REPORT TO: DATE: SUBJECT: REPORT OF: AUTHOR: RECOMMENDATIONS SUMMARY BACKGROUND

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1 REPORT TO: Southampton Partnership Delivery Board DATE: 6 th November 2008 SUBJECT: Preventing Violent Extremism (PVE) Programme REPORT OF: Head of Communities & Regeneration, Southampton City Council (SCC) AUTHOR: Vanessa Shahani, Stronger Communities and Equalities Manager, SCC Item 4a RECOMMENDATIONS The Southampton Partnership Delivery Board is requested to: Note the progress on this agenda to date Approve the draft baseline assessment against NI 35 attached at Appendix 1 Consider and agree the outline Communications Plan attached at Appendix 3 Endorse and support mainstreaming of this programme, following results of the needs assessment Consider whether changes should be made to the current governance arrangements for this work SUMMARY The Government launched its Action Plan Preventing violent extremism: winning hearts and minds in April 2007 and then announced the Preventing Violent Extremism Pathfinder Fund. Southampton is one of the identified local authority areas for the second round of funding and has received 105,000 as part of the Area Based Grant. Prevent is a. The indicative funding allocations for this three year programme are currently being reviewed and are 2009/10 ( 125,000) and 2010/11 ( 131,000). Local authorities receiving this money will be measured against a new National Indicator, NI 35. This report details progress to date on the PREVENT agenda and requests the Delivery Board to: approve the baseline assessment against NI 35 consider and agree the outline Communications Plan discuss how the Prevent programme can be mainstreamed BACKGROUND Prevent is one of the four strands of the Government s long-term strategy to countering violent extremism. This strategy is known within the government as CONTEST. The Pathfinders funded last year were badged as PVE or Preventing Violent Extremism programme. The Home Office is moving towards the use of the term Prevent to describe this area of work, whereas DCLG still seems to be using PVE. The Prevent programme has four key aims: promoting shared values supporting local solutions building civic capacity and leadership strengthening the role of faith institutions and leaders. Page 1 of 15

2 The Prevent programme has five key objectives: Challenging violent extremist ideology and supporting mainstream voices Disrupting those who promote violent extremism and supporting the institutions where they might be active Supporting individuals who are being targeted and recruited Increasing the resilience of communities Addressing grievances There are also two strategic enabling functions: Developing understanding, analysis and information Improving strategic communications. Local authorities receiving this money will be measured against a new indicator, NI 35 which concentrates on the following four areas: Understanding of and engagement with Muslim communities Knowledge and understanding of the Preventing Violent Extremism agenda Effective development of an action plan to build the resilience of communities and support vulnerable individuals Effective oversight, delivery and evaluations of projects and action. PROGRESS 6. The Delivery Board is requested to note the following progress made locally on this agenda, which has been made locally and this has been endorsed by the GOSE lead for Prevent: Governance Establishment of an embryo Steering Group with membership drawn from a broad range of stakeholders including the council, Muslim Council of Southampton, Hampshire Constabulary, Southampton City PCT, Hampshire Police Authority, GOSE, both Universities, Southampton Council of Faiths, Southampton Voluntary Services, West Itchen Community Trust, Workers Education Association and Al Nisaa. Representation from the Forums for Secondary School Heads and Further Education institutions will be sought. Organisation of a workshop for key stakeholders on 13 th September 2008, attended by a wide range of agencies and councillors from all 3 political groups. The workshop was facilitated by GOSE and Faith Associates, a London based consultancy that has worked across the country on the PREVENT agenda. Agreement of the Steering Group s Terms of Reference, Delivery Plan for 2007/08 and specification for community needs assessment by the Steering Group. The Delivery Plan for 2007/08 is attached at Appendix 2. Draft Communications Plan agreed by the Steering Group, attached at Appendix 3, which the Board is requested to consider and agree. Page 2 of 15

3 Baseline Assessment Southampton Communities and Renewal Partnership have agreed the draft baseline assessment against NI 35 attached at Appendix 1 and the Delivery Board is requested to approve this. Resources Temporary Project Officer has been recruited, funded by the Prevent monies and based within the council s Stronger Communities and Equalities Team. This officer will start on 10 th November Successful completion of first assessment stage for the city s bid for additional Home Office funds to support Muslim ex-offenders was submitted. This is now in the process of being moderated and if successful, will secure 54,850 for work in 2007/08. Partnership working Close working relationship with Hampshire Constabulary who has received funding to employ two officers to contribute to the Prevent agenda and the creation of a virtual Prevent team in the city are being explored. The first meeting of this team will be held before Christmas. Local forces are actively supported by regional Prevent teams and a new national co-ordination unit. Discussion with the Portsmouth City Council s lead officer on Prevent has led to agreement on joint work on communications and project evaluation. Feedback from the workshop on 13 th September While the key stakeholders are working together on progressing this agenda, there is recognition about the sensitivity of this project and the workshop highlighted several key issues including: the need to ensure that local authorities and Muslim communities have the necessary capacity and infrastructure to drive forward this agenda the importance of assessing community needs to drive the programme forward the need to appreciate the difference between Prevent activities and community cohesion activities (although some overlap will be present) the difficulties of communicating this agenda to the general public the need for a programme of activities to work across the city and not just focus on the inner city area the need to recognise the concerns of key local agencies in engaging with the Prevent agenda as this may affect their relationship with Muslim clients GOSE s feedback on progress of the Prevent agenda in the city 11. The GOSE lead for Prevent has provided the following positive feedback: In a relatively short space of time, I have been impressed by the pace at which SCC have taken on the PREVENT agenda and the level of due Page 3 of 15

4 diligence being applied to the full spectrum of activity: partnership development internal cross-team working community engagement commissioning and procurement of services communications Given the sensitivity and complexity of the agenda, they (like most areas receiving PREVENT monies for the first time) are still in the early phases of development but are seeking to establish a robust platform from which to then deliver activities. The links to the CDRP and community safety agenda are recognised as being important and will become more defined as internal knowledge, capacity and processes are developed. I am aware that SCC have had a project shortlisted by the Home Office (OSCT) to undertake PREVENT work with prisons in the Hampshire and surrounding areas - specifically on Muslim offenders prior to and on release from prison - which will require work with relevant agencies across the community safety spectrum. This may well provide a 'booster'for fostering links to the CDRP, regardless of whether the bid is successful or not. MAINSTREAMING THE AGENDA 12. The need to mainstream the Prevent agenda has been discussed at the Stakeholder Workshop as well as meetings of the Steering Group and at the Southampton Communities and Renewal Partnership. The Southampton Communities and Renewal Partnership agreed at it last meeting that Prevent needs to be mainstreamed as soon as possible in order to both create sustainability of the programme and mitigate its negative connotations. Once the community needs assessment has been completed it will be clear what the key issues are for local Muslim communities and therefore, identify specific contribution from the council and partner agencies to mainstream this agenda. The results of the assessment are due at the end of March A report will then be presented to the Southampton Partnership. The Delivery Board is requested to endorse and support mainstreaming of this programme, following results of the needs assessment FUTURE GOVERNANCE AND ACCOUNTABILITY STRUCTURES 13. Currently, the Prevent agenda falls within the remit of the Southampton Communities and Renewal Partnership (SCRP). In light of the proposed changes to the structure of Southampton Partnership and its potential impact on SCRP, it is perhaps timely to review the governance and accountability arrangements for the PVE work. In other areas, PVE is formally located within the Crime and Disorder Reduction Partnership structures. Linking the Prevent programme to the Local Resilience Forum (sub group of the Safe City Partnership) would ensure a more joined-up approach as it links better to the LAA work for this area. The Delivery Board is requested to consider whether changes should be made to the current governance arrangements for this work Page 4 of 15

5 NEXT STEPS The next steps are to: Commission the needs assessment Implement the Communications Plan including holding focus groups with Muslim communities to aid the development of appropriate messages, following approval by the Delivery Board Organise another workshop with key stakeholders to discuss the results of the needs assessment and identify how Prevent activity can be mainstreamed Further develop the interim Delivery Plan based on the outcome of the needs assessment to ensure that it meets the specific objectives of the Prevent Strategy and is proportionate to the level of threat in the area Develop and agree Information Sharing Protocols based on the existing information protocol for the Safe City Partnership, to meet the specific needs of this programme Identify opportunities for mainstreaming the programme Complete the Equality Impact Assessment on the Delivery Plan Work with the Police to prepare for the HMIC Inspection of Prevent in February 2009 In addition to the actions detailed above, specific work will need to be undertaken with schools and further and higher education institutions. The Government has recently produced a PVE Toolkit for schools and released additional resources via the Area Based Grant to enable schools to participate in this agenda. In Southampton, 12,000 has been allocated through this route. Discussions with the relevant lead officer in the Children s Services and Learning Directorate will need to be held to determine the best way to join up with the emerging Prevent programme in Southampton. The two Universities are expected to work with partners in examining the implications of the guidance on dealing with violent extremism on campus. It is recognised that this is a sensitive issue, which requires care handling as it is important to reassure all students that some, such as overseas students, are not being targeted because of their religion, nationality or ethnicity. One approach could be to have programmes of work that seek to safeguard the interests of students and combine well with Prevent such as hate crime. A meeting with representatives from both Universities to discuss this is being arranged for the New Year. 17. CONCLUSION AND RECOMMENDATIONS The Prevent programme in Southampton has made steady progress since May this year. Key partners have been brought on board and the necessary infrastructure developed. This places the city on a sound footing to move forward on this sensitive and important work. The recommendations detailed in this report will enable this work to be progressed further. Page 5 of 15

6 APPENDIX 1 N.I. 35 BUILDING COMMUNITIES RESILIENT TO VIOLENT EXTREMISM ASSESSMENT FRAMEWORK Understanding of, and engagement with, Muslim communities. Score Description Local position 1 Community engaged on an ad hoc basis and through wider Southampton has a Muslim Council and also Council of Faiths. faith/minority groups. Mechanisms and engagement is/are not self sustaining or productive. Understanding of the make-up of the local Muslim community is cursory and limited. 2 Regular mechanisms for consulting and working with Muslim community, but attendance and reach not wide. Tendency to engage with individuals and interest groups rather than communities. Basic knowledge of structure of local Muslim community in terms of ethnicity and geographical extent. Muslim Council of Southampton and Southampton Council of Faiths would be the routes used to consult with Muslim communities. A recent workshop with key stakeholders agreed that there is insufficient knowledge of the needs and issues amongst local Muslim communities. 3 Regular and reliable mechanisms for frequent contact with whole communities, as well as individuals within communities. Strong knowledge of the make-up of the Muslim communities, including different ethnic groups, denominations, social and economic status, elected representatives and community leaders, knowledge of location and denomination of mosques, awareness of community groups. Knowledge of partner agencies appropriately utilised. 4 Regular and reliable mechanisms which include all communities and under-represented groups such as women and youth in an ongoing dialogue. That dialogue influences and informs policy. Sophisticated and segmented understanding of Muslim communities, the structures within them, and the cultures which make them up. Page 6 of 15

7 5 A self sustaining, dynamic and community driven engagement which takes place on a number of different levels and in a number of different ways, with innovative approaches to communication and engagement of all groups. Sophisticated understanding of local Muslim communities is used to drive policy development and engagement. Item 4a Knowledge and understanding of the Preventing Violent Extremism agenda Score Description Local position 1 Awareness of the issues, but no thinking about what it means for the locality, what the implications are in terms of capacity and capability, or how to engage fully with the agenda. 2 Basic understanding of what is required from local authorities, and familiarity with key documents and guidance material. Some thinking about the implications in terms of capacity and capability requirements. 3 Grasped key points of the agenda, and its implications locally, with input from stakeholders and partner organisations. Understand radicalisation drivers and have started to build an evidence base for the work. 4 Strong understanding of the agenda, interfaces with related policy areas, awareness and use of best practice networks and material. Strong evidence base for the work. Understanding of capacity and capability requirements, including those necessary for interventions to support individuals at risk of radicalisation. 5 Able to drive forward and develop understanding of the agenda at a local level, and consider implications across LSP delivery organisations and strands. Exceptionally strong evidence base and understanding of radicalisation drivers, risk factors and based on that capacity and capability needs. Page 7 of 15 Two meetings of an embryo steering group held plus a workshop for key stakeholders. These meetings are developing understanding but there has been limited discussion about the implications of PREVENT for Southampton and potential agency contribution. Further discussions will take place once community needs have been mapped.

8 Effective development of an action plan to build the resilience of communities and support vulnerable individuals Score Description Local position 1 Basic, narrowly focused action plan in place. Interim action plan produced based on decisions taken by embryo steering group. Includes resource allocation and timeframes but no identification of risks. Clearer links to PREVENT objectives and broader contributions from partner agencies also need to be included. 2 Action plan with clear resource allocations and timeframes attached to actions. 3 Risk-based comprehensive and clear action plan which makes clear links to Preventing Violent Extremism agenda. 4 Risk based and strategically focused action plan with clear links to the evidence base, government policy and to consultation with communities. Clear buy-in from senior officers and strategic partners. Necessary capabilities, policies and projects clearly identified. Focus on multi-agency partnership working, including synergies with CDRPs. Broad range of activity. 5 Risk based and strategically focussed action plan clearly linked to the evidence base, government policy and to consultation with communities and local partner agencies. Seeks to mainstream the agenda, e.g. through youth services, alongside delivering focussed projects. Clear buy-in from senior officers and strategic partners. Necessary capabilities, policies and projects clearly identified. Focus on multi-agency partnership working, including synergies with CDRPs. Innovative approaches across a broad range of activities. Page 8 of 15

9 Effective oversight, delivery and evaluation of projects and actions. Item 4a Score Description Local position 1 Loose and informal monitoring of projects, leading to haphazard delivery and frequent overruns and changes of scope. Evaluation is informal and haphazard. 2 Clear plans for delivery and oversight. Some level of formal evaluation, but no clear mechanism for follow-up. 3 Monitoring mechanisms in place with regular reviews to ensure delivery. Oversight group in place. Formal evaluation but which has no real effect on developing future projects and actions. 4 Proven monitoring mechanisms in place which help ensure regular delivery of projects within timescale, to the required standard and budget constraints. Oversight group with range of skills and representing appropriate range of interests. Formal evaluation using appropriate methodology which has some impact on the development of future projects. 5 Strong tried and tested monitoring mechanisms which allow highlighting and resolution of issues, track progress and ensure consistent delivery of projects and actions within timescale, to the required standard and budget constraints. Oversight group with appropriate skills and seniority in place and actively involved in monitoring. Professional and extensive evaluation of project against agreed objectives, which has real impact on development of future projects. Council procurement rules will be followed for distributing PREVENT funds to projects. Protocol in line with these procurement rules yet to be developed. Steering group set up to oversee this process. The need for evaluation and project monitoring has been discussed but mechanisms yet to be agreed. Page 9 of 15

10 PREVENT DELIVERY PLAN : INTERIM PLAN FOR 2008/9 NI 35 OBJECTIVES NI 35 BASELINE ASSESSMENT AND SCORE ACTIONS 1.Understanding of and Southampton has a Muslim engagement with Council and also Council of Muslim communities Faiths. Muslim Council of Southampton and Southampton Council of Faiths would be main channels used to consult with Muslim communities. A recent workshop with key stakeholders agreed that there is insufficient data to back up knowledge of the needs and issues amongst local Muslim communities. Score 2 out of 5 Page 10 of Review existing research into Muslim communities in Southampton, identify key issues, emerging trends and produce summary report on where and how this can be addressed through both mainstream services and PREVENT provision 1.2 Hold stakeholder workshop to consult with provider services on the PREVENT agenda, initial analysis of capacity gaps and risk-related issues to inform risk-based action plan and develop messages that can underpin future work 1.3 Map existing statutory-led engagement and consultative processes to identify extent of Muslim community participation, where and how gaps exist and ways that this can be addressed 1.4 Undertake extensive consultation with Muslim communities to scope perspectives on how to build local resilience to violent extremism, refine messages and assess RESOURCES & LEAD PVE funding New posts within police service Some Section Manager time from Stronger Communities and Equalities Team (SCET), SCC GOSE Adviser Lead: SCC APPENDIX 2 WHEN By 31 st January 2009 Item 4a Initial workshop 13 th September 2008; follow up workshop by 28 th February 2009 By 31 st December 2008 By 31 st December 2008

11 NI 35 OBJECTIVES 2.Knowledge and understanding of the Preventing Violent Extremism agenda NI 35 BASELINE ASSESSMENT AND SCORE Two meetings of an embryo steering group held plus a workshop for key stakeholders. These meetings are developing understanding but there has been limited discussion about the implications of PREVENT for Southampton and potential agency contribution. Further discussions will take place once community needs have been mapped. Score 1 out of 5 ACTIONS 1.5 Produce final report to identify key needs of local Muslim community linked to Prevent objectives 2.1 Identify nature and extent of capacity and knowledge gaps within key service providers and address this through customised support 2.2 Agree communications plan as part of wider dissemination / engagement strategy with key communities, media, service providers and third sector 2.3 Implement communications plan RESOURCES & LEAD PVE funding GOSE Adviser Some section manager time from Stronger Communities and Equalities Team (SCET), SCC Lead: SCC WHEN By 31 st January 2009 By 31 st January 2009 By 31 st October From 31 st October Effective development of an action plan to build the resilience of communities and support vulnerable individuals Interim action plan produced based on decisions taken by embryo steering group. Includes resource allocation and timeframes but no identification of risks. Clearer links to PREVENT objectives and broader contributions from partner agencies also need to be included. Score 1 out of Hold stakeholder workshop to identify contributions from / alignment with key provider services 3.2 Draft action plan based on existing evidence/information and where possible robust intelligence 3.3 Initial assessment of baseline against NI35, co-signed by LSP and Police 3.4 Progress reports to Southampton Partnership Delivery Board, relevant Cabinet PVE funding GOSE Adviser Some section manager time from Stronger Communities and Equalities Team (SCET), SCC Lead: SCC By 30 th September 2008 By 31 st October 2008 By 30 th November 2008 Ongoing Page 11 of 15

12 NI 35 OBJECTIVES NI 35 BASELINE ASSESSMENT AND SCORE ACTIONS Member and Southampton Communities and Renewal Partnership RESOURCES & LEAD WHEN 3.5 Recruit PVE Project Officer 3.6 explore opportunities for joint work with Portsmouth City Council (PCC) 3.7 confirm joint work with PCC (if any) and implement By 30 th November 2008 By 31 st October 2008 From 31 st October Effective oversight, delivery and evaluations of projects and action Council procurement rules will be followed for distributing PREVENT funds to projects. Protocol in line with these procurement rules yet to be developed. Steering group yet to be set up to oversee this process. Terms of reference have been drafted and potential steering group members identified. The need for evaluation and project monitoring has been discussed but mechanisms yet to be agreed. Score 1 out of Agree terms of reference for Steering Group and clear reporting process to the LSP 4.2 Establish Steering Group 4.3 Induction Steering Group 4.4 Confirm contributions from Steering Group members to PVE delivery plan 4.5 Agree criteria and process for spending PVE allocation (this needs to be in place by November, with bids in and assessed by end of December, to start in January the latest) 4.6 Review progress against objectives 4.7 Review baseline assessment against NI35 PVE funding GOSE Adviser Some section manager time from Stronger Communities and Equalities Team (SCET), SCC Lead: SCC By 31 st October 2008 By 28 th Feb 09 By 31 st March 09 Page 12 of 15

13 DRAFT PREVENT COMMUNICATIONS PLAN APPENDIX 3 Item 4a Communication objectives: To inform key stakeholders about PREVENT and implications for Southampton To engage Muslim communities in the PREVENT agenda To inform the wider public about PREVENT To tackle Islamophobia To promote cohesion and links to the cohesion agenda To reduce community tensions To promote the concept of community resilience and build trust in statutory agencies To promote projects funded by PREVENT Target audiences: Members of the Muslim Council of Southampton Members of Muslim community and voluntary groups Muslims who are not part of community and voluntary groups Imams Southampton Council of Faiths Councillors GOSE Senior officers/decision makers in key statutory agencies e.g. Southampton City Council, Hampshire Constabulary, Special Branch, Solent University, University of Southampton, Police authority, probation, prison service and other organisations that provide relevant services Senior officers/decision makers in key voluntary sector agencies e.g. Southampton Voluntary Services, Wheatsheaf, WICT and other organisations that provide relevant services University students and student unions School children, teachers and members of youth groups Community groups General public Primary audience: Members of the Muslim Council of Southampton Members of Muslim community and voluntary groups Muslims who are not part of community and voluntary groups Imams Southampton Council of Faiths Councillors GOSE Senior officers/decision makers in key statutory agencies e.g. Southampton City Council, Hampshire Constabulary, Special Branch, Solent University, University of Southampton, Police authority, probation, prison service and other organisations that provide relevant services Senior officers/decision makers in key voluntary sector agencies e.g. Southampton Voluntary Services, Wheatsheaf Trust, West Itchen Community Trust and other organisations that provide relevant services. Secondary audience: University students and student unions Page 13 of 15

14 School children, teachers and members of youth groups Community groups General public Item 4a Key messages: Prevent programme 5 key objectives Targeted approach to deal with a specific threat Approach is based on a needs assessment and projects are developed linked to the Prevent objectives We need to work together at a community level to deal with this Three year programme Prevent needs to be mainstreamed in order to be sustainable Prevent has overlaps with cohesion and interfaith activity Partnership working is key to its success Strategy To actively engage with the Muslim communities in the city To promote projects linked to the Prevent agenda To communicate regularly with key stakeholders about how they can be involved in delivering Prevent locally Channels Stakeholder workshops Induction of Steering Group members Articles in newsletters e.g. council staff newsletter, SVS, MCS, City View, Tenants Link, Members Bulletin Information packs Information on MCS and other websites MCS briefing members via individual websites Cabinet Member briefings Press releases Quarterly reports to GOSE Information packs Seminars e.g. for Councillors Presentations e.g. to senior council managers at their regular conferences Progress reports to Southampton Communities and Renewal Partnership, Safe City Partnership, Southampton Partnership, Southampton City Council s Chief Officer s Management Team Attendance at relevant Southampton City Council team meetings and management meetings of other statutory and voluntary sector agencies Leaflets promoting projects One-to-one briefings Unity 101 Budget The costs of promotional activity will be met from the Prevent budget. Activity schedule September December 08 September o Stakeholder workshop (13 th ) Page 14 of 15

15 o Report to Southampton Communities and Renewal Partnership (23 rd ) Item 4a October o Brief organisation commissioned to carry out community mapping work with key messages - October o Article for Communities, Health and Care internal team brief o Information on Stronger Communities and Equalities Team website November o Information on MCS website, SCOF website, MCS newsletter o Briefing for/discussion with MCS committee members and mosque committee members o Report to Southampton Partnership Delivery Board (6 th ) January to March 09 February o Report to Southampton Communities and Renewal Partnership o Review of this Communications Plan March o Investigate setting up a Muslim Communications Forum as a wider sounding board o Update on project funding Measuring success of communication activities The success of this plan will be measured against NI35 and as well through a log of media coverage. Evaluation This Plan will be reviewed in February 09 and further activities developed in line with the communication objectives. Page 15 of 15