Greater Manchester Transforming Justice by 23KY4Uy


									              Greater Manchester Transforming Justice
                            June 2011

Overview and Context
1. The Green Paper, Breaking the Cycle

The Green Paper, “Breaking the Cycle: Effective Punishment, Rehabilitation and
Sentencing of Offenders” addresses plans for fundamental changes to the priorities
of punishing offenders, protecting the public and reducing re-offending. Changes will
focus on breaking the destructive cycle of crime and mean that more criminals make
amends to victims and communities for the harm they have caused.

The priorities will be underpinned by radically different approaches to Punishment
and Payback, Rehabilitation, Payment by Results, Sentence Reform, Youth Justice
and Work with Communities to Reduce Crime.

The Government is committed to devolving power and accountability to local areas
and think that local partners including the local authority, police, probation services,
prison services and other partners can work together more effectively to reduce re-
offending and consequently the demand for justice services in their area.

To test the feasibility and benefits of a local incentive scheme which will bring
together local partners to develop a plan to prevent offending and reduce re-
offending there are 2 projects proposed from April 2011: one in Greater Manchester
and one across a number of London Boroughs.

2. The Financial Incentive Model

As part of the Justice Reform Agenda (MoJ) is seeking to test a justice
reinvestment/payment by results model. This aims to deliver savings to government
and to local partnerships achieved through efficiency and effectiveness savings
against a suite of interventions and outcomes.

The MoJ has developed a Financial Incentive Model (FIM) whereby they payback
half of their calculated savings for a 5% reduction in adult demand and all the savings
above this threshold up to 20%. (For youth demand the threshold is 10%).

MoJ’s central requirement is a substantial reduction in criminal justice outcomes (i.e.
suspended sentence orders, community orders, short custodial sentences and all
other convictions and associated disposals) when compared to a baseline of
2010/11. The baseline and payment by results are calculated through a list of metrics
which quantify costs associated with the different outcomes.

MoJ does not prescribe how the reduction is achieved or which parts of the criminal
justice system are reduced in volume. They do require however that any payments
by results from the FIM are used where possible for services aimed at reducing

The Transforming Justice programme will therefore use the FIM as an enabler to
allow us to deliver the best possible outcomes for our communities.

3 .Community Budgets

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A community budget is a mechanism to help public sector partners (local and
national) to invest in an agreed set of outcomes. Community budgets will help us
locally to make intelligent and co-ordinated decisions about how to commission
effectively across public sector agencies at the most appropriate scale: whether that
be at neighbourhood, district, coalitions of districts or a Greater Manchester level.

The initial focus for Government is around the theme of complex families (i.e. families
with complex needs). In Greater Manchester alongside complex families, partners
have also agreed to develop a Community Budget approach to Transforming Justice,
taking into account the clear links between the two.

Greater Manchester is one of 16 national pilot areas for Community Budgets. For
Greater Manchester Community Budgets are a critical part of the Investment
Strategy focused on meeting the twin objectives of growing the economy and
increasing the productivity of the labour market. We will use community budgets to
improve the supply side of the economy: increasing the number of people who are
able to take up work, reducing dependency and demand for high cost services and
driving reform of public services. In particular we will accelerate our work on tackling
poverty and life chances, improving outcomes in the early years and reducing
reoffending rates.

A number of programmes are being developed to test the community budget
concepts of creating new delivery models underpinned by robust integration and
evidenced interventions coupled with an investment agreement that identifies and
distributes savings including for reinvestment in what works, one of which is
Transforming Justice.

Transforming Justice: The Case for Change
Greater Manchester is made up of ten local authorities with a population of
2,580,000. During 2009/10 local Criminal Justice agencies spent over £1.1bn dealing
with the 246,416 recorded offences across the 10 local areas and the high number of
offenders dealt with including over 70,000 adult and 5, 456 youth convictions.

It is widely recognised that the wider costs of crime are substantial, including impact
on offenders’ families, health, accommodation, employment and social care and that
the personal and social costs to the victims of crime and communities are greater

Crime has fallen in Greater Manchester in the last 2 years and the strength of and
commitment to partnership working has impacted positively on reoffending rates and
custodial sentences but we would all agree there is more we can and need to do.
The Transforming Justice programme is our response to the high overall demand on
the criminal justice system and the high numbers of offenders that cycle repeatedly
through that system.

We are mindful of the need to balance reductions in demand with ensuring that we
safeguard the interests of victims and witnesses and that we pursue the wider
outcomes of reducing reoffending, maintaining/improve public confidence in CJS and
ensuring that justice is done and seen to be done. We also recognise that Greater
Manchester is a highly diverse area and as such we fully recognise the need for
flexibility of approach both within geographic areas and for individuals. This is why

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we are keen to deliver within the context of Community Budgets, to ensure a
sustainable Greater Manchester approach and embed the link with wider family work.

The Ambition

Transforming Justice aims to reduce re-offending, crime, the number of victims and
demand through diverting offenders and potential offenders away from the Criminal
Justice System where appropriate and by more effectively rehabilitating those
already sentenced.

Greater Manchester has a history of innovation, excellent partnership working and
delivering results. The ambition for Transforming Justice is therefore to build on our
existing local assets and to reform the commissioning, design and delivery of criminal
justice and needs focussed interventions across Greater Manchester to deliver the
best possible outcomes for our communities.

The objectives of the Transforming Justice Programme are to:

          Reduce crime, reoffending and the wider impact of crime and dependency on
          Reduce the number of victims of crime
          Improve working across criminal justice and partners to streamline delivery,
           reduce duplication and deliver sequenced, integrated interventions.
          Reduce overall demand and cost to the criminal justice system.

The Greater Manchester pilot will work under 5 key principles and these are:

1. Ambition – rectifying the immediate gaps in provision while working towards a
new model of delivery and investment with strong integration at the core.

2. Partnership working – ensuring the right balance of enforcement and
rehabilitation resulting in reductions in reoffending and reduced overall demand on
the criminal justice system.

3. Flexibility – of partners, including working with each other and share funds and
savings as necessary to get the best outcomes with offenders and for communities.

4. Sequencing – building up transformation from low-cost or no-cost initiatives to
reinvest savings, to deliver the most appropriate and effective disposals, whilst
ensuring that justice is done and seen to be done, public safety is protected, public
confidence is maintained and the needs of victims and witnesses are fully considered

5. Evidence – underpinning the delivery process with on-going evaluation and
evidence to commission what works, including decommissioning of what is less

Further integration of existing services is key to delivery and underpinning this we
have identified the following priorities.

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1. Shared outcomes around reducing demand and using the most appropriate
intervention, public protection and confidence, and taking consideration of victims’
and communities’ needs.
2. Single core assessment process reducing duplication and promoting the most
cost effective and comprehensive responses.
3. Prioritisation to enable cases to be given priority to allow the effective sequencing
of interventions.
4. Single plan for offenders and their families where required ensuring interventions
are appropriate and properly sequenced
5. Single point of contact and co-ordination for each plan provided by a lead
professional promoting accountability and consistency.
6. Shared saving to incentivise and fund improvements in outcomes

Greater Manchester has a history of positive partnership working and a sound basis
on which to build, including amongst many others strong Youth Offending Services,
Integrated Offender Management, Intensive Alternatives to Custody and Choose
Change. Local flexibility is the key to successful delivery and the Transforming
Justice Programme and that is why we will be adopting a series of principles for each
of the key transition points.

We also recognise that there are a number of longstanding themes such as
accommodation, employment, training and education, health and workforce
development that cut across the transition points and cohorts and will be seeking
new and innovative ways to address these as part of the programme.

The TJ programme sits within existing Greater Manchester governance structures
and reports to the PPC and AGMA Executive and will deliver at a neighbourhood,
district and Greater Manchester level as appropriate

The Transforming Justice Programme is designed to deliver interventions and
services at critical points of transition to deliver better outcomes. It has been
recognised that there are a number of contacts with the CJS where if different
decisions were taken the outcomes could be both more effective in terms of reducing
long-term offending patterns and more efficient:

    •      Between youth and adult services
    •      The point of arrest and referral
    •      The point of sentence
    •      The point of release

There are two main strands to the work. One examines current demands on the CJS
and considers how we could alter this to reduce the volumes of people passing
through the court system and receiving custodial and community punishments.

This is primarily considering processes and is seeking more efficient ways to deliver
appropriate justice outcomes through the better use of out of court disposals by the
Police and CPS in particular. The people affected by this work would tend to be
primarily first time offenders or those presenting lower risks of harm and reoffending.

The other (and currently most developed) work stream focuses on groups of
offenders who we feel we could work more effectively with to reduce their reoffending

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rates and thereby have a positive impact on their local communities and reduce
demand on the CJS. This is more focussed on offenders already engaged in the
CJS and in reoffending outcomes.

The cohorts are divided into juveniles and adults with particular attention placed on
the transition from youth to adult services and with consideration being given to the
differing needs of women.

The “transition and cohort” approach helps to identify the people we want to engage
with, who adversely impact on communities and whose behaviour we want to
change. It is also helpful from a commissioning point of view as it enables us to
identify gaps and develop services for specific client groups.

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