Women offenders: after the Corston Report - United Kingdom ...

Ev 90Justice Committee: Evidenceand communities. International research supports the contention that a gender-specific approach is required toimprove outcomes for women offenders. 14Though there has been some progress since the publication of the Corston Report, many of the damagingeffects identified—for example, the disproportionately harmful impact of prison on women and their childrenand the futility of short custodial sentences—remain ingrained in the system. The group believes thatfundamental systemic change is required to bring lasting transformation to the treatment of girls and womenin the CJS. The diagram appended to this submission represents a shift from fragmented service provision andsporadic use of women-specific services to a holistic, whole systems approach which addresses the specificneeds of girls and women and maximizes the positive contribution of women’s community facilities.Summary of recommendations:— A national, cross-departmental strategy is required, under ministerial oversight, to consolidatethe agenda set by the Corston Report.— The Ministry of Justice (MoJ) and NOMS should adopt a twin-track system of commissioningfor girls and women, including components at both national and local levels.— Women should be specifically targeted in the piloting of new financial instruments, such aspayment by results and local justice reinvestment models.— In order truly to redress the disproportionality exposed by the Corston Report, a substantialdebate is required about whether imprisonment is an appropriate response to the levels of riskand types of offences typically committed by women.1. The Ministry of Justice’s strategy for women offenders and those at risk of offending1.1 Despite the government’s commitment made in March 2012 to publish a document outlining theGovernment’s strategic priorities on women, this is yet to be forthcoming. The delay has compounded a senseof frustration within RR3 about the response to date to its own report. While RR3 understand that thesubstantive structural changes proposed represent a long term vision, the group has voiced its disappointmentat the lack of strategic uptake of its more immediate, interim recommendations.1.2 The shift towards more localised commissioning presents an opportunity to provide the constellation ofservices required for a more responsive approach to women, reduce the isolation of many women’s projectsand ensure more joined up thinking and delivery between local services. However, the proportionately smallnumbers of women offenders compared with men raises serious concerns that the needs of girls and womenwill be marginalised and inconsistently addressed at local level, with very harmful consequences. In view ofthese tensions, we propose a twin-track system of commissioning for girls and women, including componentsat both national and local levels. This would encompass the development of a new national strategy andframework of quality standards, complemented by joined-up local commissioning to meet complex needs andaddress the social exclusion of girls and women within communities.1.3 It is essential that future strategy cuts across the whole criminal justice system, recognising that thedistinct experiences of vulnerable girls and women are often rendered invisible at the multiple criminal justiceentry and exit points. For example, slowing the number of women entering prison for breach would representa key strategy for reducing the use of custody. This would require greater discretion for criminal justicepractitioners and sentencers alongside a richer understanding of the complex reasons behind breaching and thedevelopment of appointment systems and locations that support women’s compliance.2. The Ministry of Justice governance structures for women’s offending2.1 Following the MoJ restructure, it is of concern that there is no longer a Criminal Justice Women’sStrategy Team in place. Although the appointment of staff specifically responsible for policy on women withinthe MoJ Policy Group was a welcome development, there is an urgent need to consider whether sufficientresources have yet been committed to developing a national strategy.3. The extent to which work to address the multiple and complex needs of women offenders is integratedacross Government3.1 In order to consolidate the agenda set by the Corston Report, we would support the development of anational cross-departmental strategy for girls and women at risk of offending, under ministerial oversight. Ajoined-up approach is needed which brings together high level leadership from MoJ, NOMS, Home Office,Youth Justice Board, Department for Education, Department of Health, Department for Work and Pensions,Department for Communities and Local Government and its Troubled Families Unit. This grouping shouldtake responsibility for developing the high-level strategy for a system re-design, including determining whichservices should in the longer term be commissioned at national and local levels.3.2 At the local level, the recent Criminal Justice Joint Thematic Inspection of alternatives to custody forwomen offenders examined the work of probation with community partners. It found that provision for mental14 Scottish Commission on Women Offenders. 2012. Final Report. Online: http://www.scotland.gov.uk/Resource/0039/00391828.pdf