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.

1

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: • • • • 4. 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. 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.

2

• •

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:

4

• • • •

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). 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 two:

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

Stage five:

5

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. 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. 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.

Stage nine:

Stage ten:

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.

6

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).

8

Risk Management Plan:

Central POPO BCU Scheme.

No. Risk 1 Data sharing protocol not signed up to by key agencies

Likelihood Medium

Impact High

Contingency/Plans Chief Officers represented on the LCJB 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. • • • Regular meetings of the three Scheme leads to be arranged. Communication links with the LCJB to be clarified as part of the POPO Governance Structure. Governance arrangements to be agreed.

Lead LCJB

2

Inconsistent processes and policy developments across the three BCU areas.

Medium

Medium

Nick Davison Nick Davison Stuart Macdonald LCJB

3

Key agencies not engaged and/or reluctant to High priorities services

High

Each agency to be required to draw up a 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 in this to be taken up by the RAP Chairs. Plans to be provided to POPO leads.

RAP Chairs RAPs Nick Davison

4

Difficulties in collating robust performance information

High

High

The Crime Analysts to be involved in identifying minimum data set.

9

No. Risk 5 Robust process for identifying Other Priority Offenders not put into place and case list becomes dominated by NIM cases

Likelihood Medium

Impact High

Contingency/ Plan

Lead

RAPs to require relevant KIGs (anti social RAP behaviour, domestic violence) to develop Chairs robust processes for identifying cases and identify relevant cases to fed into the Central Intelligence Unit. Central POPO Steering Group to be set up with representatives from the three CDRPs The Prioritisation matrix to be adapted to ensure that it reflects local needs. Bob Cronk Adrian Went

6

The smaller CDRPs (i.e. Broadland and South Norfolk) perceive that the Central Scheme is not meeting their needs – as the prolific offenders are more likely to be located in the Norwich CDRP area.

Medium

High

7

There are insufficient resources to coordinate the information and tracking requirements across the three BCUs. Rehabilitation and resettlement pathways not in place and a lack of speedy interventions for POPO cases (e.g. access to drug treatment). (Linked to Risk 3)

High

High

The CDRPs/LCJB/others to consider how additional funding might be accessed to proved for effective co-ordination of the Schemes. Government Office East of England to be asked to facilitate a County wide event bringing together key statutory and voluntary agencies concerned with rehabilitation. With the aim of making them aware of the requi9rements of POPO and enabling them to consider how they might facilitate priority access.

LCJB/ RAP Chairs. Stuart Macdonald

8

High

High

10

The Norwich PPO Scheme: Catch and Convict, Rehabilitate and Resettle
NIM identification of Priority cases Probation and Partnership interventions CJIT PPO Identification of top 20 - 40 cases Norwich CDRP POP Community Intervetions Supervised (probation) sentence Identification of Priority others Norfolk Probation Area Case manger

Proactive Policing

Non Supervised Community Sentence

Custodial Sentence

MAPPA

Investigation and Arrest and Charge

Arrest Referral

Sentencing and Rehabilitation

Conduct of Hearings

Preparation for Court

Page 1
11

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

NIM identification of cases (Central Intelligence Unit)

Identification of Other Priority Cases (CDRPs, Probation, Others)

Identification of top 20-40 POPOs across the Central BCU (Central Intelligence Unit)

TIER TWO Core Membership: Police Probation (POP workers) Prison CJIT/DAAT/Arrest Referral Housing Department Resetlement Link Project

TIER ONE Top 10

Notification to Relevant Agencies: Crown Prosecution Norfolk Probation Area HM Prison Service C.J.I.T

Joint Agency Group JAG

Support and Intervetion programmes and agencies: Probation. Substance misuse Treatmentproviders CJIT Jobcentre Plus Accommodation providers Community and Volutary sector Health

Agency Processes for managing POPOs put into operation.

Information Sharing, Risk Assessment and Intervention Plan

Catch and Convict

Rehabilitate and Resettle

12

Page 1

Central Area POPO: GOVERNANCE and Communication FRAMEWORK. APPENDIX 3

Chief Executive Group.

Government Office East of England

Local Criminal Justice Board

Broadland CDRP RAP Chair (Responsible Officer)

Norwich CDRP RAP Chair (Responsible Officer)

South Norfolk CDRP RAP Chair (Responsible Officer)

Membership. STRATEGIC Officers from: Broadland CDRP Norwich CDRP South Norfolk CDRP Central BCU Norfolk Probation Area Drug And Alcohol Action Team

Membership: OPERATIONAL Officers CDRP Steering Group Police Probation Prison CJIT/Arrest Referral Housing Resettlement Link Workers

Western Scheme Central Area JAG

Eastern Scheme

Criminal Justice Intervention Team

Central Police Intelligence Unit

13 Norfolk Probation Area

HM Prisons

ASBO/Domestic Violence 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 cooperation 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.

14

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. 1. Description of required specification Police, Probation and Prisons partnership at the heart of every scheme Current Situation 1. There is Police and Probation representation on the POPO Steering Group. 2. There is a County wide data sharing protocol in place. This requires ‘operationalising’. 3. The PPO steering group has limited participation from other key partners. Action to meet priority area 1. A senior management representative on the Steering Group to be nominated. 2. Information Sharing protocols between the key agencies to be agreed. 3. Roles and responsibilities under the scheme to be agreed. 4. POPO Steering group to be extended to include key partners as identified in paragraph 8 of this plan. 5. A Central CDRP steering Group needs to be arranged – with Broadland and South Norfolk Community Safety Officers The Boards Case Management group to report on progress towards meeting the plans. Lead Bob Cronk By When 27.9.04

Nick Davison Lead managers on the Steering Group. Bob Cronk

TBA 1.11.04

1.11.04

1.11.04 Bob Cronk

2.

A CJS Premium Service agreed at LCJB level to be applied to support all local schemes within the area.

The Norfolk Criminal Justice Board has signed up to a plan to implement a Premium Service through the “Narrowing the Justice Gap” Action Plan January 2003.

LCJB lead.

TBA

17

No. 3.

Description of required specification Use of existing structures and services to provide interventions and support (e.g. YOTs, existing partnership arrangements with local DAATs and related CJITs being used for problematic drug users).

Current situation 1. The Norwich YOT Manager is a member of the POPO Steering Group. POPO cases under 18 years of age will be able to access the full range of YOT services. This will include the Norwich ISP. 2. The Norfolk CJIT is in the process of being developed. Where POPOs meet the targeting criteria of the CJIT then they will access its services. The PPO Steering Group Chair is a member of the CJIT Steering Group. 3. The DAAT Strategy Manager is a member of the Norwich CDRP and the DAAT CDRP Liaison Officer sits on the PPO Steering Group.

Action required

Lead

By when

The exact nature of the relationship between the PPO Scheme and the CJIT needs to be negotiated. A written protocol will need to be agreed with the CJIT Steering Group and published. The Home Office Guidance paper (draft 10) on CJITs and POPOs should be used to inform this development.

Daniel Harry

6.10.04

4

Fast tracking of offenders through the Courts.

This forms part of the CJS Premium Service agreed to by the LCJB.

As in 2 above.

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No. 5

Description of required specification Agreement with the Early Release and Recall Section (ERRS) for fast recall for bail/prison licence breaches

Current Situation NPA already has a process for requesting the immediate recall of prisoners where there is a heightened risk to the public from their behaviour.

Required Action 1. Discussion with the Sentence Enforcement Unit on the policy of immediate recall in relation to POPOs. 2. Agreement to be negotiated with 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 requirements, through ‘daily tasking’, for speedy action in relation to POPOs failing to comply with bail conditions. The Protocol needs to be ‘re-visited’ and amended as appropriate. An implementation strategy needs to be developed and senior managers in the key agencies need to sign up to the development of the operational practice require to make it effective and useful to front line staff in the management of POPOs.

Lead Stuart Macdonald

By When 1.12.04

Adrian Went

1.12.04

Adrian Went

On going

6.

Careful use of intelligence, with no confidentiality barriers between probation, prisons and police, giving a clear message to offenders.

1. The police and probation are signed up to the CDRP County Information Sharing Protocol. 2. The protocol exists as a ‘high level’ document only. It has not been put into operational practice. Other key partners (including the local prisons) have not signed it up to.

Nick Davison

TBA

7.

Referral from any source and at any stage, but mainly Police NIM level I targets

The NIM is in place. Priority cases can be identified.

The implementation of a secondary tool (e.g. the Prolific Offender Prioritisation checklist) to focus down to the top 20-30 POPOs across the BCU Area.

Adrian Went

1.3.05

19

No. 8.

Description of required specification Use of selection/scoring matrix to prioritise POPOs

Current Situation The PPO Initial Home Office Guidance document suggests a model for prioritising cases.

Required Action 1. The police to look to develop this checklist and apply it to their NIM priority cases. 2. The CDRP/RAP to agree to the piloting of the checklist and a review of its applicability. 3. Consideration to be given to introducing a common tool across the County.

Lead Adrian Went

By When 1.3.05

Adrian Went

1.2.05

Adrian Went

1.2.05

9.

Intensive case management of offenders during community supervision.

1. Norwich CDRP has recently funded the development of the POP (police/probation project). A dedicated police officer and a Probation Services Officer will work together to provide intensive interventions to PPO cases subject to post custody licence and supervised community penalties. 2. Norwich DAAT and NPA fund a dedicated Drug Testing and Treatment Team. This multi agency team provides intensive supervision to PPO cases subject to a Drug Testing and Treatment Order.

1. The funding for the POP through BSCF and BCF needs to be secured for 2005-06. 2. The CDRP needs to ensure that it receives regular reports on the progress of the Project. 3. The relationship between the POP and the POPO needs to be formalised. 4. POPO Joint Agency Group (JAG) set up

Bob Cronk

1.12.04

Stuart Macdonald

Ongoing

Stuart Macdonald

1.12.04

Tony Cherington

30.9.04

20

No. 10.

Description of required specification Prioritisation of offenders in custody to receive prison interventions as part of sentence plans. Shared information through OASys to keep PPO schemes abreast of progress whilst in custody

Current Situation 1. POPOs are not identified for the prison service. Processes are not in place for the delivery of priority access for POPO cases to prison programmes or in the overall management of PPO cases (e.g. location). 2. Effective processes for the sharing of OASys are not yet in place. Local prison establishments not yet operating OASys.

Action required 1. Structures for the sharing of POPO identified cases with the prisons need to be established. 2. Internal policies for the management of PPO cases need to be developed by the local prisons. 3. A senior manager lead needs to be identified by the local prisons. 4. The prisons need to identify a staff member to act as a coordinator for the sharing of information on the progress of PPO cases and the tracking of POPOs through their prison experience. NPA to confirm that POPOs subject to statutory supervision will get priority access to accredited programmes. Prison service (locally) to confirm arrangements for ensuring that POPO identified cases access prison programmes.

Lead Adrian Went

By When 1.11.04

Lee Chapman

1.11.04

Paul Pritchard Lee Chapman

30.9.04 1.11.04

11.

Use of existing accredited programmes (through Probation or Prison).

NPA currently has a menu of accredited programmes (that is expanding) for use with offenders subject to Community Supervision. Most offenders are expected to undertake an accredited programme as part of their supervision.

Stuart Macdonald

30.9.04

Lee Chapman

1.11.04

21

No. 12.

Description of required specification Use of intelligence, Surveillance, Enforcement and Rehabilitation techniques as part of a “carrot and stick” approach e.g. access to drugs treatment, employment and education advice and support etc. as carrots. Effective “sticks" would result in no-compliance with reaches being dealt with by swift and purposeful action using a dedicated Police team to support the POPO team and enforce community sentences and licence conditions with the ERRS.

Current Situation 1. The police already operate a TCG to target Priority offenders. 2. The Norfolk DAAT/NPA is developing the CJIP (T). 3. Norwich CDRP has funded the POP. 4. NPA has a range of partnership projects to address the needs of 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.

Required Action There needs to be negotiation with other key rehabilitation agencies (e.g. drug treatment providers, Jobcentre Plus, Supporting People/housing) to the prioritising of their services for POPOs. The Norwich police need to further develop arrangements for the coordination of intelligence gathering.

Lead CDRP RAPS

By When TBA

Adrian Went

1.11.04

13.

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

As in 6 above

As in 6 above

As in 6 above

TBA

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. 14. Description of required specification Multi agency working arrangements to be in place Effective information sharing in place Engagement of partners to ensure multi agency provision to meet PPO rehabilitation needs. As in 6 Current Situation Action required Priority Activity Five to be delivered. Lead CDRP RAPs By When

15.

As in 6

As in 6

TBA

16

A limited number of core agencies are represented on the Steering Group.

The PPO Steering Group to be expanded to encompass representatives from agencies/groups identified in paragraph 9.

Bob Cronk

1.11.04

23

PRIORITY ACTIVITY THREE: The first group of POPOs to be identified
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. 17 Description of required specification PPO list to be compiled Current situation The Norwich constabulary is able to identify priority offender through the NIM. Action Required 1. POPOs need to be inputted to JTrack 2. Arrangements need to be in place with Norfolk Probation for the monitoring and management of POPOs subject to statutory supervision. Lead Adrian Went Stuart Macdonald By When 4.10.04 30.9.04
th

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. 18 Description of Checklist Criteria A scheme is established. Current Situation The Central Area has the foundations for a scheme. Supported by the POP scheme for Norwich. This Action Plan sets out the action required to meet the criteria for a comprehensive scheme. Stuart Macdonald, Assistant Chief Officer, NPA, has agreed to lead on the implementation phase. Action Required The Central RAPs to endorse this Action Plan and to ensure that resources are in place for the action to be addressed. Lead RAP Chairs By When 30.9.04

19.

Scheme lead officer identified

1.

Ratification of lead officer is required by the RAP.

RAP Chair. Stuart Macdonald

1.9.04 Ongoing

20.

Governance arrangements agreed

1. The Central RAP Chairs are the respective Responsible Officer with overall accountability for the scheme as it impacts on their CDRPs. They have responsibility for reporting back to the GO. 2. The Lead of the Steering Group sits in the Norwich RAP. 3. The Home Office will be developing a more detailed accountability framework. Current Situation

2. Lead officer status and responsibilities to be reviewed in the light of the development of the scheme. 1. Clear lines of communication with the LCJB need to be established. 2. The LCJB needs to be involved in the strategic planning of the Central scheme. 3. Detailed governance arrangements for the Scheme are required.

Chief Constable

Ongoing

Chair of the RAPs

30.9.04

Stuart Macdonald

30.9.04

No.

Description of checklist criteria

Action Required

Lead

By When

25

21

Lead Officer named for key agencies

Lead officers have been identified for: Police – Adrian Went Probation – Stuart Macdonald Prison – Lee Chapman YOT – Paul Corina CPS CJIP – Daniel Harry Health Education Social Services Housing Employment/Jobcentre Plus Voluntary organisations Others

1. The responsibilities and roles of lead officers needs to be agreed. Clearly not all lead officers will be able to attend all of the potential schemes across the County (where they represent countywide agencies). Some consideration needs to be given at a County strategic level on the best ways to engage the variety of agencies required to make PPO Schemes effective. 2. One proposal is that each of the 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 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.

RAP Chairs

30.9.04

RAP Chairs

1.12.04

26

No. 22.

Description of checklist criteria Relationships with other schemes (e.g. to be outlined and agreed).

Current Situation The Norfolk CJIP is still being developed. The CJIP Steering Group has begun to address its relationship with POPO. The Norwich CDRP POP will play an important role in supporting the PPO scheme in the Norwich area only.

Action required The CJIP/Central POPO to agree how they will operate in support of one another. It is proposed that this is done at an Area wide level. Arrangements with the MAPPA need to be developed. The links between the POP and the PPO to be identified. It is proposed that there is an Area wide agreement to use of a consistent method for identifying and assessing POPOs. This needs to be co-ordinated at the LCJB level. The Data Sharing Protocol needs to be implemented in the agencies that have signed up to it. Operational processes need to be agreed and formalised and monitored. Further, it needs to be extended to include other key partners. It is felt that this needs to be actioned at the level of the LCJB. Implement Action Plan proposals.

Lead Daniel Harry

By When 6.10.04

Stuart Macdonald Stuart Macdonald

30.11.04 1.12.04

23.

Identification and assessment protocols agreed.

This Action Plan proposes that the Central CDRP scheme utilises the NIM plus the Prolific Offender Prioritisation form (adapted to take account of the local crime make-up). There is already in place a multiagency Community Safety data sharing protocol. However, this is a relatively high level document that has not been operationally implemented across the signatory agencies and does not include other key partners. The proposals put forward in this Action Plan should enable the identification of the initial PPO caseload.

Nick Davison

30.9.04

24.

Data sharing protocol

Nick Davison

TBA

25.

Target number of POPOs established for area and each scheme

RAP Chair

30.9.04

27

No. 26.

Description of checklist Criteria CJS Premium Service agreed by the LCJB

Current Situation The LCJB has developed a Premium Service in line with the Narrowing The Justice Gap requirements. NIM in place. It is recognised as the identification and assessment processes become more sophisticated that the initial list will be updated.

Action Required Central POPO to assure itself of the service delivery agreements for the Premium Service.

Lead Bob Cronk

By When TBA

27.

First group of POPOs to be th identified by 6 September

Agreement is required to pilot the Prolific Offender Prioritisation Checklist as in 17.

Adrian Went

TBA

28. 29

POPOs to be entered onto JTrack th by 4 October Expected outcomes Paragraph 3 of this Report outlines the overall outcomes expected. Detailed and specific crime reduction targets will need to be identified – against the base line of current crime rates.

Adrian Went Adrian Went

4.10.04 1.12.04

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. 30 Description of criteria Accommodation Current situation 1. The Norfolk Supporting People Strategy (draft) Plan 2005-10 addresses the housing and support needs of Offenders. 2. A Norfolk research project is currently identifying the accommodation provision for Offenders and will make recommendations for service improvement. 3. There is a County Norfolk Offender Accommodation Group that is developing an Offender Strategy for Norfolk and brings together accommodation providers. 31 Education, Training and Employment 1. The Norfolk LSC is responsible for planning the needs of Offenders. NPA and LSC have a Partnership Plan in place to take this forward. Action Required 1. CDRP Plans for 2005-8 need to take account of the SP Plan. Liaison between the SP led on Offenders and CDRPs is required. 2. Final report to be published and recommendations considered by the CDRPs. Lead Peter Burnham By When 1.12.04

Stuart Macdonald

1.12.04

3. Strategy to be developed and published. To be discussed at CDRPs/RAPs.

Stuart Macdonald

1.3.05

Norfolk LSC to identify how the needs of POPO cases can be met.

Stuart Macdonald

1.2.05

29

No. 32

Description of Criteria Mental and Physical health

Current Situation

Action Required Development of services for POPOs with mental and physical health problems in the community.

Lead The PCT RAP representatives Daniel Harry

By When TBA

33

Drugs and Alcohol

The Norfolk CJIT is being developed to, in the first instance, 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’.

Protocol between CJIT and POPO to be drawn up.

6.10.04

34

Finance, Benefit and Debt

Examine the possibility of easing access to social fund loans for exprisoners Implement the emerging strategy on the needs of children and families of offenders NPA operates a range of accredited programmes. POPO cases subject to supervision to get priority access. Sentencers to be aware of the schemes.

TBA

TBA

35

Children and Families of offenders

TBA

36 37

Attitudes, thinking and Behaviour Develop communications with Sentencers

Stuart Macdonald LCJB

1.9.04 TBA

30

No 38

Description of criteria Establish local governance arrangements for managing offenders

Current Situation The central CDRPs are piloting a Joint Agency Group. A multi agency operational meeting, meeting monthly to assess and plan interventions. Similar Groups are being set up in the East and West.

Action Required 1. Terms of reference, confidentiality policy, agenda and process to be drawn up for the JAG 2. Agreement to common process across the three BCUs 3. Agreement is required to a County wide action plan and lead officers identified. 4. Governance mechanisms to cover or the Central CDRPs need to be agreed.

Lead Stuart Macdonald

By when 1.10.04

Nick Davison

30.9.04

Nick Davison

1.11.04

Stuart Macdonald

30.9.04

End of document. S.Macdonald

31