1 Agenda Item: 7 Wolverhampton City Council OPEN EXECUTIVE INFORMATION ITEM CABINET Date 25 JULY 2012 Portfolio COUNCILLOR MATTU/ LEISURE AND COMMUNITIES Originating Service Group(s) OFFICE OF THE CHIEF EXECUTIVE Contact Officer(s)/ KAREN SAMUELS Key Decision: No Telephone Number(s) 551341 Forward Plan: No Title/Subject Matter HOME OFFICE ENDING GANG AND YOUTH VIOLENCE PEER REVIEW – FINAL REPORT 1.0 RECOMMENDATIONS That the content of the report and findings of the Home Office Ending Gang and Youth Violence Peer Review conducted in April 2012 and proposals for implementation be noted.
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Wolverhampton City Council OPEN EXECUTIVE INFORMATION ITEM · 1 Agenda Item: 7 Wolverhampton City Council OPEN EXECUTIVE INFORMATION ITEM CABINET Date 25 JULY 2012 Portfolio COUNCILLOR
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Agenda Item: 7 Wolverhampton City Council OPEN EXECUTIVE
INFORMATION ITEM CABINET Date 25 JULY 2012 Portfolio COUNCILLOR MATTU/ LEISURE AND COMMUNITIES Originating Service Group(s) OFFICE OF THE CHIEF EXECUTIVE Contact Officer(s)/ KAREN SAMUELS Key Decision: No Telephone Number(s) 551341 Forward Plan: No Title/Subject Matter HOME OFFICE ENDING GANG AND YOUTH VIOLENCE PEER REVIEW
– FINAL REPORT
1.0 RECOMMENDATIONS
That the content of the report and findings of the Home Office Ending Gang and Youth Violence Peer Review conducted in April 2012 and proposals for implementation be noted.
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2.0 PURPOSE 2.1 To inform Cabinet of the findings of the Home Office Ending Gang and Youth Violence
(EGYV) Peer Review and proposals for implementation of the recommendations contained within it.
3.0 BACKGROUND 3.1 Background
The government strategy ‘Ending Gang and Youth Violence: A Cross- Government Report’ was launched in November 2011 outlining the Government’s commitment to tackling issues of gangs and violent youth crime, ensuring interventions from birth but specifically focussing on those aged 10-24 years. The national strategy underpins Wolverhampton’s current commitment to tackling gangs and youth violence; the objective features as a strategic priority for Safer Wolverhampton Partnership (SWP). A Reducing Gang Harm Strategic Framework for Wolverhampton, developed in 2011 builds on early work undertaken in the city and secures strategic commitment to the cross-agency coordination of the approach.
3.2 Wolverhampton is one of 29 confirmed areas included in the EGYV programme and receives a funding allocation totalling £0.252M. The programme involves being part of the Home office Peer Review process which was conducted in April 2013; Wolverhampton was the first Peer Review to be undertaken in the West Midlands and the third nationally and adopted an wholly inclusive approach to ensure the involvement of a broad range of statutory and third sector agencies and communities from across the city.
3.3 Catch 22 have confirmed that Wolverhampton is a pilot area that they will be working in for
the next 4 years, bringing additional resources and expertise in tackling the issue of gangs in the city; these resources are supplementary to existing provision and are not seen as an opportunity to reduce current commitments towards tackling this priority.
4.0 PEER REVIEW FINDINGS – SUMMARY 4.1 The Peer Review team fed back their findings to key partners at the end of the review
process; the feedback received was largely positive and highlighted the positive attitude at all levels to progress the work to reduce gang harm and the keenness of partners to contribute and highlighted some recognised areas of good practice. The final Peer Review report is attached.
4.2 A summary of recommendations is listed below: • Partners need to fully understand and work to an agreed definition of ‘gangs’ • Need to make full use of agencies who have contact with gangs, in terms of
using their intelligence, and directing delivery • Ensure effective interventions are in place to include provision for exit
pathways, mediation services and addressing the vulnerabilities of women and girls
• Strengthen safeguarding links • Development of a robust performance framework to monitor and evidence
impact • Effective community engagement
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• Consider multi-agency reviews following gang-related homicides as a vehicle for learning lessons
5.0 IMPLEMENTATION 5.1 An Implementation Plan, informed by the Problem Profile, gap analysis and Peer Review
recommendations has been developed. Lead officers have been identified to take forward key areas of work. SWP will have strategic oversight for implementation which is focussed on mainstreaming gangs delivery over the course of the year, so it becomes ‘normal business’, recognising however, that there will be a need for specialist commissioned delivery to continue.
5.2 To provide support with implementation, an allocated member of the Peer Review team
has been appointed to work with lead officers and provide expert advice and support to tackle problematic areas of delivery. There will also be opportunities to share good practice with the development of a national knowledge hub to house tried and tested methods and useful documentation from across the UK.
5.3 SWP have committed to developing an outcomes based performance framework to
evidence the impact of interventions. The Home Office knowledge hub will be used to identify systems working well elsewhere which could be revised to meet our needs locally. Decisions regarding future delivery will need to be intelligence-led and based upon strong evidence of what works. Our revised performance framework will provide a basis for capturing this evidence.
6.0 FINANCIAL IMPLICATIONS 6.1 The Home Office have granted the Council an allocation of £0.252M for 2012-13 for the
purposes of ending gang and youth violence. The grant is ring-fenced and will only be paid under certain conditions.
6.2 The Home Office funding aims to improve the partnership response to gang and youth
violence, and develop co-ordinated, multi-agency and long term solutions tailored to the needs of the city. To this end fifty per cent of the funding is to be used for commissioning delivery through the voluntary and community sector. [GE/12072012/M]
7.0 EQUAL OPPORTUNITIES IMPLICATIONS 7.1 Implementation of the EGYV programme will be focussed within some of the City’s most
deprived neighbourhoods and support some of the most vulnerable residents through targeted interventions.
8.0 LEGAL IMPLICATIONS
8.1 This report supports the duties under sections 5 and 6 of the Crime and Disorder Act 1998 for the Council and others to formulate and implement strategies to reduce crime and disorder in the area. (JH/12072012/K)
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Wolverhampton Ending Gang and Youth Violence Peer Review June 2012
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Contents
1. Executive Summary 3
2. Key Overall Strengths 4
3. Recommendations 5
4. Background to the Peer Review 6
5. Methodology 7
6. Context 8
7. Performance against the Benchmark 13
7.1 Strong Local Leadership 12
7.2 Mapping the Problem 15
7.3 Responding in Partnership 18
7.4 Assessment and Referral 19
7.5 Targeted and Effective Interventions 22
7.6 Criminal Justice – Breaking the Cycle 25
7.7 Mobilising Communities 27
8. Conclusion and Next Steps 29
9. Further Potential for Improvement Opportunities 31
10. Appendix A: Acronyms 33
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1. Executive Summary
1.1 As part of the Home Office Ending Gang and Youth Violence initiative,
29 areas were identified and subsequently invited to participate in a
programme of guided reviews. These reviews are designed to assist
them in ensuring their partnerships have effective structures and
responses in place to contribute to the shared aim of Ending Gang
and Youth Violence. These areas have been selected based on
identified levels of gang activity and serious youth violence, in
accordance with the Dying to Belong1 definition of a gang, namely:
A relatively durable, predominantly street-based group of young
people who:
1. See themselves (and are seen by others) as a discernible group;
2. Engage in a range of criminal activity and violence; (and)
3. Identify with or lay claim over territory; (or)
4. Have some form of identifying structural feature; and/or
5. Are in conflict with other similar gangs.
1.2 The Ending Gang and Youth Violence Team have worked with the
Local Government Association to develop an Ending Gang and Youth
Violence (EGYV) peer review model with an innovative community
dimension. The model has been designed to help areas assess the
robustness of their structures and processes in tackling this issue.
The review of Wolverhampton is the third area review conducted in
the programme.
1 “Dying To Belong”, Centre for Social Justice, 2009
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2. Key Overall Strengths 2.1 The following key strengths were identified:
Strong strategic recognition of EGYV with resolute and creative
vision towards the agenda.
A collaborative, partnership approach to EGYV.
An evolving governance structure with newly established dedicated
EGYV forums with the Safer Wolverhampton Partnership (SWP)
Gangs Steering Group, Wolverhampton‟s Reducing Gang Harm
Strategic Framework and the Gangs Delivery Group.
Strengths in mapping the problem of EGYV and understanding its
drivers and behaviours.
Dedicated, innovative and passionate staff with pride in
Wolverhampton and commitment to EGYV.
A commitment to building resilience in this area across the
partnership.
Contributions to evidence of effective practice at local, regional and
national levels.
2.2 The review team were struck by the vision and commitment towards
EGYV amongst staff at all levels; all were dedicated to making a
difference for the citizens of Wolverhampton. There is strong and
visionary strategic leadership across the Safer Wolverhampton
Partnership (SWP). Collaboration, innovation and willingness are all
evident. There is continued investment in EGYV and it is firmly
aligned to regeneration and other key strategic priorities.
2.3 There are dedicated EGYV governance structures in place. The
recent creation of the Safer Wolverhampton Partnership Gangs
Steering Group provides multi-agency strategic oversight and will
ensure the implementation of Wolverhampton‟s Reducing Gang Harm
Strategic Framework through the Gangs Delivery Group.
2.4 This review was carried out within a short timeframe and has focused
on the multi-agency activity led by the SWP. The representation of
agencies and the community through the peer review timetable was
wide and such a robust schedule of interviews demonstrated a real
strength of the partnership and reflected the partnership buy in to
EGYV in Wolverhampton. There is also a great deal of activity by
individual agencies in partnerships aligned with the SWP which we
did not have time to explore fully.
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2.5 Through the course of the review the team identified some areas for
potential improvement. The openness and willingness of all partners
to identify these areas as challenges and opportunities is
commendable.
This clear and genuine resolve of the partnership will equip
Wolverhampton for working towards its targets in EGYV and building
upon its identified strengths.
2.6 The headline areas for improvement include the need for a
universal, clearly defined and understood information-sharing
strategy. A unified strategy will define and shape the protocol and
process which needs to be universally agreed. There are successful
information sharing arrangements between some members of the
partnership but it is not universal and there is a wealth of data
available which, if it was formally shared across the partnership,
would improve the understanding of and help to address EGYV.
2.7 The other headline issue highlights the strong strategic vision and
oversight of EGYV. This has not, however, been communicated
across the partnership leading to misunderstanding between agencies
in regard to operational definitions of gangs. It is suggested that
further clarification and communication is undertaken throughout the
partnership to give clear definition and ownership of the aims and
objectives of the gang strategy. A strengthened and clear shared
understanding and strategy will improve frontline delivery. This will
also enable local-based agencies to share a common vision, target
commissioning and build capacity.
3. Recommendations
3.1 The SWP needs to agree the definition of „a gang‟ and communicate
this across strategic and operational partners.
3.2 Map all of the different agencies which may be in contact with violent
gang members and their families.
3.3 Agree a risk assessment framework to identify threat, risk and harm
for all EGYV partners.
3.4 Scrutinise local prevention and enforcement strategies and suggest
areas for improvement.
3.5 Agree practical action and plans to tackle gangs locally.
3.6 Links with safeguarding are essential in addressing EGYV. The SWP
to nominate a safeguarding lead in relation to the EGYV agenda.
3.7 Promote the roll-out of Multi-Agency Safeguarding Hubs (MASH).
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3.8 The SWP to further utilise the available data and intelligence from all
partners through an agreed service level agreement.
3.9 SWP should introduce a partnership-wide performance monitoring
system that robustly monitors performance against agreed EGYV
quantitative and qualitative outcome measures.
3.10 SWP needs to enhance the provision of targeted interventions at all
levels and ensure that they are systemic and evidence based with
rigorous evaluation schedules.
3.11 Develop suitable and effective alternative pathways and exits for
young people who are involved in gangs through targeted provision
and commissioning.
3.12 The SWP to effectively consult and engage with the community in
order to mobilise them and maximise their contributions. Gather
independent feedback from communities around what could be done
better.
3.13 Review and evaluate the MAST process to ensure standardised
performance.
3.14 Produce a problem profile on gang and youth violence informed by all
partner data to inform understanding of the drivers of gang and youth
violence (eg, school exclusion data).
3.15 Review the DAWES project initiatives to measure and evaluate
impact on gang and youth violence.
3.16 Establish a delivery group to aid understanding of vulnerable females
and gangs.
3.17 Agree an A&E data exchange protocol to inform the EGYV agenda.
3.18 Support the implementation of gang interrupter schemes from
America, such as effective mediation and conflict management
(details will be placed on the Knowledge Hub).
3.19 Encourage the use of multi-agency reviews after every gang homicide
to better inform the drivers of gang and youth violence and levers to
mitigate risk through a serious case review or a multi-agency Gold
Group (details will be placed on the Knowledge Hub).
4. Background to the Peer Review
4.1 The Ending Gang and Youth Violence (EGYV) peer review was
developed by the Home Office EGYV team working with the Local
Government Association with reviews by peers against benchmarks,
based upon the seven principles of EGYV.
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4.2 The peer review benchmark focuses on:
Strong Local Leadership
Mapping the Problem
Responding in Partnership
Assessment and Referral
Targeted and Effective Interventions
Criminal Justice and Breaking the Cycle
Mobilising Communities
4.3 The peer review team consisted of:
Dr Rachel England - Peer Review Manager, Youth Offending and
Youth Services Peer, Team Manager, Liverpool City Council)
Karen Williams - Home Office EGYV Core Team
Rick Jackson - Detective Chief Inspector, Serious and Organised
Crime Group, Greater Manchester Police
Alun Goode QPM - Community Safety and Integrated Gangs
Intervention Project Manager, Hackney Council
Dr Jo Lyons - Independent Peer Advisor to the Home Office EGYV
Team
Lloyd Robinson - Independent Peer Advisor to the Home Office
EGYV Team
Sheldon Thomas - Independent Peer Advisor to the Home Office
EGYV Team
Bobby Martin - Senior CARAT Worker, HMP Wandsworth
5. Methodology
5.1 The programme for the on-site phase of the review was organised in
advance and included a variety of activities designed to enable
members of the team to meet and talk to a cross-section of partners.
The team undertook a range of activities, including (but not limited to):
Pre-meetings with West Midlands Police and the Community
Safety Partnership;
Discussions with members of the Community Safety Partnership
and various stakeholders; and
Review of a range of supporting documentation provided by the
partnership.
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5.2 The team also undertook an additional community engagement
exercises, designed to get a rounded sense of the impact of
partnership activity on communities. These were arranged by the
SWP. Examples of activities the team undertook were:
A focus group of young people;
A service delivery focus group of third sector and voluntary sector;
A community representative focus group.
5.3 The team was especially appreciative of the support provided by the
partners and would like to thank everybody they met during the
process for their time and contribution to the review. It was evident
throughout the review that Wolverhampton, its partners and its
residents all actively engaged and willingly participated in the peer
review process.
The team were also appreciative of the logistical support in organising
the review, both in the build up to and during the team‟s visit.
We would particularly like to thank Inspector Helen Kirkham, Karen
Samuels and Sarah Campbell for all of their work in advance of and
during the review.
The Team would like to also say a special thank you to the members
of the community, parents and young people who participated in the
peer review.
6. Context 6.1 National Context
6.1.1 The disturbances of August 2011 were the catalyst for the
Government to accelerate work around serious youth violence and
gangs. Whilst gang members did not play a central role in
orchestrating the disorder, they were involved, and the disturbances
brought issues of serious youth violence to the forefront of public
consciousness.
6.1.2 Since the disturbances, a group of senior Ministers, led by the Home
Secretary, have met regularly to discuss the problem of youth
violence and gangs, and the cross-government Ending Gang and
Youth Violence2 report, published in November 2011, sets out a
series of national actions to tackle this problem.