Community Safety Strategy - NIO Consultation
Publication Date: 10 June 2009 (Archive)
The Community Safety Strategy is of the utmost importance for the well being of communities. NIACRO shared their experience and their views with the NIO on what the new Strategy should include.
NIACRO’S RESPONSE TO
“TOGETHER, STRONGER, SAFER”
– COMMUNITY SAFETY IN NORTHERN IRELAND –
CONSULTATION
January 2009
1. INTRODUCTION
1.1 NIACRO welcomes the publication of a strategic framework for Community Safety and the efforts made to recognise the needs and concerns of local communities. We welcome in particular the greater emphasis on neighbourhood and community and that the strategy is no longer linked directly to police targets given that community well-being is a result of many factors of which the experience of crime is but one.
1.2 The NIO Public Service Agreements for 2008-11 express reasonable expectation that targets to reduce anti-social behaviour and crime should continue to underpin the strategy and that there are clear links with a number of other government departments to deliver on these targets. However it is only when you read the PSA paper that any strategic structure to engage other Departments is evident.
1.3 There is little or no recognition of the role and strength of the voluntary and community sectors experience in Northern Ireland in tackling problems associated with anti-social and offending behaviour and in providing services and support to families. Many of these front end services suffer erratic funding patterns - indeed many of the projects referenced under Regional and Local Initiatives are in this position.
1.4 The strategy should give greater recognition and expression to the benefits of voluntary engagement with people experiencing difficulty in the community. We have considerable experience of working with adults and children who are likely to be subject to the ever expanding raft of statutory instruments already in place or proposed. When we approach them, we often find they have not been in touch with appropriate statutory services - medical, psychiatric or addiction related - and when these relationships are established, quite often the concerns are reduced.
1.5 The Review of Public Administration and the location of Community Safety Partnerships within council areas provide opportunities for initiatives to be developed between agencies and the community to improve community safety. Developing a co-ordinated approach between agencies to community safety is still at a relatively early stage and there has been little opportunity yet to test the impact of many of the recent initiatives. Indeed key departments, namely the Department of Education and the Department of Employment and Learning, have yet to develop an approach to community safety.
1.6 It is NIACRO’s view that the three themes proposed in this strategy provide a focus for direct engagement with communities regarding the causes of anti-social behaviour and for addressing issues for individuals. However we would recommend that “Focus on families and young people” be rephrased as Families and Individuals so as to avoid the implication that young people are disproportionately responsible for anti-social behaviour, and to recognise that individual adults may also need to be helped to change behaviour.
1.7 Key Points
? NIACRO welcomes the emphasis on local neighbourhoods and community engagement.
? NIACRO values the recognition that a sense of community safety comes as a result of a range of factors not just crime and police action.
? NIACRO believes there is a serious risk within these proposals that resources will be used to develop structures to impose “orders” and deal with “failure to comply” instead of tackling the underlying causes of anti-social and offending behaviour and supporting relevant front line services.
? NIACRO rejects the suggestion that bureaucratic labelling (e.g. of “disorder zones”) should be required in order to direct resources to particular needs or problems.
? NIACRO recommends strengthened mechanisms for community engagement and a clearer articulation of the recognition of the third sector’s delivery of front line services dealing with anti-social and offending behaviour in local communities.
? NIACRO recommends greater acknowledgement of the benefits of engagement with individuals prior to any application for a statutory order. There are real benefits to be derived from the voluntary engagement of individuals in their process of personal change.
? NIACRO acknowledges the early stages of cross-departmental working. However, there is a need for an accountability structure that forces departments and agencies to engage more co-operatively with each other.
? NIACRO welcomes the three themes outlined but would recommend taking the focus away from children and deal with a more generic term headed "Families and Individuals".
2. BACKGROUND AND HISTORIC COMMITMENT
2.1 NIACRO has been engaged in crime prevention work for over 35 years and has worked for many years to promote the development of a Community Safety Strategy. Our experience has taught us that the most effective approach to crime and anti-social behaviour lies in strategic partnerships between key agencies which engage in a meaningful way with communities. Such a perspective relies on the willingness and capacity of local communities to identify and begin to address problems, with others, at a local level.
2.2 NIACRO has worked with a range of agencies and a number of communities to deliver community safety initiatives including Galliagh (West bank Derry), Colin area (West Belfast), Tullyally/Currynerin (East bank Derry), Ballysillan (North Belfast) and Limavady (North West). In partnership with the Rural Community Network we targeted a further 13 rural communities.
2.3 NIACRO believes that the Community Safety Strategy should contribute to the aims of the ‘Investing Together’ strategy namely;
? Build stronger and more cohesive communities.
? Deliver public services.
? Tackle social need.
2.4 Further it should link to the themes of ‘A Shared Future’ namely to:
? Tackle the visible manifestations of sectarianism and racism.
? Reclaim shared space.
? Reduce tensions at interfaces.
? Work towards a sense of shared community.
In this context NIACRO has always adopted and promoted a community development and partnership approach to its work.
2.5 As a result of our work in these areas NIACRO is now involved in eight Community Safety Partnerships across Northern Ireland. Our particular contribution has been in to developing community engagement and supporting interventions in relation to anti-social behaviour and hate crime. NIACRO also works across a range of the devolved Departments seeking to have services tailored to our service users. Evidence to date is that while the NIHE is engaged there is limited engagement from other key stakeholders and none from the Department of Employment and Learning. While inter ministerial and inter departmental groups will help, as will the advent of community planning, without the political will to drive the involvement of all departments the strategy will not deliver.
3. CREATING SAFER NEIGHBOURHOODS
3.1 The experience of anti-social behaviour increases the public perception of crime. What is regarded as anti-social behaviour can vary considerably in different communities. It is essential therefore that this strategy addresses the need to inform the public in a clear and consistent way about the actual levels of crime and what initiatives have been tested and found effective in dealing with anti-social behaviour and crime.
3.2 Furthermore, it is NIACRO’s view that this community safety strategy must include a clear reference to influencing the media given that so much of the fear of crime is affected by the manner in which it is publicly discussed. Confidence in the criminal justice system is unlikely to increase without evidence of positive outcomes publicised through the media. In recognition of its importance, criminal justice organisations, in both statutory and voluntary sectors, have committed specific resources to improve communications with the public. This strategy offers an opportunity to promote connection between these organisations so that consistent messages can be given publicly, not just in responding to concerns about high profile events/cases.
3.3 NIACRO also believes that this strategy should connect with the Victims and Witnesses Strategy in a way which highlights the complexity of some of the issues involved – particularly in recognising that some offenders are indeed likely to be victims of the crimes of others, for example, people trafficking.
3.4 As stated, new powers have been introduced under the Criminal Justice (NI) Order 08 and NIACRO has responded to the proposals contained within the Alternatives to Prosecution paper, warning against the widespread use of fixed penalty notices, for example, as an effective response to low level crime and disorder. Other new powers are suggested in this paper, and yet there is no supporting evidence that this is required. There are, for example, already arrangements in place for the sharing of information e.g. to prevent anti-social behaviour, which have not yet been fully tested. Further, there are already powers available to deal with serious nuisance.
3.5 NIACRO has serious concerns about the proposals “enabling the police to designate dispersal zones in areas that have suffered significant and persistent anti-social behaviour”. This provision goes well beyond addressing the presenting behaviour. It could be regarded as an infringement of human rights, particularly given the subjective nature of defining anti-social behaviour and the varying thresholds of tolerance across society.
3.6 Designating “disorder zones” is also a proposal we reject. The negative labelling of areas is unhelpful and should not be necessary in order to obtain the resources required to address particular problems in communities.
3.7 NIACRO instead recommends a greater alignment of the strategy with the planning regulations for Northern Ireland which, to date, have contributed significantly to the difficulties experienced in some areas. There are also opportunities for positive initiatives to be taken with stakeholders willing to invest in community safety. NIACRO has experience of working to improve the protection available to emergency service workers, through projects such as the Youth Warden cheme, and “Where is your child tonight?” poster campaign in partnership with Translink. We are committed to early intervention and prevention through these education programmes involving young people, their parents and the wider community.
3.8 We also recognise that environmental improvements are important and can impact on behaviour, but there are many simple solutions available. These include: more frequent bin collections in some heavily populated areas; more regular street cleaning in residential areas; investment in services which maintain public places adequately. The operation times of public transport and other services must be effectively aligned to the night-time economy and community safety considerations given significant priority when these decisions are being made. It should not just be a matter of designing out crime but specifically designing living and social spaces which work for local people.
4. FOCUS ON FAMILIES AND CHILDREN [to be renamed]
4.1 There are families and individuals in the community who have experienced cycles of deprivation and have multiple needs. Indeed this provides the basis for much of the work we have undertaken and we are pleased that the strategy recognises our contribution in referencing the NIO's strategic investment in the organisation. It is suggested that “formal powers” may be needed to work with these families and yet there is no evidence to support the premise that they would reject support offered outside formal arrangements. Indeed NIACRO has piloted such support with families at risk of losing their tenancies, for example, and have experienced a great deal of voluntary engagement. Assessment of needs of these families frequently identifies low incomes, poor levels of educational attainment, poor parenting skills, and addiction problems, etc. People should be offered assistance on a voluntary basis to address some of these difficulties.
4.2 We would argue against imposing an “Individual Support Order” to “require” people to accept support as formal requirements, by their nature, necessitate the imposition of sanctions to deal with non- compliance.
4.3 In addition, “Parenting Support Orders” are proposed without first attempting to work with families voluntarily to help improve their parenting skills. We recognise that there are people who would benefit from training in parenting skills, but this strategy fails to demonstrate the need for orders compelling people to participate. In NIACRO’S experience, many young people in need fall through the net of service provision and their risk of offending increases as a result. This strategy proposes putting the responsibility back on parents when it may be more appropriate to ensure that relevant agencies also carry out their responsibilities fully.
4.4 We acknowledge that there are many reasons why individuals, both adults and children behave in an anti-social way, such as trauma, deprivation, neglect, mental health issues, substance abuse, etc. Parents may require the expertise of a range of agencies to help deal with the behaviour. For example, where there are children with learning difficulties, such as ADHD, it is the school which prioritises which pupil will be referred to an educational psychologist for assessment. In many cases, particularly where there are other problems, such as poor attendance or lack of involvement by parents, these difficulties are not as easily identified or addressed and continue to be an issue for the person into adolescence and adult life.
4.5 It can be very difficult for parents dealing with a child with mental health problems or who is involved in substance abuse to get the help they need. It is imperative before considering statutory instruments to ensure that services are appropriate, available and accessible to families.
4.6 NIACRO recognises the need to help parents take responsibility for the behaviour of their children who cause damage to the property of others. However, to directly punish the parent for the behaviour of a child who is deemed by law to be under the age of criminal responsibility by imposing a financial penalty, is likely only to exacerbate the difficulties the family are facing. Restorative approaches may well have greater impact on the parents concerned and financial compensation could be an option available where appropriate, again on a voluntary basis.
4.7 In Northern Ireland we have an opportunity to support communities dealing with crime and anti-social behaviour and to ensure that relevant services are in place and can easily be accessed by all who need them.
4.8 NIACRO successfully piloted early intervention. The Child and Parent Support Project (Caps) was established as a pilot initiative in the Southern Health and Social Services Board area. Its aim was to provide intensive support services to families whose children aged 8-11 are at risk of offending/anti-social behaviour.
Referrals to the project were first taken in June 2004 and come from a range of agencies including:- Social Services, Education Welfare, PBNI, Youth Diversion (PSNI), Education Psychology, YJA, Family Links (NIACRO) etc. The programme provides a range of preventative services which seek to enhance the strengths and positive attributes of the child and his/her family including tailored individual, family and group work initiatives.
Caps has developed a comprehensive database which allows the project staff to monitor the progress of individual young people and their families from the point of referral to their exit from the programme. Typical outcomes for young people and their families, recorded in independent evaluations, have included improved educational attendance and performance, improved parental supervision, and reductions in the risk of offending.
Since April 2008 early intervention projects are available throughout Northern Ireland. NIACRO and Extern have pooled their expertise and experience and are delivering projects in Belfast and in the Western and Southern Trust areas. The projects have increased the age range to 8–13-year-olds. Testimony to the projects comes from a range of stakeholders:-
“I have learnt lots of things at CAPS like keeping myself safe, how to be angry in a good way and that no one else controls my behaviour – just me.” –Young person.
“CAPS are helpful and do really good work with children and parents to make their relationships better and to help us parents be the best parents possible.” – Parent.
“You have done a marvellous job. I am grateful that there is an organisation like you because you never give up on us… no cost involved. If there had been I couldn’t have afforded to get help for me and my child”. – Parent.
“It’s brilliant, wonderful for x, CAPS has been a real safety net for him and whole family. The difference within a year is amazing”. - School Principal
4.9 NIACRO’S Family Links project provides help for the families of people in prison, whose children are at greater risk of entering the criminal justice system. This is essential given research (reported by Farrington, Barnes and Lambert in the journal Legal and Criminological Psychology in1996) showing that sons of offenders are almost 63% themselves more likely to offend, and that rises to 93% when both parents are offenders. Supporting children and families when they are most vulnerable contributes both to effective resettlement and stability in the community.
4.10 The purpose of NIACRO’S APAC project (Assisting People and Communities) is to reduce anti-social behaviour, to assist people to integrate successfully into their community and deal with problems that have led to difficulties with neighbours. It is a diversionary service offered on a contractual, voluntary basis as a stand alone intervention or alongside an Acceptable Behaviour Contract. APAC assesses reintegration needs, agrees a plan and coordinates relevant resources to meet the needs identified. Referrals to APAC are made by the NI Housing Executive and by several Community Safety Partnerships and progress is carefully monitored.
4.11 This strategy fails to take account of these and other early intervention approaches which can be delivered on a voluntary basis in response to identified need.
4.12 Restorative approaches to dealing with offending behaviour have also been developed by a number of communities in Northern Ireland. There are other initiatives which can impact hugely on the behaviour of young people and the ability of their parents to cope, some based in schools (e.g. nurture groups) and others in the communities in which they live. A strategic commitment to the availability of resources for such initiatives would go a long way to delivering real support for families.
4.13 The proposal to co-ordinate a number of agencies in work with particular families undoubtedly has merit if the assistance offered is relevant and sustainable. At present, helping a family member to change and sustain improvement in any single aspect of their lives is difficult to achieve while other problems persist. A multi-agency approach would have merit in this respect.
5. BUILDING STRONG AND CONFIDENT COMMUNITIES
5.1 NIACRO, through the Base 2 project, provides a crisis intervention service for people under threat in the community. The numbers of people believing themselves to be at risk of harm continues at a high level (over 800 referred to Base 2 each year) and though the majority are found not to be at risk of serious harm, there is nonetheless a recognition that fear persists in the community.
5.2 Our collective experience in Northern Ireland of “naming and shaming” demonstrates very clearly the need for resolution of disputes and differences between people in the communities. The alternative to resolution in our experience has been increased levels of victimisation, social exclusion and family breakdown.
5.3 NIACRO believes victims and witnesses need to be adequately supported and recognises the difficulties experienced by those required to give evidence or formalise complaints against their neighbours. Efforts have been made to enable a lead agency to take on more of this responsibility on their behalf and we need to ensure that there are checks and balances in place so that complaints of anti-social behaviour are being dealt with consistently. The agencies represented on Community Safety Partnerships are moving in that direction through dialogue with each other but there are still significant cultural and practice differences between them which need to be addressed.
5.4 The criminal justice system has a responsibility to invest in raising the level of awareness of communities about the causes of offending and how it can be tackled. It is NIACRO’s view that it is the measure of a strong community that ex-offenders are included in dialogue about community safety.
5.5 In that respect, attention must be paid within this strategy to other legislation e.g. the arrangements for Safeguarding Vulnerable Adults and Children which have potential to close down opportunities for involvement in community development by offenders. There is a great deal which could be achieved through public information seminars and debate as well as investing in peer education allowing ex-offenders to engage with the community and with those at risk of offending by sharing their experiences and what they have learned from them.
5.6 This strategy acknowledges the importance of offering accredited training programmes to assist practitioners across all sectors. Whilst NIACRO welcomes this commitment our experience has been that those contributing to community safety initiatives outside of the formal structures are disadvantaged (financially and in terms of suitability) when attempting to access such training. This strategy needs to ensure that capacity building reaches those who live and work in the community.
5.7 Allied to this point, we recommend the development of a coherent community engagement strategy that would give communities their say in plans for their areas, as well as the chance tocomment on local issues and to be engaged in the monitoring and evaluation processes that inform what local people value as local services. The strategy identifies neighbourhoods and communities as key yet there is no suggestion as to how they will be engaged. From our experience at local partnerships we see that it is mostly agencies engaged and that communities are not aware of the ownership of relevant initiatives. This needs to be addressed.
6. CONCLUSION
6.1 While the strategy has much to commend it, it does need to harness the resources of the other Departments and agencies to ensure that it can achieve the best of outcomes. There may be the need to consider the merits of a statutory framework to ensure cross departmental working. This would help to ensure that services that have proved their impact do not lurch from funding crisis to meltdown-the strategy needs to be fine tuned to ensure that front line services are available where they make a difference and that bureaucratic infrastructures do not soak up all the available resources.