National IOM Operational Guidance

V5 - January 2025

1. Introduction 4

Since the last publication 4

2. IOM operational framework structure: Fixed, Flex & Free 5

3. What is Integrated Offender Management (IOM) 6

4. IOM risk management: How IOM aligns or enhances existing multi-agency arrangements 7

Multi-Agency Public Protection Arrangements (MAPPA) 7

Violent and Sexual Offender Register (ViSOR) 9

Multi-Agency Risk Assessment Conference (MARAC) 9

Safeguarding 9

Child Safeguarding 9

Adult Safeguarding 10

IOM Co-location 10

5. IOM Eligibility, Selection & De-selection 11

Eligibility 11

Selection and De-selection overview 12

Reset Considerations for IOM cases 14

Receiving a custodial sentence 16

6. Roles and responsibilities of Probation and Police 16

Final appointment Prior to Final Third 17

7. IOM in Final Third - Continuing Activities 18

Reactive Management 18

8. Stakeholders & Governance Arrangements 20

Local and Regional Governance 20

National Governance 21

Membership & Operational Governance 22

Partnership working 22

9. Information sharing 23

10. IOM considerations 23

Trauma Informed Practice 23

Youth to Adult (Y2A) transition 24

Working with Young Adults 18-25 24

Working with Women 24

Mental Health and Physical Health and Wellbeing 24

Ethnic Minorities 25

Rurality 25

Short Term Sentence Team (STST) 26

One to one work 26

Offender Personality Disorder Pathway 27

11. Assessment stage 28

Local Police Tasking 28

At Court 28

IOM Court Process 28

Case allocation 28

Case Transfer 29

12. Case management 29

Assessing progress and reviewing case management 30

IOM Community Reporting Guidance 32

Custody 34

IOM OMiC Process Map 34

Serious Organised Crime (SOC) Considerations 35

Monitoring Prison Behaviour to Inform Risk Assessments 35

Day of release planning 35

Cases in Custody During Reset 37

Recalls During Reset 37

Licence Conditions and Reset 38

13. Pathways to reduce reoffending 39

Accommodation 39

Attitudes, Thinking & Behaviour 41

Family and significant others 41

Substance Misuse 42

Education, Training & Employment 43

Finance, Benefits & Debt 43

Mental Health, Physical Health & Wellbeing 44

Dynamic Framework 45

Referral Pathways for CRS 45

Electronic Monitoring 45

14. Training opportunities 47

15. Performance and Quality 49

Police Performance 49

Probation Performance and Quality Assurance 49

Performance Considerations 50

Performance in Final Third 50

16. Exit Planning 50

17. Equality Impact Analysis 51

Appendices 53

Appendix A: Offences included within the neighbourhood crime fixed cohort 53

Appendix B: IOM - Guidance for report authors 54

Appendix C: Case Transfer Process 56

Permanent Case Transfer Process 56

Temporary Case Transfer Process 57

Appendix D: Template Documents 58

Appendix E: Tracked Changes 58

1. Introduction

This document has been updated in December 2024 and includes case management updates in relation to the Probation Reset changes. It serves to support operational teams embed and develop a consistent approach to the management of the Fixed integrated offender managed cases and should complement the Neighbourhood Crime Integrated Offender Management Strategy¹ published in December 2020. It draws on best practice from inspections and regional leads, providing operational staff with some guiding principles of delivery for the management of Integrated Offender Management (IOM) cases. Aligning to Probation’s new operating model it focuses on assess, protect and change. It also supports police forces in achieving their nationally set target of a reduction in neighbourhood crime. The guidance contained within supports staff on how to achieve this. The document is laid out to follow the nominal journey and will be reviewed annually as part of the National Integrated Offender Management strategic leads meeting which offers multi-agency strategic governance to this arrangement, updates will be circulated to all relevant personnel accordingly. 

Whilst compiling this guidance, consistency of language has been challenging due to the criminal justice landscape and varying terminology used between partnership agencies. Within this document we have deliberately used language in the hope that it will resonate with all stakeholders and practitioners who will utilise this guidance. The new Target Operating Model (TOM) for the National Probation Service references ‘Probation offender managers’ as ‘Probation Practitioners’, however for the purposes of this document and to ensure our partners understand the different elements to that work, we will reference ‘Community Offender Managers (COM)’ and ‘Prison Offender Managers (POM)’ to ensure clarity around the specific roles within the community or custodial setting. Similarly, where we reference ‘Social Services’ we are discussing ‘Children’s Social Care’/’Children’s Services’ as again the terminology across non devolved and devolved administrations in England and Wales differs. The TOM uses the term ‘Supervised individuals’ to identify people subject to sentences, however, within this document we will consistently refer to such individuals as ‘IOM nominal’. This term is widely understood by Police and Probation colleagues.

In order to access any embedded documents, for Probation colleagues, purple links will take you to the document location on EQUIP or other relevant sources. For Police colleagues, blue links will take you to the document location in the IOM Knowledge Hub. You must be a member of both Knowledge Hub and the National Integrated Offender Management Group to view documents. Documents should be downloaded to view.

Since the last publication

Probation Reset

‘Probation Reset’ measures were introduced on 29^th April 2024 with full implementation by 1^st July 2024 to reduce demands on the Probation Service. The measures see certain requirements having the supervision requirement suspended during the last third of an order or licence. Probation remains statutorily responsible for all orders of the court until sentence expiry. There are some exceptional types of cases that will continue with supervision to the end. These are known as exempt cases and include:

• MAPPA Cases of all Categories (1-4) and Levels (1-3)

• All cases directly managed by a Specialist Probation Practitioner in the National Security Division (NSD)

• All cases identified as very high risk of serious harm

• All cases with current active child protection procedures in place

• Those subject to an Intensive Supervision Court pilot (until such time as the evaluation is complete)

The intention of the Reset is to review working practices within the context of newly introduced prison capacity measures; the need to alleviate workload demands and protect staff time; and HMIP inspections where they outline that focused attention is needed where it will have the highest impact; which is noted to be in the earlier stages of any Order or Licence period.

2. IOM operational framework structure: Fixed, Flex & Free

Reducing reoffending /Crime reduction

Aim

4. Core

5. Activities

0. Partner buy in from housing, DWP, health, prisons, local authority; Probation and Police resourcing.

   Supported by co-location; digital case management; clear responsibilities between agencies; Electronic Monitoring (EM)

2. Facilitators

- Focus on persistent offenders (statutory) defined by a high OGRS and a neighbourhood crime index offence (e.g. burglary, robbery-see appendix A)

- This cohort may overlap with the Acquisitive Crime (AC) EM pathfinder cohort.

Fixed²

- Index offence of persistent offenders will vary by area.

- % of referrals reserved based on professional judgement from all Police, Probation (including at Court through Pre-Sentence Report), and other partners. Broad referral criteria provided - could include non-statutory cases.

Flex^{3 4}

- Freedom to utilise resources to run IOM schemes for other cohorts - with possibility of future strategies addressing these specific cohorts.

Free

Neighbourhood crime (Fixed cohort) and its interface with existing Integrated Offender Management schemes

The Neighbourhood Crime or Fixed cohort is the focus and concentration of this Operational Guidance. In order to ensure that other existing IOM cohorts outside of Neighbourhood crime are successful in their reduction of offending and rehabilitation, current opportunities exist within the Free element of the new Strategic direction. This cohort is Free in its nature to accept the distinct differences in how we successfully address the criminogenic needs of nominals in other crime categories.

The Flex and Free Operating Principles document should be read in conjunction with this Operational Guidance, as many practice considerations and processes will be the same.

The Fixed cohort builds on the success of the original method of Integrated Offender Management, i.e. Prolific and Other Priority Offender Scheme, which was developed specifically considering the significant research around those who are convicted of an acquisitive crime.

3. What is Integrated Offender Management (IOM)

Integrated Offender Management was introduced in 2009 to bring a cross-agency response to crime and reoffending threats faced by local communities. The aim was for the most prolific and problematic nominals to be prioritised and jointly managed by Police, Probation and other partner agencies.

In December 2020 Ministry of Justice launched a refreshed joint strategy⁵ which provides an evidence-based integrated offender management approach to tackling neighbourhood crime and its causes. Neighbourhood crime includes burglary, robbery, theft from the person and vehicle theft. Nominals committing these offences usually do so repeatedly. Reducing neighbourhood crime and making our society safer is a priority for this government.

Neighbourhood Crime IOM is an opportunity for Prison and Probation leaders, Police Chiefs and Police and Crime Commissioners to work to together with other local leaders to reduce reoffending and make communities safer. In June 2021, the Probation Reform and the creation of Regional Probation Directors sought to facilitate new ways for the Police and Probation to work together in this space. Regional Probation Directors work closely with Police and Crime Commissioners to ensure that the use of IOM is a core component of local crime and policing plans. The success of this strategy depends significantly on the strength of the partnership formed between local Police and Probation leaders, as well as the links they forge with other local agencies. The governance structure that has been developed ensures a partnership approach. This has been strengthened during 2022 with the use of the spending review funding to create central and regional teams to ensure best outcomes for the nominals under our supervision.

We have developed the National IOM Operational Guidance for the Fixed cohort and the Flex and Free Guiding Principles in order to support the strategy with an ambition to achieve greater consistency in IOM through clear national priorities, outlining an evidence-based approach, creating new governance structures, and facilitating evaluation and shared learning. Together we will work to support meaningful behaviour change and long-term desistance for individuals involved in neighbourhood crime, and in turn make communities safer.

4. IOM risk management: How IOM aligns or enhances existing multi-agency arrangements

The Strategy has defined the focus and aims of IOM as reducing reoffending through the identification and address of root causes, offering a distinct difference from other arrangements, such as Multi Agency Public Protection Arrangements (MAPPA)⁶ and other integrated working arrangements. However, there is a need to ensure that whilst IOM sits distinctly separate from other arrangements and has its own focus and purpose, there will be times where multiple working practices need to work together collaboratively.

Many of the individuals subject to the IOM Fixed cohort of prolific and persistent neighbourhood criminals are chaotic and complex in their behaviour, this means that some might also be engaging in domestic abuse behaviours and in some cases violence, and/or be considered to pose a high risk of serious harm to the public. In these instances, we need to ensure that all arrangements complement each other and do not duplicate or conflict with the aim of each other.

It is essential that IOM cohort members are easily identifiable across boundaries. Understanding flags, Police markers and the action required when a Police IOM offender manager or Community Offender Manager (COM) is absent is essential to allow continued case management of a nominal. Police IOM offender managers are encouraged to provide briefings to other departments to raise awareness and encourage improved information sharing and cross model working. Within Probation N-Delius⁷ flags should be reviewed every time the OASys⁸ is reviewed and there is an expectation that staff will make enquiries into the status of those flags if covering in someone’s absence with Police IOM offender managers.

Multi-Agency Public Protection Arrangements (MAPPA)

MAPPA is a statutory framework and IOM arrangements do not seek to replicate the use and function of MAPPA; however the role of IOM arrangements will play a key part in the formation of the MAPPA risk management plan. IOM and MAPPA are distinct from one another: MAPPA is an arrangement with key partners to manage the risk of individuals who represent the greatest risk of serious harm to others and must take precedence. IOM is a form of offender management that draws on the support and assistance of other agencies to reduce the risk of reoffending. IOM cases that are also MAPPA registered will be exempt from the Probation Reset and will continue to receive Probation contact in the final third of their Order or Licence.

MAPPA Category allocation is clearly defined in statute and there will be IOM Nominals from all three cohorts who will be automatically registered as MAPPA Nominals at point of sentence; there will be other IOM Nominals where referral to the local MAPPA will be required to manage the presenting risks. Being registered as an IOM Nominal should not exclude any case from consideration for referral to MAPPA. In such instances local IOM partnerships will play a crucial and leading role in formulation of the MAPPA Risk Management Plan (RMP). Central to that plan will be the enhanced levels of supervision, oversight and intervention that IOM provides.

In cases where IOM manages a person subject to MAPPA it is the expectation that for statutory cases the IOM Probation Practitioner will be the lead representative and attend all relevant meetings to present the case; it is best practice for the Police OM to also be present and suitable management presence as dictated by the local MAPPA Team. The meeting will devise the risk management plan with the lead agency. The lead agency, when recording the risk management plan on its own systems, should reflect the RMP agreed by the MAPPA meeting. Where this is not possible the lead agency should be clearly able to explain why, e.g. details of victim safety planning or sensitive police information or tactics. Where a decision is taken for there to be a difference between the recording of the plan this should be clearly stated in the MAPPA minutes. The responsibility for that plan rests with the responsible officer.

Violent and Sexual Offender Register (ViSOR)

ViSOR facilitates the effective sharing of information and intelligence on violent and sexual IOM nominals between the three MAPPA Responsible Authority agencies (Police, Probation and Prison), as well as the recording of joint risk assessments and risk management plans.

Multi-Agency Risk Assessment Conference (MARAC)

MARAC is a non-statutory provision developed to prevent further harm to identified victims of domestic abuse. Within this forum partner agencies including Police, Probation, Health, Child Protection, Housing and Independent Domestic Abuse Advocates (IDVA) share information relating to the risk of harm to each individual case. The system offers a collaborative approach to reduce reoffending and protect the victims of domestic abuse via agreed actions and intervention.

Due to the often-chaotic nature of prolific neighbourhood criminals, there will be times where IOM nominals are subject to MARAC discussion, either as the victim or as the perpetrator of this behaviour. In these cases, it is essential that the IOM team are linked into the work and are able to provide further and often more in-depth knowledge of the individual and support any actions agreed.

COMs should continue to respond to requests for sharing of information e.g.from Police, Children and Adult Social Care and Multi Agency Risk Assessment Conference (MARAC), even for cases that are not exempt from Probation Reset. There is also an expectation to attend MARAC conferences relating to offenders in the final third of RAR/Licence or while subject to PSS.

Safeguarding

Before recommending a sentence or release on electronically monitored curfew, mandatory domestic abuse and safeguarding checks must be undertaken. The COM must work with Police and children's social care to ensure all relevant information is considered in order to ensure risks are managed.

Child Safeguarding

The Children Act 2004 places a duty on HMPPS and Police to safeguard and promote the welfare of children. Safeguarding can include: Protecting children from maltreatment; preventing impairment of children's health or development; ensuring that children grow up in circumstances consistent with the provision of safe and effective care, taking action to enable all children to have the best outcomes and child protection. Where a nominal has a child who is currently subject to a Child Protection plan, which is noted by a Child Protection flag in place on nDelius, the nominal would also be exempt from Reset and contact would continue in the final third, or until the plan is closed. (This exemption criteria does not include offenders with an nDelius flag for Child in Need or Child Concern plans).

Adult Safeguarding

The Care Act 2014 (enacted 2015) places a duty on HMPPS and the Police to safeguard and promote the welfare of adults with care and support needs to keep them safe from abuse or neglect. In Wales the relevant legislation is The Social Services and Well-being (Wales) Act 2014 (enacted in April 2016) and The Care and Support (Eligibility) (Wales) Regulations 2015 (enacted in April 2016).

Staff should be alert to the types of abuse IOM nominals may be exposed to, as well as the care and support needs, they may require.

IOM Co-location

The benefits of co-location cannot be overstated; this has been reiterated during the thematic inspection of IOM and is considered best practice.

The need for local determination and access to services, funding and wider resources is an important factor. It is acknowledged that due to restrictions in estates and other local factors it may not always be possible to co-locate. In these circumstances IOM teams are encouraged to adapt working practices and consider smarter working initiatives, ensuring the benefits of co-location are not lost and effective delivery is continued. Meetings are a key part of how we interact and collaborate with partners particularly for IOM teams, therefore where staff are unable to work alongside one another, colleagues should ensure that contact remains regular and continues to be conducted virtually, utilising collaborative tools such as Microsoft Teams.

Regular briefings should be recorded and disseminated to colleagues who are unable to attend these meetings. Additionally, IOM teams are advised to circulate any risk information, intelligence and tasking work amongst the team daily to ensure colleagues are kept up to date. It is important that a regular communication routine is agreed by partners to encourage consistency in working practices and embed integrated working even when teams are remote. Staff should continue to be aware of Data Protection guidance when utilising virtual collaboration tools and working remotely.

5. IOM Eligibility, Selection & De-selection

Eligibility

The Fixed cohort will be determined by the definition and aim set out within the IOM Strategy; Reducing high risks of Reoffending along with the Neighbourhood Crime category (See Appendix A). However, in order to implement this successfully, a consistent eligibility process is helpful to ensure that the right people are being dealt with whilst still allowing for localism. Following consultation with professionals in this field and in line with the definition and aim, the following criteria has been agreed as an effective initial indicator for selection onto local IOM schemes. This process should be adapted to the level of resources available to IOM on a sliding scale.

Index Offence + OGRS Score + Office of National Statistics (ONS) Crime Severity Score (CSS) = Target figure (should be set locally and in accordance with local crime levels and IOM aligned resources).

The OGRS score represents the risk of re-offending the individual poses (Probation tool) and CSS predicts the likely severity of that offending based on past and present circumstances. The ONS/CSS Matrix¹⁰ is recommended over other established and effective models due to the regularity of updates making the calculations much more current and reflective of current crime trends. Each offence type is aligned to a numerical value, the recommended process is to scan the individual’s five-year offending in the community¹¹ history to create a sum total score.

The following scoring matrix and briefing notes have been developed with the assistance of Norfolk Constabulary and Bedfordshire Constabulary to assist any forces unfamiliar with the process. This process also includes criminogenic factor scoring which may assist some forces in better prioritising cases. The attached scoring matrix was refreshed in March 2023 to reflect the latest ONS scoring.

Whilst this is an arbitrary scoring process it offers a good indication of the local nominals in scope within the regional IOM resource availability. For example, Bedfordshire IOM scheme currently look at all nominals with OGRS scores exceeding 75 along with a CSS score of 1500. It is important to state that this is an indicator based on adults within the Neighbourhood crime Fixed cohort only.

These figures are not set as the expectation across all regions. This score can be adjusted regionally and ideally the fixed cohort would be the largest cohort of your IOM scheme, as the aim is to address Neighbourhood crime. Professional Judgement should be used. For example, in more rural areas, the OGRS score and CSS score may need to be reduced to achieve a larger fixed cohort to ensure regions are focussing the right nominals.

Once the calculation has been made, the final assessment should be specific to the effectiveness of the arrangement and therefore the question asked should be “What can this IOM arrangement add in terms of value to the reducing reoffending process, which is not already statutory via licence conditions/statutory Community Order/Suspended Sentence Order?" The acceptance on to the scheme should then be made by the Multi Agency Case Conference (MACC) chair and in consultation with the wider relevant partners. Local arrangements can still adopt an IOM approach to individuals who do not meet the Fixed cohort criteria by utilising the Flex approach. Although partner agencies should be invited to make nominations based on the criteria for the identified cohorts, selection and de-selection decisions should be made by Police and Probation leads.

Work has been undertaken with the Office of National Statistics and the Ministry of Justice to test the eligibility criteria recommended and understand the impact on cohort demographic and specifically protected characteristics. The results reflected the fundamental aim that selection is based solely on individuals whose offending behaviour meets the neighbourhood crime category, with a high risk of reoffending and significant impact on their neighbourhood.

Selection and De-selection overview

Selection

IOM adopts a person-centred approach, working together to address root causes of criminal behaviour and aim to reduce offending. Therefore, it is essential that the selection of an individual onto IOM is fully communicated to them.

De-selection

This has been a controversial subject within IOM, primarily due to some nominals remaining on the scheme for many years. The suggestion of a static management period for IOM is not recommended; instead, a person-centred approach should be adopted based on the root cause identification and progress within the rehabilitation and supportive services. It is recommended that an agreed period of review of progress should be a key element of the management plan, offering an opportunity to identify lack of progress or a need to change approach methods. IOM is targeted at a specific cohort of nominals, should a case remain on as a nominal for an extended period of time, it is important that the purpose of the case being managed at IOM be reviewed and de-selection should be considered.

Those IOM nominals aligned to the Green cohort should be assessed for de-selection.

For those IOM nominals static within Red or Amber categories, de-selection should be agreed where all rehabilitative methods have been exhausted.

Reset Considerations for IOM cases

Although Probation contact will cease in the final third, for cases who aren’t exempt, IOM nominals are still subject to a statutory Order or Licence. Therefore, Probation maintain responsibility for case management decisions. There is no expectation that Police or other agencies will offer additional contacts to mitigate reduced Probation supervision. However, it may be decided locally that Police wish to maintain supervision during the last third of an Order/Licence to monitor and share relevant intelligence with Probation, if this is deemed necessary and proportionate.

The MACC will be the key decision-making forum and ensure all agencies are aware of the risk information and what is required to continue to manage the risks and needs of the nominal in the final third. RAG status should be reviewed, and a decision made as to whether a nominal will benefit from being on the IOM scheme with Police monitoring/supervision continuing and/or other agency contact. If not, they will be removed from the scheme and consideration could be given to early revocation of Order. If it is agreed someone continues on IOM, then partners should be alerted to the date that Probation contact will cease.

A robust risk management and contingency plan should be completed so that all agencies are clear on roles and responsibilities during the final third under reactive management. Gradual reduction of face-to-face appointments should be offered to the nominal to prepare for deselection or Probation contact ceasing, as part of a safe exit plan. Further, signposting to local services may be required to support the nominal following Probation contact ceasing.

Caseload numbers will need to be carefully monitored to ensure the correct nominals are managed within IOM scheme and to ensure there remains capacity for Police officers and Probation Practitioners to effectively manage cases. This will need to be kept under review as the full impact of Probation reset is realised.

Flow Chart of Process

Single agency management including Police maintaining contact with the nominal and partners engaged

Receiving a custodial sentence

It is generally agreed that IOM nominals should be automatically deselected should they be serving over two years in custody. In cases where a nominal is deselected due to length of sentence, the POM or COM should consider a referral back to IOM prior to release from custody, if appropriate.

6. Roles and responsibilities of Probation and Police

Current and former thematic inspections found that the roles of Police and Probation (Community) Offender Managers had become blurred within some IOM arrangements. To add clarity to the distinctions and where the roles complement each other, this operational guidance suggests the roles as outlined below should be adhered to, prior to the final third of an Order or Licence:

IOM schemes must make realistic decisions about the number of IOM Nominals they can effectively carry. The recommended ratio is Police 1:20. In Probation there is no recommended ratio as workload is determined by the workload measurement tool, and this provides a percentage figure of capacity for each officer.

Final appointment Prior to Final Third

Individuals remain subject to their sentence even when supervision is suspended under reset. They will need to be made aware that they must adhere to requirements of CO/SSO/Licence and PSS; 

• Talk through with the individual the expectations of them and where they can get support, including outlining any Police monitoring and contact that will continue. Explain they are still required to comply with their Licence, Order or PSS (excluding RAR appointments and RAR activity days) and go through what that means for them, where they can get support and explain that enforcement action including recall will be taken if necessary.  

• A small number of individuals subject to PSS will also have conditions attached and remind those individuals that they will need to comply with these. 

• Individuals who have received a custodial sentence of 4 years or more, and therefore have a Licence period of 2 years or more, will require a face-to-face appointment with Probation at the mid-way point of the final third. This appointment is enforceable and should be given in advance to ensure compliance.    

• Notify relevant partner agencies, particularly those named within the Risk Management Plan or delivering a Community Sentence Treatment Order requirement or Licence condition, that active Probation contact will be suspended.  For those subject to IOM on Licence, liaise with IOM partners to confirm any ongoing contact arrangements with partnership agencies.

• Issue letters to the individual (Letter templates are on NDelius) signposting relevant support, reinforcing their responsibilities in the final third and reminding them that they must notify Probation of a change of name or contact details.  

  • Individuals subject to a Community Order or Suspended Sentence Order must also seek permission for a change in residence.  

  • Individuals subject to PSS or Licence must also seek permission from the Probation Service for any of the of the following: Change of address/ Change of employment/ Travel abroad.

7. IOM in Final Third - Continuing Activities

Whilst Sentence Management contact will cease, there will be requirements/conditions/activities that must continue:

• All Licence conditions other than reporting to the Probation Practitioner - unless they are varied/removed.

• Non-RAR requirements within a Community Order or Suspended Sentence Order e.g. Unpaid work (UPW).

• Accredited Programme (AcP) Delivery:  

• AcP as part of Licence/PSS conditions or a specified AcP requirement. This is enforceable.

• AcP may continue in the final third as part of RAR activities if the offender has already commenced the AcP. This is not enforceable.

• Where an AcP continues into the final third, post programme work will not be undertaken by the Probation Practitioner.

• Drug Testing: 

• No changes to Drug Rehabilitation Requirement (DRRs). Drug testing by Probation Practitioners continues where a DRR is in place. 

• Licence drug testing by the Probation Practitioner continues if there is a specific drug testing Licence Condition. The Licence condition may be varied/removed if appropriate.

• Electronic Monitoring.

• Community Sentence Treatment Requirements.

• Commissioned Rehabilitative Services (CRS) only if part of a Licence condition.

When considering migrating cases onto IOM, thresholds should remain as current practice, but the stage of the order or licence should also be considered, and the Multi Agency Case Conference (MACC) meeting should think about added value that can be offered for the case via IOM arrangements. We need to ensure that we are focussing the right support and interventions on the right people at the right time.

Reactive Management

Whilst contact is suspended in the final third for eligible cases, the Person on Probation is still subject to their sentence under ‘Reactive management’.

Where information is received indicating that the individual or another third party may be at risk, the Probation Practitioner will need to both record and act on it, ensuring the sentence of the Court is delivered. Although Sentence Management contact is suspended, the Probation Practitioner is still expected to respond to concerns about public protection and take appropriate compliance and/or enforcement activity. Should a nominal be returned to Court for Breach, as the delivery of RAR days and RAR activity is ceased in the final third, Probation Practitioners should offer alternatives within the breach recommendation to the Court. These alternatives may include financial penalties, UPW hours or electronic monitoring.

The Probation Practitioner will need to advise the individual/agency who has contacted them that the individual is no longer subject to Probation Sentence Management contact and, where relevant, give advice about where the information should be shared. In some cases, it may also be necessary for Probation Practitioners to share the received information with partner agencies such as Police or Social Services. For example, should a nominal become at risk of homelessness in the final third, this will remain a requirement of the Probation Service, as this is a statutory responsibility.

Information and intelligence should continue to be shared with Probation and discussed regularly. The Probation Practitioner is responsible for making any relevant referrals and engaging in reactive actions to manage the situation which will ensure all safeguarding measures are addressed. This should also be discussed in MAP and MACC meetings to ensure an effective risk management plan is in place.

For most cases, being reactive to a new situation or information received, will not require resumption of regular contact with the individual.

Key principles for reactive management:

Recording: New information received, and any decisions and/or actions taken as a result must be recorded in the Person on Probation’s case records (NDelius) with the rationale for any actions clearly outlined.

Information sharing: Any information received should be assessed by the Probation Practitioner to decide if it should be shared with other parties including Victim Liaison Officer (VLO) where applicable and partner agencies such as Police, Social Services etc.

Escalated Risk of Serious Harm levels: Involves reviewing Risk of Serious Harm and Risk Management, use of further controls including adding/varying licence conditions and enforcement action where relevant.

Changes in need or circumstances: Referrals to other agencies and signposting.

Contact with the Person on Probation may be required, but reinstatement of regular contact would only occur if the Person on Probation meets the Exemption Criteria or is subject to a new Order/Licence as a result of a further conviction.

T his table outlines expectations regarding the final third of an Order or Licence for non-exempt cases:

Arrangements for information sharing and reactive management may vary in regions. This should be discussed with IOM Probation Regional Leads. More information is noted on pages 14, 37 and 38.

8. Stakeholders & Governance Arrangements

Governance arrangements are critical to the success of IOM. The ability to discuss locally but have a route of escalation to a wider board is essential. Regions will be required to understand the landscape of their IOM cohorts within regions to develop a thematic approach to the issues or good practice identified.

Local and Regional Governance

There are a range of other statutory boards such as community safety, public service boards and reducing reoffending strategy boards. These may help inform the areas of focus for IOM cohorts in the flex and free within region, so it is essential there is joint messaging across the community safety arena.

The chart below reflects the Wales Strategic governance chart which was recognised as best practice within the IOM joint thematic inspection in February 2020¹².  It is however, recognised that there are regional differences, so there may need to be some local variations. Regions should adhere to a governance structure similar to the below, as this ensures appropriate oversight to the management and selection of our IOM cohorts.

National Governance

The National Integrated Offender Management (IOM) and Electronic Monitoring (EM) Strategic Leads Group (SLG) has an overview of the operational issues raised in the IOM Regional Leads Implementation Group (IRLIG) forums. The board signs off decisions, reviews performance and sets future targets. It is integral that representation is at an appropriate level to ensure business can be progressed and for an appropriate oversight to enable traction to continue with the business.

IRLIG (Operations) stands as the operational forum in which to provide guidance and escalate issues through to strategic groups. Representatives include a Probation and Police representative from each of the 12 regions and the meeting is co-chaired by the National IOM Probation System Integration Senior Lead and National IOM Police Liaison Lead.

Probation

IRLIG (Finance) stands as the finance forum in which to discuss good practice and challenges or barriers in the elements associated with the 2022 - 2025 IOM Spending Review allocation. Representatives include a Probation representative and Finance Business Partner from each of the 12 regions, in addition to the Lead IOM Finance Business Partner and a Commercial Business Partner who are able to provide policy and procedural advice. The meeting is chaired by the National IOM Probation System Integration Senior Lead.

IRLIG (Performance) stands as the performance forum in which to discuss monthly regional performance. Representatives include a Probation representation and Performance and Quality Officer (or Single Point Of Contact (SPOC)) from each of the 12 regions, in addition to the National IOM Analyst who will present and share information on performance. The meeting is chaired by the National IOM Probation System Integration Senior Lead.

Police

The Police IOM Regional Leads Forum stands as the operational forum in which to provide guidance and escalate issues through to joint governance and is a sub-group of the NPCC IOM Working Group. Representatives include a Police representative from each of the 12 regions and the meeting is chaired by the National IOM Police Liaison Lead.

Joint Governance Structure

Membership & Operational Governance

• Core membership at each group should reflect the needs of the area and involve all relevant agencies at the most appropriate managerial (and senior practitioner) level. All agencies should be signed up to a relevant information sharing agreement.

• Multi-Agency Case Conference (MACC) A monthly meeting jointly chaired by the Police IOM Tactical Lead and Senior Probation Officer, attended by operational staff across the stakeholder agencies to discuss the progress of the IOM cohort, selection and de-selection of nominals. Subject to vetting clearance and data protection considerations, Community Rehabilitation Services (CRS) staff may be able to attend monthly case conferences, to ensure appropriate referrals are made to services. Further, where a nominal is in custody, the Prison Offender Manager (POM) should also attend the MACC. If any of the members of the MACC are not able to attend it is vital that a written update is sent. This forum should report to the local multi-agency strategic group with escalation of concerns where appropriate. The MACC will also be the key decision-making forum for reset cases to ensure all agencies are aware of the risk information and what is required to continue to manage the risks and needs of the nominal in the final third .

• Multi-Agency Practitioner Meetings (MAP) In many IOM arrangements these meetings are structured weekly with key partners to discuss real time collaboration and problem solve however it is noted that for those IOM arrangements who are truly co-located this is often unnecessary due to the constant integrated working process they have established. It is important that case discussion meetings are recorded to ensure actions are logged, reviewed and completed by the assigned agency. The frequency of the meetings can be decided upon locally, however best practice would indicate that they are conducted at least weekly. This forum should report to the MACC with any escalation in concerns.

Partnership working

Working in partnership is an essential principle of IOM and is considered best practice when encouraging desistance of the most entrenched and difficult to engage.

The key to partnership working is the clear definition of role and responsibilities, with in-built assurance activity to assess outputs and outcomes. Partner agencies should be prepared to accept that they work within a criminal justice pathway and nominals are part of IOM regardless of other barriers and obstacles to engagement and compliance. All partners should work to shared and mutually agreed aims and objectives. All partners should then be accountable to their local strategic governance arrangements.

The Joint Thematic Inspection of IOM in 2020, stated “IOM cohort offenders had complex and resource intensive needs, drug misuse, unstable accommodation, and homelessness were all common". Therefore, it is considered that local IOM schemes can identify and encourage partnership agencies who specialise in these areas specific to criminogenic needs with a view to working collaboratively with Police and Probation to provide support and pathways out of offending. Whilst this list is not exhaustive it can include; substance misuse agencies, housing support, benefit support, mental health services. Further consideration should be given to providing enhanced access to services in order to reduce reoffending.

9. Information sharing

At the heart of successful Integrated Offender Management (IOM) is effective partnership working and communications - this allows us to deliver a robust risk management plan and ensure sentence plan objectives are achieved.  There is an expectation that information from the key agencies is shared at regular intervals during case management, and also during the monthly MACC meeting. Organisations involved in the final third of a nominals Order or Licence should continue to share information with the Probation Practitioner, to ensure appropriate reactive management actions can be undertaken.

An Information Sharing Agreement (ISA) ensures that all parties understand and agree the secure management of transmitting, storing and managing information securely and appropriately in line with DPA 2018 and GDPR requirements.  It offers a documented justification to support IOM and reduces any unease surrounding specific sharing processes; detailing the specifics about who can share, via what method and in what circumstance - however agencies are encouraged to access in-house training in relation to DPA and GDPR.

To support with MAP and MACC meetings, an IOM Confidentiality statement should be read at the start of each meeting. A template can be found below which can be amended to suit local arrangements. In addition, an optional Memorandum of Understanding (MOU) has been developed outlining the roles and responsibilities in ensuring attendees have appropriate authority and vetting to attend MACC and MAP meetings. Both of these documents can be amended to suit local arrangements and should sit alongside local ISAs which should be in place.

An IOM ISA template can also be found below but should be amended to suit the specific environment of the locality it serves and the processes and partner agencies within the local arrangements. Once signed, it is to be reviewed annually and signed by any new members/organisations as they are added.

10. IOM considerations

Trauma Informed Practice

The ethos of IOM is to work with our cohort of nominals in a trauma informed approach.  The Office for Health Improvement and Disparities¹³ is underpinned by six principles; safety; choice; empowerment; trust; collaboration; and cultural consideration. Successful behaviour change comes from positive relationships between the nominal and the offender manager, where the individual is treated with compassion, dignity and respect and there is an awareness and recognition of the trauma an individual may have experienced and conscious effort to prevent re-traumatisation. This ‘compassionate justice’ approach can empower individuals to take responsibility for their behaviour and is essential to building long lasting success and change. 

Recognising that most of the nominals on our cohort have experienced trauma or adversity during their past is essential in understanding triggers for their offending and realising that often their offending or harmful behaviour is a sign and symptom of crisis.  This goes a long way to building rapport and trust and it is from this grounding that offender managers can effect change by positively reinforcing desirable behaviour.  This can produce robust gains, and the recognition of an individual’s strength will validate and allow for these strengths to be built on.

Key to our approach is a recognition that no one’s future should be defined by their past, and all have the potential to make positive change.  This change is never immediate, and many find it hard to break the cycle of offending, but with extra support we aim to help people ‘get up faster’ after a slip, thereby reducing the frequency and severity of their offending. As such, trauma informed practice training features in Block Two of the National IOM Training Library.

For more information, HMIP has published the following research and analysis papers:

• Working with trauma in adult probation (justiceinspectorates.gov.uk)

• Issues, challenges and opportunities for trauma-informed practice (justiceinspectorates.gov.uk)

Youth to Adult (Y2A) transition

Y2A cases are more likely to be managed within the Flex or Free cohorts. However, there may be some cases in Fixed. If working with Y2A cases in fixed, please see section two of the Flex and Free Operating Principles document for further information regarding management and best practice.

Working with Young Adults 18-25

Young Adults are more likely to be managed within the Flex or Free cohorts. However, there may be some cases in Fixed. If working with Young Adults in Fixed, please see section two of the Flex and Free Operating Principles document for further information regarding management and best practice.

Working with Women

The Fixed cohort removes the most prevalent crime for females within the Neighbourhood category; shoplifting. As such, the Flex or Free cohorts are where most female nominals would be managed. If a Practitioner is working with female nominals within Fixed, please refer to section 3.2 of the Operating Principles for further information regarding management and best practice.

Mental Health and Physical Health and Wellbeing

In custody, liaison should take place with relevant prison staff including heath care staff via the Prison Offender Manager (POM), and this should be reflected in the sentence plan. It is important to be aware if the IOM nominal has been placed on an Assessment, Care in Custody Teamwork (ACCT) plan, if they are on any medication, including obtaining scripts for substance misuse and medication required from a GP/appointments made with community health services upon release.

HMPPS Deaths Under Supervision 21/22 data, show that ten percent of deaths in the community occurred up to 14 days from custodial release and a further 6% of deaths occurred between 15 and 28 days from their release. For deaths of people on probation under post-release supervision (including licence) in 2021/22, a higher number of deaths were self-inflicted deaths when the death was closer to the date of release, and a higher number of deaths were from natural causes when the date of death was further away. Self-inflicted deaths include deaths by suicide¹⁴. See pages 38/39 for further information on working with Mental Health and Wellbeing (Pathways to reduce reoffending).

Ethnic Minorities

When considering IOM nominals from ethnic minority backgrounds, using a data driven matrix approach to our Fixed cohort will protect against unconscious bias from decision makers. This inclusive approach should continue throughout the IOM journey. In order to achieve better outcomes for these nominals at an operational level, staff should ensure treatment materials are relevant to ethnic minority groups, considering the differing needs of these groups, including intersectionality, e.g., the disproportionate outcomes faced by those who are young and of ethnic minority background. Best practice indicates that IOM staff should be actively engaging with and respecting cultural experiences and differences, ensuring this information is included within OASys assessments and considered within the sentence plan.

It is important that we recognise the need for IOM nominals from ethnic minority backgrounds to express their cultural identity free from fear of being stereotyped or discriminated against. COM and Police Offender managers should encourage these discussions and should demonstrate understanding in the importance of recognising cultural differences. IOM teams across both agencies should invest in cultural competency training to enable staff to have sensitive conversations around race and ethnicity. This may help to increase engagement and trust with nominals from ethnic minority backgrounds and develop staff confidence and awareness in these areas. IOM teams should also consider how they can work in partnership with third sector organisations that represent ethnic minority groups within their local communities. Addressing high re-offending rates among some these groups can only be done through greater partnerships and communities themselves.

Rurality

Although there is no single official definition of rurality, it is important to acknowledge that where someone lives can make a difference to the type of services they can access and be offered. For the purposes of this section, we will consider someone as living rurally if the journey time to their PDU is over an hour. However, it should be noted that some Probation regions may have a rurality strategy with a different definition.

It is imperative to make sure that nominals are offered the same level of service regardless of where they are located. In addition to nominals, it should be noted that additional demands are faced by staff working in rural areas, such as travel distance and time incurred and how these impact on additional activities.

Short Term Sentence Team (STST)

The creation of the Short-Term Sentence Team (STST) is referred to within the IOM Strategy, however this team is not in existence in all regions, due to staffing and other priorities. Further, some regions exclude IOM from STST. As such, confirmation will need to be sought regionally.

The STST aims to capture nominals who are regularly sentenced to short term periods of custody with high levels of enforcement (breach/recall). They adopt a multi-agency approach to provide a wraparound service for nominals who are due for release from custody, providing a smooth transition for cases from prison to community. The STST are expected to engage swiftly with the case whilst they are in custody in preparation for their release, promoting engagement, identifying and removing barriers and maintaining service provision across agencies where possible.

Due to the nature of the short-term sentenced cohort, there may be an overlap with the IOM Fixed cohort. In such circumstances, the STST can assist, along with Police IOM offender manager in the transition from prison into the IOM scheme. Furthermore, the Short-Term Sentence Team will be in a good position to identify any potential IOM Nominals for selection as part of their pre-release planning, in these circumstances a referral should be completed by the STST to be considered at the next IOM selection panel.

One to one work

It is expected that the COM and IOM nominal will meet regularly for one-to-one supervision during which intervention to address the areas identified on the supervision plan will take place, using the appropriate intervention tools and services that are available in the area.  However, given the complex needs of IOM nominals, at any point during supervision there are likely to be changes in their personal circumstances. This would require the COM to be responsive to these changes and reprioritise and review the focus of supervision and the Sentence Plan accordingly. It is essential that good case recording on Police and Probation systems is completed to reflect these changes and regular reviews are held during supervision sessions with the IOM nominal in order to reflect this.  The COM would also be expected to reflect these changes and communicate directly with partnership agencies to update these, or during the weekly MAP meeting. Recording and information sharing are an integral part of case management, and it is important that this continues into the final third of an Order or Licence, particularly where Probation contact has ceased.

Offender Personality Disorder Pathway

The Offender Personality Disorder Pathway (OPDP) provides a systematic process for identifying high risk violent and sexual offenders who are in custody or subject to supervision by the Probation Service who are likely to have a personality disorder and complex needs. The Pathway works collaboratively with IOM teams to develop psychologically informed sentence and risk management plans. Outcomes are achieved through the provision of training, consultation and psychological formulations provided by Psychologists and Probation Officers with specialist skills and experience of working with IOM nominals with personality disorder (PDPOs). Joint working with the IOM nominal is also offered where applicable. All OPD Pathway activity is Adverse Childhood Experiences (ACE)/ Trauma Informed and the formulations are holistic, incorporating desistence factors to complement risk management.

Some IOM nominals suffer from chronic psychological, social and emotional conditions, meaning that their symptoms usually emerge in adolescence or early adulthood, are inflexible, relatively stable and if not addressed, can persist into later life. They result in distress or impaired functioning in several different personal and social contexts, such as intimate, family and social relationships, employment and offending behaviour.

The OPDP also offers additional multi-disciplinary services for a small minority of cases identified as having high needs. The tiered operating model is responsive to the individual level of risk, need, harm and complexity of presentation. Allocation to the service is formulation led and interventions include Mentalization Based Treatment (MBT) & Emotional Regulation Skills work; Psycho-Educational work; Trauma focused work (where trauma is impacting upon risk management or engagement with other appropriate interventions / services); development / consolidation of strategies to manage sexual risk within the community; and consolidation of work undertaken previously on sexual violence and violence. Transitional and Liaison service provision delivered by mental health forensic nurses is also available which supports the resettlement of high harm & complex men and women subject to statutory supervision on their release from custody to Approved Premises and the community.

Should a case screen in for the OPDP, the Intensive Intervention and Risk management Service (IIRMS) is available in certain regions and targets identified problematic areas, for example emotional regulation work. Police IOM offender mangers should be kept updated on key interventions to reduce risks of reoffending and harm as outlined in the sentence plan.

The OPDP Core services such as screening, consultation, formulation and joint limited work is delivered the same across England and Wales, however IIMRS does differ regionally, and each area may have a slightly different approach.

11. Assessment stage

Local Police Tasking

When assessing someone as suitable for IOM, Police offender managers are encouraged to engage with local policing teams to ascertain the opportunities which can be afforded to the individual. Daily tasking is considered good practice for forces to discuss individuals and develop a way forward.

If someone is arrested and Police offender managers believe an IOM approach could support their pathway out of offending, then raising this with IOM teams could support selection meetings. Daily tasking provides the opportunity for such discussions and forces are encouraged to establish a local process to allow this flow of information.

At Court

Court staff are critical in the identification of any existing IOM nominals who appear in Court to the supervising IOM team. The following chart outlines the expectations of a court duty officer. It is good practice for local IOM teams to promote the added benefits of IOM to the Judiciary and Court Probation teams. Judiciary engagement has been proven to be a key to the success of any IOM scheme. See Appendix B.

IOM Court Process

Court Officer to discuss offences, progress, risk and proposals with IOM team

Case allocation

After a case has been sentenced at Court, the Probation Court team will send the case details to the allocation mailbox. The allocating Senior Probation Officer will review risk registers, sentence details and allocate to a COM within two working days of sentence. Should the case be an existing IOM Nominal, the case should automatically be allocated to the IOM team. Should the case be a potential IOM Nominal, it should still be allocated to the IOM team as they will be responsible for completing the referral to MACC.

Case Transfer

In November 2022, a new case transfer process for IOM Nominals was introduced. The process aligns with the Probation Case Transfer Process. This process outlines specific and separate tasks for IOM Probation and IOM Police staff. This will ensure that we are keeping the person on probation at the core of what we do.

It ensures case discussions occur between areas and that a clear rationale is shared, should the nominal not be accepted on the IOM cohort in the new area. This enables a risk management plan, with interventions to address offending behaviour and risk and to support the nominal, to be put into place and for the nominal to be clear on how they will be managed in the new area, prior to transfer.

Process maps are attached in Appendix C.

12. Case management

The following criteria utilises the familiar RAG rating but offers clarity surrounding each element, allowing local arrangements to utilise their available resources to align and engage with those most in need. All IOM arrangements should incorporate a tiering system to reflect the elements below:

RED                     Those assessed as being most likely to reoffend and require the most intensive management

AMBER            Engagement and compliance exists, but intelligence to suggest offending still occurring; or failure to engage or comply with the IOM agreed elements but no intelligence to suggest offending

GREEN               Fully engaged in their rehabilitative journey; low risk of reoffending; consideration for de-selection when stable for a period of time decided in the locality 

BLUE                  Short-term sentences- under 2 years.  

Any nominal who will be serving over 2 years in custody should be removed from scheme.

Assessing progress and reviewing case management

CHANGE

CHANGE - Change is intervention and prevention, support, mentoring, pathways and referrals with the aim to change the offending behaviour and break the re-offending cycle for the long-term. This is the approach we aim to achieve at all times. Change in circumstance, change in lifestyle, change in choices, change in behaviours. This prevents re-offending for the long term.

However, at times we need CONTROL in order to achieve CHANGE-

CONTROL - Control is obtaining stability. Statutory control, civil interventions, orders, notices, bail conditions. All of these control measures are there to manage the risk and obtain stability in order to provide the perfect platform for CHANGE.

Control is in essence- finding stability. Stabilising an offender and obtaining control will sometimes provide a good platform for change. If we obtain control and stabilise an offender for a small period of time, then this will effectively reduce re-offending. This may not be the long-term solution; however it will assist us in the overall intention to reduce re-offending. Not all offenders are open to change. Therefore, we control the situation as well as we can and always striving to achieve Change.

DISRUPT - Disruption is arrest, enforcing civil orders, warrants if it in relation to our IOM managed offenders when their risk cannot be managed, and all other options have been considered. However, it is key to understand that IOM is mainly focused towards CONTROL/CHANGE. There is a place for disruption within IOM with our offenders, but when necessary and appropriate in order to achieve CONTROL and eventually CHANGE.

IOM Process Map

Home visit to be completed within a 10-day period. Ideally this should be a joint visit with nominated COM and IOM Police Officer.

Home visits should be undertaken regularly throughout the period of supervision to inform risk management plan

IOM Community Reporting Guidance

Custody

IOM OMiC Process Map

Pre-release planning

• Licence conditions

• Accommodation

• Safeguarding

• MAPPA

• MARAC

• VLO

• PD Screening

• EPF Tool

Sentence Planning

Early contact with the Person in Prison (PiP) is necessary to ensure that the POM and COM are aware of their risks and needs. IOM COMs should be engaging with the Prison Offender Manager (POM) on any IOM case in custody. Further, in relation to CRS services, the POM should ensure that they have collated all relevant information in relation to interventions undertaken. This allows for discussions on compliance and engagement and prepares someone for their licence conditions. The POM should also be invited to all meetings, including the MACC, or share a written update. This allows for appropriate support and interventions to be undertaken whilst they are in custody. Further, for relevant referrals to be made and support to be given in order that services are in place for the PiP on release. As a result, when the PiP has completed the custodial element of their sentence, they are given the best opportunity to avoid the ‘revolving door’ and be able to safely resettle into the community.

New Futures Network¹⁶ is a specialist part of HM Prison and Probation Service (HMPPS) which attracts and supports employers to work with prisons in England and Wales. They also assist prisons to create the systems and infrastructure that will result in more prison leavers securing employment, ensuring they are more financially stable on release; including links with Department for Work and Pensions. As per prison white paper initiatives, they have supported prisons to recruit Prison Employment Leads, ID and Banking Administrators, open Employment Hubs and launch Employment Advisory Boards. Other new roles include Strategic Housing Specialists, Health and Justice Coordinators, Neurodiversity Diversity Support Managers and Drug Strategy Leads.

Serious Organised Crime (SOC) Considerations

If working with SOC nominals in fixed, please see section 3.4 of the Flex and Free Operating Principles document for further information regarding management and best practice. It is important to remember that when a SOC nominal enters custody it does not mean that their offending stops. Drugs can be worth six times more in custody, therefore ‘plugging’, ‘spooning’ and violence in relation to drug debts can be prevalent within the prison environment.  

Monitoring Prison Behaviour to Inform Risk Assessments

It is important to ascertain the IOM nominals behaviour whilst in custody and analyse if there has been any offence paralleling behaviours or changes in attitude that could increase risk of serious harm. Intelligence can be obtained through the security department, but staff notes on P-NOMIS can also be advantageous, and liaison with the prison offender manager (POM). Consideration should be given to adjudications, wing reports, and mandatory/voluntary drugs tests, being caught with prohibited items and compliance with sentence and progression plans. It is equally as important to look at the positive custodial behaviours and analyse whether there has been any decrease in risk and any progress or successes that have been achieved. This could include the completion of courses, employment, Incentive Earned Privilege (IEP) scheme etc. This information should also be shared at pre-release MACC, with the POM in attendance or having provided a written report. When referring to IOM schemes as part of release planning all of this information is essential for police to be aware of to develop their intelligence picture on the IOM nominal.

Day of release planning

In order to encourage compliance and engagement throughout the nominal journey, it is imperative that IOM teams fully brief IOM nominals on what they are expected to do on the day of release and importantly why. This should include discussions about the licence and any civil orders, enforcement, sentence planning, accommodation plans, contact details and reporting requirements. The process should be collaborative where any potential barriers to engagement are identified and addressed and positive and strengths-based factors are promoted.

Pre-release meetings with the IOM nominal should include both the IOM Police offender manager and COM to demonstrate unity of purpose and clarify that IOM is a partnership approach. Taking this approach can help IOM nominals to accept and abide by decisions, including those related to sentence planning and pre-release, reflecting procedural justice. It is recognised that how IOM nominals are treated influences the outcome more than the final decision made, e.g., discussing and understanding why they are required to reside in an approved premises or why a licence condition is considered necessary and proportionate.

In addition, IOM Nominals should also be discussed in MACC as part of pre-release planning; POMs should be in attendance or share written information prior to this meeting. These meetings are an opportunity to identify resettlement needs, review proposed licence conditions and any anticipated compliance issues where contingencies can be put in place. In cases where there are clear risk concerns, the IOM SPO and Police IOM Tactical Lead may wish to negotiate collecting the nominal from custody on the day of release. Best practice has evidenced that this has been effective in risk management for cases who are likely to abscond or demonstrate non-compliance and where there have been significant risk issues.

The COM is responsible for ensuring appropriate licence conditions are in place prior to release once the IOM nominal has been discussed within MACC. In addition to the standard six licence conditions, it may be appropriate to attach additional or bespoke conditions to the licence. An IOM specific Licence Condition must also be added - 4(c) To engage with the Integrated Offender Management Team and follow their instructions. Other Licence Conditions should be driven by risk management and link to the sentence plan.

It is important to ensure licence conditions are necessary and proportionate to manage risk and that COMs are able to clarify how conditions will help to manage acute dynamic risk factors and/or help to rehabilitate nominals.¹⁷ The COM should also ensure the Victim Liaison Officer (VLO) has been contacted in relation to any victim considerations and licence conditions such as exclusion zones. In order to ensure that all the necessary licence conditions have been identified, COMs should utilise the Effective Practice Framework tool, a digital augmented decision-making tool for planning licence conditions. This tool helps to ensure consistency, proportionality, fairness, and appropriateness of licence conditions and should reduce unconscious bias. For further guidance on proposing licence conditions HMPPS staff should refer to ‘Travel and Transfer on Licence and PSS Outside of England and Wales Policy and Post Sentence Supervision Requirements Policy Framework’¹⁸. It is best practice to explore the most suitable licence conditions with Police colleagues so that risk can be managed.

The Post Sentence Supervision (PSS) licence differs from the standard licence, as its only purpose is rehabilitation.¹⁹ This is a contrast to the standard licence which continues to have the joint purpose of Public Protection and reducing re offending. The requirements that can be imposed are less prescriptive and allow staff greater flexibility in deciding how best to use them. Some IOM nominals may only serve a brief period in custody and then be released on a short licence before moving into the PSS period. IOM nominals should be made aware during the induction period of the expectations that will be placed upon them at this point as this represents a significant change in the licence. All such key points in the sentence should be shared with the police so they are aware of the powers that Probation have at each point, should an IOM nominal fail to comply.

Best Practice

• All efforts should be made for the case to be discussed at a MACC/MAP prior to release, if this is not possible the PP and Police OM should discuss the case and agree initial steps.

• The COM should request intelligence from the releasing prison, even if this is after release.

• The action place should be shared with the nominal prior to release, if possible, either in person or sent via Email a Prisoner (EMAP) facility.

Cases in Custody During Reset

IOM staff should be engaging with the Prison Offender Manager (POM) on any IOM case in custody. This allows for discussions on compliance and engagement and prepares someone for their licence conditions. Where possible all IOM nominals should be visited in custody as a joint police and probation appointment. Reset discussions should take place so everyone is clear on the expectations placed on them upon release.

In cases where there would be a short period of time on Licence the ‘added value’ of being migrated onto/remaining on IOM would need to be considered. To ensure compliance and engagement upon release, the nominal would need to be aware of the expectations that are set for release and the Practitioner should ensure all services and support are in place to allow the nominal to resettle into the community.

Recalls During Reset

Upon recall, the case should be reviewed to ensure that IOM is the right approach to continue to manage the risks and needs of the nominal. The Probation Practitioner and Police staff should meet with the nominal to outline the expectation on release. Should the nominal be moving into the final third of their Licence period, all relevant signposting should be undertaken to ensure support can continue upon release, particularly as Probation contact will cease. In this instance, referral to publicly available services will be required.

During the final third, recall thresholds remain unchanged and information may be received regarding licence breach or indications that recall threshold has been met. This would require the Probation Practitioner to undertake follow up and/or enforcement action.

In circumstances where the recall threshold is not met and a lower-level sanction is required, Licence Compliance Letters remain applicable. ‘Consider a Recall’ should be used for all cases where the Probation Practitioner believes that the recall threshold may have been met, resulting in either a decision to recall or the issuing of a Decision Not to Recall letter.

During reset, nominals who are recalled are required to attend a face-to-face appointment on release. This appointment is enforceable. Further, nominals who were recalled on licence and re-released at the end of their licence period and start of PSS period are required to attend a face-to-face appointment on release. This appointment is also enforceable.

However, Probation Sentence Management contact will not be resumed unless there is a change in circumstances which means that the individual meets the exemption criteria.

Licence Conditions and Reset

The IOM nominal will need to continue to comply with all other requirements of their Order/Licence/PSS.

Prior to the suspension of contact, Probation Practitioners should review licence conditions and consider:

• If they are still necessary and proportionate 

• If not vary, add or remove in line with the guidance 

• The need to engage with the Victim Liaison Officer (VLO) as part of this process in line with guidance

Where there is a Licence condition in place to engage with IOM; ‘c) To engage with the Integrated Offender Management Team, and follow their instructions’, the practitioner must, in consultation with relevant IOM partners in the MACC, decide whether to remove/vary this condition for the final third and whether the Police IOM team remain the single point of contact to provide ongoing contact arrangements with the individual. Should a case remain in the IOM cohort, it is suggested that this condition should remain to enable effective case management. If a nominal fails to adhere to this, information should be shared to enable appropriate reactive management.

Once a nominal’s Licence terminates, should they be subject to Post-Sentence Supervision (PSS) (under 12-month sentences), the IOM condition will no longer be in place. As such, no offered appointments will be enforceable, due to the terms of PSS. At this stage, a further decision needs to be made to assess the necessity of the nominal remaining on IOM.

On the day of release, nominals should be fully aware of reporting instructions having already engaged in pre-release planning with the IOM team. The release licence should also include clear reporting instructions with an identified IOM Police offender manager and COM, in more complex cases where an agreement has been made to collect the nominal from prison, this should be communicated at the pre-release meeting. The initial contact for those subject to Licence or Post Sentence Supervision will need to take place within one working day of their release. To ensure all critical areas are covered in preparation for release staff may wish to refer to the Resettlement Checklist²⁰ included within the guidance.

13. Pathways to reduce reoffending

The Social Exclusion Units 2002 report introduced the seven pathways to reduce reoffending which provided the framework for the governments Reducing Reoffending delivery plans and remains the foundation for IOM. These core elements reflect the distinct causational factors of prolific and repeat neighbourhood offenders, it is therefore essential that the agencies specialising in these core pathways are integrated into local schemes to ensure that cohort members benefit from the support and treatment required to assist their rehabilitative journey.

Whilst many of the Fixed cohort members will already be engaged in many of their identified pathway services, through the orders of the court, others will require the identification of local authority, third sector and locally commissioned services to support their journey outside of their statutory obligations.  It is therefore recommended that local IOM arrangements seek to ensure that the pathway providers are fully represented to provide maximum support and optimum outcomes. 

Accommodation

Accommodation, and more importantly a home is a critical factor in reducing reoffending rates, particularly in providing a stable and secure home for individuals leaving prison or on community orders. The suitability of accommodation for individuals subject to Integrated Offender Management (IOM) is vital and Police play a critical role in assessing suitability of accommodation for IOM nominals and should forming part of the discussions in release planning.

Access to stable and secure accommodation is essential for the successful rehabilitation of offenders, allowing them to maintain employment, access healthcare, and reduce the likelihood of reoffending. Research indicates that individuals who lack stable accommodation upon release from prison are nearly 50% more likely to reoffend (HMIP 2020). Housing legislation is the responsibility of the Ministry of Housing, Communities and Local Government in England and the Welsh Government in Wales, with local authorities having a statutory responsibility for housing and homelessness.

HM Prison and Probation Service (HMPPS) offers short-term temporary accommodation, including in Approved Premises or for Home Detention Curfew release, when additional public protection measures are necessary. HMPPS has also established Homelessness Prevention Taskforce teams (HPTs) in all probation regions, which work collaboratively with local authorities, private landlord associations, public health teams, the Department for Work and Pensions, the police, and voluntary organizations to find suitable accommodation options for homeless prisoners upon their release. These efforts aim to establish better working relationships and improved accommodation pathways for people on probation who may face homelessness upon release from custody while increasing the supply of housing available to prison leavers. HMPPS has three levels of Community Accommodation Services (CAS) that is offers in the community.

CAS 1 Approved Premises (AP)

APs can support a safe transition from custody into the community and provide a high-level of monitoring and public protection by engaging residents in purposeful activities and providing drug testing where appropriate. APs are staffed 24 hours a day and balance care with control. They impose various constraints on residents’ freedom. There are 100 APs across the country with over 2,250 bed spaces and a normal length of stay of 3 months, but this can be longer depending on the availability of safe move-on arrangements. Close working with Multi Agency Public Protection Arrangements (MAPPA), including Local Authorities and housing providers is crucial. Some APs are designated ‘Psychologically Informed Planned Environments’ (PIPEs). This means that additional expert psychological input from NHS clinicians is provided to help APs manage nominals with personality disorders.

CAS 2 (formerly BASS)

Community Accommodation Services Tier-2 (CAS-2), previously known as the Bail Accommodation and Support Service (BASS), provides temporary accommodation with support for low and medium-risk individuals who would otherwise be held in prison. The service is available to individuals on bail, home detention curfew, released from a custodial sentence of less than four years and of no fixed abode, on licence, and at risk of recall due to loss of accommodation. CAS-2 offers over 550 bed spaces for both men and women across England and Wales. The procurement of properties and move-on support are achieved through partnership working with various agencies playing key roles. CAS-2 also provides step-down accommodation from Approved Premises (CAS-1) for those who meet the core eligibility criteria and are reassessed to low or medium risk of harm.

CAS 3

In 2022, HMPPS launched the Community Accommodation Services Tier-3 (CAS-3) accommodation service, which provides up to 12 weeks of transitional accommodation for prison leavers at risk of homelessness. Initially launched in five of the 12 Probation regions in England and Wales, it is now rolled out nationally, providing temporary accommodation for around 12,000 offenders at risk of homelessness per year. CAS-3 offers suitable accommodation for up to 84 nights to individuals at risk of homelessness upon release from prison or as part of their resettlement and move-on from Approved Premises or CAS-2. Individuals subject to supervision by probation, including IOM nominals, receive ongoing support from their COM and additional support through the accommodation service.

When providing temporary accommodation placements, HMPPS aims to ensure that they are of high quality and that residents are integrated into suitable longer-term housing and the community through close working with partners. CAS-3 service specification nationally specifies quality accommodation placements to enable individuals to settle effectively following custodial release or move-on from CAS-1 and 2.

Rough Sleeping

The UK Government is committed to ensuring that every individual with a history of offending can secure and maintain settled accommodation. Having somewhere to live gives people a stable platform from which to access health services, hold down a job and reduces the likelihood of them reoffending. ‘Ending rough sleeping for good’²¹ is a cross-government strategy, published in September 2022. It sets out how the government and its partners will work together to deliver on the government’s manifesto commitment to end rough sleeping. It also lays the foundations for long-term system change to end rough sleeping sustainably and for good.

The Welsh Government has reiterated its commitment to tackling homelessness by building on an initial £10 million in funding, which was announced in March 2020 and made an additional £40 million available. This increased the overall homelessness funding package to £50m and demonstrated the Welsh Government’s commitment to ensuring it delivers a transformational step-change towards achieving its goal of ending homelessness in Wales as laid out in its ‘Strategy for Preventing and Ending Homelessness’.²² Building on the 2019 Strategy, The Homelessness (Priority Need and Intentionality) (Wales) Regulations 2022, introduced in October 2022, means that a person who is street homeless will be considered as having priority need for accommodation, alongside anyone who they may be expected to reside with. This new addition represents a legal validation and continuation of the approach adopted by Welsh Government and carried out by local authorities and charity partners during the pandemic, to ensure people who are rough sleeping receive the support they were often excluded from prior to the pandemic.

The Homelessness Reduction Act (HRA)

The HRA (2017) has significantly reformed England’s homelessness legislation by placing duties on Local Housing Authorities (LHA) to intervene at earlier stages to prevent homelessness in their areas. The HRA brought two new key duties to public bodies and Local Authorities: the duty to prevent and the duty to relieve homelessness.

Prison and Probation providers are now subject to the ‘Duty to Refer’²³ and have a statutory responsibility to refer anyone at risk of homelessness to the LHA 56 days before they are due to become homeless.

Attitudes, Thinking & Behaviour

Many IOM nominals come from the most socially excluded groups in society, however committing a crime is an active choice and can be linked to underpinning attitudes, thinking and behaviour. Intervention programmes within both custody and the community aim to challenge thinking and behaviour and encourage individuals to consider the impact of their offending on victims, society, their family etc. whilst developing pro-social problem-solving skills to reduce risks of reoffending and harm.

Family and significant others

Whilst working within IOM, it is important to adopt a whole family approach in their active management, specifically cases within the 18-25 age bracket who are more likely to reside with parents/family members.

Families and significant others can play a vital role in boosting rehabilitation and assisting in resettlement. However, families need to be willing and able to engage in the process. In custody, encouraging visits, telephone and letter contact can be a useful medium. Where available, IOM nominals should be encouraged to undertake parental or relationship learning/skills building. Where IOM nominals are isolated or have no family/friends, for example if they have been in the care system or for some registered sex offenders, sentence planning should encourage the development social bonds and set up opportunities to engage in this.

The identification of family contact at reception into custody or at the start of an order can help staff understand the support on offer through the gate and if agreed by the IOM nominal, it can help support the sentence planning process. Identification of any community issues/difficulties that require resolution during the custodial sentence should also be prioritised e.g. housing tenancies, employment or notifying Social Services.

As part of the pre-release meeting and sentence planning post release, an IOM nominal should be asked about what is important to them and certain interventions should be sequenced with the aim of increasing social capital. The involvement of a significant other/family member will aim to provide the nominal with an added measure of support, along with a contact for the family within IOM that will aim to harness that professional relationship further. Should there be active social services engagement, this would require regular liaison and involvement in the sequencing of interventions/support being made available. This is particularly pertinent with female nominals.

IOM teams should make every effort to ensure being on IOM does not negatively affect the families of nominals. Where possible, home visits should be conducted using unmarked Police cars and Police IOM offender managers refrain from wearing Police uniform. This minimises the visibility of Police presence for the family. HMPPS are in the process of completing a framework on this area of work, which will aim to provide more detailed practice guidance.

Substance Misuse

Drugs

There are clear links between offending and substance misuse across the IOM cohorts. Problematic use of some drugs, notably heroin and crack cocaine, can amplify offending behaviour, and there is a strong association with acquisitive crime such as shop theft and burglary. Treatment should be started pre-release with continued engagement with services post release. Regular drug testing helps to monitor engagement and this can be enforced within the licence or by the Court through interventions such as Drug Rehabilitation Requirements.

Drug Testing

In all instances, the Practitioner should be responsive to the risks and needs of the nominal when undertaking testing. The results of the instant tests (purchased by some regions) and the 5 panel ‘back to lab’ tests are an indication of potential use only. Probation can continue to use the in house back to lab tests for suspicion and risk-based testing. If the outcome of treatment provider testing is intended for use for enforcement purposes in court, this must be on the basis of a probation back to lab screening being undertaken with confirmation. Each test must be recorded correctly. With regard to Police undertaking the test with nominals, this is not currently permitted as this has not been written into the current contract and as such this risks chain of custody issues arising. However, Police are able to undertake locally sourced screening tests with nominals, but these tests cannot be used for enforcement, but would provide good intelligence regarding usage and enable supportive interventions to be considered or if necessary a back to lab evidential test could be undertaken by Probation.

Probation staff can undertake the screening ‘back to lab’ test during a home visit. In some areas, treatment providers will continue to undertake clinical testing for DRR cases which is addressed in the interim guidance²⁴:

1. ‘In addition to testing for ‘justice purposes’, individuals on a DRR may also be drug tested for ‘clinical purposes’ by local authority commissioned treatment providers. Testing for ‘clinical purposes’ can complement but should not replace drug testing by Probation staff as we do not have chain of custody evidence which assures that such tests meet the legal burden of proof standard required to be used within Criminal Justice proceedings. Point of Care testing devices do not meet this burden of proof which is why oral fluid back to lab testing has been provided for the purposes of testing by Probation’

In respect of Probation Reset, drug testing by Probation Practitioners as part of a Drug Rehabilitation Requirement (DRR) on a Community and Suspended Sentence Orders will continue. Further, drug testing undertaken by Probation Practitioners as part of a specific Licence condition will continue unless it is appropriate for the Licence condition to be removed. IOM teams should establish positive working relationships with local partner substance misuse agencies to fully support the holistic approach within IOM.

Alcohol

Similar to the above, agencies offering substance misuse support will also have access to alcohol interventions and treatment. IOM provides the framework through which those who commission drug and alcohol services can work together to identify local need and provision to reduce problematic alcohol use among the IOM cohort. Again, it is important for local IOM teams to establish positive links with these partnership agencies. This has the potential to reduce reoffending, anti-social behaviour and impact positively upon resourcing in the local area through reduced alcohol-related illness and use of A&E services. Resources such as Alcoholics Anonymous and the Alcohol Abstinence Monitoring Requirement or Alcohol Monitoring on Licence requirement could also be incorporated into a Risk Management Plan.

Education, Training & Employment

IOM nominals leaving custody face significant barriers to finding and staying in work. Engaging in ETE can reduce time availability and opportunity for individuals to be drawn into offending; it also removes some of the financial aspects involved in acquisitive crime and is underpinned by desistance research which suggests individuals may be less likely to offend when they have something tangible to lose.

However, readiness to engage in ETE is also important to consider, and some of the pathways discussed above might impact upon their ability to engage in this area. Where suitable IOM teams should support and encourage nominals to access ETE services and help to provide opportunities to gain employability skills and meaningful work.

Finance, Benefits & Debt

Low income, debt, disrupted access to benefits advice and insufficient income to meet their needs often leads to an increased risk of offending. IOM teams should assist in encouraging nominals to access appropriate support services including assisting with a Universal Credit claim, budgeting skills, opening a bank account and referral to debt support/advice centres. Regions now have a referral route via their commissioned rehabilitative services.

Mental Health, Physical Health & Wellbeing

There is often a misconception that mental ill health leads individuals to offend. The link between mental ill health and offending is very complex, in some ways due to the dual diagnosis issue around mental health and substance misuse.

Issues such as mood and anger management can contribute to offending behaviour through poor decision making and reactive behaviour. Equally, issues such as depression, anxiety and low mood are often barriers to individuals successfully engaging in supportive services of any kind. Therefore, if intervention can be provided to address these concerns, then engagement in other services may follow more successfully.

Poor health of offenders is also a concern and can be due to poor lifestyle choices, long standing substance misuse concerns and chaotic lifestyles.

In custody, liaison should take place with relevant prison staff including heath care staff via the POM, and this should be reflected in the sentence plan. It is important to be aware if the IOM nominal has been placed on an Assessment, Care in Custody Teamwork (ACCT) plan, if they are on any medication, including obtaining scripts for substance misuse and medication required from a GP upon release. Many IOM nominals make use of listener schemes and so it may be appropriate to look at mentor services upon release, where it is anticipated they may struggle to manage with their health/mental health/general well-being in the community. It may also be appropriate to consider screening onto the OPD pathway and arranging a consultation prior to release.

In the community, registration with and referrals to the GP and any community mental health teams may also be relevant to reduce risks and protect the public. The IOM Nominal manager must ensure that the IOM nominal is registered with a GP in the community, which should occur prior to release. The lead agency should consider engagement with mental health teams where there are dual diagnosis concerns to encourage liaison between the two services. Diversionary activities should be brokered with local partnership agencies to develop pro social activities and improve physical activity and well-being.

Referrals to any community mental health teams may also be relevant to reduce risks and protect the public. The lead agency should consider engagement with mental health teams where there are dual diagnosis concerns to encourage liaison between the two services.  Diversionary activities should be brokered with local partnership agencies to develop pro social activities and improve physical activity and wellbeing.

In England and Wales, health and justice partners are working closely to improve support and continuity of care when someone leaves prison. We welcome the NHS Long-Term Plan commitment to develop RECONNECT in England, a care-after-custody service. RECONNECT will support prison leavers by making referrals into community treatment services and providing peer mentoring services to help people get to their appointments. 

The IOM Nominal manager is responsible for reviewing cross departmental interaction and updating the partners involved via the agreed local information sharing protocol.

Dynamic Framework

From 26^th June 2021 all services available to those under Probation supervision will be commissioned through the Dynamic Framework. The purpose of the Dynamic Framework is to deliver quality and offer a more responsive and flexible solution to Regions when commissioning interventions for their IOM nominals, taking account of stakeholder considerations.  Successful contracts awarded from the framework will deliver their offers through a suite of interventions known as Commissioned Rehabilitative Services (CRS).  The CRS will offer interventions which will sit alongside existing provision for accredited programmes, in-house structured interventions and unpaid work, making up a range of services to meet IOM nominal need and deliver the sentences of the Court.

Within the CRS, there are national outcomes deliverable against certain categories, which will offer consistency and drive quality through contract management.  These categories are: Accommodation; Employment, Training and Education; Personal Wellbeing; Finance, Benefit and Debt (with a distinction between Adults and Young People in Wales); and Women. There will be flexibility through the Dynamic Framework to commission (and co-commission) against locally identified needs.

Referral Pathways for CRS

Once an IOM nominal need is identified by the POM or COM through assessment and sentence planning, they will access the CRS for the most appropriate intervention. As previously noted, subject to vetting clearance and data protection considerations, Community Rehabilitation Services (CRS) staff may be able to attend monthly case conferences to ensure appropriate referrals are made to services.

In England Regions this referral will be completed and managed through the COM, whilst in Wales it will be accessible through a simplified referral process to the Centralised Operational, Resettlement, Referral and Evaluation (CORRE) Unit.  The CORRE will manage and track the referral process to the identified intervention/ service, until the point that the IOM nominal accesses the intervention, whereupon the relationship with the provider will be managed by the COM in the same way as in England Regions.

The end result for IOM nominals in both England and Wales will be the same; timely access to the most appropriate interventions.

Electronic Monitoring

As one of the measures to address the Government’s ambition to reduce neighbourhood crime, ministers requested a substantial programme of tagging nominals convicted of Acquisitive Crime (AC).  Electronic monitoring for Acquisitive Crime (EMAC) is a compulsory licence condition for qualifying adult nominals serving standard determinate sentences of 90 days and over for specified offences of burglary, robbery and specific theft offences; and who upon release reside in specified police force areas. Qualifying nominals wear a location monitoring (GPS) tag which continuously collects data on their whereabouts. Curfew and/or exclusion zones are not to be imposed unless specified as an additional licence condition²⁵. Prior to any curfew being imposed, relevant address checks have to be undertaken by Police to ensure that the address is suitable, and that risks can be managed appropriately.²⁶

EMAC sits as a tactic of IOM and Probation act as the responsible authority.

The project objectives are as follows:

1. Use location monitoring to “deter and detect" - reducing reoffending by deterring criminal activity and supporting the investigation and detection of further offences.

2.    Maximise the effective use of electronic monitoring data by identifying opportunities for improved data sharing between Probation & Policing (in particular via the Integrated Offender Management scheme) and developing efficient operational processes.

3.    Develop an improved understanding of how trail monitoring can reduce reoffending and evaluate its effectiveness at doing so.

COMs can log in to the Acquisitive Crime Portal and access all tagging data related to the person on probation, reviewing specific time periods and visualising their movements on a map. It is an expectation that practitioners assess the circumstances under which trail monitoring data will be used in the risk management plan. As a minimum, trail monitoring data should inform each supervision session, each review at MACC or MAP meetings and any other points where compliance with requirements, attendance at appointments, whereabout and associations need to be assessed.

The COM holds the responsibility of utilising the data for the following purposes:

• To review IOM nominal progress and behaviour

• To review non-compliance following an alert

• To identify service-user for enforcement purposes

Whilst the Acquisitive Crime cohort, in most cases, aligns to IOM, local nomination processes determine full IOM cohorts. Therefore, if an IOM nominal in the Acquisitive Crime cohort does not meet the local threshold for the IOM Fixed cohort, there is an expectation that they are aligned to the Flex element of the scheme and still be included.

The pathfinder launched in April 2021 in 6 Police Force regions, which allowed for an understanding of the service to be gleaned. The Project was then expanded to a further 13 Forces in September 2021, making 19 Police Force Areas in total. ²⁷

Whilst Police forces in scope of the pathfinder do not hold any responsibility for the licence condition of the EMAC project, there are significant opportunities for Policing within this project. The EMAC project offers the ability to overlay crime data with tagging data to identify if any service users were in the vicinity of a given crime. The Police send their crime data to the hub team who notify them when there are “hits" (a subject was in the vicinity) allowing the police to review the nominals’ movements within the hub, so they can rule the nominal in/out of an investigation.  Additionally, the project offers enhanced opportunities for the risk assessment and management of people on probation.  COMs can log in to the Acquisitive Crime Portal and access all tagging data related to the person on probation, reviewing specific time periods and visualising their movements on a map.

Due to the distinction of crime type within the Fixed cohort for IOM and the criteria for the EMAC project, Robbery is an eligible offence.  Further, for individuals subject to a custodial sentence of more than 12 months, they are also automatically MAPPA eligible.  The majority meet the criteria for Level 1 and by their offending nature are predominantly prolific, therefore a natural fit with IOM Fixed cohort.  Good practice under these circumstances is that this individual will be subject to both MAPPA and IOM, with MAPPA statutory process taking precedence and COM fully included in the MAPPA process²⁸.  Not all acquisitive crime offences are ‘in scope’. If there are other offences committed, the sentence for the ‘in scope’ offence, needs to be the longest or joint longest in order to be made subject to the EMAC tag.

Alcohol monitoring or any form of voluntary electronic monitoring should not be used with EMAC eligible cases as the addition of such interventions could impact on the evaluation of the pilot. However, Electronic Monitoring is available in standard service for those IOM cases released on extended or indeterminate licences beyond the EMAC Project. 

EM and Reset

In relation to Electronic Monitoring (EM), EMAC cases are automatically part of the IOM fixed or flex cohort. Unlike most GPS monitored requirements the Acquisitive Crime pilot has a strict time limit and eligibility criteria. Where people on licence are eligible for the scheme, they must have a GPS trail monitoring condition imposed for up to 12 months. This may exceed the two thirds stage of the licence.

Therefore, approaching the two thirds stage, a MACC meeting should review the risk management plan and assess whether conditions beyond simple trail monitoring are still necessary and proportionate. 

For further information regarding EM, please see EM reset guidance via the below link.

14. Training opportunities

National IOM Training Library

The joint HMICFRS and HMIP thematic inspection identified a gap in professional IOM training. To address this, the National IOM Team have developed an IOM Training Library. The library is designed for use as a multi-agency library, with contents being applicable to both Police and Probation, and for locally led delivery based on the needs and skills of local individuals and teams.

The aim of the Training Library is not to re-write or supersede any training which already exists on Civil Service Learning (Probation) or College of Policing (Police) e-learning platforms. Rather, the intention of the training is to raise awareness of existing e-learning and signpost to further resources.

The training library has been split into four training blocks below, and full details can be found in the Managers Guide for IOM Training (available in the library).

Organisational Procedures

Practitioners across Police and Probation expressed a desire to have a richer understanding of the procedures and work of the other organisation.

Police

Prior to the creation of the National IOM Training Library, a National IOM Police Training manual was created, in conjunction with West Midlands Police, which provides the information and support offender managers require, to fully understand and deliver their role. It represents the first step in addressing the gap in national training. It has been designed in consultation with all relevant NPCC portfolio holders and a number of subject matter experts as a national training product which will support local training delivery.

Additionally, there will also be mandatory learning dictated by either the College of Policing and/or local forces. Mandatory learning will vary by force, so it is recommended that managers link in with their local Learning and Development team or follow their own processes for management of employee training.

Probation

Probation have a wealth of experience in the theories of desistance and case management. Local areas are encouraged to establish development days whereby each agency briefs on an aspect of IOM management to enhance understanding across the system. Peer led reviews of existing case management is a helpful tool to understand best practice and areas of development. There is a National Training Programme being developed through reviewing current practice and resources and identifying any gaps.

In addition, some mandatory e-learning is required as part of the Competency Based Framework (CBF) and desirable learning, based on job roles. There are frequent publications of new e-learning, so regular review of this page is recommended.

15. Performance and Quality

Monitoring performance to allow professionals to see progress and to identify and mitigate risk is an essential part of case management.

Within both agencies there are a number of tools that can be utilised to monitor and reflect an individual or cohort performance as shown below. Currently these systems are not aligned, it is therefore recommended that IOM schemes utilise the minimum standard reporting detailed below and combine information to create a combined performance framework.

Police Performance

It is recommended that as a minimum reporting standard all Police forces utilise the IDIOM system to offer a consistent performance tracker for the IOM caseloads. The IDIOM system allows IOM police offender managers to track their cohort or individual performance such as the cost of crime or reoffending rates, calculated by region, area, cohort or time period. IDIOM will allow Police forces to utilise established and consistent summary performance reports to support their command team or partner agency forums. All forces should align their IDIOM usage to the IDIOM minimum standards published September 2022 and revised in February 2023.

Probation Performance and Quality Assurance

The Probation Service quality assurance framework is underpinned by the principles of ‘effective practice’ and informed by desistance theory.

The OASys self-assessment questionnaire allows the IOM nominal to identify those areas they think are linked to their criminogenic needs.  By enabling the IOM nominal to identify these it allows a focussed sentence plan.  It also allows the practitioner to monitor achievements against it so that strengths can be identified.  Such progress should be recorded on case management systems and narrative on the positive changes captured in the OASys document.

Performance measures set and monitored by HMPPS are reported on regularly by the PS Performance and Quality Teams. It is expected that each region maintains accurate nDelius registration reflecting the current IOM cohort. There are also sub-categories added to the existing IOM register to separate the cohorts into IOM-Fixed, IOM-Flex, IOM-Free. This will ensure that regions are able to accurately reflect progress of the implementation of the new guidance by specifically measuring the outcomes of the IOM Fixed cohort. Further, the HMPPS central performance team have devised a specific IOM report that can be accessed by Probation Regions. These reports can be analysed by regional teams and feed into the divisional governance to reflect the progress of IOM Nominals.

The IOM performance guidance and training materials link is below. This guidance should be used in conjunction with relevant nDelius case recording instructions, service level technical notes and the IOM Performance Management Framework. The guidance provides an overview of the current measures applied to IOM Nominals, outlines how performance is calculated and notes best practice considerations in order to achieve the desired performance outcomes.

Performance Considerations

The National IOM Strategic Leads Group will play a crucial role in monitoring performance of all areas against this strategy, in particular the Fixed cohorts. The HMPPS Regional IOM Leads will be responsible for ensuring performance reports contain the required information within their region and to track both the implementation and delivery of the revised strategy for their region. Both a review of the IDIOM, CSS and the Probation MIS reports should be discussed and analysed and will be reported to the Board for review. Such analysis will allow Police and Probation to analyse the effectiveness of their local IOM scheme.

Quality assurance documents have been produced to allow regional Probation and Police Leads to review and feedback on their schemes.

Performance in Final Third

Probation

The IOM Performance measures focus on the Fixed cohort data. Owing to Probation contact ceasing in the final third of an Order or Licence, this data will not be collated for this period, through using the ‘contact suspended’ NDelius register. As noted, this aligns with the expectation that other agencies are not expected to offer additional contact due to Probation contact ceasing. This will enable appointments to be reduced from three per week, to ensure safe exit planning from the IOM scheme.

If it is agreed at MACC that the nominal will remain on IOM for the final third, the nominal should remain in the same cohort (fixed, flex or free). There would only be a requirement to move out of fixed when they become non-stat nominals.

Police

To support the monitoring of the cohort during this ‘final third’ period, additional categories have been added to IDIOM.  Individuals should be added to one of appropriate categories at the two third point in addition to their main Fixed, Flex and Free or deregistered categories.  Full details have been added to the IDIOM Minimum Standards, available on the National IOM Knowledge Hub.

• IOM Final Third - Fixed

• IOM Final Third - Flex

• IOM Final Third - Free

• IOM Final Third - De-Registered

16. Exit Planning

In order to ensure a safe exit from the IOM cohort, an effective exit plan is required. Exit planning should be seen as a process where the nominal is carefully managed and prepared for being deselected, to avoid a ‘cliff edge’ once removed, as many of the support services and interventions will cease. This also applies for any nominal moving from IOM management to generic management, approaching final third of an Order or Licence and Probation contact is due to cease and/or at the end of their Order or Licence, should they remain in IOM cohort during the final third. Gradual reduction of face-to-face appointments should be offered to the nominal to prepare for deselection or Probation contact ceasing, as part of a safe exit plan. The nominal needs to be signposted to community support and interventions to avoid a return to previous lifestyle and associates and to maintain a stable lifestyle.

17. Equality Impact Analysis

IOM is intended to support nominals towards desistance and should ensure any additional enforcement is proportionate to risk. However, the increased involvement of Police could result in additional enforcement activity among the IOM cohort. It is crucial therefore that IOM does not disproportionately target specific communities. Minimising the scope for unconscious bias in decision making, can be achieved through the following mechanisms:

Using a data driven matrix approach to our Fixed cohort protects against unconscious bias from decision makers.

1. When making decisions about referrals into the cohort, or supervision of nominals on the cohort, Police and Probation should consider employing evidenced‑based techniques for de-biasing decision making. This is particularly important in respect to decisions around enforcement.

3. IOM Schemes should also consider investing in unconscious bias training for Police and Probation decision makers. It is expected that each Probation Region and Police Force³⁰ Area should complete an Equality Impact Analysis³¹ that provides assurances that the implementation of this guidance does not impact disproportionality towards any protected groups.

Summary

We need to take a holistic approach to the management of the nominal, from the beginning of their IOM journey to the end. It is important that the right interventions are in place, at the right time, to manage their risks and needs. Continued collaboration and information sharing in the MACC meetings and beyond is integral to achieving the best outcomes for the nominal and keeping the community safe.

Appendices

Appendix A: Offences included within the neighbourhood crime fixed cohort

Appendix B: IOM - Guidance for report authors

When writing a report on a current IOM Nominal

The case will be flagged with an IOM register on NDelius. In the usual way, the COM for the case can update Court Probation staff on progress once contacted. Court Probation staff need to inform the COM that their case is in Court and discuss the offence, risk issues and possible proposals. IOM Police will also have regular contact with the individual and can provide information.

The Court can be informed in the report that the individual is being supervised by the IOM scheme. Some suggested wording is;

‘X is jointly and intensively supervised by Police and Probation as part of Integrated Offender Management (IOM) arrangements. IOM is not a statutory arrangement, but an approach to supervision aimed at rooting out the causes of an individual’s offending and addressing their offending related needs. IOM attracts regular monitoring and intelligence sharing between the agencies involved, and X is offered an enhanced level of support and supervision, commensurate with the risks X poses’.

IOM: Information and Considerations at Court stage

Sentence planning in IOM focuses on addressing criminogenic needs and reducing likelihood of reoffending and harm. Interventions will be sequenced and delivered by multiple agencies. Intensiveness of reporting arrangements are commensurate with assessed risks, needs, and responsivity.

When writing a report on an individual who is eligible for IOM, but not a current IOM Nominal

Court staff are not directly required to identify new cases to be selected for IOM management nor make referrals to the team. Whilst IOM is focused on prolific neighbourhood acquisitive crime, specific criteria can vary depending on the scheme.

All IOM Nominals are accepted on to the scheme post sentence, following a referral by their COM and a joint decision by Police and Probation. As this will happen post sentence, there can be no guarantee at the pre-sentence stage, that an individual will be accepted onto an IOM scheme.

IOM does not replace the need for effective sentencing. Report writers will still need to assess the needs of individuals and make sentencing proposals which address risk and need. IOM will work with the sentence requirements imposed and provide additional interventions where required.

Court Duty Officer

Expedience of information sharing in IOM is crucial to effective management and this is inclusive of Court Teams. When individuals are brought in via overnight remand and may appear in Court after their arrest, the IOM team can appraise the Court by providing an update of compliance, engagement and progress via the Court Duty officer.

Appendix C: Case Transfer Process

Permanent Case Transfer Process

Declined

Temporary Case Transfer Process

Home area Police Offender Manager and Probation Practitioner work collaboratively with Person on Probation throughout duration of transfer and initiate plans for their return or full case transfer as required

Appendix D: Template Documents

Appendix E: Tracked Changes

Schedule of changes to Operational Guidance (v5)

Note - spelling and punctuation corrections are not included in this schedule.