practitioner:
Intervention Delivery
Priorities
Understanding of Role
ASSETChild
Welfare
RISK MANAGEMENT
Desistance
Feed YOIS
I.T.??
Performance Management
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Management Team:Management Team:
Effective Practice
Governance
Supervision Duties
Policy & Service Delivery
OwnershipPractice focused
Defensible Decision Making
CommissionProgrammes &
Resources
Statutory Requirements
Risk Management
National Indicators/
KPI’s
Performance Management
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Consultation ProcessConsultation Process
Internal Focus GroupInternal Focus Group Informal InterviewsInformal Interviews Service Questionnaires aimed at:Service Questionnaires aimed at:
Operational Management teamOperational Management team Practitioners;Practitioners; Strategic ManagementStrategic Management
Information/Performance OfficersInformation/Performance Officers
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Emerging Environment:Emerging Environment:• Post-Inspection improvement agendaPost-Inspection improvement agenda• Integration of Local authority partnershipIntegration of Local authority partnership• 2008 Youth Crime Action Plan & 2008 Youth Crime Action Plan &
Strengthening of Children's TrustStrengthening of Children's Trust• YJB handing power back to Local authority; YJB handing power back to Local authority;
(YJPF sign-off, budgetary control)(YJPF sign-off, budgetary control)• Children’s Services: PIP AgendaChildren’s Services: PIP Agenda• YOS Management board composition; New YOS Management board composition; New
Chair= Luton DCSChair= Luton DCS• Evidence based outcomesEvidence based outcomes• Diversity & Access to servicesDiversity & Access to services
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Emerging lines of enquiry:Emerging lines of enquiry:
• Re: The outcomes:Re: The outcomes: ““Why are you not achieving your targets? “Tell me Why are you not achieving your targets? “Tell me
what you’re going to do about this”? what you’re going to do about this”? ““What are these outcomes against the BME What are these outcomes against the BME
communities of the town”?communities of the town”?
• Re: The young people:Re: The young people: ““Who are these young people and what are you doing Who are these young people and what are you doing
about them”about them” How are we fulfilling Every Child Matters?How are we fulfilling Every Child Matters? ““Who else is working with these young people and Who else is working with these young people and
their families, tell me what they are doing to help”their families, tell me what they are doing to help” ““Tell me what is working”Tell me what is working”
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What do we need to know?What do we need to know? Effective practiceEffective practice
Programme Delivery (Scrutiny of Intervention Programme Delivery (Scrutiny of Intervention plan)plan)
Use of Resources & Programme developmentUse of Resources & Programme development Quality of Assessments & Risk ManagementQuality of Assessments & Risk Management
Cross-cutting cohorts:Cross-cutting cohorts: Looked After ChildrenLooked After Children BME representation; Which groups? What are BME representation; Which groups? What are
their needs? What are their profilestheir needs? What are their profiles
Service improvement?Service improvement? Evaluation feeding service planningEvaluation feeding service planning
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Analysing the Young person:Analysing the Young person:
CaseManager
OtherProfessional/
Agencies
Access to Service
Offence Type
Contextual Features
Compliance
Pre-Convictions
Diversity
Outcomes
Intervention Events
ExitStrategy
Type/Tier Of Order
InterventionPlan
Asset Score
Length ofOrder
Young Person
The ResearchThe Research
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““For all information’s independence and For all information’s independence and extent, it is people in their communities, extent, it is people in their communities, organisations and institutions, who organisations and institutions, who ultimately decide what it all means and why ultimately decide what it all means and why it matters” it matters” Brown & Duguid (2000)Brown & Duguid (2000)
““The question is not simply “what works for The question is not simply “what works for offenders as a whole?”, but “which offenders as a whole?”, but “which methods work for which type of offenders methods work for which type of offenders and under what conditions or in what type and under what conditions or in what type of settings?” of settings?” Palmer (1975)‘Martinson Palmer (1975)‘Martinson revisited’revisited’
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*The Research & Analysis**The Research & Analysis* Action Research Cohort 1: “How important was the Action Research Cohort 1: “How important was the
intervention to desistance” intervention to desistance” Jon Emanuel, YOS Case workerJon Emanuel, YOS Case worker Based on National Indicator Referral order cohort;Based on National Indicator Referral order cohort; Cohort grouped by Asset ScoreCohort grouped by Asset Score Pre-convictionsPre-convictions Gravity and Frequency of previous offendingGravity and Frequency of previous offending Further Offending?Further Offending? Practitioner judgementPractitioner judgement
CohortCohort 22: Pre-Court subsets; comparing those with no : Pre-Court subsets; comparing those with no intervention to those with Final Warning programmesintervention to those with Final Warning programmes
Cohort 3Cohort 3:: PPO Deter Cohort; group of High risk PPO Deter Cohort; group of High risk OffendersOffenders
Cohort 4Cohort 4: YOS Girls Group/CIC/ Cohort; targetted for : YOS Girls Group/CIC/ Cohort; targetted for commissioned Group workcommissioned Group work
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DeliveryDelivery
What form?What form? YOS Action Planning of ResourcesYOS Action Planning of Resources Programme of targeted Data analysisProgramme of targeted Data analysis
GISGIS Statistical analysisStatistical analysis
Identification of future need/pressuresIdentification of future need/pressures Formulation of internal targets against specific Formulation of internal targets against specific
cohortscohorts
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Model/ScorecardModel/Scorecard
Young Young persons/Interventionpersons/Intervention
Capture the full picture Capture the full picture of desistanceof desistance
Programme journeyProgramme journey Offending behaviour, Offending behaviour,
pre/during/post pre/during/post interventionintervention
ReviewReview
Young PersonYoung Person Ima TealeafIma Tealeaf
Pre-ConvictionsPre-Convictions 44
Assessment of Assessment of RiskRisk
MediumMedium
Legal StatusLegal Status N/aN/a
Re-OffendingRe-Offending YesYes
EscalationEscalation NoNo
Gravity:Gravity: NoNo
ComplianceCompliance BreachBreach
Order outcomeOrder outcome CompletionCompletion
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Planning & Evaluation Planning & Evaluation ModelModel
Acting:1) Focus Group
2) Knowledge gathering3) Practice sharing
Reflecting:1) Reporting
2) Presentation3) Emerging Trends
4) Identification
Planning:1) The Problem
2) The existing agenda3) Needs Analysis
Observing:1) The Research
2) Cohort identification3) The outcomes4) Data Analysis
Lewin’s Action Research Model
OutcomesOutcomes
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ResultsResults Role of the Pig (Genetic engineering)Role of the Pig (Genetic engineering) Servicing the machine; LBC, LAA structuresServicing the machine; LBC, LAA structures Research & Indicators ‘fit for our purpose’Research & Indicators ‘fit for our purpose’ Enhanced knowledge and informationEnhanced knowledge and information Evidence based research (incorporating ECM)Evidence based research (incorporating ECM) Youth Justice Planning FrameworkYouth Justice Planning Framework Internal Framework & EvaluationInternal Framework & Evaluation Improved profile of young offendersImproved profile of young offenders
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Initial ConclusionsInitial Conclusions Focused idealism (that seeks lofty goals but Focused idealism (that seeks lofty goals but
also will inform & innovate but will be also will inform & innovate but will be serviceable)serviceable)
Wealth of knowledgeWealth of knowledge Awareness of limitations; danger of over- Awareness of limitations; danger of over-
emphasising initial outcomesemphasising initial outcomes Over-empathy with workers (my own Over-empathy with workers (my own
Stockholm syndrome!) Stockholm syndrome!) Where do I now stand on What works? Nothing Where do I now stand on What works? Nothing
Works?Works?
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Next StepsNext Steps
Research & SynthesisResearch & Synthesis Supervision Order Cohort/YRO Supervision Order Cohort/YRO
ImplementationImplementation Research to be tabled for Service Research to be tabled for Service
Management teamManagement team 2009/10 Supporting evidence on YOS 2009/10 Supporting evidence on YOS
researchresearch Lewin’s ModelLewin’s Model
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