Across the UK, but especially in
England and Wales, the response to crime and management of those who break laws
(especially those who sexually abuse) is shifting. The Conservative government
has recently instituted changes to the management of offenders across the board
with its transforming
rehabilitation agenda. This agenda shifts the offender management landscape
significantly, with one of the most contentious issues being the privatisation
in the management of all low and medium risk offenders to Community
Rehabilitation Companies on a payment-by-results model, with all high risk
offenders remaining with a downsized, specialized probation service. Interestingly,
this approach does not apply to all low and medium risk offenders. Sex offenders
– regardless of their risk level – will be managed by a downsized probation
service. In other words, all sex offenders are considered high risk regardless
of the actual risk they pose.
In addition to these practical
changes, there have been significant changes in policy and practice around sex
offender treatment programmes. Up until recently, the cornerstone of sex
offender treatment in the UK was linked to risk level, required that those
entering treatment first admit guilt, and used cognitive-behavioural approaches.
While there had always been a degree of scepticism about the impact and utility
of sex offender treatment programmes, there was a view that programmes needed
to be evidence based (Mann,
2014; Ministry
of Justice, 2010) – or at least based on sound science – and that doing
something was better than doing nothing. The Ministry of justice argued that:
·
Sex offender treatment models do not have a
sufficient evidence base
·
They can therefore only be regarded as
experimental
·
There are engagement issues with offenders
participating
· There are methodological limitations to the
research and evaluation processes (especially meta-analysis)
·
There is no clear consensus on the right way to
treat sex offenders
While some may argue with the
Ministry of Justice’s perspective on sex offender treatment programmes in
general, it was nonetheless respectable and defensible. However, this blog’s
concern is that the demand for a solid evidence base seems to have started to
dissolve. The swing from left to right with the conservative government, an
increase in ideological (as opposed to science-based) policies, austerity and privatisation
has brought about changes, but not necessarily what the Ministry advocated.
What we have now is a change in the treatment of sexual offenders that might
have its roots in research, but is not evaluated, evidenced based or necessarily
coherent. Only time will tell; exit the “Sex Offender Treatment Programme” (SOTP)
and enter “Horizon” and “Kaizen”.
Earlier this year (in March) the
Ministry of Justice rapidly introduced two new sex offender treatment programmes:
Kaizen (for high risk, high need, high
priority offenders) and Horizon (for
medium risk offenders) to replace existing SOTP programmes. Initially, it came
as a surprise to many in the field, although there had long been murmurs of a
change of direction, but recently it has emerged that there were issues
relating to recent programmes and a related report was apparently suppressed (Daily
Mail, 2017).
At first glance and on paper, the
two new programmes look good enough. They appear to be strengths-based,
positively orientated and focused on ideas found in the Good Lives Model and
related approaches; this is certainly a welcome change from approaches of the
past. The idea is that they build on and adapt the recently jettisoned SOTP –
they are an update and remodelling of existing practices. As with previous
versions of sex offender treatment in the UK neither Horizon or Kaizen are
aimed at low risk sex offenders, but unlike previous programmes they have
capacity for “Deniers”/”individuals who are maintain their innocence” which is
a welcome shift. Both programmes are based on the sex offender treatment
literature and pull together material from a range of sources.
- Kaizen is based upon Risk, Need and Responsivity;
multidimensional views of needs and interventions to be holistic, therefore
incorporating biological, psychological and social aspects; strengths based approaches;
desistance; and adaptive, appropriate and easy to engage with approaches to
learning.
- Horizon is based upon criminogenic needs and the
recognition that sex offenders and non-sex offenders are similar and therefore
addresses poor problem solving skills, poor self-regulation and relationship
problems.
While these two new programmes
are purportedly evidence based, it may be better to say they are evidence
informed. In the pure research/evaluation/piloting sense they are not evidence
based, having not been tested rigorously. This is ironic given the Ministry of Justice’s
need for rigorous evidence in other areas of sex offender treatment/support
(i.e., Circles of Support and Accountability). From our perspective, there are
further ironies. New models often attract doubt and even scorn in the
professional literature. There can be a paradox of putting down unproven
innovation at the same time as there can be nothing proven until there is
innovation. While we applaud the development of these new models and hope that
they are successful, it is nonetheless strange to see that the Ministry of
Justice’s complaints about unproven methods has led to more unproven methods
being championed.
Therefore we need to make sure
that the treatment, rehabilitation and (re)integration is fit for fit for
purpose, publically accountable, transparent and not directed by “political”;
especially in the arenas of sex offending given the increased public, media and
political visibility the issue has. As Ruth Mann observed in 2014,
the evil twin of evidence-based policy-making is policy-based evidence-making.
It is for exactly this reason that we need more dialog and debate and not less.