Chief Constables’ Council
Title: Integrated Offender Management and
Electronic Monitoring – Update
7 October 2020
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DCC Jon Stratford
Electronic Monitoring and Integrated Offender Management
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This paper seeks to provide an update on work in progress with colleagues in the Ministry of Justice
(MoJ) and the Home Office to develop existing Integrated Offender Management (IOM) arrangements
and expand the use of Electronic Monitoring (EM) technology.
Integrated Offender Management (IOM)
The drivers for this work are as follows:
A recent joint HMIP/HMICFRS thematic inspection into IOM that found schemes across England and
Wales need to be refocused and re-energised
The failure of the government's Transforming Rehabilitation programme: this has led to the
renationalisation of the delivery of all probation services across England and Wales into the National
Probation Service (NPS) with the corresponding need to re-define expectations of joint working
between the Police Service and the NPS
The Police Uplift Programme: whilst full details of the government’s corresponding ‘performance
ask’ are yet to be fully identified, there is no doubt ministers will wish to see a reduction in crime
and improvement in community safety as a result of this investment
The Royal Commission on Criminal Justice: whilst the exact focus of this is yet to be defined, it would
seem sensible to seek to include measures to reduce offending post-conviction as opposed to
limiting the Service's involvement to the pursuit of convictions
Next year's PCC elections: although delayed for a year, there is the possibility these will introduce a
fresh cohort of PCCs seeking innovative ways to reduce crime, reduce reoffending and improve
Electronic Monitoring (EM)
2.2.1 Whilst it is acknowledged that the NPCC have not always supported MoJ plans to make greater use of
GPS technology, there is no doubt that the increased use of GPS tags brings with it the potential to
improve offender management and therefore reduce offending and reoffending. Work is being
undertaken with MoJ colleagues to ensure these opportunities are seized and the associated risk of
increased risk and demand falling upon the police service minimised.
2.2.2 This work has been given added impetus by the current ministerial enthusiasm to see greater use of EM
tagging within the Criminal Justice System; specifically the Policing Minister's desire for all serious
acquisitive criminals released on licence to be tagged.
3.1.1 I have been in close contact with senior officials within the Home Office and Ministry of Justice seeking
to influence the proposals brought forward by Her Majesty’s Prison and Probation Service (HMPPS) in
each of these areas. Specifically I’ve argued that the delivery mechanism for the MoJ's plans to increase
the use of EM tags should be a revitalised IOM framework. This view is supported by Amy Rees, Director
General of Probation.
3.1.2 In respect of EM, development work sits within two areas. The first is the 'Legacy Programme' -
effectively the existing MoJ programme to use GPS tags for use pre-conviction (court imposed bail
conditions) and post-conviction through either sentencing or licence requirements. Forces will note
that, as agreed through Chief’s Council, numbers remain manageable.
Location Monitoring Orders to Date
Total LM Case Count
Fig 1. Data obtained from the HMPPS LM Dashboard, accurate as of 30 July 2020.
This means that the number of offenders wearing a tag on court imposed bail conditions at any one
time across England and Wales is approximately 650.
National Police Chiefs’ Council
The second strand of the MoJ work is the ‘Expansion Programme’, which is looking at increasing EM use
in the following areas:
Alcohol tagging and breathalysers for Out of Court Disposals (OOCD)
Foreign National Offenders.
It is worth noting that some of the elements being proposed by ministers are not supported by the
NPCC – for example the use of EM tags for OOCDs. Whilst it is the MoJ’s intention to take developed
proposals to ministers in October, plans are still in the early stages. I am being kept fully sighted on,
and contributing to, development activity to ensure the NPCC’s interests and views are properly
represented. I will ensure forces and NPCC leads are kept updated.
3.1.3 In respect of IOM, a combined response has been agreed with Her Majesty’s Prison and Probation
Service (HMPPS) to the joint inspectorate report. The main point of note is the agreement to stand up a
shared national governance arrangements with HMPPS.
Specific responsibilities arising from the response include:
Defining the IOM offer and set out clearly what is required by each agency at every stage of the IOM
Improving the quality and accuracy of recording in IOM cases
Analysing training needs and ensure that all staff receive sufficient training to enable them to fulfil
Ensuring that service users are kept informed, as much as possible, about the benefits of
inclusion in IOM, the support available and the monitoring and information-sharing ramifications of
Whilst the exact governance arrangements are still being agreed, MoJ led fieldwork has already
commenced in six forces. This will look at six separate IOM arrangements and will seek to understand
the offender journey through various IOM schemes with a number of areas of interest including how
IOM differs from other types of offender management and the roles of police, probation, and other
agencies in this work.
Findings will be drawn into an interim report, which will cross reference fieldwork with other
knowledge on IOM including the HMIP/HMICFRS report, research studies, HMPPS survey, NPCC survey,
and views of senior agency staff.
Whilst the bulk of the development work, and subsequent activity will fall upon HMPPS to conduct and
deliver, I will ensure that the NPCC fully contributes towards the development of these joint plans in
order to maximise the benefits to be garnered and ensure the subsequent expectations falling upon the
Police Service remain manageable.
National Police Chiefs’ Council
APPROVAL OF THE COORDINATION COMMITTEEE
3.2.1 This paper was presented and approved at the Criminal Justice Coordination Committee on 25 August
STATEMENT/DETAILS OF COST OR RESOURCE IMPLICATIONS
3.3.1 IOM: It will be for each force to determine the level of investment they wish to make in local IOM
schemes. The outcome of this national work will be an agreed framework with HMPPS that will enable
local IOM working to be focused on those individuals who cause the most damage to communities and
present the greatest demand to police and other agencies.
3.3.2 EM: The bulk of the development activity, implementation, and subsequent operation of increased use
of EM tags (and therefore cost) will sit within the MoJ. The resource implications for policing arise from
subsequent enforcement activity where breaches are identified. However, by definition, this provides
the opportunity to interdict offending - often by prolific offenders. The commitment provided thus far
is for forces to receive quality breach notifications, assess them, decide what action to take and notify
the EM provider of this.
3.3.3 Work continues with HMPPS and other agencies to tailor the proposals being brought forward to derive
the maximum joint benefit, specifically reduced reoffending, from the government's intended
investment in EM technology.
Forces are asked to note the work in train to identify a framework to refocus and revitalise IOM working
across England and Wales, deliver on ministerial ambitions and seize the opportunities the MoJ
investment in increased EM technology brings to better manage prolific offenders, reduce crime, and
improve community safety.
Should any forces require further information please do not hesitate to contact me via my Staff Officer
Josie Preston: firstname.lastname@example.org
Deputy Chief Constable
NPCC Lead for Electronic Monitoring
Criminal Justice Coordination Committee
National Police Chiefs’ Council