A public health approach to low level offending

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The context

Research draws a link between offending and homelessness, as well as between repeat offending and repeat homelessness. Whilst evidence suggests housing-led interventions like Housing First not only reduce repeat homelessness, but also repeat offending, it’s possible that justice-led interventions can have similar, mutual benefits.

Being arrested can represent a crisis point in a person’s life, setting off a downwards chain of events - but it can also present a window of opportunity where the right offer of support can galvanise change. Diversion schemes addressing the full range of a person’s needs which may lead to reoffending, including housing and homelessness issues, are thus especially valuable.

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The intervention

In 2015, Durham Police acknowledged traditional methods of ‘processing’ low level offenders with out of court disposals did little to address the root causes of crime. But people still acquired a criminal record and the associated impact of that on life chances. The area had some of the highest reoffending rates in England, as well as some of the country’s worst health inequalities. The Police responded by devising Checkpoint: a public health approach to reducing reoffending. This voluntary diversion scheme works with offenders to improve their health and wellbeing, rather than simply processing them.

Checkpoint is a four-month programme aimed at lower level offenders (for whom there is enough evidence to charge). It helps them identify and address the underlying reasons for crime. If a person completes the programme and doesn’t reoffend during it, they’re not ‘labelled’ an offender. If an offender accepts Checkpoint, they quickly meet a ‘navigator’ – someone employed by Police, but who isn’t a police officer. Some navigators are ex-offenders and/or in recovery from substance use. Their role is to build trust and offer consistent, practical support and advocacy through the programme. They agree a contract with the client, which includes a condition to take part in a restorative approach, if a victim wishes.

Each contract is bespoke, with support tailored to each person’s needs. Navigators fully assess all aspects of a person’s circumstances and support needs. Contracts include conditions to address any issue a person faces on a ‘critical pathway’ which can lead to offending. As housing is one of these ‘critical pathways’, the assessment includes questions on housing tenure, arrears, income, debt, risks to accommodation and homelessness. Navigators support clients with any housing issue identified: negotiating with landlords, setting up payment plans, getting white goods, improving family relationships, advocating/ assisting with moves and liaising with housing options. 

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The outcome

In 2016-2018 Checkpoint was evaluated in a ‘randomised controlled trial’, which found a 13% reduction in reoffending and 30% reduction in future risk of same for Checkpoint clients, two years after the offence. Offenders’ other ‘critical pathways’ reduced by 18%, suggesting the programme addresses underlying causes of offending.

On entry, clients’ average score on ‘housing’ was the second highest (worst) of all (8.2), against an average exit score of 2.2 - showing significant improvement. Most clients on Checkpoint are ‘housed’, so it can be concluded that the programme plays a role in stabilising housing and reducing homelessness risk, alongside risk of offending. Durham Constabulary subsequently extended and diversified the Checkpoint offer, based on consistently positive outcomes.

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Key insights

• criminogenic needs (needs likely to lead to crime) persist if they’re not addressed properly or holistically, which is why a detailed assessment on all ‘critical pathways’ is crucial - and stable housing is one
• employing navigators with lived experience has shifted Police culture on accepting people with different backgrounds, improved understanding of causes of offending and enabled clients to see visible recovery
• intervening earlier when problems are less serious is key - so navigators learn to read ‘warning flags’ on each ‘critical pathway’. For example they may sense an offender living with parents is at risk of being ejected in future and pre-empt this by considering what can be done now to avoid or plan for that

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Find out more…

Joanne McGregor-Taylor, DART & Checkpoint Supervisor, Durham Constabulary
joanne.mcgregor-taylor2@durham.police.uk