He Waka Tapu Violence and Abuse Intervention Programme and Caseworker Programme Outcome Evaluation, Sept 2007 - New Zealand Police

He Waka Tapu Violence and Abuse Intervention Programme and Caseworker Programme Outcome Evaluation

September 2007

A report prepared by Bea Makwana, Evaluation Team, Organisational Assurance, National Headquarters, New Zealand Police

This report is the final evaluation of the two Community Youth Programmes provided by He Waka Tapu Trust i.e. the Violence and Abuse Intervention Programme and the Wraparound Caseworker Programme. This outcome evaluation report was produced by Bea Makwana of the Evaluation Team: Organisational Assurance, New Zealand Police National Headquarters.

First published in September 2007 by New Zealand Police, PO Box 3017, Wellington, New Zealand

Crown Copyright 2007

ISBN 0-477-02975-2


Summary

In 2002 He Waka Tapu (HWT) Violence and Abuse Intervention programme and the HWT Wraparound programme, based in Christchurch, were two of 14 community youth programmes selected nationally to reduce youth offending. The programmes collectively received $298,500 over three years. This outcome evaluation considers the effectiveness of the two HWT programmes.

Between 2003 - 2006 the HWT Violence and Abuse Intervention programme had 42 Māori rangatahi aged between 12 -17 years. Between 2004 - 2006 the HWT Wraparound programme had 23 Māori female rangatahi aged between 13 - 16 years.

The evaluation of HWT Violence and Abuse Intervention programme found:

  • most rangatahi were on the programme for five months, rather than the expected 12 months.
  • there were indications of progress towards improved life outcomes, with rangatahi reintegrated into the school system, courses, sport and cultural groups.
  • there was regular contact with stakeholders and a coordinated approach when working with other Māori providers.
  • rangatahi had increased their offending once exiting the programme although it was difficult to determine the long term effects of the programme on their offending behaviour.

The evaluation of HWT Wraparound programme found:

  • indicators of progress towards improved life outcomes included reintegration into the education system, access to health services, better relations with whānau, development of leadership skills, and reduced drug use.
  • caseworkers accessed Correspondence School and Alternative Education for some rangatahi not able to attend mainstream school.
  • stakeholders had weekly contact with HWT staff, developing a collegial approach to working with rangatahi in the community.
  • it was not possible to demonstrate a reduction in offending and seriousness of offending in the short time rangatahi were on the programme.

A strength of the programmes were the access they had to other resources within HWT, and the provision of culturally focused events for rangatahi and whānau. Staff had comprehensive support networks, external supervision, access to kaumātua, and professional development. However, there is opportunity for improved targeting of rangatahi through increased information sharing between local agencies. There is also room to improve contact with whānau, and to keep more comprehensive monitoring data and detailed case plans.

The evaluation indicated that Police and Ministry of Justice need to consider the ongoing management and financial oversight of the programmes; they need to be clear about contractual agreements; and work with Police at a local level to increase the awareness of the programmes.

Background

In April 2002 the Ministers of Finance, Justice and Police approved changes to appropriations for 2002/03 and out-years to enhance the capability of Police and the Ministry of Justice to reduce youth offending and/or general violence. A total of 14 community youth programmes were selected nationally to implement programmes aimed at reducing youth offending. This outcome evaluation relates to two of those programmes, He Waka Tapu (HWT) Violence and Abuse Intervention programme and HWT Wraparound Caseworker programme. Both programmes are located in Christchurch and received funding of $186,000 for three years, and $112,500 for two years and three months respectively.

Evaluation Phases

He Waka Tapu Violence and Abuse Intervention programme had three evaluation phases: formative, process and outcome. He Waka Tapu Wraparound Caseworker programme had two evaluation phases: formative/process and outcome. The outcome evaluation phase which is the focus of this report, was to assess the overall effectiveness of the programmes by measuring its success in meeting the programme objectives, including any change in rangatahi (youth) offending behaviour.

The evaluation utilised mixed methods, using both qualitative and quantitative information. Qualitative information was collected via interviews, and quantitative data were primarily extracted from the HWT database and the Police National Intelligence Application (NIA).

He Waka Tapu

He Waka Tapu Trust is a Maori health and social services organisation operating in the rohe (region) of Ngāi Tahu ki ?autahi (Christchurch) me Te Waipounamu (South Island). He Waka Tapu was established to provide a Kaupapa (concepts) Māori service for Māori men and their whānau experiencing domestic violence. He Waka Tapu has a staff of 25, and recently became a charitable company with an independent Board of Directors.

He Waka Tapu has been able to offer services within their own organisation, including a registered nurse and clinical team. HWT also had established support networks, including staff supervision, a kaumātua, and professional development. With access to the HWT marae, the programmes were able to provide rangatahi and their whānau with a three-day wananga which was a culturally focused event to foster good relationships. A strength of HWT was in having a holistic and multi service agency which stakeholders supported. The range of services HWT provided in the community enabled HWT to have the capacity to be flexible to the needs of the rangatahi programmes.

He Waka Tapu Violence and Abuse Intervention programme has had two caseworkers during the three-year evaluation, while the Wraparound programme utilised the Violence and Abuse Intervention programme caseworker for the first four months until the position was subsequently filled.

Aims of the HWT Violence and Abuse Intervention and Wraparound Programmes

The focus of HWT Violence and Abuse Intervention programme was to reduce violent offending of Māori males aged between 13-16 years as well as increase positive outcomes such as entering work or training. The focus of the Wraparound Caseworker programme was to provide services for female offenders, of Māori or Pacifika descent, aged between 12 and 16 years, with a history of violence and abuse, and an offending history.

The shared aims of the Violence and Abuse Intervention and Wraparound Caseworker programmes were:

  • improve life outcomes for youth accepted onto the programme by improving behaviour and attitudes;
  • improve education outcomes for youth accepted onto the programme;
  • improve coordination across agencies when dealing with the youth (and their families); and
  • reduce the rate of violent and general re-offending and/or the level of seriousness of offending by the rangatahi accepted onto the programme.

HWT Violence and Abuse Intervention Programme

The criteria for acceptance onto the Violence and Abuse Intervention programme included:

  • males between 13-16 years of age;
  • high-risk offenders i.e., at risk of re-offending and with a previous history of offending; and
  • the nature of the offending should be around violence.

The programme was contracted to provide a counselling service that focused on addressing issues of violence for 10 -12 youth and their whānau during a 12-month period.

A total of 42 rangatahi ranging between 12 - 17 years of age were accepted onto the programme over the three years. All clients were Māori. The most common reasons for referral were ?coming to police attention?, ?negative peer influence?, and ?antisocial behaviour?. A referral to the programme included initial interviews, basic checks like blood pressure but also specialised health assessments by a registered HWT nurse, including mental health, and basic alcohol and drug.

Following an initial assessment phase, the caseworker, rangatahi and whānau developed individual case plans. Typically, rangatahi met with their caseworker weekly. For complex cases a HWT clinical team supported the caseworker by providing best practice advice. Group sessions were later introduced to progress rangatahi more quickly through the programme. If required, HWT would refer rangatahi onto other specialist agencies, which more often related to drug and alcohol issues. The evaluation found one third of the caseworker?s time was spent in individual sessions, one third in group sessions, while overall rangatahi spent between two and 13 months on the programme.

Four rangatahi and their whānau on the HWT Violence and Abuse Intervention programme participated in case studies. Their stories are presented in this report. The outcomes of the four key aims of the programme are outlined below.

1. Improving Life Outcomes

The majority of rangatahi stayed on the programme for a maximum of five months. Given the short timeframe it was difficult to assess the extent to which there had been an improvement in life outcomes. However, there are indicators of progress towards more positive life outcomes including reintegration of rangatahi into the education system, courses, sporting groups and cultural groups. Group sessions were introduced during the three-year evaluation, but limited access to rangatahi case plans made it difficult to assess the merit of this approach. In addition, the likelihood that other social service agencies were also in contact with rangatahi made it difficult to assess the extent to which HWT Violence and Abuse Intervention programme contributed to changes made by rangatahi.

2. Improving Educational Outcomes

Education was commonly identified as a reason for referral to HWT Violence and Abuse Intervention programme. Based on the six-monthly reports there was evidence that caseworkers had helped clients reintegrate into the education system, and helped others to enrol in courses. However, it was difficult to assess client progress, or to identify what specific interventions were used to improve the educational needs of clients as client case plans were not available for review.

3. Improving Interagency Coordination

Stakeholders were positive about their relationship with HWT Violence and Abuse Intervention programme, indicating that they had regular contact and found the staff approachable. The relationships had become stronger, and a more coordinated approach had been adopted, particularly with other Māori providers. The stakeholders felt HWT was making a positive contribution to the community.

4. Reducing Offending and Seriousness of Offending

Offending records 12 months prior to joining the programme, during and 12 months post programme were analysed from the Police National Intelligence Application (NIA). It is important to note that recorded offending is only a proxy for actual offending and observed changes could be due to recording practices.

Of the 42 rangatahi on the programme only 26 had offending records prior to entry although the programme was intended to accept young tāne with a history of violent offending. Of those who offended, the most common offence was dishonesty.

On average, exited rangatahi committed fewer offences per month during the programme but increased their offending rates per month within the first 12 months of exiting the programme. However the average seriousness of the offending steadily declined from when they entered the programme, and continued to decline 12 months after having exited the programme. Of the seven rangatahi still on the programme, four had reduced their offending during the programme. The three rangatahi who committed more offences, also committed more serious offences.

Given the limited time rangatahi were involved with HWT, and the small number of clients, it is difficult to assess what change there may be in offending behaviour over the long term. In the short term, rangatahi increased their offending in the first 12 months of exiting the programme.

Violence and Abuse Intervention Programme - Conclusions

Given that rangatahi were on the Violence and Abuse Intervention programme between two and five months the ability of this evaluation to assess the impact of the HWT programme is limited. There were some indicators that rangatahi had improved access to education and courses, while some had joined sporting and cultural groups. The approach by HWT to engage and involve whānau was supported by stakeholders. There were 16 rangatahi that did not come to the attention of Police prior to, during, and in the first 12 months of exiting the programme. Of those rangatahi with offending histories, the average number of offences declined while they were on the programme. However, on exiting the programme offending rates increased.

HWT Wraparound Caseworker Programme

Twenty-three rangatahi were accepted onto the Wraparound Caseworker programme between October 2004 and August 2005. Rangatahi were all female, aged between 13 and 16 years and all identified as Māori. There were a range of reasons rangatahi were referred to the Wraparound programme, but most common were having come to the attention of Police, a family history of offending, negative peer influences, and not knowing their cultural background. As with the Violence and Abuse Intervention programme, referral to the Wraparound Caseworker programme also included initial interviews, basic checks like blood pressure but also specialised health assessments by a registered HWT nurse, including mental health and basic alcohol and drug assessments.

Although the organisation was contracted to provide a 12-month programme, the caseworker initially set up rangatahi with a 10-week programme. The shorter timeframe was used as an incentive to join the group. However, of the 15 exited clients the majority were on the programme between two and six months indicating that some rangatahi did continue past the 10-weeks, although they did not stay for a full 12 months.

Four rangatahi and their whānau on the HWT Wraparound Caseworker programme participated in case studies. Their stories are presented in this report. The outcomes of the four key aims of the programme are summarised below.

1. Improving Life Outcomes

Given the short timeframe that Rangatahi were involved with the Wraparound Caseworker programme it was not possible or appropriate to assess the extent to which HWT contributed to changes in life outcomes. However, there are indicators of progress by rangatahi which included reintegration to the education system, access to health services, better relations with whānau, the development of leadership skills, and reduced drug use.

The evaluators were not given access to client case plans which made it difficult to ascertain what goals were identified by rangatahi and the caseworker. Consequently, it was difficult to measure the uptake of goals by rangatahi, any change in behaviour, or successful intervention or support by HWT.

2. Improving Educational Outcomes

Rangatahi were referred to HWT Wraparound Caseworker programme with education needs. The caseworker was able to negotiate with local schools to reintegrate rangatahi who had been stood down; HWT also accessed Correspondence School for rangatahi not willing to move into Alternative Education and for those not able to attend mainstream school. The caseworker developed a relationship with two local schools and was able to access groups of rangatahi to provide a 9-week programme. It is not clear whether these clients were in addition to HWT Wraparound Caseworker client database, but the stakeholders felt the programme had a positive effect, with attendance and attitudes of rangatahi in schools improving.

3. Improving Interagency Coordination

Stakeholders felt they had weekly contact with HWT staff, and knew of the wider services and programmes offered by HWT. One stakeholder specifically used the Wraparound Caseworker programme because of the other services HWT offered to whānau. There was a feeling that HWT staff were willing to work with rangatahi in different ways to engage them, and this flexibility was supported by stakeholders. Stakeholders also commented on having developed a collegial approach to working with rangatahi in the community.

4. Reducing Offending and Seriousness of Offending

Offending records 12 months prior to joining the programme, during and 12 months post programme were analysed from the Police National Intelligence Application (NIA). As with the HWT Violence and Abuse Intervention programme it is important to note again that recorded offending is only a proxy for actual offending and observed changes could be due to recording practices.

Although the acceptance criteria required rangatahi to have a history of offending; only six of the 23 clients had offending records on NIA. All six rangatahi were current clients therefore an analysis of offending patterns prior to, and post the programme was not possible. To date, on average all six rangatahi increased the number of offences committed per month during the programme. Three rangatahi committed more serious offences. During the programme violent and dishonesty offences increased the most.

The evaluation was not able to demonstrate a reduction in offending and seriousness of offending of the six rangatahi who had offending records prior to entry, although HWT continued to work with the rangatahi to address the issues that cause them to offend.

Wraparound Caseworker Programme - Conclusions

The Wraparound Caseworker programme has continued to increase its client base. The limited time rangatahi have had on HWT Wraparound Caseworker programme limited the ability to measure the impact the programme has had on rangatahi and their whānau, given that they may have also received a range of social services concurrently with the HWT programme. There were improvements with reintegration and access to education. The programme also demonstrated support from stakeholders in the community. The evaluation was not able to demonstrate a reduction in the number offences committed by rangatahi or a decline in the seriousness of offending, although there were 17 rangatahi that were involved in the HWT Wraparound Caseworker programme that had not come to the attention of Police either prior to, or during the programme.

Strengths of the Programme

HWT was an established Māori health and social service organisation prior to the rangatahi programmes being implemented. Consequently, access to other resources from within the organisation was an advantage for the programmes. In addition, HWT was able to provide staff with comprehensive support networks, including external supervision, a permanent Kaumatua within the organisation and ongoing professional development.

HWT was responsive to whanau by providing culturally focused events that develop relationships with the wider whānau, and had established a Mother?s Group in response to mothers often waiting at the HWT venue for their children.

HWT had positive interagency relationships and stakeholders were particularly supportive of the holistic services for the wider whānau, and for having access to multiple services within one organisation.

Areas for Improvement

There were a number of areas in which HWT rangatahi programmes could be improved. In order to ensure rangatahi meet the entry criteria, an agreement with local agencies may need to be formalised to ensure HWT have access to enough information to allow for a more targeted recruitment of rangatahi. Recording exact entry and exit dates of rangatahi onto the programme would enable a more accurate record of how long clients are involved with HWT. HWT could also develop more comprehensive case plans, which would enable more measures to be developed to monitor programme effectiveness for each rangatahi for a 12 month period. Finally, HWT may need to reinforce their efforts to ensure whānau are informed of the progress of their children on the programme, and may like to consider speaking with Child, Youth and Family to increase their profile.

Learnings for Police and CPU

There are several areas from which Police and the Crime Prevention Unit: Ministry of Justice (CPU) can learn from the HWT programmes. The collaboration of the Christchurch City Council as the sponsor of the programme, and the monitoring and evaluation of the programmes by Police and CPU was not as timely as intended. Therefore, Police and CPU may need to consider how best to manage ongoing monitoring and financial oversight of future programmes. Police and CPU need to be clear about the contractual agreements made at the outset of the programme to allow consistent and thorough monitoring and evaluation that is understood and supported by the programmes. And finally, Police and CPU may also benefit from working at a local level with Police to ensure there is an understanding and awareness of the local programmes, and to assist rangatahi having access to these programmes.

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Table of contents

Acknowledgements
Table of Figures and Tables
Section 1: Executive Summary
Background
Evaluation Phases
He Waka Tapu
Aims of the HWT Violence and Abuse Intervention and Wraparound Programmes
Violence and Abuse Intervention Programme - Conclusions
Wraparound Caseworker Programme - Conclusions
Section 2: Introduction
Background to the Community Youth Programmes
Selection of He Waka Tapu
Report Structure
Section 3: Evaluation Approach
Violence and Abuse Intervention Programme Evaluation Phases
Wraparound Caseworker Programme Evaluation Phases
Methodology
Limitations of the Methodological Approach
Ethics Statement
Section 4: Description of He Waka Tapu
He Waka Tapu History
He Waka Tapu Organisational Structure
Staffing
Section 5: The Violence and Abuse Intervention Programme
Development of the Violence and Abuse Intervention Project
Client Information
Programme Delivery
Case Studies
Section 6: Outcomes of the Violence and Abuse Intervention Programme
Aim 1: Improve Life Outcomes
Aim 2: Improve Educational Outcomes
Aim 3: Improve Interagency Coordination
Aim 4: Reduction in Re-offending
Aim 5: Reduction in the Seriousness of Offending
Conclusions
Section 7: Wraparound Caseworker Programme
Development of the He Waka Tapu Wraparound Caseworker Programme
Client Information
Programme Delivery
Case Studies
Section 8: Outcomes of the Wraparound Caseworker Programme
Aim 1: Improve Life Outcomes
Aim 2: Improve Educational Outcomes
Aim 3: Improve Interagency Coordination
Aim 4: Reduction in Offending
Aim 5: Reduction in the Seriousness of Offending
Conclusions
Section 9: Considerations for the Future
References
Glossary
Appendices
Appendix 1: Interview Guide - Programme Coordinator
Appendix 2: Interview Guide - Caseworker
Appendix 3: Interview Guide - General Manager
Appendix 4: Interview Guide - Stakeholders
Appendix 5: Interview Guide - Rangatahi/ Parent
Appendix 6: Consent Forms
Appendix 7: Six Monthly Reporting Template
Appendix 8: Needs Assessment
Appendix 9: He Waka Tapu Organisational Chart
Appendix 10: He Waka Tapu Staff Positions

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