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A Study of 'Prolific' Offending by Young People in Wales 2009-2015

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A Study of 'Prolific' Offending by Young People in Wales 2009-2015 A study of ‘prolific’ offending by young people in Wales 2009-2015 Diana Johns, Katherine S Williams and Kevin Haines. Welsh Centre for Crime and Social Justice (WCCSJ) January 2018 Cover photograph used under free MorgueFile licence. Original image URI: http://mrg.bz/PS3Js9 Acknowledgments This research is the result of collaborative work between the Welsh Centre for Crime and Social Justice and the Youth Justice Board (YJB) Cymru. In particular Dusty Kennedy and Lynzi Jarman (YJB Cymru) who, along with the authors, formed the steering group. We wish to acknowledge this team of people for their genuine commitment to understanding and improving the experience of young people in conflict with the law, and for the wonderful support they gave us in undertaking this research. Diana acknowledges with particular gratitude our YJB colleagues who offered invaluable assistance, support and friendship during her year in Wales. The people in the YOTs Diana visited across Wales are too numerous to mention individually. Needless to say, without their openness and willingness to help, this research would not have been possible. Thank you to all the YOT workers, managers, information officers, police officers and administrative staff who welcomed Diana into their workplaces, gave their time and energy, and shared their stories, experience and passion for the young people they work with. We are all incredibly grateful to the four young men who shared their personal experiences of ‘getting into lots of trouble’, and to the YOT workers they trusted enough to allow Diana to meet with them. The perspective of the ‘lads’ themselves on what helped them and made it hard to stay out of trouble was invaluable for the research and to help us understand some of the complexities associated with young people’s ‘prolific’ offending. We regret that it was not possible to interview more of the young people – now young adults – including some of the young women. Lastly, we appreciate HMP Parc’s willingness to support the research. And, not least, thank you Helen Hodges for helping with the charts. About the authors Diana Johns has fifteen years’ experience teaching and researching issues relating to young people in conflict with the law in Australia. Prior to her year in Wales, she was teaching in the criminal justice programme at RMIT University in Melbourne. She has also worked in support roles with vulnerable long-term unemployed people, people with cognitive impairments, and young people with disabilities. In 2013 she completed a PhD on men’s experience of release from prison. For her Master’s degree she studied young people and their significant others’ experience of restorative justice conferencing. She holds a BA in Criminal Justice and an MA in Applied Criminology (RMIT) and a PhD in Criminology from the University of Melbourne where, since 2016, she is employed as Lecturer in Criminology. Kevin Haines has just taken up a post as Professor of Criminology in Trinidad and Tobago. Formerly he was professor of Youth Justice in the Department of Criminology at Swansea University. Kevin has published extensively on youth justice and children’s rights issues. He co- authored the seminal texts Young people and youth justice; Understanding youth offending: Risk factor research, policy and practice and Positive youth justice: Children first, offenders second. Until his move to Trinidad and Tobago Kevin fulfilled a number of advisory positions including Hwb Doeth, the Youth Justice Board Cymru’s Practice Development Panel. Katherine S. Williams is Professor of Criminology in the University of South Wales (UK), she was previously at Aberystwyth University. She is also Director of the Welsh Centre for Crime and Social Justice, a HEFCW funded initiative which brings together researchers across seven Welsh universities and builds links with both policy and practice. Recent research has revolved around the criminal justice service in rural areas (particularly the Youth Justice Service and the Police) and the treatment of women and young people who offend (evaluation of initiatives for diverting women and young people out of the official criminal justice system). She is involved in a seminal piece of research which is funded by Leverhulme and will discover the way in which the voluntary sector is adapting to the mixed economy of resettlement of offenders. Amongst other advisory positions Kate sits on Hwb Doeth, the Youth Justice Board Cymru’s Practice Development Panel. Abbreviations ASBO Anti-Social Behaviour Order AWYOS All Wales Youth Offending Strategy 2004 CAMHS Child and Adolescent Mental Health Service DTO Detention and Training Order ETE Education, Training and Employment IF Intensive Fostering IOM Integrated Offender Management ISS Intensive Supervision and Surveillance (post 2009, can be a condition of a YRO) ISSP Intensive Supervision and Surveillance Programme LAC Looked after children LASPO Legal Aid, Sentencing and Punishment of Offenders Act 2012 MAPPA Multi-Agency Public Protection Arrangements NOMS National Offender Management Service PNC Police National Computer PPO Prolific and other Priority Offender SCH Secure Children’s Home STC Secure Training Centre UNCRC United Nations Convention on the Rights of the Child 1989 WYJAP Wales Youth Justice Advisory Panel YJB Youth Justice Board YOI Youth Offending Institution YOT Youth Offending Team YRO Youth Rehabilitation Order Table of Contents Executive summary .................................................................................................................... v 1. Introduction .......................................................................................................................... 1 1.1 Aims of the research ............................................................................................................ 1 1.2 Research questions .............................................................................................................. 2 2. Background to the study ....................................................................................................... 3 2.1 The Welsh context ............................................................................................................... 4 2.1.1 Policy and legal framework – child-centred, rights-led ................................................................. 5 2.1.2 Youth justice practice in Wales .................................................................................................... 14 3. Reviewing the literature ...................................................................................................... 17 3.1 Theories about young people’s ‘prolific’ offending ........................................................... 17 3.1.1 Labelling – the effects of social reactions .................................................................................... 18 3.1.2 Social bonds and social control .................................................................................................... 18 3.1.3 Social learning and social ecology ................................................................................................ 19 3.1.4 Developmental and life-course perspectives .............................................................................. 19 3.1.5 Risk/needs paradigm ................................................................................................................... 21 3.2 Why young people stop offending – ‘desistance’ theory .................................................. 22 3.2.1 Motivation .................................................................................................................................... 23 3.2.2 Engagement ................................................................................................................................. 26 3.2.3 Relationship ................................................................................................................................. 29 3.2.4 Identity ......................................................................................................................................... 31 4. Methodology ....................................................................................................................... 36 4.1 A narrative approach ......................................................................................................... 36 4.2 An interpretivist, interactionist framework ....................................................................... 37 4.3 Methods ............................................................................................................................. 38 4.3.1 Snapshot of the ‘prolific’ cohort in 2009-10 ................................................................................ 38 4.3.2 Data collection ............................................................................................................................. 39 4.3.3 Data analysis ................................................................................................................................ 44 5. Findings: YOT workers and managers ................................................................................. 45 5.1 What does ‘prolific’ offending mean? ............................................................................... 45 5.2 What happens to these young people into adulthood? .................................................... 46 i 5.3 Characteristics of this ‘prolific’
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