PCD 1536 Prison Violence Reduction Strategy Pilot Programme

PCD 1536 Prison Violence Reduction Strategy Pilot Programme

The pan-London Prison Violence Reduction Strategy, which was agreed with partners at the London Crime Reduction Board in July, seeks to reduce violence in prison and in the community following release by addressing the key factors and individuals linked to violence. The strategy targets three priority areas: Information Sharing; Custodial Considerations; and Commissioned Interventions.  

Violence reduction interventions will be commissioned in three pilot prisons: HMP Feltham B, HMP Pentonville, and HMP Wandsworth. These prisons were identified as having some of the highest levels of violence across the country, and all are in a position to deliver new violence reduction interventions. Effectively tackling violence in prison can significantly reduce an individual’s propensity to commit violence after release, making communities safer and reducing the likelihood of serious further offending by prison-leavers.  

This decision seeks approval to begin the procurement of violence reduction interventions in three phases.  

Total funding of £2,175,000 is proposed to commission violence reduction interventions across the three pilot prison sites between March 2024 and March 2026. A further £75,000 will be used to fund the Prison Violence Reduction Co-ordinator from March 2025 to March 2026, with £300,000 being used to evaluate all aspects of the strategy. 

The Deputy Mayor for Policing and Crime is recommended to:  

1. Approve the commencement of a procurement process to commission violence reduction interventions across three London prisons at a total cost of £2,175,000 for 2 years from March 2024 to March 2026. 

2. As part of the same work programme, to approve funding of £75,000 to be used for the Prison Violence Reduction Co-ordinator role until March 2026, with £300,000 set aside to evaluate all aspects of the strategy. 

3. Approve the carry forward of up to £800,000 from the Violence Reduction in Prisons budget line, with up to £282,000 being allocated to 2024/25 and up to £518,000 being allocated to 2025/26. 

4. It is recommended that the Chief Finance Officer is granted delegated authority, to award contracts following procurement and for signing future documents in relation to this decision, including contracts and variations. Approval of this decision remains with DMPC as per MOPAC’s Scheme of Delegation. 

PART I - NON-CONFIDENTIAL FACTS AND ADVICE TO THE DMPC 

1. Introduction and background  

2. The Prison Violence Reduction Strategy was created between MOPAC and the London Prison Group, in consultation with other CJS partners including the MPS, Probation and Local Authorities. It was written in response to the London Police and Crime Plan for 2022-2025, which emphasises reducing and preventing violence as one of the key priorities. The Strategy has been informed by evidence that violence in London prisons has been increasing year-on-year, published National Statistics on violence in prisons showed in the 12 months to June 2022, assault incidents increased by 12%. Evidence shows that the vast majority of high-risk violent offenders in London spend time in custody as part of their sentence. Despite this, there are limited interventions in custody that focus on reducing risk of violence before release. This Strategy aims to reduce the levels of repeat violent offending perpetrated by prison-leavers in the community by introducing additional violence reduction services in prisons and through the gate.   

3. The Pan-London Prison Violence Reduction Strategy is aligned with the recommendations of the Casey Review in its support of improved information sharing protocols. The strategy highlights where sharing information collated by the Metropolitan Police Service can improve multi-agency management of individuals at risk of perpetrating violent harm, including those at risk of perpetrating violence towards women and girls. Specialist, culturally competent support for young adults and ethnic groups disproportionately represented in the CJS will also be commissioned as part of this multi-agency approach. 

4. The Strategy seeks to reduce violence in prison and on release by targeting three priority areas: Information Sharing; Custodial Considerations; and Commissioned Interventions. The commissioned interventions will be rolled out across three pilot sites: HMP Feltham B, HMP Pentonville, and HMP Wandsworth. These prisons were identified as having some of the highest levels of violence across the country, and all are in a position to deliver new violence reduction interventions. The three pilot sites hold a total of approximately 3,260 prisoners at any given time, around 29% of the 11,200 prisoners across London. 

5. Analysing a combination of the Pan-London Prison Violence Reduction Needs Analysis’ conclusions, alongside feedback from regular Commissioning Working Groups and consultations with staff and prisoners in the prison pilot sites, intervention provision in each site was assessed, and several gaps were identified. These are: 

• Conflict resolution and mediation services 

• Mentoring, both peer to peer and through the gate into the community 

• Psychologically informed interventions to address impulsivity, trauma, positive identity and self-worth 

• Gang exit programmes 

• Targeted support for the high number of remand prisoners 

5. These interventions will be supported by a rigorous evaluation that will measure impact on levels of violence in custody and on return to the community.  

6. Issues for consideration 

7. This decision seeks approval to commission three new violence reduction interventions across three prison pilot sites from March 2024 to March 2026. 

8. MOPAC will commission these interventions in close collaboration with staff from each pilot prison and other key stakeholders, including HM Prisons and Probation Service (HMPPS) and NHSE. 

9. The proposal is to embed a thorough evaluation from the beginning, delivered by MOPAC’s Evaluation and Insights team. Further funding has been provisionally allocated to commissioning an external, academic evaluation of services, that focuses on wider systems and culture change. 

10. This work will target evidence-based, trauma-informed interventions at offenders who pose the highest risk of violent reoffending after release. There will be components delivered through the gate, to ensure that changes are implemented and measurable in the community. Interventions would prioritise high risk of violence offenders, covering two specific cohort of London offenders, serious youth violence and adults with a high risk of persistent violent offending (the IOM cohort). Specialist interventions for young adults from ethnically diverse communities and young offenders will also be included.   

11. The proposal is to implement a phased rollout of services to the three pilot sites, detailed below: 

Phase 1 - 24 Months 

Specialised Support in Custody – All Sites 

This intervention seeks to reduce violence in prison perpetrated specifically by young adults, minoritised individuals, care experienced individuals, and those affiliated with gangs. It will aim to increase prosocial behaviour and build emotional resilience, reduce violent harm associated with exploitation, debt and gang conflicts, and offer alternative options to violence. Prison-based services will work to identify and support individuals to engage with community-based support after they leave prison to effectively manage prisoners’ risks upon reintegration to the community. This service will: 

• Identify and support those vulnerable to exploitation, debt and gang-related violence 

• Offer mediation and conflict resolution services to proactively reduce conflicts between those affiliated with gangs 

• Train peer to peer violence-reduction mentors 

• Provide opportunities for more purposeful activity 

• Increase access to rehabilitative interventions  

The funding for these services will consist of £1,425,000, included in the MOPAC medium term financial plan 2024/25 - 2025/26.  

Phase 2 - 21 Months 

Remand Service – HMP Pentonville and HMP Wandsworth 

Evidence shows that there is a need for greater support for those on remand, particularly for individuals who are sentenced to time-served or are acquitted, and therefore released to the community straight from court. This is a particularly acute issue at present; the Courts backlog has added to increasing prison population pressures and has resulted in many individuals remaining on remand for long periods of time before being released straight into the community, without the necessary support. Providing support in this area will aim to increase prosocial behaviours and alleviate frustrations relating to the uncertainty of release.  

This service will reduce violence after release to the community by:  

• Improving preparedness for release whilst in custody 

• Providing bespoke and practical support for remand prisoners, beginning at entry to custody 

• Offering through the gate mentoring to support transition into the community, particularly for those likely to be released straight from court 

Transition from prison to the community can be a high-risk time for violence and reoffending, particularly when an individual is unsupported. The unpredictable nature of remand often means that pre-release work is not completed prior to a prisoner’s immediate release from court. This leaves individuals in limbo as they exit prison, often with no accommodation or employment to return to, both of which are evidenced protective factors for reducing reoffending. Better supporting individuals through this transition is expected to reduce violence and reoffending. 

The funding for these services will consist of £600,000, included in the MOPAC medium term financial plan 2024/25 - 2025-22. 

Phase 3 - 18 Months 

Psychologically Informed Interventions – HMP Feltham B 

Based on a review of available evidence, future-focused CBT-based programmes that teach skills to change behaviours have been evidenced as effective at reducing violent behaviour. This intensive intervention will work with the young adults disproportionately responsible for inciting violence in prison, including minoritised individuals, care experienced individuals, and those affiliated with gangs. The intervention will reduce violence in prison and on release to the community by: 

• Addressing trauma, emotional resilience and self-worth 

• Working alongside and signposting to healthcare providers where necessary 

• Using techniques to teach impulse control and anger management 

• Building resilience and hope for an alternative lifestyle, free from violence 

• Being culturally competent and relatable to the individuals taking part 

The funding for this intervention will consist of £150,000, included in the MOPAC medium term financial plan 2024/25 - 2025-22. 

3. Financial Comments  

4. This decision seeks approval to commission three new services to support prison violence reduction work across London at a total cost of £2,175,000 for the two-year period 2024/25 - 2025/26.  

5. The table below sets out the costs and how these will be funded, however, the allocation of funding between different phases may be amended as commissioning plans are finalised.  

6. As part of the decision, approval is being sought to carry forward funds of £800,000 from the 2023/24 Violence Reduction in Prisons budget line, with up to £282,000 being allocated to 2024/25 and up to £518,000 being allocated to 2025/26. The remainder will be met from core budget. 

Proposed costs and funding 

4. The interventions funding will provide a two-year pilot of sufficient scale to have a measurable impact on violence reduction. This will be crucial to support an effective evaluation of the whole Prison Violence Reduction Strategy and build a strong case for lasting systems change and HMPPS investment in violence reduction interventions in the future. 

4. Legal Comments  

1. The Crime and Disorder Act 1998 at sections 17(1) (a) to (c) places MOPAC under a duty to exercise  its  functions  with  due  regard  to  the  likely  effect  of  the  exercise  of  those  functions on, and the need to do all it can to prevent, crime and disorder (including anti-social and other behaviour adversely affecting the local environment), reoffending in its area, and the misuse of drugs, alcohol and other substances in its area. These proposed commissioning arrangements are consistent with MOPAC’s duties in the Crime and Disorder Act 1998.Section 143 (1) of the Anti-social Behaviour, Crime and Policing Act 2014 provides an express power for MOPAC, as a local policing body, to provide or arrange for the provision of (a) services that in the opinion of the local policing body will secure, or contribute to securing, crime and disorder reduction in the body's area and (b) services “intended by the local policing body to help victims or witnesses of, or other persons affected by, offences and anti-social behaviour.”  

2. Paragraph 4.8 of the MOPAC Scheme of Delegation and Consent provides that the Deputy Mayor for Policing and Crime (DMPC) has delegated authority to approve business cases for revenue or capital expenditure of £500,000 or above. The release of funding in accordance with the proposals set out in this decision form is accordingly to be approved by the DMPC. The delegation of responsibility for the finalisation of planning and contractual/grant arrangements, including relevant terms and the signing of agreements, to the Chief Financial Officer, is in accordance with the general power of delegation in paragraph 1.7, and more specifically paragraphs 5.4, 5.12 and 5.13.   

3. Officers must ensure that the arrangements comply with the Financial Regulations and the Contracts Regulations.  

4. The Mayor's Office for Policing Crime is a contracting authority as defined in the Public Contracts Regulations 2015 ("the Regulations"). All awards of public contracts for goods and/or services valued at £181,302 or above will be procured in accordance with the Regulations 

5. Commercial Issues 

6. MOPAC will be the lead commissioner for this competitive procurement process and contracts will be awarded in line with Procurement Contract Regulations 2015 (PCR2015). The process and the procurement strategy for these new interventions was approved at Procurement, Grants and Contracts Oversight Board on 19/09/23. 

7. This procurement will take account and comply with the GLA Group’s Responsible Procurement (RP) Policy. 

8. Public Health Approach 

9. The provision of psychologically informed interventions to reduce triggers for offending and violence, is entirely consistent with a public health approach to violence reduction. The role of trauma in repeat offending and violence is well established, and the provision of services to address this need include a substantial evidence base. 

2. Specialised services for that use dedicated support and lived experience to increase the motivation to change in persistent offenders, thus reducing their risk of violence, is also part of a public health approach.  

3. Details of this approach have been shared with the Violence Reduction Unit and GLA Public Health colleagues. 

7. GDPR and Data Privacy 

1. For the new services MOPAC and HMPPS will be joint Data Controllers. 

2. An application to the National Research Committee (NRC) to enable effective data sharing and evaluation of services is underway, and an evaluation of this Strategy will not take place without prior approval from the NRC. 

3. A Data Protection Impact Assessment (DPIA) will be produced to identify and minimise risks to data subjects. This document will also reflect evaluation plans for these interventions to ensure that sufficient data is available to enable this. 

4. All providers funded by MOPAC are required to comply with the GDPR and Data Protection Act 2018. 

8. Equality Comments 

1. MOPAC is required to comply with the public sector equality duty set out in section 149(1) of the Equality Act 2010. This requires MOPAC to have due regard to the need to eliminate discrimination, advance equality of opportunity and foster good relations by reference to people with protected characteristics. The protected characteristics are: age, disability, gender reassignment, marriage and civil partnership, pregnancy and maternity, race, religion or belief, sex and sexual orientation. 

2. The proposed provision will address existing disparities and (often hidden) disabilities, with a proactive approach to reducing social disadvantages and fostering positive health and personal outcomes. Culturally sensitive and inclusive interventions will be at the core of these service, ensuring full access and engagement to service users who have previously faced barriers while trying to access mainstream support services.  

3. The services will prioritise prolifically violent prisoners, predominantly those aged 18-25. Special attention will be given to the disproportionately high proportion of individuals from ethnically diverse communities who prolifically commit violence, to ensure services meet the unique requirements of this diverse group. The ultimate goal of the services is to create an environment where the service users feel understood, respected, and empowered to change their own behaviour.  

4. These services, which have been developed in collaboration with colleagues across the system, will also build an evidence base for the need to address disproportionality in violent offending, and test which approaches and are most effective in responding to these needs. 

5. The services will be aimed for males, with other specialist gender informed support available for women via the co-commissioned “Women in London CJS service” which includes prison-based support.  

6. These services will be designed and delivered in a manner that recognises and respects the unique challenges faced by prisoners from different backgrounds. By adopting an inclusive approach, the services will contribute to promoting diversity, breaking down barriers, and fostering a more equitable environment for all those seeking support.  

7. All services will be culturally sensitive and gendered alongside understanding neurodiversity and healthcare needs. 

9. Background/supporting papers 

None