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Thursday 14 December 2017
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Integrated Offender Management Cymru IOMC Toolkit

Version: Tk/S/9/1.0

Produced by: Wales Probation

November 2011

 

Contents

  • Acknowledgements

  • Foreword

  • Preface

  • Background

  • Desired Outcomes

  • The Benefits

  • Governance

  • Resources

  • Cohort Selection

  • Cohort Management

  • De-Selection from Cohort

  • Performance Management

  • Skills for Staff (considerations)

  • Appendix A - Proposed IOM Stakeholders

  • Appendix B - Glossary of Terms

  • Appendix C - Links

 

 

Acknowledgements

This toolkit, and the work to develop Integrated Offender Management Cymru (IOM Cymru), has been undertaken by the IOM Cymru Working Group. The group will continue to work to develop IOM Cymru across Wales and work to support the IOM Cymru Board.

 

We would like to thank Tony Kirk, Emma Wools and Sarah Clancy (Wales Probation), Jonathon Hill (North Wales Police), Reg Bevan (Dyfed Powys Police), Lisa Gore (Welsh Government/ACPO Cymru) and Ian Roberts (Gwent Police) for their work in developing the IOM Cymru Toolkit.

 

We would also like to acknowledge the support of the National Policing Improvement Agency through Assistant Chief Constable John Long, Association of Chief Police Officers lead for Integrated Offender Management, in helping to produce this toolkit and supporting the development of IOM Cymru.

 

 

Foreword

Integrated Offender Management (IOM) is an overarching approach aimed at the management of priority groups of high risk offenders. It builds on the successes of existing offender management schemes and brings them together to provide consistency and focus on a single cohort of offenders, including those on schemes such as:

  • Prolific and other Priority Offenders (PPOs)

  • Deter Young Offenders (DYOs)

  • Drug Interventions Programme (DIP)

  • Other offenders at a high risk of offending.

 

This toolkit is a partnership project commissioned by the IOM Cymru Board (IOMCB) as an off-the-shelf guide to Integrated Offender Management within Wales. The intention is to assist both managers and practitioners in setting up effective integrated offender management arrangements within their respective geographical areas, giving practical guidance on governance arrangements, resource allocation, cohort selection criteria, benefits and outcomes. It should be viewed as a living document that provides a framework to ensure a coordinated approach across Wales whilst allowing flexibility for local priorities.

 

ACPO Cymru and Wales Probation, in partnership with other key stakeholders, are committed to developing and delivering IOM arrangements across Wales. We are also committed to growing effective partnerships across Wales to manage offenders and reduce crime. IOM Cymru is the most ambitious implementation of IOM in the UK, spanning four Police Forces, 22 Community Safety Partnerships, Wales Probation, Welsh Government, six Prisons and seven Local Health Boards. This toolkit is a vital part of that aim. We are pleased, therefore, to recommend it to you and would encourage all partners to use it to deliver IOM across Wales.

 

 

Integrated Offender Management Cymru IOMC Toolkit image 1.jpg

Wales Probation

 

 

Integrated Offender Management Cymru IOMC Toolkit image 2.jpg

ACPO Cymru

 

 

1. Preface

1.1 The aim of Integrated Offender Management Cymru (IOM Cymru) is to help local delivery partners to jointly reduce crime, reduce levels of re offending, improve public confidence in the criminal justice system and tackle the social exclusion of offenders and their families - recognising that all these areas are interconnected. We all have a collective responsibility to reduce reoffending in Wales. Concentrating our focus on those individuals most likely to commit crime will have obvious benefits in terms of reducing crime and protecting the public. IOM Cymru is a system that provides all agencies engaged in local criminal and social justice partnerships with a single coherent structure to achieve these ends.

 
1.2 IOM Cymru seeks to enhance existing offender management services and structures. It provides a local framework for the public, voluntary and private sector to come together to ensure that those offenders who cause most concern locally are managed in a co-ordinated and seamless way. IOM Cymru brings greater coherence to the delivery of relevant local programmes and approaches to tackle crime, reduce reoffending and protect communities. This approach will have clear benefits to those agencies traditionally working in offender management. IOM Cymru will reinforce the case to reinvest money in earlier support and intervention to curtail the development of entrenched offending behaviour.

 
1.3 IOM Cymru will be the focal point of local and countrywide efforts to deliver these aims. IOM Cymru schemes will assist in the development of stronger and more sustainable partnerships amongst local delivery agencies including voluntary and private sector providers throughout Wales. It requires real integration between social and criminal justice structures, and should be reflected in organisational business plans, IOM Cymru takes the co-operation evident in pre-existing offender management arrangements to real time collaboration between partners. Such arrangements can be expanded as necessary to address the wider demands on public services, such as families with complex needs.

 
 

2. Background

2.1 Local integrated offender management approaches differ from area to area, reflecting local priorities, but there are common key principles. These are:

  • All partners tackling offenders together. Local partners (both criminal justice and non-criminal justice agencies) encourage the development of a multi-agency problem-solving approach by focussing on offenders, not offences.
  • Delivering a local response to local problems. All relevant local partners are involved in strategic planning, decision-making and funding choices.
  • Offenders facing their responsibility or facing the consequences. Offenders are provided with a clear understanding of what is expected of them.
  • Making better use of existing programmes and governance. This involves gaining further benefits from programmes (such as the prolific and other priority offenders programme, drug interventions programme, and community justice) to increase the benefits for communities. This will also enable partners to provide greater clarity around roles and responsibilities.
  • All offenders at high risk of causing serious harm and/or reoffending are 'in scope'. Intensity of management relates directly to severity of risk, irrespective of position within the criminal justice system or whether statutory or non-statutory.

 

2.2 There are a number of examples of good IOM practice at a local and national level. These will be reviewed to identify the key learning and help support the further development of IOM Cymru. This will form additional information available to practitioners in the future.

 
2.3 The All Wales Criminal Justice Board (WCJB) has been established and is led by ACPO Cymru and Wales Probation acting as chair and vice chair. Whilst criminal justice is not devolved, the Welsh Government also has a vital role to play on the WCJB. One of the responsibilities of the WCJB is to support and oversee the development of IOM Cymru across Wales.

 
2.4 An IOM Cymru Board (IOMCB), which reports to WCJB, has been established to support and facilitate the development of IOM Cymru in local areas. The purpose of this Toolkit is to support the IOMCB to deliver IOM Cymru in a coordinated way throughout Wales through local, regional and national structures.

 

 

3. Desired Outcomes

3.1 The real opportunity of IOM Cymru is the bringing together of the widest range of partners within Wales to deliver a co-ordinated approach to reducing reoffending, thereby cutting crime and reducing the demand on services in Wales by individuals with complex needs. Reducing crime through a multi agency approach will assist in raising public confidence in the Criminal Justice System through the ability to effectively impact on those who present the highest risk of reoffending.
 

3.2 IOM Cymru supports the United Kingdom Government’s strategic aims by:

  • Dealing with the underlying causes of reoffending by supporting the pathways to prevent reoffending.
  • Breaking the cycle of reoffending and reducing costs to society and the criminal justice system.
  • Supporting and encouraging a more local flexible approach to criminal justice.
  • Being well placed to support innovations in criminal justice funding models.
     

3.3 IOM Cymru contributes to the Welsh Governments priorities by:

  • Creating safer more sustainable communities by managing offenders, and their families, who have the most complex needs.
  • Reducing the fear of crime by effectively managing those offenders who cause most harm to communities.
  • Addressing drug and alcohol related criminality by dealing with offenders problematic substance misuse through support and intervention.
  • Managing some of the most persistent and antisocial offenders in Wales to address concerns regarding anti-social behaviour within communities.
  • Managing those offenders who have the most significant impact upon community confidence in Wales.

 

 

4. The Benefits

4.1 By adopting an integrated approach to the management of offenders, partners embracing IOM Cymru should realise the following benefits:

  • Increased public confidence.

  • Reduced crime and reoffending of selected crime groups.

  • Support in the delivery of shared partnership priorities.

  • Savings from more efficient organisational activity to manage the consequences of offending behaviour.
    Potential re-investment in early intervention from savings made in the Criminal and Social Justice sectors.

 
 

5. Governance

5.1 All relevant local partners should be involved in strategic planning, decision-making and funding choices. IOM Cymru involves innovative thinking in the effective use of resources and, at times, bold organisational leadership, including the creative use of resources and budgets. This is particularly important in a financially challenging landscape that requires innovative ways of working. Strong strategic leadership is required to work in this way and should encompass the criminal and social justice spectrum within a partnership.

 

 

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5.2 The strategic governance for IOM Cymru is illustrated in the above diagram. National, regional and local governance arrangements are as follows:

 

  • Wales Criminal Justice Board (WCJB). The WCJB is the overarching body that has accepted responsibility for the delivery of IOM Cymru. It will support IOMCB to deliver IOM and hold it to account for achieving agreed performance outcomes. The priorities of the WCJB are to:

    • Deliver the CJS Efficiency Programme

    • Reduce reoffending across Wales

    • Seek to improve services to victims and witnesses in Wales

 

  • Integrated Offender Management Cymru Board (IOMCB). IOMCB will be responsible for supporting the IOMRGs and ensuring that IOM Cymru is delivered in a consistent and coordinated way. IOMCB will encourage and support the development of IOM arrangements and monitor the relative performance of IOM at a partnership level. The IOMRGs will report quarterly up to the IOMCB who will, in turn, report quarterly up to the Wales Criminal Justice Board. The IOMCB will ensure that IOM Cymru has a distinct and recognisable Welsh brand and is addressing Welsh national priorities in its cohort selection.

    • Terms of Reference for, and membership of, the IOMCB are currently in the consultation stage and will finalised in the new year.

    • Current membership of this group comprises Police, Probation, Prison, Welsh Government, NHS, National Offender Management Service (NOMS), Job Centre Plus and the Welsh Association of Community Safety Officers (WACSO.

 

  • Integrated Offender Management Regional Groups (IOMRGs). Four IOM Regional Groups chaired jointly by Wales Probation and the Police, have been created to provide local leadership, direction and effective channels of communication between CSPs and the IOMCB. The IOMRGs should ensure that local barriers to the development of IOM Cymru are removed and work with CSPs and other criminal and social justice partners. The IOMRGs will work with CSPs to ensure that local IOM Cymru arrangements are addressing regional priorities. Each IOMRG should meet quarterly to:

    • Develop a regional plan to reduce reoffending.

    • Monitor the progress of local implementation plans.

    • Monitor key outcome measures.

    • Identify and escalate risks that require support at a National level.

    • Identify and promulgate good practice.

    • Receive and consider a report from the IOMSG.

Terms of Reference and a reporting template for the IOMRGs are in the consultation stage and will be finalised in the new year.

 

  • Community Safety Partnerships (CSPs). IOM is managed locally through CSP Executive groups which have responsibility for the strategic development and operational delivery of local IOM arrangements. The CSP should decide upon the local priorities to be addressed by IOM Cymru and ensure that the cohort reflects the needs of the locality. It should also engage with all local delivery partners to ensure that IOM Cymru makes full use of the expertise in the voluntary and private sector. CSPs should review IOM Cymru performance on a quarterly basis to ensure that it is effectively and efficiently delivering integrated offender management services. The CSP should also be represented at IOMRG level.

 

 

. Resources

6.1 The CSP should first agree the priorities to be addressed, then the scope of the partners to be involved, followed by the resources to be committed (see Appendix A for list of suggested stakeholders). Local priorities can be identified through the CSP strategic assessment (for example, priority crime types, crime and anti-social behaviour hot-spot areas and priority needs). In addition, areas should also take full account of the priorities of individual stakeholders.

 
6.2 Mapping the offender journey will help to identify the key partners beyond the obvious. Identifying the broad range of providers in a community that deliver services to offenders and their families will help bring in partners such as health, benefits, housing as well as a range of voluntary sector providers. It will also be necessary at this stage to map out the various offender management services across partnerships to ascertain how IOM might streamline the processes and reduce duplication. As a minimum, the following Pathways out of offending should be prioritised through local IOM arrangements:

  • Accommodation and support

  • Education, training and employment

  • Health

  • Drugs and alcohol

  • Children and families

  • Finance, benefits and debt

  • Attitudes, thinking and behaviour

 

6.3 The voluntary sector is seen as key to supporting the effective delivery of IOM arrangements at a local and national level. The Wales Council for Voluntary Action (WCVA) can assist in identifying and mobilising voluntary sector resources in Wales. Organisations such as Clinks and Revolving Doors can also help with identifying local voluntary sector partners.
 

The below template provides guidance on the questions to be asked when planning the resources required by IOM Cymru.
 

 

   Resource Planning  Action              Lead                 Date              
Has there been mapping of all the local service providers, including voluntary community social enterprise and private sectors, to ensure that the potential partnership arrangements are as comprehensive as possible?      
Are there other agencies who should be involved?
Who are they?
How should they be engaged?
Are there interdependent delivery outcomes?
     
Do the local IOM arrangements allow for quick and effective decisions about what to do and any associated resource deployment or interventions?      
Agree operational model      
Agree staffing levels of Intelligence & Case Management teams      
Agree roles and job descriptions      
Agree team supervision and from what agency      
Clarify roles of other offender management regimes      
Rationalise existing offender management arrangements to maximise benefits of streamlined IOM processes      
Clarify role of mainstream staff within parent organisations      

 

 

6.4 Whilst there may be some variation in the involvement of partners at a regional level, the unique governance structure in Wales and presence of All Wales agencies alongside regional structures does allow for key partners to be determined at a National level. It is clear that Wales Probation and the Police should provide staff to work within an IOM structure. The Prison Service are also key partners. For example, some areas utilise seconded Prison staff to ensure that the offenders journey from arrest through to sentence and release is supported by key Criminal Justice agencies. Additionally DIP Wales and Youth Justice Teams should also be part of the IOM management structure where their clients are within the selected cohort for an area. YOS workers can benefit from access to real time police data and enforcement activity, to enhance risk management, even though they continue to manage those young offenders under the same orders and interventions as they have previously.
 

6.5 Having YOS, DIP and MAPPA clients managed in a separate process where they fit the cohort criteria reduces the organisational and operational visibility of the cohort and fails to realise the benefits of more efficient working. It also means those offenders and agencies managing them lack the wider support available through IOM Cymru. It is important, however, that each agency retains its identity. The strength of IOM Cymru is the particular skills that partners bring to the management of offenders. Those skills can be lost where partners begin to resemble each other.
 

6.6 The IOM Cymru operational team reports to senior Police and Probation managers who will be jointly responsible for reporting into the CSP Executive. The operational delivery of IOM Cymru should be the joint responsibility of a Probation Team Manager and a Police Manager. The below diagram illustrates the team structure. This would ideally be co-located to deliver Integrated Offender Management in the most efficient and effective way. The IOM Cymru team should include designated personnel from Probation, Police, YOS, DIP, Prisons, Housing and other local agencies.
 

6.7 The diagram represents an outline of an IOM Cymru resourcing structure that provides the following key functions:

  • Intelligence

  • Intensive supervision casework

  • Non-statutory casework

  • Rapid intervention

  • Pathway support

 

Where additional resources are required, they can of course be woven into the structure. For example, Neighbourhood Policing Teams (NPT’s) will be closely linked to the management of offenders and will provide the additional resource required and work to the IOM Cymru operational team.

One would expect local police to provide additional intelligence on the selected cohort and engage with them on a regular basis in accordance with their role. It is important, however, that the role of local police in supporting IOM Cymru is clearly defined and communicated. Forces should consider ensuring that supporting offender management forms an integral part of the local police role and performance framework.
 

6.8 In order to achieve the potential benefits that IOM Cymru offers, ACPO guidance indicates that the size of cohort needs to be four to five times larger than that of a traditional PPO cohort. Partnerships need to review their current PPO cohort size to ensure that it accurately reflects the most prolific offenders in each local area. The size of the potential IOM cohort should then dictate the size of the IOM team using the resourcing to risk principles.
 

Therefore, based on Home Office PPO Refresh guidance and ACPO IOM guidance:
 

A smaller sized CSP area should have 60 to 100 offenders in their IOM cohort, including 15 to 20 PPO’s.
 

A larger sized CSP area should have 240 to 500 offenders in their IOM cohort, including 60 to 100 PPO’s.
 

6.9 The above numbers are an indication of the size of a potential cohort and as a consequence the resources that will be required to meet the risk. The size of the IOM team may vary dependant on the offender management practices prevalent in local areas and whether offender managers are dedicated to IOM Cymru offenders or carry a workload outside of the cohort. At any one time, some offenders will require intensive support and supervision. Others, particularly in respect of non-statutory offenders, may only be subject to basic monitoring. Whether the offender management responsibility is shared by agencies is dependant upon the local investment in IOM Cymru and the offender environment. Where able, IOM Cymru should ensure that agencies manage those offenders that they are traditionally responsible for. The lead agency should be identified and recorded on relevant case management systems and agreed by the IOM meeting structure at the earliest opportunity. This structure will ensure that the particular skills of agencies are applied to the relevant offenders. At the same time those skills will be available to support other offender managers.
 

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7. Cohort Selection

7.1 Cohort selection is the single most important aspect of IOM. In many places, the IOM approach has been built up from the local PPO scheme. Accordingly, the focus has started with acquisitive offenders, including those with Class A drugs misuse issues, which led to the close partnership between PPO and DIP. Over time, the IOM approach has evolved to encompass a broader spectrum of offenders and multi-agency initiatives. As a consequence, IOM is now used to plug intervention gaps for those offenders who are assessed to be at risk of reoffending but not covered by statutory provision. Additionally, initiatives such as Street-Level Up (a project that aims to reduce harm in drug markets by reducing the levels of drug abuse and related crime) can benefit from an IOM approach by targeting resources at those offenders identified by the operation as those most likely to re-offend. Therefore, by jointly assessing and agreeing the cohort that need interventions, the greater the opportunities for achieving efficiences by ensuring resources are targeted on appropriate local priorities. In turn, joint working should mean governance and oversight arrangements are rationalised; freeing up time and resources.
 

7.2 The IOM approach can also be applied to early intervention and preventative strategies by identifying the multiple needs (not exclusively criminal justice), of offenders and their families. They can often be high (cost) users of local services, but using the IOM approach of applying joined-up and coordinated local services increases the opportunities for making efficiency savings, both in the short and longer terms. For example, by addressing the underlying factors that could lead to offending in the first place and subsequent reoffending e.g. health, education and accommodation needs.
 

7.3 Partnerships must first decide the nature of offending and or risk that they wish to impact upon. Most IOM cohorts have focused upon acquisitive crime offenders and, particularly, non-statutory offenders. Phase two of IOM across the UK is beginning to look at how IOM can be used to support the management of serious sexual and violent crime offenders, as well as those involved in gang related behaviour. The particular offending type that will be deemed to be in focus may well vary from CSP to CSP. One simple method to ensure commonality in the IOM Cymru selection process is to score priority offending and leave its definition to local areas.

 

7.4 The IOM Cymru Selection Matrix refers to priority offending, which can be anything from Robbery to Criminal Damage. Whatever the local areas determine a priority can be scored accordingly. It also allows for the insertion of Regional, National and UK Government priorities. The matrix allows for the adoption of a consistent approach across Wales, which will assist the IOMRGs to provide support to local IOM arrangements. IOMCB will also be able to accurately measure the success of IOM Cymru and, thus, provide more effective support across the regional IOM Cymru structure. The matrix should be used by all IOM Cymru partnerships to select their cohorts in order to realise the benefits of IOM Cymru. The matrix will provide a score indicating whether an offender should be managed through IOM Cymru, which should be balanced with other factors not contained within the matrix. In circumstances where offenders are managed when the matrix score does not support that decision, or are not managed when the matrix indicates they should be, the additional factors should be recorded and the offender flagged accordingly. The adoption of a consistent, national approach will strengthen the development and sustainability of local schemes. The matrix takes account of the following information:

  • Risk and need assessment tools – OGRS 3, OASys, ASSET

  • Police intelligence/information

  • CSP priorities

  • Cost of crime

  • Other relevant information
     

7.5 IOM Cymru cohorts will comprise the relevant offender within the following groups:

  • Non statutory offenders, including short term custody cases, those in Police custody or those otherwise the subject of information that suggests a high risk of reoffending.

  • All Prolific and other Priority Offenders (PPO)

  • Deter Young Offenders (DYO)

  • Substance misusing offenders (DIP, DRR, ATR, Street-Level Up)

  • Offenders who fall short of PPO status but information indicates there is a high risk of reoffending based on risk/harm assessment

  • Adult and juvenile offenders subject to statutory supervision

  • Those committing other offending, such as anti-social behaviour (ASB), the level of which would make them susceptible to an inter-agency approach

  • High risk of harm offenders

  • Offenders on the cusp of gang-related behaviour and organised crime

 

 

7.6 SELECTION PROCESS

 

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Integrated Offender Management Cymru IOMC Toolkit image 6.jpg

8. Cohort Management

8.1 Once an offender is accepted into the IOM Cymru cohort they will be allocated an offender manager and a lead agency. The offender manager will be responsible for producing an offender management plan based upon the offenders assessed level of risk and need. The management plan will be agreed at the next relevant multi-agency meeting. It will be the offender manager’s responsibility to coordinate all partnership support and interventions. The offender manager will ensure that the offender is recorded on the relevant offender management database. As a minimum, this will include the following:

  • Probation record management system (CRAMS)
  • Police record management system (STORM, NICHE)
  • Prison record management system (P-NOMIS)
  • National databases (PNC, IDIOM)
     

It is vital that information contained in legacy systems is also recorded onto a standard IOM database. Whilst this will contain an element of double keying, it is necessary to ensure that the operational and organisational surveillance is maintained against the entire IOM cohort. All IOM offenders should have an offender management plan on a common database as well as on the systems used by the lead agency.
 

8.2 Visibility of the offender and management of the offender across all partners is vital and will enable informed decisions to be made in respect of support and interventions. Similarly the use of IDIOM to track the offender and provide data on the performance of IOM Cymru will be important in accessing potential future funding streams.
 

8.3 The IOM Cymru Board will continue to look at ways to enhance IOM Cymru processes and systems across Wales supported by the NPIA and ACPO.
 

8.4 IOM Cymru offenders should be subject to a risk assessment grading consistent with the level of engagement they require and risk they present.

 

IOM Risk Classification (RAG)

 

Red

Wanted or actively linked to crime

Intelligence indicates that the offender is actively committing priority crime offences

Disengaged with supervision/Treatment services

Subject to enforcement proceedings (Recall)

Amber

Incomplete intelligence picture to determine degree of priority crime offending. Professional Judgement suggests an offender is involved or at risk

Mixed/Poor compliance, particularly in relation to interventions directly relating to the management of risk

Green

No intelligence to suggest offending

Fully engaged/compliant with interventions

 

 

8.5 Those graded as red should be subject to daily management meetings and reviews as well as Police intelligence checks, support intervention from Neighbourhood Policing Team’s and robust Probation enforcement. The offender manager can raise the offender to red status at any time but status should be agreed at the first available multi-agency meeting. Red offenders should be subject to intensive intervention from all agencies and rapid arrest and enforcement. PNC should be updated to indicate that the offender is not engaging with their plan and positive action is requested for all reported offences. The offender will also be raised at the Tactical Tasking and Coordinating Group as level three targets with consideration of raising to level two to utilise additional Police assets. This information should be recorded on PNC to assist practitioners. Red offenders should be part of Basic Command Unit (BCU) daily tasking to ensure intensive activity is maintained.
 

8.6 Amber offenders should be actively managed and monitored in accordance with the offender management plan and be subject to fortnightly multi-agency review. Intelligence products should be reviewed on a weekly basis in respect of amber offenders. Consideration should be given to non criminal justice remedies, such as Restorative Justice and community resolutions, where minor offences are committed. Prior to any charging decision, every effort should be made to consult with the offender management unit/offender manager. This should be recorded as part of the PNC marker to assist decision-making.
 

8.7 Green offenders should be subject to basic monitoring in addition to the offender plan. They would not be discussed at fortnightly multi-agency meeting except to sign off completion of the offender management plan and remove from the cohort where applicable. There should be a presumption of non criminal justice remedies for minor offences and the offender should not be charged with minor offences without reference to the offender management unit/offender manager. This information should be recorded on PNC.
 

 

9. De-Selection from Cohort

9.1 Selection and de-selection meetings should be held every two weeks alongside the multi-agency meetings. Partners will assess offenders for de-selection against the criteria below and agree to deselect an offender from the cohort where they fit the below criteria.
 

9.2 It is important to note that migration and selection/de-selection meetings are not a forum for exchanging information. The exchange of information should occur on a daily basis. The purpose of the meetings is for partners to:

  • Agree lead Agency and Offender manager for offenders.
  • Review status of offenders from recommendations made.
  • Select and de-select offenders to cohort.
  • Hold partners to account for actions.
     

De-Selection Criteria
Offenders should be considered for de-selection if one or more of the following criteria apply:

  • Classified as Green for three months where a clear exit strategy is in place
  • No conviction in the last 12 months
  • No outstanding charges
  • Individual moves to a new area
  • Individual receives a custodial sentence where they will remain in custody for two years or more
     

 

10. Performance Management

10.1 The reoffending rate of managed offenders will be an obvious starting point to assess the success of the IOM Cymru arrangements. Clearly reductions in recorded crime of the relevant crime group will also be part of ascertaining any such success. Reduction in reoffending can however be difficult to ascribe to the particular IOM Cymru arrangements. One way to overcome this is to use the OGRS risk of reoffending score as a starting point and measure this against the actual rate of reoffending versus the predicted rate. This will also take into account changing offending behaviour to less harmful offences and also take into account reductions in frequency of offending behaviour as opposed to absolute cessation. Consideration should also be given to assessing the extent to which demand upon other agencies has reduced. This is the purpose of gaining as much information about the offender prior to selection. If an offender is moved from unemployment based benefits to work based credits this needs to be captured. It will also act as a powerful stimulus to widen the IOM Cymru partnership.

 

 

Performance

Predicted/Baseline

Post/Actual             

Overall reoffending rate of cohort combined    
PPO reoffending rate    
Reduction in reoffending by youth offenders combined    
% of cohort that reoffends

N/A

 
Frequency of offending    

Reductions in priority crime of cohort

   
Cost of crime perpetrated by cohort    
Cost of crime perpetrated by cohort less cost of interventions    
Unemployment based benefits received    
Work based benefits received    
Social Service interventions    

 

 

10.2 Economic & Social Cost of Crime - The following link will take you to a the Home Office IOM Value for Money Tool.
http://www.homeoffice.gov.uk/publications/crime/reducing-reoffending/iom-toolkit-phase2

 

 

11. Skills for Staff (considerations)

11.1 Work from the Home Office National IOM working group has identified the following issues for examination when developing IOM training:

  • Induction and on-going trainingIncrease awareness at all levels within key stakeholders’ workforce
  • Ensure a united and agreed vision for IOM
  • Establish an integrated delivery method with clear aims and objectives
  • Clarify roles and responsibilities from agencies
  • Strengthen the partnership
  • Develop the workforces’ required skills.
  • Ensure an effective/efficient management of offenders
     

Given the wide range of agencies involved in local IOM arrangements, any training package needs to consider mainstream induction as well as induction packages for those directly involved in strategic development and operational delivery. Therefore, induction packages will take into account:

  • Mainstreaming IOM approaches (induction, information pack)
  • Strategic involvement
  • Operational delivery

 

 

Induction for Practitioners to include:

  • Explanation of the local IOM arrangement
  • Aims and objectives, success measures
  • Priority group(s), including selection/de-selection criteria
  • Governance and team structure(s)
  • Commissioning arrangements
  • Resources (local agencies and their roles)
  • Menu of interventions
  • Local needs analysis
  • Roles and responsibilities

  • Reoffending pathways and related contacts/agencies
  • Risk assessment arrangements
  • Boundaries with offenders
  • Information sharing protocols between agencies and with offenders
  • Type of Probation supervision
  • Requirements of Recall
  • The acronyms & terminology of all IOM agencies
  • Introduction to advocacy

 

Induction for the strategic stakeholders to include:

  • National drivers
  • Framework and principles
  • Explanation of the local IOM arrangement
  • Aims and objectives, success measures
  • Performance indicators / conflicting priorities & de-confliction
  • Local issues
  • Balance of issues (prioritisation)
  • Priority group(s)

  • Governance and team structure(s)
  • Commissioning arrangements
  • Resources: Local networks/community aspirations
  • Needs analysis and cross agency strategic assessments
  • Information sharing protocols
  • The acronyms & terminology of all IOM agencies

 

11.2 Knowledge sets required and identified by the local IOM team can be grouped into three categories:

  • Knowledge only available locally

  • Knowledge available nationally

  • Knowledge that requires both national and local input

The core set of knowledge required by both strategic and operational staff includes:
 

Available locally

Requires input from both local and national levels

Available nationally

What is available in the local area (resources)

What IOM is and how this is interpreted locally

Legislation relating to crime, reducing reoffending, housing/benefits etc.

Information to identify any strategic weakness with IOM strategy

How to monitor performance and assess impact of IOM

Knowledge of orders/licences

Understanding of Partnership priorities and working practices

Understanding of the benefits of engaging the partnership to reduce crime

Knowledge of arrest/enforcement powers

Local impact

Knowledge of court system/CJS

Statutory responsibilities of the individual agencies and partnerships

Understanding of purpose & vision

Knowledge of offending risks / Pathways to recovery /rehabilitation

Home Office / MoJ Toolkits

Knowledge of other agencies

Restorative Justice

ACPO / NPIA support

Knowledge of pathway support Information sharing (Local and national guidance)  
Local knowledge of offenders Safeguarding (Children, Young people and adults)  

 

 

In addition to the above table, knowledge sets identified in the table below also incorporate sets of knowledge required operationally.

 

Available locally

Requires input from both local and national levels

Available nationally

Eligibility criteria

Issues facing offenders

How to manage and How to interpret risk

History of offenders

Boundaries

Mental health conditions

Local knowledge   Substance misuse, impact on behaviour, recovery
    Therapies e.g. cognitive behavioural therapy

 

 

11.3 Desired skills for stakeholders who are involved in the strategic planning and operational delivery are listed in the table below.

 

Effective leadership skills including decision making

Setting and managing boundaries

Strong people/interpersonal skills 

Coaching skills

Ability to engage with multi-agencies at strategic level / partner engagement

Safeguarding (vulnerable adults and children)

Team work skills

Motivational interviewing

Risk management and assessment 

Problem solving

Policy and procedure development and implementation 

Ability to challenge effectively and appropriately

Able to influence funding streams/gain funds for scheme interventions 

Effective communication skills: active listening, speaking effectively

Negotiating and influencing

Resolving and managing conflict (early) 

Time management

Giving and receiving feedback

Managing aggressive behaviour

Advocacy skills

 

 

In addition to the above, strategic skill sets to also include:

 

Project planning/management including benefit realisation

Financial modelling forecasting

Ability to see wider perspective and manage conflict

Policy formulation

 

 

 

Appendix A

 

Proposed IOM Stakeholders:

 

  • Strategic bodies including:

  • Community Safety Partnerships, including Substance Misuse Action Teams

  • Criminal Justice Board / Partnerships

  • IOM Regional Groups

  • Area Planning Boards

  • Landlords’ Forum

  • Safeguarding Boards

  • Probation

  • Police including:

  • Neighbourhood Policing Teams

  • Intelligence and Analysis teams

  • Other appropriate specialist policing teams

  • Fire Service

  • Prisons

  • Courts

  • Crown Prosecution Service

  • Health services including:

  • Local Health Boards

  • Medical Health centres – GPs, Mental Health including:

  • Adult mental health services

  • Child and Adolescent Mental Health Services

 

  • Local Authorities including:
  • Neighbourhood Management Teams
  • Housing
  • Adult services
  • Children and families services (inc. Integrated Family Support Services)
  • Young people services including Youth Offending Services
  • Supporting People teams
  • Education services
  • Voluntary community and social enterprise including:
  • Alcohol services
  • Mentoring services
  • Family support organizations
  • Women Centres
  • Black and Ethnic minority organisations
  • Mediation services
  • Faith groups
  • Neighbourhood Watch
  • Tenants Association
  • Mutual aid groups

 

  • Training and education providers including:
  • Colleges
  • Employment agencies including:
  • Intermediate Labour Markets
  • Working Links (voluntary employment)
  • Retailers and Business watch
  • Social (other than local authority) and private housing providers
  • Job Centre Plus
  • Advice services including:
  • Citizen Advice Bureau
  • Service users / offenders
  • Victims
  • Families
  • General Public
  • Local Councillors’
  • Welsh Government including:
  • Drug intervention programme (DIP) providers/commissioned services
  • UK Government
  • Police Crime Commissioners
  • Assembly Members
  • Members of Parliament
  • Media

 

 

 

Appendix B

Glossary of terms

 

ACPO

Association of Chief Police Officers

ASB

Anti-Social Behaviour

ASBO

Anti-Social Behaviour Order

ASSET

A national format, which the Youth Justice Board expects Youth Offending Teams to use in their work with all young people

ATR

Alcohol Treatment Requirement

BCU

Basic Command Unit

CJIT

Criminal Justice Intervention Team

CJS

Criminal Justice System

CPS 

Crown Prosecution Service 

CRASBO

Crime Related Anti-Social Behaviour Order

CSP

Community Safety Partnership

DIP

Drug Interventions Programme

DRR

Drug Rehabilitation Requirement

DYO

Deter Young Offender

FIO

Field Intelligence Officer (Police)

IDIOM

National offender tracking tool

IOM

Integrated Offender Management

IOMCB

Integrated Offender Management Cymru Board

IOMRG

Integrated Offender Management Regional Group

MAPPA

Multi-Agency Public Protection Arrangements

MASP

Multi-Agency Selection Panel

MoJ

Ministry of Justice

NIM

National Intelligence Model

NOMS

National Offender Management Service

NPIA

National Policing Improvement Agency

NPT

Neighbourhood Policing Team

OASys

Offender Assessment System

OGRS

Offender Group Reconviction Scale

PNC

Police National Computer

PND

Police National Database

PPO

Prolific and other Priority Offenders

RAG

Red, amber, green classification framework

SLU

Street-Level Up

TIC

Take into Consideration

TTCG

Tactical Tasking and Coordinating Group (a BCU level meeting to prioritise local police activity in accordance with NIM)

WACSO

Welsh Association of Community Safety Officers

WCJB

Wales Criminal Justice Board

WCVA

Wales Council for Voluntary Action

YOS

Youth Offending Service