Youth offending

Report: 6
Date: 13 March 2001
By: Commissioner

Summary

This report gives an overview on a number of issues relating to youth offending. It assesses the MPS performance against targets and policing plan objectives, the ability to deal with persistent young offenders and identifies a number of initiatives and actions undertaken and proposed.

A. Recommendation

That Committee members note the contents of this report.

B. Supporting information

Introduction

1. The Crime and Disorder Act introduced a number of changes to the way in which young offenders are dealt with. This included Youth Offending teams, extended reprimand and warning structures and new police powers, for example removing truants from the streets.

2. The Best Value Performance Indicators (PIs) and Policing Plan objectives for 2000/01 focused on:

• improvement in the timing and quality, of processing and disposing of young offenders;
• introduction of a reprimand and warning framework, which aims to bring about self-awareness of the offender towards the effects their actions have had upon the victims and their family, and an understanding of the consequences for themselves;
• the police contribution to reducing truancy, which has been strongly associated with youth crime.

3. The timing and process indicators and targets will remain in next year's policing plan, but greater emphasis will be placed on second time offenders, rather than just persistent young offenders (PYOs). Monitoring this will be possible through new CRIS codes that will be introduced for 1 March 2001. The performance indicator target is to be developed.

4. This report gives a summary of the volume and patterns of youth offending and explores the extent to which a small number of persistent young offenders may be accountable for a disproportionate number of crimes. The report outlines the procedures and action plans that have been developed specifically for PYOs both nationally and in the Metropolitan Police Service. It also identifies initiatives that have been undertaken this year particularly truancy reduction schemes and those proposed for 2001/02.

Volume and patterns of crime committed by young offenders

5. The following analysis is based on details of young people accused and suspected of crime between April 1999 and January 2001.

6. As crimes committed by young offenders are counted by the number of accused identified, caution must be taken when evaluating this data. The number of arrests may be an indication of police activity and change of policies as much as they reflect changes in offending. To address this to some extent the second part of the analysis assesses suspect data during the same period. Again, there is a risk with the data as there is not always a suspect description and victims and/or witnesses can never be 100 per cent precise on the possible age of the suspects.

7. The charts in Appendix 1 display the types of crime committed and/or suspected to have been committed by youths between April 1999 and January 2001. In order to examine any progression in criminal activity, for the purposes of this report the offenders and suspects have been broken down into younger, 10-13, and the older, 14-17, age groups.

8. The accused chart indicates a significant proclivity amongst the early ages (10-13 years) towards shoplifting, whilst more serious offences (like drug crime, burglary and street crime), appear low in contrast. The suspect data however indicates that shoplifting is low in comparison to violent offences, criminal damage and street crime. This highlights that the true extent of young offenders' criminal activity at an early age is relatively unknown.

9. The academic theory that youths become more violent and their crimes more substantive as they move into their early teens appears to be confirmed to some extent in both sets of data. In most cases, the number of offences increases by 100 per cent or more when looking at crimes committed by 14-17 year olds. The proportion of crimes committed in the latter group highlights other issues:

• drug crime increases in both charts by over 1000 offences, and there is a sharp increase in trafficking offences by 16 and 17 year olds. It also becomes a more noticeable proportion of crime committed by this age category;
• although the number of crimes involving 14-17 year olds have increased significantly, burglary and criminal damage offences make up a smaller proportion of the total crime picture. This implies that either youths are less likely to be accused/arrested for these particular offences as they get older or they are committing proportionally less of these types of crimes and more of the others;
• auto crime, street crime and 'other crime' has increased both in the number of offences and makes up a large proportion of the criminal activity committed by youths between 14–17 years;
• violent offences display a different pattern from most crimes in relation to age. The number of offences has increased by 4000-5000 offences (585 per cent increase in youths accused & 100 per cent suspects identified). However the proportionality of the offence compared with others identified in the charts has remained either static in the accused data or reduced in the suspect data.

10. The chart below displays for each type of crime the percentage of young offenders. This evaluation identifies young persons' crime patterns as compared with adult offenders.

Percentage of youths of total accused data April 00-Jan 01

11. The figures indicate that youths aged 10 to 17 represent more than half of all persons accused of street crime and almost half for auto crime. The chart also displays high levels for criminal damage, shoplifting and burglary.

12. Young people do not however make up the greater share of the total accused. Between April 2000 and January 2001 of 102,136 accused people, 24.6 per cent were between the ages of 10 and 17, which remains consistent with the figures for 1999/00.

13. The charts below display the total accused figures for 1998/99, 1999/2000 and 2000/01 (YTD) and identifies the proportion made up from youths between 10-17 years.

14. The above indicates that the number of youths being accused for crime has decreased to a small degree over the three-year period. However compared with the total accused numbers the proportion of youths is higher than the previous two years, which may reflect the MPS policy changes to focus more on the detection and detention of youths.

MPS performance in disposal and processing young offenders

15. There are a number of ways in which youth cases can be dealt with and the chart below specifies and identifies the percentage break down of the disposal of youths between 10-17 during this financial year to date.

Disposal of cases involving youths aged 10-17 between April 00 and Jan 01

16. In 1998, the MPS implemented a target to reduce the time for case disposals for all young offenders. The indicator was to complete the case disposal of a young offender within 28 days from arrest in 80 per cent of the cases. In 1999/00, this target was achieved by processing exactly 80 per cent of youth cases within the time frame. This year's figures for 2000/01 project that the MPS is on course to exceed this target (81 per cent). The performance levels have been improving since September 2000, and December has recorded amongst the highest levels since the beginning of the year.

17. A further target established for all youth cases was to ensure that the time taken to notify the Police National computer (PNC) of the results of the youth case disposals, including court sentences, should not exceed 14 days in at least 80 per cent of the cases. In 1999/00, the MPS notified the PNC in 14 days in 70 per cent of the cases. This year's 2000/01 figures suggest that it will be not be met by the year ending March 2001. (projecting 68 per cent). This target has been made even harder in next year's policing plan by reducing it from 14 to 10 days in 80 per cent of the cases, in accordance with the government's objectives to speed up the process of dealing with young offenders, whilst ensuring an improved, informative system. (Appendix 2)

18. There are also two Best Value Performance Indicators for 2000/01 which relate to the percentage of all youth files provided to the CPS and expedited/remand youth files that are satisfactory or sufficient to proceed. These targets are to be set with the CPS as part of a joint performance management. Actual performance to date (April to January 2001) is that 74 per cent of all youth files have been sent within the pre-trial time guidelines and 99.3 per cent of expedited/remand files have been found satisfactory or sufficient to proceed.

19. Progress toward the Home Office target of an average time of 71 days from arrest to case disposal for PYOs at court has been considerable, but has recently deteriorated. By October 2000 the MPS has reduced the average time taken from 162 days to 98 (the best improvement of any metropolitan area in the UK) but in November 2000 the figure increased again to 111 days. This deterioration was largely the result of a clearing of the unknown backlogs of unexpected warrants against PYOs for non-appearance at courts. The effect of this clearance of backlogs was that a number of older cases were counted in the system with a consequent increase in the average delays for all cases.

20. The Crime and Disorder Act 1998 introduced a number of new policing powers, which included a final warning scheme and reparation order targeting young offenders. The pilots for these new youth justice measures began in late September in ten areas nationally. These included the London Boroughs of Hammersmith and Fulham, Kensington and Chelsea and the City of Westminster (jointly). From these initial findings an improved final warning scheme was introduced by the Criminal Justice and Court services Act 2000. The objective was to facilitate a restorative justice approach to the delivery of reprimands and final warnings. It was specifically designed to end repeat cautioning, ensure appropriate and effective action to help prevent re-offending and to ensure that juveniles who do re-offend after a warning are dealt with quickly and effectively through the courts.

Persistent young offenders

21. The definition introduced in 1998 is:

'A Persistent Young Offender is a youth, aged 10 to 17 years, who has been sentenced by any criminal court in the UK on three or more separate occasions for one or more recordable offences and, within three years of the last sentencing occasion is subsequently arrested or has information laid against him, for a further recordable offence'.

22. The Youth Justice Pledge sets out the government's plan to deal with persistent young offenders in 71 days from arrest to sentence. The MPS has two specific performance targets relating to the processing of PYOs. PYOs should be charged within two days of their arrest and have been given their first court listing within seven days of charge in 70 per cent of the cases.

23. The figures to date project that 53 per cent of PYOs will be charged within two days of arrest, whilst 63 per cent will have been listed at court within seven days of being charged. Although the number of cases listed for court is below the performance indicator, it is a marked improvement from the same period in the year 1999/2000 (45 per cent). The charts in Appendix 3 outline the monthly trends for both targets. The figures on the number of PYOs dealt with within two days from arrest to charge are taken from CRIS. Because of the known problems with this system, the figures can only provide a guide on the MPS's performance. Charge to court listing dates are now available and adequately monitored by CRIS. (Appendix 3)

Number of persistent young offenders and warning signals

24. On the 1 June 2000, the Home Office introduced a flag for Persistent Young Offenders (PY) that should be placed on the Police National Computer (PNC). It is to be used as an approximate method of calculating the number and processing of PYOs. For the period April 2000 to January 2001 there are currently 1,821 offenders flagged on the PNC as persistent offenders in the MPS. However, caution must be exercised when using this data, since it is a process very much under used at Borough level, due to the limited awareness and management of the tool. This issue has been recognised by the MPS and in association with the Youth Justice Department Boroughs will be instructed on the use and validity of the flagging system.

25. Although custody data indicates 1,671 PYOs were charged between April 2000 and January 2001, caution must be applied. These figures relate to the number of PYOs arrested for individual offences. If a PYO has been arrested several times over the period, this figure will not truly represent the exact number of PYOs in the MPS. In addition, these figures rely on the PYOs flagged on the PNC, which has already been identified to be unreliable.

26. The most reliable measure in place at the moment is the result of a localised survey conducted by the MPS near the end of 1998. This identified that there is an average of about 20 PYOs on each borough at any one time.

27. The exact number of PYOs in the MPS is currently impossible to measure and consequently the volume of crime attributed to them can only be estimated through anecdotal evidence. In recognition of this problem, the MPS has been reviewing the CRIS system to ensure that PYO data is more comprehensive.

Action and plans for persistent young offenders

28. A number of steps have been taken this year to improve processing and these include:

• fast tracking of forensic analysis for youth cases has been achieved this year, by having youths cases placed in the critical category. This ensures that youth cases are processed in time for court and bail to return dates etc;
• to increase the speed and number of youth ID parades, suites have been given twice as many members of staff and the hours of opening have been extended. Although this has increased the number of youth ID parades, it cannot however address the problems of non-offender participation, particularly during school holidays. In order to deal with this issue and to enhance the current process, improved use of video equipment for identifications is proposed for the following financial year;
• youth offending teams are now to be given disclosure rights to post conviction or following reprimand or final warnings, relevant information about youth cases. This will assist with the development of a comprehensive action plan, which can address all the risk factors associated with the youth concerned.

Future plans to improve PYO handling

29. The MPS's objective is to find effective and practical ways to protect the public's safety and improve the community's way of life. Effective crime prevention requires good local coalition, which will combine community resources and efforts with those of the local authorities. In 2000/01 a number of partnerships were established and continue to operate when implementing MPS wide and local borough initiatives, with the aim of reducing youth offending, for example local truancy schemes.

Truancy

30. 'In any one year, at least 1 million of the children at school in England will play truant for at least half a day. Studies show that truants are less likely to leave school with qualifications; are less likely to have good life and social skills; and are more likely to be drawn into anti-social or criminal behaviour'. In response to this statement published by the Department for Education and Employment (DfEE) last year the Government has offered assistance through the school and education authorities social Inclusion: Pupil Support' grant, to fund effective action plans against truanting.

31. In 1998, section 16 of the Crime and Disorder Act introduced new police powers to remove truants from the streets, and escort them to a designated place. In 2000/01 the MPS's policing plan target, is to work in partnership with the DfEE to reduce the number of unauthorised absences in local schools, which has been associated with crime. Each borough in London identified by the DfEE as having high incidences of truancy will undertake one truancy initiative for a minimum of one day each school term.

32. The current MPS commitment is to run initiatives on 12 boroughs (Barking, Greenwich, Hackney, Hammersmith & Fulham, Haringey, Islington, Kensington & Chelsea, Lewisham, Newham, Southwark, Tower Hamlets and Westminster), which have been selected from the School Unauthorised Absence table published in November each year. Of these boroughs, 11 have already run at least one initiative and Greenwich the remaining borough does have plans to run an initiative in spring this year.

33. The current number of truancy projects for the financial year 2000/01 on these 12 boroughs is 26. Although the MPS target refers only to theses 12 boroughs at present, the DfEE expects all boroughs to take steps to reduce unauthorised absences and as a result, the MPS ran 41 schemes across the London this year.

34. The MPS and local education authorities are working in partnership to drive down the incidences of truancy and some of these schemes have received media attention.

• on the streets of east London (East Ham & Woolwich), a zero tolerance policy on truancy has proven successful. Newham have executed a series of police sweeps on mountain bikes as well as cars in the south of the borough and have found during each operation an average of 78 youths, 87 per cent of which have proven to be absent without authorisation. The crime figures reflected during the operational periods indicated a reduction in crime from the previous week, but it is not possible to quantify exact figures. There is however strong evidence of an operational partnership with the local police and both the council and education authorities, which have given positive feedback;
• Barnet is a pilot for a DfEE initiative where Education Welfare Officers are school based. Youths are given opportunities to discuss welfare issues in a hope that this will reduce the need for youths to stay away from school premises.

Conclusion

35. Youth offending is a continuing problem in all areas across the MPS and there is a significant rise in the number of offences in youths aged 14-17 compared with the younger ages, 10–13. There is evidence that a small number of persistent young offenders are responsible for a significant proportion of youth associated crime, but due to the lack of appropriate measures, exact figures are not available. However in recognition of this problem the MPS has made future plans to deal specifically with re-offenders.

36. The MPS is currently under-achieving in attaining the government's performance indicators in respect of the process and disposal of young offenders. In contrast, it has been successful in the policing plan objectives set out for 2000/01. There is a new reprimand and warning framework in operation, new youth offending teams are in place and a significant number of truancy initiatives have been implemented. The targets and objectives for next year remain focused on the quality and speed of processing offenders, but a greater emphasis is placed on re-offending by developing a performance target and new system of measurement for first and second time offenders.

37. The MPS has recognised the importance and effect of developing local partnerships and this plays a key role in next year's objectives to reduce youth offending.

C. Financial implications

None

D. Background papers

• Report to Professional Standards and Performance Monitoring Committee - Youth Offending - 12 December 2000

E. Contact details

The author of this report is Karen Turner, Analyst, MPS Corporate Analysis Unit.

For information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Appendix 4: Update for commissioner's initiative on youth crime and additional work on meeting the PYO pledge

The commissioner's group

The last meeting between the MPS, MPA, YJB and voluntary agencies was held on 12.2.01. At the meeting it was decided that in order to generate specific action, the group should focus on a small number of boroughs in London and identify new initiatives within those boroughs which could fill gaps in current provision for juveniles, either involved in crime or at risk of becoming so involved.

In order to identify specific boroughs, candidate schemes and costings, the YJB have commissioned work by Crime Concern to develop a costed options paper.

The YJB will then use this work, in combination with the early national evaluation of the existing Youth Involvement Projects across the country (due April 2001) to bid for additional funds. It is the intention that this bid should be fully supported by the MPS and the other parties represented in the Commissioner's Group.

In parallel, the MPS (Commander Roberts) will approach members of the various London faith based communities through the GLA Pan London Faiths Group. The intention is to stimulate thought and action on a voluntary basis by these groups at a local level, aimed at them providing mentoring and other diversionary activity in order that YOT Managers might have additional options available when dealing with at risk or offending juveniles.

The PYO pledge

Work to improve the rapid processing of PYOs through the CJ system continues.

New improved procedures were initiated in the MPS in December 2000 but the effect of these will not be evident in published statistics until April 2001.

With the assistance of PA Consultants, a number other areas for action have been identified throughout the CJ system. As regards police the two key areas are:

• an essential improvement in the early identification of PYOs at the point of arrest;
• the greater sharing and use by all CJ agencies of the information now becoming available from the Case Tracker IT systems, which have been installed in Magistrates Courts to track the progress of all juvenile cases;
• the convening of regular case progression meetings between Police Magistrates Courts Clerks and the CPS in each Magistrates Courts area.

By 30.04.01, the MPS will produce a joint improvement plan to be submitted to Home Office. The format and content of this plan is currently being negotiated with Home Office and PA Consultants.

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