DRAFT

Youth Justice Plan

2005 – 2006

TABLE OF CONTENTS

A.Summary

B.Local Planning Environment

C.Drivers of Performance

C.1Governance and Leadership

C.2Performance and Quality Systems

C.3Resources

C.4People and Organisation

C.5Partnership Working

D.Preventing Offending and Minimising the Use of Custody

E.Achieving Improved Outcomes for Children and Young people who Offend

F.Review and Approval

G.Appendices39

Appendices

Appendix A:Organisational Chart

Appendix B:Performance Measures

Appendix C:Race Audit Action Plan

A.Summary

Overview:
Blackpool YOT seeks to position itself between the Children’s Services’ and Community Safety / Criminal Justice agenda so the confidence, support and contribution of criminal justice agencies is maintained while accessing the services needed to address the risk factors faced by young offenders. Blackpool YOT has worked closely with its partner agencies in 2004/5 to develop its services to children and young people and their parents/carers in working towards the primary aim of preventing offending. The link with the Blackpool Community Safety Partnership has developed over the year and the YOT is now integrated within the Blackpool Children and Young People's Department of Blackpool Council. In addition the loss of certain key staff, as highlighted in Section C4, and the recommendations of an external consultancy exercise in 2004/5, has lead to the current team reorganisation of its services
There has been an increase in the number of children and young people receiving a substantive outcome, i.e. Reprimands, Final Warnings and Court Orders over 2004/05, i.e. 509 (compared to 487 for the previous period), an increase of 4.3%. The majority of children and young people offending are drawn from the key ‘crime hotspot’ areas and within the worst 10% wards as per the DETR Index of Deprivation. This 509 group break down into 402 males (79%) and 107 females (21%) with ethnicity revealing that some 99.4% of this population were white, thus reflecting an under representation Black Minority Ethnic young people. Over 04/05 there have been 698 programmes of intervention provided by the YOT (statutory orders and pre court disposals) for 373 young people. In addition some 441 young people have been engaged on a voluntary basis through the Positive Activities for Young People (PAYP), Restorative Justice in Schools & AXIS programmes.
While these figures may demonstrate an apparent increase in offending, they could also be indicative of a number of emerging trends over the period. This includes such factors as increased and more positive forms of recording crime by the Police, the Prolific and other Priority Offender Strategy that is targeting offenders more closely, particularly through the ‘catch and convict’ strand. Also, the development of the anti social behaviour agenda has led to a less tolerant view on youth crime and nuisance, a view often perpetuated by the media, and courts are now beginning to take a more punitive line at the point of both sentence and remand. However, the YOT has been able to attain its Public Service Level Agreement (PSA) target to reduce re-offending by children and young people subject to the YOT’s intervention. Nonetheless, youth crime prevention needs to be high priority within the agendas of both Blackpool Community Safety and Drugs Partnership and Children and Young Persons' Strategic Partnership.
The notable achievements for the YOT in 2004/5, that reflect the considerable skills, diligence and dedication of YOT staff and certain key partners are as follows:
-targets have been met in a majority of the 13 KPI target areas– Blackpool YOT has regularly ranked in the top quartile of YOTs nationally (see Appendix B);
-the youth re-offending target was met for 2004/5 for the PSA for Blackpool Council (see Section D);
-some positive outcomes in the YJB’s Effective Practice Quality Assurance (EPQA) exercises, particularly in parenting, with a number of working practices cited in the YJB’s Good Practice Guidance (see Sections D and E);
-100% completion of ASSET data by YOT staff, thus providing a valuable information resource to inform the strategic planning of agencies in the Children’s Services and Community Safety sectors (see Measures Section D and E);
-several positive public relations events including the Know Fear event on victims, autocrime and road safety and a number of positive press releases , e.g. on Restorative Justice in Schools and Positive Activities.
Blackpool YOT is to be inspected by the YOT Joint Inspection Team the in late 2005, this being conducted in parallel with the joint area reviews of children’s services, as led by Ofsted, and the corporate assessment undertaken by the Audit Commission. The YOT Steering Group and management team have undertaken work with an external consultant to prepare for this during 2004/5 with staff stakeholders viewing the exercise positively as a means to reflect upon its services while drawing on improvements that could be made. The YOT Steering Group meets on a two monthly basis and provides an effective mechanism for establishing long and medium priorities and for holding the YOT, and specifically the YOT Manager, to account for delivery issues. The 13 Key Performance Indicators (KPIs) are discussed at each meeting with a focus on poor performing areas. The value ‘addedness’ of the group also lies in the ability to discuss areas of partnership delivery and to resolve issues before they become delivery problems. Following the work with a consultant in 2004/5, revisions are currently being made to the role and modus operandi of the Steering Group with new terms of reference being drawn up.
There are areas of existing performance that the YOT needs to address in 2005/6. These will present considerable challenges to both the YOT and key partner agencies involved with their delivery and require a more corporate governance. This will involve YOT staff taking forward the EPQA agenda to develop improvements in a number of areas concerning assessment, recording and planning and, with Steering Group members, continuing to working with:
-Health Services, to clarify their roles with mental health services for children and young people who offend (see Measures, Section D);
-Connexions, education and training providers, to ensure that young people are in suitable provision to meet their education or training or employment needs (Section D);
-Social Care Division (Children and Young People's Department) and other accommodation providers to develop viable accommodation alternatives, in accord with the courts and community safety agenda (Section D);
-The courts and criminal justice agencies to ensure that community sentencing is sufficiently robust to offer viable alternatives to the use of secure facilities (see Section D);
-A range of partners to reduce the number of entrants into the court and youth justice system, particularly strengthening compliance and engagement at the GRIP (Youth Inclusion Support Panel) and Final Warnings stages.
The overall budget for the Youth Offending Team and related services at the present time for 2005/6 is £2,117,504.While this represents an increase of about 5% for the total budget for 2004/5 (£ 1,970,188) and he staffing / in kind contributions have generally been maintained, there is a significant shortage in the revenue budget owing to short term funding, particularly Neighbourhood Renewal Fund. Thus, in 2004/5 the YOT will need to make efficiency savings and develop alternative external funding sources.

B.Local Planning Environment

The Children and Young Persons Strategic Partnership has agreed nine priorities for Blackpool identified in its Children and Young Persons Plan that is presently being devised. The collaborative approach to planning children’s services has ensured that the key priorities for the YOT are consistent with those agreed and consequently aligned to the key priorities identified in Every Child Matters. The nine key priorities for children and young people, as identified by the partnership, are: improving mental health and emotional literacy; reducing substance misuse; reducing teenage conception rates; protection from maltreatment and sexual exploitation; not engaging in bullying, anti social behaviour and crime; being cared for in a secure and safe environment; improving pre and post school provision and attainment; improving consultation of children and young people; and raising the aspirations of Blackpool’s children and young people.
The YOT works closely with Blackpool Community Safety and Drugs Partnership with involvement with the recent audit and strategy. The YOT Manager now sits on the newly constituted Tactical Tasking Group and chairs the sub group on Youth Violent Crime. There will also YOT representation on other sub groups, including the Quality of Life Group as represented by the Positive Activities for Young People (PAYP) Manager. The key priorities are as follows: acquisitive crime, violent crime, quality of life issues, substance misuse, prolific and other priority offenders, geographical focus and alcohol misuse. There are particular ongoing issues around youth nuisance and criminal damage that links with the quality of life theme.
There are a number of inter agency and partnership groups, with a focus on crime prevention, to which the YOT contributes. These include::
-GRIP (the Youth Inclusion and Support Panel as now run by the YOT), formerly this was run by a multi agency Steering Group with the YOT Manager as chair;
-Restorative justice in schools as linked to the Blackpool Behaviour Improvement Programme (BIP)and planning and monitoring process, YOT staff are involved with regular meetings with Behaviour and Attendance Lead Professionals at the BIP designated schools ;
-Positive Activities for Young People (PAYP) – annual delivery plan produced with multi agency Steering Group as chaired by the YOT Manager;
-Connexions agenda, with the latter through attendance on the Local Management Committee and Resources sub group;
-Young People’s Drugs Reference Group and Children and Young People’s Substance Misuse Commissioning Group – this linked to the YJB allocation grant for substance misuse;
-Prolific and other Priority Offender Strategy (PPO) and the delivery of the prevent and deter target strand has required consultation and collaboration throughout the management structures to identify strategy, agree methods of identification and appropriate referral through existing multi-agency forums;
-Child and Adolescent Mental Health Service Strategy Group

C.Drivers of Performance

C.1Governance and Leadership

YOT services are currently organised into functional units (see appendix A) and are primarily delivered from the base at Stanley Buildings and the Devonshire Centre, both Blackpool town centre locations. Following the Some staff, as connected with the AXIS project, are based at the local Police Station for part of the time. The overall budget for the Youth Offending Team is £2,117,504, of which partner agencies are providing 66%. The 2004/5 budget shows an increase of about 5% for the total budget for 2004/5 (£ 1,970,188). The staffing / in kind contributions have generally been maintained, and in some cases increased, i.e. Police with AXIS staff, but there is a significant shortage in the revenue budget owing to short term funding, particularly Neighbourhood Renewal Funds, that tapers over a three year period. Thus, in 2004/5 the YOT will need to make efficiency savings and develop alternative external funding sources in order to maintain the progress made in recent years. Given the increase in staffing and volunteers, as highlighted in C4 (Workload Planning), there has not been a sufficient enough rise in the revenue / capital budget to cater for on costs, particularly taking into account any contingency measures, i.e. cover for substantive staff absence, and training / development needs.

The YOT Steering Group meets on a two monthly basis and provides an effective mechanism for establishing long and medium term priorities and for holding the YOT and specifically the YOT Manager to account for delivery issues. Resourcing and budget matters are standing items. The 13 Key Performance Indicators (KPI’s) are discussed at each meeting with a focus on under performing areas, whilst also acknowledging areas of work that are successful. The value addedness of the group also lies in the ability to discuss areas of partnership delivery and to resolve issues before they become delivery problems. The YOT Steering Chairfor 2004/5 was the Head of Corporate Policy within the Chief Executive’s Department of Blackpool Council with the YOT placed in that division and the YOT Manager reporting to the Steering Group Chair. As from 1/4/05, as part of a restructuring within the Council, the YOT has been placed in the Children and Young People's Department that includes educational, youth and social care services. The YOT Manager reports directly to the Director for that service, who is now the chair of the Steering Group.

The role and purpose of the Steering Group has been reviewed in 2004/05 utilising the expertise and independence of an external consultant, this has been specifically with a view to impending inspection that will take place later in 2005. Issues identified have included consistent attendance at meetings by some key agencies and a review of he membership with the proposal of job descriptions for members being considered. It has recognised that more time at meetings is needed to address broader strategic themes with particular reference to equality and less emphasis on direct governance. In addition the Steering Group acknowledges that its representation poses issues in relation to ethnicity. Currently new terms of reference are being devised for the group.

Table A: Composition of Management Board

Name / Agency representing / Post in agency / Ethnicity / Gender
Chair: Mr D Lund / Children & Young People’s Department / Director / White British / Male
Mrs S Sutherland / Social Care (Children and Young People's Department) / Assistant Director / White British / Female
Mr C Dearden / National Probation Service – Lancashire / Deputy Chief Probation Officer / White British / Male
Mr R Goodenough-Bayley / Lancashire Constabulary (Western Division) / Chief Inspector / White British / Male
Mr M Taplin / Connexions Lancashire / Operations Director / White British / Male
Ms S Kirby / Blackpool Council / Community Safety Manager / White British / Female
Mr P Pertica / Blackpool Council / Head of Community Safety and Drugs / White Other / Male
Ms M Davies / Pupil Support (Children and Young People's Department) / Senior Education Advisor / White British / Female
Mr P Wilcox / Barnardos Northwest / Assistant Director Children’s Services / White British / Male
Mr S Hurst / Lancashire Fire and Rescue Service / Divisional Commander / White British / Male
Ms J Mills / Blackpool Primary Care Trust / White British / Female
Ms S Sanders / Fylde Branch Crown Prosecution Service / Branch Prosecutor / White British / Male
Ms J Young / Victim Support Lancashire / Chief Executive / White British / Female
Mr M Adamson / Blackpool Magistrates Court / Deputy Clerk to the Justices / White British / Male
Mr S Cook / Blackpool Youth Offending Team / Yot Manager / White British / Male
Ms W Monnelly / Blackpool Youth Offending Team / Deputy YOT Manager / White British / Female

C2Performance and Quality Systems

With regard to the Key Performance Indicator (KPI) information, there are good systems in place in order to ensure data is recorded onto the YOIS database with monthly as well as quarterly requests for information distributed to all key staff. The overall accuracy of KPI information is ensured through dissemination of data to all Managers prior to Youth Justice Board submissions with all those falling outside of the designated time periods being carefully scrutinised. KPI achievements/targets are shared at YOT Management and Steering Group level on a quarterly basis as well as being discussed through specific strategic groups. These are outlined within the Delivery Plan with areas of under performance targeted for additional resources as appropriate - e.g., YOT educational programmes.
Blackpool YOT have always had good quality assurance systems in place, with case file audits being undertaken across all areas of service delivery, and results fed back to managers and practitioners as appropriate to inform service developments as well as notify case management arrangements. Whilst a number of areas have not been evaluated for some period due to the prioritisation of the EPQA, it is planned that stringent methods of monitoring individual performance will be introduced through formal supervision sessions. Whilst a number of the team receive formal monthly supervision and yearly appraisal , it has been recognised through the EPQA that this practice is not uniform. During 2005/06, a monitoring system is to be introduced for managers to record when supervision sessions and appraisals have occurred, with a template to ensure consistency within the process. Learning & Development Plans were completed for the vast majority of staff for 2004/05, with updated forms all expected to the completed by end of June, 2005.
It has been identified that a more thorough analysis of training/development opportunities does need to be undertaken, with plans to take this forward over 2005/06. In addition, details on available aggregate data, e.g. outcome to disposals, ASSET scores, types of offences will be introduced over 2005/06, to ensure that interventions/programme work is being appropriately targeted, and clear accountability in terms of individual performance. A working group across all areas of practice will be developed over 2005/06 to lead on all actions identified through the current EPQA process. Additional quality assurance systems relate to the PSR gate-keeping process with all reports being scrutinised by another practitioner/manager to ensure high quality reports are disseminated from the team. Furthermore, validation exercises will be introduced concerning new areas of service delivery, e.g. GRIP.

C3Resources

C3.1Financial resources

An overview of financial resources including any particularly significant changes in resources are as outlined:-
-YJB Core funding has experienced a 4.7% increase - Substance Misuse Grant 0.9% increase and ISSP grant a 2.8% increase.
Local Authority budget has increased by 2% for supplies and services and 2.95% for salaries.
-Partners (Police, Probation & Health) contributions to YOT Revenue budget have generally been maintained, with a small increase for inflation. Probation’s revenue contribution has increased due to their previous seconded staff being replaced by someone on a lower salary, whilst maintaining their overall contribution.
-Children’s Fund contributions to the existing programmes have been maintained with projects relating to Positive Activities for Young People (PAYP), Restorative Justice in Schools and the Lancashire Youth Association Volunteer/Mentoring Project. Additional funding is now being received by the Children’s Fund for the GRIP (Youth Inclusion Support Panel) project, as now run by the YOT, formerly Barnardo's. There is, however, a significant shortfall from the overall funding for 2004/5 owing to the cessation of 2 funding sources.
-PAYP main funding is received through Connexions. Neighbourhood Renewal Funds (NRF) for Rapid Response project has been maintained at the same level (£30K) due to the funding being over 2 years, rather than the normal 3 years with tapering. Health Improvement Fund grant has reduced from £30K to £20K due to tapered funding. Whilst additional grants totalling £23K were received during 2004/05, these are not expected to be maintained .
-AXIS Project funding has reduced this year as a result of NRF tapered funding (reduced by £10K), with funding now being in it’s final year. Safer Communities Fund grant reduced by £6,559, with £10K having to be used for capital expenditure, resulting in an overall £16.5K reduction in revenue. However, the ‘in kind’ contribution from the Police has increased with the number of seconded Police Officers increased to 4 full-time and one part-time within the team.
-NRF Funding for the Mental Health Co-ordinator Post now in it’s final year, with a reduction of £7K. As the Mental Health Officer left the YOT early 2005, this post has been amalgamated with Substance Misuse worker Post to address this situation.
-The Volunteer Mentoring and Pre E2E funding through Connexions is maintained at same levels (£20K & £25K). Pump Prime funding against the PSA target (£25K) is now in its final year.
-Restorative Justice in Schools funding from the Behaviour Improvement Fund (£15K) will not be received this year.
Thus, there are longer-term concerns for 2006/7 with the budget with additional sources of revenue, as highlighted in Table 27a. The YJB Education/Mentoring grants and Safer Communities funding are not secure. NRF funding for AXIS and PLUS will cease together with possibly Rapid Response and Family Support. The Health Improvement Grant PSA pump priming will cease and PAYP could lose about 50% of its core activity budget given current government proposals. Thus, this could lead to a further £254,000 reduction in budget as a worst case scenario, probably about £100,000 at best.

Table 26: Services planned for the financial year 2005 – 2006