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The Norwich, Broadland and South Norfolk Crime and Disorder Reduction

Partnerships (The Central Area).

PROLIFIC and OTHER PRIORITY OFFENDER SCHEME (POPO): ACTION


PLAN September 2004.

1. Purpose of Paper.

This plan seeks to inform the CDRPs covered by the Central Police Basic Command
Unit (BCU) and the Local Criminal Justice Board of:

1. The aims, rationale and context of the Central BCU POPO scheme.
2. The proposed model for delivery and governance of the overall Scheme and the
delivery model for the Joint Agency Group.
3. The detailed action required by the CDRPs, the LCJB and other key partners to
deliver a comprehensive POPO Scheme during 2004-05.

This paper has been developed by Stuart Macdonald, (Assistant Chief Officer,
Norfolk Probation Area) and the POPO sub group of the Norwich CDRP in
consultation with the CDRP Community Safety Officers in Broadland and South
Norfolk.

2. Overview

2.1 The Home Office requires that each CDRP will have a POPO scheme in place.

2.2 At a meeting with the Regional Director of the Government Office East of
England, the Chief Constable and representatives of the Norfolk CDRPs it was
agreed that by 30th September 2004, the CDRPs would produce plans outlining
how POPOs would be delivered. It was further agreed that the CDRPs in each
of the three BCU’s of the Norfolk Constabulary (Central, Eastern and Western)
would pool their resources with a view to developing BCU based schemes.

2.3 Considerable work has been undertaken in developing the framework for POPO
delivery. The Central BCU has in place the basic requirements for delivering an
effective scheme. Further work will be required over the coming year to ensure
that some of the details are worked through and that, in particular, a more
comprehensive range of community organisations are brought together to ensure
the delivery of the Rehabilitate and Re-settle Strand.

2.4 It is particularly important that there is co-ordination between the three CDRPs
making up the Central BCU, liaison across the three BCUs and agreement as to
which elements of development need to be facilitated at a County (LCJB) level.

3. What is the PPO Scheme?

3.1 The Central BCU PPO scheme seeks to focus finite resources on a small group
of offenders who are the most prolific, the most persistently anti-social and/or
pose the greatest threat to safety and confidence in their local communities.

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3.2 The aim is to increase the number of offences committed by POPOs that are
brought to justice and to reduce the risk of such offenders offending again
through:

• Enhancing arrest, investigation, detection, charging and prosecution (The


‘Premium Service’)
• Reducing re-offending
• Developing rapid and effective partnership intervention to enable effective
supervision and monitoring of POPOs.
• Addressing non-compliance /re-offending speedily and effectively.

4. What are the benefits?

4.1 In focusing activities on the ‘super prolific offenders’ responsible for a


disproportionate amount of crime across the Broadland, Norwich and South
Norfolk CDRP area (“The Central POPO”) the Scheme will deliver:

• More efficient use of finite resources and the delivery of justice.


• A greater impact on crime reduction and the delivery of Community Safety and
PSA targets.
• An improvement in the publics confidence n the Criminal Justice System and a
reduction in the fear of crime.

5. What are the crime reduction targets?

5.1 In line with the aim of impacting upon both local priorities and PSA targets the
Central POPO will contribute to reductions in:

• Vehicle crime.
• Domestic burglary.
• Violent Crime (including domestic Violence).
• Drug related crime.
• Anti-social behaviour and criminal damage.

5.2 It will further compliment delivery of targets to:

• Improve the level of confidence of the public in the CJ System.


• Protect the public.
• Improve the delivery of justice by increasing the number of crimes for which an
offender is brought to justice.

5.3 More detailed crime reduction targets will need to be developed based on an
analysis of current crime in the Central Area.

6. When will the scheme start?

6.1 The Central CDRPs are responsible for ensuring that a number of minimum
expectations are in place.

• A scheme to cover its area.


• Agreement for multi-agency working arrangements, including data sharing
protocols.

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• Identification of the first group of POPO cases.
• Compliance with a Local Implementation Checklist (drawn up at LCJB level).

6.2 The Central CDRPs envisage a phased implementation to ensure that the
minimum requirements of a scheme are in place during 2004-05. Progress to a
fully comprehensive scheme will be dependent upon further negotiations and
involvement with other key partners.

7. Who are the target POPOs?

7.1 In the first phase of the Schemes development it is anticipated that the Central
BCU Policing Intelligence Unit will be responsible for identifying the target
POPOs through the operation of the National Intelligence Model (NIM).

7.2 The NIM will generate a list of offenders from across the three CDRP areas
based on the gravity and nature of the offence. The Central Scheme will explore
the use of the model ‘prolific prioritisation’ form outlined in the Catch and Convict
Initial Guidance to inform this process. In prioritising the POPOs the Central
Scheme will, in its first phase, ensure that the target group are those high impact
offenders who commit crimes linked to local priorities and the Public Service
Agreement targets. That is, burglary, vehicle crime, robbery, violence and
criminal damage.

7.3 There will be some offenders who fall outside of this prioritisation process but
who might be identified by other groups as, for example, ‘persistently anti-social’.
As the Scheme develops, other processes for identifying locally defined ‘other
priority offenders’ will be introduced. It must be recognised, however, that such
offenders can only be identified through objective criteria and a transparent
assessment process.

7.4 The respective Domestic Violence and Anti-Social behaviour Key Issue Groups
and/or co-ordinators will play a crucial role in developing identification processes
for ‘other priority offenders’.

7.5 Similarly other agencies, most notably Norfolk Probation Area (NPA), will begin
to identify potential POPO cases through their assessment processes (e.g.
OGRS2 and OASys). The case details of these offenders will be fed into the
Central Intelligence Unit for inclusion, where appropriate, onto the POPO case
list.

8. Target Numbers.

8.1 The Central Scheme will initially generate a list of up to 25 offenders based on
the NIM. As the list is interrogated and the Scheme develops to bring on board
other agencies and forum the target group will expand to a first cap of 50. This
process has been decided upon to ensure, firstly, that the list does target the
most prolific and, secondly, to ensure that agencies have the resources to
manage the numbers of cases coming through the system.

8.2 It is recognised that the target figures are relatively arbitrary and not based on
any baseline analysis of the target population in Norfolk. As such the figures will
be subject to revision in the light of further evidence of need and discussions with
the Government Office and the Local Criminal Justice Board.

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9. How will we track the Target POPOs?

9.1 The Central Police Intelligence Unit has identified the initial target group. Their
current status within the CJS will be ascertained (e.g., on bail, in custody, on a
community sentence, outside of the CJS, for example) and they will be entered
onto the JTrack by the police, with the Police and the CPS updating charge and
case information as required.

9.2 It will be the responsibility of the police to inform the CPS of POPO cases and for
the CPS to inform the Courts, Norfolk Probation Area and, where the offender is
aged under 18 years, the Norfolk YOT in respect of cases going through
prosecution and sentencing. It will be the responsibility of Norfolk Police to notify
the Prison Service, Norfolk Probation Area and/or Norfolk YOT of PPO cases
subject to statutory supervision or serving a custodial sentence at the point that
the Scheme starts. They are further responsible for updating those agencies as
and when the target case list changes.

9.3 It will be the responsibility of each of those agencies to ensure that they have
developed and implemented internal processes for receiving notification from the
police (or CPS) and for delivering priority services within their organisations.

10. Who are the key partners in the Central POPO Scheme?

10.1 The Central Scheme recognise the importance of engaging with key partners at
a senior level and developing, agreeing and monitoring protocols with:

• The Central CDRP/RAPs – in respect of accessing additional resources and


providing overall authority for the POPO Scheme
• Police – with respect to overseeing the identification, tasking and co-ordination of
the scheme.
• Norfolk Probation Area – with respect to intensive supervision and case
management.
• The Norfolk Drugs and Alcohol Action Team (DAAT) – with respect to priority
interventions, service developments (e.g. CJIP) and liaison with Treatment
Providers.
• Norwich YOT – with respect to contributing to the Prevent and Deter strand and
oversight of Young Adult Offenders identified as POPOs.
• Health – with respect to drugs, alcohol, the psychiatric services and primary care.
• Employment and Training - with respect to Jobcentre Plus and the Norfolk
Learning and Skills Council
• HMP and YOI Norwich and HMP Wayland – with respect to tracking POPOs,
accessing rehabilitation programmes and planning for release.
• Housing – with respect to Supporting People and Norwich City Housing
Department.
• The local authority – with respect to a range of services (including housing,
education, social services)
• The CPS – with respect to the delivery of a CJS Premium Service.

11. What are the overlaps with other Central based offender schemes?

11.1 The Central scheme, in liaison across the three BCU Schemes, needs to ensure
that it has protocols in place with respect to:

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• The Criminal Justice Intervention Team ( CJIT)
• The Multi Agency Public Protection Panel Arrangements (MAPPA)
• Anti-Social Behaviour schemes.
• The Norwich (only) CDRP (Probation/Police) Persistent Offender Project.

12. Pen picture of how the Central POPO Scheme will operate

12.1 The flow chart below (Appendix 1) provides a broad outline of the service
delivery aspects of the POPO Catch and Convict and Rehabilitate and Resettle
Scheme, as it will, initially, operate in the Central Area.

12.2 To ensure the most cost-effective use of agency resources it is important to


recognise that POPO cases will be prioritised into two levels.

12.3 Level One are those that require multi agency planning through a case
conference (JAG) process (appendix two). The “POPO Joint Agency Group
(JAG)”.

12.4 Level two are those that need to be tracked and prioritised by key agencies as
part of their mainstream activity. Operating through the process of sharing
information, operational protocols and open communication amongst lead
players identified in each if the relevant agencies level two cases will trigger
referral to the JAG only where round table co-ordination becomes necessary.

Stage one: The police will identify Priority cases via the NIM (at a later stage
processes will be developed for the identification of other priority
offenders who do not meet the targeting criteria identified by the NIM).

Stage two: The police, in the first instance, will identify priority targets within the
wider NIM pool causing particular concern across the Central BCU
Area. They will identify those cases that require Level One planning
(i.e. JAG) and those, Level two cases, that will need to be prioritised
by key agencies as part of their internal processes (as in stages 5,6,7
and 8 below).

Stage Three: The JAG will meet monthly to draw up a Risk assessment and
Intervention Plan. The police will continue to undertake pro-active
policing through the fortnightly Police Tasking Co-ordinating Group
(TCG) with a view to arresting and charging the target POPOs. At the
JAG decisions will be made on informing the offender that s/he is a
PPO target. This Group will draw up plans to address the risks posed
by the case and confirm the case management responsibilities/plan
owners (i.e., which agency will hold responsibility for the co-ordination
of interventions).

Stage four: Upon arrest it will be expected that Enhanced Arrest Referral will pick
up those cases where substance misuse is an issue and they will seek
(subject to negotiation with The Matthew Project) to prioritise POPO
cases as part of their general service. They will refer to CJIP those
cases that also fall within the targeting criteria of that Scheme.

Stage five: Throughout the process of pre-charge and preparation for and
conduct of hearings at court the Police, the CPS, the Courts and

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NPA will operate to the Premium Service outlined in the “Narrowing
The Justice Gap: Inter-agency protocol for persistent offenders.”

Stage six: It will be for the Police to inform the CPS of the offenders POPO status
and for the CPS to inform the Courts and the NPA of their POPO
status.

Stage seven: At the point of sentencing NPA will ensure that it outlines to the Court
the sentencing options open to it to address the offending by the
POPO case. NPA will endeavour to incorporate the actions outlined in
the Narrowing the Justice Gap Protocol as part of its sentencing and
rehabilitation responsibilities.

Stage eight: Where a POPO is subject to a Supervised (probation) sentence but


his/her behaviour causes concern (for example, failure to comply with
the intervention programme, evidence of re-offending, changes in the
Offender Assessment –OASys-) then the POPO will again move into
the pro-active policing stage and be picked up by the TCG meeting. It
will be the responsibility of the TCG to liase with the supervising
probation officer over the action to be taken.

Stage nine: Where a custodial sentence is passed the prison service will ensure
that they track the offender through his/her sentence, facilitating
priority access to prison programmes and interventions (resources
permitting) and notify (through the police liaison officer) the expected
date of release.

Stage ten: The case will be picked up by the Central Intelligence Unit prior to
release and plans put into operation, through the JAG, to target the
offender upon release. Where the offender is released on a period of
statutory supervision to NPA, probation will ensure that they have in
place a supervision plan to address the risks posed by the offender. In
most instances those POPOs released on licence into the Norwich
area only will come under the day to day supervision of the
Probation/Police POP Project – thereby facilitating effective liaison
between probation, the police and the prison. It is during the custodial
sentence that the case will be referred to CJIP by the CARATS team,
subject to the CJIP targeting criteria.

13. Rehabilitate and Resettle

13.1 The overarching aim of the Rehabilitate and Resettle strand that runs
alongside the Catch and Convict is to provide POPOs with a choice: “reform or
face a swift return to the courts and/or prison”. Throughout the process
attempts will therefore be made to engage the POPO with relevant
rehabilitation and support services and for those services to facilitate priority
access for POPOs.

13.2 The Central Scheme needs to ensure that it has close partnership
arrangements in place with a variety of statutory and community agencies to
provide seamless and effective case management.

13.3 Clearly, where the offender is subject to statutory supervision through Norfolk
Probation Area or falls within the targeting criteria of the CJIP then the case
management of the Rehabilitation and Resettle strand will be easier to mange.

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Where cases are not subject to statutory supervision (e.g. POPO cases
released from a custodial sentence of less than 12 months) then we might
anticipate that enabling access to community resources will be more difficult to
co-ordinate. This will change with the implementation of the Criminal Justice
Act 2003 and the introduction of Custody plus and Custody minus. In the
meantime, however, it is likely that such offenders will be dealt with primarily;
under the Catch and Convict strand of the Scheme, CJIT (where appropriate)
and, whilst the funding remains in place, the ADAPT Resettlement Link Worker
Project.

13.4 The Central Scheme needs to consider how case management responsibility
will be identified for POPO cases not falling under Probation or CJIT
supervision.

14. Governance

14.1 In developing a Central Scheme covering the three CDRPs of Broadland,


Norwich and South Norfolk it is important that clear Governance arrangements
are in place and that any liaison with countywide services is co-ordinated,
where possible, at a County level. Appendix 3 outlines the proposals for the
Central Schemes Governance. It is not clear, at this time, how County wide
developments will be taken forward. Although the LCJB might play a key role
in facilitating this.

15. Risk Management Plan (see pages 9 -10 below).

15.1 A central Risk Plan has been developed (attached below). This identifies some
of the risks and contingencies that need to be put into place over the next period.

16. Flow Charts (see pages 11 – 16 below).

16.1 Overview of the Process for the delivery of Catch and Convict and Rehabilitate
and Resettle in the Central Area.

16.2 The process for the operation of the Joint Agency Group (JAG) in the Central
Area.

16.3 The governance and communication arrangements for the operation of the
POPO across the three CDRPs in the Central Area.

16.4 Terms of Reference (draft) for the Joint Agency Group (JAG).

17. Action Plan (see pages 17- 31 below).

17.1 In developing an action plan to take forward the development of a Central


Scheme the following Priority Activities have been identified. It is recognised
that the action identified will require further discussion but the CDRP
representatives agree that these should form the basis for activity over the next
period.

17.1.1 Priority Activity One: A scheme in place to cover the Broadland, Norwich, and
South Norfolk CDRPs.

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17.1.2 Priority Activity Two: Multi-agency working arrangements, including data
sharing

17.1.3 Priority Activity Three: The first group of POPOs to be identified

17.1.4 Priority Activity Four: A Local Implementation Checklist to be created.

17.1.5 Priority Activity Five: Implementing the Rehabilitate and Re-settle strategy.

18. Monitoring and Review

18.1 Progress on the detailed Action Plan will be monitored and reviewed through
the Central Area POPO Steering Group and reported to the respective RAPs
by the Community Safety Officers.

18.2 The overall Plan (this paper) will be reviewed by the Central Area POPO
Steering Group in March 2005 and any changes reported to the respective
RAPs by the Lead Officer (Stuart Macdonald, ACO, NPA).

The Central Area CDRPs.


26.9.04 (AS SENT TO THE CHAIR OF THE LCJB – Andy Hayman).

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Risk Management Plan: Central POPO BCU Scheme.

No. Risk Likelihood Impact Contingency/Plans Lead

1 Data sharing protocol not signed up to by key Medium High Chief Officers represented on the LCJB LCJB
agencies to ensure that their respective agencies
sign up to the protocol, identify a contact
point in each agency and ensure that
each agency puts into place a plan to
implement the policy by an agreed date.

2 Inconsistent processes and policy Medium Medium • Regular meetings of the three Nick
developments across the three BCU areas. Scheme leads to be arranged. Davison
• Communication links with the Nick
LCJB to be clarified as part of the Davison
POPO Governance Structure.
• Governance arrangements to be Stuart
agreed. Macdonald

3 Key agencies not engaged and/or reluctant to High High Each agency to be required to draw up a LCJB
priorities services plan outlining how they will contribute to
the delivery of POPOs and how they will
prioritise their services to meet POPO
need.

Instances of Agencies failure to engage RAP


in this to be taken up by the RAP Chairs. Chairs

Plans to be provided to POPO leads. RAPs

4 Difficulties in collating robust performance High High The Crime Analysts to be involved in Nick
information identifying minimum data set. Davison

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No. Risk Likelihood Impact Contingency/ Plan Lead

5 Robust process for identifying Other Priority Medium High RAPs to require relevant KIGs (anti social RAP
Offenders not put into place and case list behaviour, domestic violence) to develop Chairs
becomes dominated by NIM cases robust processes for identifying cases
and identify relevant cases to fed into the
Central Intelligence Unit.

6 The smaller CDRPs (i.e. Broadland and Medium High Central POPO Steering Group to be set Bob Cronk
South Norfolk) perceive that the Central up with representatives from the three
Scheme is not meeting their needs – as the CDRPs
prolific offenders are more likely to be located Adrian
in the Norwich CDRP area. The Prioritisation matrix to be adapted to Went
ensure that it reflects local needs.

7 There are insufficient resources to co- High High The CDRPs/LCJB/others to consider how LCJB/
ordinate the information and tracking additional funding might be accessed to RAP
requirements across the three BCUs. proved for effective co-ordination of the Chairs.
Schemes.

8 Rehabilitation and resettlement pathways not High High Government Office East of England to be Stuart
in place and a lack of speedy interventions asked to facilitate a County wide event Macdonald
for POPO cases (e.g. access to drug bringing together key statutory and
treatment). voluntary agencies concerned with
rehabilitation. With the aim of making
(Linked to Risk 3) them aware of the requi9rements of
POPO and enabling them to consider
how they might facilitate priority access.

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The Norwich PPO Scheme: Catch and Convict, Rehabilitate and Resettle

NIM identification of Norfolk Probation Area Case


Priority cases Identification of Priority others manger

Probation and Partnership


interventions
CJIT

PPO Identification of top 20


- 40 cases

Norwich CDRP POP


Supervised
(probation)
Community sentence
Intervetions

Proactive Policing

Non
Supervised Custodial
MAPPA
Community Sentence
Sentence

Investigation and Arrest


Arrest Referral
and Charge

Sentencing and
Conduct of Hearings Preparation for Court
Rehabilitation

Page 1

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Central Area POPO Scheme: The Joint Agency Group (JAG) APPENDIX TWO

Identification of Other Priority


Cases
NIM identification of cases (CDRPs, Probation, Others)
(Central Intelligence Unit)

Identification of top 20-40


POPOs across the Central
BCU

(Central Intelligence Unit)

TIER ONE
TIER TWO
Top 10 Support and Intervetion
programmes and agencies:
Core Membership: Probation.
Police Substance misuse
Probation (POP Treatmentproviders
workers) CJIT
Notification to Relevant
Prison Joint Agency Group Jobcentre Plus
Agencies:
CJIT/DAAT/Arrest JAG Accommodation
Crown Prosecution
Referral providers
Norfolk Probation Area
Housing Department Community and
HM Prison Service
Resetlement Link Volutary sector
C.J.I.T
Project Health

Information Sharing, Risk


Agency Processes for Assessment and Intervention
managing POPOs put into Plan
operation.

Catch and Rehabilitate


Convict and Resettle

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Page 1
Central Area POPO: GOVERNANCE and Communication FRAMEWORK. APPENDIX 3

Government Office
Local Criminal Justice Board
Chief Executive Group. East of England

Broadland CDRP Norwich CDRP South Norfolk CDRP

RAP Chair RAP Chair RAP Chair


(Responsible Officer) (Responsible Officer) (Responsible Officer)

Membership:
Membership.
OPERATIONAL Officers
STRATEGIC Officers from:
Broadland CDRP
Police
Norwich CDRP
CDRP Steering Group Probation
South Norfolk CDRP
Prison
Central BCU
CJIT/Arrest Referral
Norfolk Probation Area
Housing
Drug And Alcohol
Resettlement Link
Action Team
Workers

Western Scheme Eastern Scheme


Central Area JAG

Criminal Justice Intervention Central Police Intelligence 13Norfolk Probation Area ASBO/Domestic Violence
HM Prisons
Team Unit co-coordinators

Page 1
APPENDIX FOUR

The Central POPO Joint Agency Group (JAG)

TERMS OF REFERENCE (DRAFT)

1. Introduction

1.1 The Central Prolific and Other Priority Offender Scheme (POPO) covers the
CDRPs of Broadland, Norwich and South Norfolk. The Scheme exists to reduce
crime in the Central Policing Basic Command Unit (BCU) by targeting the ‘super
prolific’ offenders. That is, those who are the most prolific offenders, the most
persistently anti-social and those who pose the greatest threat to safety and
confidence in their local communities.

1.2 There are three strands to the Scheme: Prevent and Deter, Catch and Convict
and Rehabilitate and Re-settle. The Central JAG has been set up to enable key
agencies to manage the strands as they impact upon named POPOs residing in
the Central BCU area.

1.3 The JAG is a multi-agency forum that operates a case conference approach to
the management of those POPOs who pose the highest risk of re-offending and
whose circumstances are such that face to face multi-agency planning and co-
operation is required.

1.4 The JAG does not hold responsibility for a case, but will confirm which Agency
does. It is essentially a forum to co-ordinate the contribution that statutory
agencies are required to make and for the support that other key services are
able to make. The JAG cannot require any individual agency to provide services
or to assume a role that does not fit within its own organisational remit.

2. Aims of the Group

2.1 The JAG seeks to ensure effective multi-agency assessment, planning, intervention and
review of POPO cases. It will focus its activities on Level One POPOs but provide
oversight of Level Two POPOs.

2.2 The outcome is to increase the number of offences committed by POPOs that are
brought to justice and a reduction in the risks of such offenders offending again
through:

• Enhancing arrest, investigation, detection, charging and prosecution


• Developing rapid and effective partnership intervention to enable effective
supervision and monitoring of POPOs
• Addressing non-compliance/re-offending speedily and effectively.

3. Tasks for the Group

3.1 Agree on the POPO case list for the Central Area.

3.2 Agree on those cases requiring Level One and Level Two planning.

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3.3 Share information amongst key agencies as to the risk, history, current circumstances of
the POPO cases.

3.4 Identify the likelihood of re-offending and, as appropriate, the risk of harm presented by
the POPOs.

3.5 Identify the rehabilitative and resettlement needs of the case and identify action to
facilitate access to services to meet those needs.

3.6 Agree on the process and responsibility for informing the offender of his/her status as a
POPO.

3.7 Draw up agreed multi-agency intervention plans outlining action required in relation to
the three strands and specifying processes for communicating progress.

3.7 Identify the case manager responsible for delivering the intervention plan and agency
responsibilities within the plan.

3.8 Review POPO Intervention Plans and identify new activities as required.

3.9 Provide a forum for taking cases off of the POPO case list.

3.10 Provide a forum for identifying blockages in the delivery of rehabilitation services for
POPOs and ensuring that these are raised with the relevant RAPs.

4. Membership

4.1 The Group is essentially an operational meeting. Wherever possible


membership agencies will provide staff who have direct knowledge of the POPO
cases and/or are able to ensure that any action plan agreed to is put into
practice.

4.2 Each participating agency will provide the Central BCU administrative support
with those officers who will be attending either on a regular basis or as required
by the particular case.

• Central Police Intelligence Unit


• Norfolk Probation Area
• HMP Norwich
• Criminal Justice Intervention Team
• Arrest Referral
• Housing Department
• ADAPT Resettlement Link Worker Project
• Norfolk Youth Offender Service

5. Frequency and time of meetings

5.1 The JAG will meet monthly for up to 3 hours as required.

6. Chair

6.1 The Assistant Chief Officer for Norfolk Probation Area will Chair the meetings in
the first instance with the Chief Superintendent of the Central BCU substituting in
his absence. (This will be subject to review after the first quarter).

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7. Notes, Agenda and Administration.

7.1 The Central Police BCU will provide administrative support to ensure that notes
of the meeting (i.e. Action Plans) are kept, that the membership is notified of
meeting dates, venue and cases for discussion.

7.2 The Central Intelligence Unit will collate the names of cases for the JAG to
consider and ensure that relevant agencies are notified of the names in advance
of the meeting.

7.3 Action Plans produced at the meeting will only be shared with the participating
agency representatives. It is expected that such plans will be used only in the
delivery of the POPO scheme and not used for any other purpose.

8. Governance

8.1 The JAG will report to the CDRP POPO Steering Group on its activities. It will
not share information on individual cases with the Steering Group, but will
identify any general issues arising out of the operation of the group.

8.2 Each agency representative remains accountable to their own organisations.

8.3 Where concerns about the delivery by an individual or an agency (for example
actions agreed at the JAG have not been carried out) then these will be taken up
by the JAG Chair with the relevant Senior Manager in the agency concerned.

9. Review

9.1 These terms of reference will be reviewed by the Group in March 2005.

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Priority Activity ONE: A scheme in place to cover the Central CDRPs

Explanation: The Prolific and Other Priority Offender Strategy (Home Office) Initial Guidance (Catch and Convict) July 2004 lays down the key elements of a
local scheme. The Broadland, Norwich and South Norfolk CDRPs will seek to ensure that these elements are in place during 2004-05

No. Description of required specification Current Situation Action to meet priority area Lead By When

1. Police, Probation and Prisons 1. There is Police and Probation 1. A senior management Bob Cronk 27.9.04
partnership at the heart of every representation on the POPO representative on the Steering
scheme Steering Group. Group to be nominated.

2. There is a County wide data 2. Information Sharing protocols Nick Davison TBA
sharing protocol in place. between the key agencies to be
This requires agreed.
‘operationalising’. Lead managers 1.11.04
3. Roles and responsibilities under on the Steering
3. The PPO steering group has the scheme to be agreed. Group.
limited participation from other
key partners. 1.11.04
4. POPO Steering group to be Bob Cronk
extended to include key partners
as identified in paragraph 8 of
this plan.
1.11.04
5. A Central CDRP steering Group Bob Cronk
needs to be arranged – with
Broadland and South Norfolk
Community Safety Officers
A CJS Premium Service agreed at The Norfolk Criminal Justice The Boards Case Management LCJB lead. TBA
2. LCJB level to be applied to support Board has signed up to a plan to group to report on progress towards
all local schemes within the area. implement a Premium Service meeting the plans.
through the “Narrowing the
Justice Gap” Action Plan January
2003.

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No. Description of required specification Current situation Action required Lead By when

3. Use of existing structures and 1. The Norwich YOT Manager is


services to provide interventions a member of the POPO
and support (e.g. YOTs, existing Steering Group. POPO cases
partnership arrangements with local under 18 years of age will be
DAATs and related CJITs being able to access the full range
used for problematic drug users). of YOT services. This will
include the Norwich ISP.

2. The Norfolk CJIT is in the The exact nature of the relationship Daniel Harry 6.10.04
process of being developed. between the PPO Scheme and the
Where POPOs meet the CJIT needs to be negotiated. A
targeting criteria of the CJIT written protocol will need to be
then they will access its agreed with the CJIT Steering Group
services. The PPO Steering and published. The Home Office
Group Chair is a member of Guidance paper (draft 10) on CJITs
the CJIT Steering Group. and POPOs should be used to inform
this development.
3. The DAAT Strategy Manager
is a member of the Norwich
CDRP and the DAAT CDRP
Liaison Officer sits on the
PPO Steering Group.

4 Fast tracking of offenders through This forms part of the CJS As in 2 above.
the Courts. Premium Service agreed to by the
LCJB.

18
No. Description of required specification Current Situation Required Action Lead By When
5 Agreement with the Early Release NPA already has a process for 1. Discussion with the Sentence Stuart Macdonald 1.12.04
and Recall Section (ERRS) for fast requesting the immediate recall of Enforcement Unit on the policy of
recall for bail/prison licence prisoners where there is a immediate recall in relation to
breaches heightened risk to the public from POPOs.
their behaviour.
2. Agreement to be negotiated with Adrian Went 1.12.04
the police for the speedy pick up
of warrants issued by the Parole
Board for recall in respect of
licence breaches.

3. The police to explore the protocol Adrian Went On going


requirements, through ‘daily
tasking’, for speedy action in
relation to POPOs failing to
comply with bail conditions.
6. Careful use of intelligence, with no 1. The police and probation are The Protocol needs to be ‘re-visited’ Nick Davison TBA
confidentiality barriers between signed up to the CDRP and amended as appropriate. An
probation, prisons and police, County Information Sharing implementation strategy needs to be
giving a clear message to Protocol. developed and senior managers in
offenders. the key agencies need to sign up to
2. The protocol exists as a ‘high the development of the operational
level’ document only. It has practice require to make it effective
not been put into operational and useful to front line staff in the
practice. Other key partners management of POPOs.
(including the local prisons)
have not signed it up to.

7. Referral from any source and at The NIM is in place. Priority The implementation of a secondary Adrian Went 1.3.05
any stage, but mainly Police NIM cases can be identified. tool (e.g. the Prolific Offender
level I targets Prioritisation checklist) to focus down
to the top 20-30 POPOs across the
BCU Area.

19
No. Description of required specification Current Situation Required Action Lead By When

8. Use of selection/scoring matrix to The PPO Initial Home Office 1. The police to look to develop this Adrian Went 1.3.05
prioritise POPOs Guidance document suggests a checklist and apply it to their NIM
model for prioritising cases. priority cases.

2. The CDRP/RAP to agree to the Adrian Went 1.2.05


piloting of the checklist and a
review of its applicability.

3. Consideration to be given to Adrian Went 1.2.05


introducing a common tool
across the County.

9. Intensive case management of 1. Norwich CDRP has recently 1. The funding for the POP through Bob Cronk 1.12.04
offenders during community funded the development of BSCF and BCF needs to be
supervision. the POP (police/probation secured for 2005-06.
project). A dedicated police
officer and a Probation 2. The CDRP needs to ensure that Stuart Macdonald Ongoing
Services Officer will work it receives regular reports on the
together to provide intensive progress of the Project.
interventions to PPO cases
subject to post custody 3. The relationship between the Stuart Macdonald 1.12.04
licence and supervised POP and the POPO needs to be
community penalties. formalised.

2. Norwich DAAT and NPA fund 4. POPO Joint Agency Group Tony Cherington 30.9.04
a dedicated Drug Testing and (JAG) set up
Treatment Team. This multi
agency team provides
intensive supervision to PPO
cases subject to a Drug
Testing and Treatment Order.

20
No. Description of required specification Current Situation Action required Lead By When

10. Prioritisation of offenders in custody 1. POPOs are not identified for 1. Structures for the sharing of Adrian Went 1.11.04
to receive prison interventions as the prison service. Processes POPO identified cases with the
part of sentence plans. Shared are not in place for the prisons need to be established.
information through OASys to keep delivery of priority access for
PPO schemes abreast of progress POPO cases to prison 2. Internal policies for the Lee Chapman 1.11.04
whilst in custody programmes or in the overall management of PPO cases need
management of PPO cases to be developed by the local
(e.g. location). prisons.

2. Effective processes for the 3. A senior manager lead needs to Paul Pritchard 30.9.04
sharing of OASys are not yet be identified by the local prisons.
in place. Local prison
establishments not yet 4. The prisons need to identify a Lee Chapman 1.11.04
operating OASys. staff member to act as a co-
ordinator for the sharing of
information on the progress of
PPO cases and the tracking of
POPOs through their prison
experience.

11. Use of existing accredited NPA currently has a menu of NPA to confirm that POPOs subject Stuart Macdonald 30.9.04
programmes (through Probation or accredited programmes (that is to statutory supervision will get
Prison). expanding) for use with offenders priority access to accredited
subject to Community programmes.
Supervision. Lee Chapman 1.11.04
Most offenders are expected to Prison service (locally) to confirm
undertake an accredited arrangements for ensuring that
programme as part of their POPO identified cases access prison
supervision. programmes.

21
No. Description of required specification Current Situation Required Action Lead By When

12. Use of intelligence, Surveillance, 1. The police already operate a There needs to be negotiation with CDRP RAPS TBA
Enforcement and Rehabilitation TCG to target Priority other key rehabilitation agencies (e.g.
techniques as part of a “carrot and offenders. drug treatment providers, Jobcentre
stick” approach e.g. access to Plus, Supporting People/housing) to
drugs treatment, employment and 2. The Norfolk DAAT/NPA is the prioritising of their services for
education advice and support etc. developing the CJIP (T). POPOs.
as carrots. Effective “sticks" would
result in no-compliance with 3. Norwich CDRP has funded The Norwich police need to further Adrian Went 1.11.04
reaches being dealt with by swift the POP. develop arrangements for the co-
and purposeful action using a ordination of intelligence gathering.
dedicated Police team to support 4. NPA has a range of
the POPO team and enforce partnership projects to
community sentences and licence address the needs of
conditions with the ERRS. offenders under its
supervision in relation to
employment, education and
training.

5. The CJS already operates a


priority recall system for
immediate recall of high-risk
offenders.

13. Information sharing between As in 6 above As in 6 above As in 6 above TBA


partner agencies about targeted
individuals, with the police leading
in the establishment of data sharing
protocols.

22
PRIORITY ACTIVITY TWO: Multi- Agency Working Arrangements, including data sharing protocols.

Explanation: the efficient operation of the POPO Scheme requires effective sharing of information between the various key partners and the involvement of a
range of agencies to meet the POPO rehabilitation needs

No. Description of required specification Current Situation Action required Lead By When

14. Multi agency working arrangements Priority Activity Five to be delivered. CDRP RAPs
to be in place

15. Effective information sharing in As in 6 As in 6 As in 6 TBA


place

16 Engagement of partners to ensure A limited number of core agencies The PPO Steering Group to be Bob Cronk 1.11.04
multi agency provision to meet PPO are represented on the Steering expanded to encompass
rehabilitation needs. Group. representatives from
agencies/groups identified in
paragraph 9.

23
PRIORITY ACTIVITY THREE: The first group of POPOs to be identified
th
Explanation: by the 6 September 2004, the Home Office requires the Broadland, Norwich, South Norfolk CDRPs to have each identified 15-20 (30-40) POPOs.

No. Description of required specification Current situation Action Required Lead By When

17 PPO list to be compiled The Norwich constabulary is able


to identify priority offender through 1. POPOs need to be inputted to Adrian Went 4.10.04
the NIM. JTrack

2. Arrangements need to be in Stuart Macdonald 30.9.04


place with Norfolk Probation for
the monitoring and management
of POPOs subject to statutory
supervision.

PRIORITY ACTIVITY FOUR: A Local Implementation Checklist to be created for every LCJB area.

24
Explanation: A Local Implementation Checklist needs to be drawn up at the LCJB level by the Police, CDRPs and the LCJB. The Central CDRPs need to
ensure that it has in place the various local requirements to inform the Area level Checklist.

No. Description of Checklist Criteria Current Situation Action Required Lead By When
The Central Area has the The Central RAPs to endorse this
18 A scheme is established. foundations for a scheme. Action Plan and to ensure that RAP Chairs 30.9.04
Supported by the POP scheme resources are in place for the action
for Norwich. This Action Plan sets to be addressed.
out the action required to meet
the criteria for a comprehensive
scheme.
19. Scheme lead officer identified Stuart Macdonald, Assistant Chief 1. Ratification of lead officer is RAP Chair. 1.9.04
Officer, NPA, has agreed to lead required by the RAP.
on the implementation phase.
2. Lead officer status and Stuart Macdonald Ongoing
responsibilities to be reviewed in
the light of the development of
the scheme.
20. Governance arrangements agreed 1. The Central RAP Chairs are 1. Clear lines of communication Chief Constable Ongoing
the respective Responsible with the LCJB need to be
Officer with overall established.
accountability for the scheme
as it impacts on their CDRPs. 2. The LCJB needs to be involved Chair of the RAPs 30.9.04
They have responsibility for in the strategic planning of the
reporting back to the GO. Central scheme.

2. The Lead of the Steering 3. Detailed governance Stuart Macdonald 30.9.04


Group sits in the Norwich arrangements for the Scheme
RAP. are required.

3. The Home Office will be


developing a more detailed
accountability framework.
No. Description of checklist criteria Current Situation Action Required Lead By When

25
21 Lead Officer named for key Lead officers have been identified 1. The responsibilities and roles of RAP Chairs 30.9.04
agencies for: lead officers needs to be agreed.
Police – Adrian Went Clearly not all lead officers will be
Probation – Stuart Macdonald able to attend all of the potential
Prison – Lee Chapman schemes across the County
YOT – Paul Corina (where they represent
CPS - countywide agencies). Some
CJIP – Daniel Harry consideration needs to be given
Health - at a County strategic level on the
Education - best ways to engage the variety
Social Services - of agencies required to make
Housing - PPO Schemes effective.
Employment/Jobcentre Plus
Voluntary organisations 2. One proposal is that each of the
Others respective agencies details how
they feel that their agency can
contribute to the delivery of the
PPO scheme in the Central Area.
This might or might include the
identification of other staff to link
in with the POPO Scheme as
required.

3. As part of the implementation RAP Chairs 1.12.04


and development phase it is
crucial that the Central PPO
scheme is able to identify how
each of the lead agencies will
contribute to delivery. To this
end it is felt that the LCJB/CDRP
Chairs should seek to involve
key agencies at a strategic level.

26
No. Description of checklist criteria Current Situation Action required Lead By When

22. Relationships with other schemes The Norfolk CJIP is still being The CJIP/Central POPO to agree Daniel Harry 6.10.04
(e.g. to be outlined and agreed). developed. The CJIP Steering how they will operate in support of
Group has begun to address its one another. It is proposed that this
relationship with POPO. is done at an Area wide level.

The Norwich CDRP POP will play Arrangements with the MAPPA need Stuart Macdonald 30.11.04
an important role in supporting the to be developed.
PPO scheme in the Norwich area
only. The links between the POP and the Stuart Macdonald 1.12.04
PPO to be identified.

23. Identification and assessment This Action Plan proposes that It is proposed that there is an Area Nick Davison 30.9.04
protocols agreed. the Central CDRP scheme utilises wide agreement to use of a
the NIM plus the Prolific Offender consistent method for identifying and
Prioritisation form (adapted to assessing POPOs. This needs to be
take account of the local crime co-ordinated at the LCJB level.
make-up).

24. Data sharing protocol There is already in place a multi- The Data Sharing Protocol needs to
agency Community Safety data be implemented in the agencies that Nick Davison TBA
sharing protocol. However, this is have signed up to it. Operational
a relatively high level document processes need to be agreed and
that has not been operationally formalised and monitored. Further, it
implemented across the signatory needs to be extended to include
agencies and does not include other key partners. It is felt that this
other key partners. needs to be actioned at the level of
the LCJB.
The proposals put forward in this
25. Target number of POPOs Action Plan should enable the Implement Action Plan proposals. RAP Chair 30.9.04
established for area and each identification of the initial PPO
scheme caseload.

27
No. Description of checklist Criteria Current Situation Action Required Lead By When

26. CJS Premium Service agreed by The LCJB has developed a Central POPO to assure itself of the Bob Cronk TBA
the LCJB Premium Service in line with the service delivery agreements for the
Narrowing The Justice Gap Premium Service.
requirements.

27. First group of POPOs to be NIM in place. Agreement is required to pilot the Adrian Went TBA
th
identified by 6 September Prolific Offender Prioritisation
It is recognised as the Checklist as in 17.
identification and assessment
processes become more
sophisticated that the initial list will
be updated.

28. POPOs to be entered onto JTrack Adrian Went 4.10.04


th
by 4 October

29 Expected outcomes Paragraph 3 of this Report Detailed and specific crime reduction Adrian Went 1.12.04
outlines the overall outcomes targets will need to be identified –
expected. against the base line of current crime
rates.

28
PRIORITY ACTIVITY FIVE: Implementing the Rehabilitate and Resettle Model

Explanation: CDRPs, working with agencies at local and County level, are required to develop rehabilitation plans to meet the support needs of POPOs in the
Central BCU area.

No. Description of criteria Current situation Action Required Lead By When

30 Accommodation 1. The Norfolk Supporting 1. CDRP Plans for 2005-8 need to Peter Burnham 1.12.04
People Strategy (draft) Plan take account of the SP Plan.
2005-10 addresses the Liaison between the SP led on
housing and support needs of Offenders and CDRPs is
Offenders. required.

2. A Norfolk research project is 2. Final report to be published and Stuart Macdonald 1.12.04
currently identifying the recommendations considered by
accommodation provision for the CDRPs.
Offenders and will make
recommendations for service
improvement.

3. There is a County Norfolk 3. Strategy to be developed and Stuart Macdonald 1.3.05


Offender Accommodation published. To be discussed at
Group that is developing an CDRPs/RAPs.
Offender Strategy for Norfolk
and brings together
accommodation providers.

31 Education, Training and 1. The Norfolk LSC is Norfolk LSC to identify how the Stuart Macdonald 1.2.05
Employment responsible for planning the needs of POPO cases can be met.
needs of Offenders. NPA and
LSC have a Partnership Plan
in place to take this forward.

29
No. Description of Criteria Current Situation Action Required Lead By When

32 Mental and Physical health Development of services for POPOs The PCT RAP TBA
with mental and physical health representatives
problems in the community.

33 Drugs and Alcohol The Norfolk CJIT is being Protocol between CJIT and POPO to Daniel Harry 6.10.04
developed to, in the first instance, be drawn up.
target priority offenders released
from custody. The wider CJIP will
be developed to bring all
substance misuse CJS service
delivery under a co-ordinated
‘umbrella’.

34 Finance, Benefit and Debt Examine the possibility of easing TBA TBA
access to social fund loans for ex-
prisoners

35 Children and Families of offenders Implement the emerging strategy on TBA


the needs of children and families of
offenders

36 Attitudes, thinking and Behaviour NPA operates a range of POPO cases subject to supervision Stuart Macdonald 1.9.04
accredited programmes. to get priority access.

37 Develop communications with Sentencers to be aware of the LCJB TBA


Sentencers schemes.

30
No Description of criteria Current Situation Action Required Lead By when

38 Establish local governance The central CDRPs are piloting a 1. Terms of reference, Stuart Macdonald 1.10.04
arrangements for managing Joint Agency Group. A multi confidentiality policy, agenda and
offenders agency operational meeting, process to be drawn up for the
meeting monthly to assess and JAG
plan interventions. Similar Nick Davison 30.9.04
Groups are being set up in the 2. Agreement to common process
East and West. across the three BCUs

3. Agreement is required to a Nick Davison 1.11.04


County wide action plan and lead
officers identified.

4. Governance mechanisms to Stuart Macdonald 30.9.04


cover or the Central CDRPs
need to be agreed.

End of document.
S.Macdonald

31