Niacro

NIACRO works to reduce crime and its impact on people and communities

NIACRO’s RESPONSE TO THE CONSULTATION ON EU STRUCTURAL FUNDS NORTHERN IRELAND COMPETITIVENESS AND EMPLOYMENT PROGRAMMES 2007 – 2013

MARCH 2007

INTRODUCTION

NIACRO, the Northern Ireland Association for the Care and Resettlement of Offenders, is a voluntary organisation, which has been working for 35 years to reduce crime and its impact on people and communities.  NIACRO provides services under the headings of: working in communities; working with children and young people who offend; working with offenders and ex-prisoners; working with prisoners, their families and children; influencing policy and practice; and applying resources effectively.

NIACRO’s Vision is to be acknowledged as making a unique contribution to the development of a society in which the rights of everyone, including offenders, are equally respected.

NIACRO’s Mission Statement is “working to reduce crime and its impact on people and communities.

NIACRO welcomes the opportunity to the Consultation on EU Structural Funds Northern Ireland Competitiveness and Employment Programmes 2007 – 2013.

Question 2:

What are your views on the Labour Market Analysis relating to the Draft ESF Employment Programme?

As an organisation that works with offenders, prisoners as well as ex-offenders and ex-prisoners, NIACRO works with a significant number of people who are affected by, amongst others, barriers in the labour market.  NIACRO welcomes the broad view articulated in the ESF Employment Programme that seeks to reduce the high numbers of economical inactive, improve the skill and qualification levels of existing employees as well as those seeking to enter employment as well as young people who are also unemployed.

There is significant acknowledgment within and beyond the criminal justice system, that there is a significant number of the population who have a criminal and/or prison record and who are having much less success in terms of accessing the labour market compared to the mainstream population. 

NIACRO have been attempting to address labour market barriers using a model that seeks to address legislative, structural and attitudinal issues in an attempt to access opportunities for its client group.  NIACRO has developed formal relationships with organisations such as Northern Ireland Prison Service (NIPS), Probation Board for Northern Ireland (PBNI), Business in the Community (BiTC), Department of Employment and Learning (DEL) as well as Social Security Agency (SSA).  An operational model has been constructed that seeks to develop opportunities within the context of securing employment which if successful will reduce crime, fear of crime and ultimately the number of victims of crime.

NIACRO is conscious that the jurisdiction of Northern Ireland is experiencing high levels of employment.  Yet NIACRO is aware that those with a criminal record still are likely to form a disproportionate element of the benefit dependant, long term unemployed.  NIACRO alongside other significant and appropriate organisations is seeking to develop a change by the following means:

• Influencing legislation – specifically the Rehabilitation of Offenders Order currently under review but also other Employment Legislation that militates against those with a criminal record.
• Addressing structural barriers eg recruitment and selection of those in the statutory, private as well as voluntary and community sectors.
• Supporting beneficiaries into work by providing and/or locating programmes that address areas such as training (including essential skills), as well as criminal record disclosure, job preparation and job seeking.
• Supporting beneficiaries in work through access to job placements and actual jobs.
• Supporting employers by encouraging recruitment and selection with respect to placements and actual jobs.
• All this work to be carried out in an equality environment which does not recognise barriers experienced by those with a criminal and/or prison record.  Thus NIACRO and its partners/stakeholders are willing to examine and develop models that provide incentives for both beneficiaries and employers.

NIACRO and its key partners/stakeholders recognise the need to have a holistic response to the beneficiary population.  NIACRO has had experience of managing European funded programmes such as ESF, NOW, INTEGRA and EQUAL that are employment led but there is a growing realisation that we also need to take into account other beneficiary needs which must be addressed.  These needs relate to finance, accommodation, training and employment, health, (many beneficiaries experience mental health problems as well as problems relating to drugs and alcohol), behaviour (eg sex offending) as well as the requirement to link individuals to  welcoming social networks whether these be individual, familial or community.

NIACRO recognises that intervening only at one point in the complicated and sophisticated spectrum of crime and employability is unlikely to be successful.  Support is required not only to beneficiaries but also employers.  There is widespread agreement as to analysis of the problem and how it should be addressed.  We are entering a phase where real, grounded “joined up” work will be critical to the success of enhancing the employability prospects of those affected by the criminal justice system and seeking to enter or re-enter the labour market.

Question 4:

What are your views on the proposed strategy, priorities, key areas of expenditure and indicative allocations with a focus on Lisbon Employment priorities, for the ESF Employment Programme?

NIACRO does not believe that current activities funded under the Peace II Programme should be transferred to the new ESF Programme.  Peace related activities have been and do support the unique requirement to move away from conflict and to  establish a society that is more settled and specifically is non violent in the manner it conducts its relationships.  There are many structural deficiencies that need addressed, specifically those commonly referred to as Section 75 Groupings.  If current Peace and ESF Programmes were to be merged important work is likely to be lost in relation to both programmes.

Peace programmes have an element of ERDF funding which would likely be absent should the programmes be merged under a pure ESF programme.  This may cause difficulties for organisations currently constructed within a Peace II framework, as would be the requirement to provide matched funding.  NIACRO believes that it is possible to fund Peace III from ERDF (ref: Council Regulation EC1080/2006 Article 6.1).

In relation to the Peace programme target of ex-prisoners - the size of the problem being dealt with should not be overestimated.  Much has been made of the size of the politically motivated ex-prisoner population – figures range from 25,000 – 30,000.  NIACRO is currently involved in commenting on a voluntary code of practice that is about to be issued to employers which will attempt to open up opportunities for individuals in this cohort.  NIACRO is on record as stating that a voluntary code is unlikely to work given that employers have the opportunity to act in a voluntary capacity throughout the period of the conflict and more specifically since the signing of the Good Friday Agreement. However this is a unique and decreasing cohort primarily due to age profile and fits completely to a Peace type programme.

The “ordinary” ex-offender and ex-prisoner population is however increasing.  Approximately 50,000 criminal cases are dealt with by the Courts every year.  The daily Prison population is approximately 1,500 and rising.  6,000 people experience prison every year and the prison service is planning the development of more spaces.  As stated in Question 2, individuals in the criminal justice system form a disproportionate number of those benefit dependant, long term unemployed.

NIACRO welcomes the intention to develop programmes that are client focused, flexible with outreach and which address the growing range of essential skills.

NIACRO welcomes the intention to provide for up to six months, support to those after gaining employment

These beneficiaries experience multiple disadvantages with respect to progressing towards the labour market.  The range of disadvantages can include finance, accommodation, health, behaviour and relationships as described earlier.  NIACRO has devised interventions with respect to all of these areas and also have knowledge as to how to access appropriate resources not within its immediate sphere.

NIACRO provides programmes which are based on individual need.  Having experienced and implemented the “one size fits all” model.  It is clear that programmes that build on individual capacity, self worth and personal esteem are ones that are more likely to evidence employability progression.

The Social Capital model was tested with the assistance of NIACRO (as a case study) in Northern Ireland.  We are pleased to see this model, or something like it, introduced to a new programme.  In NIACRO’s view this would recognise important softer outcomes which should be analysed in evaluation studies.

Addressing Priority II – Improving Work Force Skills and Adaptability

Target 3.28 recognises that for some participants the outcome will be a qualification but for others the outcome will be engagement in education or training.  NIACRO is seeking to focus on jobs and job placement however it is important to have a developmental continuum with regard to employability which can act as an incentive (people can locate their own movement and development) to NIACRO’s beneficiaries.  NIACRO has used the Richter Self Assessment tool which has been very successful and beneficiaries evidence a developed sense of empowerment and involvement in employment programmes where it is used.

Question 5:

What are your views on the proposed cross cutting themes for both Programmes of ensuring equality, promoting good relations and sustainable development and creating sustainable communities?

Through its current EQUAL programme NIACRO is currently  developing a Matrix with its European partners which will  examine the contribution of other Ministries as well as Ministry of Justice (in the Northern Ireland context this means the NIO) as to their contribution to an employment led and developing resettlement strategy.  As a contribution to this although the beneficiary group is not currently included under Section 75, NIACRO is seeking to redress this. 

NIACRO is developing its community safety work in conjunction with a variety of local District Councils and this work is acknowledged as having a significant contribution to sustainable development and creating sustainable communities.  In short less crime in society in general and in local communities in particular, will result in communities that are healthier and consequently more sustainable.

NIACRO has existing cross cutting links with health, housing, social care as well as employment and learning.  The Matrix referred to above will identify and specify where these links exist and where they could and should be developed and this joined up approach will contribute to increased employability.

Question 6:

What are your views on the proposed management and implementation arrangements for both programmes including simplified delivery structures, coordination arrangements with other community programmes and technical assistance proposals.

In NIACRO’s view the relationship between the Department of Employment and Learning - European Unit, works very well and NIACRO would be seeking to build on this.    NIACRO is aware that changes may occur as a consequence of RPA and we would regret any disruption that could occur as a result of this process. 

Additional Points:

1.         Transitional arrangements between BSP and new ESF Programme:

NIACRO has had significant experience, particularly during the last 15 years of managing European programmes in transition.  Such processes can be complicated and require trust, understanding, good practice and transparency between the managing authority and those delivering programmes.  NIACRO has responded effectively to the priorities and challenge of delivering new programmes.

Ease of administration however should not determine the awarding of new contracts and NIACRO has sought to develop its work particularly within the context of European funding.  This work continues to be grounded and relevant as well as being creative and innovative and has mainstreaming as its objective.

2.         Timetables

It is essential that the managing authority recognises the importance of effective funding timescales to allow the efficient delivery against the proposed objectives.  ‘Positive Steps’ (The Government’s Response to Investing Together: Report of the Task Force on Resourcing the Voluntary and Community Sector) clearly highlights the importance of having a longer term funding strategy for the sector. It is essential that the managing authorities adopt the recommendations outlined within ‘Positive Steps’ and at the very least provide the opportunity for cycles of three year funding under the new programme.