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• To inform areas about the achievements against the profiled ICCP target ISSUE DATE:
commencement rate for April - March 2004 13 July 2004
• To notify areas of the next steps for ICCP
• To provide advance notice of the Prolific & Other Priority Offender IMPLEMENTATION DATE:
(POPO) Strategy Immediate


Chief Officers should ensure that all staff are made aware of this PC. Areas July 2009
should engage with Local Criminal Justice Boards and Crime & Reduction
Partnerships with regard to the POPO strategy. TO:
Chairs of Probation Boards
Chief Officers of Probation
This circular provides an update to the implementation of ICCP and informs
Secretaries of Probation Boards
of the new areas. Information on key developmental themes in relation to the
delivery of ICCP following a review of eight probation areas is also provided. Regional What Works Managers
This circular contains additional information on the proposed POPO strategy.
PC70/2003 - Persistent Offender Scheme Regional Managers


For general enquiries about the contents of this circular: Sarah Mann, Head of
Lisa Cox, Programme Implementation Manager Interventions
Tel: 020 7217 0683

National Probation Directorate

Horseferry House, Dean Ryle Street, London, SW1P 2AW General Enquiries: 020 7217 0659 Fax: 020 7217 0660

Enforcement, rehabilitation and public protection


In line with the Correctional Services Review, social exclusion report and the Government's manifesto commitment to
improve regimes for young adult offenders, the Intensive Control & Change Programme (ICCP) was developed and
officially launched in April 2003. The project was piloted in 11 areas across NPS, five in April 2003 and a further six in
October 2003. The project aims to provide an intensive community sentence for those offenders aged 18-20, who are at
risk of custody. This group tended to be over represented in the short-term prisoner population, have a disproportionate
range of offending related needs in comparison to adults (this excludes offenders subject to DTTOs and those identified
as persistent offenders) and have high reconviction rates following release (72% v 58%).

The key benefits of ICCP are in its dual approach to ‘control’ and ‘change’. Offenders are expected to participate in up to
25 hours of individualised activities for the first three months, including:
• Attendance at offending behaviour programmes, employment and educational activities and unpaid work. Offenders
also receive personal support from a mentor.
• Up to 12 hours curfew evening and night with electronic tagging for a maximum of six months. Additional elements of
control involve police surveillance and swift notification of re-offending.

An important part of ICCP is the co-ordinated partnership at the Area level. All of the above interventions are co-
ordinated in partnership with a number of key agencies including the Police, Job Centre Plus and a range of other
community organisations. ICCP models itself, as far as possible, on the provisions that will be available under the new
generic community sentence.

ICCP is still a relatively new form of intervention and as such has posed a number of issues for probation areas
responsible for its delivery. Despite this areas have sought to deliver ICCP through a range of different models, and there
have been some key developments in a number of areas. In particular the level of contact required to monitor attendance
and support the offender through supervision was impressive. One area had adopted an informal Court review process,
which enabled local sentencers to become more engaged in the process of supervision.

At the end of March 2004, ICCP had achieved 506 commencements against a projection of 507. The breach rate
remains at 52%. Currently there is no available evidence to indicate that ICCP is impacting on the use of short custodial
sentences. For 2004/05 ICCP areas have a commencement target of 1688, which includes the use of a Community
Punishment Order and Curfew Order for those offenders aged 18-20 who are at risk of custody, but do not have high
offending related needs that would merit an intensive ICCP package. Current performance on commencements is
improving, with areas achieving 84% of the target in April 2004 and 92% of the target in May 04.

From October 2003 – June 2004, quality reviews have taken place in eight probation areas in conjunction with Regional
What Works Managers. Areas are reviewed against a set of quality standards in addition to staff and management
interviews. While the results of these reviews have not been validated by independent research they provide some useful
emerging trends:

- Meeting the 25 hours – this is a particular issue for probation areas especially where partner involvement is limited
- Partnership agreements – areas have had some difficulty in obtaining consistent partnership agreements, this is
especially apparent where there are numerous local/district partner offices within a given locality
- Integrating mentoring – it is unclear whether this is a process issue i.e. matching offenders to mentors quickly so that
mentoring starts at the beginining of supervision. Defining and clarifying roles and the provision of appropriate
training may also impact on the integration of mentoring
- Individualised/sequenced interventions – there can be a current tension between providing an individualised
programme sequenced to meet the offenders' needs and organisational needs resulting from local capacity and
external targets (some of which are cash linked).

The ICCP evaluation will be published in two parts. An interim report will be made available by the autumn 2004. The
report will provide interim findings on the offender profile of ICCP in comparison to those sentenced to custody. Emerging
themes from a series of interviews with staff, offenders and stakeholders will also be reported, as well as initial findings on

PC39/2004 - Intensive Control & Change Programme (ICCP) and Prolific & Other Priority Offender (POPO) Strategy 2
whether ICCP was implemented as intended, including the extent to which offenders received all the elements of the
programme. A more detailed report will be published in December 2004, which will include the results of a sentencer
survey and the impact of ICCP against the use of short-term custody.

Prolific and Other Priority Offender (POPO) Strategy

Home Office modelling suggests there are about one million active offenders in the general population at any one time.
Of these, around 100,000 will accumulate more than three convictions during their criminal careers and, although
representing only 10% of active offenders, they commit at least 50% of all serious crime. Within this pool of 100,000 most
active offenders, analysis suggests that even smaller numbers of offenders are responsible for disproportionately greater
amounts of crime. With estimates that the most prolific 5,000 offenders, representing 0.5% of the entire active offender
population, are responsible for around 9% of all crimes.

As part of the response to this group the Narrowing the Justice Gap Initiative was launched. This concentrated on
reducing the gap between offences committed and offences brought to Justice. A strand of that initiative was the
development of Persistent Offender Projects and 15 HO or partially funded HO pilot schemes were set up in 2001. These
concluded their official pilot status in 2004 and an evaluation will be published later on this year. A number of other local
projects were also developed. A HMIC thematic inspection was commissioned in October 2003 to assess the
effectiveness of these schemes and, whilst highlighting the considerable work achieved, made a number of key
recommendations including the national definition of persistence being replaced by a locally agreed definition.

The POPO strategy developed by the Crime Strategy and Resources Unit, within the Crime Reduction Directorate, is
aimed at tackling the 5,000 or so identified prolific offenders by providing a single coherent initiative for managing the
most prolific offenders. It is designed to supersede current ISM (Intensive Supervision & Monitoring Schemes) and local
persistent offender projects. The strategy comprises of three complimentary parts:

• Prevent and Deter – to stop people (overwhelmingly young people) entering the pool of prolific offenders;
• Catch and Convict - actively tackling those who are already prolific offenders; and
• Rehabilitate and Resettle – working to increase the number of such offenders who stop offending by offering a range
of supportive interventions.

The strategy provides a number of key principles to be delivered locally through local Crime & Disorder Reduction
Partnerships (CDRP). Central to the strategy is for each area to have a local scheme targeting locally prioritised
offenders. A good model of a local ‘priority offender’ service would be a strong partnership between the police and
probation services, working closely with the prison service. Guidelines as to implementation of the scheme will be issued
but these will be subject to local interpretation. The intention is to allow for a more flexible approach to determining who
should receive a premium service. Probation are key players in this strategy as they will have a role in contributing to the
identification of priority offenders as well as a responsibility for providing some of the interventions for this key group.

The Catch & Convict framework has been agreed by Ministers, and will be issued shortly. The timetable for
implementation is likely to be the latter part of this year. The ISM process evaluation report will be available in the
autumn and the quantitative report at the end of this year. Both reports will provide valuable information as to the best
way of structuring services to address the needs of this group of offenders. NPD are currently seeking interest from
existing ACOs to contribute to the development of the strategy and ensure that the implications for probation areas are
fully addressed.


Both ICCP and ISMs provide intensive interventions for targeted groups of offenders. ICCP is currently being extended to
a further six areas by September 2004. The additional areas result in the delivery of ICCP in two probation regions, East
Midlands and Yorkshire & Humberside. Funding for 12 ISM schemes has been secured for 2004/05. Given the
legislative changes and the introduction of NOMS there is no additional funding beyond 2005 for ISMs. ISM schemes will
need to provide plans on how they intend to transfer to the new proposed POPO scheme and mainstream provision
within their area.

Both projects have a commitment to managing offenders in partnership with other agencies. Work is in progress to
identify what these types of provisions will look like under the new generic community sentence and the feasibility of
national roll-out for ICCP by 2006/07. Proposals are likely to be submitted for this strand of work by the autumn. The
proposals will also include the impact of the emerging NOMS structure.

PC39/2004 - Intensive Control & Change Programme (ICCP) and Prolific & Other Priority Offender (POPO) Strategy 3
For further information on this circular contact should be made to the following staff:

Project Implementation & Delivery

Lisa Cox – Programme Implementation Manager
Room 214
Horseferry House
Dean Ryle Street
Tel: 020 7217 0683

Strategic Issues
Claire Wiggins – Head of Intensive Interventions
Room 220
Horseferry House
Dean Ryle Street
Tel: 020 7217 8646

Eileen Walsh – Snr Communications Officer (Interventions)
1st Floor
Horseferry House
Dean Ryle Street
Tel: 020 7217 8378

PC39/2004 - Intensive Control & Change Programme (ICCP) and Prolific & Other Priority Offender (POPO) Strategy 4