Decision Reference Number: WPCC4-0004
Lead Officer: Sara Ansell
Chief Officer approval: N/A
Date: 3/06/2024
Status: Non-confidential
Decision summary:
To seek approval for the extension of the Pre-Arrest Diversion Scheme (PADS) in Warwickshire as part of a regional collaboration, until the end of March 2025.
I confirm that my register of interests declaration is up to date and that none of my interests preclude me from making this decision.
Signature: P.Seccombe
Date: 14/06/2024
Supporting information
1. Background Information
The regional Pre-Arrest Diversion Scheme (PADS) was co-commissioned by all four West Midlands regional Police and Crime Commissioners in order to have diversionary interventions available within their localities to provide behaviour change interventions and reduce reoffending for drug possession offences. The contract awarded to Cranstoun, was launched in July 2023. However, operational delays in Warwickshire meant that the scheme did not go fully live until October 2023.
The scheme supports the force strategic objective to increase the number and use of out of court disposals. Under the programme, a total number of 158 spaces had been earmarked for Warwickshire referrals, for the twelve months to the end of June 2024. Whilst the performance data is not yet comprehensive enough, some key data and trends are evident from the first 6 months of the scheme being live. These are summarised below:
- The level of referral activity to PADS has been lower than expected (32 in total) in Warwickshire, averaging around 6 per month for the period from October 2023 to March 2024.
- Individual referral engagement levels in Warwickshire have been high, averaging 94% for the initial one to one behaviour change intervention with a drugs educator, compared to 78% regionally.
- To date no repeat referrals have been received in Warwickshire.
- The main referring drug reported by attendees under the scheme has been cannabis (as anticipated). However, only 63% of attendees in Warwickshire reported this, which is significantly lower than the regional average of 82%. This suggests that the scheme is engaging users of more high harm substances such as cocaine 20% and amphetamines 7% (compared respectively to 10% and 0.4% across the regional)
The low referral rates in Warwickshire over the first six months of the scheme are thought to be as a result of two main factors. Firstly, whilst increasing the use of out of court disposals in Warwickshire is a strategic objective of the force, it does take time to change this culture and embed the approach across the organisation. Secondly, the Warwickshire referral process differs from that used in more established PADS areas. The initial perception is that this is overly onerous, and that there is the potential therefore, that officers have concluded that the referral pathway process significantly outweighs the severity of the crime type, thus leading to the issuing of no-further-action outcomes rather than a PADS referral. The referral pathway will need to be reviewed if scheme referrals are to increase, and further engagement with force colleagues has taken place, and will need to continue. The force are generally supportive of the scheme and ongoing awareness raising of the out of court disposal option also needs to be continued. This will need to be undertaken through greater engagement with OPCC staff, and also with the support of the lead commissioner.
The proposal is for the PADS contract to be extended by 9 months to 31st March 2025, across the region. It is understood that all other regional PCC’s are intending to extend the contract for their areas.
Despite the challenges and delays with the scheme in Warwickshire, it is recommended that the high-levels of engagement with behaviour change interventions and the evidence that there are proportionately more high-harm substance referrals in Warwickshire, show that the scheme has the ability to engage the target cohort. The lack of repeat referrals also suggest some positives regarding future re-offending rates, although the sample size is very small. A further 9 months of the scheme should be beneficial to allow for the embedding of the approach within officers duties, allow time to address any potential barriers to referrals being made, and enable more data to be collated to more fully evaluate the outcomes from the scheme.
2. List of additional information attached as appendices
Memorandum of understanding – contract extension
3. Expected benefits
The scheme provides for an out of court disposal, through referrals for one to one interventions, including for those using high harm substances, with the aim of reducing reoffending and instigating a pattern of behavioural changes. This is in line with Police and Crime Plan priorities.
4. Impact of not approving the application
If Warwickshire do not continue to participate in the scheme, the option of a diversionary out of court disposal of this nature will not be available. Behavioural change interventions will not occur and reoffending may not be reduced.
5. Costs (including any identified savings)
The 2023/24 cost of PADS in Warwickshire has being funded through regional ARIS funding, which will cease at the end of June 2024. The cost to Warwickshire OPCC for extending PADS to the end March 2025 would be £6,043.50. Whilst this cost is not directly budgeted for within the in year budget, the costs can be met from other areas of underspending across the OPCC budget.
6. Equality considerations
None specifically identified. The referral pathway is open to anyone deemed suitable.
7. Legal comments
The current contract is held with West Midlands PCC, and a Memorandum of Understanding will need to be signed for the extension period, which sets out the key objectives of the project, the principles of collaboration, the governance structures the parties will put in place and the respective roles and responsibilities the parties will have during the project.
8. Social or Environmental considerations
Drugs use is prevalent in society, based on 2021 National Crime Survey of England and Wales data. The vast majority of drug users never come into contact with law enforcement for drugs related offences. However, for those that do, in the absence of PADS they are unlikely to receive any preventative interventions to deter future drugs use. Criminal records are therefore a likely outcome, which is often more negatively impacting on individual future life chances rather than leading to a cessation of drugs use, along with any associated wider social and environmental impacts.
9. Publication
Information in this form is subject to the Freedom of Information Act 2000 (FOI Act) and other legislation. Unless the information provided is covered by an exemption and stated to be either confidential or partly confidential, the information contained in the form will be published on the OPCC website.
Comments from the Treasurer
The costs of the continuation of the scheme can be met from within the totality of the 2024/25 OPCC budget. The extensions of the scheme should provide for a greater level of understanding regarding the outcomes from the scheme and offer the operational benefits of an out of court disposal, designed to change behaviours and reduce future re-offending, thus addressing key priorities of the Police and Crime Plan.
Comments from the Chief Executive and Monitoring Officer
This activity is a key part of the approach to deterring individuals from using drugs and reducing harm.
