NOMS Cymru Strategic Commissioning Plan 2010-2013

Strategic Commissioning Plan 2010-2013

NOMS Cymru

Strategic Commissioning and Business Plan 2010-2013

Strategic Commissioning Plan 2010-2013

Foreword

This commissioning and business plan sets out our three year direction of travel for offender services in Wales. It shows how we will drive value through our commissioning approach and as a result deliver better services for the people of Wales.

During the winter we consulted with a wide range of stakeholders and partners about our commissioning priorities and our future intentions. The outcome of the consultation has enabled us to design the best possible integrated offender services with our lead providers in prisons, probation and key stakeholders. This will deliver services that:-

 protect the public by minimising the risk of offenders’ harm;

 punish offenders by ensuring they comply with the requirements of their sentence from the courts;

 reduce the risk of reoffending by managing offenders according to their risk;

 provide appropriate support to victims of offending behaviour;

 work collaboratively to help prevent the most vulnerable people from entering the criminal justice system.

We already deliver good quality services in Wales. This experience provides us with an understanding of how to better deliver offender services in a more integrated way with our partners across the public, private and voluntary, community and social enterprise sectors. Our focus this year is to accelerate that delivery, and to be more responsive to local needs at community level.

A strong theme emerging from the consultation and which is embedded in NOMS Cymru is the value of collaborative working. I will continue to look for opportunities in which NOMS Cymru, and our providers, can work more collaboratively with partners in both the Criminal Justice System (CJS) and in communities to deliver effective and efficient services. We will focus on working with partners and providers to make Wales a world- class exemplar in delivering offender services, preventing victims and changing offenders’ behaviours.

At the time of the consultation the four probation areas were applying to form a Wales Probation Trust using the outcome of the Better Together project to help inform developments. The application was successful and from 1 April 2010 there is a single Wales Probation Trust.

Strategic Commissioning Plan 2010-2013

The Wales Trust is our lead provider for the delivery of offender management services and will be formed of 10 Local Delivery Units (LDUs) across Wales. I will promote local commissioning as a way of stimulating innovation and to ensure that our services meet the needs and priorities of local communities. My team and I will be working closely with probation colleagues to help empower the LDUs to work with local partners to address specific issues and concerns in local areas. I will encourage probation’s LDU teams to provide a visible local presence in all communities in Wales and to be able to respond to local issues as they arise.

The consultation also referred to the review that was underway to look at the prisoner population in Wales and to ensure we are making the best use of our prison estate in Wales based on:

 M aximising the number of offenders with home addresses in Wales in Welsh prisons; and

 Making the best use of our resources to change offending behaviour and protect the public.

We are currently working with key stakeholders on the proposals coming out of the review, these are referred to in more detail in the plan. The intention is to put in place agreed changes during 2010-11.

Our commissioning is aimed at continually achieving best value in the services we provide to meet our priorities. We will ensure that this is delivered through good quality offender management by managing offenders with the right offender service at the right time. To highlight this point we are working closely with probation to improve the range of provision and capacity to address the specific behaviour of those sentenced for domestic abuse. We are working to improve access to the most appropriate interventions, linked to assessed offender’s risk, and have increased probation’s resources to ensure this can be achieved.

In addition we are focussing on breaking the reoffending cycle for those most at risk by improving the resettlement outcome for short-term Welsh prisoners returning to their communities in Wales. During the year we will be co-designing with key stakeholders an Offender Foundation Service that will build on best practice, for example lessons from the Swansea Chaplaincy project, the Transitional Support Scheme and other such initiatives. This will deliver a prisoner resettlement package and give Welsh communities confidence that people resettling there will be helped to reduce their risk of reoffending and to improve their sustained integration back into their communities.

We will also be increasing sentencing options available to courts in Wales, based on the intensive supervision and control provision that is showing signs of success in our pilot areas. This would provide courts with a wider range of sentencing options to target those offenders who are more likely to change through community punishment and intervention, rather than a very short custodial sentence.

3 Strategic Commissioning Plan 2010-2013

Enabling offenders to recognise the impact on victims and the community of the decisions and actions they take is an important part of helping people become more responsible. We will continue to support restorative activities through our Community Payback Scheme and our victim liaison work through probation.

Last year we committed to further developing services in a number of key areas. This commissioning plan takes that a stage further in relation to broadening availability and provision. This includes addressing the needs of female offenders in Wales, through the ongoing development of the Women’s Turnaround Service and putting in place appropriate interventions to address people’s alcohol-related offending, in custody and in the community.

I want NOMS Cymru to become the public’s voice for delivering best value in offender services in Wales and to earn the public’s confidence through our successful management of offenders. Our continuing aim is to prevent victims by changing lives.

YVONNE THOMAS Director of Offender Management, NOMS CYMRU

4 Strategic Commissioning Plan 2010-2013

Contents

1. Overall Performance during 2009-10 ...... 6

2. Commissioning for 2010-13...... ………………………………………………...7

2.1 Outcome of the Consultation…………………………………………………...….7 2.2 National and Wales Contexts………………………………………………………7 2.3 NOMS Cymru Core Business…………………………………………………...…8 2.4 Investing Resources to Manage Priority Offender Groups……………………..9 2.5 Commissioning Influencers……………………………………………………….10 2.6 Delivering Actions and Services………………………………………………….10 2.7 Service Reviews…………………………………………………………………...14 2.8 Finance…………………………………………………………………………...... 15

3. Business Delivery…….……………………………………………………….....16

3.1 Development of Custody in Wales……………………………………………….16 3.2 Forensic Psychological Services…………………………………………………17 3.3 Offender Learning and Skills…………………………………………………...... 18 3.4 Reducing Reoffending in Wales………………………………………………….18 3.5 Women’s Pathway…………………………………………………………………19 3.6 Attendance Centres………………………………………………………………..21 3.7 Developing Innovation Projects…………………………………………………..22 3.8 Promoting Equality in Prisons and Probation………………………………...... 25 3.9 Welsh Language Scheme………………………………………………………...26

Annexes

A List of Consultees………………………………………………………………………….27 B Summary of consultation Responses……………………………………………………29 C Offender Population…………………………………………………………………….....34 D Offender Profile broken down by Priority Groups………………………………………41 E Equality Impact Assessment (EIA)……………………………………………………….56 F Glossary of Terms with standard definitions…………………………………………….59

1. Overall Performance during 2009-10

There has been real success in bringing down the frequency of adult reoffending in England and Wales. Comparing the 2000 and 2008 cohorts, the frequency rate of reoffending fell 15.9% to 155.5 offences per 100 offenders. The PSA 5 target from the Spending Review 2002 specified a 5% reduction in reoffending between 2000 and 2006; this target was met with an 8.3% reduction. The PSA 23: Making Communities Safer specifies a target of a reduction in reoffending activity of 10% by 2011. Using 2005 as the baseline year, there has been a 6.2% reduction in reoffending between 2005 and 20081.

In Wales using information for offenders under probation supervision during the period October 2008 to September 2009 some 89%2 did not reoffend. We believe we can further improve our services through better integration of offender management with partners and key stakeholders.

During 2009, courts in Wales sentenced over 38,000 offenders. 6,600 were committed to immediate custody and 13,569 into a community penalty3. The number of offenders sentenced to custody, in particular short term custody has decreased from 2008.

Last year over 8 million hours valued at over £48 million were undertaken by offenders managed on Community Payback across England and Wales. Since December 2008 these offenders have been required to wear branded, high visibility jacket for public awareness purposes. A wide range of Community payback projects are currently being successfully undertaken across Wales.

Multi-Agency Public Protection Arrangements (MAPPA) support the assessment and management of the most serious sexual and violent offenders. In Wales approximately 500 offenders are managed throughout the MAPPA process (levels 2 & 3) at any given time and an additional 1,700 at the lower level 1.

Every local area in Wales has a Prolific and Priority Offender Scheme, to target those offenders in the locality that are responsible for the highest volume of crime. Through our work in prison and probation we target those offenders as part of local partnership approaches within the criminal justice system and local government to punish and reform their behaviour.

1 Reoffending of adults: results from the 2008 cohort: Ministry of Justice 2 Local Adult reoffending Oct 08 – Sept 09 cohorts: Ministry of Justice 3 Sentencing data 2009 taken from the NOMS Performance Hub

2. Commissioning for 2010-13

2.1 Outcome of the Consultation

Seventeen organisations responded to the consultation, which focussed on our key commissioning intentions and priorities. The responses in the main were from existing providers, partners and stakeholders within Wales or those with close connections to Wales. A list of the organisations contacted during the consultation is at Annex A and a summary of the consultation responses is at Annex B. We will be taking account of the consultation responses in the delivery and review of our commissioning during the year.

The purpose of the plan is to provide a summary of the key areas that we will focus our commissioning and delivery on during 2010-11, and provides a longer view to 2013 for planning purposes.

2.2 National and Wales Contexts

The aim of this plan is to deliver services that meet both Government and local priorities. Our ongoing commissioning will therefore need to be responsive to reflect those priorities and to meet any subsequent changes.

Under Ministry of Justice organisational changes NOMS was restructured as an executive agency in April 2008. The focus of NOMS is to work to protect the public and reduce reoffending and is responsible for commissioning and delivering adult offender services in custody and the community. In Wales, NOMS Cymru is responsible for offender services.

Demand for services is growing and, despite falling crime rates, more people are being sent to prison and more are receiving community sentences that require Probation resources. Some 42%4 of offenders usually resident in Wales are located in prisons in England and this has an impact upon the effectiveness of resettlement services when those individuals return to their local community. There are already some excellent in- reach services involving all sectors being provided to Welsh prisoners in and outside Wales. We acknowledge the importance of resettlement services and will develop services that will further improve prisoners’ resettlement into their Welsh communities.

There are inevitable budgetary pressures that we will be mindful of as part of our commissioning responsibilities, and prioritisation of resources to gain maximum value for the public is part of our commissioning approach. Our commissioning and performance management of services over the next three years will ensure high quality services are delivered effectively and will make a significant difference to offending behaviour.

Working in partnership with the Welsh Assembly Government is key to ensuring success. It provides a unique partnership approach to influence change in offender behaviour in

4 CUBE data – May 2009

Wales that builds on the Assembly’s devolved responsibilities and citizen centred approaches.

2.3 NOMS Cymru Core Business

Between October 2008 and September 2009 reoffending in Wales, based on probation caseload, was 11.03%5.

We will continue to ensure that public protection remains the foundation for the services we provide and to contribute to reducing reoffending in Wales, through delivering the punishment of the court and in reforming offenders. The following provides some information on the core business areas for NOMS Cymru:

 Ensure the sentencing requirements of all the courts in Wales are delivered.

 Undertake the management of the prison estate in Wales. This comprises, HMP Usk and Prescoed; HMP Cardiff; HMP Swansea, which are public sector run prisons, and HMP/YOI Parc which is a privately run prison. Currently the prison estate in Wales can hold 2,860 prisoners. An expansion at HMP/YOI Parc due to open later in 2010 will increase capacity by up to an additional 470 places.

 Deliver safe and secure custody to all prisoners held in Wales.

 Commission the new Wales Probation Trust to manage some 15,700 offenders on community sentences, and pre and post release supervision, and provide services to victims, and the courts.

 Promote and deliver services in both the English and Welsh language as necessary.

 The offender services we commission are based on the best evidence available to protect the public, deliver the punishment of the courts and help offenders change their lives in order to reduce their chances of reoffending.

 Commission offender services directly and in partnership with other organisations.

 Manage a total budget of £140 million and work with our providers to continue to achieve efficiency savings.

5 This figure relates to the actual reoffending rate of offenders on the rolling four-quarters of probation caseload between October 2008 and September 2009. www.justice.gov.uk/publications/local-adult-reoffending.htm

2.4 Investing Resources to Manage Priority Offender Groups

In our current commissioning plan we identified four offender groups to specifically focus on (i. to iv). These groups remain a priority and we will continue to focus on the work that is currently underway. Following the review of the custodial estate in Wales and future developments for delivering layered offender management we are including two other groups (v and vi.). The priority offender groups for NOMS Cymru will be:

i. High & very high risk of harm (OASys risk of harm analysis definition)6

ii. Indeterminate Public Protection (IPP) Offenders in Custody

iii. Prolific & Priority Offenders

iv. Women offenders

v. Male offenders in custody in Wales aged 18 to 21 (designated as Young Offenders)

vi. Offenders sentenced to less than 12 months custody and not under the statutory responsibility of probation services.

The groups are not in a priority order and offenders may be in one or more of these groups. Priorities may be subject to change to reflect national changes in the light of future government policy developments.

Following the outcome of the consultation we will promote with partners and resource the continued investment into offender groups that demonstrate the greatest need for investment to protect the public and reduce reoffending, where this will have significant benefits to local communities. This is to emphasise that a specific focus on these groups will result in more successful outcomes. It does not mean that other offenders will not receive appropriate provision.

During our consultation representations were made to include certain offences for example, domestic abuse, substance misuse, and certain groups of people such as those with personality disorders, communication difficulties, offenders from black or minority ethnic communities, and foreign nationals. I

It is acknowledged that these are important issues to be taken into account in the delivery of appropriate offender services. As part of our management of all offenders we aim to provide a safe and secure service that meets both the requirements of the courts and helps to address the causes of offending behaviour. We will always aim to provide the most appropriate services and interventions to meet an individual’s circumstances with our partners.

6 This definition applies to all offenders in the community and offenders subject to Offender Management Phase II and III in prison.

Annex C provides information on the overall offender population in Wales and Annex D provides information on the priority groups.

2.5 Commissioning Influencers

Our commissioning for the next three years will take into account national commissioning priorities and enablers, which would include, but not be confined to:

 Statutory requirements  Court demand forecast, including the use of conditional cautioning  Risks of offenders to the community  Addressing the identified criminogenic risks of offenders  Research evidence on what works to reduce reoffending and provides public confidence  Resources available  Service capacity for substance misuse treatment  UK Government’s and Welsh Assembly Government’s priorities  Integrated Offender Management  Resettlement  Offender profiles

2.6 Delivering Actions and Services

We have four integrated delivery arms to ensure that public protection remains the foundation of our services in delivering the courts’ sentences, contributes to reducing reoffending and help victims. During the period of the plan we will work to deliver:

 Effective custodial and community services  Collaborative Services and public confidence  Effective Interventions  World Class Offender Management

The following provides a summary of the actions that we will be taking:

Delivering effective custodial and community services by:

 Increasing the number of prison places available in Wales to prisoners from Wales who will be resettling into communities in Wales. To achieve this we are:

o Undertaking a review of the roles and purposes of the prisons in Wales to inform future custodial provision. This will ensure that establishments both individually and collectively provide the most appropriate offender management service for the prison population in Wales – see page 15.

o Expanding the capacity and provision in HMP/YOI Parc for an additional 470 prisoners.

o Working closely with partners to secure an additional Welsh prison to be located in North Wales. We are currently working with key stakeholders in North Wales and NOMS to identify suitable site locations for consideration.

 Supporting prisons and probation in Wales to achieve excellence in the delivery of their services. To achieve this we are promoting and testing innovative ways to deliver services and working with our providers to develop the infra-structure and staff development to achieve a range of improved outcomes.

 Meeting the needs of diverse groups through improving the scope and provision of services that strive for equality. To achieve this we are working closely with our lead providers to ensure services are appropriate for the range of offenders we are managing in both custody and community. An example is working with the Muslim Council for Wales to improve resettlement for Muslim prisoners back to their communities through the Faith in the Future project.

 Reducing year on year the number of women from Wales being held in prisons. To achieve this we are providing courts with a greater range of community sentencing options specifically for women and increasing the support available to reduce the risk of offending behaviour. This will include establishing small managed accommodation units to support specific women offenders.

 Promoting and extending the good practice identified from piloting the Intensive Supervision and Control projects (ISAC) in specific courts in Dyfed-Powys and South Wales to provide sentencers with a wider range of sentencing options. We will be working with probation to roll-out the availability of this provision across courts in Wales.

 Continuing to improve offender compliance on community based programmes. To achieve this we will be identifying and delivering on the current good practice across Wales, including peer mentoring and advocacy services.

 Supporting the continuous development of organisational capability to provide the skill level and service flexibility to meet changing demands. To achieve this we are working with probation and prison colleagues to help develop the skills mix and capabilities to meet future offender management requirements.

 Reviewing and evaluating the outcomes from pilot intervention projects being delivered in prisons and probation in Wales, to determine the appropriateness for mainstreaming delivery and re-investing resources. This forms part of our value drive for commissioning what works.

Delivering Collaborative Services and Public Confidence by:

 Working with the Welsh Assembly Government and other key members of the Wales Reducing Reoffending Strategy Board to deliver collaborative actions to reduce reoffending and support the delivery work of the intervention pathways.

To achieve this we will be refreshing with partners and stakeholders the Wales reducing reoffending strategy and actions during the year.

 Aligning commissioning with other Ministry of Justice services in Wales and those of the Welsh Assembly Government and local government, to ensure access to mainstream services and to avoid duplication. One of the ways we are achieving this is through the delivery of the Swansea collaborative service model.

 Providing guidance and support to Probation to support their new role on Community Safety Partnerships (CSP), to deliver the requirements under the Policing and Crime Act 2009. The Act requires CSPs to formulate and implement a strategy to reduce reoffending. We are working to help probation implement the role and responsibilities outlined in the joint Home Office and NOMS guidance issued in 2010 on the new duties for CSPs in England and Wales.

 Working with key stakeholders to include reducing reoffending in their strategic plans. This is ongoing and will be developed at the Wales level with the Welsh Assembly Government and at a local level with the CSPs.

 Enabling a vibrant range of providers in the private and voluntary, community and social enterprise sector to deliver services to offenders together with statutory agencies. To achieve this we are using the commissioning for the multi-million pound NOMS Cymru European Social Funded (ESF) Newday project and also building on the collaborative commissioning models for the delivery of the alcohol intervention programme, COVAID in prison, and the Women’s Turnaround Service in the community.

 Helping to design and promote a collaborative service delivery model covering both national and local government areas of responsibility. To achieve this we will be developing the Swansea collaborative service model as good practice.

 Developing a joint guidance framework for the delivery of Integrated Offender Management (IOM) in Welsh communities. We have been working with partners and key stakeholders to prepare an IOM framework for Wales for consultation with key stakeholders. The intention would be that the IOM model in Wales would be overseen by the joint Welsh Assembly government and NOMS Cymru Reducing Reoffending Strategy board.

To support the delivery of the plan we aim to:

 Identify and address with partners, the specific issues and range of causal factors that may contribute to the continued recidivism of offenders on Probation caseload.

 Agree key outcomes with partners to support collaborative actions.

 Work more closely with partners to provide the most appropriate support for victims of offending behaviour.

 Work with agencies that support people at risk of offending from entering the criminal justice system.

 Review and improve resettlement outcomes for prisoners who are returning to Welsh communities.

 Promote Social Enterprise models to support offender services.

Delivering Effective Interventions by:

 Ensuring interventions are better aligned to address offending behaviour, the associated causal factors, and improving access to timely and appropriate interventions. To achieve this we are reviewing a range of interventions and options for courts to consider as part of their sentencing.

 Further developing integrated substance misuse interventions to achieve continuity of care for offenders and increasing the focus on alcohol interventions. We will wish to develop this through the role of the Substance Misuse Area Planning Boards.

 Moving more offenders into sustained employment or training leading to employment following release from prison or while under supervision in the community. To achieve this we are working closely with the Welsh Assembly Government on the learning and Skills agenda along with DWP/Job Centre Plus. In addition our Newday ESF project will focus support on achieving employability outcomes.

 Working with local government and the voluntary, community and social enterprise sector to ensure that fewer offenders lose their accommodation upon imprisonment and more are supported into suitable and sustainable accommodation in the community. This will be developing through a review and pilot of a revised service linked to Prison Link Cymru.

 Developing sustainable debt and finance services for offenders. This will include assessing, and implementing where appropriate, the outcomes of a recent evaluation of the financial capability project delivered by the Citizens Advice Bureau in HMP Cardiff and HMP/YOI Parc.

 Developing the Women’s Turnaround service into an all Wales service to support women offenders and those at risk of offending.

 Developing and delivering more services to better support people with Learning Disabilities or Learning Difficulties in prisons or under probation supervision in Wales. To achieve this NOMS Cymru has established a multi- agency Learning Disabilities Working Group involving Criminal Justice Agencies and community services. We intend to put in place awareness training for front line staff and identify appropriate referral routes and interventions.

 In the consultation paper we indicated that there was the intention of establishing a competitive NOMS Cymru Innovation Fund (NIF) to help develop collaborative ways of delivering services to meet local priorities. We will be reviewing this approach in line with available resources but will continue to promote the delivery of best practice through local innovation and collaboration.

Delivering World-class Offender Management:

We will aim to achieve this by Wales being held as an exemplar in the delivery of offender services. This will involve us in:

 Delivering the best end-to-end Offender Management that is recognised by peer organisations.

 Ensuring quality of offender management is achieved and maintained.

 Using probations’ services to help inform the designation of PPO status and review at a local level.

 Ensuring that Courts receive the quality and timely sentencing advice they require.

 Ensuring the implementation of the Offender Management Guide to Working with Women Offenders.

 Continuing quality improvement of OASys offender management information.

 Improving the transfer of information between service providers.

2.7 Service Reviews: Offender Intervention Programmes

During the current commissioning cycle NOMS Cymru established the Programme and Intervention Delivery and Implementation Group (PIDIG). This group provides the integrated link with the joint Wales prison and probation Offender Management Delivery and Implementation Group (OMDIG). Together the two groups will ensure that the delivery of the offender management model in Wales and the identification and delivery of interventions provide effective and responsive services to manage offenders in Wales.

During this commissioning cycle we are continuing with our key service reviews which also support offender management services of those priority offender groups referred to previously. We have prioritised the reviews which will be overseen by the PIDIG members. They are:

 Domestic Abuse  Sex offender treatment programmes  Substance Misuse – with a focus on tackling alcohol related offending.

The following reviews will be undertaken to identify the most appropriate interventions that should be considered for:

 Male offenders in custody in Wales aged between 18 and 21 years  Offenders serving short term custodial sentence.

We will continue to improve the range and availability of interventions for courts to consider, that can reduce the risk of reoffending. To ensure timely access to interventions we will be considering the use of access times for interventions in our contracts with providers.

In relation to domestic abuse we are currently identifying a range of appropriate community based interventions that can be considered along with the current Integrated Domestic Abuse Programme (IDAP). This would enable offender managers and courts to consider the intervention that is best suited to address an offender’s specific domestic abuse behaviour.

In addition we are undertaking a review of the role of Attendance Centres in Wales, which transferred to NOMS Cymru last year. The outcome of the review will help inform future development in Wales.

2.8 Finance - Budget for Prisons and Probation

The delegated budget to NOMS Cymru for Offender Services totals some £140m.

This is broken down across the constituent parts of NOMS Cymru as follows:

Business Unit Budget £,000 HMP Cardiff 16,904 HMP Swansea 9,114 HMP Usk & Prescoed 7,269 DOM Wales 3,117 NOMS Cymru Estates Management 2,721 NOMS Cymru Regional Services 1,958 Wales Probation Trust 55,720 HMP Parc 42,802 Total 139,605

3. Business Delivery

3.1 Development of Custody in Wales

NOMS Cymru Prison Population Review

The purpose of the review was to assess the current use of the four prisons which make up the estate in Wales and to determine the future use based on:

 Maximising the number of offenders with home addresses in Wales in Welsh prisons;

 Making best use of resources to ensure the focus on Reducing Reoffending is maintained.

Following the outcome of the review an initial consultation was undertaken with key stakeholders which, along with the current limited investment available, has helped in develop proposals which are now under consideration. The final outcome will be known in the summer. The intention is to implement any changes by January 2011.

The Current position

The Estate: HM Prison Cardiff Cat B male local Operating capacity (Op Cap): 824

HM Prison Swansea Cat B male local Op cap: 428

HMP/YOI Usk/Prescoed Usk: Cat C training (sex offenders) Op Cap: 256

Prescoed: Cat D training/YOI Op Cap: 178

HMP/YOI Parc (contracted sector) Cat B male local/YOI/STC Op Cap: 1200

Proposed Future Changes

The following revised proposals are currently under consultation:

HMP Swansea – the prison would retain a small remand function serving the city and courts to the west of it. The major function for Swansea would be as a training prison for prisoners serving up to 2 years.

HMP Cardiff - would be the primary local prison for South Wales and take responsibility for a number of the courts currently being served by HMP Swansea and outside the revised Swansea prison’s catchment area. HMP Cardiff’s primary purpose would be to serve the courts within its wider catchment, provide high level support for prisoners in their early days of custody and to efficiently risk assess, categorise and allocate individuals to suitable prisons. Currently HMP Cardiff would retain life sentenced prisoners, until a review of HMP Parc's capacity to meet their needs is carried out.

HMP Usk and Prescoed – For the foreseeable future Usk prison will remain as a national facility to deliver sex offender treatment programmes.

HMP/YOI Parc It is intended that it will become a training prison, with the current remand functions (with the exception of 15-17 yr olds) transferred to Cardiff.

North and Mid Wales The current arrangements with HMP Altcourse and HMP Shrewsbury are not affected by these proposals.

NOMS Cymru is working with NOMS HQ in relation to a future North Wales prison site.

Women prisoners There is no proposal to create a Welsh female prison. However, we are working to reduce the number of women with home addresses in Wales in prison. To support this, we will be progressing a variety of initiatives to provide appropriate alternatives to short custodial sentence for courts to consider.

We are formalising arrangements with HMP Eastwood Park and HMP Styal, who hold the most women prisoners from Wales, to ensure the needs of women in prison with home addresses in Wales are being met.

3.2 Forensic Psychological Services

Forensic Psychologists work with offenders in custody and in the community in Wales. Psychologists engage in a variety of work which includes assessment of risk (of harm and of reoffending) and undertake one to one psychological interventions to reduce risk (much of this work is parole board directed). Risk assessments of high/very high risk sexual and violent offenders serving determinate sentences are also undertaken. Forensic Psychologists play an important role in the MAPPA process ensuring that up to date information on risk is shared with the relevant agencies.

Psychologists also deliver and manage accredited sex offender group based interventions in custody. This will include individual psychological interventions with sexual offenders who are motivated to manage their sexual arousal and sexual preoccupation. A consultancy service on how to manage difficult and high and very high risk offenders is also offered to offender managers in both custody and in the community. Other services offered include staff training and research.

Forensic Psychologists play an active role in supporting offender managers in the Intensive Alternatives to Custody pilots in Dyfed Powys and in South Wales. As part of this service weekly clinics are provided where offender managers can seek advice and support on difficult to engage offenders. Priority areas of work for future development in the community include psychological consultancy and assessment for MAPPA level 3 offenders, support for probation staff in the assessment of sexual offenders’ pre sentence and support of treatment and risk management of sexual offenders in the community.

3.3 Offender Learning and Skills

From 1st April 2009, responsibility for offender learning in prisons in Wales was transferred to the Welsh Assembly Government.

As a result of the transfer we have a Memorandum of Understanding with the Welsh Assembly Government (WAG) which sets out their expected outputs and performance indicators for the provision of learning, skills and library services to offenders in custody plus basic skills delivery to offenders under probation supervision in the community.

NOMS Cymru receive some £3.2m from WAG to deliver these services and work closely with the Department for Children, Education and Lifelong Learning in the Assembly to ensure that those offenders serving their sentences either in custody or the community have access to high quality and relevant learning opportunities that are consistent with other Welsh Assembly Government funded mainstream learning programmes.

3.4 Reducing Reoffending in Wales

This is being undertaken through the ongoing delivery of the aims contained in the joint NOMS Cymru and Welsh Assembly Government’s Strategy “Joining Together in Wales” (2006). The strategy provides the direction and requirements for partnership working between our offender management services and those devolved areas such as health, housing, learning and skills etc. During the year we will be leading a review of the strategy. The outcome will be presented to the Wales Reducing Reoffending Strategy Board to agree future developments. The intention would be to agree a framework document that would help and influence partnership delivery at local level.

Probation colleagues are key influencers at the local level through their representation on the Community Safety Partnerships, and on the four local Criminal Justice Boards in Wales. The different local government structure and performance system in Wales makes it essential that NOMS Cymru work with partners to provide a collaborative approach to local delivery of offender management and the inter-related services.

The Wales Reducing Reoffending Board is co-chaired by the DOM and the Welsh Assembly Government. It sets the joint strategic direction and collaborative focus for both the non devolved and devolved areas needed to tackle offending behaviour. The Board commissions and brings together a comprehensive set of management information to

support partners in their local discussions about the best use of collective resources to address reoffending.

The policy pathways that underpin the work of the Board are:

 Accommodation  Substance misuse  Learning and Skills  Health and Social Services  Children and Families of Offender and  Finance Benefit and Debt,

It now also includes a specific women’s pathway, which is detailed below.

The direction of the board will be to look to imbed the offender management work in those devolved policy areas within the Welsh Assembly Government’s mainstream delivery. This would ensure there is a seamless approach in the delivery and management of services.

PIDIG has been established as the next stage in the role of the former Attitude, Thinking and Behaviour Pathway. PIDIG will link closely and complement the development and implementation of Offender Management and support the service reviews that have been highlighted in the previous section on Service Reviews.

3.5 Women’s Pathway

Women and the CJS Forum

Baroness Corston’s ‘Review of Women with Particular Vulnerabilities in the Criminal Justice System’ (March 2007) recommended that every agency within the criminal justice system must prioritise and accelerate preparations to implement the Gender Equality Duty and radically transform the way they deliver services for women.

As a result, the Government Equalities Office held a ‘Women in Focus’ event in Cardiff on 29 January 2010 attended by Maria Eagle, Minister of State. Yvonne Thomas, Director of Offender Management for Wales, and June Milligan, Director of Social Justice and Local Government for the Welsh Assembly Government spoke at the event. This well attended event produced an agreed outcome for NOMS Cymru to convene a Women & Criminal Justice System (CJS) forum. The forum would involve all agencies working with women offenders meeting to discuss their work and how we can improve services to women and avoid duplication.

Women’s Turnaround Service

The Women’s Turnaround Service provides women offenders and women at risk of offending in Wales with a multi-agency, community-based range of services that address individual risks and needs.

 South, Mid and West Wales

NOMS Cymru has provided grant funding since 2007 for services in South Wales and recent Ministry of Justice grant funding has allowed the service to expand their team and develop the project across Mid and West Wales. An office base in Llanelli has been established and the purchase of a vehicle for use as a mobile office has allowed project workers to have a ‘safe’ space to meet with clients in more rural areas who are unable to travel or where there are no suitable agencies nearby within which to meet. The team covering South and Mid Wales has moved into a 'physical' centre for women in Cardiff Bay and this will allow for women service users to access support at the centre on a 'drop in' basis and also attend workshops such as careers advice, financial advice, adult learning and holistic therapies.

 North Wales

NOMS Cymru have provided grant funding to the North Wales Women’s Centre in Rhyl to roll out the Women’s Turnaround Services for women who have offended or who are at risk of offending. The holistic women-centred service will be delivered from the Women’s Centre in Rhyl and out reach services will become available across North Wales. Four project workers have been employed to provide the support for women who engage with Turnaround and there is a large team of volunteers and mentors, many of whom are ex service users, available to proactively support women.

NOMS Cymru will set new targets for 2010-11 to ensure women can access the services they need across Wales without undue delay. We also intend to competitively tender out the Women’s Turnaround Service and award the contract to commence in April 2011.

Women’s Accommodation Project

NOMS in Wales does not have a custodial establishment for women which results in women sentenced to custody being imprisoned in England. The impact of imprisonment far from home on women, their children and families is substantial and well documented.

NOMS Cymru has responded positively to the recommendations of the Corston Report and developed the Women’s Turnaround Service. We are now seeking to develop this innovative approach further through the provision of supported residential services to reduce the number of women sentenced to short term custody and enhance resettlement upon release from prison. The project will be supervised and enable women to move on to independent secure homes.

The risk and needs profile of women offenders in Wales does not point to a significant need to build an approved premises. Analysis of data and consultation indicates four smaller properties in a range of locations in Wales would be appropriate and would meet geographical considerations.

The aim of the residential service would be to divert women from custody and enhance the resettlement of women released from prison whether they are under statutory supervision

or not. Staffing levels in the properties would be appropriate to manage risk and support needs. From examining all the relevant information and data we consider the best option would be to develop up to four six-bed supported housing sites in south and North Wales. This would provide short-term supported housing, for suitable women linking with the relevant local government and community services to ensure there is progression and relevant support to return to the community.

We are currently exploring with all sectors a range of collaborative options to develop and deliver this model. Depending on the availability of resources we intend to introduce this service during the commissioning year.

Children and Families Pathway Group

During 2009 NOMS and Department for Children, Schools and Family (DCSF) in England have produced ‘Reducing Reoffending: Supporting Families, Creating Better Futures’ a framework to support families. The Welsh Assembly Government support the aims and principles of the framework and we are currently discussing with the Assembly how best we can work together to promote and improve support for families of offenders and women offenders. The families’ agenda links very closely with our work with women offenders and we will ensure the work is closely linked.

3.6 Attendance Centres

Attendance Centres are provided by the Justice Secretary under section 62 of the Powers of Criminal Courts (Sentencing) Act 2000 as places, for those offenders sentenced to a Attendance Centre requirement as part of a Community Order, to attend usually for two or three hours on Saturdays for a specified period of time.

There are two kinds of Attendance Centres; Junior Attendance Centres take offenders sentenced to an Attendance Centre Order aged 10 to 17 inclusive and Senior Attendance Centres take those sentenced to an Attendance Centre Order aged 16 to 24 inclusive.

Since the summer of 2009, NOMS Cymru has assumed responsibility of the six attendance Centres in Wales. Five Junior Attendance Centres covering ages 10-17 are based in Cardiff, Swansea, Gwynedd, Flintshire and Wrexham. One Senior Attendance Centre based in Cardiff covers 18 to 24 year olds, but is also able to take offenders aged 16 and over.

The programmes of activity at Attendance Centres concentrate on working in a structured and disciplined group setting. Sessions offered are designed to develop personal responsibility and self-discipline, including the consequences of reoffending, victim awareness, basic skills, such as numeracy and literacy, and life skills, such as basic cookery, first aid and money management.

While punishing the offender by imposing a regular restriction on liberty and therefore depriving him/her of loss of leisure time, the programmes of activity enable the offender to develop social skills and learn to make better use of leisure time.

NOMS Cymru is currently undertaking a service and performance review of each Attendance Centre to identify best practice and areas for improvement.

We will be working with the Youth Justice Board in Wales, Welsh Assembly Government and other key stakeholders to identify and develop opportunities for collaborative working.

3.7 Developing Innovative Projects

NOMS Cymru is fortunate to be building on a strong legacy of partnership working. This helps to develop innovative offender services with a range of partners to improve and sustain outcomes for individuals and the communities they live in. The six projects outlined below show the types of services being developed and evaluated as part of our programme of continuous improvement.

i. Future Skills

The Future Skills Project, developed in North Wales and now delivered across Wales, has proved to be an effective intervention supporting offender management and achieving excellent rates of compliance and participation from service users.

The project is coming to the end of its pilot period and the results are very encouraging. In a 12 month period to January 2010, 107 offenders have completed the 16 week course and achieved a total of 505 Open College Network qualifications. The project is still being delivered and its evaluation will be completed in the summer. The outcome of which will help determine future delivery.

ii. Alternatives to Custody Pilots - Intensive Supervision and Control (ISAC) Orders

In May 2008 NOMS Cymru and probation submitted a successful bid to pilot new community based offender services for sentencers to consider as a viable alternative to short term custody. This enabled probation to deliver two linked projects in specific courts in South Wales and Dyfed Powys from September 2008.

The projects deliver new requirements for community sentences under an intensive supervision arrangement to manage offenders, and address specific issues around their offending behaviour, voluntary, community and social enterprise sector partnerships were developed to provide specialist interventions. .

Probation and NOMS Cymru work collaboratively to ensure the Intensive Supervision and Control Order (ISAC) are used by courts and that offenders comply with the intensive, restrictive and demanding elements of the new community sentence.

NOMS Cymru was also successful in attracting additional funding to divert women from short term custody. The Women’s Turnaround Project provides specialist assessments on women who are to be sentenced at court and outlines how they can provide women on an ISAC order the specialist help they require to avoid re-offending.

Courts currently covered by ISAC in Wales include Crown and Magistrates in the following locations: Rhondda Cynon Taff; Merthyr Tydfil; Neath Port Talbot; Swansea; Ammanford; Carmarthen; Haverfordwest and Llanelli.

The alternative to custody pilots are currently being evaluated, which will help inform its future delivery. Our initial indications are that the pilots are successful and this provision should be made available to other courts in Wales.

Between August 2008 and January 2010, 225 offenders have been diverted from custody, 25 of which were women offenders. In addition the compliance rate is higher than anticipated. The retention rate is currently 69% compared with an expected 40% and is evidence of the high level of engagement and quality work undertaken by probation and their partners.

During the commissioning year this provision will be made available to other courts in Wales.

iii. Managing Finances and Debt

Assisting offenders in identifying and addressing their financial issues is considered important in helping to reduce reoffending.

NOMS Cymru have been addressing this in association with both the Financial Services Authority (FSA) and the Legal Services Commission (LSC) in the following two ways:

a) Legal Advice Surgeries

Research by the independent Legal Services Research Centre has shown that there is a link between reoffending and financial exclusion, with financially excluded prisoners serving significantly more prison sentences than financially included prisoners. Helping individuals become more financially included may help reduce reoffending rates.

NOMS Cymru has been working with the Legal Services Commission who has commissioned services to extend their successful debt advice service to prisoners in custody in Wales until 31 March 2011.

b) Financial capability Project

The outcomes of the finance capability project, delivered in HMP Cardiff and HMP/YOI Parc by the Vale of Glamorgan Citizen’s Advice Bureau, are currently being evaluated. Findings from the evaluation conducted in Year 1 were largely positive from both staff and offenders accessing the service, and staff involved in its delivery and initial feedback from the current evaluation suggests that the service has continued to be received positively.

The financial capability service, currently delivered at HMP Cardiff and HMP/YOI Parc, has been extended until September 2010. The outcome of the evaluation will help inform future developments.

iv. Control of Violence for Angry Impulsive Drinkers (COVAID) in Custody

Our Commissioning Plan last year outlined how through analysis of the AUDIT questionnaire, completed by 35% of offenders in custody in Wales, and through consultation, the need for an alcohol related violence programme was evident. The COVAID programme was deemed most suitable to meet the needs of the prison population in Wales and following a competitive tendering process, the contract to deliver the programme in HMP Cardiff and HMP&YOI Parc, was awarded to South Wales Probation Trust (now Wales Probation Trust) for an initial period from September 2009 to March 2012.

By April 2010 five groups have been delivered with 45 offenders completing the programme. COVAID is being well received by offenders and staff in the prisons. The Probation Trust is developing valuable expertise in the delivery of interventions in a custodial setting and collaborative working with prison colleagues.

We have commissioned the University Wales Institute Cardiff (UWIC) to conduct a feasibility study to determine if a randomised control trial of COVAID could be conducted in a Welsh prison in order to fully determine what impact COVAID has on violent reconviction rates. The study will report in September 2010.

The commissioning of COVAID is demonstrating how we can work using commissioning as a driver of needs-based solutions that support local and national strategic initiatives.

v. Faith in the Future

Faith in the Future is a pilot project established in November 2009 with grant funding from the Ministry of Justice Extremism Unit as part of NOMS Cymru Prevent Strategy. The Project is managed and evaluated by the Islamic Social Services Association of Wales (ISSAW), which is part of the Muslim Council for Wales. Services are being piloted in HMP Cardiff and HMP/YOI Parc.

The aim is to support the successful resettlement of Muslim offenders into their communities in Wales. Working closely with existing Muslim Prison chaplains a team consisting of a Coordinating Community Chaplain, Outreach workers and volunteers provide befriending and advocacy to Muslim prisoners for a period of 6 weeks prior to release and 12 weeks post release. Working alongside Offender Supervisors in the prisons and Offender Managers on release they will compliment the sentence plan for those serving over 12 months and provide assistance in release plans for shorter term prisoners. Faith in the Future staff aim to reintegrate offenders back into their communities building bridges of understanding and acceptance where necessary.

The project will be evaluated during 2010-11.

vi. ESF Project: Newday

NOMS Cymru successfully achieved approval to deliver a multi-million pound employability project called Newday, across the whole of the West Wales and Valleys ESF Convergence areas. Newday service will also be delivered within each of the four custodial establishments in Wales.

Newday provides services to tackle the economic inactivity and aims to increase sustained employment opportunities, predominantly for offenders and ex-offenders. It would also include those, who by their current behaviour are considered at risk of offending and are economically inactive or unemployed.

The focus will be on those unlikely to engage with mainstream learning provision in their communities – including young people who are Not in Employment, Education of Training (NEET), Black and Minority Ethnic (BME) individuals, women, lone parents and older people. This will include:

o people with health and social care needs - those with mental health disorders; recovering from drugs and alcohol misuse, the homeless, physically disabled;

o people with learning difficulties and disabilities.

The aim will be to progress individuals into employment, by equipping them with skills in order to compete in the labour market.

3.8 Promoting Equality in Prisons and Probation

The Single Equality Scheme 2009-2012 sets out the approach that NOMS will take to address equality issues in service delivery. The scheme has influenced the delivery of our Commissioning and Business Plan to ensure the services we provide adhere to good equality practice, both in employment terms and in the services delivered.

In providing services in Wales, we are particularly mindful of the need to ensure that there is a commitment to treat English and Welsh languages on a basis of equality, through the development of the NOMS Welsh Language Scheme.

NOMS Cymru is committed to ensuring that within all services we are responsible for, assuring attention is paid to the equality of access and parity of outcomes. We will respond to requirements enshrined in legislation, particularly those arising from public sector duties and in doing so we will emphasise the importance of working in partnership by engaging and communicating across all areas of our commissioning activity.

This Commissioning and Business Plan has been developed through consultation. Policy documents published by NOMS Cymru will be subject to Equality Impact Assessments. In addition, we will consider ways in which our providers discharge statutory duties and ensure offenders, irrespective of race, religion, gender identity, sexual orientation, age, disability or preferred language, secure the same opportunities as the rest of the offending population. We will seek equal outcomes through the activities of the Wales Reducing

Reoffending Strategy and programmes for all offenders, and consider the relevance of service delivery to each offender.

NOMS will conduct an annual self assessment from which we will produce our strategy and plans. This will include:

1. Establishing equality outcome measures; 2. Building in equality targets and milestones; 3. Establishing effective data collection systems; 4. Analysing data and using the information to inform future service design and delivery; 5. Promoting equality through our commissioning process.

3.9 Welsh Language Scheme

The NOMS Wales Welsh Language Scheme was approved by the Welsh Language Board 23rd October 2007. The Scheme was prepared in accordance with Section 21(3) of the Welsh Language Act 1993. NOMS Wales has adopted the principle that in the conduct of public business in Wales, it will treat Welsh and English languages on the basis of equality.

Following the establishment of NOMS Cymru in April 2008 a review of the current scheme has progressed with the Welsh Language Board, and we are now in the process of creating a Welsh Language Scheme for the whole of the NOMS Agency.

The NOMS Agency Welsh Language Scheme will cover all of the Agency responsibilities, including Prisons in England and Wales, Probation Services, and NOMS Cymru. The Scheme is currently at the internal consultation stage and we are working to publish the NOMS Welsh Language Scheme later in 2010.

______

26 Strategic Commissioning Plan 2010-2013

Annex A: List of Consultees

Organisations invited to comment on the consultation

Chairs of Community Safety Partnerships Area 43 Chairs of Local Criminal Justice Boards Adref Chairs of Regional DIP Boards CAIS Chief Constables of Police Careers Wales Chief Crown Prosecutors Cyswllt Contact Ceredigion Chief Probation Officers Citizens Advice Bureau Independent Monitoring Board Chairs, Drugaid IMB National Council Representative Gwent Alcohol Trust Chief Executives of Local Authorities GAVO Director Jobcentre Plus, Wales Ignition Director Legal Services Commission, Wales Kaleidoscope Project Wales Prison Governors MIND Director HMP Parc Monmouth Community Recycling Prison Service Area Manager NACRO Probation Board Chairs NCH Cymru Director, Courts Service Wales Newport Wastesavers Welsh Assembly Government New Pathways Welsh Local Government Association Newlink Wales Youth Offending Teams PAVO Youth Justice Board Prince’s Trust Cymru Members of the all-Wales Reducing Reoffending Powys Drug and Alcohol Centres Strategy Board PRISM Progress to Work AWEMA Safer Merthyr Tydfil Barnardos Safer Wales Children in Wales Shelter Cymru Clinks SOVA (Cymru/Wales) Communities That Care – Cymru Taff Ely Drug Support (TEDS) Crime Concern Cymru Tai Cantref Equality and Human Rights Commission Tai Trothwy The Children’s Commissioner for Wales Tai Hafan Families & Friends of Prisoners Turning Point Mediation Wales Touchstones 12 Stonewall Cymru Victim Support Wales Swansea Neighbourhood Watch Association Welsh Womens Aid West Glamorgan Council Drugs and Alcohol Abuse Working Links Wales Women’s National Coalition Wallich Clifford Housing Wales Council for Voluntary Action West Wales Substance Misuse Service Criminal Justice Manager – Duke of Edinburgh’s Awards Scheme

Organisations That Responded:

1. Barnardos Cymru 2. Buddhist Council Wales 3. Dyfed-Powys Police 4. Group4Securicor 5. Gwent Local Criminal Justice Board 6. Gwent Police 7. Hafan Cymru 8. Her Majesty’s Court Service 9. Home Office Crime Team in Wales 10. Jobcentre Plus 11. NACRO 12. Princes Trust Cymru 13. Probation Areas and Trusts in Wales 14. Rhondda-Cynon-Taff Council 15. SERCO 16. South Wales Police 17. Wales Council for Voluntary Action

28 Strategic Commissioning Plan 2010-2013

Annex B: Summary of Consultation Responses

1) Do you agree that the six offender On the whole most agreed with the priority groups. groups should be considered as - Needs assessments of each individual within the priority groups is essential. priority groups?

2) Are there any other offender groups, - Young People/Young adults 18-21, especially - Minority ethnic offenders as opposed to offences that should be women - PPOs not in custody or receiving included for priority provision or - Older prisoners community supervision review? - Domestic Abuse perpetrators - Potentially Dangerous Persons - Vulnerable perpetrators - Those with less than 12 months - Those with multiple needs sentence - Offenders with communication difficulties and barriers to engagement

3) Are there any other national or local - Welsh women and men in custody in England. - Court demand/ workload forecast factors that could influence our - Integrated Offender Management approaches - Emerging government priorities commissioning that should be taken - All Wales Probation Trust Process - Demand led services into account? - Population Review - Representation on Local Authority - scoping of existing provision. Planning groups - Diverse - Victims perspectives communities - A variety of needs based on age

4) Are there other actions that could be - greater partnership working with family support - North Wales prison considered to deliver effective services - Greater understanding of roles and custodial and community offender - work related prison sentences responsibilities of relevant partners management services? - review YOI capacity in Wales - Develop small units n Wales for - Review female prison capacity in Wales women - Review communication procedures for licensing - Increase advocacy services conditions on release - The role of ex-offenders in breaking

the cycle of offending

5) Are there other areas that could be - Re-establishment of Children and families group - New approach to target setting considered for development and in - All Wales IOM approach - Increased use of restorative justice delivering collaborative services? - NOMS involvement in the future of TSS - Involvement of service users in - Involvement on CSPs shaping services - Effective transition of educational achievements - Engaging communities - Collaborative approach to services between - Knowledge of number of children who public, private, and voluntary, community and have parents in custody/supervision social enterprise sectors. and the impact

6A) What services do you consider to be - Stable family home life - Substance misuse treatment- important for the successful - Support around parenting and relationships - Targeted support resettlement of prisoners in Wales? - Housing - Good assessment - Training - Continuity – seamless OM - Education - Links with agencies prior to prisoner - Employment prospects release - Assistance is managing finances - Links to schemes for people with - Scoping and co-ordination of existing provision mental health problems - Basic skills - Mentoring e.g. for victims of domestic abuse - Links with the community

6B) What gaps, if any, are you aware of in - Welsh based agencies delivering services to - Fast access to benefits on leaving current provision? Eastwood Park custody - Health, Counselling and citizenship - Implement Bradley report provision, - Engagement of voluntary, community and social especially for personality disorders enterprise sector and business community, - Interventions in instrumental violence including housing and charitable organisations - Increase in psychology services in the - Provision for accommodation facilities for community resettlement to Dyfed-Powys- - Mediation services with families

- Accommodation - Monitoring & tracking of individuals - Those without specific needs such as substance misuse don’t have much access to services.

6C) What examples of good practice are - Barnardos prison projects - Job shadow programme in Cardiff there that you would recommend and - IOM All Wales Board - Swansea community chaplaincy why? - DRT Scheme – engagement with CARAT scheme workers - Newday - Kaleidoscope or DIP in Gwent - Halfway house and restorative justice - Prosiect Bont – achieving 60% reduction in PPO at HMYOI Ashfield reconviction - Multi Systemic therapy Cambs YOT - Role of employment benefit adviser in prisons in - Intensive fostering Wessex YOT Wales - The Bridge Project at HMP Doncaster - Jobclub facility in Cardiff prison - The school of hard knocks’ - Building bridges to reduce reoffending

7) Offenders’ issues around - Services for women in Eastwood Park by Wales - Target specific groups – BME, older Accommodation, Leaning and Skills, based agencies offenders and women Employment, Substance Misuse, - Joined up services - Assessing learning needs and Children and Families, Health and - Those without identified complex needs leaving difficulties Social Services, Finance, Benefit and custody. - Developing skills in citizenship Debt need to be addressed as part of a - Accommodation - Increase in psychological services in collaborative approach to reducing - Preventative work in schools the community reoffending. - Links with offenders children and family - Parenting skills - Access to learning and skills - Independent living skills Have you identified any specific gaps - Share training with other agencies on release to - Negotiation skills in provision that could be improved? ensure skills learnt in prison are on record

8) Are there other areas that could be - Pre conviction interventions - Increase engagement with offenders considered for delivering effective and - Careful consideration for use of match-funding with learning difficulties efficient interventions? for services - Pro-active monitoring of offenders

- Regular contact/supervision with partner organisations - Better multi-agency planning and co-operation - Early release planning particularly with regard to domestic abuse - Mentoring - Development of a NOMS innovation fund - Pre-release education - Greater priority for health issues - Peer support - Restorative solutions - Mental health - Sharing info - Alcohol interventions.

9) Are there other action areas that could - Information sharing, personalised - IOM be considered for effective offender - Use of probation to inform the selection and de- - Focus on the family management? selection of PPOs. - Expansion of drug courts across the region - Joint OM procedures

10) Do you consider there is a need to - Better information sharing and awareness to - Cover offenders not eligible for IDAP increase the range of appropriate ensure intervention opportunities are not - Support for victims provided by an community interventions to address missed. independent worker specific domestic abuse offending? - Demand outstrips availability currently. - Voluntary perpetrator programmes – - Increase IDAP to be properly evaluated and - Increase range of the type of provision accredited - Offender/victim led not service demand led - Peer support for offenders and peer mentoring for offenders - Look at related offending factors – alcohol detox/counselling

11) Is the approach being taken on - Ensure that risk assessment is shared in relation - Awareness of linkages between interventions appropriate? If there are to victim support interventions any issues that you wish to be taken - Links made with MAPPA management provision - User led involvement into account please provide details and domestic violence - Seamless support pre and post - Accurate well-developed interventions should be custody established. - Formation of a single group such as - Better use of the voluntary sector services PIDIG to ensure integrated

interventions - Provide further training to all probation officers on dealing with domestic abuse perpetrators.

12) Do you agree with the prioritisation of - Family interventions - PPOs the service reviews? If you consider - Cross cutting areas - Offenders in the community 18-21 there are any other offender services that should be considered for future service reviews please provide details.

Any Other comments: - Ensure learning is taken on board from other - Welsh Language OM areas - Develop networks of support - Learn from good practice in youth justice – All - Build community links Wales Youth Offending Strategy - Procurement procedures to require - Collaborative commissioning providers to express the ways in - Emphasis on South Wales throughout the which they would involved service document users and draw in additional support. - Ensure localisation agenda is not lost with the All Wales Probation Trust

33 Strategic Commissioning Plan 2010-2013

Annex C: Offender Population

1. Community Offender Data Community Population by sentence type – Jan 2010 (Caseload from NOMS Performance Hub) Total Caseload Community Sentence Pre & Post Release Indeterminate sentences Pre CJA (2004) Community Order (CO) Suspended Sentence Order (SSO) sentences Orders

Dyfed-Powys 1,651 794 316 461 71 9 Gwent 2,815 1,302 530 828 134 21 North Wales 3,287 1,283 766 1,117 113 8 South Wales 7,810 3,178 1,567 2,599 405 61

Total 15,563 6,557 3,179 5,005 723 99

 In January 2010 there were 15,563 offenders on probation caseload in Wales; an increase of 26 since March 2009.  62.6% are serving a community sentence (CO & SSO), with 67.3% of these serving a CO. Compared with March 2009, there has been a 1% decrease in the number of offenders on probation caseload who are serving a community sentence. This difference is reflected in a corresponding 1% increase in those sentenced to custody.  There is a slight increase in the use of SSOs compared with March 2009 (see below).  Just under a third of offenders on probation caseload are supervised as part of either pre or post-release supervision.

Community Population by Gender & Ethnicity - Jan 2010 (Caseload data from NOMS Performance Hub) Total Caseload Gender Ethnicity Male Female White Asian Black Mixed Other Not Stated

Dyfed-Powys 1,651 1,421 230 1,533 8 7 7 9 1 Gwent 2,815 2,517 298 2,650 53 51 42 16 0 North Wales 3,287 2,895 392 3,157 26 20 13 22 17 South Wales 7,810 6,800 1,010 7,112 143 157 194 84 18

Total 15,563 13,633 1,930 14,452 230 235 256 131 36

 12.4% of the offenders supervised by probation are female. This ranges from 14% in Dyfed-Powys to 11% in Gwent.  The majority (81.2%) of offenders on probation caseload are white male offenders.

Community Order Starts - Jan to Dec 2009 (Data from NOMS Performance Hub) 2008 2009 Total Average starts per month Total Average starts per month

Dyfed-Powys 953 79.4 1,070 89.2 Gwent 1,530 127.5 1,547 128.9 North Wales 1,876 156.3 1,946 162.2 South Wales 4,039 336.5 4,214 351.2

Wales 8,397 699.75 8,777 731.4

 In 2009 there were 8,777 new community orders across Wales ranging from an average of 89 orders per month in Dyfed-Powys to 351 per month in South Wales. The average number of new starts increased in 2009 to 731 per month from 700.  The graph below outlines the number of new starts per month during 2009.

Community Order starts in Wales during 2009 400

350

300

250 Dy fed-Pow y s

200 Gw ent North Wales 150

No. of CO starts CO of No. South Wales

100

0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Month

Suspended Sentence Starts - Jan to Dec 2009 (Data from NOMS Performance Hub) 2008 2009 Average starts Average starts Total Total per month per month

Dyfed-Powys 391 32.6 360 30 Gwent 513 42.7 558 46.5 North Wales 626 52.2 702 58.5 South Wales 1,687 140.6 1,628 135.7

Wales 3,217 268.1 3,248 270.7

 3,248 SSO’s were made in Wales during 2009; an increase of 132 from 2008. The average number of new orders increased slightly from 268 per month to 270.1 in 2009.  The graph below shows the number of starts per month for 2009.

Suspended Sentence Order starts in Wales during 2009 160

140

120

100 Dy fed-Pow y s 80 Gw ent

60 North Wales No. of starts SSO South Wales 40

0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Month

Breaches of Community Orders and Suspended Sentence Orders resulting in custody - Oct 08 to Sept 09 (Data from NOMS Performance Hub) Number of Breaches of Community Orders & Suspended Sentence Order Total Average resulting in custody - smoothed monthly data per month Oct Nov Dec Jan Feb Mar Apr May June July Aug Sept

Dyfed-Powys 6 5 3 3 4 6 5 5 6 7 5 4 59 4.9 Gwent 10 7 6 8 9 9 9 9 10 9 9 9 104 8.7 North Wales 15 13 10 11 12 17 16 14 11 10 12 12 153 12.8 South Wales 42 34 26 25 27 36 33 35 32 31 29 28 378 31.5

Wales 73 59 45 47 52 68 63 63 58 57 55 53 693 57.8

 In 2009, 693 offenders breached either a community order or suspended sentence order and were committed to custody. This is a decrease from 711 in 2008. Criminogenic needs of offenders on probation Caseload (2008/09) (OASys data supplied by O-DEAT7)

Accommodation Accommodation & Training Education, Employment Management Financial Relationships & Associates Lifestyle Drug Misuse Alcohol Misuse being Well Emotional & Behaviour Thinking Attitudes % Dyfed-Powys 34.6 50.5 23.3 44.6 41.7 24.2 52.0 46.7 52.1 31.2 Gwent 37.6 58.5 23.5 45.4 40.0 23.8 49.9 47.4 62.8 36.9 North Wales 40.7 52.7 20.0 47.2 42.5 21.7 56.7 46.0 61.8 34.4 South Wales 40.1 61.3 30.5 45.8 47.4 34.7 50.6 47.3 64.7 35.8

7 OASys – data, evaluation and analysis team (O-DEAT)

All Wales 38.9 57.6 26.0 45.8 44.0 28.3 51.8 47.0 61.9 35.1

Gender Male 38.5 56.8 24.9 43.0 44.6 28.2 53.0 43.3 63.5 36.5 (All Wales) Female 41.0 62.4 32.5 63.7 40.2 29.2 44.1 70.0 52.1 26.9

Ethnicity White 39.9 59.0 26.5 47.2 45.3 29.4 53.0 48.0 63.3 36.2 (All Wales) Black 41.0 59.0 24.9 37.8 48.4 38.7 30.4 32.7 60.4 41.0 Asian 33.0 47.6 26.2 23.0 41.9 27.2 25.1 24.1 52.4 27.2 Mixed 38.5 61.9 36.4 47.0 53.8 39.7 41.3 36.4 64.8 45.3 Other 40.0 46.0 20.0 30.0 30.0 24.0 30.0 32.0 52.0 30.0

 The three main areas of need across all of Wales are Thinking & Behaviour, Alcohol Misuse and Education, Training & Employment.  The needs profile of female offenders differs from males; there is a higher prevalence of ‘emotional wellbeing’ and ‘relationships’ need.  The needs of offenders based on their ethnicity indicates that for Black, Asian and Mixed ethnicity offenders there is a higher prevalence of need in the ‘lifestyle & associates’ section compared with white offenders.

2. Custodial Population data

Custodial Offender Population in Wales – March 2010 (Data supplied by PIAG8) Total Age (Years) Ethnicity 15-17 18-20 21-25 26 + Asian Black Mixed White Other Not Stated

HMP Cardiff 816 0 0 185 631 33 46 36 690 8 3 HMP Parc 1,173 51 390 239 493 28 51 35 1,054 2 3 HMP Swansea 398 0 0 113 285 5 9 4 377 2 1 HMP Usk/Prescoed 415 0 6 53 356 7 11 6 386 2 3

Total 2,802 51 396 589 1,765 73 117 81 2,507 14 10

 At March 2010 there were 2,802 offenders in custody in Wales, of which 14% were Young Offenders (aged 18-20) and 2% were aged between 15 to 17 years.  42% of the custodial offender population in Wales is held in HMP Parc.

8 Performance, Information and Analysis Group (PIAG)

Sentence Status - June 2009 (Data calculated from ‘Population in Custody, MoJ website) Sentence Status Remand Convicted/ Under 12mth - 4yrs+ (inc Other unsentenced 12mth <4yrs indeterminate) (inc civil) % Cardiff 17.4 10.5 14.4 30 25.1 2.4 Parc 5.1 4.2 18.9 43.4 27.7 <1 Swansea 26.6 11.5 12.5 31.6 17.1 <1 Usk/Prescoed 0 0 4.2 24.8 70.4 <1 All Wales 10.9 6.4 14.4 35.1 31.9 1

 67% of offenders in custody in Wales are serving a custodial sentence of over 12 months with an additional 14.4% sentenced to less than 12 months.  The highest proportion of those on short sentences is in HMP Parc.

Custodial Offender Population from Wales - May 2009 (Data taken from CUBE9) Location of Offenders from Wales Total number of Offenders located in Offenders located in offenders from Wales Welsh prisons English prisons in custody Female 0 195 195 Male 2,441 1,656 4,097 Total 2,441 1,851 4,292

 In May 2009 there were 4,292 offenders sentenced to custody from a Welsh court; an increase of just over 100 offenders from September 2008.  As there is no female establishment in Wales, 100% of females are held in England with the majority located in HMP Eastwood Park.  59% of male offenders sentenced from Wales are located in a Welsh prison; this has remained unchanged from September 2008. Criminogenic needs of offenders in custody (2008/09) (OASys data supplied by O-DEAT)

9 The CUBE is an internal database of prisoner location and origin derived from NOMS management information systems. Although care is taken when processing and analysing the returns, the data collected is subject to inaccuracies inherent in any large scale recording system. Addresses come from a number of sources – home addresses where available, address given on reception, address to which the prisoner will be discharged, address of next of kin, address of probation office, address of last court. No adjustment has been made for prisoners for which we do not hold any valid address in England and Wales.

Ethnicity White 47.0 64.6 40.3 45.9 63.8 48.6 53.9 40.1 71.2 44.1 (All Wales) Black 52.6 54.4 35.1 38.6 52.6 49.1 24.6 19.3 56.1 40.4 Asian 22.5 35.0 30.0 25.0 47.5 37.5 22.5 17.5 52.5 17.5 Mixed 37.5 75.0 37.5 56.3 62.5 37.5 43.8 28.1 81.3 53.1

 The three predominant areas of need across the prisons in Wales are Thinking & Behaviour, Lifestyle & Associates and Education, Training & Employment.  The needs of offenders based on ethnicity indicate that over 50% of Black offenders have an accommodation need whilst almost 38% of Asian offenders have a drug misuse need identified.

ANNEX D: Offender profile broken down by priority groups

Overview - Priority Group population in Custody and Community in Wales High / v.High risk of No. of No. of No. of No. of No. adult Harm - % of PPO’s IPP’s Women offenders in offenders serving offenders as custody aged <12 mth custody assessed by OASys 18-20 Probation caseload Dyfed-Powys 8.2 59 30 230 Gwent 6.6 66 44 298 North Wales 10.5 65 53 392 South Wales 11.5 238 200 1,010 Community total 9.7 428 327 1,930 Custody HMP Cardiff 21.6 54 18 0 118 HMP Parc 2.3 72 46 455 98 HMP Swansea 17.2 27 6 0 50 HMP Usk/Prescoed 8.1 1 75 0 18 Custody total 11.7 154 150 455 284

High / V. High risk of harm offenders  In the community, on average 9.7% of offenders supervised by probation were assessed as posing a high or very high risk of harm. The table below shows the breakdown by all risk categories.

Low Medium High Very High

% of offenders in each risk of harm band Dyfed-Powys 46 46 8 <1 Gwent 41 53 7 <1 North Wales 24 66 10 <1 South Wales 35 54 11 <1 All Wales 36 55 9 <1

 In custody, on average of 11.7% of offenders were assessed as posing a high or very high risk of harm in the community. The table below shows the breakdown by all risk categories.

Low Medium High Very High

% of offenders in each risk of harm band HMP Cardiff 14.2 64 21 1 HMP Parc 15 83 2 <1 HMP Swansea 8 75 16 1 HMP Usk-Prescoed 23 69 7 1 All Wales 14 74 11 <1

Criminogenic needs of offenders posing a high risk of harm

Accommodation Accommodation Training Education, & Employment Financial Management Relationships & Lifestyle Associates Drug Misuse Alcohol Misuse Well Emotional being & Thinking Behaviour Attitudes % Community High RoH 67.7 68.9 30.9 72.3 75.2 38.5 61.1 60.6 89.2 68.3 V.High RoH 85.0 76.7 31.7 78.3 91.7 36.7 43.3 78.3 91.7 88.3

Custody High RoH 65.6 66.0 28.6 57.7 75.6 34.9 43.3 48.7 80.5 64.8 V.High RoH 81.9 76.9 28.6 70.6 89.9 33.2 39.9 68.9 94.1 87.4

 Offenders assessed as posing a high or very high risk of harm generally are identified with ‘thinking & behaviour’ and ‘lifestyle & associates’ as areas of need. This is reflected across both prison and probation.

Indeterminate Public Protection (IPP) sentenced offenders IPP population in Wales (BSCT IPP spreadsheet, August 2009) HMP HMP HMP Psychiatric HMP Probation Area/Trust HMP Usk Total Cardiff Parc Prescoed Hospital Swansea

Dyfed-Powys 0 4 2 0 2 5 13 Gwent 2 15 1 0 0 6 24 North Wales 0 0 0 0 0 0 0 South Wales 17 26 2 4 6 26 81

North West 0 3 0 0 0 1 4 West Midlands 0 1 0 0 0 0 1 East Midlands 0 1 0 0 0 2 3 East of England 0 1 0 0 0 0 1 London 0 3 0 0 0 1 4 South West 0 1 0 0 0 9 10 South East 0 2 0 0 0 5 7

Total 19 57 5 4 8 55 148

 In August 2009, there were 148 IPP’s in custody in Wales of which 80% are supervised by the Wales Probation Trust. The majority of IPPs are held in HMPs Usk and Parc.

IPP population from Wales (BSCT IPP spreadsheet, August 2009) Supervising Probation Trust / Area Area Total Dyfed-Powys Gwent North Wales South Wales

East Midlands 2 0 4 13 19 East of England 0 1 0 0 1 High Security 3 2 0 3 8 London 1 0 0 1 2 North West 5 2 34 5 46 South East 0 6 5 7 18 South West 5 8 1 58 72 Wales 13 24 0 81 118 West Midlands 3 4 4 16 27 Yorkshire & Humberside 0 0 0 0 0

Total 32 47 48 184 311  In August 2009, probation in Wales supervised 311 IPPs across all 10 DOM regions with the exception of Yorkshire & Humberside. Whilst the majority of IPPs from Dyfed-Powys, Gwent and South Wales were held in Welsh prisons, the majority of IPPs from North Wales were held in the North West.

Criminogenic needs of IPP prisoners (E&W data)

Accommodation Accommodation Training Education, & Employment Financial Management Relationships & Lifestyle Associates Drug Misuse Alcohol Misuse Well Emotional being & Thinking Behaviour Attitudes % IPP needs 63.0 68.6 31.8 59.4 75.9 41.4 49.3 49.9 78.1 59.0 assessment

 The three areas with the highest prevalence of need for IPP prisoners are ‘thinking & behaviour, ‘lifestyle & associates’ and ‘education, training & employment’.  41.6% of IPPs have a high risk of reconviction based on their OASys scores (compared with 28% of the overall offender population).  71.6% of IPPs pose a ‘high’ risk of harm in the community (compared with 14% of the overall population).

Prolific & Priority Offenders (PPO) Probation PPO caseload - Jan 2010 (Data taken from PMU Hub) Dyfed-Powys Gwent North Wales South Wales Total

Total no. of PPO’s 59 66 65 238 428

Gender Male 57 65 62 232 416 Female 2 1 3 6 12

Order Type YOI10 custody (<12mths) 4 2 4 7 17 Adult custody (>12mths) 23 28 35 128 214 YOI custody (>12mths) 10 12 8 38 68 CO11 7 14 10 39 70 SSO12 9 7 7 16 39 Extended sentence 11 5 2 1 3 (<10yrs)13 Public Protection (>10yrs)14 1 1 0 4 6 Pre CJA (2003) 0 0 0 3 3

 In January 2010, there were 428 PPO’s recorded on probation caseload in Wales; an increase in volume of six since March 2009. 50% of PPOs are being supervised in South Wales.  97% of PPOs are male.  25% of PPOs supervised by Welsh probation are serving a community sentence (a decrease from 32% in March 2009). Of the remaining offenders serving custodial sentences, 67% are serving an adult custodial sentence of over 12 months (an increase from 63% in March 2009).

10 Young Offender Institution (YOI) 11 Community Order (CO) 12 Suspended Sentence Order (SSO) 13 For sexual and violent offences 14 For Sexual and violent offences

Stage of PPO Journey % Highest No. % Under Area vol. of active PPOs male Under 12mth Over 12mth cases supervision Remand custody custody in the community All Wales 641 97 21-25 31 9 30 7

Dyfed-Powys 84 98 21-25 30 9 20 11 Carmarthenshire 35 97 21-25 26 0 2 3 Ceredigion 12 92 21-25 40 0 0 30 Pembrokeshire 24 100 21-25 13 13 29 8 Powys 13 100 18-20 58 8 17 0

Gwent 91 99 21-25 48 0 24 5 Blaenau Gwent 44 100 21-25 No data available Monmouthshire 30 100 21-25 48 0 24 5 Newport 17 94 26-30 No data available

North Wales 126 95 21-25 36 14 27 0 Conwy 32 91 21-25 32 32 14 0 Flintshire 29 94 36-40 31 0 46 0 Gwynedd 28 100 21-25 29 5 33 0 Wrexham 37 97 31-35 52 10 24 0

South Wales 340 97 21-25 24 7 40 12 Bridgend 36 95 26-30 28 6 28 8 Cardiff 115 99 21-25 No data available Merthyr Tydfil 23 100 21-25 No data available Neath & Port Talbot 25 94 18-20 28 8 52 0 RCT 45 93 18-20 16 16 56 9 Swansea 48 98 21-25 23 0 33 15 Vale of Glamorgan 28 100 21-25 32 0 48 8

 In June 2009, 641 individuals were identified as PPOs across Wales. 31% are under active supervision in the community and a further 30% are in custody serving a sentence of over 12 months.

Criminogenic need of PPOs in Wales (Probation OASys assessments 2008/09)

Accommodation Accommodation Training Education, & Employment Financial Management Relationships & Lifestyle Associates Drug Misuse Alcohol Misuse Well Emotional being & Thinking Behaviour Attitudes % PPO 69 93 64 68 88 66 57 51 92 78 Non-PPO 38 57 25 46 43 28 51 47 61 34

Women Offenders

Women offenders from Wales in Custody in England - May 2009 (Data taken from CUBE) Status % of women in custody

Remand 4 Trial 8 Convicted / Unsentenced 8 Sentenced 80

 In May 2009, 195 women from Wales were in custody in England. Of these, 20% were unsentenced.

Sentence length of women offenders from Wales - May 2009 (Data taken from CUBE) Sentence Length % of women

Less than 6 mths 14.7 6 mths – less than 12 mths 12.8 12 months 3.8 More than 12 mths to less than 4 years 39.1 4 years and over 29.4

 Of the sentenced women offenders in custody, 27.5% are serving a sentence of less than 12 months.

Risk of Harm and Risk of Reconviction profile for women offenders from Wales in custody (Data taken from OASys assessments 2007/08) Risk of Harm profile Risk of Reconviction profile Low Medium High/ OASys Mean OGRS Mean Average no. of V.High Score Score needs identified in OASys % % Women in custody from Wales 35 54 12 77 54 5.4 Women offenders in Custody (E&W) 59 33 8 58 44 4.0

 The majority of women (54%) in custody are assessed as posing a medium risk of harm; this is above the England and Wales average.  The women from Wales have an average of 5.4 needs compared with the England & Wales average of 4.0.  It should be noted that the data for Wales is based on a small sample of assessments.

Criminogenic needs profile for women offenders from Wales

Accommodation Accommodation Training Education, & Employment Financial Management Relationships & Lifestyle Associates Drug Misuse Alcohol Misuse Well Emotional being & Thinking Behaviour Attitudes % Women offenders from Wales in Custody 58 65 37 68 60 43 41 70 61 39 Women offenders in the Community (Wales) 40 63 32 64 39 28 42 71 51 27

 A greater proportion of women offenders in custody have an ‘accommodation’ need than those in the community. There is also a high prevalence of issues around the ‘drug misuse’ and ‘lifestyle & associates’ OASys sections.

Young Offenders in custody in Wales

 At 18th February 201015, there were 455 Young Offenders in custody in Wales. They were all located at HMP Parc.

Accommodation Accommodation & Training Education, Employment Management Financial Relationships & Associates Lifestyle Drug Misuse Alcohol Misuse being Well Emotional & Behaviour Thinking Attitudes % Young Offenders (18-20) 36.6 71.7 44.5 39.3 66.2 42.1 62.1 36.6 74.8 42.4 in custody in Wales All Wales (custody) 45.8 63.2 39.5 44.2 62.2 47.3 50.8 37.9 69.6 42.6

 For Young Offenders in Wales, the greatest areas of need identified is within: o Thinking & Behaviour o Education, Training & Employment o Lifestyle & Associates o Alcohol Misuse

15 Data taken from daily unlock data supplied by each prison

Offenders in custody in Wales serving a sentence of less than 12 months

(Data taken from ‘Population in Custody’, MoJ website) Prison % of offenders in custody in Wales serving a sentence of less than 12 months

HMP Cardiff 14.4 HMP Parc 18.9 HMP Swansea 12.5 HMP Usk/Prescoed 4.2 All Wales 14.4  There are approximately 400 offenders in custody in Wales who are serving a sentence of less than 12 months. The highest proportion is currently held in HMP Parc.

Local Adult Reoffending rates for Wales (October 2008 – September 2009) (Data taken from official statistics, MoJ website) Caseload Number of Actual Predicted % Statistical No.of reoffences Geographical Area size reoffenders rate rate difference significance per 100 offenders All Wales 43153 4758 11.03 11.07 -0.41% No significant difference 20.44 Dyfed-Powys 4743 508 10.71 10.74 -0.25% No significant difference 10.74 Gwent 8439 890 10.55 11.14 -5.36% No significant difference 11.14 North Wales 9321 1022 10.96 10.57 3.69% No significant difference 10.57 South Wales 20650 2338 11.32 11.34 -0.19% No significant difference 11.34 Isle of Anglesey 777 74 9.52 11.08 -14.03% No significant difference 19.69 Gwynedd 1545 181 11.72 11.05 6.01% No significant difference 23.95 Conwy 1333 132 9.90 10.25 -3.37% No significant difference 17.55 Denbighshire 1238 141 11.39 10.59 7.59% No significant difference 22.13 Flintshire 1833 164 8.95 9.15 -2.18% No significant difference 16.26 Wrexham 2499 317 12.69 11.44 10.90% No significant difference 21.89 Powys 1089 118 10.84 10.96 -1.15% No significant difference 19.19 Ceredigion 634 54 8.52 9.62 -11.48% No significant difference 12.46 Pembrokeshire 1146 132 11.52 10.71 7.58% No significant difference 24.35 Carmarthenshire 1929 217 11.25 11.23 0.21% No significant difference 19.28 Swansea 3986 510 12.79 11.96 6.94% No significant difference 25.14 Neath Port Talbot 1924 194 10.08 9.49 6.22% No significant difference 20.22 Bridgend 1894 204 10.77 10.22 5.36% No significant difference 19.48 The Vale of Glamorgan 1689 206 12.20 11.48 6.27% No significant difference 21.14 Rhondda Cynon Taff 3942 370 9.39 9.89 -5.09% No significant difference 17.28 Merthyr Tydfil 1217 147 12.08 12.01 0.55% No significant difference 23.25 Caerphilly 2561 201 7.85 10.05 -21.91% Lower than predicted 15.46 Blaenau Gwent 1112 96 8.63 10.15 -14.97% No significant difference 15.38 Torfaen 1194 117 9.80 10.55 -7.15% No significant difference 20.18 Monmouthshire 666 71 10.66 10.75 -0.79% No significant difference 17.27 Newport 2835 399 14.07 12.92 8.91% No significant difference 26.00 Cardiff 5941 696 11.72 12.59 -6.96% No significant difference 20.72

 11% of offenders supervised by probation in the community in Wales reoffended within a three month follow up period. This is in line with the expected rate given the characteristics of the offender population in Wales. Offenders in Wales commit an average of 20 offenders per 100 offenders. Reoffending in Caerphilly local authority area is lower than expected with other areas are in line with expectations.

 The graph below shows the trend in the actual rate of reoffending over five reported cohorts. All areas are currently performing in line with expectations (i.e. there is no significant difference between the actual and predicted rates of reoffending). 12.50%

Local Adult Re-Offending rates by Welsh Probation Area

12.00%

11.50%

Wales Dyfed-Powys 11.00% Gwent North Wales South Wales

Actual rate of reoffending (%) reoffending of rate Actual 10.50%

10.00% 01 Oct 07 - 30 01 Jan 08 - 31 01 Apr 08 - 01 Jul 08 - 30 01 Oct 08 - 30 01 Jan 09 - 31 01 Apri l 09 - Sept 08 Dec 08 31 Mar 09 Jun 09 Sept 09 Dec 09 31 Mar 10 Time Period

Court Sentencing data – Wales 2007-2009 (Data extracted from NOMS Performance Hub)

 38,375 individuals proceeded through the courts in Wales during 2009. Of these 53.1% received a disposal under the responsibility of either prisons or probation.  The table below shows the number of offenders who received a community order, suspended sentence order and immediate custody between 2007 and 2009. Year Total Community % of total No. No. receiving No. receiving custodial or Custodial caseload receiving SSO sentence disposal CO < 12 mths >12 mths

2007 35,348 17,570 49.7 8,369 3,053 4,712 1,383 2008 37,747 19,450 51.5 9,175 3,156 5,441 1,600 2009 38,375 20,363 53.1 10,265 3,304 4,884 1,724

 The number of community orders given increased slightly between 2007 and 2009. This is reflected in a monthly average increase of 697 in 2007 to 855 in 2009. 1200 No. of offenders sentenced to Community Orders 2007 - 2009

1000

800

600 2007 2008 400 2009 No. ofNo. offenders

200 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec 0 Month

 The number of suspended sentence orders also increased between 2007 and 2009 from a monthly average of 254 in 2007 to 275 in 2009.

No. of offenders sentence to Suspended Sentence Orders 350 2007 - 2009

300

250

200 2007 2008 150 2009

No. of offenders 100

50 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec 0 Month

 The number of offenders committed to immediate custody from courts in 2009 was approximately 6,600, an increase of 600 from 2007.  As can be seen from the two graphs below, the majority of offenders committed to immediate custody are sentenced to terms of less than 12 months.  Whilst there has been a decrease in the number of offenders sentenced to less than 12 months in Wales, the number of offenders given sentences of over 12 months appears to be increasing; 1,383 in 2007 to 1,724 offenders in 2009.

600 No. of offenders sentenced to Immediate Custody of less than 12 months 2007-2009

500

400

300 2007 2008 200 2009 No. ofNo. offenders

100 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec 0 Month

No. of offenders sentenced to Immediate Custody of over 12 months 2007-2009 250

200

150 2007 2008 100 2009 No. of offenders of No.

0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec 55 Month

Annex E: Equality Impact Assessment (EIA)

The Equality Impact Assessment (EIA) process identifies any potential discrimination or adverse impacts on equality which may result from our commissioning processes and priorities.

Background

The Commissioning Plan is intended to inform our providers, stakeholders and the wider community of our priorities and commitments. It also describes how we intend to further develop the commissioning system in Wales. The priorities identified in the document are predicated on an assessment of offender risk and criminogenic need in Wales.

It has been developed to support national and Welsh Assembly Government policies and strategies. It specifically describes how we will deliver against the All Wales Reducing Reoffending Action Plan (RRAP) which underpins the Wales Reducing Reoffending Strategy ‘Joining Together in Wales’.

Methodology

A fully inclusive environment is only achieved where equal opportunities and diversity is integrated into all aspects of the business. Our EIA of the Commissioning and Business Plan has used the following equality monitoring data: race; religion/belief & non belief; disability; gender; sexual orientation; age; and welsh language.

Our assessment has included an analysis of demographic data of offenders and other statistics, including complaints of discrimination in service delivery. We have taken account of research findings and recent reports. In addition, we have considered the findings of recent inspection and audit reports relating to the operation and delivery of criminal justice services.

Consultation feedback on NOMS Cymru Commissioning and Business Plan has also been considered.

Consultation & Involvement

NOMS Cymru has undertaken consultation in the development of both the Commissioning and Business Plan. The Reducing Reoffending Strategy Board and related working groups are made up of key stakeholders representing policy holders/partners and service providers from the public, private, voluntary, community and social enterprise sectors. They have contributed to the development of service definitions and have supported the prioritisation of the action plan within an equalities and diversity framework. This is taken into account in the development of the Commissioning and Business Plan and feedback has additionally been considered in conducting this EIA.

Assessment & analysis

Key findings from the data analysis and consultation exercise have been reflected in the Commissioning and Business Plan.

Positive impacts are:

Gender – In response to Baroness Corston’s report NOMS Cymru have developed the Women’s Turnaround Service which provides women offenders and women at risk of offending in Wales with a multi-agency, community-based range of services that address individual risks and needs. This provision is delivered by two voluntary, community and social enterprise sector organisations and is becoming available across Wales as a result of additional funding. NOMS Cymru is now developing proposals to provide supported accommodation in four locations across Wales in order to divert suitable women from short term custody, reduce their risk of reoffending and to enhance their resettlement following a period in custody.

Diversity & Disability - Work to implement the commitments in the Home Office Race Equality (2005), and Disability Schemes continues to be progressed via lead providers. Providers, through the Contracts and Service Level Agreements have reported on progress. Through this process providers continue to be required to demonstrate how they comply with equalities legislation and best practice.

Welsh language – NOMS Cymru is leading on the development of the NOMS Welsh Language Scheme, which will ensure that Welsh speaking offenders in prisons in England and Wales have access to Welsh Language services. This will be dependent on the need within each prison establishment. NOMS Cymru has progressed the actions within its own Welsh Language Scheme and will continue to do so.

Age – Male offenders in custody aged 18-20 are a commissioning priority group of NOMS Cymru having been identified as having a greater range and prevalence of criminogenic needs to be addressed, in particular ETE, lifestyle & associates, thinking & behaviour and attitudes.

Religion/Belief – One of the roles of the PREVENT Coordinator for NOMS Cymru is to establish links and support networks for NOMS staff in order to assure a consistent and professional service can be delivered to those Muslim offenders who may be vulnerable to coercion and involvement with those who may have extremist motives. Close links have been made with the Muslim Council of Wales and ISSAW notably through the grant funding of the Faith in the Future Project which aims to support and resettle vulnerable Muslim prisoners into the community on release. The PREVENT Coordinator also works alongside WAGs Home Office Crime Team to establish appropriate engagement by Probation's Local Delivery Units in Community Cohesion Strategies across Wales.

Recommendations : Our recommendations based on the key findings of this EIA are as follows:

1. Expand services for women offenders by increasing the number of women who engage with Women’s Turnaround from across all of Wales;

2. Use recent data analysis to measurably improve service provision for BME offenders in custody and the community;

3. Use recent data analysis to measurably improve service provision for Young Adult Offenders;

4. Collect and analyse available data to inform future service provision for older offenders in custody and the community;

5. Establish effective working relationships with the Equality and Human Rights Commission;

6. Establish effective working relationships with NOMS policy leads in England to ensure the approach towards diversity and equality fully reflects activity in Wales;

7. Conduct further analysis of data to understand trends and patterns across diverse groups in the context of regional and local delivery of services;

8. Develop new service providers to ensure delivery of our equality and diversity commitments;

9. Ensure EIA is an embedded process at all stages of service development.

There is insufficient evidence/analysis on disability, sexual orientation which means that it is difficult to assess what services need to be commissioned, or approaches that might need to be taken to adequately ensure there is equality of provision.

Annex F: Glossary of Terms with standard definitions

ART Aggression Replacement Training

ASRO Addressing Substance Related Offending

AC Attendance Centre

ASBO Anti Social Behaviour Order

BASS Bail Accommodation Support Service

BME Black and Minority Ethnic

BROM BASS Regional Operational Manager

CAB Citizens Advice Bureau

CARAT Counselling, Assessment, Referral, Advice and Throughcare

CCD Criminal Casework Directorate

CDRP Crime and Disorder Reduction Partnership

CIAS Careers Information and Advice Service

CJA Criminal Justice Act.

CJS The Criminal Justice System, the generic term associated with those statutory bodies dealing with criminal justice e.g. the Police, Prisons, Probation Service, Crown Prosecution Service, Youth Justice Board, Court Service, Victim & Witness Support and others.

CLG Department of Communities and Local Government

CFO Co-Financing Organisation

Commissioner The Commissioner decides what services are needed sets priorities and enters into Service Level Agreements or contracts with providers to ensure these are delivered.

Commissioning The analysis and design of requirements resulting in a specification of services and a set of delivery outcomes which are commissioned at a UK national, Wales or local level by the designated commissioner for delivery by a service provider

Co- Two or more organisations aligning their commissioning Commissioning strategies for shared or mutually beneficial outcomes.

Community A community is a group of people, defined by a geographical area, who are affected by crime and who justifiably expect to be safe within those communities while seeing reductions in the level of crime.

Community Community Orders are delivered by Probation Services and can Orders include requirements from a possible 12 available. See the Criminal Justice Act 2003 sections 199-233 for details of requirement options.

Convergence The Convergence area contains the 15 Local Authorities of Isle Area of Anglesey, Conwy, Denbighshire, Gwynedd, Ceredigion, Pembrokeshire, Carmarthenshire, Swansea, Neath Port Talbot, Bridgend, Rhondda Cynon Taff, Merthyr Tydfil, Blaenau Gwent, Caerphilly and Torfaen.

Collaboration Two or more organisations working together to deliver mutual areas of interest and required outcomes.

Community Enables communities to influence the type of work offenders Payback carry out in their neighbourhoods. It makes the unpaid work performed by offenders more visible and more representative of the communities' needs.

COVAID Control of Violence for Angry Impulsive Drinkers

Criminogenic The needs and priorities, as identified by the Offender Need Assessment System process.

CSAP Correctional Services Accreditation Panel

CSP Community Safety Partnerships are the 22 bodies in Wales representing police, probation, local authorities, fire authorities and local health boards. They equate to Crime and Disorder Reduction partnerships in England.

Custody Prisons and other secure environments.

DCSF Department for Children, Schools and Family

DIP Drug Interventions Programme as used by Prisons to deliver drug treatments to those in custody.

DRR Drug Rehabilitation Requirement.

DOM Director of Offender Management

DSO Departmental Strategic Objective

DWP Department for Work and Pensions

EIA Equality Impact Assessment

ESF European Structural Funding

ETE Employment, training and Education

FSA Financial Services Authority

GOoD Good Order or Discipline

HIAS Housing information advice service

HDC Home Detention Curfew.

HMP Her Majesty’s Prison

HMP&YOI HMP &Young Offenders Institution: holds juvenile (15 – 17) and young offender (18 – 21) year old prisoners.

HMPS Her Majesty’s Prison Service.

IAC Intensive Alternative to Custody

IDAP Intensive Domestic Abuse Programme.

IDTS Integrated Drug Treatment System

(IEP) Incentive and Earned Privilege

IPPs Imprisonment for Public Protection

IOM Integrated Offender Management

Interventions Interventions are the programmes delivered by Prisons or Probation, drug action teams or other providers to address an offenders needs.

IPPF Integrated Probation Performance Framework

ISAC Intensive Supervision and Control

ISMG Interventions and Substance Misuse Group

ISP Indeterminate Sentence Prisoner

JCPlus Job Centre Plus

LISARRT Local Initial Screening and Reducing Reoffending Tool

LCJP London Criminal Justice Partnership

LDP Local Delivery Programme

LDU Local Delivery Unit

LSC Legal Services Commission

MAPPA Multi-Agency Public Protection. .

MoJ Ministry of Justice

NHS National Health Service

NI National Indicator

NOMS National Offender Management Service

NTA National Treatment Agency

NID National Interventions Directory

OASys Offender Assessment System

OBP Offender behaviour programmes

Offenders Those who have been found guilty of an offence and are subject to either custody or community sentences.

OLASS Offender Learning and Skills Service

OLIC Offender learning in the community

OM Offender Management

OMS Offender Management Services

P-ASRO Prison Addressing Substance Related Offending

PCT Primary Care Trust

PIDIG Programme and Intervention Delivery and Implementation Group

PPOs Prolific and other Priority Offenders

PREVENT Part of the Home Office’s counter-terrorism strategy to prevent Strategy people from becoming terrorists or supporting violent extremism.

PSA Public Service Agreement

PSR Pre-Sentence Report

RRAP Reducing Reoffending Action Plan

RRDP Reducing Reoffending Delivery Plan

SES Single Equality Scheme

SFA Skills Funding Agency

SLAs Service Level Agreements

SSO Suspended Sentence Order.

SSPW Structured Supervision Programme for Women

SWIP Sex Workers in Prison

Through the Interventions delivered consistently across a custodial and Gate community boundary.

TSS Transitional Support Service

UKBA United Kingdom Borders Agency

UWIC University of Wales Institute, Cardiff

VCS Voluntary and Community Sector

ViSOR Violent and Sex Offenders Register

WAG Welsh Assembly Government

WEFO Wales European Funding Office

WP Women’s Programme

WTP Women’s Turnaround Project

YJB Youth Justice Board

YOI Young Offender Institute

YOTs Youth Offending Teams

YPLA Young People's Learning Agency

NOMS Cymru 2nd Floor Churchill House Churchill Way Cardiff CF10 2HH 65 [email protected]