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