Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Summary

In November 2003 HOST Policy Research successfully bid to conduct a research project on behalf of the Learning and Skills Council and the Offenders’ Learning and Skills Unit, which is part of the Department for Employment and Skills. The study was commissioned to help inform and shape the strategy which will deliver information, advice and guidance (IAG) to offenders in custody and in the community supporting the Government’s commitment to quality and visibility. From 1st August 2004 the structure of Information and Advice Services for Adults in England funded by the Learning and Skills Council has changed. Contact details may differ from those contained in the report and are obtainable by contacting LSC local offices. The scope of the research included contact with all local IAG partnerships, Jobcentre Plus, the National Probation Service and HM Prison Service (both publicly and privately managed). Intended recipients Local information and advice service contractors, local LSCs, local probation services and HMP Heads of Learning and staff of JobCentre Plus November 2004

Further information Learning and Skills Council, Cheylesmore House, Quinton Road, Coventry CV1 2WT www.lsc.gov.uk

Contents

Paragraph numbers

Executive Summary Section 1: Introduction 1 The Research Project 1 Background and Scope 6 The Methodology 12 Stage 1: inception and planning 13 Stage 2: desk research 14 Stage 3: interviews with individuals in key organisations 15 Stage 4: survey of managers and practitioners 18 Stage 5: case studies of current practice 20 Stage 6: group interviews with potential service users 21 Stage 7: analysis and consultation day planning 22 Stage 8: development workshop 23 Stage 9: further analysis and final report 24 The Report 25

Section 2: The Research in Context 26 Introduction 26 Agency Roles and Responsibilities 28 Current Issues 49 Overview 54

Section 3: Current Local Information, Advice and Guidance Delivery 55 Introduction 55 Survey Response 59 Profile of respondents 59 Experience of the personnel of participating organisations 64 Engagement with other services 67 Barriers to service development 75 Overcoming barriers 76 Inter-agency protocols 78 Sources of Finance and Consistent Standards 80 Funding 80 Quality 86 Access and Delivery 97

i Paragraph numbers

National Probation Service 98 Prison Service 103 Information, advice and guidance partnerships 109 Support for Deliverers 116 Information and Communications Technology 118 The views of Offenders 123 The interviewees 123 Perceptions of information, advice and guidance delivery 126 Barriers to accessing services 134 What information, advice and guidance do offenders want? 135 When do offenders want information, advice and guidance delivered? 137 Offender concerns 138 Suggestions for a more user-friendly information, advice and guidance system 141 Overview 142

Section 4: Effective Current Practice 143 Introduction 143 Identifying Case Studies 146 Key Messages 148 Transferability 154 Underpinning Good Practice 160 Overview 161

Section 5: Conclusions and Areas for Consideration 162 Introduction 162 Information, Advice and Guidance Services for Offenders: The Current Picture 165 Offender Needs and Expectations 175 Proposed Information, Advice and Guidance Development Strategy 178 Minimum entitlement 179 Resource and capacity building 182 Developing an investment culture 184 Recommendations 185 Overview 194

Annexes Annex A: Summary of Case Studies Annex B: Glossary Annex C: Bibliography

ii Executive Summary

Date: Objectives and scope November 2004 The specific objectives of the research were to: Subject: • clarify the level and range of current Information, advice and Guidance Supporting IAG service delivery to offenders and Offenders in Custody and in the Community funding arrangements • identify any staff training and In November 2003 HOST Policy Research development needs (HOST) successfully bid to conduct a research project on behalf of the Learning and Skills •provide examples of current effective Council (LSC) and the Offenders’ Learning and delivery which could be models of Skills Unit (OLSU), which is part of the good practice, and explore the current Department for Employment and Skills (DfES). role of information and The study was commissioned to help inform communications technology as a and shape the strategy which will deliver resource information, advice and guidance (IAG) to • consider existing protocols between offenders in custody and in the community agencies and any barriers to effective supporting the Government’s commitment to delivery quality and visibility. The research team was supported by a steering group (whose •propose a strategy which could define, members are listed at the end of this improve and develop services and executive summary) consisting of the main recommend courses of action which agencies and organisations whose work could take forward implementation. involves offenders, whether they are serving sentences in custody or within the community. For the purposes of this research, the scope of the project has focused solely on England. Since the commissioning of this research, the LSC has undertaken a national tendering Methodology exercise “for the procurement and management The methodology was conducted within a of information and advice services for adults” to timescale of five months and can be ensure that a consistently high standard of summarised as follows. service is offered to individuals. With the reformed service starting on 1 August 2004, • Inception, planning and desk research some of the terminology used in this report will took place including a review of current now be obsolete, such as “IAG partnerships” in practice, evaluation reports and funding relation to the core LSC-funded service which for development. Interviews were held provides help and advice, for those aged over 20 with 14 key individuals nominated by years, about learning and work. However, the the steering group, four group use of the term “guidance” may still be relevant interviews with managers, and to the service delivered to offenders in custody discussions with Prison Service, NPS and in the community by staff in prisons and by and Jobcentre Plus staff. other agencies.

iii • Managers and practitioners involved in Issues and concerns local IAG delivery were surveyed and Professionally delivered IAG services can help staff from all agencies involved to widen participation and provide access to interviewed, at nine separate locations, other services. The research identified, from which resulted in case studies different sources, a number of operational describing effective collaborative situations which are holding back the delivery practice. Focus group interviews with of a coherent IAG service. These sources were 61 offenders currently serving both at all levels – strategic, managerial and custodial and community sentences, practitioner. and 3 individual interviews, were also carried out. The main issues cited were: •A development workshop was delivered • the absence of a recognised practice through a one-day consultation model or a quality framework for exercise with invited strategists, ensuring that offenders’ learning and managers and practitioners to consider IAG needs are assessed at recognised future strategy and developments. stages of sentence, and developed and integrated with other skills Key findings from the report development or behavioural work Research context •movements between prisons The criminal justice system is a complex seriously disrupting access to network of agencies with different pressures information and learning, with no and public expectations. This research was mechanism to transfer educational driven by a number of government agendas in records or documents that would different departments which recognised a clear ensure continuity need for a firmer grasp of local arrangements, • concern about the transition from recognition of current interventions and the supervision by Youth Offending Teams identification of barriers to effective service, as to mainstream NPS, or from Young a foundation for a more meaningful future Offenders Institution to adult prison – approach to IAG delivery to offenders. staff reported numerous areas of Agencies which work with offenders confusion, and individuals whose The roles and responsibilities of the main progress was severely disrupted and led agencies which work with offenders have to re-offending strategic and operational dimensions and • wide disparity in education funding future strategy will need to take account of between prisons, resulting in striking the context of current working arrangements, variations in curriculum, shortage of the interface between organisations and the opportunities for distance learning and potential for service duplication. Among the prisoners having to make activity plans for the forthcoming 12 months which trade-offs because of poor timetabling will affect IAG service delivery to offenders is development of the National Offender • absence of protocols between NPS Management Service (NOMS). The widening and IAG providers,which caused role of the OLSU and its team of regional confusion about what IAG is trying to advisers alongside the developing role of the achieve, and particularly surrounds Heads of Learning and Skills in the Prison such areas as confidentiality and Service, and the introduction of the reformed disclosure LSC IAG service arrangements, will also serve • lack of clear direction and guidance to impact on the implementation of the about what is expected from each proposed strategy. partner, and how activities and iv collaboration should be monitored and difficulties offenders have in understanding evaluated to demonstrate achievement what they are entitled to, and when. and potential need Current delivery of information, advice and • complex systems and target-driven guidance regimes, sometimes conflicting within the agencies involved, which may mean Responses from staff within the main agencies that a complete service is not offered involved with delivering IAG to offenders to offenders even if the targets are all underpinned evidence from case studies and met – staff are unable to treat individual interviews. This suggests that cross- offenders as individuals with different agency collaboration in the delivery of IAG is needs because of the bureaucracy being encouraged by managers in all agencies which constrains them and increasingly features on strategic and operational plans. •changing staff roles, with little initial IAG training and lack of more general Agencies engage in a number of ways – both continuous professional development – formally and informally – and often there is no good practice evidence to collaborate to secure additional funding. The draw upon. main constraints to development of IAG services were seen as: Concerns about consistency and adequacy of funding and lack of a strategic overview were • lack of funding (sustainable long-term also raised. finance and/or insufficient core funding) There were a number of difficulties connected with the way prisons operate (from agencies • no meaningful (to staff) inter-agency outside the estate) such as lack of continuity protocols from custody to community, no consistency • internal barriers connected to how the with resettlement and education programmes, individual organisations were set up not being able to gain cooperation from prison and run. staff, and distrust from prison staff about the nature and purpose of IAG. Prison staff Funding to support IAG services is currently referred to insufficient resources within the obtained from a wide range of sources in prisons to undertake IAG interviews with addition to core funding streams. These offenders in custody, or help them to include Prisoners Education Trusts, European investigate for themselves; and there was the Social Fund, Drug Action Teams and local LSCs. added problem of little or no information and Identifying suitable finance and sustaining communications technology (ICT) access initiatives after funding ceased were two outside open prisons. All this was said to major issues for staff. demotivate both staff and offenders. These The need for quality frameworks integrated issues were reported as less problematic in the into delivery was recognised with an overall 70 NPS and IAG partnerships than in prisons. per cent of all respondents to the survey A further problem concerned referrals and actively involved in achieving or working marketing, that is, the ways that clients are towards a recognised standard. In addition to made aware of services and what they are direct assistance to clients, quality standards entitled to receive from those services. A were seen as assisting in the identification of number of individuals mentioned that the staff development needs. internal (within prison) marketing to clients has not historically been encouraged. Others pointed to the way referrals are made, and the

v IAG service delivery by individual agencies is remembering advice sessions with Jobcentre very varied. A number of NPS areas contract Plus or being signposted to organisations out their IAG role to others although working through interviews with NPS case managers. closely with them and monitoring outcomes, while others deliver through in-house teams About a third of those interviewed did not see with varying levels of knowledge and expertise the need for IAG at all. However, there were in IAG. In the Prison Service, IAG is delivered many who had clearly benefited from a range of largely by internal staff with support from interventions that had assisted (or were assisting) Jobcentre Plus and IAG partnerships. them towards more learning or meaningful post- sentence employment. All the offenders The relatively new role of Head of Learning interviewed called for greater transparency in and Skills in prison establishments is assisting what they could expect, when they could expect the development of IAG services although it and greater access to information through progress is currently slow. LSC core funded IAG technology or self-help routes. providers are increasing their involvement in direct delivery of IAG to offenders and new Case study practice contracting arrangements from August 2004 The important message from the case studies are expected to underline this, but few was that effective practice is not about understand the criminal justice system or how offering specific modes of working or adhering the agencies within it operate. to a precise framework of options, but about personal flexibility, overcoming barriers Use of technology through negotiation and innovation, using There are three main issues connected to the existing local knowledge and collaborations use of technology to support delivery of IAG: and building staff capacity and capability at every opportunity. • the availability of resources to enable supervision of offenders The principles which underpinned the case study examples demonstrated convincingly the • lack of staff capability to use importance of coherence, the use of quality equipment standards, defined staff roles and • the security of technical equipment responsibilities and systematic monitoring and and the supervising of offenders who evaluation of results. Additionally offenders use it. were treated with respect, supported to explore all options, and openly acknowledged Staff called for more effective links to as having the capability to be rehabilitated producers and suppliers by their organisations, into the community. clear directives on the future role of technology and local licence for more In most cases offender progress was imaginative use of existing technology such as subsequently monitored to identify positive video and television. outcomes and impact, and to provide evidence of a link to learning and employment. Views of offenders Information obtained from interviews with Conclusions and recommendations offenders in prison establishments indicates The research confirms there is a wide variation that IAG service delivery depends on category in the level and range of IAG services to of prison and prisoner, prison regime, levels of offenders. While there are sound practice and enthusiasm and knowledge of prison staff, effective working relationships in many areas, availability of resource rooms for offender self- the provision overall is fragmented. Many of help, and offender knowledge of, and access to, the main agencies work well at a local level staff from outside agencies. Those interviewed through informal arrangements but this is not who were serving community sentences had a substitute for firm protocols or a transparent also received a variable service with most only framework. vi Development work is not supported by • the use of existing technologies is consistent or adequate funding streams, and, developed in addition to a thorough where innovation has occurred, this has been appraisal of new technological dependent on local initiative, with local opportunities and the most cost- delivery partners (for example IAG partnership, effective means identified to deliver Prison Service or NPS staff) successfully elements of IAG to offenders using ICT bidding for short-term funds (for example, resources. European Social Fund). Whilst such local enterprise and networking are to be The research calls for clear national direction, encouraged, service delivery cannot depend more systematic delivery, more staff long term on such insecure arrangements. development and inter-agency collaboration and cost-effective investments which are On the basis of the sample of offenders backed by defined individual entitlements and interviewed, some appear to be confused robust monitoring and review. about IAG and what it can offer. Those who see clear links to achievement (for example, to Proposed information, advice work and learning) have embraced it willingly. and guidance development For many interviewed, IAG has become the strategy route to a learning and education structure that they had previously not known. Many Building on progress made to date, it is offenders made a plea for greater clarity in proposed that the IAG strategy for offenders what they could receive and from whom. should have three major strands. Greater coherence may be particularly critical Minimum entitlement for short-term offenders in custody, since there An IAG Strategy for Offenders should contain is no official statutory requirement for post- a minimum entitlement to IAG services for all release supervision, and they have the highest offenders which includes a common definition offending rates. This, together with a clearer of the term ”offender”. focus on entitlement overall, may help to overcome some of the problems related to The minimum entitlement should indicate at offenders. every stage of sentence from induction onwards – regardless of whether sentence is It is recommended that: custodial or community-based – what services offenders should receive, and should be •a development strategy is adopted (set consistent with the LSC’s strategy Coherent out in full below) based on principles of IAG Services for Adults (January 2004) and the good practice identified by this DfES National Policy Framework for IAG research, and which has a national, Services for Adults. regional and local dimension Ways of working together should be developed • staff training and development are for all agencies and organisations detailing the carefully considered and reviewed roles and functions of national organisations, involving the use of a skills audit to and the regional and local partners concerned address gaps in knowledge and skill of with IAG delivery to offenders. This guidance existing staff about IAG should include: • the value of IAG is adequately • definitions of IAG services to be researched and its impact on re- delivered offending rates and links to employment are used to provide a •responsibilities (regional and area) and business case for further investment funding streams

vii • lines of accountability for different • sufficient depth and breadth of skill are aspects of IAG services available within each delivery agency •protocols to underpin local agreements •premises and equipment are adequate to deliver the minimum service • arrangements with regard to quality entitlement assurance and monitoring • there is a provision for building staff • clear links to other strategies such as awareness and engagement though the national IAG strategy and national better communications. rehabilitation plan. Developing an investment culture Resource and capacity building A programme of development activities should To take the strategy forward from autumn be commissioned which aims to demonstrate 2004, an audit should be undertaken on a the benefits of IAG by: regional or area basis of current provision, which should map provision against user • planning a series of development entitlement and identify the extent of current projects to allow staff to develop new delivery in defined areas and what is needed service delivery models to deliver to bridge any gaps or capacity shortfalls to outcomes envisaged by the IAG meet the minimum entitlement. It should: strategy cost-effectively • show existing contractual and • showing how a stronger focus on partnership arrangements on a regional sequential interventions in the delivery and local basis of IAG to offenders can be economically viable as well as • detail the integration or progression beneficial to individuals from IAG to learning and resettlement, if known. •providing robust evidence of best practice and impact linked clearly to A sustained programme which builds capacity employment in order to demonstrate a within agencies to deliver the IAG strategy business case for work with offenders. should be planned ensuring that:

Membership

Name Organisation Louise Proctor Learning and Skills Council Marie Devall DfES Offenders Learning and Skills Unit Christine Fisher DfES Offenders Learning and Skills Unit Len Cheston National Probation Service Julie Wallace National Probation Service Alan Taylor HMPS Custody to Work Clare Pope HMPS Custody to Work Siobhan Neary Guidance Council Ali Kendrick DWP Worktrain Rob Barnes DWP Jobcentre Plus Maureen Stringer Head of Learning HMP Ashwell Gary Bollington DfES Access to Learning Geraldine Glenister Learning and Skills Council

viii Section 1: Introduction

The Research Project arrangements are being funded, and any training and development needs of 1 In November 2003 HOST Policy Research delivery staff (HOST) successfully bid to conduct a research project on behalf of the Learning and Skills •provide examples of current effective Council (LSC) and the Offenders’ Learning and delivery which could be models of Skills Unit (OLSU), which is part of the transferable practice Department for Employment and Skills (DfES). • consider existing protocols between The study was commissioned to help inform agencies and any barriers to effective and shape the strategy which will deliver delivery information, advice and guidance (IAG) to offenders in custody and in the community •explore the current role of information supporting the Government’s commitment to and communications technology (ICT) quality and visibility. as a resource, and how this could be better integrated 2The research team was supported by a steering group consisting of the main agencies •propose a practical strategy which and organisations whose work involves could define, improve and develop offenders, whether they are serving sentences services and recommend courses of in custody or within the community. action which could help this strategy to be achieved. 3 Since this research was commissioned, the LSC has undertaken a national tendering 5This report details the findings from the exercise for “the Procurement and research. It is accompanied by a separate Management of Information and Advice document containing individual case studies. Services for Adults”. The reformed service These describe a range of good practice commenced on 1 August 2004 and introduced delivered by agencies in a variety of different some major changes to the service; therefore, situations. some of the terminology used in this report is now obsolete. For example, IAG partnerships Background and Scope are now called information and advice (IA) 6The criminal justice system is a complex contractors and offer the core LSC-funded network of agencies and services, both service which provides help and advice, for national and local, which has found itself adults aged over 20 years, about learning and under considerable pressure in recent years. work. The use of the term “guidance” may still The cost of crime is estimated to be £60 be relevant to the service delivered to billion each year, and although latest official offenders in custody and in the community by crime figures (Home Office 2003) show a staff in prisons and by other agencies. reduction in crime of between 2 and 3 per 4The main objectives of the research were cent, neither press nor public appear to believe to: this and, in the results of many national polls, people think that crime is rising. • clarify the level and range of current IAG service delivery, establishing local 7Press and public often demand that more coordination and how different offenders are given prison sentences, but the

1 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

need to segregate offenders from the 11 For the purposes of this research, the community and place them in custody can be scope of the project has focused solely on said to be of doubtful value for all but the England. most violent element. Large numbers of people who are sent to prison for a short period, The Methodology sometimes for relatively minor offences, often 12 The research methodology had nine re-offend within a very short time of release. stages: 8 Evidence (Farrall 1995; 2002) does show, • Stage 1: inception and planning however, that gaining a job makes an offender less likely to re-offend, and evidence, albeit • Stage 2: desk research largely anecdotal, from those working within • Stage 3: interviews with individuals in the Prison Service and IAG partnerships key organisations suggests that professional assessment and vocational advice and guidance are activities • Stage 4: survey of practitioners and that assist offenders towards meaningful managers in IAG providers, prisons and employment which supports individuals into probation services working and community life. Offenders need to be included in the widening participation • Stage 5: case studies of current practice agenda now adopted by Government and the in different regions LSC. (There are a number of definitions of the • Stage 6: group interviews with terms “offender” and ex-offender”. For the potential service users purposes of this report therefore, the generic term “offender” is used to mean anyone who • Stage 7: analysis and consultation day has been found guilty by a court (other than planning for a minor motoring-related offence), even if • Stage 8: development workshop they have completed their sentence.) • Stage 9: further analysis and final 9 It is timely that this study has been report. commissioned during a major reorganisation of prison and probation services into the National Stage 1: inception and planning Offender Management Service (NOMS) which follows recommendations for seamless case 13 This included a meeting with the project management. The issue of both the DfES commissioners to discuss timetable, reporting national policy framework Information, Advice framework, key milestones, topics for the and Guidance for Adults and the LSC IAG strategy survey and focus groups, access to information Coherent Information, Advice and Guidance sources and contact details of key individuals Services for Adults are also relevant. and organisations for subsequent stages. 10 The approach and scope of this research Stage 2: desk research has been driven by Government agendas that 14 This was a review of existing information span a number of departments, but most about current practice and developments notably the Home Office and DfES. By including funding. HOST looked at evaluation commissioning this study, the LSC and its reports of initiatives and developments and partners have recognised the need to have a background material. All this enabled the team firmer grasp of current local working to begin to organise the subsequent fieldwork arrangements, better understand the needs of in terms of what should be included, and the those both delivering and in receipt of IAG probable level of detail required. interventions and to identify and recognise both the achievements of, and the barriers to, a coherent and effective service.

2 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Stage 3: interviews with Stage 5: case studies of current individuals in key organisations practice 15 Members of the research team spoke in 20 We conducted a total of nine in-depth depth with key individuals nominated by the case studies which offered a range of research commissioners and the steering group. experiences, including an initiative which These included members of the steering group, covers several prisons, probation teams Government departments, the voluntary sector (examples of both in-house delivery and and HM Inspectors of Prisons, a total of 14 contracted-out services), partnerships that face-to-face and telephone interviews. included arrangements with the voluntary sector and partnerships with access to both a 16 Three group interviews were also private and public prison. There is a separately conducted, and a number of more informal bound report of case studies in addition to the discussions, with Prison Service and NPS staff. final report. 17 Topics raised centred on development of services, coherence, organisational Stage 6: group interviews with collaboration and capacity, identification of potential service users current practice and innovation, protocol issues 21 Focus group interviews were conducted in and early identification of possible case different settings, and with different ages, sex studies. and ethnicity. The groups were asked to consider, in the context of the views of others, Stage 4: survey of managers and what they need and expect from IAG services. practitioners Individual interviews were also conducted with 18 Questionnaires were emailed to the main three females serving community sentences agency managers involved in the local delivery and one female recently released from a prison of IAG and cascaded to appropriate staff. IAG sentence being supported during resettlement. partnerships were contacted direct, but it was necessary, for security reasons, for Stage 7: analysis and questionnaires to the Prison Service and NPS consultation day planning to be delivered through their confidential 22 The qualitative and quantitative data to internal systems. This was organised by date was analysed and discussed, and used to members of the steering group. Jobcentre Plus prepare the content for a one-day workshop of policy managers gave an overview of the broad invited strategists and practitioners. quantitative and qualitative issues. 19 Three versions of the questionnaire were Stage 8: development workshop developed. The first section contained 23 An important part of the methodological common core questions followed by a final approach, this consultation exercise had two section specific to each of the main agencies. main purposes – to present the research While the survey was primarily a quantitative findings to date, and, through a workshop tool aimed at providing numerical information, format, invite participants to consider future there were also many qualitative sections developments and identify specific issues. giving opportunities, through open questions, Discussion groups during the day dealt with for respondents to comment on such things as issues on both an operational and strategic future developments, integration, quality and level. A two-page summary of the day was the use of ICT as a working medium with the distributed, within one week of the event, to client group. all organisations that had requested a tender specification pack – To Procure and Manage Information and Advice Services for Adults in Local Learning and Skills Council Areas.

3 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Stage 9: further analysis and final report 24 Data from the consultation exercises was amalgamated with existing findings and the whole compiled as a report. The Report 25 In addition to this section, Section 2 considers the context of the research, the agencies involved and some of the key issues. Section 3 looks at the level and range of current services, the perceptions of offenders and the role of ICT. Section 4 explores the information from the case studies and offers some principles of effective working practice. Section 5 suggests a development strategy and offers conclusions and specific recommendations.

4 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Section 2: The Research in Context

Introduction 29 The LSC, which was set up in 2001, has a wide and ambitious remit. The LSC works with 26 The main focus of this project was to partner organisations at all levels to strengthen obtain data on a range of local partnership existing working relationships in the delivery of arrangements and detail evidence of good IAG and encourage greater coherence. practice. For this to be meaningful, it needs to be set in the wider context of: 30 During the course of this research a national tendering process took place for the • the roles of the key agencies, including procurement and management of IAG services current, recent and historic to adults in local LSC areas. Up to this time developments that have had impact on the LSC-funded IAG provision for adults was their function and responsibilities managed by local IAG partnerships; however, • the major issues for these agencies at from 1 August 2004 the reformed service was strategic and operational levels related in operation, consisting of a lead contractor to individual organisations and and a network of subcontractors, to ensure interface between organisations. that a consistently high standard of service is offered to individuals. 27 This section will offer an overview of agency responsibilities and highlight a number 31 The LSC also commissioned a wide range of critical issues, including those raised with of research into IAG provision in 2002/03 and the researchers by key agency individuals a national development fund supported interviewed, prison and probation service staff innovative work that included opportunities spoken with and those identified from desk for IAG partnerships to develop work with research. offenders. 32 The LSC’s strategy Successful Participation Agency Roles and for All (LSC 2003), for example, refers directly Responsibilities to the role of education and training in 28 One of the foundations of this research reducing offending and, in 2003, a research was to harness the experience and project culminated in a guide to establish perspectives of key national agencies through principles for use by local LSCs which focused nominated representatives who could offer on good practice (Parsons, Bysshe and Barry both a strategic and an operational dimension. 2003). The LSC has also recently This, together with an extensive review of commissioned research to consider how local existing research, reports of specific initiatives LSCs and their providers meet offender needs and various inspection and internal reports, (LSDA, unpublished). enabled the researchers to gain a stronger 33 The National IAG Policy Framework and understanding of the context in which current Action Plan (DfES, December 2003) outlines working arrangements exist. This section of the the principles of access, delivery and quality report profiles the seven main agencies and which will guide the range of future core organisations with a strategic and/or services and the infrastructure which will operational role in the delivery of IAG to support this. In particular, this document offenders. indicates that core information and advice services will be available to all adults over 20

5 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

years, with no upper age limit, in differentiated 39 The aims of the NPS are: levels appropriate to the individual, and will include access to website and telephone-based •protecting the public services. This raises the issue of how this type •reducing re-offending of activity will be dealt with in prison environments, where it is clear that for • the proper punishment of offenders in security and other reasons access to these the community facilities is strictly controlled. • ensuring offenders’ awareness of the 34 Some aspects of work-related training are effects of crime on victims and the the responsibility of Jobcentre Plus (through public the Department for Work and Pensions), but •rehabilitation of offenders. the LSC is crucially placed to promote greater coherence in all interventions for offenders 40 Each year the service supervises 175,000 that relate to education and training, and IAG offenders, of which 90 per cent are male and is a pivotal element of this framework. 75 per cent are over 21 years old. Local performance targets are set nationally, by the 35 The OLSU is responsible for ensuring that Home Office. the Government’s policy to improve learning and skills in prisons is achieved. It has been 41 Probation services support a client group operational since 2001, and supports a on Community Rehabilitation Orders, strategic partnership between DfES and the Community Punishment Orders and on licence Prison Service. From April 2004, it also has after prison, with proportions varying locally, responsibility for the learning and skills of and they are involved in pre-sentence offenders who are supervised by the NPS, reporting to the courts. Resettlement needs including basic skills programmes organised by have two main areas of targeted activity the NPS, which will be routed through them to undertaken by the NPS: the LSC. • basic skills provision – with targets for 36 The unit was originally conceived as screening and assessment of offenders’ supporting a strategic partnership between needs and completion of basic skills DfES and the Prison Service, and tasked to awards improve the quality and quantity of prison education, but this developed into a wider •employment, training and education – remit and was extended to include offenders the NPS is concerned with preparing on probation. offenders to take opportunities in the community offered through IAG, 37 OLSU works with key partners – most Jobcentre Plus and vocational training notably the NPS and the LSC – and has a team that improves their job prospects. of regional learning and skills advisers who work closely with prison establishments. OLSU 42 There is currently no central policy on how intends to develop a strategy related to greater probation services are expected to enhance their IAG coherence for offenders, of which this activities in areas related to IAG. Resourcing research is one part. tends to be by a variety of local arrangements – some subcontracted – but the sourcing and 38 The NPS, created in April 2001, is management are for local discretion. There are organised in 42 services managed by local few monitoring arrangements and no formal boards and reporting to the National evaluation. Under the new partnership Probation Directorate at the Home Office. arrangements for basic skills provision, NPS will continue to be responsible for identifying needs, but funding and service provision will be routed through the LSC.

6 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

43 The Prison Service, a critical part of the (the matrix Standard). Delivery is currently criminal justice system, keeps in custody those through networks of local partnerships, some of ordered by the courts. As at May 2004 (Home which are formal subcontractors, and some Office Statistics Directorate), there were 116 which are not. Local IAG infrastructures have prisons in England and, of these, 8 are private been described as having “contrasting priorities, prisons, with 73,000 individuals in prison at any funding and resource constraints” (Parsons, one moment in time. Turnover is high: 60 per Bysshe and Barry 2003). Nevertheless, a cent will be sentenced for less than 12 months number of networks operate extensively with and, of those released, 60 per cent will re-offend NPS and the Prison Service (which will be within 2 years. Privately managed prisons were explored in later sections) and integrate a introduced to the UK in the 1990s. HM number of activities, making this integration Inspectorate of Prisons inspects private prisons in visible to all users. the same way as public sector prisons. All private prisons have a '”Controller” linking them to the 47 Jobcentre Plus is the nationally funded Home Office, and the governors of private network of employment services which has local prisons are called “Directors”. Each private prison office delivery and management arrangements. has an individual contract which includes Policy and guidance are set nationally for the delivery of a resettlement programme. Although whole of the UK. Some branches of Jobcentre there is no IAG remit explicitly detailed in any of Plus see themselves as peripheral to IAG the current contracts, they are contracted to provision, while in others extensive collaboration deliver a defined number of educational hours to with IAG partnerships locally has been set up. every prisoner in their custody. Private prisons Jobcentre Plus is, however, the main partner of are currently tendering for additional funding for the Prison Service and the Custody to Work Unit learning and progression paths. and provides employment and benefits advice to prisoners. Jobcentre Plus branches guarantee a 44 Prison Service orders set minimum New Jobseeker interview for every prisoner who standards in regard to resettlement and key needs one, and are involved in the piloting of performance indicators to ensure employment, Jobpoint and Worktrain in different areas of the training and education (ETE) places for UK in 2003/04, which give prisoners access to prisoners after release. information on job vacancies electronically. 45 The Custody to Work Unit, which itself 48 The Adult Offenders Rehabilitation Unit plays a crucial role in meeting the Prison was formed to address the issues raised by the Service’s key performance indicator for Social Exclusion Unit report of 2002 (Social resettlement (achieving employment, training Exclusion Unit 2002), although its remit now or education outcomes) works in partnership covers all offenders, not just prisoners. The unit with other agencies. New Heads of Learning has created an interdepartmental group (the and Skills posts, funded by DfES, were created Rehabilitation of Offenders group), which in public-sector-run prisons in 2003 to includes nine sub-groups, with one for ETE. coordinate learning-related activities. These Each sub-group has an action plan that shows managers work with resettlement teams and the work of various departments in sentence planning officers to offer a more establishing or improving different accessible and defined service to prisoners, but rehabilitation services to offenders. The ETE such arrangements are still at a very early sub-group remit includes consideration of stage of development. more defined IAG services to offenders and better prison-to-community transition paths. 46 Local IAG provision is contracted to serve the needs of individual adults aged 20 and over in geographical areas coterminous with local LSC boundaries. All current contractors have attained the matrix quality assurance Standard

7 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Current Issues variations in curriculum, shortage of opportunities for distance learning and 49 Professionally delivered, high-quality IAG prisoners having to make activity can help to widen participation both as a trade-offs because of poor timetabling provision of itself and as a conduit to other services. • absence of protocols between NPS and IAG providers,which caused 50 Our discussions with key agencies confusion about what IAG is trying to suggested the current approach within achieve, and particularly surrounds such different organisations is very fragmented and areas as confidentiality and disclosure delivered against a background of extensive and ongoing policy changes at national and • lack of clear guidance about what is regional levels. There are also some operational expected from each partner, and how tensions at many levels with remits unclear activities and collaboration should be and responsibilities uncertain. monitored and evaluated to demonstrate achievement and potential need 51 Individuals see a need for greater clarity about funding arrangements and more • complex systems and target-driven transparency about availability and eligibility regimes,which may mean that a for additional funding. Members of the NPS in complete service is not offered to particular are keen to develop a national offenders even if the targets are all met; strategy within the new NOMS organisation, staff are unable to treat offenders as which will still offer some degree of individuals with different needs because operational autonomy at a local level. of the bureaucracy which constrains them 52 We have grouped together some of the •changing staff roles, with little initial major issues as: training in how to deliver effective IAG services, and lack of more general • the absence of a recognised practice continuous professional development – model or a quality framework for there is no good practice evidence to ensuring that offenders’ learning and draw upon. IAG needs are assessed at recognised stages of sentence, and developed and 53 What have emerged strongly from these integrated with other skills interviews, and from the secondary research, development or behavioural work are many common concerns affecting the operational interface between organisations or •movements between prisons establishments, and which were said by both seriously disrupting access to strategists and practitioners to be currently information and learning, with no holding back the development of a more mechanism to transfer educational coherent and effective service. records or documents that would ensure continuity Overview • concern about the transition from 54 In the area of learning and employment, supervision by Youth Offending Teams offenders have now become a focus for the to mainstream NPS, or from Young agendas of a number of agencies that could Offenders Institution to adult prison – enable IAG to have a more structured and staff reported numerous areas of visible profile. There are some overlaps and confusion, and individuals whose some gaps between organisational functions, progress was severely disrupted, which and confusion among practitioners about led to re-offending agency accountabilities. Concerns about consistency and adequacy of funding, and lack • wide disparity in education funding of a strategic overview, were also raised. between prisons, resulting in striking

8 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Section 3: Current Local Information, Advice and Guidance Delivery

Introduction Survey Response 55 The focus of this section is an assessment Profile of respondents of current agency working arrangements to 59 The survey approach has been outlined in deliver IAG to offenders, and staff and offender Section 1. The questionnaire had a “core” of perceptions of service and support. The questions for completion by all agencies, and findings were collected largely through the an agency-specific section in which there were email survey involving IAG partnerships, the questions applicable to IAG delivery solely by, NPS and the Prison Service. (Jobcentre Plus or through, that agency. staff were also invited to take part in the survey). 60 The survey was conducted over a seven- week period, and relied on local managers 56 The survey results are summarised here, identifying and cascading the questionnaire to and local experience is explored in terms of: appropriate staff. The response rate overall is • the type and range of services offered therefore impossible to establish precisely. The to offenders by each agency and numbers of responses from each agency that collaboration between agencies the survey secured were: • the extent of formal inter-agency • 44 from the NPS (there are 42 protocols, the effects of formal quality probation areas). standards and sources of funding • 38 from the Prison Service (there • staff training and development issues are106 individual prison establishments). • the use of ICT. • 42 from IAG partnerships (at the time of the research there were 52 IAG 57 The survey contained a number of questions partnerships). which gave respondents an opportunity to express their individual views on a range of 61 Although Jobcentre Plus staff were not delivery issues, and these opinions are reflected directly involved in the response to the throughout this section, together with opinions questionnaire, their views were included from advisers which were obtained from the case through the personal discussions during the studies, and from practitioners who attended the case study interviews, workshop sessions and development workshop in April. individual interviews. 58 Also included in this section are offender 62 Of the 3 agencies that responded, staff experiences and perceptions, together with ratios were 60 per cent female and 90 per cent views collated from the focus group were from a white ethnic group. Of all interviews, and a review of ICT issues and respondents, 43 per cent were in the 46–55 responses to specific questions about ICT from age group, with personnel working within IAG the survey. partnerships reflecting a younger age range overall than the other 2 agencies.

9 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

63 Questionnaires were received from every in Southern England. The highest number of region in England, although not all agencies replies was from the South East and the were represented in each region. The details of Midlands. From the three agencies together, responses are shown in Table 1.The overall there were responses from 49 managers (or response rate was weakest from the Prison equivalent grades) and 75 from advisers (or Service in terms of numbers, and only one similarly positioned job roles). reply was received from a privately run prison. There were no replies from the Prison Service in Yorkshire and Humberside, North East or North West, and none from IAG partnerships

Table 1: Responses to survey by region

Agency Yorkshire North North Midlands East South South South and East West East West Humberside

NPS 1 7 7 13 3 15 2 1

Prison Service 0 0 0 6 11 9 1 3

IAG partnerships 4 8 9 7 5 10 0 4

Total 5 15 16 26 19 34 3 8

The regions in the Table 1 are based on NPS areas. The LSC is divided into nine regions: North East, North West, Yorkshire and Humberside, East and West Midlands, Eastern Region and South East, South West and London. Source: HOST survey, 2004.

Experience of the personnel of participating 66 There was a greater depth of experience organisations in working with offender groups shown by NPS 64 Different levels of experience of than the other agencies. Of NPS employees, employees within the three agencies were 68 per cent had 6 or more years’ experience reported from the survey in both the total working with offenders. In the Prison Service, length of time employed in each organisation this figure was 45 per cent, and in IAG and the period of time in their current job role. partnerships it was 24 per cent. Of Prison Of the NPS personnel, 35 per cent had been Service staff, 36 per cent had less than a year’s employed by the organisation for more than experience of work with the offender client 10 years, and a third had between 1 and 5 group, which contrasted with 28 per cent in years’ service. In IAG partnerships, 60 per cent IAG and 19 per cent in NPS. of those who replied to the survey had Engagement with other services between 1 and 5 years’ service, while in the Prison Service, 58 per cent had been recruited 67 Our case study and secondary evidence in the previous 12 months. supports the view that there are increasing opportunities for cross-collaboration between 65 The latter undoubtedly reflects the agencies, which is being encouraged by senior introduction of the Head of Learning and Skills managers in different organisations, and work posts in the past 12 months. Of the with offenders is increasingly featuring in questionnaires received from the Prison Service, strategic and operational plans. The survey 23 were from Heads of Learning and Skills. asked for details of existing cross-agency working relationships in the delivery of IAG to

10 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

offenders in custody and serving community additional funding. However, evidence from sentences, and the nature of that the survey indicates that this more often collaboration. involves the current IAG partnerships and the NPS than it does the Prison Service. 68 Direct engagement with other organisations to deliver IAG to offenders was 72 We also know from earlier interviews in compared. Variation was evident in the research that a number of NPS areas are engagement, reflecting the roles of the NPS choosing to contract out their IAG delivery to and the Prison Service to the different status the voluntary sector and/or specialist agencies, of offender, and of IAG partnership work with although this is only mentioned by 7 per cent both. The high level of collaboration reported of NPS staff who responded to the survey. This with further education (FE), higher education development has had positive consequences, (HE) and adult guidance services by the Prison in that it has frequently resulted in a greater Service and the NPS may well confirm the depth of experience in IAG delivery, and has growing emphasis in learning and education also allowed NPS staff to concentrate on for offenders which is being facilitated by both community sentence case work. It does, organisations. however, mean that contracts have to be monitored, which requires an allocated 69 Of IAG practitioners and managers, 72 per resource, and does not build internal capacity cent reported that they regularly engage with or offer staff additional development Jobcentre Plus in work with offenders in prison, opportunities. and nearly two thirds (61 per cent) also work regularly with community, voluntary or charity 73 The Prison Service responses show that groups to deliver services to offenders on currently IAG is largely delivered to offenders probation orders. The NPS also works in custody by their own staff, in collaboration extensively with community and voluntary with Jobcentre Plus, NPS, and to some extent groups, and this collaboration was mentioned through FE and HE (although some of these by 59 per cent of survey respondents. The institutions may be members of the local IAG Prison Service has some engagement with other partnership arrangements), rather than solely agencies in the delivery of IAG to community by the current IAG partnership arrangements. sentence offenders, but a far higher rate of With the increasing emphasis on achieving involvement with all the named organisations numerical targets, it has been less effective to deliver to those in custodial care. and practical for advisers to work in challenging settings such as prisons, because 70 Nearly 40 per cent of replies from both fewer individuals can be seen in a given time NPS and IAG partnerships mention informal in that environment than elsewhere. New links, twice as many times as the more formal contracting with the LSC from autumn 2004 engagements. Case study evidence confirms may give local IAG provision greater scope to that while formal working relationships work with offender client groups in different between organisations are increasing, informal local arrangements. and ad hoc meetings contribute substantially to working relationships, provide for greater 74 IAG partnership response to this question transparency and enable meaningful case showed a high degree of collaboration with conferencing to take place. many of the named agencies, including specific advice and guidance with Jobcentre Plus. The 71 Case study evidence and information less-developed inter-agency working was with gathered at the development workshop also the Prison Service, and reasons have been highlights that specific IAG initiatives are suggested earlier for this. A high number of progressively part of the working arrangements respondents again mentioned informal links as between agencies, with many now significant. collaborating on formal proposals to secure

11 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Barriers to service development c Referrals and marketing.This concerned 75 Respondents were asked, within the core the ways that clients are made aware of section of the questionnaire, to indicate the services and what they are entitled to main constraints to the development of IAG receive from those services. A number of services to offenders and if these barriers had individuals mentioned that the internal been overcome. These were “open” questions, (within prison) marketing to clients has and consequently many different responses not historically been encouraged. Others were offered. Nevertheless, there were many pointed to the way referrals are made, common threads to the answers which can be and the difficulties offenders have grouped around three main areas. These were understanding what they are entitled to, as follows. and when. a Financial support for IAG.This was a Overcoming barriers complex area to unpick from the answers, 76 Staff had surmounted these barriers in because there were basically three issues. many different ways. Some suggested that These concerned: persistence, developing better links with staff in other agencies and actively working with i the lack of long-term funding prison staff and Jobcentre Plus enabled some arrangements which disrupted services difficulties to be overcome. Probation staff to clients within special initiatives, often reported that working with partners to secure at crucial stages of their development other types of funding which were less rigid ii insufficient core funding to meet client than core finance, and sharing premises and needs (within NPS) resources, were some of the ways to get around barriers. ii funding streams being tied to targeting, which did not allow agencies 77 Most significantly, there were many to offer the depth of advice and suggestions about closer collaboration with guidance they felt was needed by the other agencies, developing formal multi- client group. agency approaches and better networking with educational establishments. Using Prison b Organisation and resources.There were Service Plus moneys to convert space in one a number of difficulties connected with prison was reported, for example, by one the way prisons operate (from agencies establishment which had problems with outside the estate), such as lack of available accommodation. From prison staff (a continuity from custody to community, point reflected in a number of case study no consistency with resettlement and interviews) there was eager anticipation of the education programmes, not being able to part that the new posts of Head of Learning gain cooperation from prison staff, and and Skills would play in defining better distrust from prison staff about the nature structures and relocating resources within and purpose of IAG. Prison staff referred prisons and overcoming prejudice about to insufficient resources within the prisons internal marketing. to undertake IAG interviews with offenders in custody, or help them to Inter-agency protocols investigate for themselves, and there was 78 Evidence from the questionnaires the added problem of little or no ICT confirms earlier anecdotal information that access outside open prisons. All this was protocols between agencies are currently said to demotivate both staff and underdeveloped. Asked if formal inter-agency offenders. These issues were reported as protocols existed, 21 replied positively. From less problematic in the NPS and IAG the survey, individuals reported that formal partnerships than in prisons. arrangements exist in most areas in relation to the sharing of criminal conviction information,

12 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

and there are protocols on such things as basic 83 In some areas internal capability to skills, but there are few information-sharing deliver learning services through probation arrangements between agencies that deal with staff has been developed using non-core offenders and local Drug Action Teams. funding, but IAG was said to be only a very small part of this. From the survey, a number 79 In two areas where the NPS subcontracts of different sources were identified, to deliver the Progress2Work initiative, specifically: protocols are being developed by a cross- agency team. Formal service agreements • direct allocated budgets to the main between many agencies, however, continue to agencies be reported as weak. As one respondent wrote: •a variety of different European Social I do not have documentation or policies Fund finance streams, either direct as from other agencies and I do not know how part of the IAG core funding through they manage and store information we LSC, or for adult guidance pilots, or share with them. specific match-funded initiatives financed by NPS Sources of Finance and •finance from OLSU Prison Education Consistent Standards Trust, Prison Capitalisation Fund, and Funding the Youth Justice Board 80 The survey enquired about two issues •Prison Service Plus initiatives, and NPS connected to funding of IAG delivery. The first Employment Pathfinder concerned awareness by staff of inter-agency funding streams (cash or kind) for IAG services • funding from charitable trusts such as for offenders, and the second related to the the Prisoners Education Trust College different types of funding which organisations Scheme had sourced specifically for the offender client group. • LSC funding for basic skills 81 There are a number of different ways in •from Home Office via local Drug which funding supports IAG work with Action Teams. offenders – through core funding, through 84 Case study evidence together with direct contracting between agencies, though comments on the questionnaire suggests that specific projects, through local LSC funding of the main difficulties with funding are: IAG networks, and through one-off funding opportunities. Funding is, therefore, a complex • sustaining initiatives after the funding network of interrelated accounts which, even has ceased for some experienced managers, can be • funding sources which appear to be baffling. directed at anything other than client 82 Of all those who replied to the survey, 61 needs. per cent said they were aware of specific 85 Also mentioned in the survey responses funding for offenders through their own were concerns about funding opportunities organisation’s core funding or channelled that are prescriptive about outcomes and/or through other agencies. From an analysis of the do not allow innovation. Managers and responses, NPS and IAG seemed more aware of practitioners would like greater transparency in funding, with very few from either agency funding, and more information and guidance saying that they did not know. Of Prison about applying for extra finance. As one NPS Service staff, 14 per cent either did not know employee said: about funding arrangements for offenders, or did not answer the question at all.

13 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

It is a constant struggle to access sufficient remainder another quality framework. The external additions to core finance. Periodic majority mentioned the Guidance re-application and lack of information Accreditation Board (GAB) National Quality about what is available creates a climate of Standards for Learning and Work (NQSLW), uncertainty and impedes offender which has been superseded by the matrix development. Standard. Two individuals mentioned that they expected their organisation to transfer from Quality the NQSLW to the matrix Standard from 86 The Government is committed to raising 2004, and one that the standard framework standards and ensuring a more consistent Chartermark was being considered because the quality of delivery in all areas connected with Department for Work and Pensions was learning and skills including IAG. The matrix encouraging organisations to be accredited. Standard is a national quality standard for organisations delivering information, advice 91 Staff from all the organisations felt that a and guidance services for learning and work. number staff development needs had been For IAG contractors, the matrix Standard has identified as a direct result of the use of been integrated into their delivery for some quality standards related to work with time, but this standard is relatively new for offenders. In particular, they highlighted: NPS and the Prison Service, although they have • the continuous improvement thread other standards which they must attain. within the matrix Standard, which has 87 The importance of a recognised quality enabled staff to consider new assurance standard will be essential to approaches to advice and guidance underpin: work; this not infrequently led to making direct links with their own • the drive for a more coherent IAG performance and the need to gain service for offenders further qualifications and update skills • guaranteed consistency of service to • the need for staff working with users. offenders to have basic skills awareness 88 Therefore, organisations delivering IAG to training. This was particularly identified offenders will be actively encouraged to quality by those in the NPS, for whom basic assure through the matrix Standard.. skills are part of resettlement targeted activity, and the Prison Service to 89 The survey questions related to quality support offenders in custody who have were designed to find out primarily how many literacy or numeracy problems of the local organisations had achieved a quality standard in relation to IAG delivery, the • the fact that quality improvement additional staff needs that may have arisen measures have resulted in more staff because of working towards or attaining the meetings to ensure that knowledge is standard and in what ways attaining the updated both to understand different standard had actually improved services to conviction orders and the other offenders. changes within the criminal justice system 90 From responses, 70 per cent of NPS offices, 55 per cent of prisons and 92 per cent •a greater understanding of other of IAG partnerships that completed the survey agency work, so that issues of questionnaire had achieved, or were working confidentiality and disclosure were towards, an IAG quality standard. Across the 3 addressed. agencies, a reported 39 per cent of 92 The survey asked if quality standards organisations had attained, or were improved the quality of delivery to considering, the matrix Standard, and the

14 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

offenders overall and 50 per cent of NPS and said to be a very positive reflection. 72 per cent of IAG answered positively. The A question designed to find out more precisely messages were more mixed from the Prison what these improvements were identified a Service, 44 per cent of whom did not answer number of areas of commonality between the the question, but 31 per cent answered yes agencies, and also areas where there was a which, in an agency where the matrix marked difference in opinions. Figures 1, 2 and Standard is not yet fully embedded, could be 3 show responses from each of the agencies.

Figure 1: Identified ways quality standards have improved service to offenders (National Probation Service)

Helped develop a consistent service

Provided a means of feedback to improve services

Exchange of good practice

Increased staff capability

0102030405060708090100 per cent

N = 25 Source: HOST survey, 2004.

Figure 2: Identified ways quality standards have improved service to offenders (Prison Service)

Helped develop a consistent service

Increased learning opportunities for offenders Provided a means of feedback to improve services Ensured equality of opportunity

Exchange of good practice

Input to service planning

Increased staff capability

Enhanced existing resources

0102030405060708090100 per cent

N = 11 Source: HOST survey, 2004.

15 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Figure 3: Identified ways quality standards have improved service to offenders (Information, advice and guidance partnerships)

Helped develop a consistent service

Increased learning opportunities for offenders Provided a means of feedback to improve services Ensured equality of opportunity

Exchange of good practice

Input to service planning

Increased staff capability

Enhanced existing resources

0102030405060708090 per cent

N = 27 Source: HOST survey, 2004.

93 The results show that, for individuals representatives, who generally saw it as a across all three agencies, improvement in systematic and robust way of defining what consistency of service was the most tangible delivery is, and ensuring that data was improvement to delivery that was attributable routinely collected, client-orientated measures to quality standards. Providing a means of were put in place and organisational credibility feedback to improve services, and enhancing was enhanced. existing resources, were also seen as favourable by all organisations. The Prison Service Access and Delivery identified increased learning opportunities, 97 This section has so far considered the exchange of good practice and increased staff inter-agency issues which affect work with capabilities as positive consequences, with the offenders. We now consider survey responses latter a benefit also endorsed by NPS staff. from each of the three agencies separately – 94 Only a third of IAG respondents how they operate, the services they provide for highlighted input to service planning as offenders and constraints to the delivery of improved by operating within a quality their service. framework. Service planning, however, was National Probation Service highlighted positively by the other agencies. 98 The survey results showed that locally the 95 What emerges is a mixed picture, with NPS delivers IAG through one of three routes. those organisations with most experience of Delivery is by NPS staff (30 per cent), through quality standards appearing to be less a formal contract with another agency (34 per impressed with the subsequent effects of cent), or a mix of this provision through attaining a quality standard in a number of informal arrangements with other agencies. identified areas than those who have had less The qualitative data from the survey reveals opportunity to consider the outcomes. that access to IAG services is dependent on factors such as extent of referrals by case 96 The importance of quality, however, was manager, staff resourcing and availability, raised many times by the case study current operational targets or involvement in

16 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

special projects or initiatives. Some NPS areas through NPS areas to clients in custody and in dictate the approach to work with offenders; the community. others rely on the expertise and experience of local staff to determine a framework. A number of individuals reported that IAG delivery was determined solely by client need. Table 2 indicates the services provided locally

Table 2: Services offered by NPS locally to offenders.

Offenders in Offenders in the wider custody (per cent) community (per cent)

Learning opportunities 23 73

Gaining employment 23 70

Career information 23 75

Benefits 23 39

Advice with housing 18 32

N = 44 Source: HOST survey, 2004.

99 As would be expected, the data shows managers, but leaflets, workshop and therapy that NPS deal more frequently with offenders sessions and promotion of services during in the wider community than serving prison work preparation sessions also took place. sentences, which is in line with their major Offenders who worked with the drug service remits. Two in three of all NPS staff said that on structured or informal day care learning, work and career information and programmes were also informed about IAG opportunities made up the bulk of services opportunities. offered to offenders in the community, although they were also offered advice on 102 Key barriers to the development of IAG benefits and housing issues. services within the NPS structure were seen as lack of funding, lack of cohesion between 100 Recording outcomes from IAG custody and community sentence officers, lack interventions also varies. Figure 6 shows that of clarity about availability of services, and 72 per cent of outcomes immediately or poor knowledge among individual NPS staff following the delivery of IAG are formally about the importance and/or the role of IAG. noted, but records of outcomes after Better training, more formal action planning completion of sentence, and learning for individuals serving community sentences, outcomes during sentence, are less likely to be and access to knowledge about the various documented, unless outcomes are needed as services and their function, were the main evidence towards targets, or (in the case of suggestions for overcoming constraints to subcontractors) as part of contract audit effective service delivery. One person procedures. suggested that: 101 The survey asked what methods were it will possibly improve when the agencies used to keep offenders informed about IAG are amalgamated. Though this by itself will services. Responses showed that information not guarantee cohesion, at least we shall was often relayed to clients through case feel we are trying to achieve similar aims.

17 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Prison Service 104 Access to IAG services was variable, often 103 Although there were only 36 responses within the same prison, and from the 36 from the Prison Service to the survey, there responses none of the prisons reported access was a very even spread of prison categories in the same way. Access ranged from weekly represented, including high security, open sessions to during-sentence planning, to twice prison and a female prison, although only one monthly, to twice during sentence. Asked to from a privately run establishment. Asked who indicate the availability of services at different they thought responsible for the delivery of stages of sentence (Figure 4), a clear pattern IAG services within their prison, only 11 emerged of regular availability of provision offered a response, and 8 of these suggested throughout sentence. This is contradictory, and the Education Officer. Current delivery was we suggest this data should be treated provided by Jobcentre Plus staff or a mixture cautiously. For example, it is reported by over of internal resources and Jobcentre Plus. 50 per cent of respondents that IAG is available at sentence planning stage, yet those in custody for less than 12 months (often those with the highest re-offending rates) are outside the sentence planning system.

Figure 4: Reported IAG services to clients at stages of sentence

An induction/post-reception

During sentence planning

During sentence At pre-release

Immediately post-release

010203040506070 per cent

N = 36 Source: HOST survey, 2004.

105 We asked in the survey for a breakdown of actual services offered to offenders in prisons. Figure 5 shows that IAG about learning opportunities is twice as likely to be offered as information on gaining employment.

18 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Figure 5: Reported services available to prisoners

Learning opportunities

Gaining employment

Career information Benefits

Advice with housing

Other services

0102030405060708090 per cent

N = 36 Source: HOST survey, 2004.

106 As with NPS staff, Prison Service employees were also asked about formal recording of outcomes from IAG services. Figure 6 shows that recording learning outcomes during sentence happens three times as frequently as learning outcomes after sentence, indicating that monitoring results of IAG interventions after sentence is largely underdeveloped.

Figure 6: Recording of outcomes of IAG (prisons).

Direct outcomes from IAG services

Clients starting learning during sentence

Clients starting work after sentence Clients learning after sentence

Other

01020304050607080 per cent

N = 36 Source: HOST survey, 2004.

19 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

107 Prison Service staff offered a number of Information, advice and guidance suggestions for developing IAG services within partnerships prisons and in partnership with other agencies. 109 Both NPS and the Prison Service are Chief among these were: within the criminal justice system, and staff • more staff resources, or better use of are familiar with many of the bureaucratic, existing staff and better development and sometimes idiosyncratic, arrangements of staff within both services. For many staff within IAG partnerships, outside the criminal justice • better internal resources – ICT, system environment, a very different premises, library facilities perspective may exist. Many of these are Jobcentre Plus employees who had input • more integration with other services during case study visits. The survey asked IAG •IAG available to all offenders in staff about the type of information delivered custody regardless of sentence length to offenders. Figure 7 shows the delivery within the four main categories of service. Of • more emphasis on quality standards. advisers, 71 per cent deliver information, 108 Staff were also asked about barriers to advice and enhanced services to offenders, and services and how they could be overcome, and 1 in 5 of IAG partnerships are offering their responses suggested that staff and specialist advice and guidance. (Enhanced offenders in custody alike were ill-informed services include individual support and about the nature of IAG and what it could guidance, in addition to the usual information achieve. Therefore, more knowledge about the and guidance services.) topic and how it could be managed effectively in a prison environment were pivotal in order to extend choice and access to different classes of offenders in custody. Some also mentioned the constant turnover within prisons, which made the continuity of services difficult to establish.

Figure 7: Range of services offered by IAG partnership to offenders.

Information

Information and advice

information, advice and enhanced services specialist services to offenders

01020304050607080 per cent

N = 42 Source: HOST survey, 2004.

20 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

110 The way in which their organisation is members, often serving different client groups funded was said to affect delivery by 48 per – and promotion by the Prison Service and the cent of the IAG partnerships which responded NPS through posters, leaflets, information to the questionnaire. It was said that primarily distributed to offenders at induction sessions the amount of funding dictates the work that and through informal inter-agency links, were can be undertaken in terms of type and length those mentioned most frequently. of time with each client, secondly that the source of funding (that is, core, European 113 Those working for IAG partnership Social Fund (ESF), special pilot) determines the networks identified four main differences range of services offered, and thirdly that the between working with offenders and other extent of collaboration involved in delivery clients – evidence validated by many of those (use of charities such as Nacro, care trusts, at the development workshop. voluntary sector) and the skill of individuals •The time it often takes to build trust working within this partnership also affect with clients is far longer. what is provided. Targets are also an issue for IAG partnerships. As one wrote: •Access to offenders in prison, contacting them and following up with There are targets to be met but if these are extra information can be difficult and exceeded we will not be funded for these. time-consuming. 111 A number of survey respondents within • Established contact with offender IAG partnerships mentioned the changes to clients is disrupted by them being funding, which have been in operation since 1 moved to other prisons – often at August 2004, when work with adults will be critical stages of their development. targeted more specifically and especially with those who are below a Level 2 qualification, • Issues related to disclosure and that is, a National Vocational Qualification confidentiality which have still to be (NVQ) or five GCSEs at Grades A to C. While resolved hinder individual offender many offenders will fall into this priority group, progress and sometimes actual access there will be some offenders who do not fall to services. into this category for whom an appropriate 114 Allied to this were questions of barriers to type and level of service will be available. services and ways to overcome them. Most There was a perception among some IAG staff IAG partnership staff mentioned the lack of that sessions will be limited to one per client protocols between IAG partnerships and the in many locations, and this may affect Prison Service, which meant that contact was offenders, many of whom need multiple limited or restricted, and the lack of sessions. understanding and knowledge of IAG advisers 112 Access to services and the way offenders about the specialist support offenders needed. were informed about services varied across the 115 It was suggested that these barriers could responses, with some joining with Jobcentre be overcome and future development work Plus for weekly sessions to meet a range of directed towards introducing a clear identified different advice needs, others who were invited service at specific points of sentence which into prisons for advice as demand dictated, were known, could be accessed freely and and others who offered monthly advice robustly monitored. Again, these were sessions to prisons and worked with the NPS suggestions echoed by interviewees during to deliver group IAG. Referrals to other case study visits, by those who attended the agencies and services – often outside the workshop and by offenders themselves (see spheres of learning – are common. Individual below). providers promote their own services. In some IAG networks, there are over 50 partnership

21 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Support for Deliverers 116 Staff in all agencies involved in the research were asked in the survey to rank the importance of specific strategies to enable them to be better supported in their role as deliverers of IAG. Table 3 compares the responses of each agency to identified support they considered very important.

Table 3: Comparison of suggested support for staff across all agencies

NPS Prison IAG (per cent) Service partnerships (per cent) (per cent)

More training of staff 45 75 62

Formal exchange of good practice between organisations 55 72 60

More cohesion or transparency in funding 55 58 50

Better directed resources 61 47 52

Formal service agreements between agencies 39 47 45

More inter-agency activities 45 58 64

NB: Multiple response. Source: HOST survey, 2004.

117 Three out of every four responses from Information and the Prison Service ranked increased staff training of major importance, suggesting that Communications Technology staff development issues may have a huge 118 ICT as a medium is increasingly being bearing on the future development of the considered in relation to work with offenders. service. Though this was considered very The most obvious examples concern the important by nearly half of NPS staff who “Worktrain” and “Jobpoint” models piloted in 8 answered the survey, better direction of prisons, and then extended to 10 more in resources was given a higher rating overall. 2004/05. Evaluative findings of these two Probation also seemed marginally less projects have indicated that using ICT, in concerned about the importance of inter- combination with other support and agency protocols. IAG partnership staff also encouragement, is an effective means of work felt that inter-agency activities were an preparation, and increases the likelihood of important strand for future development. Over employment after release. Both these 50 per cent of all agencies would clearly value programmes use locked-down computer more cohesion and transparency in funding, systems that limit the amount and type of and more formal exchange of good practice access. between organisations. 119 ICT is part of the core prison education curriculum, and all prisons have to deliver it as a national qualification. learndirect, the e- learning network created by Ufi, is now being

22 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

piloted in five prisons. The software will 122 A number of ways in which these barriers generate information on usage, prisoner test could be overcome were suggested. These, results and academic progression; pre- and together with suggestions made at the post-assessment will be recorded manually. development workshop and by case study interviewees, were: 120 In the survey, staff were asked the following questions. •a clear lead from head offices or the new NOMS development team that •How important to them was the use of technology will play a central role in ICT? future work with offenders, and that •What were the main barriers to its use funds will be available to develop this with offenders? • more effective links to producers and •How could these barriers be overcome? suppliers of technical equipment and software by NPS and Prison Service 121 While many managers and staff who work staff to overcome security and with offenders endorsed the importance of capability concerns or shortfalls. This ICT, others were not convinced of its could involve a named staff member importance to their work with the offender responsible for collating information group. There were some major concerns and developing local approaches expressed about its use with offenders, and two main barriers cited. • ICT skills to be part of every employee’s personal development plan • Security. Offenders needed supervision in the next two years to ensure that all when using technical equipment, and staff have a core of competence with computer use there was the regardless of job role added complication of possible links to unsuitable Internet sites. A number of •greater use of laptop computers within employees had overcome these the criminal justice system to be problems of supervision by tightening encouraged and developed, with a two- procedures or using personal year implementation period evaluated computers on behalf of clients. There for effectiveness and innovation are major issues here, but it is • more imaginative use of existing suggested that some of these could be technology, for example, production of overcome with locked-down systems videos both as an aid to learning and or better organisation of group work. information signposting. Prisons, for • Lack of ICT resources or expertise. example, offer inmates access to There are two issues here. One is televisions even if access to other connected to availability of technology technology is prohibited. and the limited free space both within prisons and at NPS premises. The The Views of Offenders second relates to staff capability in The interviewees technical expertise. Both are resource 123 The research team conducted 8 focus issues, but whereas staff may need groups with offenders, interviewing a total of formal training and development, lack 61 male offenders. Of these, 36 were offenders of equipment relates to availability and in custody in category B and category C prison use of funding, and lack of space may establishments, and represented offenders in need internal cooperation and custody at different stages of sentence and reorganisation within existing teams. with different backgrounds, educational achievement levels and capabilities. In this, the HOST team was ably assisted by prison staff.

23 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

124 The remaining 25 were offenders serving signposting they had at induction and/or sentences in the community who regularly during sentence planning. One prison had an attended therapy-style sessions. Ages ranged IAG suite where offenders in custody could from 19 to 57 years. One group were all aged access, under supervision, information from under 21 and were part of the NPS Intensive the resource room. For the most part, and Change and Control Programme (ICCP). In without regard to learning attainment levels, addition to the groups, 4 individual interviews these were articulate individuals who had were conducted with females aged between responded to resettlement and educational 22 and 34 years who were on probation opportunities, and this in turn had appeared to orders, 1 following a prison sentence. Each boost their self-confidence and self-esteem. group interview lasted between 45 minutes and an hour and a half, and each single 128 As one offender in custody remarked: interview between 20 minutes and an hour. The IAG suite is like a comfort zone for me. 125 The objectives of these interviews were: 129 Asked to suggest the best stage of • to explore offender experiences of IAG sentence for IAG delivery, these individuals felt delivery (if any) offenders in custody should be offered advice at different stages of their sentence, but it • to examine what offenders wanted needed to be offenders in custody who chose from IAG, how they would ideally like that time, or they had to know when to expect it delivered and how it fitted with it so they could prepare. One offender said: other educational or work-related activities they undertook People will think about their futures at different stages in their sentence. Some • to consider other issues which could need time to settle in, other have to deal affect the delivery of IAG to offenders with lots of “stuff”, others go to the (barriers, for example) and the most Therapeutic Unit. Each case is different and effective time for delivery. people need to be seen at different times. Perceptions of information, advice and 130 Despite their positive experience of IAG, guidance delivery many felt that IAG advisers could never hope 126 The groups were not homogeneous and to truly understand their situation and often experiences of IAG varied considerably. saw things from a different perspective. Broadly, a third of all those we interviewed had 131 About another third of those interviewed received some type of IAG intervention in the had received some form of formal IAG either past two years, some at more than one through Jobcentre Plus or from education or establishment. Of the 61 males and 4 females resettlement teams. Knowledge and experience interviewed, experience of IAG could be of IAG varied, with some feeling they had been classified in three ways. rushed through interviews, and as one offender 127 Those that had experience of IAG delivery said “pushed through the system like a battery understood the concept and what it was trying hen”. to achieve. They had all received IAG on 132 Others had found it useful, but it had learning and work courses during their either been delivered too late in their sentence sentence. This ranged from information on to be of significant use, or too soon after learning, advice on writing CVs and interview induction when they were still becoming techniques and labour market information. adjusted to prison life. Two offenders serving Most had attended Preparation for Work community sentences had appreciated the courses. Their experiences had been positive, action planning which they had talked through assisted by the encouragement they had with their case officer. Another thought the received from prison staff, and the clear interviewing skills on the Kickstart programme

24 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

to be of particular benefit, making him practise • information on which national skills he had not used for years, and forcing employers were most receptive to him to think through his situation more employing offenders positively. • advice about housing and benefits 133 About 10 offenders had no knowledge of given at the same time as information IAG at all and some did not understand the about work-related subjects concept. One or two believed they did not require advice or guidance at all, just •opportunities to learn about offenders somewhere to stay on release from prison, and who had been successful in finding a job. Some were frustrated that this work or on courses, and a direct link to opportunity had been denied them, but was talk to them personally if possible clearly available to some in other prisons or in •opportunities to use computers to get other areas. Researchers felt that their information and to take computer skills attitudes to IAG were based less on experience courses or capability, and more because of low self- esteem. • Information and advice through one- to-one discussions and fewer group Barriers to accessing services sessions. 134 Offenders were asked what would stop offenders accessing advice and information. Their 136 One offender said: answers suggest that marketing services to I want to be an individual. Everything I do offenders may be a crucial and neglected area. here is with others. I want to speak to • Not understanding what it is or someone by myself. knowing it exists. This, we were told, When do offenders want information, applies to many individuals, particularly advice and guidance delivered? in prisons, although there had seemed 137 Around a half of those interviewed to be more educational opportunities wanted to choose the time for themselves, but in the past six months. if this was not possible then as early as • Not seeing a need for it. Generally possible and preferably when they were having those on community sentences saw the second meeting with the sentencing the need more than offenders in custody, planning officer or case officer. Four individuals but they may well have had more suggested that three times during their opportunities to access services too. sentence offenders in custody should have one-to-one advice sessions with opportunities •Thinking it would be just another for access to help at other times. Many session that achieved nothing. Some expressed the view that it mattered not when of the most disillusioned of those they received information and advice, but interviewed saw IAG as only another knowing in advance what they were entitled to session that would offer little and take and when they would be entitled to receive it too much time. was important. What information, advice and guidance do Offender concerns offenders want? 138 The majority of those we interviewed felt 135 A number of ideas were suggested by that the lack of continuity was the single most offenders, most notably: frustrating thing with all IAG resettlement, • up-to-date information on training and learning and work intervention. One remarked: jobs, skills shortages, qualifications required and wage levels

25 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

There is no continuity. There should be a provision, dependent on facilities at individual database so you know when you come from prisons or the robustness of arrangements another prison or area what tests you have organised by NPS locally. Continuity of done and what training you’ve had. provision and promotion of services are also two major issues. 139 A number of offenders in custody understood the link between better planning and more information and a quicker adjustment to life outside prison, and that it enhanced their chances of not re-offending. However, they wanted more advice sessions and fewer group sessions such as attending anger management courses or “thinking” classes. 140 An offender said: (without help), it’s a bungee rope system; we bounce back in because we leave with the same prospects as we came in with. Suggestions for a more user-friendly information, advice and guidance system 141 Suggestions included: • more use of technology where it is possible •resource rooms in prisons with up-to- date information • visits from recruitment agencies at the same time as IAG advisers • seeing an adviser (the same one) regularly. Overview 142 This section of the report has highlighted some of the most significant findings from the survey. It indicates a very mixed picture of provision dependent on such things as funding, staff knowledge and skill, and local arrangements between agencies, and with different levels of importance attached to such things as formal outcome recording. The call for a greater transparency in IAG entitlement, and a greater and better focused exchange of information and cross-agency working was strongly expressed. Confidentiality issues were raised and the effects of quality standards recognised. The views of offenders indicate that IAG is seen by them as a “postcode”

26 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Section 4: Effective Current Practice

Introduction • current IAG partnership contacts 143 One of the aims of this research has been •representatives of the Adult Learning the identification of effective good practice in Inspectorate IAG delivery to offenders. A bound set of the • the Chief Inspector of the Prison nine case studies detailing evidence of the Service effective practice is provided separately. Table 1 in Annex A provides a summary of these case • local Probation Office managers. studies. 147 Each nomination was contacted for a 144 This section will pull together the preliminary discussion, with some rejected overarching themes from the case study because, though clearly effective, they were experience, and in particular will examine: not sufficiently developed. Table 1 in Annex A details the final selection. It summarises •how case studies were identified and location, context and reasons for selection, and chosen highlights the main effective practice points. It • the messages emerging from their also indicates some of the key challenges experience in relation to delivery, staff identified by practitioners, which they saw as development and inter-agency part of their continuous quality and collaboration improvement cycle. • the extent to which this good practice Key Messages could be transferable to other contexts. 148 An upsurge of activity is taking place 145 From this, identified key principles are, those within many of the agencies and organisations which underpin good practice as demonstrated by connected to this project: the development of the case studies. These principles reflect different NOMS; the changing contractual arrangements aspects of delivery and how service might for IAG partnerships; the effects of sentence respond to individual needs as appropriate, while reform; seamless sentences; the new ensuring that providers meet quality standards. responsibilities of the OLSU and the need for further capacity building to meet these Identifying Case Studies challenges. 146 In identifying and selecting case study 149 Good practice is not about: good practice, the principal criterion was not to secure examples from every region but, as • an optimum management structure far as possible, to obtain a cross-section of •a preferred direction different types of effective delivery in different contexts. Practice was considered which might • mode of interaction. be transferable to other contexts, and which demonstrated principles of sound inter-agency 150 It does, however, demand that decisions working. Case studies were suggested by: about issues are taken, are justifiable and are clear and acceptable to those taking part. The • individual members of the steering best examples we saw were when partners group were all involved in managing to some extent as well as carrying out the work.

27 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

151 Although some case studies were 156 The more successful programmes and complex, many had common threads. One key initiatives illustrated by the case studies message was that each project, collaboration invariably took a systematic approach to or joint activity must find its own level. Many service delivery, most notably in Staffordshire of the strongest partnership case studies dealt and Lincolnshire, but demonstrated in other with several issues, for example, delivery of areas, too. Both offenders and staff knew what IAG and a range of employment programmes was expected of them as individuals, the aims in Lincolnshire, and the multi-agency of the intervention or how achievement in one programmes available in Staffordshire. This area could provide a progression to other called for a flexible approach and the building opportunities. of working relationships over time. There is little evidence from any of the case studies 157 Building on existing foundations to that partnerships had been imposed. advance further collaboration. NPS Thames Valley, which is on the Management Board of 152 There are many “push-pull” factors in the the local IAG partnership, has used this to raise development of partnership arrangements. the profile of its activities with offenders and One significant opportunity is the need to simultaneously develop the IAG and ETE cooperate when bidding for funding. Many of service through co-training with network the collaborations illustrated by the case partners. studies began as necessities, became mutually supportive and are now diversifying into other 158 The use of technology has enabled a means of cooperation including bidding for prison in South Yorkshire to develop its own finance in areas of delivery new to them both. externally delivered IAG services, and make This was evidenced by both the NPS team video-conferencing links to two other prisons examples and the arrangements of Prison in the area. In most cases, it was notable that Service Plus and Bedford Prison. despite the need for risk assessments and supervision of offenders, practitioners were 153 It is also interesting that in many of the constantly looking for ways they could use case study examples, the starting point for key technology to speed up delivery or offer new staff was their determination to overcome approaches to delivery. problematic areas and their willingness to tackle new ways of doing things. Two case 159 A prison in South Devon uses offenders studies, for example, have managed to in custody to help promote the services of overcome the exchange of confidential IAG internally, and has extended the library information and establish precise protocols. to include an IAG suite as a resource area. It is committed to the needs-based approach. The Transferability impact of these measures was support for offenders in custody when serving sentence 154 The case studies offered examples of and often progression to further learning at specific practice with scope for wider the end of sentence. The centre has provided a development. central point of contact for offenders in 155 Co-location of multi-agency teams was custody which is both informative and identified in two case studies (NPS Sussex and reassuring. Prison Service Plus). In both examples, it was felt that this integration facilitated better Underpinning Good Practice communication, ensured that decisions were 160 The case studies indicate a number of made quickly and decisively, that all team actions which underpin good practice and members felt valued and consequently took a which enable effective working practice to more active role in service delivery. develop regardless of individual aims and objectives. We suggest that from these experiences have emerged 10 key principles,

28 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

which underlie all aspects of IAG practice and • Local agencies undertake joint are coherent with quality standards activities such as training and frameworks. development to enhance competence and develop existing cross-agency •There is local management of relationships. appropriate agencies committed to both the concept and the delivery of • Benchmarking against standards is part IAG services, actively supporting of quality assurance and improvement, operational delivery and fully involved and resources are obtained to meet in disseminating achievements. any shortfall. •Roles and responsibilities of staff across Overview different agencies are well understood by the practitioners themselves, 161 This section has concentrated primarily on including the contexts under which looking at the effective practice of the nine each is operating. case studies. A profile of these, and the key messages which came from the practice they •Offenders are treated and respected as demonstrated, has been explored together individuals and supported in exploring with transferability. Ten key principles of good options and making choices. practice were suggested, against which practice could be measured and evidenced. •Offenders are acknowledged as having the capability to be rehabilitated into the community and progress as individuals making use of available services and regardless of race, age, sex, or disability. •There are effective links with employment opportunities and progression routes into learning to which offenders are clearly signposted. Offender progress is subsequently tracked to identify positive outcomes. • Assessment of needs happens at an appropriate time, when offenders can obtain the maximum benefit from the subsequent appraisal. • ICT is used appropriately and includes both familiar media and new technologies, and there are arrangements for sharing the results of use with other agencies (within data protection legislation) •Systematic monitoring and robust evaluation of all activities enables impact to be judged more efficiently and results to be integrated into future planning and quality measures.

29 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Section 5: Conclusions and Areas for Consideration

Introduction initiative, with local delivery partners (for instance, IAG partnership, Prison Service, or 162 A successful strategy to deliver IAG to NPS staff) successfully bidding for short-term offenders will require all organisations to work funds (for example ESF). While such local together to secure coherence and necessary enterprise and networking are to be improvements in service quality. encouraged, service delivery cannot depend 163 With regard to the development of this long term on such insecure arrangements. strategy, the creation of NOMS is highly 168 Within the Prison Service, IAG is currently significant in securing greater cohesion in often not viewed or understood by many as a service provision for offenders in general, and coherent set of services. In some case study recent announcements by the DfES and LSC prisons, for example, commitment is strong on IAG policy provide clear service and offenders clearly receive a good-quality entitlements for all adults, including offenders. and organised service. In the best of these (as 164 This final section summarises the current indicated in Section 4) there is a clear state of IAG provision for offenders, makes commitment to a multi-agency and holistic suggestions with regard to a service approach. However, it was evident from the development model and provides survey and other evidence that in some other recommendations to build stronger working establishments IAG services are hardly visible relationships between key partners to facilitate at all. a more integrated system. 169 This situation is compounded in the estate overall because the turnover is high in Information, Advice and some categories of prison, and offenders are Guidance Services for Offenders: subject to being moved to another prison at the Current Picture short notice. 165 The research indicates there is a wide 170 The new Heads of Learning and Skills variation in the level and range of IAG services posts have already started to have an impact to offenders. on provision. However, much further work is required to dovetail resettlement, education 166 Whilst we have identified some sound and learning and IAG within most prison practice and effective working relationships regimes. This situation is not currently within the case studies, secondary research, supported by a strong culture of “knowledge survey and fieldwork evidence indicate that management” whereby the best of current provision overall is fragmented and appropriate practice in these areas can be freely shared standards (for example, the matrix Standard) and promoted. are insufficiently used. 171 In the NPS, similarly, there appears to be 167 Furthermore, necessary development work some confusion amongst staff about the is not supported by consistent or adequate nature of IAG and how it can make an funding streams. Too often, where innovation effective contribution to resettlement. A has occurred this has been dependent on local

30 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

number of those consulted as part of the that they saw IAG as a significant extension to research indicated that IAG can get crowded other existing support. out by other priorities and the need to achieve targets. In those areas where IAG delivery is 177 Greater coherence may be particularly undertaken by a contracted-out service, and/or critical for short-term offenders in custody they are not co-located with the local since there is no official statutory requirement Probation Team, there is less opportunity to for post-release supervision, and they have the gain an understanding of what IAG is trying to highest re-offending rates. Current sentencing achieve. policies have made fewer distinctions between different types of offender in terms of 172 In some NPS areas (Thames Valley, for assessing education and learning needs. Better example), the in-house team delivery of IAG is coherence, together with a clearer focus on fully integrated with local IAG services, has offender entitlement, may help to overcome strong links with local businesses and has a some of the problems related to this category useful ICT resource. The partnership of offender. arrangements here are strongly energised by senior management commitment, and these Proposed Information, Advice examples provide a strong steer as to possible and Guidance Development ways forward for future development. Strategy 173 Within local IAG partnerships, there is 178 Building on progress made to date, it is frequently a lack of knowledge about the proposed that the IAG strategy for offenders criminal justice system and how it operates. should have three major strands. Work with offenders is often undertaken exclusively by one or two staff, and/or Minimum entitlement delivered by the voluntary sector. 179 The IAG Strategy for Offenders should contain a minimum entitlement to IAG 174 Overall, a lack of experience of sustained services for all offenders. inter-agency working (caused in large part by lack of consistent funding and guidance) linked 180 The minimum entitlement should indicate with a lack of a shared appreciation or at every stage of sentence from induction understanding of the potential of IAG in onwards – regardless of whether sentence is enabling effective progression, have ensured custodial or community-based – what services that sustainable development in this area offenders should receive, and should be remains largely a policy aspiration rather than consistent with the DfES National Policy an actuality. Framework and Action Plan. Offender Needs and 181 Guidance should be developed for all Expectations agencies and organisations detailing the roles and functions of national organisations, and 175 On the basis of the fieldwork undertaken, the regional and local partners concerned with many offenders appear to be confused about IAG delivery to offenders. This guidance should IAG and what it can offer. include: 176 However, when they see clear links to • definitions of IAG services to be achievement (for example, to work and delivered learning), they embrace it willingly. For many we interviewed, IAG has become the conduit •responsibilities (regional and area) and to a learning and education structure that they funding streams had previously not known. Many offenders • lines of accountability for different made a plea for greater clarity in what they aspects of IAG services could receive and from whom, and indicated

31 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

•protocols to underpin local agreements •providing robust evidence of best practice and impact to demonstrate a • arrangements with regard to quality business case for work with offenders. assurance and monitoring. Resource and capacity building Recommendations 182 To take the strategy forward an audit 185 To assist the LSC and OLSU to work with should be undertaken on a regional or area other key agencies and partners to develop and basis of current provision. This should map implement a practical IAG strategy, we make provision against the user entitlement, identify the following seven key recommendations: the extent of current delivery in defined areas • adoption of a development strategy and what is needed to bridge any gaps or capacity shortfalls to meet the minimum • increased ICT or telephone access to entitlement. This should: IAG for offenders • show existing contractual and •greater use of existing technologies partnership arrangements on a regional and local basis •review of work by providers in the light of the new contracting arrangements • detail the integration or progression from IAG to learning and resettlement, • establishment of a tracking team to if known. operate at regional and national levels 183 A sustained programme which builds •review of staff training and capacity within agencies to deliver the IAG development needs strategy should be planned ensuring that: •research into the value and impact of • sufficient depth and breadth of skill is IAG on re-offending rates. available within each delivery agency These recommendations are detailed in •premises and equipment are adequate paragraphs 186 to 193. to deliver the minimum service 186 A development strategy (as set out in entitlement Table 4) is adopted based on the 10 key • there is a provision for building staff principles for good practice set out in Section awareness and engagement though 4. This would have four key themes: better communications. •reviewing current departmental policy Developing an investment culture or strategy in this area 184 A programme of development activities •achieving greater coherence should be commissioned which aims to demonstrate the benefits of IAG by: • meaningful collaboration • planning a series of development • service quality. projects to allow staff to develop new 187 As indicated in Table 4, this strategy has service delivery models to deliver national, regional and local dimensions and outcomes envisioned by the IAG decisions will need to be made as part of the strategy cost-effectively IAG strategy about how each are managed. • showing how a stronger focus on 188 As new IAG services develop as part of sequential interventions in the delivery national service development plans, offenders of IAG to offenders can be economically will need increased ICT or telephone access viable as well as beneficial to individuals and NOMS will have to consider how this can best be effected.

32 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

189 Furthermore, in considering how to deliver 192 Staff training and development needs IAG most cost-effectively, a greater use of to be carefully considered and reviewed and a existing technologies such as television is skills audit undertaken of existing capacity and recommended as one method of delivering measures to address both identified skill some elements of IAG to offenders. shortages (which affect recruitment) and skill gaps of existing staff. 190 The new contracting arrangements for IAG provision at a local level offer fresh 193 The value of IAG in addressing offenders’ opportunities for organisations concerned to learning needs and facilitating their review their work with offenders, many of progression should be adequately researched whom are within the core target group with through the identification and dissemination qualifications below NVQ at Level 2. At the of good practice, and its impact on re- same time, the type and level of service offending rates identified to provide the requirement for those with higher-level business case for further investment. qualifications need to be considered and determined. 191 A tracking team is established which could operate at a cross-regional and national level to ensure that offenders’ IAG needs are being met and progression routes identified.

Table 4: Suggestions for improvement in IAG strategy or delivery

Theme National Regional Local

Review of Protocol framework for Development of protocols Review of existing IAG policy or exchange of to fit with regional arrangements for short-term strategy information strategy offenders in custody on release or intermittent Audit of transition Mapping of current ICT custody arrangements between provision to consider young people and adult transferable practice Ensure sentence planning services policy in line with IAG

Achieving Regional practitioner Audit of existing delivery Consideration given to co- greater forum to include services to consider location of IAG delivery with coherence Jobcentre Plus current gaps and overlaps NPS staff

Meaningful Strategies to ensure Development of multi- Heads of Learning and Skills, collaboration better joint working agency partnerships to Resettlement Managers and arrangements between deliver IAG and learning, ETE Probation Managers Jobcentre Plus and education and basic skills meet regularly with IAG criminal justice system providers and local LSCs to agencies consider delivery issues

Service Guidance on quality Regional forum for Development of learning quality standards framework. exchange of effective passports for offenders practice Review of continuing Robust monitoring and professional development evaluation to determine for those in criminal impact and improve processes justice system

Source: HOST Policy Research, 2004.

33 Information, Advice and Guidance Supporting Offenders in Custody and in the Community

Overview 194 The research calls for a clear national direction, more systematic delivery, more staff development and inter-agency engagement, to deliver an IAG service for offenders which has defined entitlements, backed by robust monitoring and review. 195 The further development of consistent high-quality IAG provision for offenders has the potential to be a highly cost-effective way of maximising NOMS’ investment in offender learning and skills development and in potentially reducing rates of re-offending.

34 ealistic planning setting ecommendations Good practice points Good practice R goals achievable in offenders Developing and as volunteers custody within the IAG suite orderlies self-confidence encourages advanced, very Networking of specialist enables variety active help through with other collaboration agencies to staff approach Creative including work- development and secondments shadowing reviewed Learner experience in line with systematically quality standard r y challenges ansition arrangements hich have not been hich have w Ke Tr finalised fully stronger Developing links with other prisons video to Producing IAGpromote services will which internally time and resources take Standard matrix ducation Department egular surgeries obcentre Plus,obcentre Bureau Advice Citizens Summary of service delivery with shared room resource Extensive E J (CAB), hold Work to IAG and Progress r than target-led rather Prison-centred has Prison accreditation IAG support have at defined Offenders of sentence stages and Use of information technologycommunications (ICT) by under encouraged in custody offenders supervision being developed Impact evaluation ontext ollaborates with other ollaborates C Channings Wood, a with C prison category in 650 offenders custody, therapeutic abuse and drug unit for treatment offender sex programme. C and partners to agencies comprehensive offer information, advice and guidance (IAG) and educational facilities Location South Devon Case study number 1 ble 1: Summary of the case studies Ta Annex A: Annex Summary of Case Studies

35 Annex A: Summary of Case Studies ective use of recording ective ork of team in the prison is ork of team in the prison f o-location of team at same or ways to improve,or ways offer C site W with existing integrated fully seeking to programmes enhance and not compete and Expectations of both staff clear at delivery are offenders fewer outset ensuring disappointments at later stages looking constantly Programme f and link to flexibility greater other partners or programmes Good practice points Good practice of learning Development styles to further all skills including basic development skills Ef to use of linked information Assessment Offender System (OASyS) and peer learning Mentoring been have systems which to basic skills needs linked y challenges esettlement challenges xpectations urnover of offenders in of offenders urnover Next stage of stage Next which will programme team and enlarge activities funding for Securing stability of longer-term the programme to programme Offering offenders more Ke T 6 – between custody single day and 20 in any R concerned with finding in custody offenders accommodation prisoner Managing e y elements of the Prison Service Plus y elements of the Prison esettlement has a high profile and esettlement has a high profile A multi-agency approach managed approach A multi-agency and involving Warrington from all major agencies, secondees from and Connexions including Nacro Ke include basic skills programme screening, assessment, motivational interviewing, skills, job search careers advice, and housing advice pre-release senior National Probation Currently attachedService (NPS) officer to the team.management 2004, From links with NPS includes stronger Summary of service delivery of IAG and learning range A broad including peer learning,provision support self-esteem,personal for skills internal staff by delivered development Plus Jobcentre with specialist help from and Nacro R with an included working development learning consultant who accelerated to assist both staff has been engaged in custody and offenders ontext A major ESF-funded operates which project 28 across establishments in the estate prison C Bedford,HM Prison a B local prison category with a capacity of 464 Prison Service Prison Plus from (managed Cheshire) Location Bedfordshire 3 Case study number 2 ble 1: Summary of the case studies (Continued) Ta

36 Annex A: Summary of Case Studies hange of information hange c aluation procedures in place aluation procedures ansition stages between YOT between ansition stages Good practice points Good practice agreements Clear service level all agencies, by agreed for including protocols ex and formative Monitoring ev Using specialist IAG a has facilitated practitioners and skills transfer knowledge to other agencies Tr a clear and adult services have procedure Good links with local and professional employers bodies to longer- Goal setting central of term achievements offenders y challenges aluation to prove esistance within prisons Ke systematic More ev impact and need Dealing with cultural r of IAGto the delivery to offenders better premises Securing to deliver within prisons services and use for and interviews supervised ICT delivery hich is flexible and client-needs-led hich is flexible eam developing a form of learning a form eam developing Summary of service delivery by delivered IAG services to offenders staff, and non-probation non-prison with in close harmony but working their staff of IAG leads on to a range programmes employment-based the same teams, by organised including Skills programme, the Employment Kickstart and Skilled Up (the latter for as induction clients) as well YOT the work and pre-release national quality mark for awarded LAT its advice and guidance provision, w T by passport can be taken which from in custody offenders establishment to ontext elated support to those C organisation, A charitable Trust Action Lincolnshire with NPS, working (LAT) and HM Prisons Youth Lincolnshire to (Yot) Team Offending IAG and specific provide r serving both community and custodial sentences. include both Prisons D and category category B prisons Location Lincolnshire Case study number 4 ble 1: Summary of the case studies (Continued) Ta

37 Annex A: Summary of Case Studies orking with South Yorkshire orking with South ideo conferencing facilities ideo conferencing egular meetings and elease to identify impact and Good practice points Good practice with works IAG deliverer staff,prison also SOVA, to holistic service to deliver offenders V other local links with two prisons R all between communication and partiesagencies involved in delivery W to Partnership Offender submit joint bids for additional funding follows provision Mainstream post- up inmate progress r job outcomes y challenges ailable only to some ailable only Ke Methods for of impact measurement of IAG and subsequent learning a learning Developing clients to for portfolio to transferred when take another prison of numbers Increasing participants in currently programmes av Standard achieved by delivering by achieved Standard of the Jobpoint pilot schemeof the Jobpoint

o major programmes for offenders for o major programmes rt ppropriately qualified IAG team. ppropriately ecognised as example of good as example ecognised Home Office by esettlement practice Summary of service delivery of Substantial systematic programme in to offenders IAG services offered core funded from largely custody and Connexions budget Tw sentence. during delivered in custody 20 new for Induction programme per week, in custody offenders and 1 in in custody offenders 6 of discharged programme part in pre-release take A programme to Release Gateway r r Pa in this prison,operates links with which all IAG work matrix organisation ontext onnexions and IAG onnexions C Moorland,HM Prison a and D prison category contracting Open Prison out IAG services to an also which organisation for has contract C partnership locally Location South Yorkshire Case study number 5 ble 1: Summary of the case studies (Continued) Ta

38 Annex A: Summary of Case Studies egular communication with egular communication ully integrated with IAG integrated ully ormal team and joint agency oint training with IAG oint training Good practice points Good practice F partnership including on local board management J partners programmes Structured R (informal) case workers F meetings ets which are not ets which are y challenges ntinuity in time of ntinuity rg eared to offender eared Ke Co needs staff changes and changes staff re- organisational organisation contact regular More service with prison Ta g ntinuity and transition arrangements and transition ntinuity ecognised development opportunities development ecognised ormal contract with IAG partnership ormal contract Summary of service delivery by area across IAG services delivered qualified in-house team R all qualified are who to staff offered guidance workers with some use of ICT Innovation action plans with all have Offenders short and long-term goals work group Some IAG by delivery Co defined F ontext ormal contract with ormal contract C of IAG by NPS delivery have in-house team who f local IAG partnership hames Valley Location T Case study number 6 ble 1: Summary of the case studies (Continued) Ta

39 40 ne :SummaryofCaseStudies Annex A:

Table 1: Summary of the case studies (Continued)

Case Location Context Summary of service delivery Key challenges Good practice points study number

7 Staffordshire HM Prison Stafford, a IAG services delivered in collaboration Securing funding to Close collaboration between category C prison which with local agencies including Jobcentre continue the successful IAG advisers and HM Prisons houses 640 male Plus, IAG partners programmes in the resettlement teams offenders in custody county Resettlement and rehabilitation work Jobcentre Plus offers extensive IAG links to HM Prison established over many years Meeting demand for range of advice pre-release Drake (women’s prison) IAG and educationally Prison involved in Prison Service Plus linked services Group work and motivational programme courses offered through securing funding through Funding secured to undertake through national pilots (joint bids) Learning and Skills Council’s (LSC’s) Quality Development Fund Regular and transparent communication between Contract with Business Enterprise agencies Support to provide pilot group sessions programme Senior management support at all agencies Drop-in facility for offenders in custody after release Delivery does not rely on small core team but a number Community Fund project (Clinks) in of contributors with skills and partnership with voluntary or knowledge to meet needs of community sector locally offenders Enhanced Services Pilot delivered at Drake Prison by IAG partnership seeing 12–15 individuals a month Table 1: Summary of the case studies (Continued)

Case Location Context Summary of service delivery Key challenges Good practice points study number

8 Sussex Local area county-wide County-wide IAG service delivered by Accommodation to Effective agency working NPS voluntary sector agency to all provide more facilities across Jobcentre Plus, offenders serving community and resource centres for voluntary sector and NPS and Delivering IAG services sentences and those on release from offenders joint location with NPS gives through external contract prison who need support regular access to case worker Protocol development staff Very systematic team approach to with Jobcentre Plus learning and education services and Transparent, systematic recognised for quality and flexibility Introduction of National approach with robust Offender Management monitoring of services Delivers a contract for Jobcentre Plus Service (NOMS) (pilot) for a target number of jobs for Senior management support offenders, sustained employment and strong achievement of qualifications Co-located team is thought of as critical for success

Qualified advisory staff, offered development opportunities regularly ne :SummaryofCaseStudies Annex A: 41 42 ne :SummaryofCaseStudies Annex A:

Table 1: Summary of the case studies (Continued)

Case Location Context Summary of service delivery Key challenges Good practice points study number

9 Hertfordshire HM Prison The Mount, Range of external IAG specialists assist Securing or maintaining Prison Governor actively and category C plus prison staff in delivery of a package of funding to sustain openly supports all activities establishment activities which are offered from current activities to facilitate better IAG and induction to pre-release education delivery Improving liaison with Prison Service Plus is active within this NPS IAG takes place at defined prison. Also Career Workshops pilot – a points of sentence programme of five weeks’ group Enabling larger numbers guidance work designed to enhance of offenders in custody IAG activities underpin computer literacy to take part in sentence planning successfully piloted A European Social Fund project programmes Informal discussions with peers (supervised) prior to formal job search and assessment pre-release

Offenders in custody actively encouraged to research information themselves

Source: HOST survey, 2004 Annex B: Glossary

Abbreviation or term Meaning ALI Adult Learning Inspectorate C2E Custody to Employment C2W Custody to Work CABCitizens Advice Bureau CARAT counselling, assessment, referral, advice and through care CfBT Centre for British Teachers DfES Department for Employment and Skills Director The governor of a private prison EKP Employment Keyskills Programme EP Employment Pathfinder ESF European Social Fund ETE employment, training and education EYS Education and Youth Services FE further education FTC Foundation Training Company G2R Gateway to Release GAB Guidance Accreditation Board HE higher education HOST HOST Policy Research IA contractors information and advice contractors IAG information, advice and guidance ICCP Intensive Change and Control Programme ICT information and communications technology KPI key performance indicator KPT key performance target LAT Lincolnshire Action Trust LSC Learning and Skills Council LSDA Learning and Skills Development Agency MAPPPs Multi-Agency Public Protection Panels matrix Standard the matrix quality assurance standard NOMS National Offender Management Service NPS National Probation Service NPSTV National Probation Service Thames Valley NQSLW National Quality Standards for Learning and Work NVQ National Vocational Qualification OASySOffender Assessment System OCA Offender Observation Classification and Allocation In the context of this report, anyone who as been found guilty by a court (other than for a minor motoring-related offence), even if they have completed their sentence OLSU Offenders’ Learning and Skills Unit PC personal computer PS Plus Prison Service Plus RTRL Real Times, Real Life TEC Training and Enterprise Council Ufi University for Industry YotYouth Offending Team

43 Annex C: Bibliography

Farrall, S. (1995), “Why Do People Stop Offending?” Scottish Journal of Criminal Justice Studies 1(1), 51–59. Farrall, S. (2002), Rethinking What Works with Offenders: Reducing Re-offending by Ex-prisoners, London: Social Exclusion Unit. Home Office (2003), Crime in England and Wales, London: Home Office. LSC (2003), Successful Participation for All: Widening Adult Participation,Coventry: LSC. LSDA (unpublished), Local LSC Arrangements for Offenders, London: LSDA. Parsons, D., Bysshe, S. and Barry, J. (2003), Effective Working Relationships Between IAG Partners and National Agencies, HOST Policy Research for LSC. Social Exclusion Unit (2002), Reducing Re-offending by Ex-prisoners, London: SEU.

44 Notes

© LSC November 2004 Published by the Learning and Skills Council. Extracts from this publication may be reproduced for non-commercial educational or training purposes on condition that the source is acknowledged and the findings are not misrepresented.

This publication is available in an electronic form on the Council’s website: www.lsc.gov.uk Publication enquiries: 0870 900 6800

Reference LSC/AA000/1198/04