As a response to Government policy with regard to reoffending and homelessness the Tayside Protocols were established in 2009. A number of Government reports had indicated the critical role of drug/alcohol misuse, employability, health and homelessness (21ST Century Social Work – reducing Reoffending, Protecting Scotland Communities, and COSLA Prevention of Homelessness Guidance). The COSLA Homeless Prevention Guidance emphasised the significant risks of homelessness faced by prisoners and highlighted the benefits of establishing clear protocols to address housing issues more speedily and fully.
The Tayside Inter-Agency Protocols were developed in partnership with a number of agencies including the following: Scottish Prison Service;Perth and Kinross Council – Homeless Service, Drug and Alcohol Team, Criminal Justice Service; ShelterScotland; NHS Tayside; Tayside Community Justice Authority; Angus Council – Homeless Service and Drug and Alcohol Team; Dundee City Council – Homeless Service and Drug and Alcohol Team.
Developed as part of a strategic approach to the key criminogenic needs of short term prisoners at HMP Perth the aim of the protocols was to forge a seamless transition between custody and community reintegration; to improve resettlement and thus impact on reconviction rates and a range of related outcomes such as housing and substance misuse. The rationale was to facilitate the joint working of a range of different agencies across Tayside so that problems associated with housing, substance misuse; health and employability were successfully tackled.
The following four protocols were produced and implementation of these has been ongoing over the last 12 – 18 months:
- Prison and Community Interface for working with Substance Using Offenders- the protocol articulates good practice in engaging with substance misusing offenders who are entering and exiting prison.
- The Offender Employability Protocol – aims to successfully assist prisoners to meet their employability needs to reduce reoffending.
- The Healthcare Information Access protocol- to ensure that prisoners healthcare needs are met and that governance, permissions and audit are managed effectively.
- The Prison Discharge and Homeless Prevention Protocol – aims to meet the housing and accommodation needs of prisoners, preventing homelessness and successfully reintegrating prisoners into the community, improving tenancy sustainability.
PLANNING / · a clear rationale, defined processes and focus on stakeholder needs
· contributes to organisation’s goals and addresses current or emerging challenges
The criminogenic needs of the prisoner population were well documented and data which indicated the need to improve working practices relating to the four key areas was readily available via the Scottish Prison Service and local authority teams. The catalyst for developing the project was not solely the fact that there were clear national and local policy objectives but the fact that HMP Perth was transformed from a national facility for mainly long term prisoners i.e. those serving four years and over to a more localised, short term establishment with prisoners serving less than four years with the majority being from Tayside.
The initiative was linked to key national and local policy objectives articulated by the Scottish Government, COSLA, Community Justice Authorities, Scottish Prison Service, Local Authorities and the Association of the Directors of Social Work. Community Justice Authorities will engage with their key partners to reinforce and promote the value and benefits of developing and delivering joint working practices which will, in turn, enhance service delivery, create efficiencies and contribute to the reduction of reoffending.Develop a shared understanding and ownership of ‘community reintegration’ and ‘early intervention’ amongst community planning partnerships, Community Justice Authorities, Scottish Prison Service and partners, for offenders in custody and in the community. In addition one of the identified critical factors relating to reoffending was the “ability to access and sustain suitable accommodation” The Scottish Prison Service performance contract both nationally and locally stipulates that 98% of prisoners leaving custody should have secured accommodation or have been referred to the relevant local housing provider.
Housing and homeless legislation requires local authorities to provide:Advice and information about homelessness; Services which may assist a homeless person; Practical help and early intervention to prevent homelessness occurring.
Prior to the protocols being developed communication between many of the partners had been poor and the needs of prisoners had been dealt with in a fragmented and reactive manner with differing practices operating in the three local authority areas. Led by Perth and Kinross Council and H.M. Prison Perth the Prison and Community Integration Group was formed to oversee the formation and implementation of the four protocols.
DELIVERING / · implemented in all relevant areas and across all the required stakeholders· carried out in a structured and logical way , using robust and sustainable methods
The Prison Community Integration Group (PCIG) was initially established in late 2009 to identify areas and opportunities to develop closer working practices with HMP Perth and local authorities within Tayside to ensure the joint fulfilment of national outcomes, the SPS main offender outcomes and local authority outcomes. The group contained representation from each of the 3 Tayside Local Authorities and Perth Prison with the main aims of improving integration between prison and community based services ensuring the smooth transition for prisoners upon sentencing and resettlement and reintegration and release. The 4 key areas of service delivery initially identified for improvement were accommodation, health, employability and substance misuse.
Sub groups for each of the earmarked areas were formed with a specific remit of initially identifying areas for improvement and subsequently developing and producing joint working protocols for implementation. Given the differences between working practices, priorities and resource commitments within the 3 local authority areas agreement on new ways of working and jointly agreed outcomes was complex. Additionally implementation of the protocols was phased in during 2009/10 culminating in an official launch of the protocols by the Minister for Justice at Perth concert hall in June 2010.Each of the protocols are structured to provide detailed guidance to support joint working with the prison service and community based service and where relevant include the following:
- Background information detailing why the joint working arrangements are required
- The overall objectives of the protocol
- Details of the partner agencies with a description of the roles and responsibilities of each
- Principles underpinning the protocols
- The relevant process and prisoner pathway
- Information sharing and confidentiality requirements
- Training needs and delivery
- The process for monitoring outcomes
More recently the sub groups have been re-focussed as implementation groups, terms of reference for these groups has been established with a specific focus to:
- Implement formal monitoring mechanisms to evaluate progress against desired outcomes.
- Co-ordinate activity to achieve jointly agreed objectives
- Undertake an annual review of the operation of the protocols and amend and refocus as required to meet service objectives and desired outcomes.Seek ongoing feedback and enable the full participation of service users in the implementation of the protocols and shaping their direction.
INNOVATION + LEADING PRACTICE / ·Demonstrates leading practice, and is capable of replication elsewhere
·Achieves genuine innovation or new ways of working
This was a major initiative which has a national impact. It was innovative in that it brought different partners and organisations together so that the tasks were able to be addressed more robustly and consistently. Given the wide range of agencies involved a detailed and meticulous approach was demanded. No other prison or Local Authority has developed such a process and when the protocol was launched by the Justice Minister in June 2010 it was recognised that the protocols were a model of joint practice that could be introduced across Scotland.
At a Prisoners and Housing conference held by Shelter in October 2010 the Prison Discharge and Homeless Prevention protocol was highlighted as an example of good practice and the only example of their kind in Scotland. One of the recommendations arising from this event was to consider the production of good practice guidance and a protocol template for all Scottish Local Authorities Homeless Services and prisons within their areas.
During the recent inspection of the Homeless Service the Scottish Housing Regulator highlighted the prison protocol as an example of positive practice which contributed to the Councils overall “excellent approach to providing advice and preventing homelessness”
An outcomes monitoring framework and improvement plan has been agreed and is in place for the prison discharge homeless prevention protocol. The framework details key measures of success and indicators and captures relevant information from the 3 participating local authorities.
RESULTS + IMPACT / · a convincing mix of customer and internal performance measures· clear line of sight to the delivery of better outcomes for communities
· a full range of relevant results– either already achieved or with potential to deliverover time
It is clear at this early stage that the objectives of the protocol are being met and it can be evidenced that upon release prisoners throughout Tayside have had their housing needs assessed and accommodation needs identified and where necessary formal involvement with a drug/alcohol worker, these in addition to improved continuity regarding health issues and employability clearly contribute to the wider more long term outcomes of tenancy sustainability and reduced reoffending.
Systems have been developed for each protocol and measures and mechanisms established for the collation and reporting of data. Outcomes and performance information from the Prison Discharge and Homeless Prevention provide a clear indication that the objectives of the protocol are being met in that the partners are now delivering a comprehensive and housing advice service within the prison, providing and arranging accommodation in advance of release and avoiding unplanned homeless presentations. Measurement of the longer term outcomes such as tenancy sustainability has commenced.
During 2008/09 Perth & Kinross Council received 75emergency, unplanned homeless applications from prisoners leaving custody. This dropped to 63 during 2009/10 and in 2010/11 there were 43 homeless applications from prisoners. Of these only 3 were emergency homeless presentations and all 43 individuals received assistance from the homeless service whilst in prison. Although numbers are limited at this early stage indications are very positive with all prisoners accessing secure accommodation maintaining their tenancies and to date not reoffending. Critically we are now confident that we are meeting the Scottish Prison Services key target to secure housing or refer 98% of prisoners to the relevant local housing provider upon release.
Close working between the homeless service and Perth Prison has also facilitated the introduction of the delivery of the prison community partnership initiative to young homeless persons.In order to enhance existing links and extend the focus from homeless prevention and advice to include diversion from crime staff from Perth prison deliver quarterly sessions at Greyfriars House to young homeless persons. By working with young people at an early stage the prison hope to provide accurate information enabling young persons to make informed choices. The main aims of the initiative are:
- To demonstrate the futility of following a life of crime
- To distinguish fact from fiction regarding prison life
- To give an insight into the day to day operations of a prison and the associated issues that may arise.
Positive feedback from homeless young persons about the sessions means that they will continue to be delivered at regular intervals.
More recently the Chief Executive of the Tayside Criminal Justice Authority has been invited to participate in a session involving the Minister and Senior Civil Servant at St Andrews House about this area which clearly will clearly influence future policy and practice at a national level.
At the official launch of the protocols during June 2010 Kenny MacKaskill Scotland’s Justice Minister said that “the scheme is a template for the rest of Scotland to follow”.
Graeme Youngson, SPS Liaison Officer with the Tayside Community Justice Authority recently stated that he is going to encourage his colleagues and managers to promote the Tayside approach with other CJA areas.
COSLA EXCELLENCE AWARDS 2012 Page | 1
COSLA EXCELLENCE AWARDS 2012 Page | 1