Heretaunga Tiaki Tamariki Project Outcome Evaluation, Sept 2007 - New Zealand Police

Heretaunga Tiaki Tamariki Project Outcome Evaluation

September 2007

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

This report has been produced by Bea Makwana of the Evaluation Team, Organisational Assurance: Police National Headquarters. The report is the final evaluation of the Heretaunga Tiaki Tamariki Project. It covers the period from programme inception on 10 February 2003 to 31 December 2005.

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

Crown Copyright 2007

ISBN 0-477-02980-9


Summary

In 2002 Heretaunga Tiaki Tamariki project (HTT), based in Hastings was one of 14 community youth programmes selected nationally to reduce youth offending. The programme received $510,000 over three years.

This outcome evaluation considers the effectiveness of HTT over three years, 2003-2005. During this time 26 clients aged between 11 and 16 years were accepted onto the programme; all but two identified as Māori.

This evaluation found:

  • the success of the case plans was dependant on both the level of engagement by the client and the types of goals that were set.
  • social and family environments are complex and the provision of holistic interventions is difficult.
  • there is a need to clarify the client?s responsibility within case plans, particularly in relation to educational outcomes and the reduction of offending and seriousness of offending.
  • overtime interagency collaboration improved and HTT had more visibility in the community.
  • the programme was not able to demonstrate a reduction in offending and seriousness of offending.

A strength of HTT was being located in a local police station and the consequent relationships that were established. The programme also had qualified staff and comprehensive filing and review systems. However, there was room for HTT to promote greater client responsibility, and awareness of HTT as a programme within the community. More generally, the evaluation has noted that both Police and Ministry of Justice can improve their ongoing monitoring and support of community youth programmes, particularly in the initial implementation and training stages.

Background

In April 2002 the Ministers of Finance, Justice and Police received additional 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 is of the Heretaunga Tiaki Tamariki (HTT) project in Hastings which received a total funding package of $510,000 over three years.

Evaluation Phases

The HTT project had three evaluation phases: formative, process and outcome. The outcome evaluation, which is the focus of this report, covers the period from programme inception on 10 February 2003 to 31 December 2005. The aim was to assess the overall effectiveness of the programme by measuring its success in meeting the programme objectives, including any change in clients’ offending behaviour.

The outcome evaluation included both qualitative and quantitative information. Qualitative information was collected via interviews, and quantitative data were primarily extracted from the HTT files, six-monthly reports, and the Police National Intelligence Application (NIA).

Heretaunga Tiaki Tamariki Project

HTT is a community youth programme aimed at reducing repeat offending of high-risk young people aged between 11 and 17 years, and is located in the Flaxmere Police Station. The entry criteria required clients to have already offended; or to have come to police attention; to have truancy issues; and/or care and protection issues; and may experience substance abuse problems. There was a maximum of 5 families per caseworker, with an anticipated throughput of 15-20 clients per year.

The programme had two coordinators during the three-year evaluation period, and there was one full time caseworker at the outcome evaluation phase. During 2005 an office support staff member was appointed for five hours a week. The programme had two staff vehicles.

Objectives for Heretaunga Tiaki Tamariki

  • to tailor individual programmes and plans around the youth and their families taking into account their learning skills and facilitate appropriate intervention actions according to case plans;
  • to improve education outcomes of the youth accepted onto the project (by improving school attendance or securing employment or training);
  • to improve co-ordination across agencies when dealing with the youth (and their families) accepted onto the programme; and
  • to reduce the rate of offending and/ or the level of seriousness of offending by the client group accepted onto the project.

Heretaunga Tiaki Tamariki clients

Thirty-eight referrals were made to HTT, the majority by Police, and a total of 26 clients were accepted onto the programme. The clients ranged between 11 and 16 years of age, most were male (20 of 26) and all but two identified as Māori.

The most common reasons for referral were having ‘come to police attention’, ‘antisocial’ behaviour, and ‘negative peer influence’, which are consistent with having been referred by Police and the types of behaviour that typically attracts police attention.

Consistent with a holistic approach, caseworkers spent most of their time one-on-one with clients, while family members were also supported by HTT and were involved in meetings with both the client and agencies in regards to the client.

Although it was intended that clients would be on the programme for 12 months, 13 exited clients varied between 13 and 83 weeks on the programme, and 10 of the 13 current clients had already exceeded the 12 month contract period at the time of the evaluation.

Five clients and their families participated in case studies. Their stories are presented in this report.

Key programme objectives

Developing Individually Tailored Interventions

In the aim to develop individually tailored interventions a designated caseworker developed a case plan in consultation with the young person and their family. It was found that the family environment often limited client engagement with HTT, and it was common for families to experience health, employment, and drug and alcohol issues. Clients were influenced by local gangs prospecting youth and at times there were gang affiliations within families. However, there were clients who did achieve improved outcomes within their case plans, and HTT staff witnessed improved attitudes, improved health and hygiene, clients no longer coming to police attention, and reduced use of cigarettes, alcohol and drugs. In terms of activities provided by the programme, there were examples of clients joining cultural activities, enrolling in educational assessment and tutoring, and in stop-smoking programmes.

On reviewing the case plans, the Evaluation Team identified that the majority of tasks that were included in case plans were to be undertaken by the caseworker to support the client. The case plans seldom identified tasks specific to the client, therefore inadvertently absolving them of responsibility.

Improving Educational Outcomes

HTT undertook a number of initiatives to improve the educational outcomes of clients. HTT worked with school Board of Trustees and management to reintegrate clients back into the education system; provided in-class support to clients; and assisted other clients moving into alternative education. The programme also sourced local educational assessments and tutoring services for clients.

Although improving educational outcomes was a key priority area, not all of the case studies had educational goals in their case plans. Overall, there tended to be a lack of detail about what clients intended to do to improve and achieve educational goals.

Improving Interagency Coordination

During the previous three years HTT has improved the interagency coordination of work with youth at risk within Hastings. The programme has become more visible as a consequence of having organised several local Hui and community fora, and has continued to work with other agencies and local community services. Key stakeholders identified a relationship with HTT that involved sharing clients, sharing information and providing support to one another. However, a number of stakeholders felt HTT needed to continue to raise its profile.

Reducing Offending and Seriousness Of Offending

Offending records 12 months prior to joining the programme, during the programme and within the first 12 months of exiting the 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 26 clients, 23 had offending histories in the 12 months prior to entry. Dishonesty was the most common offence pre, during and post programme, followed by violent offences and property damage.

Of the 26 clients who entered the programme during the evaluation period, 13 were followed up one year after exiting from the programme. The offending and seriousness of offending by the 13 exited clients showed that although the average number of offences declined while the clients were on HTT, the average level of seriousness increased. This indicates that on average clients had fewer offences (and fewer offended at all) while they were on the programme, but when they did offend the offences were more serious. The seriousness of offences declined within the first 12 months of exiting the programme, although the number of offences increased.

The programme was not able to demonstrate a reduction in offending and seriousness of offending as a consequence of the interventions provided by HTT. The case plans indicated that the caseworker attempted to reduce the opportunity to commit crime by keeping a client occupied through activities. However, once again the case plans did not identify goals that required the client to take greater responsibility for reducing offending, and seriousness of offending.

Conclusions

The evaluation found that, in general, the success of the case plans was dependant on both the level of engagement by the client and the types of goals that were set. The evaluation highlighted the complexity of the social and family environments and the difficulties that are faced when trying to provide holistic interventions. The evaluation also identified the need to clarify the client’s responsibility within case plans, particularly in relation to educational outcomes and the reduction of offending and seriousness of offending. However, the programme was not able to demonstrate a reduction in offending and seriousness of offending.

Strengths of the Programme

Strengths of HTT included the location in the Flaxmere Police station and consequent strong relationships with the Police Youth Aid team which assisted with the referral process and timely management of clients. A comprehensive filing and review system helped caseworkers to be familiar and up-to-date with all the client files. Qualified and experienced staff helped to build a strong and competent staff team, while the HTT Trust was a strong and supportive management team.

Areas for Improvement

As mentioned previously, a move towards identifying client responsibility within the case plans will help to indicate a client’s progress and personal achievement, and promotion of HTT within the community will continue to raise the profile of the programme. The majority of clients were on the programme longer than the contractually agreed 12 month period and this may need to be reconsidered, or the activities within it, to ensure clients are given the greatest opportunity to improve their life outcomes. Ongoing professional development and administrative assistance will help to strengthen the delivery of the programme.

Learnings for Police and CPU

HTT has identified the need for Police and CPU to provide more intensive support in the initial stages of setting up a CYP, particularly in training on and implementation of the contractual reporting requirements, including the development of a client database, drafting expenditure forecasts, and completing six-monthly reports.

It is important to continue using core monitoring assessment tools across the evaluation phases to allow for pre and post analysis. Critical to this is the undertaking that the tools will not be modified by Police, CPU or the programme without full consultation.

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Table of contents

Acknowledgements 5
Table of Figures and Tables
Section 1: Executive Summary
Section 2: Introduction
Background to the Community Youth Programmes
Selection of Heretaunga Tiaki Tamariki
Report Structure
Section 3: Evaluation Approach
Heretaunga Tiaki Tamariki Project Evaluation Phases
Findings of Process Evaluation
Methodology
Limitations of the Methodological Approach
Ethics Statement
Section 4: Description of Heretaunga Tiaki Tamariki
Heretaunga Tiaki Tamariki History
Section 5: The Programme and Clients
Aims of the Heretaunga Tiaki Tamariki Project
Client Information
Programme Delivery
Case Studies
Section 6: Outcomes of the Programme
Aim 1: To Develop Individually Tailored Interventions
Aim 2: Improve Educational Outcomes
Aim 3: Improve Interagency Coordination
Aim 4: Reduction in Reoffending
Aim 5: Reduction in Seriousness of Offending
Conclusions
Section 7: References
Section 8: Appendices
Appendix A: Programme Coordinator Interview Guide
Appendix B: Caseworker Interview Guide
Appendix C: Stakeholder Interview Guide
Appendix D: Current and Exited Client and Family/ Parent/ Caregivers Interview Guide
Appendix E: Consent Forms
Appendix F: Entry Interview with Child/Young Person
Appendix G: Referral Form
Appendix H: Contact Sheet

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