IMPLEMENTATION OF NATIONAL SEX OFFENDER STRATEGY

PURPOSE
To assess progress in implementing the Sex Offender Strategy for the National Probation Service.

Probation Circular
REFERENCE NO: 20/2005 ISSUE DATE: 21 March 2005 IMPLEMENTATION DATE: Immediate EXPIRY DATE: May 2006 TO: Chairs of Probation Boards Chief Officers of Probation Secretaries of Probation Boards CC: Board Treasurers Regional Managers AUTHORISED BY: Liz Hill, Head of Public Protection & Courts Unit ATTACHED: Appendix One: Assessment template

ACTION
1. 2. 3. Chief Officers to ensure that the contents of this Circular are drawn to the attention of staff involved in implementing the Strategy that Area audits are completed and the results shared with Regional Managers Regional Managers to collate information from area ACOs using the assessment template by 31st May. A follow-up exercise should be completed in February 2006 to assess further progress.

SUMMARY
The NPS Sex Offender Strategy was published in September 2004 and is available on the NPS website. The Strategy identified four key objectives: • Timely assessment using evidence-based tools • Interventions to reduce risk • Interventions to manage risk • Developing accommodation options commensurate to the assessed risk The attached template is intended to enable Areas to assess what stage they are with each objective and inform their planning arrangements for 2005 – 2006.

RELEVANT PREVIOUS PROBATION CIRCULARS
PC10/2005; PC05/2005; PC14/2003; PC56/2002; PC104/2001; PC88/01; PC46/2001;

CONTACT FOR ENQUIRIES
David.Middleton2@homeoffice.gsi.gov.uk, Head of Sex Offender Strategy & Programmes Elizabeth.Hayes@homeoffice.gsi.gov.uk, Sex Offender Programmes Manager

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

Implementation Assessment
In order to assist Areas to assess progress in implementing the Strategy the attached template is based around the four strategic objectives identified in the Sex Offender Strategy. It is not expected that all aspects of the Sex Offender Strategy will be in place. The Strategy is composed of elements of existing good practice together with clear indications for future development. The completion of this assessment exercise will assist area, regional and national planning (for example it may highlight training priorities or provide the evidence base for future audit criteria) therefore this is an opportunity for conducting a stock-take and action planning. The Area ACO with lead responsibility for sex offenders should complete the template and assess progress using the ‘Red, Amber, Green’ (RAG) code as a performance measure. (Guidance is given on the criteria to be used in assessing).There is also space after each section to allow for any additional comments. Section Guidance Assessment Probation Areas are required to undertake assessments, using recognised assessment tools, which determine the anticipated risk of re-conviction, risk of harm and treatment needs for each individual sexual offender. Offender Managers responsible for supervising sex offenders are required to use: • • • • • OASys Risk Matrix 2000 Be familiar with and able to apply the Structured Risk Assessment (SRA) for dynamic risk factors known to be associated with re-conviction* Acute Risk Checklists* Risk Prediction Monitoring (RPM) Form, which is related to the known dynamic risk factors identified through the SRA. The domains are Sexual Interests, Distorted Attitudes, Socio-Affective factors and Self-Management*.

*These items are included in the Offender Manager training for working with sex offenders and the Facilitator follow-up accreditation training for the sex offender programmes Areas are required to ensure that resources are provided for accredited sex offender risk assessment training and to ensure all appropriate staff attend the training. They also need to conduct quality audits on risk assessments. Regional Managers are required to ensure that these training arrangements are reviewed annually. Interventions Changing the attitude and behaviour of the sex offender can reduce risk. Such interventions will require all Probation Areas to provide accredited sex offender treatment programmes. Areas are required to: • • • • • Review Implementation Plans submitted at the time of SOTP implementation Assess the number of programme places required Provide adequate resourcing to meet the agreed level of provision Conduct quality audits to ensure programme integrity Identify and support staff to act as Regional Trainers

Regional Managers require reports from Areas on current sexual offender caseload and quality audits on programme treatment. They will also agree with Areas the targets for the number of sexual offenders to be in treatment, performance against commencement on programmes, the number of completions and reports on attrition.

PC20/2005 – Implementation of National Sex Offender Strategy 2

Risk Management Interventions to manage risk may include: • • • • • • • • • Regular office based supervision sessions, backed up by home visits Monitoring of movements, activities and associations Assessment and monitoring of relationships with significant others Restrictions on associations Restrictions on residence Restrictions on movement, eg, curfew Restrictions on activities and possessions which have formed part of the offending behaviour Electronic monitoring Surveillance

Areas should implement the most appropriate strategy for individual offenders with adherence to National Standards timescales. Areas should also adhere to the Duty to Co-operate principles under the MAPP Arrangements and work with the agencies whose statutory functions require them to engage with the individual. In particular there should be explicit co-ordination with the police of visiting and monitoring registered sex offenders. Accommodation Areas will be required to place offenders in appropriate accommodation, commensurate with assessed risk and the protection of the local community. They will need to develop a range of accommodation, including approved premises, use of Local Authority Housing and Registered Social Landlords. Areas therefore need to engage in dialogue with housing providers and local authorities to develop appropriate arrangements. Areas also need to ensure that Strategic Management Boards of MAPPA work to develop local strategies in which accommodation can be routinely accessed, as well as ensuring provisions for emergency accommodation. Other ‘wraparound’ services should also be available in order to support sexual offenders in their accommodation. Regional Managers should work with Areas to ensure that regional arrangements are in place for meeting sexual offender accommodation needs, out of area resettlement and there are supportive case transfer arrangements within the region, which provide a robust regional infrastructure. Regional Managers Regional Mangers have agreed to collate information from the relevant ACOs within the Region and provide the information to NPD by 31st May 2005. The data will be collated and used to inform regional and national planning priorities. There will be a second review of implementation collated by Regional Managers in January 2006 to assess progress.

PC20/2005 – Implementation of National Sex Offender Strategy 3

Guidance on RAG Assessment criteria
Assessment Q1. Code as Green if 95% or more of sex offenders have pre-sentence OASys assessment; Amber if 70 -94% and Red if less than 70% or information not available (in all cases below code red if no information on the item is available) Q2. Q3. Q4. & Q5. These assessment tools are provided during the 3 Day Offender Manager Training and repeated on the training for Treatment Managers & Facilitators writing Post Treatment Reports on the 3 Day Follow up training. Code Green if 90% or more of practitioners; Amber if 70 – 89% and Red if less than 70% Q6. Code Green if system operational and reports produced; Code Amber if system for review is planned to be implemented; Code Red if no work on quality reviews has taken place. This question also requires a comment to describe system which is used. Q7. Code Green if review arrangements in place and have happened; Code Amber if review arrangements in planning stage and Red if review of training requirements not yet addressed. Interventions Q1. Code Green if implementation plan review completed; Code Amber if review planned or in progress; Code Red if not yet addressed Q2. Code Green if number of treatment places assessment completed; Code Amber if work in progress and Red if not yet addressed Q3. Code Green if average waiting time to commence treatment programme is within six weeks of Order/release; Code Amber if between 12 – 6 weeks and Red if more than12 weeks Q4.& Q5. Code Green if review arrangements in place and regular reports have been produced; Code Amber if arrangements planned and Red if not yet addressed. Q6. Code Green if reports on caseload produced and report on quality review produced; Code Amber if only one element or at planning stage; Code Red if not yet produced. Q7. Code Green if all targets agreed; Code Amber if in planning and Red if not yet addressed Q8. Code Green if attrition is less than 10%; Code Amber if attrition is 11 –19% and Red if more than 20% per year Q9. Code Green if Offender Management Plans generally contain reference to appropriate arrangements; Good contact between Prison and Offender Manager to discuss case and use of post treatment assessments reflected in Offender Management Plan; Code Amber if these features are present in some but not the majority of cases; Code Red if there is little or no information of effective links between Prison and Offender Manager in most cases. Risk Management Q1. Code Green if met in 90% of cases; Code Amber if 70 – 89% and Red if less than 70% Q2. Code Green if regular reports produced and standards are acceptable to Regional Manager; Code Amber if regional audits are planned but not yet implemented or standards fall below acceptable levels and plan for improvement are in place; Code Red if issue not yet addressed. Q3. Code Green if risk plans generally link with OASys assessment, use of appropriate dynamic and acute risk assessment; clear evidence of MAPPA at appropriate level; Code Amber if these features are present in some but not the majority of cases; Code Red if there is little or no information in most cases. Q4. Code Green if protocols in place with all MAPPA partners and signed off; Code Amber if work is in progress and Red if not yet addressed. Q5. Code Green if evidence in 90% of cases that use of SOPO, RoSH and Disqualification Orders have been considered and used in appropriate cases; If Conditions in Licence or Order contain appropriate use of restrictions on residence, associations and curfews; Where piloting of Polygraph is in place then appropriate referral procedures are in place. Code Amber if present in 70 – 90 % of cases and Red if there is little consideration or use of external controls. Accommodation Q1. Code Green if Strategy in place and operational; Code Amber if work in progress and Red if not yet addressed. Q2. Code Green if evidence of protocols/SLA in place or that there has been systematic engagement with accommodation providers; Code Amber if some work in place but not comprehensive to meet needs and Red if little work to address this issue is evidenced. Q3. Code Green if in place and operational; Code Amber if work in progress and Red if not yet addressed Q4. Code Green if a range of suitable accommodation is available; Code Amber if gaps in provision have been identified but not yet addressed; Code Red if little work has been done on this issue. Q5. Code Green if the development of floating support' provision in the accommodation sector which combine tenancy support and resettlement with surveillance and monitoring from a risk management perspective has been developed. Code Amber if work to address the issue is in progress and Red if not yet addressed. PC20/2005 – Implementation of National Sex Offender Strategy 4

PC20/2005 – Implementation of National Sex offender Strategy Appendix One

SEX OFFENDER STRATEGY – IMPLEMENTATION ASSESSMENT FOUR KEY QUESTIONS 1. What percentage of sex offenders are being assessed using evidence based tools within national standards timescales? 2. Are there sufficient places on sex offender programmes to enable the level of demand 3. Are sufficient risk management arrangements in place? 4. Is there a range of accommodation options for sex offenders? The tables below contain a range of implementation issues and performance measures that together would indicate the answers to the above questions. Green = completed or meeting expectations; Amber = nearly completed or well on the way to meeting expectations; Red = not completed or meeting expectations and some way from being able to. In conjunction with the RM and RWWM areas should assess themselves and assign a RAG indicator. A plan should then be developed to address all those that are Red or Amber.
Assessment 1 2 All sex offenders have a complete OASys assessment pre-sentence All practitioners working with sex offenders are trained to use and interpret RM2000 RED AMBER GREEN RED AMBER GREEN

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PC20/2005 – Implementation of National Sex offender Strategy Appendix One

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All practitioners working with sex offenders are trained to assess sex offender dynamic risk factors known to be associated with risk of reconviction, such as those identified by the Structured Risk Assessment (SRA) framework. 4 All practitioners working with sex offenders are trained to use and interpret Acute Risk Checklists (provided on 3 Day Case Manager training) 5 All practitioners working with sex offenders are trained to use and interpret Risk Prediction Monitoring Form (provided on 3 Day Case Manager training) 6 A quality review of sex offender risk assessments is in place 7 There are regional arrangements for an annual review of sex offender assessment training requirements for probation staff Comments

RED AMBER GREEN

RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN

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PC20/2005 – Implementation of National Sex offender Strategy Appendix One

Interventions 1 2 3 Area implementation plan has been reviewed Number of treatment places has been assessed Number of treatment places available meets demand and waiting times are low 4 Programme integrity is subject to routine review. 5 Arrangements are in place to identify and support staff to be Regional Trainers 6 Reports on current sex offender caseload and results of quality reviews are provided to RWWM 7 Regional Manager collated from Areas the number of sex offenders to be in treatment, the number of completions and reports on attrition 8 Programme attrition is low 9 Arrangements are in place to enable interventions to start or complete either in custody or in the community Comments RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN

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PC20/2005 – Implementation of National Sex offender Strategy Appendix One

Risk Management 1 Areas meet the national standards timescale for preparation of risk management plans on sex offenders 2 Annual regional review of risk management plans takes place 3 Risk management plans are of a satisfactory standard 4 Information sharing protocols are in place 5 Arrangements are in place to ensure appropriate availability of the full range of external control measures for sex offenders (detailed in Strategy) Comments RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN

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PC20/2005 – Implementation of National Sex offender Strategy Appendix One

Accommodation 1 There is a regional strategy for meeting sex offender accommodation needs and out of area placement 2 Areas have developed a range of local providers and housing authorities who understand the importance of housing sex offenders 3 MAPPA SMBs have satisfactory arrangements for access, including emergency access, to accommodation for sex offenders 4 There is a range of suitable accommodation provision for sex offenders 5 There are suitable wraparound services for supporting sex offenders in accommodation Comments RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN RED AMBER GREEN

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