london borough of hounslow · 2015. 9. 15. · preparing local youth for future employment. the...

LONDON BOROUGH OF

HOUNSLOW

2014 – 2016

(Annual update for 2015/16)

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CONTENTS Executive Summary

I. Introduction II. Structure and Governance

III. Resources and Value for Money

IV. Partnership Arrangements

V. Update of Performance against Key Outcomes

VI. Management Board Approval

Appendices Appendix 1 – Youth Offending Organisational Chart Action Plan

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Executive Summary

Each Local Authority area is required under the Crime and Disorder Act 1998 to produce, in consultation with partner agencies, a local Youth Justice Plan (YJP). The partner agencies are the National Probation Service, police service and health authority. The plan must describe the arrangements for the delivery and funding of youth justice services, in particular the Youth Offending Service (YOS), and how the YOS will fulfil its statutory functions in relation to reducing youth crime. A YJP must be produced annually, but guidance permits local authorities to produce a plan covering a longer period and produce updates annually. LB Hounslow and its partners chose to produce a two-year plan covering 2014 to 2016, with an update in September 2015, as this fits with the planning cycle of other key strategies with which the YJP must be consistent. The plan for 2013/2014 indicated progress against the improvement plan required after the inspection by Her Majesty’s Inspectorate of Probation (HMIP) in 2011. The focus for 2014-16 is on continuous improvement towards excellence in service delivery, measured through performance against national performance indicators. The plan must report on performance against three national priorities and the local plans that are in place to achieve them:

Reducing the number of first time entrants to the criminal justice system;

Reducing the rate of proven re-offending by young people;

Reducing the use of custody. The YJP outlines Hounslow’s current performance against these priorities.

Reducing the number of first time entrants to the criminal justice system: There have been considerable reductions in the number of first time entrants since 2009, when the Triage process at the point of arrest was implemented. Individual figures vary by year, but Hounslow continues to outperform its target.

Reducing the rate of proven re-offending: The rate of proven re-offending was 45.8% for the cohort of young people who offended during the period between July 2012 and June 2013. This is significantly higher than the figure for London, but provisional data for 2013/14 and 2014/15 suggests a subsequent reduction in re-offending. However, there is more re-offending than expected by young people receiving out of court disposals. The strategy to address this and to sustain the continued downward pressure on the rate of re-offending is outlined in Section V.

Reducing the use of custody: During 2013/14 the number of custodial remands reduced by 48% and the number of custodial sentences reduced by 50%. This has been sustained.

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This reflects, in part, the confidence of the courts in YOS proposals to address offending behaviour and to supervise young offenders in the community.

The overall picture is encouraging, but Hounslow does face challenges:

An increase in offences of serious youth violence: Hounslow is not identified as a ‘gang’s borough’ and the problems of gang-related offending are not comparable to those of many other London boroughs. However, the local partnership is committed to taking early and effective action to address this emerging issue. The multi-agency, Police-led Operation Concordia was launched in June 2014 to provide robust and timely intelligence on violent offenders, and to provide effective interventions. This, and the development of the YOS-led multi-agency Risk of Harm Panel, has led to a 12% reduction in offences of serious youth violence compared to the previous year. However, the incidence is still greater than the period before the ‘spike’ in serious youth violence in Hounslow during 2013/14 and there is a partnership commitment to continue to reduce these harmful offences.

The misuse of alcohol and controlled drugs by young people: Drug and alcohol misuse threatens the health and wellbeing of young people and increases risk of offending. The partnership between the YOS and Visions, the substance misuse service for young people, is having an impact on the assessed likelihood of reoffending and this progress needs to be sustained.

The YJP update also includes information about several other areas, concentrating on changes that have taken place since the initial 2014-16 plan was produced:

Structure and governance Staffing changes within the YOS and changes to representatives on the Community Safety Partnership and Youth Crime Management Board are covered in this section.

Resources and value for money This section outlines income and expenditure, including financial contributions

to the YOS and how reductions in grant funding are dealt with. It sets out new

staff and functions transferring into the YOS. No reduction in contributions to

the YOS are anticipated prior to April 2016, although the Youth Justice Board

is reviewing its grant funding of all youth offending teams in future years.

Partnership arrangements Challenges to sustaining and strengthening existing partnerships are outlined, as are new and changed protocols and contracts.

Action plan for 2015/16 This plan outlines the activities to be undertaken in order to achieve the priorities set out in the YJP update.

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The council has ambitious plans – as outlined in Future Borough, Hounslow Together’s Sustainable Community Strategy – for the regeneration and economic development of the borough. In order to attract the inward investment necessary to achieve this outcome, it is important to reduce crime and the fear of crime. Reducing young people’s involvement in offending and anti-social behaviour is a critical success factor in achieving this overarching objective.

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I. Introduction

This plan is written pursuant to Section 40 of the Crime and Disorder Act 1998 that requires each Local Authority, in consultation with partner agencies, to formulate and implement an Annual Youth Justice Plan. The plan describes how Youth Justice Services in Hounslow are to be provided and funded (Section III), and how the YOT is composed and funded, and what functions it will carry out. (Section IV). It is a statutory requirement to produce an annual youth justice plan, however, it is permissible to produce a plan for a longer period with annual updates concerning finance and governance arrangements (Section II). The local partnership is of the view that a two year plan covering the period 2014 to 2016 is more in line with the wider partnership’s framework for strategic planning, and have, therefore, chosen this option. This is the annual update for 2015/16 reporting on progress against key national and local Youth Justice priority objectives (Section V). Hounslow is an outer London borough, located near Heathrow airport. The Council has an ambitious community plan to improve the life chances of local residents. Local schools perform highly in terms of GCSE results, and there is a focus on preparing local youth for future employment. The Council has ambitious plans for the regeneration and economic development of the borough and is forming partnerships with key businesses to attract inward investment. A key priority is, therefore, to reduce crime and the fear of crime as these can provide obstacles to investment and attracting people with the necessary skills to live and work in Hounslow. A reduction in youth crime is a critical success factor as timely interventions and diversion will pre-empt longer term offending into adulthood. In 2014/15 the number of young people receiving a caution of conviction for an offence reduced from 190 to 151, and youth offences reduced from 425 to 400, 5.8%, comparted to the previous year. Drug offences decreased by 14.5%, which may be, in part attributable to the impact of the MOPAC funded project to reduce drugs related offences (see4.3.4 of the 2014-16 Youth Justice Plan). Robbery offences also reduced by 33.3% compared to 2014/15. However, offences of violence against the person rose by 8.64%, which is a matter for concern (see Section V). However, offences of serious youth violence causing personal injury reduced by 12.1% following the implementation of Operation Concordia and the Multi-agency Risk of Harm panel. These fora (see Section V) were established to facilitate multi-agency intervention sharing and intervention to reduce serious youth violence following the fatal stabbings in Feltham in May 2014. There is a shared commitment across the partnership to take all steps to prevent the reoccurrence of such a tragic event. Following the completion of the Critical Learning Review by the YOS in accordance with the Community Safeguarding and Public Protection Incidents (CSPPI) procedures the Local Children’s Safeguarding Board commissioned an independent case review of the incident. The criteria for a Serious Case Review were not met but the Case Review sub-committee of the LSCB were keen to identify and disseminate the learnings from this event. The final report has not yet been submitted to the LSCB, but early drafts indicate recommendations to improve

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information sharing between agencies in relation to individuals of Risk concern which has already been addressed through the above noted panels. The plans for completing the transition to AssetPlus, the next generation assessment process, are in place. Practitioners are already completing the 6 modules of on-line training to update their practice. These learning modules will be supplemented by group learning and development sessions held monthly between September 2015 and February 2016. This will be followed by training in the use of the new case management system prior to launch in May 2016. Two senior staff will be trained as trainers to deliver the learning sessions to practitioners and then provide consultative surgeries to embed the learning. The implementation of AssetPlus nationally is a significant watershed in the Youth Justice arena. It will facilitate improved communication concerning young people with the secure estate. Also, as an assessment tool it places greater emphasis on protective factors and the use of professional judgement by practitioners. This will lead to an increased focus on outcomes for the young person rather than emphasising procedural compliance.

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II. Structure and Governance 2.1 Structure of the Service

The Youth Offending Service (YOS) is comprised of staff from a range of professional backgrounds (see Appendix I: structure chart). All of the constituent agencies provide staff to the service as contributions ‘in kind’ as required by the Crime and Disorder Act 1998 and associated guidance.

2.2 There have been several changes since the Youth Justice Plan for 2014-16

was written and these are outlined below.

i. In January 2015 the post of senior practitioner was deleted and the existing post holder assimilated into the newly established post of operations manager. The creation of a third operational managers post has increased management capacity leading to more effective management oversight of casework and an increased capacity for project development and management (see sections IV and V).

ii. In May 2015 the Hounslow Clinical Commissioning Group approved funding for a Band 7 mental health nurse to be seconded to the Youth Offending Service. The parameters of the role have been agreed with the Joint Health and Social Care Commissioners and the West London Mental Health Trust (WLMHT), who will employ and provide clinical supervision for the post holder. Recruitment is scheduled for September 2015. This enable young offenders to be promptly screened and assessed in relation to mental health and emotional well-being and facilitate prompt access to appropriate interventions for young people whose offending behaviour is associated with complex needs. The impact of this service will be monitored by the Joint Commissioning group and the Youth Crime Management Board.

iii. As of July 2015 responsibility of Out of Court Disposals transferred from Targeted Youth Support (TYS) to the YOS. At present the rate of proven re-offending in Hounslow is higher than the national and regional average and this includes a higher than expected rate of re-offending for pre-court Disposals (youth cautions and youth conditional conditions). This requires a more integrated response to the young offender as they commence their journey through the Criminal Justice System to maximise the opportunities for desistance. The local strategy will be outlined in more detail in Section V.

The transfer of responsibilities will entail a modest transfer of resources from TYS to the YOS, which will include a senior practitioner and 2 practitioner posts. Management of the Youth Justice Liaison and Diversion Scheme funded by NHS England to ensure that young people detained by the police are screened for mental health concerns prior to charge will also transfer to the YOS. The transfer arrangements are subject to the Council’s Reorganisation policy which requires a period of staff consultation and, therefore, a precise date for all affected staff cannot

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be specified yet. However, responsibility for the functions in relation to Out of Court Disposals will transfer in September, and identified staff/posts will follow once the consultation process is complete.

iv. In accordance with the Council’s Medium Term Financial Strategy the

YOS exemplified efficiency savings of £77,000 for 2015/16. The bulk of

savings were drawn from the non-salaries revenue budget. However, 3

posts were deleted, YOS Officer x 0.6 full-time equivalent (F.T.E.),

Engagement in Learning Officer 0.5 F.T.E., and Motorbike Project

Coordinator 0.2 F.T.E. The impact of these reductions and the measures

to mitigate their effects are outlined in sections III and IV.

2.3 The remaining agency contributions have been maintained by partners stated in the Youth Justice Plan as of September 2014 (see Appendix I).

2.4 Governance for the YOS and the strategic management of the local Youth

Justice System lies with the Youth Crime Management Board (YCMB), chaired by the Director of Children’s and Adults’ Services. All of the statutory partner agencies are represented on the board at a senior level (see plan Approval list). There have been two significant changes to Board membership:

a) The local Heads of the National Probation Service, and the Community

Rehabilitation Company are members of the Board following the transformation of the Probation Service and the dissolution of the London Probation Trust.

b) Health is now represented by the Assistant Director responsible for Joint Health and Social Care Commissioning.

The latter is significant in ensuring that the health needs of the youth offending population, who often fail to engage with universal services, are included in current and future Joint Commissioning priorities.

2.5 The proposals to revise the governance arrangements for the Community

Safety Partnership (CSP) outlined in 2.6.1 of the 2014/16 plan were agreed by the CSP Board in November 2014 and fully implemented as of April 2015. This has promoted more integrated planning and service delivery across the partnership and clearer lines of accountability for the performance of constituent agencies in achieving partnership objectives. Reducing youth crime is a key priority for the CSP, and the YCMB is a sub-group of the CSP Board. As such the YCMB chair reports on progress to the CSP on a quarterly basis.

2.6 The YCMB is committed to a process of continuous improvement and has

authorised the Head of YOS and the Assistant Director of Children’s Specialist Services to commission a review of the Board’s performance

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against HMIP inspection standards for Governance, and management and leadership. This will report to YCMB before the end of 2015/16.

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III. Resources and Value for Money

3. There have been several changes to the resourcing of the YOS including some reductions but also some strategic growth.

3.1 In accordance with the Local Authority’s medium term financial strategy

contributions from the council were reduced by £77,000. 3.1.2 This entailed the deletion of 3 posts 1 x 0.6 YOS Officer post, 1 x 0.5

Engagement in Learning Officer, and 1 x 0.2 Motorbike Project Coordinator. The balance of the savings required were found from efficiencies in running costs.

3.1.3 The deletions from the staffing establishment will have minimal impact upon

service delivery:

the Motorbike Project was under-utilised due to the changing interests and career aspirations of young people.

the 0.6 Officer post was vacant and had proven difficult to recruit to.

the work of the Engagement in Learning Officer’s role in accessing education provision and supporting pupils has been absorbed by case managers.

3.2 The Effective Practice Grant from the Youth Justice Board has reduced by

£33,000. This has been absorbed by efficiency savings and has had no impact on service delivery.

3.3 There has been growth to the YOS in cash or kind as follows:

The functions related to Out of Court Disposals has been transferred from Targeted Youth Support to the YOS, and the dedicated staffing resources have also been transferred – 1 x senior practitioner and 2 x Targeted Youth Support Workers (see structure chart – Appendix 1).

As a consequence of the above strategic change the NHS England contribution of a Tier 2 CAMHS mental health worker will also be transferred to the YOS. This is an ‘in kind’ contribution to the local authority managed through a contractual agreement.

The Clinical Commissioning group have agreed funding, £50,000 p.a., for a Band 7 Child and Adolescent mental health nurse to provide assessments and interventions where appropriate for the Court population.

The Community Safety Partnership have allocated £3,5000 to fund the expansion of the volunteer Appropriate Adult Scheme to include services for vulnerable adults. This will be reviewed in 2016/17 in terms evidence of impact but also likely changes to legislation and violence concerning the provision of Appropriate Adult Services for both adults and youths.

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3.4 Funding from partners in the Police and National probation service have been sustained at 2014/15 levels (see Table I, which outlines total contributions to the YOS budget.

3.5 Funding from the Mayor’s office for Policing and Crime (MOPAC) for the

mentoring scheme in partnership with Brentford Community Sports Trust, and the Substance Misuse Project in partnership with Visions, the Young People’s Substance Misuse Service, have been maintained.

3.6 The Youth Crime Management Board considers that the additional burdens

placed on the YOS as noted above are in alignment with increased resources made available.

The shortfall in the non-salaries element of the budget will be mitigated by

anticipated delays in staff recruitment. There is currently one vacant officer’s post which is currently subject to recruitment (Table 2).

Table 2 YOS FULL YEAR BUDGET - J1811: 2015/2016 Updated 03/07/15

Budget Detail

LA Budget 2014/15 £760,991.00

YJB Budgets 2014/15 £401,024.00 YJB RJ Grant 2014/15 £ 2,000.00 MOPAC Grant 2014/15 SMU (B03) £108,434.00 YOS Budgets 1,272,449.00

MOPAC Grant 2014/15 Mentoring (B09) £ 45,000.00

OVERALL SUMMARY (LBH ONLY)

Total YOS Budgets £1,272,449.00

Total Projected Salary Spend (not YJB Costed Plan) £1,148,686.50 incl Sessionals, SMU MOPAC salaries (excl any management fees)

Balance for Non-Salary Costs £123,762.50 Projected Non-Salary Spend £140,922.00

Total Projected Spend £1,289,608.50 Projected Shortfall -£ 17,159.50

Salary Projections £1,148,686.50

Contributions from YJB £ 354,312.30

Contributions from MOPAC £ 74,510.00 Contribution from LA £ 719,864.20

Total Salaries Contributions £1,148,686.50

Shortfall (Salaries) £ -

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Non-Salary Projections £ 140,922.00 projection based on 2013/14

Contributions from YJB £ 48,711.70 Contributions from MOPAC £ 33,924.00 Contribution from LA £ 41,126.80 Total Non-Salaries Contributions £ 123,762.50

Shortfall (Non-Salaries) -£ 17,159.50

BUDGET BREAKDOWNS

YJB £401,024.00

Salaries (incl 15,887 Asset Plus Dev fees) £354,312.30

Non-Salaries £ 46,711.70

RJ Grant (non-salaries) - specific to RJ Training £ 2,000.00

Total Non-Salaries £ 48,711.70

MOPAC BREAKDOWN £108,434.00

YOS SMU Post £ 37,255.00

EIT SMU Post J1252 £ 37,255.00

TYS Management Fee / Clinical Supervision £ 21,876.00 £ 5,469.00

per quarter (less than last yr due to salary increase)

On-Costs (assumed in YOS non-salaries) £ 12,048.00 £ 3,012.00 per quarter

Total SMU (B03) £108,434.00 Mentoring (B09) £ 45,000.00

Total MOPAC £153,434.00

Salaries £ 74,510.00 Non-Salaries (TYS Management Fee & On-Costs above) £ 33,924.00

LOCAL AUTHORITY £760,991.00

Salaries £719,864.20

Total salaries less MOPAC (SMU) salaries

Balance for Non-Salaries £ 41,126.80

Possible Prop Up Funds for Shortfall Salary - not in Pension (AVR) £ 9,643.00

Salary - not in Pension (RW) £ 9,101.00 based on a full year

Possible pot £ 18,744.00

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YOS STAFFING BUDGET: 2015/16

Budget Detail

LA Budget 2014/15 £760,991.00

YJB Costed Development Grant 2014/15 £401,024.00 YJB RJ Development Grant 2014/15 £ 2,000.00 MOPAC Grant 2014/15 SMU (B03) £108,434.00 YOS Budgets £1,272,449.00

MOPAC Grant 2014/15 Mentoring (B09) £ 45,000.00

STAFFING 2014/15

YOS Manager HMG1 £ 92,076.00 scp 72

Operational Manager PO6 £ 58,304.00 scp 49 £48,661 (no Pension)

Operational Manager PO6 SECONDMENT WITH YJB TO JAN 16 £ - scp 49

claiming back from YJB (on Secondment)

Operational Manager PO6 ACTING UP TO JAN 16 £ 55,847.00 scp 47

£46,746 full year (no Pension) scp 47 from Sept/Oct

Operational Manager PO6 £ 55,847.00 scp 47 scp 47 from Oct - Court

Service Support Manager PO3 £ 48,524.00 scp 41

Youth Offending Service Officer PO2/PO3 £ 48,524.00 scp 41

Youth Offending Service Officer PO2/PO3 £ 46,122.00 scp 39 Resettlement

Youth Offending Service Officer PO2/PO3 VACANT TIL JAN 16 £ 42,334.00 scp36 budgeted at mid point



New Youth Offending Service Officer PO2/PO3 £ 43,490.00 scp 37 ISS

Youth Offending Service Officer PO2/PO3 prev ISS £ 44,717.00 scp 39

ISS 22 hours worked

Youth Offending Service Officer PO2/PO3 prev ISS £ 28,556.00 scp 40

Youth Offending Service Officer PO2/PO3 £ 44,717.00 scp 39 Started 08/06/2015


New Youth Offending Service Officer PO2/PO3 £ 41,281.00 scp 35 Started 23/02/2015


Substance Misuse Worker S01 £ 37,255.00 scp 31 Locum S Beecher + T Paul

Substance Misuse Worker EIT S01 £ 37,255.00 scp 31 C Cusack + K James + locum H Jones now Davina

Restorative Justice Officer PO1 £ 39,393.00 scp 33 Parenting Worker PO1

3 days pr wk £ 25,512.00 scp 36 22 hours worked

Engagement In Learning Officer PO1 3 days per wk £ - scp 36 Post Deleted end of May 2015

KYPE Worker S01 0.5 £ 18,627.50 scp 31

Motorbike Project Coordinator S01 0.28 £ - scp 31 Post Deleted end of May 2015

Management Info Coordinator PO2 £ 44,717.00 scp 38

Court Systems Officer SC6 £ 32,731.00 scp 27

Court Systems Officer SC6 £ 32,731.00 scp 27 Started 15/06/15

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Court Systems Officer SC6 £ 32,731.00 scp 27

Evening Receptionist SC3 - 10 hrs pr wk £ 6,800.00 scp 17 10.5 hrs pr week

Sessional Salaries (includes b/h& wkend & management cover) £ 20,000.00

Asset Plus development CVYJ Planning & Training £ 4,471.70

10% S Araaf's time 10% of both AVR & RW time Asset Plus development £ 11,415.10

TOTAL Actual YOS Salaries £1,148,686.50 incl 2 X SMU MOPAC salaries

Total Salaries (excl management fees but with Asset Plus Development) £ 1,164,573.30 use for YJB CDP

Total YJB Salaries (excl management fees but with Asset Plus Development) £ 354,312.30 use for YJB CDP

NON-SALARIES £ 140,922.00

Contributions from YJB (incl £2k RJ Training Grant) £ 48,711.70

Contributions from MOPAC £ 33,924.00 Contribution from LA £ 41,126.80 Total Non-Salaries Contributions £123,762.50

Shortfall (Non-Salaries) -£17,159.50

YJB - CDP Non-Salaries

Training (excl RJ Dev Grant) £ 10,000.00 RJ Training £ 2,000.00 Groupwork £ 36,711.00

Total non-salary spend £ 48,711.00

3.7 The use of the Effective Practice Grant from the Youth Justice Board has been adjusted to reflect the reduced contributions for 2015/16 but also evolving priorities. Key changes are (Table 3).

i. Group Work programme is well-developed and, therefore, resources have

been redeployed. ii. An officer has been dedicated to developing the process of Resettlement

for young prisoners. iii. Resources have been dedicated to preparation for the implementation of

AssetPlus in May 2016.

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Table 3

3.8 The transfer of the Junior Attendance in Hounslow was successfully

transferred from the National Offender Management Service to the YOS on April 2nd 2015.

The centre supervises young offenders receiving an Attendance Requirement as an element of a Youth Rehabilitation Order from Hounslow, Ealing, Hillingdon and Richmond. However, the new operating model will enable the centre to also supervise offenders subject to a wider range of orders, including intensive supervision and surveillance and youth conditional cautions.

3.8.1 The Centre management was transferred to the Council’s employ under the

terms of the transfer arrangements. The 3 existing sessional workers were re-employed by Hounslow and contracts of employment issued.

3.8.2 The existing funding, £31,000, has also been transferred from N.O.M’s, and is

ring-fenced for the resourcing of the centre. 3.8.3 The JAC operates in accordance with a national operating model developed

and monitored by the Youth Justice Board. The centre manager produces quarterly performance reports concerning usage. The YOS will report on key performance indicators in relation to re-offending rates of young people attending, and attendee’s engagement in accredited learning activity.

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IV. Partnership Arrangements

4.1 In 4.4.5 of the plan for 2014-16 two broad challenges for the YOS and its

partners were identified:

i. to sustain existing partnerships despite the fiscal pressures placed upon all partner agencies.

and

ii. to develop new partnerships to continuously improve service provision.

The following will illustrate the approach to addressing these challenges, and the partnership’s response to emerging challenges.

4.2 In May 2015 the Joint protocol between the YOS and Children’s Social Care

was revised and re-launched to inform the workforce across the service landscape. Some of the key changes are:

i. An agreement that young offenders requiring accommodation upon

release from custody will have a suitable placement identified at a minimum of 30 days prior to the earliest possible release date. Clearly this poses some financial pressures for Children’s Social Care. However, the principle was agreed on the basis of the evidence arising from the HMIP Thematic inspection of Resettlement following release from custody, and the need for the young person to be clear about their living arrangements prior to release, and for there to be no delay in providing the necessary services to support their successful resettlement into the community.

ii. The protocol also clarifies the mutual responsibilities of the YOS and children’s social care where there are concerns in relation to child sexual exploitation, and clarifies the referral pathway available to the YOS for young people not known to social care.

iii. The protocol also promotes joint working in relation to Children Looked After who are also involved in the Criminal Justice System (CJS). Recent local data suggests that only 4% of CLA are involved in offending behaviour. However, a small number of young people commit a disproportionate number of offences; these are usually late entrants to the care system and display a range of complex needs.

4.3 In January 2015 the YOS agreed a protocol with Metropolitan Police Service concerning Out of Court Disposals (OOCDs), the role of the police officers seconded to the YOS and a number of operational issues. This was ratified by the YCMB, also in January, but will need to be revised following the

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aforementioned transfer of responsibilities for OOCDS from Targeted Youth Support to the YOS.

4.4 As noted in 2.2 the YOS, WLMHT, and Joint Health and Social Care

Commissioners have agreed the role and a performance arrangement framework for a mental health worker seconded to the YOS.

4.5 After the termination of the London Regional Contract with Serco to provide

unpaid work orders for 16 to 18 year old offenders the YCMB gave due consideration to utilising the devolved funding from the Youth Justice Board to develop a bespoke service. However, the volume is low, only 3 orders last year, and the funding is small, £8,000 per annum, so it was decided to purchase the service from the Community Rehabilitation Company as of March 2015. This decision will be formally reviewed in March 2016 to determine whether the CRC is still the most cost-effective option.

4.6 Partnership arrangements with the National Probation Service remain positive

in relation to the transfer of orders for young offenders at the age of 18 years. However, the partnership with the CRC, with the exception of unpaid work remains under-developed. We may need to discuss with the CRC the arrangements for the transfer of responsibilities for the extended supervision of young people serving a Detention and Training where they are released into the community after their 18th birthday pursuant to the provisions of the Offender Rehabilitation Act 2014. However, currently numbers sentenced to custody are low and no-one has met the eligibility criteria for extended supervision since implementation in February 2015. Given this we take the view that in the likely few cases to which this applies it would be preferable for the YOS to provide supervision for the extended period and avoid the disruptive effects of a transfer to a different service. However, this will need to be kept under review in case the balance of workload and resources deteriorates.

4.7 The Special Education Needs and Disabilities (SEND) reforms have been

implemented. A multi-agency group agreed a process and protocol with regards to young prisoners achieving their 18th birthday whilst in custody and require an education or health care plan. Similar protocol has been agreed by the YCMB and Children’s Social Care for young offenders under the age of 18 years.

4.8 The YOS and its partners face several challenges in the coming year and

beyond.

i. Reduce the proven rate of re-offending: The rate in Hounslow is currently higher than the London average which is a significant concern for the local partnership. The YCMB has ownership of the local strategy to reduce re-offending which is outlined in section V, and Appendix II provides a summary of the action plan.

ii. We need to expand the delivery of Restorative Justice Interventions, in

particular direct victim offender mediation. To progress this, in addition to

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the YOS Specialist Restorative Justice worker, we have a partnership with victim support, funded by MOPAC, which provides a worker to work with victims and offenders in relation to pre-court disposals and Referral Orders.

In the coming year the Operations manager responsible for this area will a) approach the local business community to encourage the provision of surrogate victims to emphasise the impact of theft and criminal damage on the community b) a weapons awareness programme will be launched in July 2015 with participants from the local hospitals to illustrate the harmful effects of knife-enabled offences, and c) working in partnership with local children’s homes, including 3 private and voluntary providers to provide support for staff in conflict resolution without resource to the criminalisation of looked after children. This will be formalised in terms of a local protocol with the residential providers and the police. d) we will agree a protocol with Police and Community Safety team partners to provide youth restorative resolutions as part of the Community Remedy, and, also, to provide a framework for supporting Community Resolutions delivered by the police in response to minor offences. It is important to provide a consistent and effective response at this early stage to prevent an escalation of the offending and/or anti-social behaviour. All operational staff in the YOS have received training in the Restorative Justice approach during the past 2 years utilising the Youth Justice Board grant allocated for this purpose.

4.9 Hounslow YOS and its partners in the Local Justice Area, Hillingdon, Ealing,

the Police, and Courts work in close collaboration with matters relating to the Court. There is an existing Youth Court Protocol that outlines the roles and responsibilities at partner agencies. In addition a cross-borough working party is undertaking work to develop a scrutiny panel to co-ordinate and oversee the consistency of the approach to delivering out of court disposals across the 3 boroughs.

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V. Performance against Key Outcomes 5.1 The following provides a summary of performance against the key national

and local performance indicators. Below each indicator a commentary and analysis outlines any correct action required.

5.2 NI19: Rate of prove re-offending for young offenders Data extracted from the Central/National Youth Justice Management

Information System is drawn from data submitted by all youth offending teams in England and Wales, and is used by the Youth Justice Board for national reporting. The rate of re-offending is calculated for each local authority area on a 12 month rolling basis. Current data available from YJMIS is for the period July 2012 to June 2013. The YOS reports locally on the basis of the financial year, April to March. The latest, validated data available is, therefore for the period April 2013 to March 2014. This will steadily filter into the YJMIS into YJMIS reports with each passing quarter. The counting rules for measuring performance are the same, therefore any discrepancies relate to the different timescales for reporting.

Fig. I

Hounslow (July 12 – June 13 cohort)

(risk of re-offending after 12 months)

London Average

2012/2013

Hounslow (April 13 – March 14 cohort re-

offending after 12 months).

Binary rate: 45.8%

Frequency rate: 1:40

42.2% 1.21

Binary rate: 36.6%

Frequency: 1.10

The Binary rate simply measures whether a young offender has committed a further offence since the Judicial disposal that led to their inclusion in the cohort.

The Frequency rate measures the average number of offences per head of the offending population

5.3 Analysis

The July ‘12 to June ‘13 performance data illustrates that the rate of re-offending, both binary and frequency is higher than the London average. Performance has deteriorated over the past 12 months, and this is a cause for concern. However, indicative date for the period April ’13 to March ’14 suggests that performance has continuously improved in terms of both the binary and frequency rates of re-offending. Further exploration of the 2013/14 cohort indicates the following:

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Fig. 2

2013/14 Pre-court disposals rate of

re-offending

2013/14 Court disposals rate of

re-offending

35.52% 37.38%

5.4 The rate of re-offending for the pre-court/out of court disposals population is

significantly higher than is expected. This cohort have little or no previous offending history and should be less resistant to interventions that promote desistence.

5.5 As a consequence the decision has been taken to transfer responsibility for out of court disposals to the YOS, and this will entail the transfer of four staff from Targeted Youth Support and the YOS. The local reorganisation is scheduled for completion as of 1st September 2014 following staff consultation. This will facilitate a re-balancing of resources to increase the focus on the pre-court population to deliver evidence based programmes of intervention to reduce the rate of re-offending.

5.6 The improvement plan is attached as an appendix but, in summary will include full assessments to be completed on all young people bailed to return by the police prior to a decision concerning diversion, youth caution, youth conditional caution, or, in a few cases, charge and prosecution. This will reduce delay in the delivery of an intervention to reduce the likelihood of re-offending following the decision as to the disposal. Clearly, all those receiving a youth conditional caution will be provided with a mandatory 12 week intervention. However, it is intended that all young people receiving a caution or who received a Triage/Diversion from the Criminal Justice System will be offered an intervention on a voluntary basis. As noted above the rate of re-offending for cautions and conditional cautions is higher than expected, but the number of Triages that go on to commit an offender for which they are cautioned or convicted is currently (2013/14 – data) is 17.4%. A focus, on early intervention at this stage will reduce still more the number of first time entrants to the Criminal Justice System and disrupt the development of future offending career.

5.7 The work to reduce offending behaviour is already well-developed with respect to the court population including:

Offending behaviour group work – we anticipate achieving level one status

with Project Oracle in September 2015 and level two status in a further 12

months. This provides a uniform measure to demonstrate that

programmes are effective, evidence-based and delivered to a consistently

high standard.

Mentoring for individual young people at risk of re-offending.

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Restorative Justice, including community reparation, unpaid work for 16 to

18 year olds, victim empathy work – group and individual programmes,

and victim offender mediation.

5.8 Victim-offender mediation is currently underutilised. We are in the process of reviewing the approach to victims and its timeliness to promote greater engagement. In the coming year we will also seek to further develop the provision of surrogate victims from victim support and the local business community, to enhance the young offenders understanding of the impact of their behaviour on their victims and the wider community.

5.9 We have set ambitious targets to achieve a substantial reduction in the rate of proven re-offending by young people.

Fig. 3 Target rate of re-offending after 12 months against the baseline of July ‘12 – June ‘13

July ’12 to June ‘13 September ’15 to August ‘16

Binary Rate 45.8% 35%

Frequency Rate 1.40 1.10

5.10 This performance will not be exemplified until the data is available on YJMIS in October 2018, but will reflect the impact of the aforementioned improvements to practice being implemented now and during the autumn of 2015 once the transfer of responsibilities for out of court disposals is completed in September.

5.11 The YOS will continue to monitor progress by using the re-offending toolkit to ensure that the direction of travel is positive. The use of the tool will also enable the service to target resources more effectively as patterns of offending evolve and particular cohorts of young offenders emerge as priorities for action.

Fig. 4 Rate of Re-offending after 12 months by Gender and Ethnicity

April ’12 to March ‘13 April ’13 to March ‘14

Female 21% 39.1%

Male 34.2% 36.3%

White 29.3% 36.1%

Black 46.6% 41%

Asian 21.4% 32.3%

Mixed parentage 45.8% 50%

5.12 The most significant change in the past 12 months has been the increasing rate of re-offending by young women. This is consistent with the findings of the Thematic Inspection of services for young women and girls in the Youth Justice System published in 2014. The inspection indicated that young women offenders often display complex needs related to a lack of emotional well-being, and manifest complex relationships often characterised by relationship violence and/or sexual exploitation. A group work programme for young women has been developed by the YOS and will be launched in

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September. The Project Oracle framework will be used to evaluate impact over the next 12 months (see Appendix 2).

5.13 The YOS has strong links with services for victims of Domestic Violence, including the multi-agency Risk Assessment conference (MARAC), and an Independent Domestic Violence Advocate. The YOS is also a sitting member of the multi-agency sexual exploitation panel (MASE) which reviews the cases of all young people at risk of exploitation and co-ordinates safeguarding activity. In September 2015 the YOS will launch a group work programme for young women to address some of their specific risk concerns.

5.14 The increase in re-offending by Asian young offenders is also a concern, and a review of services for this group will be conducted in the autumn of 2015, to identify a practice improvements of additional resources that may be required.

5.15 Fig. 5 - Reducing the use of custody: Indicator – Reduce the number of young offenders sentenced or remanded to

custody (rate per 1,000 of 10 to 17 year old population)

April to March 2013/14

April to March 2014/15

Hounslow 0.49 0.40

London Average 0.98 0.67

National Average 0.52 0.42

Currently, the performance in Hounslow is better than the national average

and significantly better than the London Regional average.

5.16 Reducing the number of first time entrants (FTE) to the Criminal Justice System Fig. 6 – latest validated figures Jan – Dec 2013 Jan – Dec 2014

Hounslow 448 397

London Average 459 426

National Average 448 409

Hounslow’s performance remains consistently higher than London regional and National average performance.

5.17 Reducing the incidence of serious youth violence. This is a local measure rather than a national key performance indicator. Fig. 7 2012/13 2013/14 2014/15

No. of offences 119 157 138

In 2013/14 there was a substantial increase in offences of serious youth violence, however 2014/15 has seen a 12% reduction. This may be, in part, attributable to the above noted actions taken following the fatal stabbing of a young person in May 2014. Operation Concordia is a police-led multi-agency

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information sharing forum targeting prominent nominals aged up to 24 years identified as involved in offences of violence by the Trident Matrix. In addition the YOS leads a multi-agency Risk of Harm panel that coordinates the management of young offenders up to the age of 18 years who pose a risk to public safety. It is also worthy of note that offences of violence against the person perpetrated by young people reduced from 126 offences in 2013/14 to 87 in 2014/15, a reduction of over 30%.

5.18 However, given the recent increase across London of violent offences, and knife-enabled offences the YOS has introduced a weapons use reduction group work programme. The impact of this will be evaluated over the next 12 months. This is significant as, although youth involvement in violent offences has reduced there has been an 18.5% increase in public place violence in the borough. Timely intervention targeted at young people, may, therefore be instrumental in pre-empting their future involvement in offences of violence as young adults.

5.19 A further local target is to reduce the number of Deter young offenders (DYO’s), these are young people who are or are on the cusp of becoming prolific offenders, and to reduce the number of offences committed.

Fig. 8

Jan – Dec 2012 Jan – Dec 2013 Jan – Dec 2014

No. of D.Y.O’s 79 54 48

Average number of offences

16.88 17.74 13.60

We are currently exceeding the target to achieve a 5% reduction in the

number of DYO’s and the rate of offences per capita by 2015 against the

baseline for 2012.

5.20 We will report on the typology of offences and report in greater detail on the disproportionate representation of ethnic minority groups in the Criminal Justice System in September 2016 at the end of the two year planning cycle.

5.21 Challenges for 2015/16 i. As noted in the plan written in 2014 the local implementation of the

Community Remedy will place additional burdens upon the YOS in relation

to the delivery Restorative Justice resolutions. This will be compounded

by the implementation of Community Resolutions for minor offences

committed by young people. A common approach needs to be agreed

with partners in the Police and Community Safety Partnership which will

enable the resource pressures to be anticipated.

ii. Sustaining downward pressure on offences of violence and serious youth

violence.

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iii. Developing and assessing the impact of bespoke programmes for young

women and Asian young people.

iv. Reviewing the YOT’s performance in relation to new duties to prevent

violent extremism. This review is currently underway with partnership

within the Local Children’s Safeguarding board.

v. As noted above there needs to be a concerted focus on reducing the rate

of re-offending across all cohorts, but in particular to out of court disposals

cohort.

vi. Sustaining the current moment to safeguard vulnerable young people from

the risks of child sexual exploitation.

5.22 The risks to successfully achieved the stated objectives continue to be:

i. Financial reductions All partner agencies are subject to budget reductions although no reduction in contributions to the YOS are anticipated prior to April 2016. However, the National Probation Service are currently reviewing the formula for allocating resources to YOTS nationally. The Youth Justice Board is reviewing its granting funding of YOTS in future years. Any reduction in contributions in cash or kind will, inevitably, have an impact upon service delivery.

ii. The recruitment and retention of staff is always a critical success factor.

At present the YOS staff group is relatively stable but previous experience has shown that if and when staff leave the servicerecruiting suitable replacements presents a challenge.

5.23 The Action plan for 2014/15 (attached) indicates the majority of the goals

have been achieved. The Action Plan for 2015/17 must necessarily prioritise reducing the rate of re-offending. This is a national and regional priority as well as a local one.

The action plan for 2015/16 is presented in Appendix II.

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VI. Management Board Approval

Name

Position Representing Signature

Alan Adams

Director of

Children Services

LB Hounslow

Jacqui

McShannon

Assistant Director

Children’s

Safeguarding and

Specialist Services

LB Hounslow

Michael Marks Assistant Director

for Education and

Early Intervention

LB Hounslow

James Jolly

Assistant Chief

Officer

National

Probation Service

Rob Weir Chief Inspector Hounslow

Metropolitan

Police Service

Martin

Waddington

Assistant Director

Joint

Commissioning

LB Hounslow and

Health

Rob Butler

Deputy West London

Magistrates

Association

Nigel Farmer Head of

Community Safety

LB Hounslow

Chris Domeney Head of Youth

Offending Service

LB Hounslow

Niamh

Farron

Head of The

Community

Rehabilitation

Company

CRC

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Acting Operations Manager

Probation Officer

YOS Officer

YJLD MENTAL

HEALTH

WORKER

HEAD OF YOUTH OFFENDING SERVICE

Management Information Coordinator

Operations Manager

Service Support

Manager

Court Systems Officer

Police Officer

X 3

2 F.T.E.

YOS Officer

Court Systems Officer

Operations Manager

YOS Officer

CAMHS Band 7

Nurse

KYPE Worker P/T

YOS Officer

YOS Officer

Court Systems

Officer

YOS Officer

Restorative Justice

Officer

YOS Officer

Mentoring

Coordinator

Parenting Worker

P/T

YOS Officer

Administration

Support

JAC Manager

JAC Sessionals X3

YOS Officer Sessionals X 20

Secondee – Visions Substance

Misuse Worker

Evening

Receptionist P/T

YOS Officer

Senior Practitioner (TYS)

YOS Officer

TYS Worker

TYS Worker

Shaded Boxes = LBH Seconded Staff

Shaded Boxes = Seconded Staff non-LBH

Appropriate Adult Scheme

Volunteers

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Action Plan

Outcome Action(s) How Will impact be

Measured? Owner(s) Timescales Outcome

Reduce the number of F.T.E

Review impact of Triage system.

Reduction of F.T.E against 2013/14 baseline.

Head of YOS and Head of E.I.S

Jan 2015 Baseline: 103 14/15 Actual: 85 achieved

Reduce the rate of proven re-offending

Use the YJB re-offending toolkit to improve targeting of most likely to re-offend.

Achieve year on year target for reductions outlined in section v.

Head of YOS/ information co-ordinator

Jan 2015 Plan revised.

Reduce the number of offences of serious youth violence

Sustain continuous improvement to the gathering and sharing of intelligence for Operation Concordia. Embed the operations of the multi-agency Risk of harm panel.

Monthly sharing of Risk intelligence. Reduce the volume of offences by 2% against baseline of 2013/14.

Multi-agency planning for the high risk cases- Reduce SYV offences by 2%.

Head of YOS/ Metropolitan Police Head of YOS

Sept 2015 Sept 2015

Achieved. Achieved.

Improved Intelligence concerning young people at risk of involvement in crime

Recruitment of a dedicated YOS worker to be based in the Multi-agency safeguarding Hub.

Reduction in F.T.E. by 2% against 2013/14 baseline.

Head of YOS/ Head of E.I.S April 2015 Not achieved – funding not released.

Increase Victim involvement in Restorative Justice process?

Improve timeliness of initial victim contact and improve the offer of services provided.

50% of identified victims of youth offence to participate in direct or indirect R.J process. 80% of victims participating to indicate satisfaction with the service provided.

Head of YOS / Operations Manager Head of YOS / Operations Manager

Sept 2015 Sept 2015

Not achieved – process being reviewed. Not measurable due to low rate of return – process being reviewed.

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Outcome Action(s) How Will impact be Measured?

Owner(s) Timescales Outcome

Improve compliance with National Standards for enforcement

Case-managers to issue 1st or 2nd warnings for failures to comply within 1 working day.

80% rate of compliance Head of YOS / Operations Manager

Sept 2015 Achieved.

Improve YOS staff awareness of the risks of Child Sexual Exploitation (CSE)

Staff Training in use of the London Safeguarding Procedures Assessment Tool.

Timely referrals of Cases of concern to CSE multi agency panel.

Head of YOS/ Asst Director Specialist service

Sept 2015

Achieved March 2015.

Reduce the rate of offending and re-offending by Looked After Children

Establish a reliable baseline Review Joint Protocol with Children’s services to improve integrated planning and service delivery. Reduce rate of offending and re-offending (binary and frequency rate).

Reduce rate of offending and re-offending (binary and frequency rate) 2% reduction against 2015 baseline.

Asst. Director Children’s specialist services Head of YOS/ Asst. Dir. Head of YOS/ Asst. Dir.

April 2015 March 2015 April 2016

4% - Achieved. Achieved – April 2015. In train.

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Appendix II

Action Plan 2015/16

Outcome Action(s) How will impact be measured Owner(s) Timescales

1. Reduce the rate of proven re-offending to: Binary rate: 36% Frequency rate: 1.21 by September 2017

1.1 Transfer responsibility for OOCD’s from TYS to YOS.

1.2 All young people for whom an MG3 is received to have a Core Asset completed within 15 working days.

1.3 90% of Triage/OOCD’s to be offered a 4 to 6 session intervention at a minimum.

1.4 Achieve level I status with

Project Oracle for TAB group by 09/15 and level 2 by 09/16.

1.5 Improve partnership working with Secure Estate and Resettlement brokers.

1.6 Launch and evaluate impact

of group work for young women offenders.

Consultation and transfer complete.

Monthly information reports from CVYJ.

BTR dates not extended in 100% of cases.

Number of Triage cases coming to further notice to reduce by 5%.

Rate of re-offending by OOCD to reduce by 10%.

Reduce rate of re-offending by Community disposals by 3%. Reduce re-offending rate of custodial population by 3%. Reduce rate of re-offending by women by 10% against baseline of 39% in April 2015.

CD/SM

CD/RW

CD/RW

AVR/SA/PD

CD/RW

AK/KM

1st September 2015

01/09/15 Ongoing

September 2016

September 2016

September 2016

September 2016

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1.7 Review of causes for increased re-offending by Asian youth and assess impact upon Prevent agenda.

1.8 Use of re-offending toolkit

to continuously improve targeting of at risk groups.

1.9 Delivery of offensive

weapons programme to at risk youth.

1.10 Establish referral pathway to the Step Change project.

Action plan to be agreed by YCMB. Reduced re-offending as stated above and report to YCMB further refining target groups. Reduction in offences of serious youth violence by 5% from 2014/15 – baseline of 138.

Reduce knife-enabled offences by 25 to 221 offences against 2014 baseline of 246 offences.

Reduce re-offending rate by children looked after (baseline and target to be determined by internal review by Children’s Services).

KM/CD

SA/CD

CD/JH

January 2016

March 2016 (report to YCMB)

September 2015 (referral pathway established)

2. Install AssetPlus All staff to complete YJILS training.

Train the trainers – 2 staff to complete.

All staff to be trained in use of database.

Installation May 2016.

L & D completed. Attendance monitored. Competency testing after training. Ready for use.

YOS Management Team

AVR/SA

SA/Management Team

CD/JMcS

Training completed by January 2016

September 2015

May 2016

May 2016

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3. Review YOS practice in regard to duties with respect to counter-terrorism.

Health audit of systems and processes.

Compliance check presented to YCMB.

CD/JMcS November 2015

london borough of hounslow · 2015. 9. 15. · preparing local youth for future employment. the...

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