RSA TRANSITIONS… Building a rehabilitation culture Rachel O’Brien John Marshall Roland Karthaus

2014

www.thersa.org Contents

Acknowledgements 

Foreword 

. Summary 

. Background and context 

. The Transitions model 

. Rehabilitation capital and culture 

. Space for change? 

. Transitions Humber  2 Main report Acknowledgements

RSA Transitions has been a collaboration from input requires a mention: Matthew Grove, the its inception and could not have developed Humberside Police and Crime Commissioner without very many others. However, the views (PCC) for launching the project and his deputy, expressed here – and any errors – are the responsi- Paul Robinson; Kevin Sharp and the rest of the bility of the authors alone. PCC team for their continued support; Lord We are grateful to the Esmée Fairbairn Haskins, Chair of the Humber Local Enterprise Foundation, the Tudor Trust and the Garfield Partnership (LEP); Robbie Walker-Brown of Weston Foundation for their vital funding sup- the Humberside Criminal Justice Board; Peter port. We would like also to thank Fellows, who Wright, Kate Munson and Ian Ware of the through their donations and participation make Humberside Probation Trust; Bev Callery of the the RSA the organisation it is. In particular, we Lincolnshire Probation Trust; Tony Margetts, would like to thank those who attended the dinner Carl Duck, Alan Menzies and Paul Bellotti of in 2012 to mark the re-opening of the RSA’s Great East Riding Council; Steve Brooks of NHS Room, and to the RSA’s President, HRH Princess England; Dougie Dunsmore-Dawson of RAPt Anne, for hosting this event, the proceeds of which (Rehabilitation for Addicted Prisoners Trust) came to Transitions. and his inspirational graduates; Mary Devane The RSA has a proud history of supporting of Her Majesty’s Prison Service; Sue Walton innovation and creating new institutions. It takes and Rachel Cook of the Manchester College; a particular kind of organisation to take on such Ian Smith from the Gelder Group; Geo Ogden a venture when the outcome is potentially as and Paul Cheeseman of the Tribune Trust; the uncertain as it is important. We are grateful to Charlie Spencer Group; Lynne Richardson of the executive team and Trustee Board for backing Hull College; Councillor Jackie Cracknell; Libby such a complex and ambitious project in what is Goodacre from the Royal Horticultural Society; a controversial area of policy. Steve Broome, the Terry Smithson from the Yorkshire Wildlife RSA’s Director of Research, has been an invalu- Trust; Pippa Robson and Kath Jones of the able advisor and friend throughout, and Rowan North Bank Forum; and Jackie Goodman, from Conway and Janet Hawken have helped to distill Hull School of Art and Design, Hull College. a complex project into this report. We are grateful to the local communities of Beck There is a small group of Fellows who have Road estate, North and South Cave for their been part of Transitions from the start: Philip patience and input, and to the parish councillors Emery, Doug Hook, Robert Morrall and John who represent them. Podmore. This project is as much theirs as ours; The Transitions team started with a core team we are grateful to them for helping us to shape the of Caroline Dykes (seconded from HMP Humber) idea and, subsequently, for bringing their expertise and Muktar and Akhtar (who when employed and insights to the advisory panel. Thank you by us were serving prisoners). They have not just to David Archer, Lord Best, Nina Bolognesi, worked extremely hard under pressure but have Kath Dalmeny, Shadd Maruna and Hugh Rolo made the oce a really good place to be. We who also agreed to join the panel. Together, this would like to thank those who have joined us since group has asked the dicult questions at the right as sta or as volunteers: Lynn Benton, Dee and time, provided support when we needed it and Tim Bloom, Nick Butler, Jonathan Hall, Leanne all without ever losing enthusiasm. A number of Cable, Catherine Hoyes, Annette Hurley, Amy national organisations have helped us to draw on Marin, Karen Roberts, Bethany and Steve Skinner, innovation elsewhere: in particular John Sargent Alan and Susan Whitehead and Adam Wright. and Peter Mitchell of Ideas Mine, and Conal Our surveyors, Alistair Russell of Ian Sayer & Devitt of TGL TV. Co and Byron Phelps have helped us to understand In Yorkshire there are too many people the buildings and land we have to work with and to thank individually. There are some whose the costs of bringing these back into use. They

Building a rehabilitation culture 3 have managed to bring to life their potential. Page who have proved invaluable in helping us to We are grateful to Martin Coates and the MoJ’s understand the prison. We are indebted to Jennifer estates team for their advice and input. Fleming for her eciency and unshakeable Finally, we would like to thank all the sta and positivity. prisoners of HMP Humber, who have helped us None of our work would have been possible despite facing years of uncertainty, significant without Governor (and RSA Fellow) Ed Cornmell. changes in the policy landscape and having to We are incredibly grateful to him for bringing respond to cuts in resources. We have added to us to East Yorkshire, for always responding to people’s daily pressures and asked endless ques- our demands with flexibility and a great deal of tions; sta and prisoners have welcomed us and patience. But most of all for his commitment to we have benefitted enormously from their insights rehabilitation, and his ethical and practical vision. and ideas. We are grateful to those who took part This has helped us to keep the faith and under- in workshops and surveys and to the group of stand how Transitions could not just work with ocers and prisoners who helped us to set up the the prison but become part of a wider strategy to oce; this has provided us with the information strengthen a culture of rehabilitation. we need and a nice space in which to digest it. Transitions emerged from earlier RSA work, We are grateful to Amy Rice and Paul Baker which highlighted the frustration and powerless- (Deputy Director and acting Deputy Director of ness that many service users and practitioners Custody for Yorkshire and Humberside); to HMP felt about the policy debate surrounding criminal Humber’s Senior Management Board and the sta justice services. Our approach seeks to influence who have worked with us: Matt Ashcroft, John national policy through developing a model co- Ballantyne, Rob and Steve Cable, Steve Coeld, designed with service users, frontline practitioners Mick Davy, Jim Dunn, Paul Foster, Dave Gillett, and local communities. We have been struck by Phil Goldsmith, Tina Inverarity, Sarah James, people’s willingness to participate and the breadth Tarryn Ledgard, Sarah Newell, Ian Nickolay and and depth of ideas and knowledge. These have Jenny Pugh. Thanks in particular to Barry Halls, shaped the project to date and we hope Transitions Lee Scholes and Steve Shackleton for all they have will become an initiative that engenders in people done. The team has had the benefit of working a sense of pride and ownership. closely with prison ocers Jason Dean and Mel

4 Main report Building a rehabilitation culture 5 Foreword

Since we embarked on RSA Transitions, I have on often lies in the social networks and institutional occasions been met with responses that amount settings that shape our norms and expectations, to: ‘yes, sounds great, but why the RSA?’ The and through which we pursue our goals. I believe question is a reasonable and important one, not that what we are trying to do with Transitions just for me as Chief Executive, and for funders speaks to these insights. and partners, but also because the answer The people who end up in prison are often those demonstrates the extent to which this project with the least ability to live the lives they wish to or speaks to the RSA’s distinct approach to the to contribute to the greater good. Increasing their major social challenges we all face. Transitions ability to do so is critical to their wellbeing, to their has developed alongside a strategic review aimed families, public safety and spending. In exploring at refining the RSA’s central idea of how it sees this, Transitions builds on the RSA’s past work, itself, the world and the future: the Power to including its Commission on 2020 Public Services.2 Create.1 Underpinning this is the notion that by This concluded that more public investment should unleashing the deep desire of billions to turn be evaluated in terms of a ‘social productivity their ideas into reality we will not only stand a test’: whether it builds individual and community better chance of solving our biggest problems but engagement, resilience and reciprocity. It argued will become a more fulfilled and happier species for a greater focus on demand management, in the process. preventative and innovative services, and devolving Our perspective starts from the simple insight decision-making or co-creating services with local that meeting these challenges will mean that areas and local people. This speaks to the RSA’s not just policies and practices but people will organisational model and mission: to understand need to change. To close the gap between our and develop policies, institutions and new ways of collective social aspirations and the trajectory on working that untap the potential collective power of which current ways of thinking and acting place citizens to create their own solutions. Embedded in us, we will need to develop a new model of 21st this thinking is the question of how public services century citizenship. In short, we need citizens who innovate and the role that service users, employees are more engaged, resourceful and pro-social. and communities can play. Engaged, not just participating in decision- Transitions draws upon the RSA’s Whole making but recognising our own responsibility Person Recovery work, which seeks to significantly and role in forging social progress. Resourceful, improve recovery outcomes for people experienc- not just better at meeting our own needs but ing substance misuse problems and to influence more creative, enterprising and entrepreneurial in policy to this end. The emerging theory of generating new solutions and forms of economic ‘recovery capital’ provides a more holistic founda- activity. Pro-social, not just obeying the law but tion on which to develop collective strategies that also contributing to collective wellbeing through can spark and sustain recovery. We have explored volunteering, philanthropy and a positive attitude such an approach in relation to rehabilitation and to our fellow citizens. desistence from crime. Transitions is designed to The RSA’s focus is resolutely on the individual understand the institutional and wider community – their capabilities and their responsibilities – and context in which rehabilitation takes place. In the need for citizens to be ‘the kind of people who seeking to provide a transitional space between can create the future they say they want’. We see the closed system of prison and the community, it individual dispositions as reflecting more complex emphasises the need for individual transformation and often competing instincts and aspirations, and and for more of us to be involved in the business believe that the key to releasing human capability of rehabilitation.

6 Main report The RSA’s independence, multi-disciplinary approach and pragmatism is well suited to exploring policy, like criminal justice – an area of considerable complexity – that gets bogged down by simplistic arguments, controversy and polemic. Transitions aims to close the gap between what we say we want (less crime and money wasted, more rehabilitation) and our resistance to change. Our feasibility study set out to assess whether we can create Transitions in practice. The ultimate test will be whether this approach changes the behaviour of the people it works with and reduces reoending. If it succeeds in proving that better connecting prisons and prisoners to the wider networks and resources they need improves public safety, and that the model is replicable, we hope Transitions will help to build the political capital and leadership needed for governments to pursue what works.

Matthew Taylor, Chief Executive, RSA

Building a rehabilitation culture 7 8 Main report 1. Summary

“ A calm and dispassionate recognition of the rights of the accused against the state, and even of convicted criminals against the state, a constant heart-searching by all charged with the duty of punishment, a desire and eagerness to rehabilitate in the world of industry all those who have paid their dues in the hard coinage of punishment, tireless eorts towards the discovery of curative and regenerating processes, and an unfaltering faith that there is a treasure, if you can only find it, in the heart of every man, these are the symbols which in the treatment of crime and criminals mark and measure the stored-up strength of a nation...” Winston Churchill, 20 July 1910

Does prison work? points since 2000.4 Adults who served sentences The prison system has three core functions – to of less than 12 months re-oended at a rate of punish, to protect and to rehabilitate – which it 58 percent compared to 34 percent for those who is charged with undertaking in a humane and served sentences of 12 months or more. Since transparent manner. Prisons serve well their basic 2005, the overall rate for those released from function of incarcerating oenders, implementing custody has remained relatively stable at around the punishment handed down by courts. Indeed, 46 percent to 50 percent.5 the prison population in England and Wales has These figures are brought into relief by the grown in the last 20 years, from around 44,000 costs of reoending, which are estimated to in 1993, to over 84,697 people on 25 April 2014.3 be between £7–10bn a year.6 While the prison The Government has announced plans to extend population rose marginally between 2011/12 and the capacity of the prison estate by 9,500 places 2012/13 (by around one percent), the average cost (to 96,000). per prisoner per year was reduced marginally (by The prison system’s role of protecting the around two percent) but still stands at £34,766.7 public is in part met through giving communities This average masks considerable variations and respite for a period of time. But just as the prison in part reflects the round the clock nature of population has grown, so has the recognition incarceration as well as the range of issues that that too often the system acts as a revolving door; services need to address. calling into question how successful our current There is a high correlation between national approach is in delivering longer-term public levels of inequality and the percentage of the protection and rehabilitation. population incarcerated, and those people who According to the Ministry of Justice (MoJ), spend time in custody are by no means made up the proven re-oending rate for adult oenders of a cross section of the population.8 While those released from custody between July 2011 and June who end up in prison are not a homogeneous 2012 was 46 percent, a fall of four percentage group, they are more likely to experience (before

Building a rehabilitation culture 9 and after custody) poverty, unemployment, a space for new approaches? Our aim was not to homelessness, mental health issues, substance produce (another) critique of the prison system misuse and dicult family backgrounds. These with a list of policy recommendations for govern- multiple needs are reflected in the National ment. Rather it was to look at what seemed to be Oender Management Service’s (NOMS) seven working and bring together people’s knowledge pathways of intervention (see page 27). They and ideas with the aim of setting out a ‘vision for highlight the need for a ‘whole person’ approach the 21st century prison’. based on people’s range of needs and capabilities This work resulted in the 2011 RSA pamphlet and a whole system approach designed around Transitions.10 It argued that within the prison and this. This of course underlines the importance wider justice system there were pockets of innova- of tackling the wider contributing factors that lie tion that seemed to be securing good outcomes by beyond the gift of justice services; prevention is focusing on prisoners’ capacities, not only their always better than cure. deficits, by utilising technology in learning and However, sending someone to prison is not the social enterprise approaches to skills and work, end of a process but one of a series of potential and by engaging the wider community, prisoners, interventions that can either help or hinder ocers and ex-oenders in design and delivery. rehabilitation. This may seem obvious but there is The report identified three related challenges: not consensus on this issue. There are those who believe that prison almost always increases levels . While there is some data and a broad of reoending and who would like to see a reduc- consensus about some of the types of tion in the use of custody and an end to short interventions that work best – helping sentences. Others are less interested in rehabilita- prisoners to secure employment and tion and are more focused on deterrent eects and maintain relationships with family, for removal, arguing for more frequent use of custody, example – the evidence base on impact longer sentences and harsher conditions. on reoending levels remained patchy, The RSA did not set out to address these leaving funders and commissioners debates directly. However, three assumptions unable to compare the value added by underlie our work. First, that the stubbornly high individual interventions and the public level of reoending is not inevitable, and that without faith in what works. making further headway in reducing the number 2. The yawning gap between people’s of victims of crime requires a stronger emphasis concern about crime, our rapacious on rehabilitation. Second, and here we echo consumption of crime fiction and Churchill’s sentiments, that the grave responsibil- frightening headlines, and the realities ity given to the state in meting out punishment of the often more mundane, opaque and through removing someone from society, places on complex nature of the justice system. that society – beyond the state – a duty to main- 3. The fragility of those (largely uncel- tain the ‘heart searching’, the desire and eagerness ebrated) pockets of innovation, which to rehabilitate. Third, that the removal of people often depended upon an enlightened from their community is the punishment and it is partner, a (short-term) funder, or on in all of our interests to focus our attention on the an individual prison governor or ocer question of how we want the 80,000 people who ‘going the extra mile’. leave prison each year to emerge. These factors combined suggested that there A 21st century prison was little prospect for the systemic changes With these assumptions in mind, in 2010 the RSA needed. began working with a group of Fellows with expertise in criminal justice and social enterprise. Space for change We started with a single question: given the stub- Transitions set out a vision that we believed could bornly high levels of reoending in the UK and build on innovation within the system and begin what was then an emerging government narrative to address these challenges. In developing this, around a ‘rehabilitation revolution’,9 was there we emphasised the advantages of bringing the

10 Main report public closer to the realities of the prison system. with the prisoners, sta and stakeholders of We argued that there were lessons to be learnt HMP Humber, a ‘new’ public sector male reset- from other public services and the evidence that tlement prison resulting from the merger of a suggests that engaging service users and com- private sector and a public sector facility in East munities in creating, designing and delivering Yorkshire. During this time we have undertaken services could result in better outcomes. In part, a major feasibility study, which broadly speaking our argument was one of political capital; that addressed the following three questions: improved understanding could help to counter the polemic that characterises debate about crime . Was there an appetite within the prison and punishment. This in turn could provide more and amongst the wider justice ecology ‘space’ for policymakers to adopt approaches that in the area for these ideas? In particular, work and curb the tendency to react to the latest the focus on ‘opening’ up prisons to the bad headline. wider community and economy, and on The RSA welcomed the Government’s emphasis strengthening and broadening a culture on work within prisons but highlighted the exploit- of rehabilitation. ative nature of some American prison industries, 2. What role could ‘Transitions Parks’ play where (mainly poor and black) prisoners work for within this broader picture? Was our aim very low wages and gain few skills. We argued that of strengthening rehabilitation culture in developing people’s skills and boosting their contingent on having an outside space or opportunities for work (inside and out), existing were there wider lessons about external examples of social enterprises could provide models partnership, engagement and innovation for a way forward without the moral hazards of that stood alone? And if the concept of purely commercial approaches. We made the case a Transitions Park was welcomed, what for bringing the best evidence and approaches could it look like? together in one place with a focus on building 3. What is the Transitions legacy? For the people’s capabilities to resettle and prisons’ capac- Transitions team, this question has two ity to support this. Critically, we argued that prisons important elements. The first is to ensure needed to be enabled to bring the ‘outside world the process of design, deliberation and in’ and communities, ex-oenders and employers research itself leaves a positive legacy for needed to be enabled to work more closely with HMP Humber, our partners in this en- prisons, understanding their constraints while deavour. This aim is not simply an act of retaining the freedom to innovate. gratitude. It involves extracting from the A central question this raised was whether process the lessons learnt and identifying unused physical assets adjacent to prisons – land what can be sustained at HMP Humber. and buildings owned by the Ministry of Justice The second element concerns replicabil- but laying fallow – could provide a space for ity and speaks to the RSA’s tradition unlocking potential social assets within prisons of incubating policy and practice that (service users, families and the workforce) and has wider influence. The ultimate aims the wider community (the public, employers and of Transitions are to: develop a new services). Could the development of ‘Transitions approach to rehabilitation, influencing Parks’ outside help prisoners inside to make the policy and practice through evidence; transition from oender to active citizen? And outline the process and a model of could they enable the community, local employers change; and provide robust innovations and ‘through the gate’ services to strengthen not that can be adapted and replicated in just the chances of reducing reoending but also a other contexts. broader culture of rehabilitation? In seeking to answer these questions we have Testing the model engaged with hundreds of people – prisoners, ex- Having set out its vision, the RSA then sought oenders, visitors, prison ocers, commissioners to test whether it made sense in practice. Since and providers of justice services, existing and po- the end of 2012, a small team has been working tential through the gate providers, the Police and

Building a rehabilitation culture 11 Crime Commissioner for Humberside, employers So, if the Transitions model is to make play- and the Humber Local Enterprise Partnership ing fair easier, can it catch the wave of renewed – to name but a few. We have translated people’s interest in rehabilitation, and provide a new way responses into a costed master plan and forged of thinking about its nature and components? Do potential partners and a business model for the we have or need a shared account of what rehabili- first stages of site development. tation means, do we know what increases levels Transitions has developed at a time when, of rehabilitation or undermines it, and can we in the UK at least, there is a renewed focus on operationalise and measure these things? rehabilitation; in particular, the Government’s Our study has come to one central conclusion Transforming Rehabilitation agenda11 (see page from which its practical ambitions arise. Namely, 16), which ushers in significant changes to prison, that prisons cannot succeed in the task they are probation and resettlement services. We have being asked to undertake: to increase the number adapted our work in the context of this rapidly of people leaving who will desist from crime changing landscape, including the creation of and resettle. This is not a criticism of the prison HMP Humber as a resettlement prison under workforce or governors. While there will always the Transforming Rehabilitation agenda, and the be things that can be done better, making further Governor’s vision for the prison. This centres on progress on rehabilitation is unlikely to arise from a staged journey through the prison from prisoner doing the same, just better. to active citizen, and emphasises community Rather it is to argue that rehabilitation requires engagement. The project has focused on playing a us to embed prisons in their communities and strategic role in the sub-region, in particular work- economies, and that more of ‘us’ – the public, ing with the Police and Crime Commissioner to employers, entrepreneurs and wider services – improve collaboration and develop a shared vision need to play our part. To use Dagger’s phrase, for justice services, with a focus on influencing the men and women who ‘pass through’ prison new providers and engaging the public. are part of our communities and will return there. We argue that rehabilitation cannot just be Building a rehabilitation culture measured by reductions in reoending – although While the elements of this landscape continue this is a critical outcome – and is not a linear to shift, at their heart lies a desire to reduce process that ‘happens’ to an individual. Rather crime and in particular to increase the number it requires a set of behaviours, attributes and of people who are ‘rehabilitated’. As the leading values within individuals, institutions and the criminologist Shadd Maruna argues, societies’ broader community that support and sustain belief in rehabilitation fluctuates; it is not a given desistance from crime and enable people to live and neither is the concept fixed.12 Historically, productive lives. emphasis on rehabilitation has ebbed and flowed, driven by a range of factors including evidence, Transforming Rehabilitation but also concern over the costs of reoending, and This argument becomes more important in the the prison system in times of austerity. context of reductions in funding to public services Increased focus on rehabilitation does not and Transforming Rehabilitation, which will result necessarily decrease emphasis on punishment, and in around 50,000 more people each year having a as the political scientist Richard Dagger argues, new statutory call on services and new resettle- liking rehabilitation is not necessarily incompat- ment prisons charged with a more localist agenda. ible with a desire for retribution: “If punishment is In short, justice services are being asked to do to be justified on the grounds of fair play, then we more with less. must see to it that people have a reasonable chance This makes approaches based on unlock- to play fair. In particular, we must see to it that the ing potential assets and networks that support men and women who pass through the gates of rehabilitation more important. It makes culture prison are treated in ways that help them to grasp change critical. But if we are to strengthen and that society is a fair system of cooperation under broaden a culture of rehabilitation, we need to be law and that they have a responsibility to do their able to define what it is and identify practical ways part to support it.”13 to boost its presence. In addressing this question

12 Main report the project has drawn on the mounting evidence • In thinking about rehabilitation, of network eects that show the importance of the NOMS, Police and Crime relationships and networks to shaping and chang- Commissioners and justice services need ing behaviour. to give more emphasis to the evidence It has borrowed from the RSA’s Connected around network eects in sustaining desist- Communities programme that explores ‘social ence from crime. Prisoners cannot make network’, asset-based, and system-based ap- the journey to active citizenship without proaches to addressing social and economic access to the networks and relationships challenges and opportunities.14 In particular, we that increase and sustain their rehabilitation have adapted the emerging concept of ‘recovery capital. Likewise, prisons cannot make the capital’, which refers to the ‘breadth and depth of shift they need to without being enabled to internal and external resources that can be drawn forge the relationships and networks needed upon to initiate and sustain recovery from sub- to support a culture of rehabilitation. stance misuse’.15 Action research with prisoners, • Systemic change of the justice system ocers and ex-oenders has helped us to under- requires more work to be done from the stand some of the components of ‘rehabilitation ‘bottom up’; engaging and co-designing capital’ (focused on the individual attributes, practice innovation with prisoners, the assets and networks that support rehabilitation). workforce and local and sub/regional This work has given us an insight into what stakeholders. This need not be at the might constitute rehabilitation culture (focused on expense of influencing national policy the institutional level) and the wider shifts needed but gives more people more solutions within the community to broaden and strengthen and enables them to have a voice at the this. This conceives of prison, not as a closed box national level. within which you do or do not rehabilitate people, but as a potential driver of rehabilitation culture Turning theory into practice beyond its own walls. What flows from this are These insights do not constitute the end of a the following conclusions that speak to the wider process but another beginning. In best RSA transferability of the model. tradition, our aim is to turn theory into practice, and our feasibility study takes us a step closer • In its aim of strengthening rehabilitation to realising the Transitions vision developed by culture and delivering Transforming Fellows three years ago. This report is published Rehabilitation, the Ministry of Justice alongside a master plan, a business case for should consider using the assets it owns the first stage of development and a number of but which lie fallow adjacent to prisons to papers, which address specific issues that emerged unlock potential human assets in order to throughout. Our master plan sets out a plan for support rehabilitation. Specifically, it should the Humber site, which speaks to our emphasis consider enabling ‘Transitions Humber’ on rehabilitation culture and in particular the to become a national pilot, not just to test networks and services needed to support this. its eectiveness in reducing reoending in This includes: the region, but also to provide a model for future development.‘Transitions Parks’ • The development of the site as a hub for a could provide an external space for thinking ‘Transitions Community’ involving a wide and doing, networking and innovating that range of stakeholders, with the aim of was not within the reach of prisons and embedding the project locally and support- wider justice services. Our study shows ing rehabilitation culture. this idea has widespread support. Such an • A Transitions Green Enterprise Park that approach could enable close partnership will include an ‘academy’, where green working but without Transitions Parks skills enterprise and training will incor- being subsumed by prison culture, and porate training providers with start-up could add value not just through the gate business support and light industrial but also across the oender journey. employment.

Building a rehabilitation culture 13 • A health and wellbeing centre bringing been developed. It outlines the processes that together health services with exercise and we have undertaken to date and how these have fitness, education and related support. shaped our thinking and the practical develop- • A cafe and events space that will be used ment of Transitions. It then outlines, by way of by the prison, the community and service a detailed case study, the work we have done in users and provide a space for debate and East Yorkshire. While presented here as a separate public engagement. section (see page 36), without a doubt it is the work we have done with HMP Humber and its All of these elements have been designed to stakeholders – local, regional and national – that benefit the local community as well as oenders, has taken Transitions from a short pamphlet to a visitors, the prison workforce and wider justice co-designed major practice innovation. Working services. The Transitions element would provide with the prison and local stakeholders has enabled the main umbrella for the delivery of partnering us to better understand how the Government’s services and the main connection within the Transforming Rehabilitation agenda could prison itself, as well an ongoing research and translate locally, as well as the very real challenges innovation function. presented by top-down policy. There is still much work to do to turn that Next steps design into practice and to further test our ideas, The next stage of work for Transitions will include but we believe that Transitions has much to add two parallel strands of work. The first is on within the current policy landscape, and in the continued strategic development of the project, in- context of reduced public expenditure. It has the cluding the transfer of the physical asset from the potential to transform how we understand and Ministry of Justice and the legal, organisational approach rehabilitation not just in East Yorkshire and site design work that will flow from this. but nationally. It opens up a model of innovation The second strand of work is not contingent and prison reform that seeks to bring about trans- on the physical site (but will shape its design) and formative change – in individuals, institutions and is focused on the question of strengthening and communities – through working alongside service measuring rehabilitation capital and culture. This users, sta and local people. work will include co-designing with service users (prisoners, ex-oenders and families) and oc- ers, academically robust but operationally viable assessment tools for rehabilitation capital and culture (see page 30). This report sets out in more detail the back- ground and context in which Transitions has

14 Main report Building a rehabilitation culture 15 2. Background and context

“ The public debate about prisons can at times be unedifying. It takes on the characteristic of a domestic row between warring parents – the egalitarian father and the authoritarian mother – whose children have gone o the rails. As each blames the other for their ospring’s transgressions, for being too harsh or too soft, the children either sneak out of the house or struggle to concentrate on their homework amidst the din.”

The Learning Prison, RSA 2010

Transitions has been the product of collaboration and employer engagement in co-design- and has developed in stages, building on earlier ing and delivering justice services. RSA work on learning and skills, The Learning Prison, published in 2010 and produced with the Rehabilitation revolution RSA’s practitioner-led Prison Learning Network.16 Although these principles have been applied The report concluded that many of the significant through the development of Transitions, much advances that have been made within the prison else has changed. In particular there has been a service had been achieved ‘by stealth’ without marked shift in policy direction in recent years, corresponding public discourse or recognition. driven first by Kenneth Clarke when he was Lord It argued for a more positive and powerful vision Chancellor and Minister of Justice, and most of prisons around key principles for reform: recently and radically, by Chris Grayling, Clarke’s successor and architect of the Government’s • Leadership among policymakers in Transforming Rehabilitation programme. building a public conversation about In 2010 Clarke, outlined the Government’s prisons as a core public service that proposals for a ‘rehabilitation revolution’. This serves us all, not just the victims and emphasis was welcome: policy debates about perpetrators of crime. prisons have tended to focus on the optimum • A braver government strategy focused size of the prison population, ‘soft’ versus ‘hard’ on modernisation for rehabilitation approaches, not outcomes. Clarke’s Justice Green and enabling the prison service to safely Paper, Breaking the Cycle,17 included proposals to: utilise the new tools and thinking at our create working prisons with the aim that prisoners disposal to best eect. learn the discipline of regular working hours; • The development of a stronger evidence open up opportunities for voluntary sector and base that aimed not just to identify the private providers to deliver services; introduce general interventions that reduce re- payment by results linked to success in reducing oending levels but a way of measuring reoending. Transforming Rehabilitation repre- and aggregating specific projects. sents even more far-reaching changes to the UK’s • Broader and deeper service user, public probation, prisons and resettlement services.

16 Main report The Transforming Rehabilitation The remaining caseload will be managed by programme Community Rehabilitation Companies (CRCs) which from June 2014 will have taken on super- “We have put together a programme of vision of middle to low-risk oenders. As of 1 reform that oers a step change in the way April 2014, all existing sta had been allocated we rehabilitate oenders, and will lead to to either the NPS or a CRC. By the end of the year year-on-year reductions in reoending. Some CRCs will be contracted out to Tier 1 providers, of these changes are complex and challeng- under 21 new contract package areas (CPAs). ing, but they are necessary nonetheless. CPAs are largely co-terminus with Police and Transforming Rehabilitation will help to ensure Crime Commissioner (PCC) and other public that all of those sentenced to prison or com- service boundaries and the Justice Minister has munity sentences are properly punished while made it clear that PCCs will be critical to shaping being supported to turn their backs on crime integrated commissioning of justice and reset- for good.” tlement services within their constituencies and Chris Grayling, Lord Chancellor and Secretary across contract package areas. of State for Justice, 2013 At the time of writing, ‘preferred bidders’ have been identified for each contract package area In setting out the drivers of change, the and have been visiting agencies and commission- Government highlighted the costs of prison ers within these areas, including PCCs, prisons and probation services (at around £4bn a and potential voluntary, community and social year), high-levels of reoending amongst enterprise partners. Final bids will be submitted those receiving short prison sentences, and in summer with contract decisions due to be made its desire to drive eciency savings by investing by the end of 2014. in rehabilitation. Contracts will be awarded for seven to 10 years and the total value of the contracts to Probation services be let is likely to be between £5bn and £20bn It is estimated that around 50 percent of the over the next 10 years. Providers’ level of current probation service will become a National payment will be dependent on the reduction in Probation Service (NPS) dealing with high-risk reoending that they achieve. Contracts will oenders and risk assessment. The NPS will be combine both a ‘fee for service’ element and divided into seven regions and will: a ‘payment by results’ element. To receive the full payment, providers will need to achieve an • Undertake all court reports and parole agreed reduction both in the number of oenders reports. who go on to commit further oences (the • Undertake all initial assessments to ‘binary metric’) and a reduction in the number determine which provider will manage of further oences committed by each oender a case. (the ‘frequency metric’). • Manage oenders who are subject Tier 1 providers will be dominated by private to Multi-Agency Public Protection sector organisations working in partnership with Arrangements (MAPPA) and pose a high large charities and, in some cases, mutual compan- risk of serious harm, or when it is in the ies that have ‘spun out’ of the probation services. public interest to do so. Tier 1 providers are expected to sub-contract • Carry out victim liaison work. to Tier 2 and 3 providers, delivering a range of • Manage Approved Premises (residential services including those linked to resettlement. provision for selected oenders and some Tier 2 organisations are likely to be social enter- people held on bail). prises and third sector organisations including, • Decide on action in relation to all for example, learning and skills companies and potential breaches beyond first warning third sector providers of through the gate services, and advise the courts or Secretary of who are expected to get relatively long contracts to State on sanctions or recall to custody. ensure some stability. They are likely to be organi- • Consult on changes in risk of harm. sations with the capacity to work under payment

Building a rehabilitation culture 17 by results arrangements and have a regional or of inn ovation and local partnerships beyond sub-regional delivery model. Tier 3 organisations the prison – are consistent with much of the will most likely be smaller, more local and grant reform agenda. We have been fortunate in having funded directly by Tier 1 organisations, eliminat- funders and governance arrangements that have ing financial risk and deferred payments. allowed us to adapt our thinking and work as the Transforming Rehabilitation agenda has Short-term sentences developed. All those receiving a short-term custodial sentence Throughout the feasibility period, the RSA (under 12 months) will now be on a license in the engaged with this agenda and with national and community up to a full 12 months. This adds some local stakeholders to ensure that Transitions 50,000 people into the scope of probation services emerges in line with these changes and adds value nationally. A nationwide ‘through the prison gate’ to how the Transforming Rehabilitation propos- resettlement service will be put in place, meaning als work on the ground. For example, we have most oenders are given continuous support by been working closely with the Police and Crime one provider from custody into the community. Commissioner for Humberside, the Humberside The Government has stressed the role that men- Criminal Justice Board and existing probation ser- tors could play and the need to address oenders’ vices on mapping services in the sub-region, and ‘life management’ issues. developing a shared vision for bringing together commissioners and providers in advance of these The prison estate changes. We also hosted a conference for 70 com- In supporting this, the aim is to ensure that, for missioners and providers in the sub-region.18 the last few months of their sentence, most of- This work has been critical to shaping the fenders are held in a prison near the area to which project and we hope it has been valuable to key they will be released. Transforming Rehabilitation stakeholders in the Humber sub-region. However, creates a number of ‘resettlement prisons’ to the Transitions project has not been redesigned in which prisoners held away from their home area order to become a Tier 2 or 3 provider, although will return to three months before the end of their this remains in the mix. Rather the project has custodial sentence. been developed to add value on three main levels: The reforms respond to long-held concerns about the lack of support for people serving short . To continue to develop and test a national sentences and the challenge of rehabilitation where pilot based in Humber; a demonstration prisoners are held at distances from their home. model for a new approach to prison They give a much bigger role to the private sector, reform and wider public service innova- not just working outside prisons but in partnership tion. One that involves understanding on with prisons along the lines of current oender a deep level how prisons work, what their managers. A review of oender management sug- residents and workforce think, and who gests that most focus (and funding) is likely to be they may need to rely on to help them on high-risk oenders and lower risk but persistent fulfill their purpose. This means under- oenders. The Government asserts that its payment standing the local, regional and national by results model avoids incentivising providers to context in which they operate, including focus on ‘low hanging fruit’ in securing their main their communities and economies and the payment, and that freedom from bureaucracy will wider assets they can draw upon. In this allow them to do what works. respect we believe that Transitions work to date will provide learning, relation- What could this mean for Transitions? ships and innovations valuable to any RSA Transitions was conceived before future Transforming Rehabilitation Tier  Transforming Rehabilitation was on the polit ical providers within and beyond Humber. agenda. However, many of its core elements – 2. To continue to play a strategic role within increasing the ‘oer’ for people serving short the Humber sub-region and the wider sentences, taking a ‘whole person’ approach contract package area. In working with to rehabilitation, the focus on the importance HMP Humber, we are working with a

18 Main report strategically well-placed resettlement A changing landscape prison under the new arrangements. The The Transforming Rehabilitation agenda is not prison provides services for 1,062 prison- without its critics and is deeply controversial for ers at any one time and releases over 1,000 some; not least because it privatises a huge chunk people each year; as the reconfiguration of the existing probation services, and aims to of the prison estate and population rolls deliver marked improvements to reoending rates, out, a large proportion of these will come but within an overall reduction in spending. The from and be released to the Humber sub- speed of change is also rapid. The reform pack- region and wider contract package area age impacts on a wide range of commissioning of North Yorkshire and Lincolnshire. The arrangements, providers and practice and requires Humber sub-region lies at the heart of justice and through the gate services to do more the new CPA (one of the largest in terms with less. In practice, one outcome will be contracts of geographical spread) and accounts for that place a significant concentration of eort a high percentage of total oenders; we and resource on high-risk and prolific oenders, believe that Transitions’ cross disciplinary particularly towards the end of their sentence, while nature and strategic capacity can help to provision for other ‘core’ oenders throughout join up thinking and services, and that their sentence is likely to be spread thin. Changing getting this right in Humber will benefit people’s behaviour and rehabilitation takes time Tier 1 providers and enable them to get it and the level of risk oenders present can fluctuate. right across the CPA. The risk is that ‘core’ oenders’ chances of reha- 3. The continued development of the bilitation are reduced, making resettlement much physical site outside HMP Humber (at harder on release. In focusing on strengthening the the time of writing we are engaging with broader culture of rehabilitation, Transitions aims MoJ estates about transfer and lease to help address this issue. options). Transitions has demonstrated in Taken on its own Transforming Rehabilitation its work to date that there is considerable ushers in a complex new landscape. But it is not appetite amongst stakeholders for utlising the only policy change in town; almost every part this space as a site for co-location, services of the criminal justice system and related services focused on bridging the transition from are changing and/or operating with fewer resour- custody to community, and strengthening ces. This includes substantial reforms to policing, rehabilitation culture and practice. While to the commissioning of health services and fund- the RSA’s role has been critical here, ing of learning and skills provision within prisons. the site itself – outside but next door to Below we outline just some of these changes; all of HMP Humber and valued by the com- these in their own way have shaped Transitions. munity and local authority – provides opportunities for engagement, innovation Justice and health and partnership that are not accessible Changes include the development of specialised or realistic for the prison. We believe health services for those within the justice system, that there are practical opportunities for now one of the four key areas that NHS England providers of all tiers to utilise the site, and commissions across the country. This includes 10 have also developed proposals working Health and Justice commissioning teams, more or with wider commissioners and providers, less mirroring the National Oender Management including those involved in health and Service regional structure; their primary role is learning and skills. to commission the full range of health services needed by people detained in prison, in VAPS This does not mean that Transitions will not Young Oenders Institutions (YOIs) and secure aim to become a Tier 2 or 3 provider, just to stress children’s homes. that the model we have developed does not assume That includes primary healthcare, mental this as its core purpose. healthcare, substance misuse services and arranging secondary care. From 2015, Health and Justice teams will be responsible for

Building a rehabilitation culture 19 comm issioning for healthcare in police custody access to learning and skills, which enable them to suites, sexual assault services and for developing gain the skills and qualifications they need to hold liaison diversion services. down a job and have a positive role in society. The health needs of oenders in the com- In May 2011, the Department for Business, munity are worse than those within prisons; when Innovation and Skills, along with the MoJ pub- someone goes to prison one of the first things that lished the Review of O ender Learning, Making happens is that they have a health screen. This is Prisons Work: Skills for Rehabilitation. This something that has been absent in the community recommended a number of changes aimed at and which the liaison and diversion project begins reducing re-oending, through a greater focus on to address. It aims to ensure that oenders’ needs skills development and routes to employment for are identified and met, to assess people and learners in custody. OLASS review recommenda- support links into appropriate services. Liaison tions included: diversion will aim to provide information to the police and the courts so that they are able to make • Making prisons places of work and informed decisions about charging, sentencing industry, with more prisoners experien- and post-sentencing services. It aims to divert cing structured and disciplined working people within and beyond the justice system; that weeks. will not always be about replacing sanctions but • More relevant and focused vocational providing a greater range of alternatives at any training taking place in the immediate point throughout the journey. 12-month period before release. The liaison and diversion project is about sup- • A greater focus on the role of prison porting a multi-agency approach, trying to link governors and prison Heads of Learning up dierent health services but also about trying and Skills in planning curricula. to link them up with the criminal justice system. • Being able to meet local needs more That involves liaising with a range of providers, eectively and understanding the local helping to facilitate disposal, treatment and sup- labour market into which prisoners are port options, and supporting police and courts to released. ensure procedural fairness. • A re-procurement exercise, culminating The question for Transitions was what health in new contracts starting delivery from services should be based on site. How could we 1 August 2012 (OLASS 4). ensure that the design of our model supported this new agenda, and helped to support wider public Funding is devolved to OLASS providers health and wellbeing priorities, serving the public, including the National Careers Service and, in the sta and oenders? Our master plan includes plans merged prison region, the Manchester College, for a health and wellbeing centre. While detailed co- which receives funding for a core curriculum made design will be done at a later stage, the site mapping up from three elements: process and discussions with health providers and service users suggest that this will combine aspects • English, Maths and ESOL. such as a gym/exercise space with co-location of • Vocational qualifications, including services that seek to provide a seamless drug and information and communications alcohol service from ‘inside out’, replicating the technology (ICT). best approaches in the community, and filling gaps • Employability skills (these may include where they exist (see page 49). a wide range of team-working, personal, social and other skills). Learning and skills The Oenders’ Learning and Skills Service Since June 2012 the curriculum for the prisons (OLASS) was created in 2005 with the purpose of in the regional cluster (HMPs Hull, Humber and integrating oender education with mainstream Full Sutton) has been re-designed to improve academic and vocational provision. The vision for the learning journey and ensure that OLASS 4 OLASS is that oenders, in prisons and supervised funding is ecient and eective. The re-designed in the community, according to need, should have curriculum has now been ratified by the Skills

20 Main report The question for Transitions was how it could Funding Agency and is in the process of add value to the learning, skills and work mix being implemented. within these current arrangements. This means, Skills for sustainability for example, looking at whether there are gaps in the current oer – either in focus or qualification Prisoners face significant challenges in securing level – which we may help to fill. It means ensuring work when they are released and this not only that social enterprises embedded in the prison makes reoending more likely – weakening their are linked to pay, employability and solid training rehabilitation capital if you like – it also means outcomes, as well the local economy. The master they are more likely to experience long-term plan includes: new workshops for light-industrial unemployment post-release with all the knock training and work; refurbishing the manor house on costs that this implies. As Transitions has on site as an enterprise and training centre; and developed a lot of emphasis has been placed on a field learning centre focused on engaging the the need to make a stronger link between prisons’ community and green skills (see page 50). learning, skills and work oer and the challenges In the next section we outline in more detail the and opportunities presented by external economic Transitions model, highlighting how these changes trends. In seeking to strengthen the culture of in policy, practice and the economy have shaped rehabilitation this alignment is critical. our thinking. The point here is to share a process In Humber this has meant designing into our of design and delivery that can be applied to the model consideration of the sub-regional economy. specific contexts of other prisons, particularly Our focus has been shaped by the Humber Local resettlement prisons that are so central to meeting Enterprise Partnership (LEP), which works closely the objectives of Transforming Rehabilitation. with government to promote and develop the The presence of other under-utilised MoJ assets economic area surrounding the Humber estuary elsewhere – for example at HMP Styal, a women’s and to provide strategic leadership for economic prison near Manchester– provides significant op- growth. The LEP’s skills commission identified a portunities for Transitions Parks, but much of our number of significant skills gaps in the sub-region. thinking can be applied where no such site exists. These included those needed to sustain the growth in the low-carbon economy, which is a significant growing market in the area.

Building a rehabilitation culture 21 22 Main report 3. The Transitions model

Transitions was conceived as a financially sustain- development trusts and community enterprises able not-for-profit business driven by ethics. To – announced an asset transfer programme that be sustainable, it would need to work within the would seek to identify innovative projects to grain of the prison system, in partnership with a enhance services for ex-oenders.20 range of local justice and resettlement services, and be underpinned by shared values and objec- Work and pay tives, including embedding rigorous evaluation The Government’s emphasis on work is welcome: methods. The model would consistently involve unemployment is high amongst those convicted employers, prison ocers, service users, local of a crime and those who have left prison; securing services and members of the community in design, work is an important factor in reducing oend- delivery and governance. ing.21 Transitions aims to increase prisoners’ These principles have underpinned the way we employability and enhance the opportunities have worked and the model in development. An for skills development and work in custody innovation this ambitious cannot be sustained and on release. if it is dependent on philanthropy and short- With HMP Humber, the RSA has explored ap- term grant funding for too much of its ongoing proaches that would engage employers and are not resources. As a social enterprise with significant exploitative. This is a complex and dicult issue. capital costs up front, the core model needs to be It could be argued that running an enterprise or self-sustaining. The model is designed to include a industry that uses prisoners as cheap labour can mixed economy where less lucrative but vital areas be justified if the individual and social benefits of work can be subsidised with more commercial can be proven. But the reality is that many such elements. In keeping ongoing revenue burdens to a projects cannot measure their impact either on the minimum, our priority is to secure grant funding skills development of prisoners or their chances of for the build and refurbishment. securing work. While measuring outputs – num- The Transitions team and HMP Humber are bers of prisoners involved in prison industries, in discussion with the Ministry of Justice (MoJ) for example – is relatively easy, assessing impact about the potential for securing the land assets and outcomes is much harder to do. Even where (through a community asset transfer) to provide a prisons have evidence of how many people have hub for social enterprises, employers, resettlement work on release, very little is known about longer- services, the community and ex-oenders, work- term employment. Indeed, a number of workshop ing with prisoners, those being released and on sta we spoke to only know whether someone license and those at risk of crime. In 2010, the MoJ they work with has secured employment or not had 20 farms attached to prisons and 455 accom- when they arrive back at the prison gate. In theory modation units, which had historically been used better engagement with prisoners and former for housing prison sta. While not all of these prisoners should allow longer-term tracking and were unused, the MoJ’s 2010 Asset Management ease this challenge. In the meantime, the risk is a Strategy stated: “Those [assets] that represent temptation to develop business models based on poor value, do not fit the business and service de- very low salaries that do more to benefit private livery model or which are surplus to requirements enterprises rather than prisoners or the taxpayer. will be reviewed with a view to disposal.”19 In This has raised a number of questions includ- 2012 the National Oender Management Service, ing: the role that paying oenders should play working with Locality – a nationwide network of in avoiding exploitation; the role of evidence in

Building a rehabilitation culture 23 ensuring work programmes could be justified and • Oces, public and educational func- were not ‘flying blind’; and the question of what tions (1110m2/11,900ft2 – estimated skills (for life and work) were most important capital cost inclusive of VAT £3,539,181) to prisoners and employers. provided within the renovated manor There is broad recognition amongst justice house and the adjacent courtyards services that ex-oenders and serving prisoners and buildings. can play a significant role in supporting others, • A Health and Wellbeing Centre improving prison culture (for example, reduc- (500m2/5400ft2 – estimated capital cost ing complaints) and providing services (as peer inclusive of VAT £1,330,287) and ‘start- mentors for example). Transitions places service up’ flexible business units (500m2/5400ft2 users at the heart of its thinking and much of the – estimated capital cost exclusive of VAT work we have done to date has relied upon the £1,160,707). involvement of prisoners. The aim is to ensure • Light industrial/training units that in seeing service users as workers, mentors, (6000m2/64,600ft2 – estimated capital co-designers and trainers, we pay them where cost inclusive of VAT £6,292,750) appropriate and permissible. For those in custody • Field learning centre (100m2/1080ft2 – this would not mean all salary going directly into estimated capital cost inclusive of VAT people’s pockets, but involve mechanisms to set £175,000). aside wages for resettlement and/or transferring • Access road and car parking (estimated money to families and reparation. capital cost inclusive of VAT £1,261,500). Salaries for prisoners would be set at the mini- mum wage, minimising the chances of undercutting The master plan proposes a quantum of devel- wages outside and public concerns that prisoners can opment on the site to support a significant scale earn more than many people in the community. The of social enterprise. It will take a number of years situation with ex-oenders is both more straightfor- and distinct phases to reach this scale of activity ward and challenging. Having served their sentence and as the project develops, the requirements may ex-oenders should be paid at market rates. dier in scale and function. An important part of the rationale behind setting up the master plan Humber master plan this way is also to allow for the continuation of Alongside all these considerations, the master the existing land-management and other activities plan for Transitions in Humber needed to match undertaken by prison sta and Category D oend- the potential of the site itself (see page 52). How ers on the site. could we best use the 45-acres of farmland with- The objective is to enhance what exists, not out spoiling the things that local people valued, to wipe the slate clean and start again, and the and damaging wildlife, for example? What kinds framework approach allows functions to be of enterprises and training would match the needs relocated and provided one step at a time. The first of the economy and speak to the size, location and step of implementing the master plan is therefore potential of the site? While it is not a listed build- likely to be limited in scale, to establish the key ing, the manor house on site is highly valued: how partners on the site and accommodate them. By could we provide a contemporary space within the being a carefully controlled, shared space for inter- character of the building? action between delivery partners, users and prison These questions and more have shaped a master sta, the first courtyard phase aims to create the plan, which has been developed alongside this first example of the kind of space that can support document providing a strategic overview for the the concept of rehabilitation capital and culture. site, showing a distribution of development uses The Transitions team has produced a cost together with a means of supporting these through plan supporting the development of the whole infrastructure and landscaping. This includes: site. The initial phase includes the capital investment to develop the ‘courtyard complex’ • Courtyard complex including master as a delivery base for Transitions activity and planning (290m2/3200ft2 – estimated key partners. This demonstrates that with a 75 capital cost inclusive of VAT £777,250). percent grant and 25 percent social investment

24 Main report (loan) model the initial development project • A Transitions Board would play an would deliver a surplus. Further details are oversight role on this site but also a wider included in the development overview published role on Transitions thinking, develop- with this document. ment and research. Each subsequent capital project would need • Transitions Property Development and to stand alone regarding financial modeling and Management would be responsible for make sense from a business perspective in its own site management and maintenance, and right, and a bespoke plan for each will be devel- collecting rent. It would work to the oped at the appropriate time. It is envisaged that Board and alongside the service delivery the infrastructure works will be funded by means arm to ensure it was consistent with the of a loan supported by enhancing the value of the mission and desired outcomes. existing asset. • Transitions Service Delivery would play a strategic role in bringing together all the The delivery vehicle organisations/partners working on site, The initial work relating to the setting up of an working where appropriate to the central appropriate delivery vehicle, ongoing research, concept of rehabilitation capital and the fundraising, financing and so on would be under- core evaluation model, and providing a taken by the RSA and any asset transfer/works powerful voice in the justice agenda in would be undertaken by means of a short-term the region. It would potentially provide license between the MoJ/HMPS and the delivery direct services where this is sensible. A vehicle that emgerges. key role would be as coordinator/broker The RSA is currently in discussion with its in terms of relationship with the prison, legal advisors in respect of the most appropriate to ensure a manageable and productive vehicle(s) to eciently deliver the aspirations of way for working with the prison. the project as a whole. The current thinking is a Community Interest Company (CIC) or the like. We aim to develop a ‘Transitions Community’, This model has emerged as a way to minimise risk, which builds a wider sub-regional and national is relatively straight-forward and is flexible, so can group of champions around the project, helps adapt as new partners or funders come on board. to increase rehabilitation capital, and acts as a Further fundraising would follow the comple- testing ground for developing the organisation tion of an agreement to transfer the relevant parts as it matures. of the estate: notably the Hall, courtyard building, The vision for the site is a local manifestation walled garden and adjoining farm buildings. The of the wider Transitions network, providing master plan’s wider vision provides the basis for a physical basis for rehabilitation capital and the asset transfer by means of a lease; however the culture. The existing assets of the prison, the modest initial development of the courtyard could landscape, historic buildings and local residential be done under license until the proposal has been community are all drawn into this picture to create fully developed, in order to minimise the initial a microcosm of support, training and employment risk to both parties. opportunity. The site can also fulfil the role of a The model will, however, continue to be devel- regional hub, for delivery of services to a much oped in the next phase of work, alongside further wider client-base, which could include probation detailed work on governance arrangements. The services, early intervention, and learning and working assumption is that we will need to create dissemination of this new model. As such, the site a special interest vehicle once we know about the can become a flagship for Transitions. community asset transfer. This vehicle would have two key elements: a property management arm and a services arm, both overseen by a Board.

Building a rehabilitation culture 25

4. Rehabilitation capital and culture

The prison population does not represent a cross Some people who commit crime never do so section of society. Many prisoners have life-long again. But many (in particular persistent oenders, multiple needs, face a range of entrenched disad- who cost the taxpayer most and create the most vantages and have experienced past trauma; these victims of crime), have entrenched problems, which things will have helped to shape who they are and requires an approach that recognises that meeting how they behave. The point is not to rehearse specific needs in isolation from others is likely to debates about where causality lies, just to be clear fail. This is well-trodden territory. Indeed, when it that we begin with the evidence that shows that comes to adult male oenders, there is recognition reducing reoending will require the ability to that meeting multiple needs lies at the core of the help prisoners to significantly change their context National Oender Management Service’s seven on the outside and, while inside, to work on shift- pathways, which seek to address key barriers to ing their behaviour, attitudes and skills. resettlement, be this housing, help with finance security, employment or mental health.

The seven pathways to 30 percent of sexual offences, 33 percent of burglaries, 50 percent of street crime and about half of all violent 1. Accommodation and support crimes. A third of prisoners do not have settled accommodation 5. Finance, benefits and debt prior to custody and it is estimated that stable accommo- Ensuring that ex-offenders have sufficient lawfully obtained dation can reduce the likelihood of re-offending by more money to live on is vital to their rehabilitation. Around 48 than a fifth. It also provides the vital building blocks for a percent of prisoners report a history of debt, which gets range of other support services and gaining employment. worse for about a third of them during custody and about 2. Education, training and employment 81 percent of offenders claim benefit on release. Having a job can reduce the risk of re-offending by 6. Children and families between a third and a half. There is a strong correlation Maintaining strong relationships with families and between offending, poor literacy, language and numeracy children can play a major role in helping prisoners skills and low achievement. Many offenders have a poor to make and sustain changes that help them to avoid experience of education and no experience of stable re-offending. This is difficult because custody places employment. added strains on family relationships.

3. Health 7. Attitudes, thinking and behaviour Offenders are disproportionately more likely to suffer Prisoners are more likely to have negative social attitudes from mental and physical health problems than the and poor self-control. Successfully addressing their general population and also have high rates of alcohol attitudes, thinking and behaviour during custody may misuse. Thirty-one percent of adult prisoners were reduce re-offending by up to 14 percent. found to have emotional wellbeing issues linked to their An eighth pathway focused on female offenders offending behaviour. focuses on those who are victims of sexual crime.

4. Drugs and alcohol Source: National Offender Management Service. Around two thirds of prisoners use illegal drugs in the year before imprisonment and intoxication by alcohol is linked

Building a rehabilitation culture 27 ‘Lucky Jim’ oenders – but with no real community to return ‘Jim’, 47, was about to leave prison (not HMP to and very weak social capital. He was aiming Humber) after four and a half years when he took to start again, isolated from informal networks part in a Transitions workshop in July 2013. Like of support, while struggling to access the formal all category D prisoners, Jim has had to demon- services he needed. strate that he can be trusted to work during the Neither of these responses seems adequate day in the community and had been risk assessed given the scale of the challenge. Experienced to this eect. Determined to rebuild his life and ocers believe they can identify those prisoners desperate to return to (any) work, he is willing to who really have had enough of chaos, crime and travel and is realistic about pay. Six days prior to custody, who have worked on themselves, ‘simply release Jim was still trying to secure employment grown up’ and who do have clear and good and had nowhere to live. His CV was written in intentions for their future. When they do make pencil on a scrap of paper and the basics, like it, ocers rarely find out (a constant theme has contact details, were missing: he had none. With a been the lack of ‘good news’ and feedback prison criminal record, the odds of Jim finding work are sta receive). For those who do not, the bad news stacked against him; without an address, or even arrives as the Jims re-emerge at the revolving door an email address, they become nigh on impossible. that is the prison gate. Jim’s experience is not exceptional. One could Throughout our research and contact with argue that the problem is one of poor navigation prison ocers and others working in the prison, on his part and/or a lack of coordination of many have highlighted the frustration of seeing services, a failure to reduce in size some of the the ‘Jims’ return to their care, having failed at the barriers to Jim’s pathway to housing and work. first, second and third hurdle to get the support Indeed, even before recent cuts in funding to they want and need. Some make what seems like public services and the knock on eects that the the easier choice: if your ex-dealer is the only economic climate has had on the third sector and person waiting for you outside, a lot of good the jobs market, the journey through the gate, work can be undone with one fell swoop. Others from custody to community, has often been a simply give up. Faced with the chaos and isolation bumpy one. outside, they ‘opt’ for the order and company of The drivers behind reoending are complex, prison life. So, faced with this range of challenges the solutions hard to locate and cost of trying and the realities of reduced funding for justice substantial. As well as a criminal record, many and related services, what can be done? oenders have few (life and work) skills and face problems accessing employment because of this. Network effects For many, drug and alcohol habits, and/or behav- There is extensive and mounting evidence that ioural and mental health problems persist, despite suggests that in general our connections to other interventions. people, the context and nature of these relation- So is the answer to simply do better using the ships, and the extent to which we have networks same approaches? Or is it a matter of waiting: of support matter greatly in shaping our behav- that many oenders will simply stop committing iour, life chances and wellbeing.22 These insights crime when they decide to? In this respect, Jim is are generally not reflected in the way we design ‘lucky’ compared to many of his fellow residents. and run core public services, practical interven- He seemed more than willing to make a fresh tions and policies, although this is beginning to start, was clear about his path and had skills. He change. Prison is a core public service that war- seemed to have the internal resources he needed to rants particular focus. Given the closed nature of begin his journey. Yet he clearly did not have access prisons and their isolated population, it is reason- to the external, social or community resources able to assume that network eects could have a needed to pave his way. Like many people leaving considerable role to play in improving outcomes. prison, Jim had lost contact – or chosen to lose We drew on the RSA’s current Connected contact –with his old friends and colleagues. Jim Communities programme, which explores practi- talked of ‘returning to the community’ and ‘get- cal ‘social network’ approaches to social and ting back into society’ – a common refrain among economic challenges, with a specific focus on

28 Main report how disadvantaged or marginalised groups might conformity and the ability to fit into become more resilient and begin to identify and dominant social behaviours. co-design their own solutions.23 In particular, we looked to the programme’s work with people who Cloud and Granfield argued that although misuse drug and alcohol (who often present many individual factors were significant, it is the mesh- of the same needs and characteristics as those in ing of three of these components – social, human prison, in addition to problems around substance and cultural capital – that may be particularly misuse). In helping to design interventions, the important in assessing recovery capital at a group RSA works with agencies and service users around or social level. the concept of ‘recovery capital’, which refers to We have used the same four strands above and the ‘breadth and depth of internal and external one additional – community capital (the resources resources that can be drawn upon to initiate and in the community that oenders need such as sustain recovery from substance misuse’.24 housing, work and so on) – in undertaking our asset and network mapping process. The concept Rehabilitation capital and culture of rehabilitation capital provides a useful way of Our contention is that there remains a significant assessing multiple needs, measuring the ‘stocks’ gap in understanding the role that individual of each particular strand, and a tool for better prisoners’ networks, informal and formal, have on understanding the relationship between the dier- what we call their ‘rehabilitation capital’: in short, ent things that oenders need to resettle. the range of things – personal, social, community This means not only exploring how people like and cultural – that will make them less likely to Jim can create networks of informal and formal commit crime. support where these are lacking. It requires a In 2009, Cloud and Granfield revisited their deeper understanding of the relationships – good initial concept of recovery capital and posited and bad – that people have before they enter four components to it:25 prison, while inside and on release. The RSA’s experience has shown that ‘recovery communi- • Social capital is defined as the sum of ties’ can be a powerful source of support; we will resources that each person has as a result explore this option as part of our broader aim of their relationships, and includes both to create a Transitions Community of champions support from and obligations to groups around the prison. to which they belong; thus, family The importance of strong and positive family membership provides support but will relationships in motivating prisoners when inside also entail commitments and obligations and resettling on release is widely evidenced and to other family members. acknowledged, although this is often not matched • Physical capital is defined in terms of by the resources or approaches needed. But in tangible assets such as property and thinking about relationships we need to broaden money that may increase recovery the spectrum: to understand the range of connec- options (for example, being able to move tions – the ‘thick’ and ‘thin’ networks – that can away from existing friends/networks or help and hinder rehabilitation. to aord an expensive detox service). We have used this concept of rehabilitation • Human capital includes skills, positive capital in thinking through what services, activi- health, aspirations and hopes, and ties, partnerships, skills and workforce Transitions personal resources that will enable the should be developing for its primary aim of individual to prosper. Traditionally, reducing reoending. This has informed our asset high educational attainment and high and network mapping consultation (see page 43). intelligence have been regarded as key Inevitably, many of these reflect NOMS’s seven aspects of human capital, and will help pathways: many of the aspirations people have with some of the problem solving that is for the project are around improving oenders’ required for recovery. access to work, employability skills, accommod- • Cultural capital includes the values, ation and therapeutic interventions including drug beliefs and attitudes that link to social and alcohol services.

Building a rehabilitation culture 29 We believe that explicitly focusing on prisoners of desistance has led some to identify a range of and ex-oenders’ networks, on how to increase principles for criminal justice practice, including: the breadth, quality and strength of these, could have an important role to play in how the seven • Being realistic about the complexity and pathways are approached, in shaping Transitions diculty of the process. and – more broadly – in transforming rehabilita- • Individualising support for change. tion. The work done to date suggests that such • Building and sustaining hope. an approach is not only overdue within the justice • Recognising and developing people’s context but has much to add in the context of strengths. closed institutions and oenders removed from • Respecting and fostering agency (or their communities. self-determination). • Working with and through relationships Can we measure it? (both personal and professional). The next phase of Transitions (to December • Developing social as well as human 2014) will focus on two strands of work. The capital. first will the long-term strategic development • Recognising and celebrating progress. of Transitions in practice, including further discussions about the site transfer, developing While the evidence points to changes within the our governance arrangements and business models criminal justice process itself – for example, the for each project on site, securing partnerships and importance of key workers and the need to look identifying revenue streams for each. This paper at skills as well as deficits – it also highlights the is published alongside a master plan and business importance of engagement with families, com- model for the first stage of site development and munities and wider civil society all of whom need will be used alongside other papers to raise grant to be involved in the process of rehabilitation. funding and social finance. Transitions will also draw on RSA’s ‘recovery The second strand of work is focused on capital’ work and the use of the nodal mapping refining and operationalising our concept of re- techniques developed to identify the recovery jour- habilitation capital and culture. This will be used ney for those with addiction.27 At HMP Humber a to develop tools for HMP Humber and help to staged progressive journey has been defined across define the baseline against which we can evaluate the prison to support the oender rehabilitation Transitions. The aim is to co-design and deliver journey. This tool will be used to support this two key innovations: journey and will assist an oender and oender manager in identifying rehabilitative capital, i) Rehabilitation Capital Assessment Tool highlighting key connections and networks which This work will build on the asset and network support ‘recovery’ from oending. mapping and surveys completed in the feasibility This tool will be designed to encompass stage and be co-designed with HMP Humber, assessment of resettlement needs in line with its reducing reoending team, Governor, partners the seven pathways and will support and and oenders. As part of the co-design work, a feed into the formal oender risk assessment peer-led approach will be examined. Working with and planning system (OASys). It will include evaluation partner/s, a sample of prisoners and a exploration of how existing diagnostic tools mixture of prison ocers and sta (the target is work and can add value, and the aim is to ensure to involve 50 prisoners/service users and 50 sta, that outcome data ‘speaks’ to other evaluation with broader survey work and some more detailed data, including the Rehabilitation Assessment case studies), the RSA will develop and test the Framework (RAF) developed by the Humber concept of rehabilitation capital and culture and Criminal Justice Board and wider MoJ and tools for assessing levels of this. Department for Work and Pensions data on The tool will map an oenders’ journey to reoending and employment. ‘desistance from crime’. In this we draw on the lit- The overall objective will be to design a erature around distance from Shadd Maruna and transferable diagnostic that can inform the path- others.26 Broadly the evidence about the process way to desistance and measure an individual’s

30 Main report rehabilitation capital, informing the individual • An academically robust, workable and service user as well as the service provider of what replicable assessment tool for measuring matters most. rehabilitation capital and an audit tool for measuring rehabilitation culture. ii) Rehabilitation Culture Assessment • A robust baseline for longer term evalua- Over a 12-month period RSA Transitions has tion of RSA Transitions. undertaken extensive work engaging with oend- • A good practice guide to building ers, sta and the community. This has allowed rehabilitation culture. the Transitions team to identify a number of • A service user strategy designed around critical factors in creating an eective rehabilita- rehabilitation capital and culture. tive culture. Further investment is now required to develop this learning into a practitioner-led Legacy assessment tool, which both assesses a prison’s Having developed strong working relationships rehabilitative culture as well as guiding Governors within one prison and its stakeholders, the aim on the best practice approach to creating a rehab- is to bring these to bear in co-creating a way of ilitation ethos in their prisons. Again, with input assessing individual and institutional capacity in from our evaluation partners at the design stage, relation to rehabilitation, with a key focus on the the RSA will work with HMP Humber to develop networks and relationships needed (inside and an assessment method that will provide an ‘audit out) to achieve this. tool’ to measure rehabilitative culture alongside This work will provide a cornerstone of a good practice guide to support through the ‘Transitions Humber’ in practice, but its core gate providers and promote desistence from objective is to both leave that legacy in Humber reoending. and replicate the work elsewhere. We believe Work needs to be undertaken to identify the that in the context of reduced public fund- key facets of an ‘enabling environment’; one ing, the emergence of a new policy agenda in that is receptive to through the gate providers, Transforming Rehabilitation, and the creation and supportive of individual desistance of resettlement prisons, this work will provide a journeys. In creating the assessment tool, practice innovation that has wider utility across current desistance research and desistance audit the UK prison estate, increasing the capability of tools, and the learning from Transitions will be the workforce, guiding Governors and enabling brought together. Key elements of this enabled system integration. environment include the role of active citizenship The RSA’s objective for Transitions has been (peer-led, peer-supported and representative to develop the idea in practice on one site with council work) as well as a fuller engagement with the aim of developing a robust evaluated pilot. the broader community outside of the prison One that can demonstrate value for money, reduce through strong healthy partnerships. reoending and strengthen rehabilitation culture The RSA is playing a wider strategic role in within prisons and amongst their wider com- the region, working closely with the Humber munities. The ultimate aim is to prove that such Police and Crime Commissioner, the Humberside a model is workable and sustainable and can be Criminal Justice Board and other service providers replicated, in particular in relation to Category across the region. A key aim for the rehabilitation C resettlement prisons. The presence of MoJ framework being developed is to make it useful at assets remains a key focus. However, much of our a regional level, helping to define a shared vision learning has been around the process of designing and framework for rehabilitation. To this end, the innovation itself, working in partnership with early ideas were already being shared at a confer- the prison, its sta, residents and wider stakehold- ence with commissioners and providers across ers. In particular, the RSA’s focus on building and the sub-region in January 2014. Our final report assessing individual rehabilitation capital and will aim to have influence and relevance beyond institutional rehabilitation culture aims to provide the sub-region. Outputs from this work, to be an eective practice innovation and lend itself to completed by Autumn 2014, will include: wider system integration.

Building a rehabilitation culture 31 32 Main report 5. Space for change?

The justice system seeks to administer fair punish- public service workforce is undervalued, unseen ment, protect the public and reduce crime. A key and undermined, even as many of the UK prison element of doing this is to restrict people’s choices, system’s technical practices are copied abroad. Of freedom of association and, in the case of custody, course, prisons will remain closed. Their ‘day job’ their liberty. From conviction to custody, the nature is keeping people in. Then how can we – without of punishment is to disempower people. Even undermining security or public safety – open up if this experience has no impact in the long run the relationships and practices of the system so (which it often does), for many people returning that it can exploit the resources and links needed to their community this is not a case of ‘boun- to increase public understanding, engagement and cing back’ but continuing to carry high levels of reduce reoending? self-pity, low levels of self-determination and a propensity towards instant gratification. Pears from China The process of rehabilitation requires that as well At HMP Humber procurement rules can be a source as the ‘external’ basics needed for stability (housing, of huge frustration to prisoners and sta, serving money and so on), oenders also need to make to disempower both and adding to complaints. ‘internal’ changes such as learning to make better In a prison based in a rural area, surrounded by choices, taking responsibility for their actions and farms and with a 45-acre site on its doorstep – and the resulting consequences, and to make stronger in a region whose future is linked to a low-carbon and more positive connections from custody to com- economy – we discovered that the pears prisoners munity. The ultimate aim of rehabilitation is not just eat are imported from China. This speaks to issues to reduce crime but also to, as Jim put it, ‘get people of local sourcing and how we measure value, but back into society’, as fully functioning citizens. also touches on some of the implications of greater And doing this requires self-ecacy, responsibility, localism and public sector innovation. reflexivity and regard for others. In the context of austerity and rising demands in some core public services, the role of the state Like prisoner, like prison and the citizen is changing, with some consensus As well as tight resources and sometimes poorly emerging around the benefits of engaging service coordinated services, the particular challenges faced users and the public and finding new ways of by many prisoners – a lack of positive networks and working on old and new challenges.28 The emphasis of disempowerment – are mirrored by the prison here is not simply on consultation, conversation service. Prisons are by their nature largely closed sys- and service user feedback (although these have tems, yet they provide a service of paramount public their place) but on citizen-led co-design, delivery importance and loom large – if inaccurately – in the and participation, where institutions do not so public imagination. The gap between profile, public much hand down power as find ways to nurture and concern and public understanding leaves the prison untap people’s individual and collective potential workforce in a particular bind: feeling they are at the to create their own solutions in partnership with sharp end of concern about crime, without broader public services. public knowledge or support for what it is they do. This creates a number of challenges: some of Those working within the prison system lack which have been keenly felt in the development of the external networks and freedoms they need to Transitions. First, that while technology will have a succeed in what they are, increasingly, charged huge role to play in mobilising people, collaborating with doing: reduce reoending. A key part of our and crowd sourcing ideas and evidence, change still

Building a rehabilitation culture 33 often needs to take place locally. Put bluntly, the and Transitions in the local community has taken development of the ideas presented here emerged us down a particular path. This means thinking from a process of engagement that has taken a year carefully about how the site is used, where the and involved direct engagement with hundreds of links are, what are the key things that the commu- people and organisations. Through pizza nights nity and prison both need, and how can these be and history days, not just structured surveys and shared? Most importantly, how can you provide a workshops. Very little of what we have done has safe environment where oenders are less isolated utilised social media for example, not least as our from the assets and networks they need? main stakeholder – prisoners – are unable to access The level of engagement and buy-in from not these tools. just the prison but wider agencies in the Humber For national social innovators like the RSA, sub-region and further afield, shows there is an this means being embedded in the services and appetite for a new approach. Transitions is new communities they wish to mobilise, and the RSA and it is ambitious, but it is also focused on practi- Fellowship here provides a model for collective cal change and common sense. Very few people innovation. For smaller local organisations often believe that there is nothing more we can do to already embedded in their immediate communi- tackle the stubborn problem of reoending levels, ties, this can mean further pressures on existing or that more of the same, just better, will work resources. For public services – particularly highly in an economic climate which is seeing resources centralised services such as prisons – the challenge decrease. This paper begins to set out the details is one of localism. of a plan and model which will work within the If the future of the prison service – and a strategy and culture of the new merged prison stronger and broader culture of rehabilitation to increase its ability to rehabilitate. We believe – lies in wider engagement and innovation, how the Transitions model we have developed with can this occur within the context of top-down prisoners, the prison and others in the region will command and control approaches, and commis- strengthen its roots in the community and econo- sioning arrangements that have very little to do my, and in doing so improve prisoners’ routes to with the local? How can a local workforce, used to resettlement, valuable skills and employment. operational inflexibility and uniform procedures, As the project develops it will be flexible and also be expected to feel empowered, be flexible and adapt to the networks and alliances we believe innovative? How can procurement rules – designed will prove critical to reducing reoending and to keep costs down – allow for local variation and increasing people’s rehabilitation capital. But we factor in the wider value for money this brings, also need to be mindful of Transitions’ original rather than simple unit costs? purpose and vision. We want to make the project sustainable but ethical; we need to prove it works Making justice social in Yorkshire, but that the learning from the The model that has emerged so far focuses on process itself and our approach can be replicated resettlement services working in collaboration elsewhere. from one site and in partnership with agencies in To say that making further headway in rehabili- the prisoners’ release area. In terms of employ- tation is too important to leave to prisons, justice ment and skills it focuses on the potential of agencies or top-down government approaches, is the site, of prisoners and on the gaps in skills in not intended to do a disservice to all those who the region. The Humber sub-region faces both daily work at the front line. Neither is it intended unique challenges and opportunities to fulfil its to imply that we have a magic bullet. Rather it is to potential as the energy centre for the UK. Skills argue that a better response to reoending is much for a low-carbon economy are a growing area more likely to emerge when the collective ‘we’ is across the nation, but that does not necessarily moved into action. Rehabilitation is something mean that all prisons should be focusing on this that all of us want to see more of, but it eludes us; area. What makes sense here may not work in it is a social benefit that requires a social response. London or Manchester; much will depend on We believe Transitions oers one way of mobilis- the local economy and configuration of services. ing this. If it works it could transform how we Our desire to embed rehabilitation, the prison approach rehabilitation.

34 Main report Building a rehabilitation culture 35 6. Transitions Humber

Desistance

Working life (external) post release and through Transitions. Step 6

Working life (external) for Cat Ds through Kairos Unit and Transitions. Step 5

Assessment of needs, skills and potential development. Education and vocational skills. Drug recovery and Step 4 treatment.

Working life (internal). Business park and ICT centre. Step 3

Working life (internal) with enhanced responsibility. Step 2 HMP Hull

Induction and assessment. First night integration. Step 1

HMP Humber 'prisoner journey'

36 Main report HMP Everthorpe 30,000. Between them the prisons employed over Having read about Transitions in the RSA Journal, 500 members of sta and worked with a range of and the fact that we were looking for the right external contractors. As a result of the merger and site to test the model, the then incoming governor cost savings, the combined workforce and number of HMP Everthorpe, Ed Cornmell invited us to of external providers is likely to be reduced. visit. There was a good fit: HMP Everthorpe was a Joining the two prisons will involve changes to public sector prison in East Yorkshire with a male, the physical site, stang and strategy, with a focus largely local, category C and D population. It was on developing a clearer prisoner journey. This situated on land that includes unused MoJ assets begins with conviction and a short time spent in and it had a willing senior management team. HMP Hull, where prisoners are risk assessed (and When we began work on site in late 2012, the categorised) and where they should be involved plan was to test the idea on this main site and investi- in developing a sentence plan. Changes to the gate a further site in the later stages of our work. regime take place against a backdrop of reduced resources and focus on how to strengthen the pris- HMP Wolds ons’ rehabilitation work, while retaining the good HMP Wolds (also a category C prison) opened in record on security of the previous establishments. April 1992 as a remand prison and was the first Transitions is very much part of the Governor’s prison to be operated by a private company. In vision and the prison’s strategy, which includes 2001 it became a category C training prison with emphasis on a clearly staged and communicated capacity for 410 people. HMP Wolds transferred process from induction to release. The aim is for to the public sector from G4S management in July each prisoner and all sta to clearly understand 2013. The population of what was HMP Wolds is the conditions of progress through the prison, made up of prisoners who on average are serving with a focus on additional responsibilities and longer sentences than those at HMP Everthorpe. choices at each stage, and clear penalties for The Wolds site includes some impressive vocational non-compliance. training programmes, but with a smaller and more This will play to the strengths of each of the compact site, and does not have the workshop space current sites, with induction, immediate interven- of its neighbour. tions (including basic skills, drug, alcohol and mental health programmes) in the earlier stages of HMP Humber custody. Once prisoners transfer to the bigger site, HMP Everthorpe has since merged with HMP the broad focus will be on continuing education, Wolds. This has created a male public sector but with a greater focus on vocational skills and category C public prison: HMP Humber. The employment (working within the establishment) ‘new’ prison is now a ‘resettlement prison’ under with the aim that prisoners have a clear sight of changes being made through the Government’s the steps they need to take for release and resettle- Transforming Rehabilitation agenda. ment. At the heart of this vision is the aim, not Technically, since September 2013 the prisons to create ‘good prisoners’, but active citizens who have been one facility, under the leadership of have the best chance of desisting from crime and a governor (Ed Cornmell, the former Governor addressing the challenges they face. of HMP Everthorpe) and a single Senior Management Board. The physical merger of the The site two sites is scheduled to be complete by the end HMP Humber is located in East Riding, one of of 2014. Resources and logic have refocused our the four authorities that make up the Humber work to take into account these changes. Rather sub-region. There are around 80 privately owned than work with an additional site, as originally or rented houses on the MoJ land adjacent to the planned, our focus has shifted to the expanded prison. These were built in the 1950s as sta hous- new facility, with wider work around justice ing and around a fifth of the households include services in the region. people who have worked in one of the prisons. The prison will have capacity for 1,062 residents HMP Everthorpe was built as a borstal in and will release over 1,000 people a year. The com- the mid-1950s alongside housing for sta on the bined number of visits a year is likely to be around parkland of a manor house, Everthorpe Hall,

Building a rehabilitation culture 37 built in 1871. The Hall was used for many years Generally, the building appears to be structur- as a sta social venue and training centre but has ally sound and includes impressive rooms, with been out of use for over 10 years. In all there are 55 large windows and original features, which could rooms, a range of stores and outbuildings and two be put into good use as part of a new facility. A courtyards. Adjacent to the Hall is an old farm, cost plan has been developed for refurbishment of stable block, farm manager’s oce, smaller infill the building and this has been broken down into property and associated stores. There is also a groups of tasks with the aim of as much work as walled garden, stream and pond. The site, includ- possible being undertaken by prisoners as part of ing the merged prison, is 120 acres: with the Hall, a wider employment and skills oer, linked to the fields and farmstead covering 45 acres of this. workshops inside. The Hall has suered from neglect. Some areas of the external fabric, particularly the roof, are The regional context in urgent need of repair, although some remedial Yorkshire and the Humber covers 15,408 square work has been done. Various surveys have been kilometres and is the fifth largest region in undertaken on the main Hall building. This has England. Its population of 5.2 million in 2007 included a full dimensional survey, structural, is larger than Scotland’s. Over 80 percent of the mechanical, damp and decay, and electrical population lives in urban areas. The Humber surveys. We have undertaken ecological surveys sub-region is dominated by the estuary and its to assess what species and habitats exist on site. river systems and framed by a Heritage Coastline Separate asbestos surveys were commissioned by to the East; an Area of Outstanding Natural HMP Everthorpe and asbestos removed. Beauty (the Lincolnshire Wolds) to the South;

Table 1: Recruitment needs by sector in the Humber sub-region

Sector Employment 2011 Total Recruitment 2015 including Total Recruitment 2020 including Baseline FTEs growth, transformational impact growth, transformational impact and replacement demand and replacement demand

Number % of 2011 Number % of 2011 emp. emp.

All Sectors Total 318,814 20,833 7% 65,057 20%

Business Services 30,161 5,658 19% 11,511 20%

Transport 23,148 4,118 18% 10,270 44%

Health 40,328 1,247 3% 7,499 19%

Construction 24,426 3,285 13% 6,502 27%

Retailing 27,011 2,380 9% 5,826 22%

Other Manufacturing NEC 2,844 2,388 84% 5,131 180%

Education 25,034 -524 -2% 3,624 14%

Wholesailing 20,639 786 4% 3,351 16%

Other services 15,215 1,500 10% 3,095 20%

Hotels and Catering 14,027 1,486 11% 2,990 21%

Other Financial & Business Services 4,687 934 20% 2,273 48%

Machinery & Equipment 3,599 787 22% 1,481 41%

Paper, Printing & Publishing 6,797 222 3% 894 13%

Minerals 3,781 473 13% 645 17%

Communications 4,062 180 4% 525 13%

Source: Regional Economic intelligence unit

38 Main report the Yorkshire Moors and Yorkshire Wolds to the Renewable Power and Siemens Project North; and the Yorkshire conurbations to the Ventures GmbH, is now in the final stages of West. The county of Humberside was abolished consultations. in 1996. However, Humber is still used to refer The Humber Local Enterprise Partnership to the sub-region including four authorities: East (LEP) is a business-led partnership that works Riding, Hull, North Lincolnshire, and North closely with government to promote and develop East Lincolnshire. Key agencies cover these areas the economic area surrounding the Humber including the Local Enterprise Partnership, the estuary and to provide strategic leadership for Oce of the Police and Crime Commissioner, economic growth. Its Skills Commission high- Humberside Police, Humberside Probation and lighted opportunities for the region and the need Humberside Fire and Rescue Services. to strengthen the skills base if these are to be grasped. As the Commission’s Chair, Nic Dakin The economy said: “The Humber, more than any other area of The employment rate in Yorkshire and the the UK, sits on the edge of great things if it can Humber stood at 69 percent in the first quarter but respond to this challenge. It is well placed of 2012, lower than the UK rate of 71 percent. In through its history and its geography to seize April 2013 the number of Jobseeker’s Allowance the opportunities presented today by renewable claimants was 32,232, which is six percent of the energy amongst other things. To do this it needs working age population, compared to four percent to maximise its strengths and, more than any- nationally. In April 2011, the median gross weekly thing else, deliver on skills.” earnings for full-time employees on adult rates The Commission’s recommendations included who were resident in the area was £466, lower than the creation of a major ‘green’ skills hub for the the UK median of £501. There was a two percent sub-region and a skills investment fund to up-skill decrease in house prices in the region in 2011 and the local population, including oenders. In in July 2013, Hull was found to have the second addition to specific sector skills, evidence to the lowest property prices in the UK. Commission highlighted the need for a stronger general skills base, including basic skills, employ- Humber energy ability, resilience and work ethics, with more work The Humber sub-region is the largest trading experience opportunities needed for those at the estuary in the UK and the fourth largest in lower end of the skills set. Europe, with a chemical and process sector The Transitions team has been consulting with worth £6bn a year and international expertise employers in the area; many echoed this message. in logistics. Forty million consumers and over 60 Some were open to seeing ex-prisoners as part of percent of the country’s manufacturing capac- the wider employment, skills and regeneration ity lie within a four-hour drive of the Humber. agenda, but many identified a need for improv- The region is home to the largest proportion of ing basic employability skills alongside more biofuel production facilities in the UK with a accessible risk assessment processes, and eective growing biomass sector with an emerging supply matching of jobs to people and ongoing support. chain providing feedstock, equipment, skills and technologies and a world first in the production of energy from food waste. There are many onshore and oshore wind energy projects in the area, including some of the largest oshore wind farms currently under development. Work has commenced on the Humber Gateway project, which will become the UK’s largest oshore wind farm, with 73 wind turbines five miles (8km) o Spurn Point. The Humber Gateway wind farm will generate enough electricity to power 170,000 UK homes. The Hornsea Oshore Wind Farm scheme, a joint venture between Mainstream

building a rehabilitation culture 39 Table 2: Contributing factors and offender needs in the Humber sub-region

Attribute Community Sentence and on License Custody

Education, training and employment 35% unemployed and 32% linked to offending 69% and 34% respectively behaviour

Physical and mental health 25% general health problems 35%

19% psychological/depression 56%

18% self-harm 33%

13% psychiatric problems 73%

Substance misuse 24% where drugs linked to offending 48%

42% where alcohol linked to offending 54%

Finance benefit and debt 23% attributed to offending behaviour 48%

Relationships and lifestyle 45% where offending behaviour linked to 65% (families and children) relationships

48% where offending behaviour linked to lifestyle 82%

Source: Humberside Probation Trust March 2012

Crime in the Humber sub-region • These 3,779 re-offenders committed 9,442 offences: an average of 2.5 offences per 76,613 recorded crimes (Humberside, Oct 2010 • re-offender. to Sept 2011). • Young offenders are slightly more likely to re-offend Of the 12,727 offenders (Oct 2009 to Sept 2010), • than those in 18+ age ranges. 3,779 (29.7%) went on to re-offend in the following • 241,000 people were unemployed in Yorkshire 12-month period, compared to an England and and Humberside in Jan – Mar 2012, down 1,000 Wales average of 26.3% (MoJ data for 2009). from previous quarter (ONS). Nearly 10% jobless.

Source: Humberside Probation Trust March 2012.

Crime in the Humber sub-region The profile of oenders in the region is not Home Oce statistics published in July 2013 dissimilar to the national picture, with high levels show that crime fell in the Humber sub-region of mental health problems, unemployment and sub- by 11 percent between 1 April 2012 and 31 March stance misuse linked to oending. A survey done by 2013, higher than the national fall (seven percent). HMP Humber at the end of 2013 gives some insight The Humber sub-region saw reductions in violence into the needs of prisoners and their background with injury, robbery, domestic burglary, vehicle but needs to be treated cautiously as it included 400 crime and criminal damage. prisoners and was self-selected and reported. The overall reduction in recorded crime has continued a trend of recent years. The justice Feasibility study services work well and closely together and A large part of our work has involved mapping Humberside Probation Trust retained its five stars in stakeholders in the Humber sub-region and the Recognised for Excellence (R4E) earlier in 2013. undertaking detailed consultation with a range of However, the level of crime in the area – in particu- stakeholders, including prisoners and other service lar in urban centres – remains a major concern. The users, prison sta, employers, local statutory and area continues to record high levels of violence with voluntary services, civic leaders and the com- injury and non-domestic burglary in comparison to munity. The process has three stages: stakeholder other forces and the sub-region includes some areas mapping and engagement; asset and network with higher than average crime rates. mapping; and master-planning.

40 Main report Table 3: Analysis of needs survey HMP Humber

Question No. Answered Agreed %

Do you considey yourself Gypsy/Romany/Traveller? 336 9 3

Is this your first time in custody? 339 84 25

Are you a foreign national? 333 6 2

Is English your first language? 337 331 98

Do you need help with housing? 334 169 51

Were you working just before prison? 340 159 47

Were you in education or training before prison? 334 29 7

Were you excluded from school? 338 154 45

Did you attend school regulary? 341 223 65

Do you have a long term learning difficulty or disability? 340 55 16

Do you have a skill or a trade? 340 227 66

Are you qualified in this skill or trade? 279 198 70

Would you like further education, training or retraining? 318 163 51

Were you under the influence of drugs/alcohol when the offence was commited? 341 212 62

Do you use illegal drugs? 336 158 47

Do you use illegal highs? 336 60 18

Do you take prescribed drugs? 336 144 43

Did taking this drug have a negative impact on life? 251 126 50

If drugs do have a negative impact do you want help? 231 80 34

Do you drink alcohol? 340 213 63

Does drinking alcohol has a negative impact on life? 311 96 31

If alcohol does have a negative impact on life do you want help? 261 59 23

Do you have other addictions? 334 44 13

Do these have a negative impact on your life? 227 62 27

If addictions do have a negative impact on life do you want help? 216 51 24

Have you previously been on a course or therapy programme? 338 185 55

Do you have a long term mental health disability? 321 78 24

Do you need help with mental disability? 258 63 24

Are you a self-harmer? 335 27 8

Do you need help for self-harming? 282 12 4

Do you smoke? 338 250 74

Do you require help to stop smoking? 319 133 42

Do you use the gym? 340 235 69

Building a rehabilitation culture 41 42 Main report Consultation

Scoping the build Feasibility

Vision Research and evaluation design

Business modelling and investment strategy

We have engaged and consulted with Workshops hundreds of individuals and organisations. We drew heavily on the RSA’s recovery model This has included a series of events, including when we undertook workshops in summer 2013 23 workshops inside and outside the prison, with prisoners, sta and ex-oenders. Participants a volunteering day and community events, as were asked a range of questions in order to well as attending countless meetings. We have identify the things they felt were most important been overwhelmed by the willingness to engage, to ensuring that prisoners did not reoend: what the interest shown from within the prison, the we call rehabilitation capital. local area and wider region, and by the positive These aspects could be personal (for example, response. Without this participation, and with- confidence), social (for example, family), com- out continuous consultation and feedback, the munity (for example, housing) and cultural (for model would be based on our assumptions and example, attitudes of others). Prisoners were dry evidence alone, not the creative and instruc- asked about these things in relation to themselves, tive process of co-design. whereas the focus with prison sta was about both themselves and the attributes and resources they Asset and Network mapping felt were important. Very crudely, asset and network mapping can Workshops tried to identify the key ‘nodes’ in be used to identify the range of things that are the prison that they felt were most important and important to individuals and groups in meeting whether these helped or hindered, or were neutral, a certain goal, be it changing their community in relation to increasing levels of rehabilitation or – as in this case – rehabilitation. The process capital. A longer and more detailed analysis of helps to map the personal, physical, social, this work is available as a separate document. community and cultural assets they value, and the Here we focus on some key cross cutting themes. social networks and connections they feel they need to thrive. The process can be a powerful tool Empathy and understanding for identifying the particular assets and networks Many raised the importance of ocers being able valued most in meeting certain desired outcomes. to understand prisoners. It was clear that ocers Asset and network mapping, used as we have done in particular have a clear sense that this means as a repeated exercise with dierent groups aiming two related things; one was around appreciation for the same goal, can provide a good indication of the circumstances many prisoners came from. of both perceived levels of which of these things As some pointed out, many ocers come from are present, the relationship between them and similar communities and neighbourhoods. The how gaps could be best filled. other was more around empathy and ‘tough

Building a rehabilitation culture 43 love’; the ability to instill both discipline and be because they did not know, or did not feel support prisoners. comfortable sharing. Those in the Kairos Unit Asked what they felt was the most important were much more vocal about the need for confi- asset they needed to increase chances of reha- dence and ‘knowing yourself’ in order to make bilitation, prison ocers were more likely than better choices. prisoners to identify things like security and But it is not just prisoners who felt disem- discipline. Prisoners were more likely to iden- powered. Prison ocers and other sta – with tify family and work. However when it came to some notable exceptions – felt that they were personal assets, there was a lot of agreement that unable to use their common sense to make deci- empathy, understanding and respect were critical. sions, and had very little flexibility, or ability to Other than time – with a focus on a need for one progress either the rehabilitation oer for prison- to one time with prisoners – ocers identified ers or their own career. The issue of training and understanding and/or empathy as the most impor- work progression was critical; a common example tant quality they needed. And whereas they felt given was the fact that ocers were perceived as comfortable with current levels of discipline and ‘key holders’, but had often developed skills on the security, they felt that empathy and understanding job, which went unrecognised. Some felt they were needed to be strengthened. under-utilised and that the competency based assessments and grading system left little chance Public attitudes of progression. Others felt they were expected to Very many prisoners felt that a huge barrier to respond to complex needs and risk – for example their rehabilitation when they leave prison will be when on the segregation wing – without either the attitudes of employers. Alongside lack of skills training or recognition. and job vacancies, many felt they simply would Overall ocers felt that prison life was largely not be given a chance even to get to an interview, invisible and the realities of policy changes on the let alone secure employment. They were highly horizon too complicated to be understood. This skeptical that they would be oered paid work, left them with a sense that they had no public even those who had skills and/or those in the support when faced with additional pressures, Kairos Unit on work placements. cuts and poor outcomes. The lack of engagement of employers was a theme that ran though all workshops; the need to Surveys with prisoners not just engage more but at scale. But in relation Through a survey, we have gathered the views of to public attitudes, the resounding issue from a third of the population (234 responses) of what ocers in particular was a deep sense that people was HMP Everthorpe. We have just completed a did not understand, appreciate or value what survey within the HMP Wolds site, with a higher they did. This they believed made it much harder return (these are in the process of being collated). to keep motivated, particularly when facing a All prisoners were given the opportunity to squeeze on resources and changes to their work complete the survey and those who did so were life that added additional pressure. self-selecting. The number of returns is largely down to the Self-determination fact that the survey was co-designed with prison- It is not surprising that prisoners felt disem- ers and ex-oenders in workshops and with the powered and frustrated by the lack of choices involvement of prisoner reps on each wing. We and ability to make the choices they wanted to. also assured prisoners that results were confiden- For many, this was about securing places on work- tial. For the purposes of this report we have pulled shops they wanted to attend, securing category out some of the findings of the Everthorpe survey; D, and a raft of other issues, which to the outside a fuller version will be available once we have all world might seem petty but inside prison take on the returns. huge significance. The majority of the prisoners who filled in Few prisoners inside could or would talk the survey described themselves as white British about the personal/emotional attributes they (85 percent), with the next biggest group being most needed to put crime behind them; this may British Asian (seven percent). Only 70 percent

44 Main report of all respondents said they could write English children and had a good relationship well, although for 98 percent this was their first with them; and a fifth had children but language. with little or no contact. Three in five (58 percent) said they either had • In terms of not committing crime again, a problem with alcohol in the past, currently had 91 percent of respondents said family a problem (five percent) and seven percent feared was the most important support needed; they would have a problem after leaving prison. 78 percent said friends; and over half Around 30 percent were currently receiving said probation ocers. help with drugs and/or alcohol issues. Sixty-five • A third felt prison ocers were an percent had served time in an adult prison, and important source of support in this 43 percent had served time in a Young Oenders’ respect (scoring higher than other sta Institution. and instructors). • When asked about relationships back Skills and work home, only a quarter had good relation- ships with employers; just under a half • Asked how they can improve themselves had a good relationship with a spouse; in ways that matter to them, the three and 10 percent had links with voluntary answers that were most popular were: or community groups. work (83 percent); building better relation- • Just over half had family members who ships (54 percent); and skills (54 percent). had been inside, and 39 percent said • 24 percent said they could not write a CV; many of their friends has been in prison 14 percent could not fill in a job applica- • 26 percent strongly disagreed that there tion; and 22 percent said that they could was anyone inside to help them keep out not attend a job interview. of prison in the future. • 65 percent said they were confident with • When asked whom they enjoyed spending reading; under half were confident about time with,19 percent said ocers and 13 keeping healthy; and just over a half percent the chaplaincy. If they needed were confident about using the internet advice or support, 20 percent would turn to find out information. When it came to to prison ocers, with family and friends vocational skills they felt they had, the again being the main source of advice. 41 highest score was for construction and percent said they had no one to ask for help maintenance (56 percent), then painting • Half agreed or strongly agreed they would and decorating, and gardening (both just like more face-to-face time with their over half). Two in five felt they had skills personal ocer in prison, and 56 percent in ITC and a quarter in supporting and agreed or strongly agreed that they were mentoring oenders. making some progress inside (13 percent • Construction and maintenance scored disagreed or disagreed strongly). highly (60 percent) in areas prisoners • Talking to strangers was identified as a would be interested in working in. Other challenge for about a fifth of respondents. popular areas were painting and decorat- Other issues identified as challenging ing, and gardening (both 47 percent), included self-expression, with 18 percent followed by mechanics and sport/fitness rating themselves low on this; listening (both over a third). to others (five percent); managing emo- • Nearly half of the respondents were inter- tions (18 percent); ability to bounce back ested in starting a business or ‘sometimes’ (10 percent) and motivate themselves interested (32 percent). (eight percent). • When asked whether they belong to a Relationships community, a quarter identified prison; 45 percent identified their local community; • Nearly two-thirds of respondents had and 22 percent said they did not belong to children; 40 percent said they had a community at all.

Building a rehabilitation culture 45 Visitors barrier to visiting. Other issues included Each year there are more than 30,000 visits to transport availability and costs. the prison, the majority of which will be family • There was support (40 percent) for joint members, close friends or partners. In accessing training, particularly around practical their views and ideas, Transitions undertook a skills focused on employment and life survey involving 83 visitors in December 2013 skills, including cooking and parenting. across both the Everthorpe and Wolds sites. This • There was strong support for more focused on visitor support, skills, transport, and family day. prisoner resettlement needs, and how these could • Most participants utilise the cafés during be better met by HMP Humber and by the poten- visits; many suggested that developing tial Transitions project. We drew on an earlier a more ecient way of getting visitors survey involving 97 visitors on the Everthorpe inside and running the café. site in summer 2012 which focused on visitor • The majority said they turn to family or support and transport needs. In our samples: friends when things go wrong, and 17 percent get support from the oender. • More than three quarters of adult Around 20 percent of participants from visitors are women. the Everthorpe site have a friend who • A third of the visiting groups had also attends prison visits. children with them, the majority with • Aside from childcare the most popular one child under seven years old. request for additional support was • A third of visitors were the spouse or general advice and finance. partner of a prisoner. • A third of visitors have worries about • A quarter are parents. the oender, when he comes out, across a range of issues. This included psycho- These surveys were supplemented by ad- logical support over and above parenting ditional discussions with visitors that took place advice. during a family day held at the Wolds site, and • More than 50 percent said there was a interviews with the relevant children and families need for a visitor’s network. team, including the Pre-School Learning Alliance who assist with activity at the Wolds site. The practical merger is still taking place, and this has meant a delay in a final survey with • In general visitors found sta friendly the ‘new’ sta team; this will focus on sta skills and accessible at both sites. and aspirations. • Around half of all visitors come from within the Humber sub-region. Master planning • Approximately 15 percent come from Following (and in parallel) with the extensive outside the Yorkshire and Humber region. stakeholder engagement work already carried • Just over 60 percent travel in their out, a series of master-planning workshops were own car; around 10 percent travel by organised to engage people with the development bus and four percent travel by train. of emerging options for the Transitions Park The balance relied on friends for lifts. business model and its physical realisation on A significant minority (13 percent) the site. experience diculties in travelling. A master-planning consultation ‘toolkit’ was • Visitors dependent on public transport developed, key parts of which were made in the were more likely to experience longer prison workshops. The toolkit was used to engage waiting times, sometimes up to two. with prisoners, ocers and other members of hours. Half of the participants wait in sta; with businesses, public and social enterprise the car park and the other half in the organisations; local residents and politicians. In waiting room. all, around 150 people engaged with these events. • Nearly 60 percent of visitors cited other Questionnaires were distributed to capture this commitments and time constraints as a information.

46 Main report [RB – insert picture of hall model somewhere here]

Building a rehabilitation culture 47 In developing the master plan, some key issues also including ‘softer’ skills such as sustainable arose in relation to the site and Transitions. First land management, food growing and recycling. was concern about increased trac to the site. Second was enthusiasm for the RSA’s potential Transitions Everthorpe Hall Park strategic role in getting agencies working together. Capitalising on the historic asset of the Hall, the Third, a great deal of emphasis on where the concept is to create a visitor attraction of some current and future skills gaps in the region could description that could be a conference/events facil- provide opportunities for work programmes in ity, with formal gardens, training for hospitality prison and jobs on release. and horticulture skills. Almost all respondents supported the project, with many expressing strong support across the Enterprise and industry Park groups, including local residents and politicians. Emphasising the need to create employment and Residents were also concerned that there would be skills training, this model considers the core func- significant residential accommodation on the site tions of the site as light industrial and facilities for for oenders and ex-oenders. This had already start-up businesses. This could focus on providing been ruled out as being inappropriate for this site. services and goods within the prison as well as in Three broad models emerged: the wider region and beyond.

. Transitions Green Technology Park Transitions ‘academy’ 2. Transitions Everthorpe Hall Park The RSA and the Gelder Group are working 3. Enterprise and Industry Park together to raise funds to transform the centre- piece of the Humber site, Everthorpe Hall, into The first option, Transitions Green Technology a skills and enterprise hub that will be opened up Park, was the most preferred, though in the for use with three core groups in mind: discussions many respondents said that they felt aspects of the other models could be incorporated • Service users, including category D into this option. In taking these considerations prisoners, oenders on license and into account we have developed and costed the prisoners’ families. The aim would also Transitions Green Skills Park in HMP Humber be to develop training and skills oers that will include: for prisoners inside HMP Humber, as well as ex-oenders who are struggling • Courtyard complex. to secure work. • Oces, public and educational functions • Individuals in the local community, provided within the renovated manor including the villages of North and house and the adjacent courtyards and South Cave and the Beck Road estate buildings. adjacent to HMP Humber. • A Health and Wellbeing Centre and • Local entrepreneurs and micro busi- ‘start-up’ flexible business units. nesses/start ups. There is a shortage of • Light industrial/training units. space in the area for business hubs aimed • Field learning centre. at this group. • Access road and car parking. • A café and events space that will act as The aim of this will be to provide a space for a meeting and information exchange the following activities. space, as well as a potential interaction between the project and the wider world. . The development of skills. The hub will include providing through the gate training Transitions Green Technology Park for category D prisoners (alongside employ- Conceptually based on an agenda of sustain- ment on and o site secured through HMP ability, incorporating green technology industries, Humber and Transitions). It will be the which could include for example sustainable base from which the Gelder Group develops construction, renewable energy and so on, but their work inside HMP Humber as well as

48 Main report provision through the gate. The aim would events and seminars. Much of Transitions be to develop an oer based on progression work will continue to be based on ongoing and continuity from custody to community, consultation with oenders, the community as well as for those oenders in the commu- and local services. The hall will include a nity. The modeling of this will be done with multi-purpose courtyard and café space that service users, prison education providers can be used as a hospitality space to support and employers, but we anticipate this will events and provide a place to engage with include apprenticeships and NVQs, includ- prisoners’ families. ing Level  which are currently not funded These activities will utilise the Hall, inside prisons. We are developing a pipeline provide opportunities for oenders and to understand who is ‘coming through’ the ex-oenders to gain employability skills and system, with the aim of securing funding training in a supportive environment, while for taking people to the next level when that benefitting the workforce and local com- is sensible. The proposal here is to engage munity. They will also ensure the long-term RSA Fellows in sponsoring individuals sustainability of the Hall and the surround- through this process. ing land as a venture, bringing in revenue 2. Business start-ups and small social/enter- from rent, contracts for training and em- prises. Many oenders and ex-prisoners ployment and commercial income. struggle to access work when they have completed their sentence. Some have Transport worked before and have some of the skills Transport will be critical to delivering Transitions’ they need to develop their own micro- wider aims. Future work in this area will focus on businesses. Others want to secure work in three key areas of potential transport need: the marketplace but will struggle to find jobs. Transitions will aim to help oenders • Providing transport to work placements, to set up their own businesses (often as sole passenger carrying vehicle (PCV) Driver traders) providing the added support they training and volunteering or work. need such as marketing, financial manage- placement opportunities for Category D ment or business planning skills. prisoners (low-risk oenders who can be It will also support oenders in develop- released during the day to work). ing the skills (and qualifications where • Providing better transport connectivity needed) so that they have a better chance for families visiting relatives at the new of securing jobs with existing employers. HMP Humber site, either through Transitions will also take on some prisoners improved commercial and/or community and ex-oenders as part of the project. In transport provision. the short term, as much of the renovation • The potential for providing ‘in house’ work as possible will be undertaken by transport provision, including mainte- oenders alongside developing their skills. nance facilities and cycle re-cycling and Providing a business hub within the Hall repair facilities. will not only help to deliver to local need, but also bring entrepreneurs and small busi- Five Ways of Wellbeing nesses into the Transitions space, enabling The development of the Health and Wellbeing business support, skills transfer and men- Centre as part of Transitions is informed by toring for oenders. the Five Ways to Wellbeing developed by Aked, 3. Events, seminars and research; Transitions Marks, et al (nef 2008): is a national project (the first of its kind) based in Humber. It aims to develop as a • Connect: encourages the development centre of innovation and excellence in rela- of family networks, wider service user tion to justice services and become a focal and community engagement. point for research, debate and participation. • Be active: encourages physical exercise This will include hosting research, public that is regarded as enjoyable and at a

Building a rehabilitation culture 49 level that fits the individual’s current ‘Green’ skills and enterprise fitness and mobility. Not surprisingly, in testing and shaping the • Take notice: focuses on practice – such Transitions model with HMP Humber we arrived as mindfulness – informed by evidence at a particular model for the Transitions Park of predictors to positive mental states component, based on developing skills for green and greater self-regulatory behaviour. industries. Future work is grouped into a number • Keep learning: highlights the importance of common delivery areas and this includes: of re-discovering old skills or developing new, and will be supported by oering • Green skills enterprise and training incor- training around drug and alcohol aware- porating training providers, with start-up ness including accredited courses. business support and light-industrial • Give: informs our thinking about the role employment. of peer mentors in supporting recovery • Providing opportunities such as food and supporting those who give their time growing and community engagement and to grow their sense of connectedness supporting the necessary infrastructure and wellbeing. for an exemplar ‘green’ development.

These approaches would be transferable for Transitions fits with the legal and prag- use within the prison community to provide a matic need for the UK to transition from a carbon therapeutic element for the population that would intensive to a low carbon economy. In moving to be available both six months prior to and upon the next stage of development we are exploring release. Our approach is based on evidence from the potential for: Sacks S., Chaple M., Sacks J.Y. et al that shows that there was a marked improvement in re-oending • Further engagement with the energy sector levels following involvement in a therapeutic including solar, biomass, energy eciency programme.29 and wind power enterprises with a focus on In supporting the diversion away from re- skills, employment and small-scale onshore oending, Transitions will develop a pre – and renewables on site. post-therapeutic community and focus on a • Social enterprises focused on waste reduc- programme including interventions on housing, tion, recycling, food and horticulture, life skills, crisis support, peer support, daytime utilising the site and identifying skills and activities and active citizenship. Drawing on employment opportunities within custody evidence that involvement from both peer mentors and in the community. and mutual aid groups can support clients in either • Identifying grant and income generating reducing or stopping their substance misuse and opportunities linked to the sustainability sustaining recovery, this will be a core element of agenda, with a focus on the long-term the Centre. financial and environmental sustainability It is conceived as a hub for health services of the project. including wider community provision, alongside • Further engaging with the MoJ’s sustain- services for those with drug and alcohol issues. The ability team including ocials leading Centre will continue to be co-designed locally, and on energy, waste, biodiversity and social in doing so we are working with existing services enterprise. within East Riding, although service users will • Shared learning between Transitions, HMP come from across the sub-region. This includes Humber and examples of ‘green’ prisons Alcohol Aftercare, the peer-mentoring project that and related innovations within the UK estate engages former and current users of treatment and further afield. services to provide peer support to clients who may • Engaging with the supply chains likely to be starting out on their treatment journey. be impacted by the Siemens deal and further developments, particularly where there are displacement opportunities most relevant for ex-oenders.

50 Main report • Applying this learning to the site develop- • Exploring the potential for developing the ment, including oender-led refurbishment spare kitchen on the HMP Humber site of the central Hall and construction of new as a social enterprise that can enhance buildings. opportunities for employment, training • Continued engagement with learning, skills and qualifications. This work will con- and employment providers and employers tinue to be done with the prison’s catering on aligning HMP Humber/Transitions to manager and catering sta and draw on the opportunities in the area. examples elsewhere in the service. This will scope in detail short to medium-term This work will help Transitions – and HMP opportunities for providing food to some Humber – to align developments in order to give parts of the prison and Transitions site oenders increased chances of securing work and alongside training outcomes. This will in- developing their own ambitions in line with the clude looking at routes to work, potential opportunities in the sub-region and its particular partnerships in the area and independent wider public value. living skills. It will explore longer-term opportunities linked to the development Social enterprises and the real economy of the HMP Humber site/Transitions and The Humber sub-region is one of Europe’s largest the Market Garden, a private business food processing centres, with Greater Grimsby outside the prison but not on the MoJ known as ‘Europe’s food town’, hosting the largest site. In understanding the opportunities fish market in England and Wales. The catering available within the wider ‘ecology’ of sector is expected to grow with the new invest- the prison and Transitions as it develops, ments to the area, and food policy features in the we will need to design innovations that Hull city plan, in recognition of increasing food can work within current procurement poverty and health concerns. The city plans to arrangements. develop local engagement with food growing and • Exploring the potential for expanding community bulk buying, and to create a city farm current work on site (horticulture) to for this purpose. food production and waste management. More locally, the site that Transitions is work- This work will focus on generating work ing on is used for horticulture, employing a small opportunities for Category D prisoners number of Category D prisoners. In exploring in the short-term with a longer term the short to medium-term development of social plan linked to the development of the enterprises we have focused on the local economy, Transitions project, in particular the café oender skills and aspirations and on building on and health and wellbeing centre. The core existing provision and areas of excellence within focus will be to look at enhancing the the prison. These include five key aspects: commercial opportunities that exist with an aim of developing a social enterprise. • Looking at a more granular level at where • Assessment for the potential of linking the skills gaps lie in the region in relation this work and the wider food oer to to food and horticulture, drawing on the broader public health and independent survey work we have already done. This living skills. This will include developing work would need to address in detail the op- our understanding of how to educate and tions for employment and skills (onsite and inform prisoners and families about heath in custody) and how these fit within current and nutrition, and assessing how this can commissioning and funding arrangements. engage prisoners and existing provision such as the gym and catering sites.

Building a rehabilitation culture 51 Final model: Transitions Green Enterprise Park

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52 Main report The authors

Rachel O’Brien Advisory Panel Rachel has worked in policy, communications and project design and delivery for some 20 years. She • David Archer, Director, Socia Ltd has worked in senior roles for the RSA, Shelter and • Lord Best ippr. In 2008/9 she was a special advisor to Ruth • Nina Bolognesi, Director of External Kelly, the then Communities minister, and has Aairs, RSA worked with a range of organisations as a consult- • Kath Dalmeny, Policy Director, Sustain ant. She wrote The Learning Prison (RSA 2008) • Phil Emery, Community Partnerships and Transitions (RSA 2011 and has relocated to Director, Sodexo East Yorkshire to lead this project. • Doug Hook, Senior Probation Manager, Hertfordshire Probation Trust John Marshall MBE • Shadd Maruna, University of Belfast John has extensive experience as a project man- • Robert Morrall, Director, Insider Access ager in civil engineering and the third sector. He • John Podmore, writer and consultant was Head of Community Services at the Goodwin and former governor of HMP Brixton Development Trust for 14 years, overseeing a • Hugh Rolo, Director of Innovation, considerable expansion of its work in deprived Locality areas and nationally. He has been working with HMP Everthorpe for some years to enhance its The Transitions team reports to the RSA Trustee external links and lives locally. Board and to a regular risk review team in London. Roland Karthaus Roland has expertise in developing and For more information about the project commissioning projects. He has extensive please visit: www.thersa.org/transitions experience in regeneration, stakeholder or contact the Transitions team on 01430 425406 engagement and consultative design. He is or [email protected] a part-time senior lecturer and researcher in Architecture at the University of East London.

Building a rehabilitation culture 53 Endnotes

1. See ‘The RSA strategic review – The Power to Create’. 15. Granfield, R. and Cloud, W. (2001) ‘Social context Available: www.thersa.org/fellowship/news/the-next- and “natural recovery”: the role of social capital in the direction-for-the-rsa resolution of drug-associated problems’ in Substance 2. Commission on 2020 Public Services (2010) From Use & Misuse 2001, Vol. 36, no. 11 , pp. 1543–1570. Social Security To Social Productivity: a vision for Switzerland: Informa Healthcare. 2020 Public Services. London: RSA. 16. O’Brien, R. (2010) The Learning Prison. 3. Ministry of Justice (2014) Population and Capacity London: RSA. Briefing for Friday 25/04/2014. London: MoJ. 17. Ministry of Justice (December 2010) Breaking the 4. Ministry of Justice (24 April 2014) Proven Re- Cycle: E ective Punishment, Rehabilitation and o ending Statistics: Quarterly Bulletin July 2011 to Sentencing of O enders. London: MoJ. June 2012, England and Wales. [Statistics Bulletin]. 18. RSA (2001) Closing the Humber Gap: transforming London: MoJ. rehabilitation in the sub-region. London: RSA. 5. Ibid. Available: www.thersa.org/transitions 6. National Audit Oce (December 2013) Managing 19. MoJ (2001) Asset Management Strategy. London: o enders on short custodial sentences. London: NAO. MoJ. 7. Ministry of Justice (17 October 2013) Costs per place 20. Locality (2014) ‘Community assets transfer to reduce and costs per prison, National O ender Management re-oending’ [web page]. Available: http://locality. Service Annual Report and Accounts 2012–13 org.uk/news/community-assets-transfer-reduce- Management Information Addendum. [Information reoending/ Release]. London: MoJ. 21. Ministry of Justice (March 2013) Analysis of the 8. The Equality Trust www.equalitytrust.org.uk/ impact of employment on re-o ending following research/imprisonment release from custody, using Propensity Score Matching. London: MoJ. 9. Kenneth Clarke speech 30 June 2010, ‘Justice Secretary plans ‘radical’ prison policy change’: Available: 22. For example see Halpern, D. (2004) Social Capital. www.bbc.co.uk/news/10457112 Cambridge: 2004 and Ormerod, P. (2012) Positive Linking: how networks can revolutionise the world. 10. O’Brien R. (2011)Transitions. London: RSA. London: Faber & Faber. 11. Ministry of Justice (May 2013) Transforming 23. Please see the RSA’s Connected Communities Rehabilitation, A Strategy for Reform. London: MoJ. work: www.thersa.org/action-research-centre/ 12. RSA Events (24 March 2014) ‘Creating a community-and-public-services/connected- Rehabilitation Culture’. Available: www.thersa. communities org/events/audio-and-past-events/2014/What-is-a- 24. Please see the RSA’s Recovery work: www.thersa. Rehabilitation-Culture-and-How-Can-We-Make-One org/action-research-centre/community-and-public- 13. Dagger, R. ‘Playing fair with prisoners’, RSA Journal, services/recovery/whole-person-recovery Winter 2012. Available: www.thersa.org/fellowship/ 25. Granfield, R. and Cloud, W. (2001). Op cit. journal/archive/winter-2012/features/playing-fair-with- prisoners 26. See for example ‘How and why people stop oending: Discovering desistance’ IRISS Insights, no.15, April 14. See RSA Connected Communities: www.thersa.org/ 2012, but see also Maruna, S. (2001) Making good: action-research-centre/public-services-arts-social- How ex-convicts reform and rebuild their lives. change/connected-communities Washington DC: American Psychological Association Books.

54 Main report 27. See for example the recovery mapping process used by the RSA: www.thersa.org/action-research-centre/ reports/socialchange/whole-person-recovery 28. Griths, S., Kippin, H. and Stoker, G. (eds) (2013). Public Services: a new reform agenda. London: Bloomsbury. 29. Sacks S., Chaple M., Sacks J.Y. et al. ‘Randomised trial of a reentry modified therapeutic community for oenders with co-occurring disorders: Crime outcomes’. Journal of Substance Abuse Treatment 2012, Vol.42, Issue 3, pp. 247–259.

Building a rehabilitation culture 55 About the RSA HMP Humber The RSA (Royal Society for the encouragement HMP Humber is a male resettlement public sector of Arts, Manufactures and Commerce) is an prison in East Yorkshire that provides services for enlightenment organisation committed to finding up to 1,062 Category C and D prisoners at any one innovative practical solutions to today’s social time. It releases around 1,200 people each year. challenges. Through its ideas, research and It is a ‘new’ prison resulting from the merger of 27,000-strong Fellowship it seeks to understand HMPs Everthorpe and Wolds in 2013 and is situ- and enhance human capability so we can close the ated on an MoJ-owned site that includes a small gap between today’s reality and people’s hopes for community of around 80 households alongside a better world. 45-acres of land, a manor house, farm and storage buildings which have been largely unused for over www.thersa.org a decade.

About Transitions The project seeks to find new approaches to reducing reoending by unlocking physical and social assets linked to prisons. The RSA published Transitions, its vision for a 21st century prison in 2011. This included the development of ‘Transitions Parks’ through bringing back to life unused assets – buildings and land – owned by the Ministry of Justice (MoJ). The RSA is now work- ing with a public prison in testing this proposal.

For more information about the project please visit: www.thersa.org/transitions or contact the Transitions team on 01430 425406 or [email protected] 8 John Adam Street London WC2N 6EZ +44 (0) 20 7930 5115 Registered as a charity in England and Wales no. 212424 Copyright © RSA 2014 www.thersa.org Design by Soapbox www.soapbox.co.uk