Evening Seminar
Commissioning to
Transform Rehabilitation
Ian Blakeman
Director of Commissioning, NOMS
and
Colin Allars
Director of Probation, NOMS
17 June, 2014
Ian Blakeman
Director of Commissioning
National Offender Management Service
NOMS and commissioning
2004
NOMS created with National Offender Manager, Wales and Regional Offender
Managers (ROMs) as commissioners (HMPS separate)
First private sector prison contracts already awarded (1990s)
2008
NOMS Agency created bringing together responsibility for prisons and probation
with 10 Directors of Offender Management (DOMs) as lead commissioners
Specifications, Costing and Benchmarking (SBC) Programme launched
Creation of Probation Trusts
2009
DOM Strategic Commissioning Plans published
Prison Competition Programme Launched
2011
NOMS Agency restructured with a functional commissioning model replacing the
regional structure
Payment by Results trialled at HMP Doncaster
SBC Programme completed
NOMS Commissioning Intentions first published
2012
Prison Unit Cost Programme: benchmarking, reconfiguration, ancillary services
competition
Transforming Rehabilitation Programme launched
NOMS Commissioning Cycle
NOMS defines offender services commissioning as –
‘The cycle of assessing the needs of courts, offenders, defendants,
victims and communities then designing, securing and monitoring
services to meet those needs, while making best use of total available
resources’
Stage 1
Review of
outcomes
achieved to
inform future
priorities
PLAN
Stage 2
Stage 4
REVIEW
Monitor and
assure once
SLA/Contracts
in place
Agree
commissioning
priorities
BUY
Stage 3
DO
Secure delivery
commitment
through
SLA/Contracts
Tools -Specification, Benchmarking,
Costing programme
•
•
•
The SBC Programme produced service specifications which set out mandatory
minimum outcomes and outputs for each of these services, ensuring that they are
legal, safe and decent
NOMS service specifications support outcome based commissioning as they help define
what needs to be provided, but not how they should be delivered or by whom. The
commissioner is ultimately responsible for defining the mix and type of services they
want to commission.
Providers of services held to account for delivering outcomes and outputs for each
service and Commissioners get the right services, at the right quality and the right
cost.
1. Directory offers practical choices
2. NOMS decides
Specification:
What are the outcomes and outputs
of each service?
• Which services
should we deliver?
Operating Models: What is the
efficient and effective way to deliver
each service?
• What is the minimum
level of service?
Costing: What should it cost to
provide each service?
• To which types of offenders?
• Is there flexibility
to commission
options above the
minimum?
Tools – Evidence based commissioning
Tools - Segmentation Approach
• Segmentation shapes evidence-based choices about investment in
different groups/segments of the population and choices about
investment in services matched to their risks and needs
• It develops and synthesises the evidence on what works in
delivering different outcomes for different offender groups
• For the NOMS Commissioning Rounds for 2013-4 and 2014-5, the
segmentation approach has been embedded into the Commissioning
process to help deliver better outcomes for offenders by improving
the targeting of the right kinds of services to those offenders that
NOMS chooses to prioritise for investment
• Segmentation supports NOMS in its commissioning processes, by
enabling the delivery of efficient, quality services which are
evidence-informed and by ensuring delivery is matched to
population, purpose and NOMS outcomes
Tools - Commissioning Intentions:
Ensure a safe, decent environment and rehabilitative culture
Strengthen integration of service delivery between partners
Ensure delivery is evidence informed, efficient and quality assured
Ensure delivery is matched to population, purpose and NOMS outcomes
Ensure that delivery of services is responsive to individual needs and
characteristics to maximise outcomes
http://www.justice.gov.uk/downloads/about/noms/commissioning-intentions-2014.pdf
The features of a rehabilitative prison – A hierarchy
The future:
Commissioning
Through the
Gate services
A key focus for
the Custodial
Commissioning
round for 201415 has been
commissioning
a rehabilitative
culture
Resettle
Address
attitudes
and thinking
Address drug & alcohol
problems
Rehabilitative culture;
Rehabilitative
staff prisoner relationships
Safety & Decency
Through co-commissioning
we
align our priorities and
resources throughout the
commissioning cycle both
nationally, and locally, with a
wide range of other funders
to deliver over £1bn of
offender services, including
substance misuse treatment
Rehabilitation outcomes can be enhanced through
evidence based targeting:
Shifting provision from acquisitive offenders increases the % point reduction in
reoffending following Enhanced Thinking Skills against predicted rate from 8 to 14
percentage points
Reductions in reoffending after ETS
20
15
All offence types
Percentage point
reduction in
Non-acquisitive
offenders only
10
reconviction rates
5
0
0 <=10
21 - 30
41 - 50
61 - 70
81 - 90
Predicted reconviction (OGRS)
Total
Community example: where to invest and in what?
Example segment – violent offenders
•
100
Risk of General Reoffending
80
60
40
20
0
0
20
40
60
80
100
Risk of Violent Reoffending
•
•
Then investment strategy based on what we know about….
What works with violent offenders?
The chart
shows the risk
of general
reoffending
against the
risk of violent
reoffending
for all
offenders
managed in
the
community
with a violent
index offence
for a CRC.
Community services - managing
change during the interim period
Maintain service
delivery from 13/14
where feasible and
performance accountability
at Divisional level
Light touch, pragmatic
commissioning approach
to community services
from 1st April 2014
Managing
change and
maintaining
service
delivery
From 1st June
Service Level Agreement
with NPS and interim
contract with CRCs
Focus on
preparation for CRC
share sale and end
state delivery
model
Contract Management
•
Effective management of risk & enhanced assurance of CRC delivery
requires:
–
–
–
Revised and robust processes.
New arrangements to ensure that NOMS/MoJ receive adequate levels of assurance on
outcomes.
Intensive CM approach during transition period.
•
Model consistent with Cross Government Review & MoJ Review of
Contract Management
•
DDs & their SCMs will use the interim period to develop positive
relationships with the CRCs focusing on:
–
–
–
–
•
delivering the requirements of the interim contract
maintaining service delivery & stabilising the system
embedding the new service operating model
completing the required transition activity in preparation for share sale
An agreed and consistent approach to interim contract management
has been developed through a Contract Management Plan which has
been used from 1 June 2014, and applied through the interim period
by the SCM Teams to ensure consistent ICM practice across the
CRCs
Future of NOMS Commissioning…
•
Integrated commissioning approach across custody and community building the integrated offender management model
•
Through the Gate – enabling an integrated approach
•
Focus on whole system commissioning - a focus on the needs and
outcomes for users and beneficiaries of our services (e.g. courts, offenders,
defendants, victims)
•
National commissioning with local partnerships – CRCs will only achieve
better re-offending outcomes working in partnership with other local
partners who commission and provide services that offenders need
•
Increased commercial skill-base
•
Developing partnership working between commissioning / contract
management and the NPS and CRCs
•
More complex supply chain management and a more diverse provider base
•
Continue to develop the evidence base to enable more effective
commissioning decisions