The new evidence review by the national justice charity Revolving Doors for T2A (Transition to Adulthood), reveals that delivering tailored interventions that meet the health and human needs of young adults can turn young people’s lives around, reduce crime and improve public safety.

The review brings together the latest evidence and emerging good practice that are shown to support young adults to move away from the criminal justice system. It highlights the need to scale up investment in police assisted diversion services to meet the ever-rising time demand on policing and courts.

Evidence from this review recommends that police-assisted diversion services should:

• Avoid prosecutions for low-level and non-violent crimes where possible to have the most impact
• Deliver tailored responses to meet the specific needs of young adults’ health, human needs and maturity
• Apply trauma-informed approaches to understand root causes of crime and minimise harm
• Adopt a gender-specific and culturally competent approach to achieve equable outcomes for young adults in the criminal justice system
• Promote a pro-social identity that builds on their strengths and abilities and empowers them to shape their own future
• Link young adults and their families into sustainable and long-term support to prevent future crises.

Pavan Dhaliwal, Chief Executive of Revolving Doors Agency, said,

“The benefits of out of court disposals are generally well known but what is often lacking is evidence about works about these programmes specifically and importantly given the fact that they make up around a third of all police cases, what works in reducing reoffending in young adults.

This new review shines a light on interventions that are most effective for diverting young adults into support. It pushes the New Generation agenda forward into practical steps towards reducing reoffending and offers the chance for young adults to turn their lives around.

With magistrates’ courts backlogs expected to rise ten-fold, it is vital that police and crime commissioners invest in diversion services so that the police can deal with low-level crime effectively.”

Natasha, New Generation young adult campaigner, said,

“What made the biggest difference for me was having a consistent support worker who worked with me at every step of my journey, taught me how to notice patterns, followed up after I left the service, and encouraged me to seek help. I liked how they did not judge me or make me feel less than. This made me see the light at the end of the tunnel and push me to make the positive changes and embark on my journey to change.”

Joyce Moseley, Chair, T2A said:

“T2A (Transition to Adulthood) has been working to develop and collate best practice evidence from the UK and globally to understand how young adults (18 to 25) can best be supported to move away from crime. This report from the Revolving Doors Agency makes a valuable contribution to that evidence base of diversionary approaches for young adults. Young adulthood can be a time of high offending but it is also the period where with the right interventions rapid desistance from the cycle of crisis and crime can be achieved.”

A new T2A (Transition to Adulthood) briefing on young adults and remand launched today makes the case for a reform of remand arrangements for the young adults.   

A substantial and growing evidence base has found that young adults aged 18-25 are a distinct group, because they are still maturing. Interrupting a young adult’s development with a period in custody should only be made as a last resort.  

The T2A report comes hot on the heels of the Chief Inspectorate of Prison’s short thematic review ‘Outcomes for Young Adults in Custody’, which was highly critical of the Government placing young adults in adult prisons without any coherent strategy, despite a decade of research and evidence explaining the uniqueness of the needs of young adults.  

Specific data is not available about the extent to which young adults remanded to custody subsequently receive a custodial sentence but in the case of children under 18 and women of all ages, most do not.  

Although there has been a decline in the numbers of young adults remanded in custody, the report argues there is scope for reducing them yet further. 

Recent research by Ed Cape and Tom Smith found that “nearly half of those people who are kept in custody at some stage before their trial or sentence were either found not guilty, or if found guilty, were given a non-custodial sentence”.  

In the context of a growing court backlog and highly restricted regimes in prisons because of the COVID-19 pandemic, the report’s author, Rob Allen, argues “it is particularly timely to consider the case for reform of remand arrangements”. ‘Extended Custody Time Limits’ introduced in September 2020 to manage court delays, threaten to leave thousands of people on remand in custody for longer than usual.  Young adults are spending longer in custody as a result of these court backlogs which were already problematic prior to the pandemic.   

The recognition of the need for a distinct approach to young adults has already led to a number of important criminal justice reforms such as expanded explanations in Sentencing Guidelines about how age and immaturity can affect both a young adult’s responsibility for an offence and how a particular sentence may impact on them. However, there has been no corresponding reform for young adults on custodial remand who, the report says: “can be deprived of their liberty for many months, often experiencing very impoverished regimes and … placed at risk of violence and self-harm”. 

 The briefing examines to what extent the specific developmental needs of young adults are taken into account by courts when making decisions about whether to remand defendants into custody. It also looks at the existing legal provisions which could be applied at the remand stage of criminal proceedings, and whether criminal justice agencies and courts think about the maturity of young adult defendants when making decisions about remanding them. 

If young adults aren’t remanded in custody the report looks at what alternatives are available, particularly young women, and defendants with mental health problems. 

Finally it looks at what measures might be taken to improve the distinctiveness of remand arrangements for 18-25 year olds?  Read ‘Young Adults on Remand’. 

T2A (Transition to Adulthood) welcomes the publication of this  important short thematic report on Outcomes for Young Adults in Custody which makes it clear that there is a lack of a clear strategy for young adults in custody, resulting in lost opportunities and poor outcomes. Although some individuals working in the prison system are highly motivated, their efforts are hampered by the lack of a systematic approach, integrated strategy and limited resources for this age group. 

The Chief Inspector’s report endorses many of the key findings and recommendations of a decade of T2A research and other independent reviews of how this age group are dealt with in prisons. We have long-advocated for distinct prison estate accommodation for this age group — separate from the over 25s — including well-tailored, developmentally-appropriate regimes that addresses the distinct needs – and opportunities for change – presented by young adults.  Outcomes for young adults have been poor for a considerable time and will be exacerbated by the current pandemic. T2A has been particularly concerned about outcomes for people of colour, people identifying as gypsy, traveller and Roma, and care experienced young people in and following custody. A more effective approach would understand the experiences of these people as well as young adults more generally and build on the numerous examples of effective practice undertaken in other jurisdictions in the UK and internationally. 

The Government can do more to stop these young people from becoming lifelong criminals who undermine our public safety. It is imperative that this evidence and the volume of credible voices calling for change are reflected in the Sentencing Bill when it comes before Parliament, otherwise an ‘open goal’ opportunity to reduce reoffending and be smarter about how we treat this group will be missed. 

Joyce Moseley, Chair of T2A said: “It is frustrating that despite practitioner, academic, government and Inspectorate findings, we have seen so little progress for young adults at a time when the  criminal justice system so needs an evidence-based strategy to mitigate the impact of the pandemic.  If the Government fails to act on yet one more damning report it will be another indictment of its failure to respond to the needs of a lost generation of young people, locking them into a cycle of crime and undermining public safety. 

New data obtained by Revolving Doors Agency under the Freedom of Information legislation reveals that:

• Over half of all reoffences committed by young adults are theft and summary non-motoring offences.
• Young adults whose index offences are theft and summary non-motoring offences also have the highest rates of reoffending in the same category as their index offence.
• Theft creates the highest level of churn of repeat offences in the same category, with a ratio of 994 reoffences per 1,000 reoffenders.
• This rate is strikingly above any other crime category. It is 12 times higher than repeated possession of a weapon (for example carrying knives) and 6 times higher than repeated violence against a person.

These new figures expose the difference in demand created by young adults committing more serious and sometimes violent crime and the group often called ‘the revolving door’ who commit persistent low-level offences driven by a combination of needs stemming from complex trauma and poverty. These repeated, non-violent offences drive demand for our police, courts and justice system but are driven by underlying, unaddressed need.

The volume and churn of young adults who are sucked into the criminal justice system for relatively minor offences highlights the need for a radical new approach. The current failing approach resulted in the proportion of people with a history of repeat offending reaching at its highest ever level, accounting for nearly two fifths of all offenders.

This stark evidence comes at the same time as Revolving Doors publish an evidence briefing “New Generation” highlighting the critical role of Police and Crime Commissioners and police services in preventing the new generation of young adults entering the revolving door. The report brings together new perspectives on characteristics and needs of young adults entering the revolving door.

Revolving Doors Agency has also announced that they are offering bespoke consultancy and intensive on the ground support for five areas to kick-start local initiatives. These sites will benefit from their research, lived experience, policy, and service design expertise. Their support, which will be free of charge, can help Police and Crime Commissioners and their offices implement new strategies to support better options for young adults, such as deferred prosecutions or diversion schemes to keep young adults out of the criminal justice system.

A new report, published today by the Centre for Justice Innovation and T2A, suggests that a fairer and more distinct approach to how courts deal with young adults could reduce reoffending, meaning fewer victims of crime.

The report  ‘A fairer way: procedural fairness for young adults at court’ sets out a blueprint for a new approach to 18-25 year olds in court, developed over the last two years by criminal justice practitioners, as well as young adults themselves, in five areas of England and Wales. These areas have worked with the Centre for Justice Innovation to develop a model that could be delivered within current law and at no extra cost to the public.

This new approach has the support of the Police and Crime Commissioners of Leicestershire, Northamptonshire, the West Midlands, and South Wales, who, in a joint letter to Justice Secretary David Gauke MP today, state “This innovative multi-agency approach has the potential to benefit not only the young adults but the criminal justice system as a whole. The chance for change is likely to be higher for these young people before their pattern of offending becomes more entrenched. There is a high degree of local enthusiasm in each of our areas for the pilots and much thought has been put into how the pilots could work in practice.”

The Ministry of Justice and the London Mayor’s Office for Policing and Crime, along with the judiciary, have recently announced they are exploring the potential for a young adult appropriate court in London.

The adapted court model draws upon scientific international research that has shown young adults’ brain development and maturity makes them a group distinct from both children and from fully mature adults. It recommends ways to make court processes more understandable and more transparent for young adult defendants. The proposed changes are based on ‘procedural fairness’ evidence that suggests a more understandable and fairer court process is likely to increase young adults’ compliance with court orders and reduce young adults’ likelihood of committing further offences.

These proposed changes have the support of the influential House of Commons Justice Select Committee, which in their 2017 report on young adults in the criminal justice system said, “there is a strong case for a distinct approach to the treatment of young adults in the criminal justice system… The potential of young adult courts are worth testing.” Moreover, the recent report by David Lammy MP on trust of Black, Asian and Minority Ethnic defendants in the criminal justice system stressed that “To build trust, the challenge is to demystify decision making processes and bring them out into the open, so they can be better understood.”

Phil Bowen, the Centre’s Director said; “The evidence behind procedural fairness is simple — people are more likely to obey a court’s decision when the court process is made more understandable and more transparent. The model outlined in this report offers a clear way forward to making this happen in practice.”

The Sentencing Council should work towards developing formal sentencing principles for young adults, similar to the principles that are in place for children, says a report published by the Howard League for Penal Reform and  T2A.

The report, Judging Maturity: Exploring the role of maturity in the sentencing of young adults analysed 174 court judgments in cases involving young adults, focusing on how judges considered the concept of maturity. The findings suggest that the age and maturity of young adult defendants are not sufficiently considered by the courts at present. However, the research also shows that where a young adult’s immaturity is raised by court professionals, the courts are well placed to factor it in to achieve better outcomes – and more likely to do so if sentencing guidance encourages it.

There is substantial evidence that young adults – aged 18 to 25 – should be treated as a distinct group from older adults, largely because they are still maturing – neuroscience research has proven that brain development continues well into the mid-20s. Reaching adulthood is a process, not an event, and the key markers of adulthood, such as independent living, employment and establishing relationships, happen at different times for different young people.

Young adults are more likely to be caught up in the criminal justice system than older adults. They face significant difficulties coping in prison, where both the suicide rate and violence rates are higher among their age group than among the prison population as a whole, and they have higher reconviction rates following release than older adults. Between 2006 and 2016, 164 people aged 18 to 24 died in custody, including 136 who died by suicide.

While there is a wealth of guidance and case law concerning the sentencing of children, there is no set of principles to ensure that judges take a tailored approach to sentencing young adults. Tens of thousands of young adults who appear before the courts for sentencing each year could benefit from a distinct approach.

Roger Grimshaw, Research Director at the Centre for Crime and Justice Studies (CCJS) carried out research for T2A into how practitioners have been using T2A’s ‘Taking Account of Maturity’ guide which was published in 2013.  His findings have just been published in his report ‘Making Sense of Maturity’.  

In the publication Making Sense of Maturity, research with practitioners and managers shows ways in which the Guide was disseminated and embraced within probation services, and how they see it in the present context. We wanted to find out how the Guide was being used to develop frontline probation practice, to discover any ‘ripple’ effects (for example, on other agencies), to provide a template for monitoring use of the Guide and to scope out directions for future guidance.

Because fieldwork started in 2014, at the point when Transforming Rehabilitation brought abrupt structural changes, the research was delayed as probation grappled with its new priorities. Later, it proved possible to listen to practitioners who were operating with the Guide in the new context that prevails today. Amid the turbulence, the buy-in of senior management to promoting a maturity agenda was a factor in making the Guide a part of practice with young adults, though not all probation areas will have followed the same path. The Guide’s use was enhanced by practice briefings and support which could then chime with organisational delivery, especially by specialist teams.

Maturity looks different from the point of view of probation practice, because there are specific social pathways that have created challenges to the maturity of young adults under supervision.

‘So maturity is fundamental, it’s absolutely fundamental. About 30% of our young people have been in care. 50% of them didn’t finish school. Out of the 50% that did, only 5% got a formal qualification. So the rites of passage that you would normally associate with teenage growth and maturity, they just haven’t hit those milestones.’ (Probation manager)

Missing out on education, going through the care system, having difficulty communicating with agencies: these are just some of the experiences that need to be properly understood. Good communication and the development of trust are vital if young adults are to be engaged. Hence caseloads have to be adjusted to allow time for this sensitive work and other agencies must be fully engaged.

Crucially, the future health of maturity initiatives in probation depends on: an active strategic commitment to developing practice sensitive to the maturity of young adults; and an awareness of the pathways and milestones that a well-informed social policy binding together all agencies should address. If practitioners want to turn those conditions into reality, our research will give them plenty of ammunition and evidence.

Sheffield Hallam’s first interim evaluation report into the Transition to Adulthood Pathway Programme, in partnership with Social Justice Solutions (SJS), has been published today.

The University and SJS were commissioned by Barrow Cadbury Trust to evaluate the T2A Pathway programme demonstration projects which were set up to test approaches which take account of maturity and transitions for young adults at key points on the T2A Pathway.

The six projects are run by voluntary organisations which provide targeted initiatives to support young people and address the underlying causes of crime.  The organisations are Addaction, Advance, PACT, The Prince’s Trust, Remedi, and Together for Mental Wellbeing.

This evaluation report drew on the lessons learned from the T2A pilot projects (2009-2013) and will provide an evidence base for the T2A approach with examples of best practice and case studies.  It also outlines what could be done differently at each stage of the criminal justice process – from policing and arrest to custody and resettlement – and provides robust evidence and recommendations for commissioners, practitioners and policy-makers.

This is the first interim report for the evaluation.  A further interim report, final formative evaluation report and final summative evaluation report are due to be produced later this year and in 2017.  The report presents research findings focused on the development, set up and early implementation of the T2A Pathway projects, examining the effectiveness of the processes and partnership arrangements used to deliver the approach within each project site.

Panda Media have also been filming the projects to capture the effectiveness of the projects, to demonstrate how T2A principles are embodied in a ‘real life’ environment and to give a voice to some of the young adults and staff involved.  You can see the videos here.

While the six projects operated at different points on the T2A Pathway their delivery models had common features such as: a welfare-driven approach to young adults; a befriending relationship between project staff and clients; and a holistic approach to the complex and numerous needs of clients.

Some projects benefited from their past experience of delivering similar services, and others from existing working relationships with key statutory partners, such as police, probation and YOTS.  Some projects were able to align their service to meet a locally-identified unmet need that had been identified by key statutory agencies.

Whilst a proportion of the projects appeared to be on track to achieve the target numbers of clients that had been originally identified in applications, challenges remained for others in securing referrals to meet their targets; in some instances this was due to a mismatch between available resources and the scope of the delivery model, which may have been too ambitious.

The interim report found that deploying staff with the right attitude and skills to work with the client group combined with effective staff induction and appropriate training made a big difference to the capacity of a project to operate effectively.

Partnership working operated at different levels across the projects. Projects with the involvement of senior managers from statutory agencies and those with project staff visibly working in partner agency environments saw benefits. However, the report found that cultural dissonance between VCS and statutory agency staff was evident in some projects.

Many of the factors which can improve a project and many of the barriers to the successful development, set-up and operation of projects are not new and are common to these types of initiatives.  A body of evidence already exists to provide learning about these issues.

Project beneficiaries, project staff and partner  agencies were able to identify common benefits such as enhancing self-esteem, encouraging a more positive outlook on their lives, and learning life skills. Benefits for the VCS lead organisation included: an appreciation of the benefits of delivering a preventative initiative; better working relationships with statutory agencies; and expanding their network of agencies. Project and partner agency staff also became more aware of the importance of staff understanding the needs of young adults and females specifically and how that understanding could reduce demand on services as well as reducing workloads.

Read the report

Watch the videos

Helen Attewell, Chief Executive of Nepacs, a voluntary sector organisation working with prisoners and their families in the North East blogs about the fragmentation of joined up working with young adults and the need for a whole system response.

Clinks and Nepacs recently hosted a couple of round table events in Newcastle.  One session presented an inspirational vision from Max Rutherford of the Barrow Cadbury Trust and Jackie Lowthian of Social Justice Solutions on how young adults within the criminal justice system could be better supported in their transition to adulthood.

Much of the Transition to Adulthood (T2A) discussion was spent regretting the erosion of the strong working relationships between local Youth Offending Services and Probation Trusts which had formerly facilitated ‘warm handovers’ of young people into adult services.  There were some particularly striking examples of multi-agency good practice through the Integrated Offender Management teams. However, much of this work has now been fragmented through the creation of privately-owned Community Rehabilitation Companies (CRCs) and their separation from the National Probation Service (NPS).

It was pointed out that we need more join up, not less, since many of those young people who have committed crime have multiple issues to contend with – poverty, mental health, family breakdown, substance misuse problems and homelessness.  A strategic focus on young adults seems the best way to target scant resources on the cohort of people who not only are committing most crime, but are also at high risk of reoffending and potentially about to embark on a lifetime career in crime.  It seems that England and Wales are almost unique in defining 18 year olds as ‘adults’.  In most other European countries, adulthood in criminal justice terms is 21, and it is acknowledged that maturity rates can vary between individuals.

Staff on the ground are doing their best to keep ‘joined up’ between juvenile and adult systems, but we questioned who might give the strategic lead on this issue within the North East region?  Was it NOMS, YJB, Local Criminal Justice Boards or Community Safety Partnerships?  The consensus was that Police and Crime Commissioners were best placed to champion this agenda as a way of minimising new entrants to the system as well as reducing reoffending and potentially creating fewer victims. Let’s hope we can persuade them to take up the challenge!

The session on the Taylor Review celebrated the successes of the Youth Offending Services in contributing towards a steep drop in the number of children in custody.  Prevention is always better than cure, and investment in a range of diversionary activities and services which address the root causes of the problem rather than criminalising young people will have a huge pay off in terms of reductions in cost to the public purse as well as less human misery.

Where children have committed crimes which are so severe that a custodial sentence is deemed necessary, the group welcomed the notion of smaller, more locally-based establishments with a focus on education.  How ironic then, to discover that although the juvenile estate might become more specialised, there are proposals to abolish the Young Offenders Institutions (YOIs) which currently hold 18-21 year olds, and absorb those prisoners into adult jails.   Yet these are the people identified as needing extra help through their transition to adulthood.

This proposal would be a particular loss for the North East, where although HMYOI Deerbolt is subject to many of the challenges faced across the prison estate (reductions in staffing, unpredictable legal highs etc.) it remains a beacon of good practice.  Successes include the work of the Drug and Alcohol Recovery Team (DART) and the work on diversity, including support for young people from travelling backgrounds.  Nepacs has pioneered family support at the jail over the past five years, developing parenting courses, special family visits, work with new fathers, and recently establishing a ‘Dads and Dads to be’ wing, where family becomes the focus of the collective identity of the residents, rather than ‘drug user’ or ‘gang member’.  This ground breaking needs-led work funded by the Big Lottery has provided opportunities for transformative change for many young individuals, who might be completely lost within a big Category B local jail.

My take home message was that we need to submit evidence to the Select Committee on Young Adult Offenders to make sure that a bad situation for young adults in prison isn’t made much worse.  A stark reminder of how important it is to get this right was the report that there has been a sudden sharp rise in the number of self-inflicted deaths of young people in adult jails in recent months.  Colleagues at Deerbolt reported that although none of the young people in their care had killed themselves, sadly, there were a number of instances where this had happened when they were transferred into the adult estate.

It was also pointed out that if young offenders are treated as adults at age 18, then why are they not entitled to the same levels of housing benefits, Job Seeker’s Allowance and Minimum Wage as adults?  So many contradictory policies and such high levels of need.

The Howard League for Penal Reform welcomes the opportunity to engage in Lord Harris’ review. The review is a unique opportunity for expert scrutiny of systemic failings in the penal system that have culminated in the tragic deaths of so many young adults in custody.

This inquiry is the only opportunity to examine the wider context surrounding young adults in prison. Inquests and inquiries have hitherto only considered their treatment in prison that immediately led to death but no one has asked the critical question about whether they should have been in prison in the first place. From the inquest and inquiry into the murder of Zahid Mubarek to the death of Greg Revell a couple of weeks ago, the question about the remand and sentencing decisions and practices of the courts need to be questioned as a contributory factor that led directly murder and suicide. Far too many young men are remanded and sentenced to prison unnecessarily and unless an independent inquiry looks at the route into custody as well as the treatment whilst inside, the problem will not be solved and lives will continue to be lost.

The Howard League for Penal Reform believes that there are too many young adults in prison who should not be there at all. The crime rate continues to fall. While the child custody population has fallen by two-thirds since 2008, there has only been a minimal fall in the number of young adults in prison. It is critical that we build on the successes for children across the system by ensuring that a different approach is taken for young adults from the first point of contact with the police to sentencing.

Summary of submission

Many young adults face avoidable problems in prison that may increase the likelihood of suicide. Despite claims from the Ministry of Justice as to the need for prisoners to make use of their time, most young adults are cooped up for excessive periods of time each day with nothing to do. The inadequate provision of meaningful or, indeed, any activity at all for this group is exacerbated by the hopelessness caused by the new incentives and privileges regime. The scheme, introduced in November 2013, makes it impossible for most prisoners to be rewarded for good behaviour or motivation. Others are paralysed by violence, racism, homophobia and insufficient interventions to meet their needs or allow them to progress in prison.

The Howard League for Penal Reform has identified a number of warning signs that we believe should trigger anxious scrutiny of a young person’s well being. When young people with mental health problems, learning difficulties, histories of abuse and victimization are sent to prison the authorities should not use segregation but should make sure that young people benefit from monitoring and support for their own safety. The caseload of our legal team shows that too many vulnerable teenagers are subjected to adjudications and physical interventions in prison. When the state takes a young person into its care, it must adhere to the highest standards to protect and safeguard them and to enable them to flourish.

Finally, we believe that even where young people’s needs and concerns are known, the current system is inadequate. Disciplinary processes are used inappropriately to deal with issues of profound concern. Measures to monitor risk of self-harm are not sensitive or tailored to the needs of individuals and are not meaningful. Safeguarding procedures for young adults are virtually non-existent.

You can read the full submission here