Whakapmau Taonga: Kaiti Youth Development and Offending Reduction Strategy 20102015

Has he proved a claim to be an asset to his country? If so, he asks to be dealt with as such. An asset discovered in the crucible of war should have a value in the coming peace. A. T. Ngata, The Price of Citizenship (1943) "We have gained our victories but there is a bigger battle ahead. That is the battle for existence in civilised life... We will not shirk. We will work to make this truly the best country in the world." Lt Col. Peter Awatere, Te Poho o Rawiri Marae, 7 September 1945

CONTENTS 1. 2. 3. 4. 5. Executive Summary ........................................................................................................ 3 Introduction: Scope, Rationale & Definitions .................................................................. 5 Project Principles & Priorities ......................................................................................... 7 Contextual Considerations.............................................................................................. 9 Population Profile & Summary of Evidence: ................................................................. 12 Profile of rangatahi and offending in Kaiti ..............................................................12 What works to prevent Mori youth offending ......................................................13 Toward a continuum of graduated interventions ...................................................14 6. Strategic Development Plan ......................................................................................... 16 Strategy Components..............................................................................................16 Development Plan Overview ..................................................................................17 Component Cost Estimates & Likely Investors........................................................19 Capability & Capacity Development Priorities ........................................................22 Monitoring & Evaluation .........................................................................................24 Quality Assurance....................................................................................................25 Risk Mitigation.........................................................................................................26

APPENDICES: A) Kaiti Demographic Profile.....................................................................................................28 B) Gisborne Youth Offending Statistics ....................................................................................31 C) Youth Offending Services Effectiveness Checklist (YOSEC) ..................................................34 D) Strong Communities: Principles & Process ..........................................................................36 E) Community Building: What Makes It Work..........................................................................38 F) Gisborne Youth Offending Study..........................................................................................41 G) References............................................................................................................................42

NOTE: This draft document has been prepared for Te Runanga o Ngati Porou by Manu Caddie and Marcus Akuhata Brown (December 2009). While every reasonable effort has been made to ensure that the information is accurate, the authors make no guarantees as to the accuracy of the information, and do not warrant that inaccuracies in the information will be corrected. No obligation or implied services of any description may be inferred from the presentation of this information. Te Runanga o Ngati Porou reserves the right to modify the information at any time for any reason, without notice. The ownership, use and distribution of the information are governed by Te Runanga o Ngati Porou.

1.

Executive Summary
As the quotations on the cover of this document suggest, Ngati Porou leaders have for a long time held a vision of their young people making a meaningful contribution to their tribe and the wider society. The goal of the Strategy is to provide a coherent framework for building a safe, caring community and preventing criminal offending by young people aged 1416 years who reside in Kaiti.1 The Strategy has been developed by Te Runanga o Ngati Porou in consultation with community stakeholders including statutory agencies, rangatahi and iwi leaders. While the strategy has a focus on a particular population within Kaiti, the issues contributing to offending behaviour and preventing offending are much wider than the young people or the area known as Kaiti. A wide range of factors contribute to increasing or reducing the likelihood that rangatahi will not commit crime. A Strategy provides a plan for new investment of $600,000 in the first year rising to $1.7million per annum by 2015 to address these diverse issues requires a broad approach that will increase the presence and strength of protective factors and simultaneously reduce the power of influences linked to causing offending. The Strategy is grounded in the organisational priorities of Te Runanga o Ngati Porou and is based on a number of guiding principles including: having wide support from Kaiti whanau including rangatahi, iwi leaders, marae committees, hapu entities, youth justice experts, statutory agencies and nongovernmental organisations; being informed by but also recognise the limitations of existing empirical evidence about what works to prevent offending and reoffending amongst Mori young people; being overseen by a small group of key stakeholders who will ensure the Strategy is implemented completely and reviewed regularly to respond to perpetual change in the sociocultural context and political economy within which it exists and needs to remain relevant to; maximising existing resource already in the rohe of Ngati Porou and new resource coming into the region that could be organised in ways that better achieve the goals of the Strategy while remaining aligned with whatever other purposes those resources exist for; being implemented by a range of organisations who share a commitment to realising the common vision and an agreed way of working toward that vision. Four priorities for the Strategy investment are: (1) supporting whanau, hapu and communities to establish and sustain healthy relationships with all of their members; (2) coordinating existing resources to ensure opportunities for positive change are maximised; (3) identifying gaps in local services and securing resources to meet the need; (4) ensuring volunteers and paid workers are skilled, confident and collaborative. Ngati Porou have a unique opportunity at this time to be world leaders in demonstrating a tribal approach to youth development and family wellbeing. Ngati Porou have the potential and access to the resources to create a social and cultural environment that has enough care and sense of belonging, enough skill development and generosity to ensure young people have no need to commit crime because they are included as indispensable members of the tribe and their wellbeing is the tribes social, economic and cultural security.

This target population was determined in the Strategy funding agreement between TRONP and Ministry of Justice.

The implementation structure for the Strategy is based around a Project Development Coordinator being responsible for coordinating the implementation of the Strategy with oversight from a governance group including iwi/hapu representatives, a youth court judge, cultural and technical experts. The Strategy will be resourced by a combination of financial, administrative and technical contributions from government and nongovernmental sources.

1. Introduction
Scope
The primary population for this Strategy are rangatahi Mori aged 1416 years who reside in Kaiti and have come to the attention of Police and/or Child, Youth & Family as a result of alleged criminal offending their whanau, hapu and other members of their neighbourhoods and community are also significant stakeholders. The Strategy has a five year timeframe and identifies investment over this period.

Rationale
The mission of Te Runanga o Ngati Porou states that the vision of TRONP [and subsequently this Strategy] will be achieved through affirming the Matauranga Ngati Porou and its application to cultural, economic and social developments that contribute to the prosperity and survival of Ngati Porou whanau and hapu while actively enhancing the mana motuhake of Ngati Porou. Over 50% of Mori residing in Kaiti identify as Ngati Porou (10% Te AitangaMahaki, 10% Kahungunu, 8% Rongowhakaata, 8% Tuhoe, 4% Te WhanauaApanui, 3% Ngai Tamanuhiri and 3% other iwi) and over 50% of youth offenders coming through Gisborne Youth Court since 2006 have resided in Kaiti. Criminal offending at a young age, in addition to the harm it causes as a result of the offending, is a strong risk factor in the likelihood that a person will continue offending and causing harm to themselves and others as an adult. TRONP clearly has an interest in supporting the development of a widereaching strategic plan to reduce the risks that rangatahi in Kaiti will offend or reoffend and has the ability to work with Government agencies and private funders to coordinate the development of a comprehensive system to realise the goals of such a Strategy.

Definitions
Kaiti Two census blocks within Kaiti account for 50% of Youth Court clients from 2006 2008. These areas known as Kaiti South (contained in the streets between Wainui Road and Titirangi Maunga) and Outer Kaiti (bounded by De Latour, Wainui, Tyndall and Huxley Roads) will be the primary focus of this Strategy. This term is used to describe young people or youth, particularly those aged 1416 years, but may at times include young people a few years either side as well. While whanau can be used for both whakapapa and kaupapabased relationships, in the context of this document is usually refers to the close network of whakapapa based relationships that rangatahi usually grow up connected to. Biological parents, siblings and grandparents, inlaws, stepparents, whangai and uncles, aunties and cousins are all considered whanau. Hapu for the purposes of this document are the descendents of particular tupuna who commonly identity themselves as members of a particular hapu and demonstrate some sustained commitment to the interests and wellbeing of the hapu. Hapu may provide a critical point of connection for rangatahi who have lost a positive sense of their relationship to whakapapa, marae and whanau. Hapu have huge potential to provide safe, nurturing and challenging environments within which rangatahi can develop their sense of belonging, skill mastery, interdependence and contribution to their community. Nga uri o nga hapu o Ngati Porou mai I Potakarua ki Te Toka a Taiau. It is important to acknowledge that the criminal justice system including youth justice is based on upholding laws established by the Crown and a colonial government that has privileged European settler society and discriminated against Tangata Whenua. While the focus of offending prevention in this document refers to offences against the laws established by the Government of New Zealand, it is also important to recognise that Ngati Porou have their own tikanga which has been violated by the Crown and which prior to these violations provided the ethical basis for maintaining a healthy and vibrant society with its own codes of conduct and mechanisms for maintaining just and fair relationships.

Rangatahi Whanau

Hapu

Ngati Porou Offending

3. Project Principles & Priorities

Vision
Kaiti is a place known for the ways it nurtures children and young people, where healthy, caring relationships across generations are the norm and informed by nga tikanga tukuiho.

Goal
To provide a strategic framework for building a safe, caring community and preventing criminal offending by young people aged 1416 years who reside in Kaiti.2

Foundation Principle
Mana Motuhake Ngati Porou Nga Uri Whakatipu Ngati Porou SelfDetermining for the Future

OverArching Principles
cultural relevance and revitalization economic growth and prosperity environmental sustainability social responsiveness and responsibility

Strategic Approach & Assumptions

The Strategy should: have wide support from Kaiti whanau including rangatahi, iwi leaders, marae committees, hapu entities, youth justice experts, statutory agencies and nongovernmental organisations; be informed by but also recognise the limitations of existing empirical evidence about what works to prevent offending and reoffending amongst Mori young people; be overseen by a small group of key stakeholders who will ensure the Strategy is implemented completely and reviewed regularly to respond to perpetual change in the sociocultural context and political economy within which it exists and needs to remain relevant to; maximise existing resource already in the rohe of Ngati Porou and new resource coming into the region that could be organised in ways that better achieve the goals of the Strategy while remaining aligned with whatever other purposes those resources exist for; be implemented by a range of organisations who share a commitment to realising the common vision and an agreed way of working toward that vision; acknowledge that restorative approaches are more effective and cost less than retributive justice and that positive development and preventive approaches are better than intervention or rehabilitation; and at present all are necessary and all require significant commitments.

This target population is based on the agreement between TRONP and Ministry of Justice as the primary funder of the Strategy.

Priorities
Supporting whanau, marae, neighbourhoods/villages and hapu to establish and sustain healthy relationships with all of their members including mokopuna, tamariki and rangatahi. 2. Coordinating existing resources to ensure opportunities for positive change are maximised through efficient, effective and cooperative services. 3. Identifying gaps in local services, securing resources to meet the need and monitoring the effectiveness and further development priorities. 4. Ensuring volunteers and paid workers are skilled, confident and collaborative in their approaches to empowering young people, whanau and whole communities. 1.

Strategy Stakeholders
The Strategy has been developed by Te Runanga o Ngati Porou in consultation with key community stakeholders including statutory agencies, rangatahi, Kaiti residents, youth workers, academics and iwi leaders. While the strategy has a focus on a particular population within Kaiti, the issues contributing to offending behaviour and preventing offending are much broader. Some key themes emerged from discussions with these stakeholders including: a focus on prevention and early intervention with young children and their whanau the importance of taking a whole whanau approach the potential of marae, hapu and iwi to provide care and restoration of relationships the centrality of whakapapa and whenua in Mori identity the need to provide whanau and caregivers with consistent support and skills training the need to focus on providing stronger, more positive alternatives to gangs the importance of encouraging and sustaining positive change in the culture and processes of statutory agencies such as schools, Police and CYF the importance of addressing underlying emotional, cultural, physical, economic and social needs rather than just focusing on behaviour the absolute need for collaborative approaches to address these issues the value of neighbourhoodbased approaches and mobilising volunteers as well as paid professionals to support the goals of any Strategy the importance of effective evidencebased strategies coupled with the opportunity to develop innovative approaches tailored to the particular features of the people and places available to support efforts to address the issues identified Historical events and processes can be attributed with much responsibility for the disproportionate representation of Mori young people in crime statistics however the contemporary economic, cultural and political environment, the values, priorities and behaviour of their whanau, school teachers, peers and other people that these young people grow up with as well as their own personal character, sense of belonging and skill level across a range of interpersonal competencies all contribute to increasing or reducing the likelihood that they will not commit crime. A strategic plan to address these diverse issues therefore requires a broad approach that focuses on increasing protective factors and reducing the power of influences linked to causing offending.

4. Contextual Considerations
The social, cultural, political and economic contexts within which rangatahi are living has a huge influence on their thinking and behaviour. While research into resiliency is demonstrating that the environmental context has different levels of influence on different people, each of the following factors are likely to influence implementation of any plans to address youth offending in Kaiti. Whanau Capacity Not all, but a large number of whanau in Kaiti, particularly the areas known as Kaiti South and Outer Kaiti, have low incomes, ad hoc and low paid employment options, leave school earlier than others, have children young and have higher rates of family violence and are more likely to be victims of crime. Many parents and grandparents have experienced significant emotional and/or physical trauma during their childhood, adolescence and adulthood. Many caregivers have a limited range of strategies and support mechanisms to assist them in the important task of raising children and subsequently their capacity to provide a safe, nurturing environment for children can be lower than others. While some parents and whanau members can do a great job of raising children in difficult circumstances, for others the stresses and challenges of daily survival means that things like close supervision of where their children are, who they spend time with, ensuring children attend school and are part of prosocial peer groups can be lower priorities than other issues. Hapu Capacity Nga Hapu o Ngati Porou are similarly at different levels of development and health. Positive progress has been made amongst many hapu and clusters of hapu over the past two years as they look at opportunities for organising themselves into coherent entities able to manage the affairs and protect the taonga of the hapu. In an ideal world hapu would be strong, healthy places capable of nurturing all their members and others while some may be able to do this now, others will need more time before they are ready to take collective responsibility for the healthy and wellbeing of rangatahi and whanau with high and complex needs. As the TRONP Strategic Plan acknowledges:
Capacity and capability are impacted on by good health, adequate housing, and steady employment. This strategy aims to realise the aspirations of Nga Hapu o Ngati Porou to resolve past inequities and ensure a brighter future for themselves and their descendants.

It is anticipated that within 23 years at least two or three hapu within Ngati Porou will be in a strong enough position to take on the kind of intensive and specialised work that this Youth Offending Prevention Strategy suggests is essential to adequately meet existing needs. Fragmented Service Provision & Regional Strategic Planning for The TRONP Strategic Plan makes a commitment to supporting:
hapu to establish viable, legal, governance entities capable of leading and governing initiatives that are potentially economically transforming, culturally reaffirming, and which lift the life quality and sociocultural status of whanau and hapu members. The projects under this strategy include those Government contracts that provide positive social services to hapu and whanau.

Most Hapu Social Service Committees around the Coast have not got as far as Waipiro Bay Te Puia Spring Social Services Charitable Trust in establishing 9

Youth Services

themselves as formal service providers. Ngati Porou Hauora is a separate provider of whanau oranga services in Kaiti and on the Coast and a number of other non governmental and statutory agencies deliver social services directly within the rohe. A strategic plan for social service provision and hapu development within the rohe is yet to be developed and will be influenced by the organisational structures emerging from any Treaty of Waitangi settlements. In 20032004 the two Runanga in partnership with Tairawhiti Youth Workers Collective and Gisborne District Council undertook a collaborative regional planning process to produce the Tairawhiti Youth Development Strategy (TYDS). This was accepted by GDC and then not implemented. Recently the GDC has agreed to review the TYDS and seems more serious about a regional plan for youth development. However it may be sometime before the review is started let alone completed and subsequent plans implemented. Similarly Tairawhiti District Health produced the Tairawhiti Youth Health Services Plan 20082011 just before a new government came in and cut planned services to improve health outcomes for youth, particularly rangatahi Maori. The learning from these processes is that any planning for youth is at risk from changes in political priorities, needs strong local and central government support and should have multiyear funding agreements established from the start.

Treaty Settlements

Unprecedented capital should soon be returned to Nga Hapu o Ngati Porou as a result of the settlement of historic Treaty of Waitangi claims. A range of scenarios are currently being put forward about what impact this would have on the rohe, what structural option or options are best for which members of Ngati Porou, when various change options might happen, what level of resource would be invested into addressing social issues within the rohe and how this would work with ongoing Government responsibilities for provision of services.
The future of the Runanga will be impacted on by the settlement package reached with the Crown in respect of historic Treaty of Waitangi claims... The Runanga should not assume that it will morph into the new PGSE although that is a possibility. Whatever PGSE structure we end up with there must be improved accountability back to our constituents.

An implication for this Strategy of the uncertainty around the postsettlement environment is that if the Strategy relies on TRONP delivering all or some of the services included in the Strategy there is a risk of disruption to service continuity if TRONP is abandoned through the settlement process. Cultural Identities Strategy 2 in the TRONP Strategic Plan is:
Mana Tuku Iho Ngati Poroutanga Culturally Strong. Ngati Porou are practising, preserving, maintaining and promoting the ancestral heritage of Ngati Porou including te reo ake o Ngati Porou me ona tikanga.

While Ngati Porou have some of the highest levels of native speakers compared with other iwi there are also many more whanau who do not have Te Reo o Ngati Porou and only limited, if any, awareness of Tikanga o Ngati Porou or connection to their marae. Assuming that an intervention that connects rangatahi with their marae and whakapapa will be welcome is idealistic but simply means such 10

processes need to be managed carefully at a pace appropriate to the people involved. Ngati Porou Natural Resources & Business Units Ngati Porou have some of the largest areas of whenua still in Mori ownership and some of the longest coastlines compared with other iwi. These natural resources are often discussed in terms of their economic potential and cultural significance in the context of this Strategy they also have enormous potential as resources to help rangatahi and whanau develop matauranga, maramatanga and pukengatanga connected with the whenua and moana. Similarly Ngati Porou owned businesses could be supported through this Strategy to create spaces for rangatahi to develop work skills through work without a negatively impacting on the business operations and bottom lines. An assumption that this Strategy is based on is that TRONP is comfortable with the provisions and requirements of the Child, Young Persons and Their Families Act 1989 and subsequent amendments. In relation to Youth Justice, Section 4 of the Act states the purpose of the Act is:
to promote the wellbeing of children, young persons, and their families and family groups

Legislative & Policy Context

paragraph (f) of Section 4 requires that:

where children or young people commit offences, (i) they are held accountable, and encouraged to accept responsibility, for their behaviour; and (ii) they are dealt with in a way that acknowledges their needs and that will give them the opportunity to develop in responsible, beneficial, and socially acceptable ways.

Recent amendments proposed to this legislation would, amongst other changes, allow younger (12 and 13 year old) children to be subject to Youth Court, extend the duration under which Youth Court orders can be enforced and include a range of new orders for parenting, mentoring and supervision with residence in military style training facilities. Significant controversy surrounds all three of these changes and the Bill has been strongly challenged by experts in youth offending prevention research and service provision. TRONP has indicated through the development of this Strategy a commitment to working with the statutory authorities including the Youth Court, NZ Police and Child, Youth & Family as well as other organisations funded through Government to provide services to the target group. Government policy is continually evolving and any medium to longterm Strategy needs to be flexible enough to respond to these changes either by accepting or challenging changes based on the alignment of Government policy with the perspectives, priorities and plans of the iwi and interested hapu. Alternative education policy is being reviewed in 2010 and potentially plays a key role in the Strategy. Correspondence School and youth health services for atrisk young people are also key services that are subject to ongoing political review. The Strategy evaluation and research components should be disseminated widely and be used strategically to inform local and national government and non government policy and practice. 11

5. Population Profile & Summary of Evidence

Profile of rangatahi and offending in Kaiti
Kaiti Demographic Profile Over 40% of children in Kaiti are being raised in singleparent households and over 40% of adults in Kaiti have no formal qualifications $18,300 was the average income in 2006 and Kaiti has more people earning less than regional and national averages Kaiti is in the bottom 10% of communities across the country in terms of deprivation/privilege levels Over one third of the whole population of Kaiti identify themselves as Ngati Porou and more than half the Mori population are Ngati Porou There are around 700 young people aged 1416 years living in Kaiti Gisborne Demographic Profile Around 50% of the population in Gisborne identify as Mori Gisborne has the highest rate of truancy in the country Gisborne has one of the highest proportions of young people under 25 years Only 25% of Gisborne school leavers have NCEA Level 3 or above, nearly 10% lower than the national average A higher proportion of Gisborne young people work in agriculture, fishing, forestry and manufacturing than the national average Gisborne has one of the highest levels of residents competent in Te Reo Gisborne Youth Justice Profile Each year CYF deal with about 150 young people from Gisborne who have committed an offence Approximately two thirds of these cases go to Youth Court Around 50 young people from Kaiti appear before the Youth Court each year, thats at least one out of every 10 Ngati Porou rangatahi living in Kaiti Kaiti accounts for over 50% of Youth Court clients in Gisborne but only has 30% of the young people aged 1416 years living in Gisborne The vast majority of cases dealt with by Police for 1416 year olds in Gisborne are for dishonesty offences (theft and fraud), drugs and violence related offences are the next most common followed by offences involving damage to property and a very small number of sexual offences and administrative (not turning up to Court or breaching curfew). Based on 2001 estimates from PriceWaterhouseCoopers, each year offences committed by young people in Gisborne cost around $200,000 in Police expenses for violencerelated crime, $616,000 for dishonesty offences and $650,000 for drug and antisocial offences, in addition to Police costs there are court and sentencing costs totaling over $1 million per year just for Gisborne young people. These estimates exclude the costs of CYF involvement and the much higher external costs including health care for victims, tax lost, productivity losses and nonfinancial costs associated with crime such as emotional trauma, relationship breakdown and social isolation.

12

What works to prevent Mori youth offending

What Works For Mori Research shows that what works for other young people can also work for rangatahi Mori and their whanau. In addition, adding in cultural content and strengthening whakapapa connections makes intervention with Mori even more effective. The following success factors were identified from the literature on Mori youth offending in a recent Ministry of Justice report: 3 one size does not fit all young Mori have some special risk factors, but being Mori is not one of them when the cultural needs of young Mori are met the impact on reducing crime is greater rangatahi Mori and their whanau want the best of both worlds from programmes knowing the cultural context and confidence of rangatahi and their whanau is important for programme staff to be aware of cultural assessment processes are the best way to determine the cultural comfort zone and cultural needs of rangatahi and their whanau Iwi/Mori experts and cognitive behavioural specialists can compliment each others approaches as part of comprehensive programmes.

The Youth Offending Services Effectiveness Checklist (YOSEC)4 developed by Kaye McLaren over the past 10 years and recently released by the Ministry of Justice5 provides the best guide available to compare programme design with the body of available evidence on effective interventions designed to prevent youth offending. What Doesn't Work or Has Limited Success New research shows that nonresidential programmes are twice as effective as residential programmes: reduction in reoffending of 17% for residential programmes, 35% for nonresidential. Both work, but nonresidential programmes work twice as well as livein programmes. The reasons for this are probably: less antisocial peer influence; new learning is not cued by old environment; stress of return to community knocks out new habits established in residence. Just cultural knowledge and contact alone does not seem to reduce crime through only a few studies exist on this theme. Effective programme PLUS cultural approach increased impact on sex offending by Mori by 50% one study only so far. This approach was also effective for nonMori. Restorative Justice approaches seem to reduce offending by a modest 7% and is less effective in preventing reoffending of serious offences (1%). Factors contributing to greater success include: [1] Provide more hours of services (10%); [2] Target factors known to be causally linked to crime (19%); [3] Use cognitive behavioural techniques (23%).

Ministry of Justice. Maaramatanga: Understanding what works to reduce offending by young Mori. Unpublished broadsheet, Wellington, Ministry of Justice, 2008. Appendix (C) www.justice.govt.nz/publications/globalpublications/y/youthoffendingserviceseffectivenesschecklistyosec

13

A wide body of evidence has demonstrated that boot camps based on physical coercion, harsh punishment and shame tactics are ineffective and can increase the likelihood of further offending. 6 Putting young people with different needs and levels of risk together in a programme increases the risk of reoffending for the lower risk participants. The preferable option is to place young people at risk of offending within groups of prosocial peers where the dominant culture builds protective factors against offending.

What We Still Don't Know There is very little research available on the role of marae and hapu in preventing offending rangatahi Mori certainly none of the programmes provided in Te Tairawhiti have had empirically based independent evaluations conducted on their effectiveness. Hardly anything known about risk and needs for different ethnic groups. We know almost nothing about culturerelated risks and needs in particular. Most empirically valid research available has been undertaken with programmes involving young males rather than females and there is still only a small number of studies that have looked at the role of cultural identity development in programmes designed to prevent offending. Programmes are easier to provide and evaluate than neighbourhoodbased initiatives and very few studies have identified the impact of working at a community/neighbourhood level rather than directly with young offenders and their families. The Strong Communities7 initiative from South Carolina has provided a valuable example of the potential that high deprivation neighbourhoods and disconnected communities have to work together to solve their own social issues, in their case child abuse and neglect, but the principles are easily transferrable. Working with gangs to change the culture, minimise harm caused and/or the recruitment strategies they employ is controversial and both ethically and politically risky. This means that there is only a few studies on alternatives to gang suppression or avoidance strategies.

Toward a Continuum of Graduated Interventions The model on the following page provides a conceptual example of a series of interventions that are graduated to provide more intrusive interventions for rangatahi and whanau with higher levels of need and less protective factors to prevent offending. There are fewer whanau at the high risk end of the continuum (those with less support, resources and skills to prevent offending) and more at the lower end (those who have more support, resources and skills). The components of this Strategy are based on this approach of allocating resource across the spectrum so that populationwide and community focused initiatives with a strong preventative function are included as key parts of the Strategy along with the more expected interventions such as residential programmes, mentoring and skills training for whanau and rangatahi who have committed serious offences on a regular basis. If the preventative measures do not receive enough attention and resources there is a risk that the frequency and severity of youth offending will increase or at least be maintained at current levels.
6

Wilson, D. B., MacKenzie, D. L, & Mitchell, F. N. (2005). Effects of Correctional Boot Camps on Offending. A Campbell Collaboration systematic review, available at: http://www.aic.gov.au/campbellcj/reviews/titles.html 7 Appendix (D)

14

15

6. Strategic Development Plan

Strategy Components
This Strategy plans a series of developments over five years beginning with three projects focused on capacitybuilding, collaboration and early intervention within the youth services sector. The second year builds on the foundation components by establishing a range of prosocial skills group training programmes and a number of community and hapu development initiatives. The third year includes the development of services designed for persistent young offenders and their whanau including longterm case management, farm cadetships, day programmes and wananga. Year four and five plan for the establishment of mediumterm intensive residential and wildernessbased services.

16

Development Plan Overview

This table summarises key aspects of the Strategy and timeframes for implementation of the various components of an integrated continuum of prevention and intervention.

Investment projections are based on a progressive implementation of increasingly intrusive interventions and anticipate an eventual decline in resources as preventative measures stem the tide of new referrals to higher levels. An independent CostBenefit analysis should be undertaken early in the Strategy planning.

17

The continuum of initiatives identified above includes many services that are already being funded and could be realigned to include positive development and offending prevention goals, activities and outcomes. The Strategy has a five year timeframe and plans an increasing investment over this period to a peak of $1.7million in new funding by 2015. However a similar rate of decrease in investment should follow within the subsequent decade as the preventative components of the Strategy reduce the need for the more intrusive and costly interventions. Tentative estimates are included in the table in the next section and annual budget implications are as follows:
YEAR COMPONENT SETUP NEW 1 Strategic Advisory Group & Project Development Coordinator Service Alignment Process Workforce Development & Collaboration Initiative Healthy marae and hapu exist to connect rangatahi with Support for existing youth organisations to more purposefully engage at risk youth in prosocial activities Parenting Support Initiative & Parenting Skills Programmes Early identification & referral to support Key mentoring relationships individual, small group and large groups Gang Research Project & Prevention/Intervention Initiative Early identification & referral to support (Family Start) Ensuring no child is left behind 30,000 10,000 5,000 5,000 5,000 ONGOING INVESTMENT NEW 80,000 0 3,000 70,000 50,000 EXISTING 0 0 2,000 0 0

5,000 0 5,000 5,000 0 5,000 75,000

50,000 20,000 100,000 30,000 0 30,000 433,000 100,000 0 0 90,000 190,000 30,000 100,000 130,000 300,000 600,000

50,000 70,000 50,000 0 250,000 0 422,000 100,000 50,000 450,000 0 600,000 20,000 100,000 120,000 0 0

Assessment, Planning & Monitoring Support Service ProSocial Skills Training & Civics Programme Therapeutic & Developmental Day Programmes Residential Wananga

5,000 5,000 10,000 10,000 30,000

Community Development Residential Productive Skills Training Programme

5,000 10,000 15,000

4 5

Residential Detox Programme Residential Therapeutic Community (36month) + Reintegration Support + Whanau Therapy + Marae/Hapu Adoption + Community Development TOTAL SERVICE DEVELOPMENT & DELIVERY Research & Evaluation (5%)

10,000 50,000

180,000 9,000

1,653,000

1,142,000

139,750

18

Component Cost Estimates & Likely Investors

Investor Key: Ministry of Justice (MoJ); Philanthropic Organisations (PO); MSD Family & Community Services (FACS); Department of Internal Affairs (DIA); Te Puni Kokiri (TPK); Te Runanga o Ngati Porou (TRONP); Te Runanga o TuranganuiaKiwa (TROTAK); MSD Child, Youth & Family (CYF); Ministry of Education (MOE); Tertiary Education Commission (TEC); Industry Training Organisations (ITO); Ministry of Health (MOH).

YEAR 1

COMPONENT Establishment of Strategic Advisory Group, Project Development Coordinator & Evaluation Framework

PRIMARY PURPOSE Intersectoral governance group including local stakeholders and independent experts to oversee Strategy implementation and action research process. Ensures broad community support for Strategy and collaborative approach to supporting positive youth development and addressing youth offending rather one organisation being responsible for the whole Strategy.

SETUP 30,000

ONGOING 80,000

KEY STAKEHOLDERS TRONP, KK, academics/researchers, local/national policy advisors, youth court judges, Gisborne YJ Manager (CYF), etc.

INVESTORS MoJ, PO

Research & Evaluation Framework

ActionResearch iterative approach based on cycle of reflection, planning, action, reflection. Learning from others and our own experience documenting learning and making changes based on learning.

9,000

139,750

Researchers, Academics

MoJ, MSD, Universities

Service Alignment Process

Ensuring all stakeholders understand how they can contribute to strategic goal of reducing youth offending Ensuring all staff and volunteers of stakeholder organisations are skilled and competent in their areas of responsibility Healthy marae and hapu exist to connect rangatahi with Support for existing youth organisations to more purposefully engage atrisk youth in prosocial activities Parenting Support Initiative & Parenting Skills Programmes Wairuatanga Te Kotahitanga Professional Development & School Change Programme

10,000

All Service Providers

FACS

Workforce Development & Collaboration Initiative

5,000

5,000

All Service Providers

DIA, TPK, MoJ

Youth / Whanau / Marae/ Hapu Development creating communities that care about rangatahi and are committed to their healthy development

5,000

70,000

Nga Marae me Nga Hapu (x2) TRONP Youth Coordinators, Sports Clubs, Te Ora Hou, Churches, etc. TRONP Social Services

TPK, TRONP

5,000

50,000

MoJ

5,000

100,000

FACS/CYF

Churches & Whanau High Schools

Churches MOE

Comprehensive Prevention &

Early identification & referral to

90,000

TRONP Social Workers

FACS, MOE,

19

Early Intervention System

support Key mentoring relationships individual, small group and large groups 5,000 150,000

in Schools Youth Workers in Schools & Communities (3 x $40k + expenses) Volunteer Recruitment Campaign, Training, Supervision & Support

MoJ MOE, FACS, TROTAK

Gang Research Project & Prevention/Intervention Initiative

5,000

30,000

Gangs, Community Workers, Youth Workers Tuhono Whanau

MoJ, TPK

Early identification & referral to support Ensuring no child is left behind

250,000

FACS

5,000

30,000

Rangatahi Tracking Process Te Ora Hou, Gisborne Youth Transition Service, Lay Advocates

FACS, MoJ

Assessment, Planning & Monitoring Support Service (20hrs/wk x $50/hr x 40wks x 2 assessors + 20hrs/wk x $25/hr x 5 Lay Advocates/Mentors x 40wks) ProSocial Skills Training & Civics Programme (10hrs/wk x $50/hr x 40wks x 2 facilitators + space)

Accurate assessment, planning priority interventions and support, implementing plans and reviewing progress regularly

5,000

200,000

FACS, MOE, MoJ

Rangatahi have opportunity to learn, practice and transfer pro social skills and make a positive contribution to community based on adaption of resources such as Arnold Goldsteins Prepare 8 Curriculum. Rangatahi have access to daytime programmes that teach life skills, provide work experience and community contributions, healthy identity formation, address cognitive distortions and develop other essential attributes. Whakapapa Protection & Reconnection, Ignite commuitment to Te Reo & Intergenerational Learning Creating a community and neighbourhood environment that creates positive opportunities for young people Provide sustained, focused opportunities for young people to

5,000

50,000

Te Ora Hou Te Tairawhiti

MoJ, CYF

Therapeutic & Developmental Day Programmes (3 progs x 10pp) including Art Therapy, Music Therapy & Adventure Therapy, Cognitive Behavioural Therapy Residential Wananga (x10pa + coordinator)

10,000

450,000

Specialist Youth Service Corps, Conservation Corps, Ka Timata, etc.

MoJ, CYF, MOE

10,000

90,000

Nga Marae me Nga Hapu

CYF, MoJ

Community Development

5,000

50,000

Ka Pai Kaiti, TRONP, GDC

DIA, FACS, TPK, PO

Residential Productive Skills

10,000

200,000

Turanga Ararau, Tairawhiti Polytechnic,

TEC / ITO /

Goldstein, Arnold P. The Prepare Curriculum, Teaching Prosocial Competencies, Research Press, 1988

20

Training Programme

develop work experience and skills that employers require Remove chemical dependence and restore healthy mind, body and soul Rehabilitation and restoration of relationships for young person, whanau, hapu and community 10,000 300,000

Henwood Trust

MOE

Residential Detox Programme

Odyssey House, Henwood Trust

MOH, MoJ, CYF

Residential Therapeutic Community (36month) + Reintegration Support + Whanau Therapy + Marae/Hapu Adoption + Community Development

20,000

600,000

Te Hurihanga, Youth Horizons Trust, Henwood Trust

MoJ, CYF

178,000

3,484,000

21

Capability & Capacity Development Priorities

Development activities over the next two years are identified in the table below.
COMPONENT Establishment of Strategic Advisory Group & Project Development Coordinator PRIORITY ACTIONS 20102011 Establish a Terms of Reference (including Strategy development governance, policy advice arising from learnings, reporting mechanisms, etc.) for a Strategic Advisory Group and appoint members comprised of three groups: (1) statutory agencies; (2) nongovernmental service providers including iwi/hapu social services; and (3) independent experts including researchers, pakeke and judiciary. Appoint a parttime Project Development Coordinator to oversee the first 23 years of the project development. This person should be familiar with the youth justice sector, recent research on what works and be able to work with the wide range of stakeholders involved. Project Evaluation and Research Framework Identify and collate baseline data across the range of populationbased indicators to be monitored (refer to Process and Outcomes components including associated studies in Monitoring & Evaluation section). Identify appropriate assessment and planning tools for rangatahi, whanau, programmes and community development initiatives connected to the Strategy. Provide training in how to use these tools for relevant stakeholders and develop information sharing protocols and agreements. Secure resource of 10% of total budget to commission independent and internal research and evaluative activities for the Strategy. Commission CostBenefit Analysis for Strategy components similar to PriceWaterhouseCoopers 2001 CostBenefit Analysis for Proposed Recidivist Youth Offender Programme study for Ministry of Justice. Project plan accepted by key stakeholders and in principle by potential funders. Service Alignment Process Project Development Coordinator works with all interested funders (including senior officials in MoJ, MSD & TPK) to build understanding of how they are currently and can increasingly work with others to the goal of reducing youth offending. Project Development Coordinator works with all interested stakeholders (including Ngati Porou businesses and social services) to build understanding of how they can work with others to the goal of reducing youth offending. Project Development Coordinator works with all interested stakeholders on a collaborative workforce development plan focused on knowledge and skills directly related to preventing offending (e.g. Cognitive Behavioural Training; risk/needs/strengths assessment tools; adventure therapy; gang prevention strategies; sustaining effective mentoring relationships; etc.). A separate professional development initiative with frontline Police (similar to the Te Kotahitanga programme to improve Mori students achievement in schools) focused on positive youth development, youth rights and community relationships could be helpful but it would need to be based on substantial research and may be a policy recommendation via the Strategic Advisory Group to the local Commander and Minister of Police. Youth / Whanau / Marae/ Hapu Development creating communities that care about rangatahi and are committed to their healthy development Encourage marae and hapu to include youth development and whanau reconnection commitments in their development plans. Provide marae and hapu with practical ideas and existing examples of how they can contribute to youth offending prevention. Work with sports clubs, kapahaka, church youth groups and other organisations to identify their current capacity for including one or two rangatahi atrisk of offending in their activities. Distribute Tips for Parents information pamphlet to all parents and caregivers of children and

Workforce Development & Collaboration Initiative

22

rangatahi in Kaiti. These highlight the four most important things caregivers can do to keep their children out of trouble with the law. Design and facilitate evenings hosted by service providers for parents and caregivers that explain the four most important things they can and information on where they can get help with their teenagers, etc. Establish an ongoing series of parenting programmes for parents of young people atrisk of offending. Explore with Te Pihopatanga o Aotearoa and leaders of other faith communities to look at how they are engaging with whanau and contributing to the spiritual health of the community. Comprehensive Prevention & Early Intervention System Establish a crosssector group of professionals and volunteer youth workers to develop an early identification & referral to support process (e.g. when whanau leave Family Start they transition with the involvement of other support systems, when primary school students regularly exhibit problem behaviour they are connected with a volunteer mentor, etc.). Roll out a local mentor recruitment campaign (Light One Life DVD) within large employers, sports clubs and service groups, etc. Provide induction, training and supervision for volunteer mentors connected to an organisation matched with their interests and values. Assessment, Planning & Monitoring Support Service ProSocial Skills Training & Civics Programme Establish a crosssector group of professionals to develop accurate assessment, plan priority interventions and support, implement plans and review progress regularly. Train and employ 23 youth workers who can facilitate a broad range of high quality prosocial skills training and civics programme adapted from a resource like Arnold Goldsteins Prepare Curriculum. Establish referral and followup system for these programmes. Day Programmes Document current goals, activities and outcomes from existing day programmes including Ka Timata (Te Ora Hou), Specialist Youth Service Corps (Turanga Ararau), Matapuna Alternative Education Programme, Tautoko Alternative Education Programme. Administer the Youth Offending Services Effectiveness Checklist with the programmes interested in becoming more effective at preventing offending amongst participants. Identify additional programme components that would increase the effectiveness of programmes and organise for these changes to be made. Residential Wananga Work with maraebased facilitators (particularly pakeke) to host whakapapa, Te Reo me ona Tikanga wananga for whanau and rangatahi interested in learning more about their whakapapa with a particular emphasis on and rangatahi atrisk of offending and their whanau but open to anyone. Based on the Strong Communities initiative and similar communitybuilding9 processes, work with residents to strengthen neighbourhood social cohesion and support for young people. Work with interested stakeholders including Ngati Porou businesses, ITOs, training providers, farmers, MSD and others to provide a range of opportunities for young people to develop work experience and skills in a real work environment.

Community Development

Residential Productive Skills Training Programme

Appendix (E)

23

Monitoring & Evaluation

The Strategy evaluation has process and outcome components, each consisting of several related studies. The findings from all of the studies taken together form a picture of the overall impact of the initiative for the rangatahi, whanau and neighborhoods involved with the initiatives in the Strategy. Baseline data for the quantitative measures on recidivism and statutory activities will be established in partnership with the relevant agencies over the first year. An action research model will be undertaken so that the initial format of each component will be evaluates as it progresses against some key benchmarks and ongoing changes will be made where this seems appropriate.10 The two components and their studies are:
Component Process Evaluation Study Volunteer Study Brief Description Monitoring the levels of, motivation for and reflections of involvement by local volunteers in youth development programmes, youth mentoring, whanau support, neighbourhood cohesion and offending prevention initiatives. Monitoring records of meetings, decisions, planning and review documentation. Periodic survey and interviews with paid and volunteer staff from participating organisations. Periodic survey and interviews to assess and monitor child and youth perceptions and activities. Monitoring service reporting data, financial records and human resource inputs. Resident feedback on a wide range of household information and neighbourhood issues. Comparative study over time series of offending patterns between Kaiti young people and others. Periodic survey and interviews to assess and monitor school staff and whanau perceptions, capacities and activities. Periodic monitoring of particular areas for a range of indicators. Reoffending rate Increase in rangatahi health, skill levels and development indicators Transition to employment, vocational training and education Transition to a safe living arrangement

Strategy Development Archives Study Organisational Involvement Study Child and Rangatahi Study Strategy Administrative Data Outcome Evaluation Neighborhood Survey Gisborne Youth Offending Study11 School and Whanau Study Neighborhood Observation Study Participant Outcomes Study (adapted from CYF Residential Services Monitoring Framework)

A similar approach was taken in the early days of Kohanga Reo. The Play Centre approach was used as an initial model but it rapidly evolved into something that expressed a Tikanga Maori and ways to achieve different goals to those of Play Centre.
11

10

Appendix (F)

24

Quality Assurance
The Strategic Advisory Group established with representatives from partner organisations will be guided by a Terms of Reference that determines their and role to oversee the implementation of the Strategy. An Independent Experts Group will be comprised of 48 people with a mix of expertise including: Ngati Poroutanga and whakapapa; youth, whanau and community development; youth offending prevention and government legislation; therapy and rehabilitation; research and evaluation. This group will ask questions of and provide advice to the Strategic Advisory Group. A range of other mechanisms will be put in place to ensure any initiative connected with the Strategy is aligned with the most robust evidence of what works for example YOSEC and the SCOPE process developed by the National Youth Workers Network Aotearoa and Wayne Francis Charitable Trust. A critical component of this Strategy is the centrality of cultural integrity and unique context within which it is located. To these ends it is important that Ngati Porou tribal experts act as advisors through the Strategy implementation to ensure that a Ngati Porou distinctiveness in all aspects of the Strategy is maintained. Some examples: Ngati Porou Cultural References Te whakatauki o Te Kani a Takirau: E hara tenei i te maunga nekeneke. The invasion by the Nga Oho of KawakwamaiTawhiti and the subsequent murder of Tamateaarahi and the sacking of his pa. This incident left Tamateaupoko his daughter in a sate of crisis. In order for her to survive she need to retreat to a place of refuge. She found this amongst her Ngai Tuere relatives in Whangara mai Tawhiti. It was Tamateaupoko's' knowlegde of her whakapapa and the quality of the relationships that exisited between her and her kinsmen that provided her with options in her time of crisis and need. When her family unit had broken down and her mana had been affected, it was her own people that responded by taking her in and her caring for her until she came to a place of restored mana. The Ngati Tuere of Whangara had the capacity to care for one of their displaced relatives. Tamateaupoko's ability to instill in her children the capacity and vision to repatriate her fathers lands required intergenerational vision and commitment. She recognised that if her lands and the mana of her people were to be restored that a strategic investment into the next generation is critical. Relevant Principles It is the responsibility of Ngati Porou first and foremost is to care for our own. In order to protect our whakapapa and heal ourselves we need places to retreat to for restoration. Knowledge of our whakapapa and the quality of our relationships within and between whanau, hapu and iwi can provide options at times of crisis. Extended whanau have a role in responding to the needs of even distant relatives. Healthy whanau and hapu need to develop and maintain the capacity to care for displaced relatives. We need intergenerational vision and commitments.

25

Risk Mitigation
Risk Hapu lacking capacity to take on active and sustained roles in the Strategy. Likelihood Low Impact Level High Mitigation Strategies Hapu cluster development processes currently underway. Developing/administering a hapu capacity assessment tool to identify strengths and areas for development in relation to the responsibilities envisioned in this Strategy. Selecting 23 hapu who are interested in taking on responsibilities aligned with this Strategy and supporting them to do so. Existing nongovernmental services being unwilling to cooperate for Strategy outcomes. Medium High Funders requiring providers to demonstrate commitment to collaboration as a perquisite for future funding. Meetings to clarify why particular services are unwilling to cooperate for Strategy outcomes and, if required, recommend changes to address concerns Medium Medium Cabinet requiring agencies to demonstrate commitment to collaboration Meetings to clarify why particular agencies are unwilling to cooperate for Strategy outcomes and, if required, recommend changes to address concerns Low High Identify external funding sources (government, private and philanthropic) to resource Strategy Implement aspects of Strategy that utilise existing resources and/or volunteer/inkind contributions Low High Work with hapu interested in contributing to Strategy processes and outcomes

Statutory agencies being unwilling to cooperate for Strategy outcomes.

Treaty Settlement process stalling and iwi/hapu ability to invest in Strategy being limited or nonexistent. Treaty Settlement process resulting in disunity across Ngati Porou and limited iwi/hapu interest in cooperation for Strategy outcomes. Ngati Porou business units being unwilling to take on support roles for Strategy outcomes.

Medium

Low

Identify concerns (e.g. safety, productivity, etc.) of business units and apply resources to address those concerns Add social outcomes to key performance indicators of business unit managers 26

Legislative and public policy context preventing public investment in Strategy priorities

Low

High

Establish comprehensive evidencegathering mechanisms to demonstrate effectiveness of approaches Ensure Strategy learning processes are applied to improve Strategy approaches and used to inform policy advisors and decisionmakers Establish bipartisan support for the Strategy through endorsements from both major political parties

New funding being unavailable to resource all of the required Strategy components

High

High

Seek and secure cabinet approval for Strategy Negotiate funding agreements based on incremental increases subject to successful implementation of previous stage Demonstrate value of longterm approach through empirical evidence that suggests shortterm, siloed approaches. Secure broad local approach from practitioners and funding agency representatives for the Strategy and use this local cooperate to demonstrate high confidence to central government, businesses and philanthropic funders

New evidence emerging on what works and Strategy not having access or ability to respond to new knowledge

Low

Medium

Establish key relationships with academics and policy makers to keep up with new research and emerging evidence of effective approaches Dedicate resource within Strategy management group to accessing, reflecting on and recommending changes from emerging evidence. The Strategy evaluation and research components should be well designed, implemented thoroughly and findings disseminated widely and used to inform local and national government and non government policy and practice.

27

APPENDIX (A): Kaiti Demographic Profile

KAITI NEIGHBOURHOODS FOCUS FOR STRATEGY

GISBORNE DEPRIVATION & PRIVILEGE PROFILE 2006

28

Source: Ministry of Health

Census Profile 2006 KAITI AVERAGE NZ AVERAGE

Source: Statistics NZ

AGE 0 14 32.6% 21.5% 14 64 59.8% 66.2% 65+ 7.7% 12.3% EUROPEAN 39.6% 67.6% M ORI 71.7% 14.3%

ETHNICITY PACIFIC 6.7% 6.9% ASIAN 3.0% 9.2% OTHER 3.0% 11.2%

Annual Income Distribution

>$50k $30-50k Tamarau $20-30k Kaiti South Outer Kaiti $10-20k $5-10k <$5k 0 10 20 30 40 Gisborne Region Total NZ

Proportion of Population

Ngati Porou population in Kaiti (2006 Census)

Ngati Porou Kaiti North Outer Kaiti Kaiti South Tamarau Total NZ Kaiti Total
Source: Statistics NZ

Number 261 1,110 978 1,056 61,698 3,405

% 0.4 1.8 1.6 1.7 100 5.5

29

Kaiti Iwi Affiliations (2006 Census)

4000 3500 3000 2500 2000 1500 1000 500 0
Tu ho W ha e W ka ha to he na ua aAp an Ng ui at iW Te ha re Ta iR aw Ng hi Te ti at Ai iP ta ng or ou aaM Ro ah ng ak ow i h Ng ak aa ai Ta ta m Ro an ng uh om ir i ai w ah in Ka e hu ng un u Te

Kaiti North
Source: Statistics NZ

Outer Kaiti

Kaiti South

Tamarau

Ngati Porou population by region (2006 Census)

Source: Statistics NZ

30

APPENDIX (B): Gisborne Youth Offending Statistics

Gisborne Youth Court 20062008 by Neighbourhood
90 80 70 60 50 40 30 20 10 0
IN N ER

TA M AR O AU U TE R KA KA IT I IT IS O R UT IV ER H AW DA LE A PU /M N AN I G AP AP TE A H AP W AR H AT A AU PO KO

KA IT I

Source: Ministry of Justice

Gisborne Youth Court Clients 2006-2008

INNER KAITI CENTRAL TAMARAU

ELGIN

WHATAUPOKO

OUTER KAITI

TE HAPARA

RIVERDALE/MANGAPAPA AWAPUNI

KAITI SOUTH

Source: Ministry of Justice

C EN T

E LG IN

RA L

31

OFFENDERS 14-16yrs 2000-2007 (Gisborne) Ethnicity and Gender

1% 1% 3% 26%

0% 59% 10%

F UNK F CAU F MAORI F PI M CAU M MAORI M PI M UNK

Source: NZ Police

TYPE OF OFFENDING 14-16yrs Gisborne 2000-2007

400 350 300 250 200 150 100 50 0 2000
Source: NZ Police

Violence Sexual Drugs & AntiSocial Dishonesty Prop Damage Prop Abuse Administrative

2001

2002

2003

2004

2005

2006

2007

32

Gisborne CYF YJ Referrals 2005-2009

250 200 Number 150 100 50 0 2005 2006 2007 Year Clients in Referrals
Source: Ministry of Social Development

2008

2009

Referrals

33

APPENDIX (C) Youth Offending Services Effectiveness Checklist (YOSEC)

YOSEC is based on a review of national and international research into what works to reduce offending by children and young people. It provides a guide to help service providers and funding agencies assess the effectiveness of programmes, and to prepare plans for improvements where these are needed. In this case it can also provide a useful tool in planning a strategy of interventions. YOSEC was developed by Kaye McLaren, a training and research consultant with extensive knowledge in the area of youth offending. YOSEC was reviewed by other experts including the author of this Strategy document. The Ministry of Justice was the principal funder of YOSEC. The Social Policy Evaluation and Research Committee, Ministry of Social Development, New Zealand Police and the Ministry of Health also contributed to the development of YOSEC. The literature suggests the following components are present in effective programmes designed to prevent reoffending and any programme developed as part of this Strategy should be consistent with these guidelines. Programme Purpose The programme aims to target children and/or young people with a medium to high risk of re offending and does not target those with a low risk of reoffending. The programme is based primarily on research into what is effective in reducing offending by children and young people. Recruitment, Selection & Assessment of Participants Staff engage clients in the programme and increase their motivation to change in positive directions. The programme tries to decrease barriers that make it hard for clients to participate. The programme gives highest priority for services to young people who are at medium to high risk of future offending and does not give services to those with a low risk of reoffending. The programme assesses factors that put children / young people at risk of future offending. The programme assesses strengths and factors that protect children / young people from ongoing involvement in criminal activity. Programme Delivery The programme addresses problems or needs that are associated with offending and can be changed. The programme does not address factors that are not related to offending. The programme tries to build strengths and increase protective factors. The programme reassesses problems or needs associated with offending to see if they have decreased as a result of intervention, and also reassesses strengths or protective factors to see if they have increased as a result of intervention. If the programme is equipped to address fewer than three of the factors above, it refers children / young people and families to other services which are able to address some of the factors it does not address, and monitors attendance and progress at these services. The programme uses behavioural techniques and focuses on building skills. 34

More reinforcement / positive consequences for desirable / prosocial behaviour and comments are used than punishment / negative consequences for undesirable / antisocial behaviour and comments. The programme does not use exclusively punitive or deterrent approaches such as scared straight or boot camp. Any wilderness activities are in line with best practice. Whnau are involved in programmes and relevant whnau factors are addressed in addition to child / young person factors. Nonresidential and residential (e.g. rehabilitation centres, youth residences) programmes provide the optimum programme length of service and level of contact with clients. Staff find ways of helping children / young people get involved with prosocial peers. Programmes are delivered to children / young people and whnau in preference to groups of young people, and wherever possible staff deliver the programme in the family home. Staff have received training in cognitive behavioural techniques. Staff have plans for effectively managing groups of antisocial children / young people and reducing peer pressure to act antisocially. The programme is able to find suitably qualified and experienced staff. There are rules for conduct and consequences for following and breaking rules, and staff make both clear to clients. Consequences for breaking rules are not harsh or overly punitive and positive consequences for following rules are used. Staff relate to clients in effective ways, praising and encouraging good behaviour, showing liking and teaching new skills. Most clients are motivated to change. Staff training (including booster training) takes place based on the manual with opportunities provided to practice new skills and lasts a reasonable period. Ongoing training is provided regularly. Programme Supports

A reasonable level of independent professional expert supervision is provided to all programme staff, and a range of types of supervision is provided. The programme has a treatment manual or set of guidelines for how it should be delivered. The programme assesses staff adherence to the programme using a feedback form filled in by a variety of people, and a range of other types of monitoring of adherence to the programme are used. Staff are rated as competent or highly competent by independent professional expert supervisors. Funding for treatment / services is adequate and dedicated. The programme has been established for a reasonable period of time (one year or longer). Programme Evaluation The programme has been evaluated and evaluation has found that it has a positive impact on offending. The programme seeks feedback on its performance from clients (including whnau), staff and other agencies.

35

APPENDIX (D): Strong Communities & The Kaiti Good Neighbours Initiative

The Centre for Social Research and Evaluation (Ministry of Social Development) sponsored Community Study undertaken in Gisborne between August and November 2008 assessed the local impact of the national Campaign of Action on Family Violence. Neighbours was one of the key sites of change highlighted in a number of stories of positive change from Gisborne and other sites investigated by the Community Study. This finding of this study aligned closely with evidence from the Strong Communities (www.clemson.edu/strongcommunities) initiative led by Gary Melton and Clemson University.12 Traditionally, social services both government and nongovernment have not had a strong focus on engaging neighbours as a site of intervention. Where agencies have engaged neighbourhoods in Gisborne they have used professionals who live outside the target community to come in to organise neighbours and/or deliver a service. While these kinds of approaches are often beyond the contractual obligations of agency staff and can stimulate some positive outcomes in the short term they are based on one dimensional relationships between someone paid to care and the people they work with.13 Melton and his team have demonstrated the value of taking a communitywide approach to preventing violence against children. This approach could be easily adapted to focus on youth offending prevention. Ka Pai Kaiti Trust have in 2009 been supporting the implementation of a small project based on adapting learning from the Strong Communities initiative with a focus on the Huxley Road neighbourhood.

Strong Communities Guiding Principles (adapted by Ka Pai Kaiti for the Good Neighbours Project, 2009): 1. Activities used to engage the community should be related to strengthening positive relationships in the neighbourhood and the ultimate outcome of keeping children safe and cared for. An activity fits if it naturally brings people together so that connections among families are enhanced and isolation is reduced. Plans and approaches should be directed toward the transformation of community norms and structures so that residents naturally notice and respond to the needs of children and their caregivers. Activities should continuously promote the core kaupapa. The objective is not to provide programmes or services but instead the continuous creation of settings in which the core messages of the project are heard and applied. Available resources should be directed toward volunteer recruitment, mobilisation, and retention. Activities should be directed toward the establishment or strengthening of relationships among

2.

3.

4. 5.

Melton, G. B. et al. Community Life, Public Health and Childrens Safety in Family and Community Health, Vol. 31, No. 2, pp.8499. 2008, Wolters Kluwer Health Researching youth work practice in Porirua for his Masters Thesis, Lloyd Martin (2002) noted the relational differences young people described between onedimensional professionals who came and went (home) from the community and the multidimensional volunteer youth workers who lived in the community, attended the same churches, recreated at the same places and shopped at the same businesses as the students he interviewed.
13

12

36

families or between families and community institutions. 6. 7. 8. 9. Activities should include a focus on the development of widely available, easily accessible, and non stigmatising social and material support for families of young children. Although the ultimate goal is the safety and care of children, project activities will mainly involve parents and extended whanau. Activities should be undertaken in a way that enhances parent leadership and sustainable community engagement. Whenever possible, activities should facilitate manaakitanga and reciprocity of help.

10. Activities should be designed so that they build or rely on the assets (leadership, networks, facilities and cultures) of the community.

37

APPENDIX (E): Community Building: What Makes It Work

Ref: Mattessich, P. & Monsey, B. Community Building: What Makes It Work. A Review of Factors Influencing Successful Community Building. Minnesota, Wilder Research Center, Amherst H. Wilder Foundation (1997)

1. 1A.

Characteristics of the Community Community Awareness of an Issue Successful efforts more likely occur in communities where residents recognize the need for some type of initiative. A community building effort must address an issue that is important enough to warrant attention, and which affects enough residents of a community to spark selfinterest in participation.

1B.

Motivation from within the Community Successful efforts more likely occur in communities where the motivation to begin a community building process is selfimposed, rather than encouraged from the outside.

1C.

Small Geographic Area Successful efforts are more likely to occur in communities with smaller geographic areas where planning and implementing activities are more manageable.

1D.

Flexibility and Adaptability Successful efforts more likely occur in communities where organized groups and individuals exhibit flexibility and adaptability in problem solving and task accomplishment.

1E.

Preexisting Social Cohesion Other things being equal, the higher the existing level of social cohesion (that is, the strength of interrelationships among community residents), the more likely a community building effort will be successful.

1F.

Ability to Discuss, Reach Consensus, and Cooperate Successful efforts tend to occur more easily in communities that have a spirit of cooperation and the ability to discuss openly their problems and needs.

1G.

Existing Identifiable Leadership Successful community building efforts are more likely when there are at least some residents who most community members will follow and listen to, who can motivate and act as spokespersons, and who can assume leadership roles in a community building initiative.

1H.

Prior Success with Community Building Communities with prior positive experience with community building efforts are more likely to succeed with new efforts.

2. 2A. 2B.

Characteristics of the Community Building Process Widespread Participation Successful efforts occur more often in communities that promote widespread participation. Good System of Communication Successful community building efforts tend to have welldeveloped systems of communication.

38

2C.

Minimal Competition in Pursuit of Goals Successful efforts tend to occur in communities where existing community organizations do not perceive other organizations or the leaders of a community building initiative as competitors.

2D.

Develop SelfUnderstanding Successful efforts are more likely to occur when the process includes developing a group identity, clarifying priorities, and agreeing on how to achieve goals.

2E.

Benefits to Many Residents Successful efforts are more likely if community goals, tasks, and activities have clear, visible benefits to many people in the community.

2F.

Focus on Product and Process Concurrently Community building initiatives are more likely to succeed when efforts to build relationships (the process focus) include tangible events and accomplishments (the product focus).

2G.

Linkage to Organisations Outside the Community Successful efforts are more likely to occur when members have ties to organisations outside the community.

2H.

Progression from Simple to Complex Activities Successful community building efforts are more likely when the process moves community members from simple to progressively more complex activities.

2I.

Systematic Gathering of Information and Analysis of Community Issues Successful community building efforts more likely occur when the process includes taking careful steps to measure and analyze the needs and problems of the community.

2J.

Training to Gain Community Building Skills Successful community building efforts more likely occur when participants receive training to increase their community building skills.

2K.

Early Involvement and Support from Existing, Indigenous Organisations Successful community building efforts tend to occur most often in situations where community organizations of long tenure and solid reputation become involved early.

2L.

Use of Technical Assistance Successful efforts more likely occur when community residents use technical assistance (experts providing consultation or handsontraining in their area of knowledge) to help residents gain competence in a particular area.

2M.

Continual Emergence of Leaders, as Needed Successful community building efforts more likely occur when the process includes the means to produce new leaders over time.

2N.

Community Control Over DecisionMaking Successful community building efforts more likely occur when residents have control over decisions, particularly over how funds are used.

2O.

The Right Mix of Resources Successful community building efforts occur when the process is not overwhelmed by too many resources or stifled by too few, and when there is a balance between internal and external resources. 39

3. 3A.

Characteristics of the Community Building Organisers Understanding the Community Successful community building efforts tend to have organizers who have a thorough understanding of the culture, social structure, demographics, political structure, and issues in the community.

3B.

Sincerity of Commitment Successful community building efforts more likely occur when organized by individuals who convey a sincere commitment for the communitys wellbeing.

3C.

A Relationship of Trust Successful efforts are more likely to occur when the organizers develop trusting relationships with community residents.

3D.

Level of Organising Experience Successful community building efforts more likely occur when the organizers are experienced in the many facets of working with communities.

3E.

Able to be Flexible and Adaptable Successful community building efforts are more likely when the organizers are flexible and able to adapt to constantly changing situations and environments.

40

APPENDIX (F): Gisborne Youth Offending Study

The purpose of this Strategy is to reduce offending and reoffending by young people in Kaiti. It is important that realistic goals connected to the purpose are set and monitored on a regular basis. It would be useful to maintain a control group from another community in Gisborne to assess the effectiveness of this Strategy, however in addition to the ethical issues involved, establishing the conditions under which this could occur may be beyond the capacity and scope of the Strategy. Indicators that will be monitored over time amongst young people from Kaiti compared with young people from other neighborhoods in Gisborne and nationally who are a similar age and have committed similar crimes include: a) The frequency and severity of any reoffending by type of intervention/support the rangatahi accessed b) The frequency and severity of first time offences c) The number of apprehensions recorded by Police d) The number of FGC referrals recorded by CYF e) The number, duration and type of Youth Court orders f) The proportion of FGC plans that result in whanau taking responsibility for supervising community work hours and victim reparation g) The proportion of FGCs that include victims h) The proportion of whanau of YJ clients who choose to participate in parenting support programmes and report using new strategies as a result i) The number of community members motivated to spend regular time on a voluntary basis with one or more rangatahi who has committed an offence to offer them a listening ear, work experience and positive guidance through adolescence j) Truancy, absentee, standdown, suspensions and exclusion statistics k) Change in dynamic risk factors assessed and reassessed over time (e.g. living arrangements; family and personal relationships; statutory education; employment, training and further education; neighbourhood; lifestyle; substance use; physical health; emotional and mental health; perception of self and others; thinking and behaviour; attitudes to offending; motivation to change; etc.) l) Change in Maia model measures (1) Circle of Courage: Whanau (Identity & Belonging), Mana Motuhake (Independence & Responsibility), Pukengatanga (Skill Mastery & Competence), Atawhai (Generosity & Contribution); and (2) Whanau Capacity: Manaakitanga, Whakatakato Tikanga, Whakamana, Whakawhnaungatanga, Whakamau Tikanga, Pupuri Taonga.

41

APPENDIX (G): References

Durie, Mason (1999), Te Pae Mahutonga: a model for Mori health promotion, Health Promotion Forum of New Zealand Newsletter 49, 25 December 1999. Gage, R. Mauri Tu Programme Presentation. Te Kaha, Te Runanga o Te Whanau (2008) Gass, M. A. Adventure Therapy: Therapeutic Applications of Adventure Programming. Dubuque, Kendall/Hunt Publishing Company (1993) Gisborne District Council, Te Runanga o TuranganuiaKiwa, Te Runanga o Ngati Porou, Tairawhiti Youth Workers Collective. Tairawhiti Youth Development Strategy, Gisborne, Tairawhiti Youth Development Trust (2004) Goldstein, Arnold P. The Prepare Curriculum, Teaching Prosocial Competencies, Research Press (1988) Goldstein, A.P, Glick, B., Irwin, M.J., PaskMcCartney, C., & Rubama,I. Reducing delinquency: Intervention in the community. New York: Pergamon (1989) Goldstein, A.P, & Glick, B. Aggression Replacement Training: A comprehensive intervention for aggressive youth. Champaign, IL: Research Press (1987) Goldstein, A.P. & Huff, C.R. The Gang Intervention Handbook. Champaign, Research Press (1993) KimbroughMelton, R.J. & Dottie Campbel. Strong Communities for Children: A Communitywide Approach to Prevention of Child Abuse and Neglect. Family & Community Health. Strong Communities as Safe Havens for Children. 31(2):100112, (April/June 2008). www.clemson.edu/strongcommunities/about.html Mattessich, P. & Monsey, B. Community Building: What Makes It Work. A Review of Factors Influencing Successful Community Building. Minnesota, Wilder Research Center, Amherst H. Wilder Foundation (1997) McLaren, K. Tough Is Not Enough: Getting smart about youth crime. Wellington, Ministry of Youth Affairs (2001) Tough is Still Not Enough. Presentation to Working Together Conference, Wellington, 2008

Melton, G.B. How Strong Communities Restored My Faith in Humanity: Children Can Live in Safety. Institute on Family and Neighborhood Life, Clemson University in K. A. Dodge & D. L. Coleman (Eds.), Community based prevention of child maltreatment. New York: Guilford (2009)

Ministry of Justice: Maaramatanga: Understanding what works to reduce offending by young Mori (unpubished, 2008); 42

Evaluation of Community Youth Programmes (2008) Youth Offending Services Effective Checklist Programme Development Guide (2009) Gisborne Youth Court statistics (20062008) Youth Offending Statistics 19922007 (2009) PriceWaterHouseCoopers: CostBenefit Analysis for the Proposed Recidivist Youth Offender Programme (2001) Department of Corrections About Time (2001)

Ministry of Mori Development Te Puni Kokiri. Marae Youth Court Phase I Final Report; Tairawhiti Youth Justice Provider Profiles Report (2008) Ministry of Social Development: East Coast Recession Impact Assessment (2009) Fresh Start Programme Details (2009) Cabinet Papers on Government Responses to Youth Offending (2009) Ministry of Youth Affairs. Rapua Te Huarahi Tika: A review of research about effective interventions for reducing offending by indigenous and ethnic minority youth (Ministry of Youth Affairs, 2000); Nga Tama Toa Trust: Nga Tama Toa: The Price of Citizenship, C Company 28 (Mori) Battalion 1939 1945. Auckland, David Bateman, 2008 NZ Police. Gisborne Police Business Plan (20092010) Statistics NZ. Ngati Porou Iwi Profile (2006) Ngati Porou in Kaiti (2006 Census data) Tairawhiti District Health Board. Tairawhiti Youth Health Services Plan 20082011. Gisborne, TDH (2008) Te Runanga o Ngati Porou. Strategic Plan (200912); Annual Reports (20052008); Overview of Whanau Ora Services (2009); Iwi Crime Prevention Plan (2004); Whakaoho, Whakapakari Whanau: A Report on Youth Offending Reduction Strategy for Kaiti (Robyn Rauna, 2009) Wilson, D. B., MacKenzie, D. L, & Mitchell, F. N. Effects of Correctional Boot Camps on Offending. (2005) A Campbell Collaboration systematic review, available at: http://www.aic.gov.au/campbellcj/reviews/titles.html

43