Learning from
projects working with ex-offenders
The Big Lottery Fund
July 2013
Arrivo Consulting Ltd 42 Miller Street
Glasgow G1 1DT
[email protected]
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Contents
Introduction ... 3
Methodology ... 3
Limitations of the research ... 4
Context for the study ... 5
Overview of the case study projects ... 7
Approaches to reducing reoffending ... 10
Overview of approaches ... 10
Approach and rationale of the case study projects ... 11
Short–sentenced prisoners ... 11
Addressing worklessness ... 12
Addressing Homelessness ... 13
Building social capital and social inclusion ... 13
Young people - Addressing attitudes and behaviours ... 14
Women ex-offenders ... 16
Whole family approach ... 16
Outcomes and measuring success ... 19
What outcomes are the projects aiming to achieve? ... 19
‘Reduction in reoffending rates’ as a measure of success ... 19
Intermediate outcomes for ex-offenders ... 19
Outcomes for children and families of ex-offenders ... 20
How are projects measuring progress toward their outcomes? ... 21
Self Evaluation: Measuring intermediate outcomes ... 21
External evaluation ... 22
Learning from projects working with ex-offenders ... 25
What ‘works’ when providing support to different groups of ex-offenders? ... 25
What are the key challenges when providing support to different groups of ex- offenders? ... 27
Working towards a better understanding of impact ... 29
The challenges ... 29
Informing the development of a framework ... 30
Implications for the Fund ... 34
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Appendix 1: Case Studies ... 36
The One Service (Peterborough Social Impact Bond) ... 36
Routes Out of Prison (The Wise Group and partners) ... 44
Roots and Shoots (Aberdeen Forward) ... 49
Transition to Employment (Access to Employment Ayr) ... 54
SPAN (Shelter Scotland in partnership) ... 58
Ordinary Homes – Extraordinary Lives (PSS Scotland) ... 63
Positive Tracks (Cornerstone) ... 68
Transitional Support Programme (Includem) ... 73
Adolescents Leaving the Justice System (Opportunity Youth) ... 79
Going Home (Gibran) ... 85
Families Affected by Imprisonment (Circle Scotland) ... 90
Invisible Walls (G4S Care and Justice UK Ltd) ... 96
Appendix 2: List of Outcomes ... 103
Appendix 3: Consultees ... 107
Appendix 4: References ... 108
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Introduction
The Big Lottery Fund (the Fund) in Scotland has recently funded a number of projects that are providing different types of support to ex-offenders to help them make the transition back to society and discourage recidivism.
In order to learn from the different approaches taken by these and other similar projects that the Fund has funded across the UK, the Fund commissioned Arrivo Consulting Ltd to develop case studies of 12 different projects. The aim of the case studies is:
• to explore the diverse approaches that projects adopt to working with
different groups of ex-offenders and the rationale for these approaches; and
• to understand more about how the projects evaluate the work they are engaged in and how they demonstrate progress and success in meeting outcomes.
The case studies are attached in Appendix 1. This report provides an overview of the findings identified through the research and in particular focuses on:
• The approaches that projects take to working with specific groups of ex- offenders and the rationale for those approaches.
• The outcomes that the projects are aiming to achieve and how they measure success.
• The learning from the projects: What ‘works’ and what are the challenges when providing support to different groups of ex-offenders?
The report concludes with a review of the issues in measuring the outcomes of work aimed at reducing reoffending and with suggestions for developing a model evaluation framework.
Methodology
The 12 projects which have been developed as case studies were chosen by the Fund and include projects from across the UK.
The methodology for development of the case studies was limited to a review of project information held by the Fund. This included project applications,
assessment reports, monitoring reports and external evaluations where they were available. In addition, a telephone interview was conducted with each of the case- study projects.
We also carried out a limited review of literature on ‘what works’ to reduce reoffending. This was by no means a systematic literature review, but merely provided a context for the findings of the review of case studies.
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Limitations of the research
The research for the case studies was confined to a review of literature and a telephone interview with the project. The case studies therefore provide an overview of the approach, the rationale, the delivery model and the anticipated outcomes, based on the information available. The review of ‘what works’ is also based on information provided by the projects, and is not based on evaluation of the projects.
Additionally, some of the projects have been operating for a short time only and it is still too early to identify the learning at this stage.
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Context for the study
“The problems in prisoners’ lives are often highly complicated and inter-related. They require a co-ordinated multi-agency response, within prison, across the crucial transitions between community and custody, and sustained long after release. Without this, they are likely to fall into the gaps between services.”
(Social Exclusion Unit, 2002)1
The challenge of reducing reoffending is that many offenders, especially those who are persistent re-offenders, have multiple and complex needs. There is a very high correlation between persistent offenders and history of social exclusion and
disadvantage. Many prisoners have poor skills and little experience of employment (almost one in eight prisoners says they have never had a job), few positive social networks, severe housing problems, and all of this is often severely complicated by drug, alcohol and mental health problems. Other research also indicates that institutionalisation among persistent re-offenders resulted in a sense of hopelessness and fatalism about their ability to change.
The complexity and diversity of the problems faced by offenders mean that there is no 'one-size fits all' approach to reducing reoffending. Research suggests that the factors which influence offending behaviour are different for different 'client groups' and also highlight that the factors which reduce reoffending are often specific to the individual. Consequently, interventions that work well in one context may work less well in others.
However, there is a growing body of evidence of the factors that contribute to reoffending. Building on criminological and social research, the Social Exclusion Unit (SEU) identified nine key factors:
• education;
• employment;
• drug and alcohol misuse;
• mental and physical health;
• attitudes and self-control;
• institutionalisation and life-skills;
• housing;
• financial support and debt; and
• family networks.
There is also a growing body of evidence which demonstrates the impact of
addressing these factors on reducing the risk of reoffending. For example, research shows that:
1 Reducing reoffending by ex-prisoners; Social Exclusion Unit 2002
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• Employment reduces the risk of reoffending by between a third and a half.
• Stable accommodation reduces the risk of reoffending by a fifth.
• Having family ties can reduce the likelihood of reoffending by 39 per cent.
Research shows that strengthening personal identity and fostering a sense of belonging can make a significant contribution to supporting ex-offenders in desisting from reoffending.
However, the research also suggests that support to ex-offenders needs to be
‘joined up’ to address the range of complex and inter-related issues which contribute to reoffending.
The projects which have been explored as part of this study highlights a cross- section of approaches aimed reducing reoffending in different target groups of offenders. The study is not intended as an assessment of the most effective
approaches for each client group, but rather represents an overview of the diverse approaches that are currently funded by the Fund across the UK.
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Overview of the case study projects
There are twelve projects within this study. This section provides an overview of the twelve projects, with summary information on the project focus and the profile of the ex-offenders that it targets.
Full case studies which outline the project approach and rationale, the delivery model, the outcomes it seeks to deliver, and details of how the project measures progress toward outcomes, are provided in Appendix 1.
Project name Target group Project description The One Service
(Peterborough Social Impact Bond)
Short-sentenced prisoners released from Peterborough Prison
The One Service is funded via a Social Impact Bond, a unique outcome focused funding model. The One Service engages prisoners while still in custody and provides proactive support through and beyond the gate and into the community.
The delivery model is personalised and needs-led. The flexibility of the funding system allows the One Service to commission services to meet identified needs.
Routes out of
Prison Short-sentenced prisoners in prisons in Scotland
ROOP is a ‘bridging model’ of support which engages prisoners while still in custody and provides ‘at the gate’ and ‘through the gate’ support through peer advisors to assist ex-offenders to access services to address the range of issues which affect them.
Roots and Shoots Workstyle
Project
Male prisoners in Craiginches Prison, Aberdeen
Engages offenders in employability training while they are still in custody in HMP Craiginches. On release, ex-offenders move directly into a paid six-month work placement with Aberdeen Forward.
Transitions to
Employment Ex-offenders subject to a non- custodial sentence in South and East
The project is aimed at ex-offenders who are subject to Community Service Orders (CSOs) and Community Payback Orders (CPOs). It delivers a personalised programme over a period of six to nine months to build employability skills and support clients to access employment.
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Ayrshire The SPAN
(Supporting Prisoners Advice Network)
Offenders in Aberdeen, Perth, and Inverness prisons, and their families.
The project aims to avoid homelessness through the provision of housing advice and support to prisoners and their families. The project also provides throughcare support for those offenders with more complex needs to assist them to access specialist agencies in the community to address their needs.
Ordinary Homes, Extraordinary Lives
Young offenders (aged 16-17) who are homeless on release from Polmont Young Offenders Institute.
The project provides supported accommodation through an approach based on the adult placement model (which has traditionally been used for supporting adults with learning difficulties). The young person is placed in a family home, and the mentor supports the young person to develop life skills, to engage in family and community activities, and to participate in employability training to build a prosocial lifestyle.
Positive Tracks Offenders with additional learning support needs.
The project provides supported accommodation for up to 12 months. Each
participant is also supported to develop life skills, employability skills and to engage in local activities to assist them to resettle within the community and to develop positive relationships.
The Transitional Support
Programme
Young people
between 14 and 24. The Transitional Support Programme provides support to young people who have been involved in the criminal justice system, either through statutory orders or the Children’s Hearing system. It is a community based programme which provides support over a six to nine month period through prosocial role modelling, emotional and practical support, and advocacy and brokerage to help the young person engage with other services.
ADJUST Young Offenders
(Northern Ireland) A throughcare service which engages young offenders six weeks pre-release and provides community based support for up to six months post-release. The approach focuses on supporting changes in attitudes and behaviours, building resilience and coping strategies to prevent relapses among young people.
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Going Home Female ex-
offenders (in Wales) The project supported female ex-offenders throughout Wales to transition back into the community following release from prison. The project provided peer support to ex-offenders to develop the life skills and social support that they needed to
address their needs and to engage positively in their community.
Families Affected by Imprisonment
Offenders and families of offenders in Addiewell Prison (Scotland).
The project takes a ‘whole family approach’ and seeks not only to reduce
reoffending but also to deliver better life chances for children and families affected by imprisonment.. It supports the offender and family to develop skills and
strategies to improve both their parenting practices and their capacity to deal with everyday life.
Invisible Walls Offenders and families of
offenders in Parc Prison (Wales)
The project operates a ‘whole family approach’. It works with the entire family and delivers targeted interventions to both the prisoner and family for up to 12 months pre-release and six months post release.
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Approaches to reducing reoffending
Overview of approaches
While each of the case study projects has an ultimate objective of reducing
reoffending, the projects demonstrate a range of different approaches and have a focus on addressing different factors associated with re-offending.
Some of the projects take a ‘holistic’ approach to the multiple and complex needs of ex-offenders. They seek to access the services and support that ex-offenders need to make the transition from prison into the community and work to support ex-offenders post-release to access and co-ordinate services to address their needs in the community.
Some of the projects have a greater focus on addressing one or more of the specific factors which are known to contribute to the likelihood of a prisoner reoffending, such as employment or housing. While these projects focus on
addressing practical needs they provide access to other services aimed at meeting the wider needs of ex-offenders.
Other projects operate from a different ‘theory of change’ and have a greater focus on addressing the less tangible issues which contribute toward offending behaviour (lack of social skills and problem solving skills, criminal attitudes poor family relationships and criminal social networks). These projects focus on the development of social capital– developing positive social relationships and networks and participation in prosocial activities - as the mechanism to support individuals to develop a non-criminal identity and develop prosocial lifestyles.
Some of these projects focus on the improving the attitudes, motivations, personal and social skills that contribute to reoffending behaviour. These approaches aim to build personal and social skills, communication and coping skills which build
resilience and enhance the ability of ex-offenders to respond to and cope with life events and social situations. These approaches often include practical support to minimise the harm of risk-taking behaviours and relapse prevention which involves specific planning to avoid the triggers which result in offending behaviour.
The case studies also provide examples of projects which work not only with the offender but also with their families, taking a ‘whole family approach’ to reducing reoffending. These approaches seek to address reoffending by rebuilding family ties to aid re-integration of the ex-offender into their family and community.
However, the ‘whole family approach’ recognises that families and children are also affected by parental imprisonment, and these approaches not only aim to reduce reoffending but also to mitigate the harm to children and families and in some cases address intergenerational offending.
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Approach and rationale of the case study projects
The case study projects represent a spectrum of approaches. The following section provides a brief outline of the project approaches and the rationale which
underpins these approaches.
Short–sentenced prisoners
Two of the case study projects focus on addressing the issue of high rates of re- conviction of prisoners serving short-term sentences. The One Service, which works with prisoners released from Peterborough Prison, and Roots Out of Prison, which was funded by the Fund between June 2008 and August 2011 to deliver services in seven prisons in Scotland.
While short-sentenced prisoners often suffer from multiple and complex needs, they are also the least likely to access help and support:
• This group is not subject to statutory support or supervision on release.
• As they are only in custody for short periods, these offenders have limited access to the support programmes which are available within prisons.
Statistics show that, as a result, many of these offenders become stuck in the
‘revolving door’ of prison life.
Research suggests that holistic interventions that address multiple criminogenic2 needs are more likely to be effective in reducing reoffending, but there is strong evidence that provision of practical support in prison is unlikely to have a lasting impact on the risk of reoffending unless it continues upon release. These
approaches therefore follow a throughcare model, with on-going support in the community s to access and co-ordinate the services that ex-offenders require to meet their needs.
The One Service (Peterborough Social Impact Bond)
The One Service approach uses pre and post release mentoring to engage ex- offenders in services. Before release, case workers carry out individual
assessments to identify individual needs for resettlement. The service provides support ‘at the gate’ and continues to provide proactive, individualised assistance post-release to help ex-offenders to connect with services and support in the community to address their multiple needs. The One Service also provides support in the community to families of offenders.
The One Service is funded via a Social Impact Bond, a unique outcome focused funding model. The flexibility of the funding model means that the delivery model is flexible and needs-led. The One Service can purchase one-off interventions to meet the needs of specific clients, or develop a new service where a gap is identified.
2 Needs are considered ‘criminogenic’ when they contribute directly towards offending.
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Routes out of Prison
The Routes out of Prison project is also a ‘bridging model’ of support which
engages prisoners while still in custody and provides ‘at the gate’ and ‘through the gate’ personalised support to access the range of services required by ex-
offenders. The model uses peer advisors to engage and support ex-offenders, both in prison and in the community. The project also provides emotional support to families of offenders and practical support to access services in the community.
Addressing worklessness
Research has shown that gaining employment can reduce the risk of reoffending by between a third and a half.
However, research also highlights that where ex-offenders have multiple needs, it is important that support is appropriately sequenced: for example, employment, while critical in the longer term, is often not a realistic short-term goal until other issues and needs have been addressed.
Roots and Shoots Workstyle Project and Transitions to Employment are
predominantly employability projects which are targeted at male ex-offenders.
These projects focus on building confidence and employability skills to enable ex- offenders to move into employment. Both projects access support from Criminal Justice Social Work Teams, or other resources, to support participants to access the wider range of services required to address their multiple barriers to
resettlement.
The Roots and Shoots Workstyle project
The project engages offenders in lifeskills and employability training while they are still in custody in HMP Craiginches. On release, ex-offenders move directly into a paid six-month work placement with Aberdeen Forward.
Ex-offenders have employed status while working with Aberdeen Forward. The offer of a 'real job' has been key to engaging offenders in the training while still in custody.
During the work placement, ex-offenders also receive additional vocational training and work placements with other employers. The work placements and vocational training are focused on the ex-offenders’ chosen field of employment.
Participants are also supported by Criminal Justice Social Workers, or by other projects which address their wider resettlement needs.
Transitions to Employment
This project provides individualised employability support to ex-offenders subject to Community Service Orders (CSO’s) and Community Payback Orders (CPOs).
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The Transitions to Employment project provides a strong focus on employability for ex-offenders. Each participant has an individual action plan focused on moving toward employment, and the project provides six to nine months of personalised support to work towards their employability goals. The project provides support and guidance but also training to develop softer employability skills. It also provides aftercare once participants have moved into training/employment.
The project works in partnership with the Criminal Justice Team in South Ayrshire Council's Social Work Department who provides wider support to the ex-offenders.
Addressing Homelessness
Links between homelessness and offending are well-established and number of key strategies emphasise the importance of settled housing in contributing to reducing re-offending. Having stable accommodation can also enable ex-offenders to access a range of other services to meet their wider needs which can assist them to address their offending behaviour. Stable accommodation can also influence the ex-offenders ability to get a job. The case study highlights SPAN a project
delivered by Shelter to reduce the risk of homelessness among prisoners and their families.
Supporting Prisoners Advice Network - SPAN Project
SPAN is delivered by Shelter in partnership with Inverness CAB and SACRO. The project primarily aims to support prisoners and their families to avoid
homelessness through the provision of housing advice and support. The project also provides a bridge between prison and the community for those with more complex needs by providing a throughcare element, with support workers providing post release support to clients to access specialist agencies. Throughcare services are targeted on those ex-offenders with higher support needs and those who are ineligible for statutory support.
Building social capital and social inclusion
A number of studies emphasise the importance of building social capital in
reducing reoffending. These approaches aim to develop sustained involvement in prosocial lifestyles through rebuilding ties with family, friends and the wider community, developing new prosocial relationships and through participation in prosocial activities.
Positive Tracks and Ordinary Homes, Extraordinary Lives are two projects which use this approach. Both projects address homelessness by providing stable
accommodation for ex-offenders on release from prison, and aim to support the individual to develop positive relationships and prosocial networks. Both projects also support ex-offenders to develop life-skills and employability skills as a
mechanism to support prosocial lifestyles.
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Positive Tracks - ex-offenders with additional learning support needs
It is recognised that among the prison population a significant number of people have an identified learning difficulty, mental health issue, or a non-diagnosed learning support need. For people in prison, a learning support need presents an additional barrier to resettlement and often results in a ‘revolving door’
relationship with the criminal justice system. This project is aimed at providing support to those ex-offender identified as having a learning support need to maximise their capacity to break this cycle.
The project provides access to supported accommodation for a period of 12
months. Alongside the supported tenancy, participants receive support to develop confidence and independent living skills, through one-to-one support but also by supporting individuals to engage in activities within their communities. As a result, individuals develop positive relationships, promoting social inclusion and
independence which build their confidence and capacity for independent living.
Participants are also supported to address other issues and barriers in their lives (for example debt, health, or addictions).
Participants also engage in a bespoke employability programme aimed at building confidence and employability skills and a pathway towards employment.
Ordinary Homes, Extraordinary Lives - young ex-offenders
Ordinary Homes, Ordinary Lives, provides supported accommodation for homeless young ex-offenders (aged 16-17) through an approach based on the adult
placement model which has traditionally been used for supporting adults with learning difficulties.
The model matches a young ex-offender with a mentor who offers supported accommodation in the mentor’s family home. The approach offers a secure home environment and a stable family life which many young ex-offenders will not have previously experienced.
The approach aims to develop life skills, social skills and communication and coping skills through direct support and prosocial modelling based on positive relationships with the mentor. It also works to improve the social inclusion of ex- offenders by encouraging the development of positive social relationships and networks which support individuals to develop social skills and build confidence and self-esteem. Young people are also supported to access employability training to build their capacity for independent living.
Young people - Addressing attitudes and behaviours
The Transitional Support Project, delivered by Includem in Scotland and the ADJUST project in Northern Ireland are two case study projects which work with young people. Both projects address the lack of prosocial thinking, skills and attitudes which contribute towards offending behaviour among young people and focus on supporting changes in attitudes and behaviours, building resilience and
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coping strategies to prevent relapses into reoffending. The projects also seek to build employability skills as a mechanism to support the young person’s pathway towards independent living and prosocial lifestyles.
Both projects use a prosocial modelling approach where the relationship between the young person and the key worker is a critical to supporting the young person to change. Both approaches work to address changes identified by the young person, but provide the support and on-going motivation to carry out the self-directed change.
Transitional Support Programme
Includem delivers the Transitional Support Programme to young people aged 14 to 24. It is a community based programme for young people who have been involved in the criminal justice system, either through statutory orders or the Children’s Hearing system. It provides a 'bridge' to independent living for young people who are leaving Compulsory Supervision Requirements, but who still require support to
‘transition’ in life.
The Includem model of practice is based around the relationship between the young person and the worker. This relationship involves prosocial role modelling, and provides emotional and practical support as well as an advocacy and brokerage role to help young people better engage with other services. The project supports young people through crisis events and relapses, to reduce the negative impact of crises on previous achievements and help young people to keep heading in the right direction. It is the relationship with the worker that is key to bringing about change.
ADJUST (Adolescents leaving the justice system)
ADJUST, delivered by Opportunity Youth in Northern Ireland, is a throughcare service of support for young offenders, aimed at addressing their complex practical needs, but also the lack of lifeskills, attitudes and behaviours which influence their offending. It engages young offenders while still in custody (six weeks pre-release) and provides an intensive 12 session mentoring programme resulting in the
development of a personal action plan. This is followed by with an individualised support package that will be available for up to six months post release in the community.
Opportunity Youth use motivational interviewing techniques to increase an individual's motivation to make positive changes in their life. For offenders to engage in any process which may lead to change they need to be motivated to embrace that change. Motivational Interviewing has a directive and client centred approach designed to help an individual change their problem behaviour by
allowing them to explore and resolve ambivalence which is seen as the primary obstacle to change.
The approach recognises that the motivation to change has to come from within or it is unlikely to be sustained, therefore, the underlying power of the motivational
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interviewing technique is that the offender resolves for himself to change the behaviour rather than having it suggested or advised by someone else.
Women ex-offenders
The profile of women offenders differs from that of male offenders. A different and distinct approach is needed for the rehabilitation of women ex-offenders.
Another factor affecting the rehabilitation of women ex-offenders is the small number of women’s prisons and their geographical location. This typically results in women being located further from their homes than male offenders, to the detriment of maintaining family ties, receiving visits and resettlement back into the community.
The case study highlights ‘Going Home’ which supports women offenders from Wales to resettle in their communities. Women offenders from Wales serve their sentences in prisons in England as there are no women's prisons in Wales.
Going Home
Going Home supported female ex-offenders throughout Wales to transition back into the community following release from prison. The project provided peer support to ex-offenders to address the long term challenges of ‘being out and staying out’ of prison.
The approach focused on addressing the damage to female ex-offenders as a result of imprisonment: family breakdown (including losing their children), loss of
accommodation, mental health problems, lack of confidence, poor self-esteem, poor communication skills, isolation and ‘disconnect’ from families and friends.
The project operates from a ‘whole person’ approach, and provides mentoring and group work which provide emotional support, but also build confidence, a sense of mental well-being, positive identity, and increased resilience.
The project supports women to address their practical needs, but recognises that for many of the women, their practical needs are inextricably linked to their psychosocial needs. As a result, addressing psychosocial needs and building resilience is the first stage in increasing women’s capacity to access the services they required (housing, benefits, children's services) to address practical barriers to resettlement in the community.
In common with the One Service (Peterborough Prison) and Routes out of Prison, Going Home uses peer advisors to support ex-offenders.
Whole family approach
The case studies also provide examples of projects which take a ‘whole family approach’ to reducing reoffending: Invisible Walls Wales (in Parc Prison) and Fathers Affected By Imprisonment (Addiewell Prison) These projects focus on rebuilding family ties to aid re-integration of fathers into their family and
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community. Families can play a significant role in supporting an offender to make and sustain those changes which reduce reoffending but ‘whole family’ approaches also recognise that families and children in particular are the hidden victims of imprisonment.
• Offenders’ families often have complex needs and that children of offenders risk poorer outcomes than their peers.
• There is often a high level of intergenerational offending – 65% of boys who have a father in prison will go on to offend themselves.
The ‘whole family approach’ therefore seeks to reduce reoffending but also to mitigate the harm to children and families and in some cases address
intergenerational offending.
Projects adopting this approach work with ex-offenders and their families to develop skills and strategies to improve parenting practices and family
relationships, but also support families within their local communities to access services which can address their needs.
Invisible Walls Wales
The Invisible Walls project has ambitious aims for ex-offenders, but also for the families and children of ex-offenders. It has as its primary aims:
• to reduce reoffending;
• to improve the quality of life and positive community inclusion for whole families; and
• to reduce intergenerational offending with the child participants.
The project is unique in that it works with both the offender and the family
throughout the entire period of the intervention. The project provides support and interventions to both the prisoner and family for up to 12 months pre-release and six months post release.
In the pre-release phase, families come into the prison and the interventions are delivered to the whole family. The family develops a family focused action plan, and the prisoner and the family are therefore working towards the same goals and objectives. The project also works with the family in the community to assist them to access the services they need.
Families Affected by Imprisonment (FABI)
This project works with fathers who are in prison and their families. The approach aims to develop a non-criminal identity for the ex-offender and works to support him to develop his role and identity as a better father and partner. At the
practical level, the project supports the offender to rebuild family ties and supports the offender and family to develop skills and strategies to improve both their parenting practices and their capacity to deal with everyday life. The project also provides practical support to both the offender and the family pre-release and post release to engage with the range of services that they require in order to
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address their wider needs. As a result, the project delivers outcomes for the families and children as well as the ex-offender.
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Outcomes and measuring success
What outcomes are the projects aiming to achieve?
The case study projects demonstrate the wide variety of approaches to working with different groups of ex-offenders. The approaches reflect different ‘theories of change’ and address different factors associated with reoffending. While all of the projects seek to contribute to a reduction in reoffending, only a few of the
projects have identified ‘a reduction in reoffending rates’ as a primary outcome.
The majority of projects use a number of ‘intermediate outcomes’ as measures of success. This section explores the type of outcome that case study projects are aiming to achieve. A full list of the anticipated outcomes for each project is included in Appendix 2.
‘Reduction in reoffending rates’ as a measure of success
The One Service (Peterborough Social Impact Bond) provides a holistic approach to reducing reoffending and measures success against a single outcome: a
reduction in reoffending rates.
Invisible Walls Wales also uses a reduction in reoffending as a key measure of success, (although Invisible Walls Wales also delivers outcomes for children and families as well as ex-offenders)
Routes out of Prison and Positive Tracks identify ‘reduction in reconviction rates’
as a key outcome alongside a number of intermediate outcomes.
Intermediate outcomes for ex-offenders
While each of the case study projects seek to contribute to a reduction in
reoffending rates, the different approaches focus on different factors associated with reoffending and represent different routes in the pathway towards
desistance. The different approaches focus on delivering different changes in the ex-offender (or outcomes) and as a result, different approaches also deliver different intermediate outcomes.
The projects which seek to address unemployment of ex-offenders as key risk to reoffending (Roots and Shoots Workstyle Project and Transitions to Employment) are measuring outcomes such as:
• To improve self-confidence amongst participants and remove the perceived barriers to employment.
• Increasing confidence and skills to engage with job seeking services.
• Improving employability skills by acquiring work-related skills.
• Progression into employment, training and education.
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The SPAN (Supporting Prisoners Advice Network) project which aims to address homelessness among prisoners and their families has as a key outcome:
• Ex-offenders and their families will be enabled to find and keep appropriate housing.
Positive Tracks and Ordinary Homes, Extraordinary Lives address homelessness and also aim to build social capital and employability of ex-offenders. These projects include among their outcomes:
• To be provided with stable accommodation in an Adult Placement setting, and supported to develop independent living skills.
• To develop increased self-esteem and improved personal responsibility through the development of home and community relationships.
• To increase the number of ex offenders with learning support needs maintaining a successful tenancy.
• To increase the number of of ex offenders with learning learning support needs that have a postive relationship with their friends and families.
• To increase the number of ex-offenders with learning support needs that are in touch with job seeking services.
Another group of projects, including The Transitional Support Programme, ADJUST, Going Home, have a greater focus on addressing the less tangible issues which contribute toward offending behaviour. These include lack of basic life skills, lack of prosocial thinking skills, poor emotion management, attitudes and motivation.
The outcomes for these projects include:
• To improve self-esteem, self-confidence, motivation and lifeskills.
• Ex-offenders are better able to meet life challenges and transitions.
• Ex-offenders are volunteering and contributing to their communities.
• To develop coping strategies in dealing with their high risk behaviours and managing negative peer and community.
• To develop more positive attitudes and behaviours, building resilience and preventing relapses.
• Young people with strengthened employability skills and increased numbers accessing learning, training or employment.
• More young people have access to continuous, positive supportive relationships
• Improved young people’s confidence towards independent living.
Outcomes for children and families of ex-offenders
Other projects within the case studies operate from a ‘whole family approach’.
These approaches seek to reduce reoffending, but also seek to mitigate the harm caused to children and families by imprisonment. These projects therefore also seek to deliver direct outcomes for children and for families of ex-offenders.
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Outcomes for Invisible Walls Wales included:
• Increase the quality of life and positive community inclusion for whole families.
• Impact positively upon the issues relating to intergenerational offending with the child participants.
For the ‘Families Affected by Imprisonment’ project the overarching project outcome is:
• Children and families affected by imprisonment have improved relationships and increased resilience.
How are projects measuring progress toward their outcomes?
The previous section highlights the fact that while each of the case study projects seeks to contribute to a reduction in re-offending, ‘reducing reoffending’ is not the primary measure of success for the majority of projects. Most projects have identified a number of ‘intermediate outcomes’ which are recognised as
contributing toward a reduction in reoffending, and it is these outcomes that the majority of projects are measuring. This section explores the mechanisms for measuring progress toward outcomes.
Self Evaluation: Measuring intermediate outcomes
The majority of projects are measuring progress toward intermediate outcomes which contribute towards a reduction in re-offending reoffending.
All of the projects use self-evaluation techniques to measure intermediate
outcomes, in fact self–evaluation is mandatory for many of the projects funded by the Fund. e.g. the eight projects funded by the Fund in Scotland under the
Investing In Communities programme.
The case study projects have identified a number different of intermediate outcomes which reflect the different approaches and theories of change which they adopt. A full list of all of the outcomes that projects are measuring is attached at Appendix 2.
The list of outcomes includes both hard and soft outcomes. In general, the hard outcomes are relatively easy to measure (for example, the number of people progressing into employment, education and training).
Some of the soft outcomes are also easily measured through the development of indicators e.g. Increasing confidence and skills to engage with job seeking services can be evidenced by counting the number of participants who access services.
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For those projects which focus on addressing the less tangible issues which contribute toward offending behaviour (lack of basic life skills, lack of prosocial thinking skills, low motivation, attitudinal problems, dysfunctional relationships), the outcomes can be more difficult to evidence.
A selection of the 'intangible' outcomes cited by the case study projects include:
• to improve self-esteem, self-confidence, motivation and lifeskills;
• to develop independent living skills;
• to develop coping strategies in dealing with their high risk behaviour;
• to develop more positive attitudes and behaviours, building resilience and preventing relapses;
• to develop postive relationship with their friends and families; and
• children and families affected by imprisonment have improved relationships and increased resilience.
Projects are using a range assessment tools to identify the needs of participants and to establish a ‘baseline’ in relation to measuring progress. These assessments inform the development of personal action plans for each participant and progress toward personal goals then provides a measure of 'distance travelled' for each client.
While these measurement systems are effective in measuring distance travelled toward the ‘intermediate outcomes’ for each individual client, they pose
challenges in demonstrating impact at the project level. Personal actions plans identify the priorities and goals for each individual, and while measurement can show the extent to which each individual has moved toward their own goals, (the starting point and the progress for each client will be different) it can be difficult to use these systems to measure the cumulative impact project. Some projects are using tools such as the Outcome Star and the Homes Matrix which attempt to provide an objective measure of change and distance travelled so that they can better show the impact of their work at the project level.
External evaluation
A number of the projects have also commissioned external evaluation. External evaluation is being used for a range of purposes:
• to verify outcomes; and
• processes evaluations to identify 'how' and 'why' projects deliver outcomes.
Measuring reductions in reoffending rates
The literature highlights the difficulties for projects in demonstrating robust
evidence of their impact on reducing re-offending rates. This section describes the role of external evaluation in verifying demonstrating outcomes.
The One Service is funded by a unique payment by results model which requires verification of its impact on reducing reoffending rates.
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The One Service is funded by social investment raised through a Social Impact Bond (Peterborough Social Impact Bond). A Social Impact Bond (SIB) is a unique approach to improving social outcomes by incentivising non-government investors to invest in programmes that deliver social outcomes. Governments commit to repay investors for improved social outcomes. The Fund is a co-commissioner of outcomes for the Peterborough SIB.
The aim of the Peterborough SIB is to reduce the reconviction rates of short- sentence male prisoners leaving HMP Peterborough. Social investors will then be paid based on the observed improvement of reconviction events of the released prisoners.
The financial model described above relies on statistical measurement techniques as the basis of the payment mechanism. The payment mechanism is designed to ensure that the commissioners pay investors when an observable change in reconvictions has occurred.
To provide robust evidence which will inform the financial model, the Government has commissioned an independent assessor who will be responsible for developing the statistical measurement techniques and carrying out an independent
evaluation of the outcomes of the One Service. The measurement technique involves comparing the reconviction rates of all prisoners released from
Peterborough Prison with a matched control group of prisoners from other prisons in the UK. The first results will not be available until Year four.
Routes out of Prison aimed to achieve a 2%-5% reduction in the return to custody rates of RooP participants over the course of the project. The external evaluation3 highlighted the methodological problems in producing a robust measure for this outcome. However, using data collected on the SPS database to analyse return to custody rates for clients who engaged at least once in the community and those who did not engage at all, the evaluation showed a 4% reduction in return to custody rates for those who had engaged in the project.
Invisible Walls also seeks to measure the reduction in offender participants
returning to crime and imprisonment post release. The outcome will be measured through tracking of individual participants through an external evaluation.
Process Evaluation
The Invisible Walls project is using external evaluation both to identify the impact against the high level outcomes, but also explore the process and contribution which different elements of the project make to the achievement of final outcomes.
3 Evaluation of Routes out of Prison, Criminal Justice Social Work Development Centre for Scotland, University of Edinburgh, 2011
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The high-level outcomes that the project seeks to deliver are:
• Reduce the likelihood of offender participants returning to crime and imprisonment post release.
• Increase the quality of life and positive community inclusion for whole families.
• Impact positively upon the issues relating to intergenerational offending with the child participants.
The external research will therefore identify the impact of the project on ex- offenders, on their families and on their children, and explore the extent to which intermediate outcomes influence the achievement of final outcomes. As a result, this evaluation will also inform research on ‘what works’ in offender rehabilitation.
It is also anticipated that the research will provide further evidence of the cost saving which can result from this type of preventative approach.
This chapter highlights the range of approaches that case study projects have developed to tackle reoffending. While all of the projects seek to contribute to a reduction in reoffending, the different approaches focus on addressing different factors associated with reoffending, and therefore deliver a range of different intermediate outcomes.
While a small number of projects have commissioned external evaluations to demonstrate their impact on 'reduction in re-offending rates', the majority of projects are using self evaluation techniques to demonstrate achievement of these intermediate outcomes.
While self evaluation techniques are effective in demonstrating 'individual'
journeys and achievement of outcomes, the process of measuring success against the achievement of intermediate outcomes presents some challenges for funders as the extent to which these outcomes contribute towards reducing reoffending is not always clear.
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Learning from projects working with ex-offenders
This study is not an evaluation but an overview of twelve different projects which take different approaches to a range of different client groups. As such, it cannot provide an assessment of the efficacy of different approaches or a definitive assessment of 'what works'.
The purpose of this section is to highlight some of the critical success factors and the challenges in working with ex-offenders, as identified by the case study projects.
What ‘works’ when providing support to different groups of ex-offenders?
While the case study project demonstrate a range of different approaches and work with different client groups, there are a number of universal lessons which be drawn from their collective experiences.
Trust based relationships
The majority of projects identified a critical success factor in engaging ex- offenders in services was the development of a trust based relationship.
Continuity of the relationship
In many cases, projects also identified continuity of the relationship to be a
critical success factor. Many projects engage with offenders while they are still in prison to start to build a relationship with the offender. A number of projects have taken steps to extend the period or intensity of engagement pre-release to
develop the relationship.
The strength of the relationship is considered to be critical sustaining engagement with the ex-offender in their community to access the services required to address their needs
Meet at the gate
Many of the projects have identified that the point of release can be a vulnerable time for ex-offenders and one which can result in immediate falling back into old lifestyles (drug, alcohol or peer groups). A number of projects have incorporated
‘meet at the gate’ services which assist ex-offenders to access services to meet their immediate needs (e.g. accommodation), and to prevent the triggers which could result in relapses into offending behaviour.
Belief in capacity to change
Research shows that institutionalisation among recidivist prisoners leads to hopelessness and fatalism about their ability to change. The case study projects
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identified a number of factors which were critical to addressing offenders' belief in their own capacity to change:
• it is important that the projects themselves have a strong ethos and belief in the capacity of ex-offenders to change;
• approaches which motivate and support ex-offenders to want to change;
• approaches which support the offender's personal agency;
• approaches which focus on the development of a new non-criminal identity, e.g. approaches which build on the identity of the participant as a ‘father’
rather than as an ‘ex-offender’.
The need for flexibility
Ex-offenders have a range of issues and needs and a 'one size fits all' approach is unlikely to be successful. Projects need to be able to respond flexibly to needs.
Additionally, the client ‘journey’ towards rehabilitation is unlikely to be linear.
The project model must be flexible enough to allow levels of support to be
‘stepped up’ during times of crisis.
Responsive to individual need
Projects identified that the capacity of ex-offenders to address practical issues was often dependent on addressing complex underlying issues. Approaches which take a 'whole person' approach and provide practical support (such as housing, employment, financial and other practical needs ) which is integrated with
support to address the social and personal factors which contribute to reoffending appear more likely to be successful in the longer term.
‘Joining up’ services around the needs of ex-offenders
Partnership working and collaboration between providers is crucial in ensuring that services are joined-up and that offenders receive an integrated pathway towards rehabilitation. Projects which are involved in effective strategic partnerships and/or have strong operational links with agencies at the local level have shown that they can increase ex-offenders access to services and ‘join-up’ services to address their complex issues.
Use of peer advisors
A number of projects employed peers advisors to provide advice and support ex- offenders. Peer advisors bring empathy and tenacity in their approach to working with ex-offenders and are trusted by ex-offenders. Peer endorsement also provides greater credibility for the project. The approach also provides training
opportunities for the peer advisors which enhances their own employability.
The key lessons identified by the case study projects are reflected in the research on approaches to reoffending. The research also re-iterates the point that while different approaches focus on different factors which contribute towards
reoffending, the over-riding success factor is that approaches must be integrated to ensure that ex-offenders can access a ‘joined-up’ pathway of support which addresses their personal, social and circumstantial needs.
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What are the key challenges when providing support to different groups of ex-offenders?
The case study projects identified a number of challenges which act as barriers to delivering outcomes for ex-offenders.
Lack of hope
A key challenge in working with persistent offenders is that many have lost hope and belief in themselves and their capacity to change.
Recognising progress
A challenge for the projects that address the more intangible issues (confidence, self-esteem, attitude change) is that it is often difficult for clients to recognise the 'steps' they have taken. Equally, it can be difficult to evidence progress in these outcomes to funders.
Challenge of maintaining engagement with ex-offenders within the community While throughcare approaches which provide a bridge from prison into the
community have recognised strengths, it can be challenging to maintain
engagement with ex-offenders in the community. A number of case study projects identified that many ex-offenders engage until their practical needs have been met, but do not maintain engagement through the longer term process of behaviour change.
The case study projects also identified a number of challenges in the external environment which impact on the capacity to deliver outcomes for ex-offenders.
Gaps in services for ex-offenders
Projects reported that there were often gaps in local services (for example, the availability of suitable housing) which acted as barriers to successful rehabilitation into the community.
Responsiveness of other services
Projects reported that some local services were unable or unwilling to respond with timescales which were often critical for ex-offenders (for example, at the point of release). Inability to access key services at these critical stages can create trigger points for ex-offenders which can push them towards crises and possibly result in reoffending.
Beliefs and values
Projects also reported that negative attitudes towards engaging with ex-offenders among other professionals and negative beliefs about the capacity of individuals to change often resulted in poor levels of service to ex-offenders. .
Economic climate
For those projects which aim to support ex-offenders into jobs, the worsening economic climate has reduced the supply of employment opportunities, which
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makes it even more difficult for ex-offenders, many of whom have a range of barriers, to achieve job outcomes.
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Working towards a better understanding of impact
The case studies highlight considerable diversity in approaches to working with ex- offenders by projects funded by the Fund across the UK. The case studies have also highlighted the different ‘theories of change’ that underpin these different
approaches. We have also seen that while some of the projects have the primary outcome of 'reducing reoffending rates' other projects deliver aim to deliver a range of intermediate outcomes which are predicted to contribute to reducing reoffending. As a result, although projects are self-evaluating, they are
demonstrating progress against a range of different outcomes which makes it difficult for funders to assess the impact on reducing reoffending, to compare approaches and to learn about what works. The Fund has therefore also asked us to consider the development of a model evaluation framework for projects working with ex-offenders which would enable more effective measurement of impact and learning. This final chapter of the report makes some suggestions which could inform the development of such a framework.
The challenges
There are significant challenges in measuring the impact of approaches to reoffending. Some of the key challenges are:
Methodological problems
The vast majority of funded projects operate at a relatively small scale. It is difficult to carry out robust quantitative evaluation of small projects to show their impact on reoffending as robust methodologies (for example, Randomised Control Trials) require large numbers of service users and non-users.
Attribution
As projects frequently deliver activities which form part of a wider approach to tackling reoffending, it can be difficult to attribute a reduction in reoffending to a particular intervention.
Measuring progress – the relationship between the achievement of intermediate outcomes and desistance
Different approaches operate from distinct ‘theories of change’. They address different elements in the pathway towards desistance and deliver different intermediate outcomes. Intermediate outcomes are diverse – some are hard outcomes such as employment, others are soft outcomes such as improving relationships. However, even when projects are successful in achieving
intermediate outcomes, the relationship between the intermediate outcomes and desistance is not always clear and not always measureable.
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Informing the development of a framework
Despite the recognised difficulties in measuring the impact of activities aimed at reducing reoffending, there is a growing body of evidence based about ‘what works’ which demonstrates that certain intermediate outcomes are strongly
correlated to longer term reductions in reoffending. This evidence is being used to develop frameworks which are being used by commissioners to fund interventions which provide a clear link with the intermediate outcomes, and which will, in the longer term influence reoffending.
In Scotland, such a framework4 has been developed to support the Scottish Government’s Reducing Reoffending Programme.
The Reducing Reoffending Change Fund is one of three change funds created by the Scottish Government to help drive a decisive shift towards preventative spending. It aims to reduce reoffending by providing offenders with substantial one-to-one support through evidence-based mentoring schemes.
To support phase two of the Reducing Reoffending Programme, Scottish
Government analysts have reviewed evidence on the effectiveness of different approaches to reduce reoffending5.
The Change Fund has used the evidence to identify the characteristics of
mentoring schemes that are most likely to be effective in reducing offending. This will enable the fund to ensure that it is supporting mentoring interventions rooted in high-quality evidence of what can work.
The framework identifies ten factors which are linked to the risk of reoffending and the intermediate outcomes associated with addressing these factors. It also recommends approaches that have been proven to work in addressing these
factors, and highlights some approaches which have been identified as ‘promising, but where more evidence is needed’. It should be noted that these ‘promising’
approaches relate only to mentoring, as this particular framework was been developed to inform the Reducing Reoffending Change Fund which will fund mentoring approaches.
An excerpt of the framework is included below. (Source: Scottish Government, Reducing Reoffending Change Fund – Updated Guidance for Years 2 and 3 Guidance)
4 Reducing Reoffending Change Fund – Updated Guidance for Years 2 and 3. The Scottish Government, 2012 http://www.scotland.gov.uk/Resource/0040/00406959.pdf
5 What works to reduce reoffending: a summary of the evidence, Scottish Government, October 2011. http://scotland.gov.uk/Resource/0038/00385880.pdf
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Risks to reoffending
(evidence-based) Desired Intermediate outcomes Approaches that work to
address the risk Promising approaches but more
evidence needed Limited social skills,
problem-solving skills and poor emotion management
Skills in problem solving and perspective taking
Emotion management skills
Structured CBT programmes such as cognitive skills training Restorative Justice Conferencing
No evidence identified but trained mentors could help offenders engage in CBT programmes
Criminal attitudes Development of prosocial attitudes
and a non-criminal identity Structured CBT programmes such as cognitive skills training and cognitive restructuring
techniques
Prosocial modelling, positive mentor and staff interactions Mentors challenge anti-social attitudes
Criminal friends Criminal friends replaced by
prosocial friends and associates More evidence needed Mentoring, circles of support and accountability (for sex offenders)
Lack of positive recreation or leisure activities /anti- social lifestyle
Participation in prosocial
recreational activities, sense of reward from prosocial recreation and sustained involvement in prosocial lifestyle
More evidence needed No evidence identified but mentors could aim to engage offenders in prosocial
activities
Drug misuse Substance use reduced or stopped CBT behavioural programmes designed for drug dependant offenders
Detoxification, opiate substitution therapy (for acquisitive opiate-addicted offenders), psycho-social support to maintain
No evidence identified but mentors could help offenders engage with drug programmes
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abstinence, 12 step programmes, structured therapeutic communities focusing on substance misuse Alcohol misuse Reduced alcohol use or stopped
drinking,
reduced disturbances promoted by drinking
More evidence needed Mentors could help offenders engage with ‘promising’
programmes which address the interaction between alcohol and violence Dysfunctional family
relationships Conflict reduced, positive
relationships, enhanced warmth and caring; reintegration into (non criminal) social and family groups Strengthened family ties improving family and intimate relationships, improving parenting behaviours and increasing acceptance into
communities and social networks
Therapeutic approaches for young adult offenders that involve the family
No evidence identified but mentors could help young offenders engage with therapeutic approaches.
Mentors could also help offenders engage in
‘promising’ approaches, namely relationship coaching interventions and they could also facilitate family visits to prison.
Unemployment Work skills, good interpersonal relationships at work, reward and satisfaction at work
Long term employment and increased employment skills
Employment-focussed programmes in which
offenders can secure real jobs they enjoy.
Gaining work related qualifications, gaining employability skills Work related mentoring Homelessness Finding and keeping suitable
housing More evidence needed No evidence identified but
mentors could assist homeless offenders to find homes and retain them.
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Low motivation and/or
self-efficacy Offenders are highly motivated to engage with supervisors and interventions and offenders are confident they have the skills to desist from crime
Offenders build positive trusting relationships with skilled, empathetic and flexible mentors;
Collaborative goal-setting
No evidence identified
