Community Payback Order Summary of Local Authority Annual Reports: 2024-25

Delivering Community Payback Orders (CPOs) well, matters – not just for the individuals who receive them, but for the victims of crime, for communities across Scotland, and for our wider system of justice.  This report sets out how Justice Social Work (JSW) and their partners across other public sector organisations and the third sector have continued to translate that responsibility into meaningful, visible and often transformative work across local areas during the 2024/25 period.

Across Scotland, CPOs are being delivered with growing confidence, creativity and care. This year’s findings show strong evidence of trauma-informed and person-centred practice, improved responsiveness to risk and need, and unpaid work projects that are delivering tangible social, environmental and economic benefits.  These achievements are not incidental. They reflect the professionalism and commitment of JSW staff, the strength of multi-agency collaboration and a shared determination to ensure community sentences remain credible and constructive.

At the same time, this report does not shy away from the reality that delivery is increasingly more complex. Many of those subject to CPOs present with multiple and overlapping needs including poverty, trauma, substance misuse, communication challenges and housing instability.  JSW cannot and should not be expected to address these challenges alone.  Persistent pressures on mental health services, addiction provisions, housing and accredited programmes limit the pace at which progress can be made, and places a real strain on local systems.  Workforce capacity and funding uncertainty continue to test local services’ ability to plan for the long term.

And yet, what stands out most strongly in this report is the local area response to these challenges.  From co-designing services with people who experience them, to expanding women-specific and trauma-informed unpaid work, to piloting digital tools that improve efficiency and oversight.  JSW and partners are adapting to meet current realities while keeping sight of future opportunities.

This matters because the future of community justice must be more than simply ‘less imprisonment’. It must be about doing more — more prevention, more desistance‑focused practice, more early and sustained support and more visible reparation in communities. CPOs remain one of the clearest ways to achieve this, but only if they are properly understood, resourced and valued as a core component of a modern justice system.

As we look ahead, there is an opportunity to build on what this report shows is already working: embedding trauma‑informed practice as standard, strengthening the national infrastructure around workforce development and programme availability, scaling digital and data improvements, and — critically — amplifying the voices of those with lived experience in shaping what comes next.

We commend this report to practitioners, partners, policymakers and communities alike. It provides not only a detailed account of delivery during 2024/25, but a compelling case for why community payback — when done well — can change lives, repair harm and contribute to a safer, fairer Scotland.

Catherine Dyer

Chair

Community Justice Scotland Board

Background

In April 2017 section 227ZM of the Criminal Procedure (Scotland) Act 1995 was amended to introduce new reporting requirements which were aligned to the Community Justice (Scotland) Act 2016.  Under the amended legislation, CJS must compile a summary report on national CPO delivery.  To do this, CJS use information provided by local partners within each local authority area.  The report is laid in parliament and covers the period 1 April 2024 to 31 March 2025.

Previous CPO reports can be accessed on the CJS Website

Purpose

This report provides an opportunity for Justice Social Work Services (JSW), CJS and Scottish Government to identify positive practice and interventions completed as part of a CPO in Scotland.  It demonstrates how a CPO can effectively hold individuals accountable for their offending, addressing the root causes of offending behaviour and the likelihood of further offending.  The report also highlights opportunities and challenges identified in the delivery of CPO which allows relevant stakeholders to act, enhance and improve delivery for those who experience CPO’s, their communities and the staff so critical to their success.

Methods

Working together Social Work Scotland (SWS), JSW, CJS and Scottish Government developed a template of key CPO related questions for each Local Authority area in Scotland.  This summary report reflects the second analysis of data received using this format and the template is provided as the Appendix to this report

Throughout the year CJS engage with local and national partners across a range of topics and using several platforms.  These include training and development, communications and community justice improvement to progress shared outcomes within the National Strategy for Community Justice.  Information and intelligence collated throughout these engagements further supports trends, opportunities and challenges identified within this report.  Also included throughout are quotes from those who have delivered and benefited from CPO requirements and ‘spotlighted’ practice examples from local partner reports.  

In addition to these methods, CJS have included key statistical data on CPO’s provided to the Scottish Government for the 2024-25 reporting year within section 4 of this report (‘community payback order statistics’.  The full report on the statistics can be accessed on the Scottish Government website justice social work statistics page.

A CPO is a court-issued sentence made up of various requirements placed on an individual, with which they are expected to comply.  Evidence indicates that community interventions, including a CPO, can be more effective at reducing further offending than short-term prison sentences and may provide a greater opportunity for rehabilitation.  .  Offering effective interventions to address issues like homelessness, substance misuse, mental ill health and employability in the community has a greater, more sustainable impact, leading to safer, more resilient communities.

The judiciary have access to ten requirements as part of a CPO and may form the sentence given by imposing one or more of these requirements concurrently.  The most common requirement to be used in conjunction with another is the supervision requirement.  For example, a CPO consisting of unpaid work and supervision.

CPO’s can cover a period of between six months to three years, with the exception of a CPO consisting of a standalone Level 1 unpaid work requirement, which must be completed within three months, unless a longer period is specified by the court when imposing sentence.           

To ensure an accurate assessment of an individual’s risk of further offending, JSW apply appropriate risk assessment tools at the earliest opportunities.  The findings of these risk assessments inform an individual case management plan that reduces any identified risk through addressing needs and behaviours.

In Scotland, the primary tool for assessing the risk of general offending and to guide case management planning for all individuals aged over 16 years is the Level of Service/Case Management Inventory (LS/CMI).  LS/CMI offers a shared and meaningful understanding of the risk of further offending and consistency in applying interventions to maintain or reduce this.  This is presented across pattern, nature, seriousness and likelihood. 

In the event of specific offence types, further risk assessment tools may also be used.  For example, the Spousal Assault Risk Assessment (SARA V3) when evaluating the risk of intimate partner violence posed.

The tiered assessment approach taken by LS/CMI has a range of benefits.

To reduce the risk of reoffending JSW commonly focus on structured supervision and offence focused work.  This includes one-to-one or group sessions on emotional regulation, consequential thinking, problem solving, victim awareness and pro-social decision-making.  Examples of programmes used for this purpose are the Caledonian Programme (domestic abuse) and Moving Forward 2 Change (MFC2) (sexual offending). In addition to addressing the underlying needs which cause further offending, local areas state the importance of adopting trauma-informed practices, building relationships with those on CPO’s and the provision of purposeful activity.  This builds flexible, person-centred approaches tailored to responsivity and readiness to change while giving structure and routine that gives the best chance of community reintegration.  This is best achieved in a multiagency context, working with addiction services, mental health support services, housing, employability and the third sector.

In Glasgow, the Alcohol Court combined judicial monitoring with addiction treatment and Cognitive Behavioural Therapy (CBT) work.  This supported a service user to reduce their alcohol consumption, improve their mental health and access housing and employability support.  In North Ayrshire, the Drug Treatment and Testing Order (DTTO) provides intense recovery support from lived experience mentors.  An individual here was able to engage in detox while also accessing college courses and sustaining their recovery.

As part of the risk assessment process, JSW will identify unmet needs across individuals, which often contribute to their offending behaviour.  These needs can often be multiple, complex and overlapping, requiring multiagency support to address and onward referrals to support organisations beyond the completion of the CPO.  JSW co-develop the case management plan with the individual to agree interventions, treatment and support aimed at addressing these unmet needs.

The most common needs identified by JSW experienced by those on CPO’s were substance misuse, mental health and trauma, housing instability, employability and education, and social isolation and relationships. Without addressing these needs and creating stability, safety and routine, addressing offending becomes challenging.

The table below provides multiagency support provided to address these needs and the ways in which this was used locally.

In West Lothian Wellbeing Scotland provide trauma counselling with the Alcohol and Drug Partnership to support addiction recovery.  Employability workshops and Wise Group modules help people to build skills and confidence.  In Fife, through engagement with The Women’s Justice Team, a woman was able to receive a forensic mental health assessment, receive medication and experience trauma-informed supervision.  Engagement with community support groups in addition to this improved stability and ultimately led to desistance from further offending.  Addressing the needs of those who offend is not without challenges across local areas. 

In Aberdeenshire, a Higher Needs Support Team was created to offer one-to-one places in safe environments for people who struggled to attend and maintain mainstream unpaid work.  In Orkney, challenges in accessing groupwork support resulted in the delivery of one-to-one offence focused work and online initiatives like Graces Chocolates, an organisation supporting women who have touched the justice system and their employment and skills development.

Responsivity measures incorporated into a CPO ensure that interventions are tailored to an individual’s strengths and needs to support maximum engagement with the intervention.

Trauma informed practice, flexible delivery, adapted communication (visual tools, breaking down information into steps), person-centred and strengths-based approaches (motivational interviews, co-designed case plans) and practical adjustments (safe scheduling of appointments, the provision of transport) are the most common responsivity measures applied by JSW locally.

In South Lanarkshire, for a man with a learning disability and suspected Autism, JSW introduced ‘Talking Mats’ and role play to simplify communication and improve engagement with the MFMC programme.  In North Lanarkshire, the Women’s Community Justice Service use breathing techniques, meditation and thought diaries to help women manage emotional triggers, alongside advocacy for housing and debt support.

Unpaid work is the most issued requirement across all CPO’s provided in Scotland.  Work for completion is identified by local services and communities and therefore carried out within areas which have often experienced harm and its often enduring impact. 

Ongoing maintenance and grounds keeping were completed at Westmuir Woods during 2025.  This included clearing paths, managing undergrowth and ensuring safe access for the public.  The project was part of a broader unpaid work programme which also refurbishes benches, graffiti removal and flood prevention measures across Angus.

The project contributed to community environmental enhancement, making the space safer and more accessible to residents.  It demonstrates collaboration between justice partners and local community groups, showcasing how unpaid work can deliver meaningful benefits.  Westmuir Community Woodland was awarded ‘Best Small Wood’ in 2025 as part of Scotland’s Finest Woods Awards, as a direct result of these improvements. 

The table below provides an overview of the types of unpaid work completed in 2024/25, how this was completed, skills developed and specific local activity.

In their progression of unpaid work for communities in local areas, JSW highlight a number of challenges they face.  Many have taken steps to overcome these, but some continue to require additional resource and operational support.

NHS Ayrshire and Arran Health Improvement approached the Unpaid Work team to transform a dull, waterlogged outdoor area at the Kyle Chemotherapy Unit into a calm, therapeutic garden for patients and families. 

The design incorporated natural materials and artistic features, creating a visually appealing therapeutic space for patients and their supporters when completing treatment.  The garden was formally opened by NHS executives with those who completed the unpaid work present and receiving positive feedback.

Other activity

As an additional component to a CPO and accounting for up to 40 hours, ‘other activity’ is routinely used by JSW services in Scotland to further develop skills necessary in securing employment and addressing other, additional needs faced by people on CPO’s.
JSW report the achievement of a vast range of skills as a result of ‘other activity’ opportunities and initiatives. These include digital literacy, job readiness, coping strategies, healthy lifestyles, emotional regulation, confidence building and problem solving. Activity demonstrates a real and growing confidence across areas to push the boundaries of unpaid work and other activities to meaningfully move people away from possible further offending.

The table below provides an overview of the types of ‘other activity’ completed across Scotland, how this is achieved and local examples.

The Community Payback Bicycle Project as part of unpaid work refurbishes donated and discarded bikes to provide affordable, sustainable transport for those in need.

This project transforms waste into a valuable, community resource while linking to environmental sustainability and social justice.  The project won a Koestler Award for creativity in justice settings.

Supervision requirements are used to provide structured support, address offending behaviour and link individuals to community services alongside any further requirements, most commonly unpaid work.  These typically involve 1:1 sessions with JSW and access to rehabilitative programmes including MF2C and CBT groupwork.

During the reporting period supervision was stated to support behavioral change and reduce offending.  In East Dunbartonshire, 100% of respondents felt their attitude and behaviour to offending had changed.  Similarly, this can improve wellbeing and life skills, with support described as ‘life changing (South Lanarkshire), ‘confidence returning’ and resulting in ‘better coping strategies’ (Highland). 

People receiving supervision valued a strong relationship with their social worker, including non-judgmental attitudes and respectful support. An importance was also placed on the ability to access other, third sector support services as part of this, and both aspects were widely demonstrated across Scotland throughout the reporting period. In Orkney, supervision was combined with creative activities, including laser-engraved maps, to build skills and confidence. In Argyll and Bute, supervision was described as ‘life saving’, helping to reduce anxiety and improve relationships.

In addition to unpaid work and supervision, a CPO may also include a number of other requirements which are currently used to a variable extent across Scotland.

Compensation Requirements are intended to provide reparation to victims who have experienced harm which is often financial or resulted in damage.  Commonly these have been imposed by Courts alongside a supervision or unpaid work requirement, which can help achieve greater compliance.  When successful, these support victim recovery and reinforce offender accountability.

A number of local authority areas stated that increasing financial hardship experienced across Scotland mean individuals can struggle to make payments.  Delays in receiving details of these from courts and payment receipts can also make monitoring this requirement difficult.  When these are imposed in domestic abuse cases, it was reported that compensation orders can cause resentment and lead to further challenges, for example withholding child benefit to make payments.

During the period North Lanarkshire have worked with their Tackling Poverty Team across 48 compensation orders to maximise income and support compliance, reducing the risk of breach and improving victim outcomes.

Programme Requirements are one of the most commonly used during the period after unpaid work and supervision.  These are primarily used for structured, accredited interventions targeting domestic abuse and sexual offending and delivered by JSW as group work or 1:1 and 1:2 for those with responsivity issues such as trauma and learning needs.  These enhance victim safety through integrated approaches, for example the Caledonian Programme includes women and children’s services alongside the men’s service.

To achieve successful delivery Local Authority areas cite the importance of readiness and suitability assessments pre-referral to programmes, as well as the co-delivery of groups regionally and in the evenings to accommodate rural settings and those with caring and child care responsibilities.  In some areas the demand for programmes like MF2C and Caledonian outstrips capacity which results in work pressures and waiting lists.  This requires specialist training and scheduling.

Across Scotland  the use of residence requirements is sparing, relative to other requirements and on a case-by case basis to ensure proportionality.  Benefits to the requirement include stabilizing accommodation where risk is attached to potential homelessness, public protection and oversight and to facilitate treatment pathways in the community.

South Ayrshire provide that a residence requirement tied to a rehabilitation placement was provided during the period.  JSW worked with the Scottish Prison Service and health colleagues to support immediate transfer, reduce the risk of relapse and sustain positive progress.

Restricted Movement Requirements are frequently combined with unpaid work and supervision requirements and deliver a community-based alternative to imprisonment using electronic monitoring or ‘tagging’ technology to impose curfews, alongside needs-based support.

Local areas evidence a need for good communication and engagement between JSW, the Judiciary and G4S as the monitoring body. This is to ensure a restricted movement requirement is only applied to those where this is assessed as suitable and proportionate. Four local areas contrasted restricted movement requirements with Restriction of Liberty Orders (RLO). Some courts preferred RLO use over restriction of movement and this influenced figures. This is due to differences in breach implications and information sharing between the two types.

East Lothian evidence that a restricted movement requirement placed a curfew on an individual of between 1800 to 0600 nightly, which led to them losing their employment. The curfew then had to be varied to support ‘other activity’. This highlights the real life impacts such restrictions can have without full assessment and communications between the individual and justice partners.

Conduct Requirements are the most frequently used requirement in many areas after unpaid work and supervision. They are used to order an individual to do or not do specific things, to ensure good behaviour and reduce the likelihood of further offending. Often used alongside supervision, examples include prohibiting individuals from attending certain places, mandating them to attend treatment and adhering to specific lifestyle changes.

Four areas highlighted that Courts may decline the use of conduct requirements, despite risk-management rationale, or omit them at the point of sentence. This can create tensions and make casework challenging. The wording and proportionality of these orders were also described as sometimes ‘variable’ and having a direct impact to their enforceability and transparency. These need to be clear, use consistent language and avoid duplicative or overly punitive conditions.

In Glasgow a conduct requirement to disclose any current or future intimate relationships in a domestic abuse case was pivotal to enabling multiagency risk management alongside programme work and women and children’s services. The order completed without any known further offending.

Alcohol Treatment requirements were stated to be widely underused across Scotland. Two areas stated that while underused, this type of work would often be completed under a conduct requirement or as part of broader case management, linking individuals to health services, third sector support and recovery hubs.

Alcohol requirements can be imposed when alcohol plays a clear role in an individual’s offending. They involve structured engagement with local addiction services, detox programmes and relapse recovery. In some cases, it was reported that Courts impose alcohol requirements without full clinical assessments and health services may then resist compulsory treatment. Additionally, individuals who are not ready for recovery risk breach despite progress in others areas, like unpaid work or supervision. Practitioner discretion is required in these circumstances.

JSW collaborate with Moray Integrated Drug and Alcohol Service (MIDAS) for prescribing and arranging in-patient detox, which mirrors practices in a number of other areas. In Dundee this approach is coupled with the use of digital tools like the Recovery Road Map app to further support recovery.

Across Scotland, Drug Treatment Requirements (DTR’s) are not routinely used. This is because they are often replaced by conduct requirements that require direct engagement with substance use services, superseded by Drug Treatment and Testing Orders (DTTO’s) where drug use is more entrenched, or considered only when an individual meets the statutory definition of, ‘dependent’.

Despite limited use currently, several areas did discuss plans to utilise these more, as an alternative to DTTO’s. This is largely as a result of high breach rates linked to DTTO, poorer outcomes and the increasing unreliability of drug testing options due to new and emerging trends in drug use (Nitizenes, synthetic drugs).

North Ayrshire provide that an individual on a DTR is linked to addiction workers and has the opportunity to move to residential rehab within 6 months, where this is deemed necessary and appropriate. This has demonstrated significant progress and improved wellbeing. In Perth and Kinross, workers were trained in Dry Blood Spotting to support monitoring. Regular testing, coupled with motivational interventions and access to welfare and/or housing support has proved effective in reducing further offending and ongoing drug use here.

Mental Health Treatment Requirements are a rare and complex requirement due to their strict criteria, sometimes requiring the individuals’ consent and clinical recommendation. As an alternative to this requirement areas stated that conduct requirements or supervision plans are used to encourage voluntary engagement with mental health services as a more flexible option.

Where these have been imposed, mental health requirements often involve joint working between JSW, local mental health teams and a care programme approach. This helps to reinforce treatment plans during supervision. Challenges to the delivery of these requirements are delays in psychiatric assessments, GP referral requirements and an over-stretched mental health provision nationally.

Perth and Kinross report that an individual given a mental health requirement during the period was not offered appointments due to high demand and suffered from GP and relocation barriers. Treatment gaps as a result of this could have been prevented by a standardized referral protocol and clear liaison roles for services and the individual.

JSW across all local authority areas of Scotland have developed innovative and necessary improvements to the delivery of CPO’s to the benefit of staff and those who experience the service. The table below provides a summary of these, the nature of improvement and local area examples.

The Women’s Justice Team undertook a trauma-informed care audit to assess how well their service aligned with trauma-informed principles. This considered the physical environment, staff practice and responsivity measures for women with complex needs (mental health, substance misuse, neurodiversity). Findings from the audit increased the use of 1:1 or 2:1 service delivery, adjustments to unpaid work placements and enhanced staff training and supervision.

The audit was highlighted as an example of good practice by the National Trauma Transformation Programme and has received national recognition as a model for other local authorities, influencing wider practice.

Opportunities
Opportunities highlighted by JSW in local areas are largely reflected in innovative examples of work ongoing across CPO requirements and capitalizing on improvements already being made. These include: giving people who experience justice the chance to co-design and deliver activities; increased partnership working to address needs such as employment, mental health and substance misuse; improved training and resources that enhance access for those who have experienced trauma, complex needs and neurodiversity; and the development of virtual, data and IT solutions that will improve performance monitoring, increase levels of engagement and reduce the administrative burden.

Glasgow, South Lanarkshire and West Lothian have collaborated with the Improvement Service on the development of a digital platform for the management of unpaid work squads.  This responds to challenges in scheduling and tracking activities, managing attendance and compliance and improving efficiency and consistency across areas.

The key features of the tool are that it allows supervisors to update on attendance and progress instantly, it provides visibility on squad capacity and availability across multiple locations, it monitors performance and it links to existing case management systems for seamless updates.

The collaboration is in the development and testing phase, with a number of local authorities registering an interest in acting as pilot sites.  The aim is to scale this solution once proven effective.

Challenges
In addition to challenges already highlighted to supporting individuals with their needs alongside the delivery of a CPO, the following table provides an overview of the most consistent challenges identified by JSW across local areas over the period, the nature of these challenges and local examples of how a solution-focused approach has been taken to addressing these wherever possible.

COMMUNITY 

PAYBACK ORDER (CPO) 

ANNUAL RETURNS TEMPLATE 

FINANCIAL YEAR:

LOCAL AUTHORITY: 

TEMPLATE RETURN DATE: 

Please return all completed templates to  

CJS at CJSImprovement@communityjustice.scot and copy  

the Scottish Government at cpo@gov.scot 

Background   

Under the Community Justice (Scotland) Act (2016), local authorities have a statutory duty to report on the operations of Community Payback Orders (CPO) within their area on an annual basis to Community Justice Scotland (CJS). CJS will then collate these returns and summarise them in a report which is laid before Scottish Parliament.  

To assist with this reporting duty, CJS, in collaboration with representatives from Justice Social Work, the Scottish Government, and Social Work Scotland, has developed a template of questions for local areas to complete. This template is designed to support the reporting requirement. 

Completing the template  

Please answer the following questions contained in this year’s CPO template. When answering the questions, please ensure that all case studies and feedback are anonymised. We understand that maintaining anonymity may be more challenging for some local authorities. If this applies to your area, you may provide a more general response to the questions.  

Please ensure all answers are relevant to your local area within the 2023 to 2024 reporting year.  

If you need any support in completing this template and or have any questions, please do not hesitate to get in contact with CJS. Contact details can be found on the title page of this form.  

Thank you for taking the time to answer the questions in this template.  

Questions to answer  

Please provide a case study or examples of your work with people subject to a Community Payback Order (CPO), focusing on how you work to address their offending behaviours and reduce the risk of reoffending. 

Please provide a case study or examples of yourwork with people subject to a CPO, focussing on how you work to address their underlying needs (e.g., mental health, substance use). 

Please describe a case study or provide examples of unpaid work activity. 

Please describe the main types of “other activity” carried out as part of unpaid work or other activity requirement.  

Please provide a summary of quotes or feedback on the impact of supervision requirements and or unpaid work or other activity requirements from the following perspectives: 

Please mark with a cross the requirements that were imposed by courts in 2023 to 2024.  

​​☐​Compensation requirement 

​​☐​Programme requirement 

​​☐​Residence requirement 

​​☐​Restricted movement requirement 

​​☐​Conduct requirement  

​​☐​Alcohol treatment requirement  

​​☐​Drug treatment requirement 

​​☐​Mental health treatment requirement  

For each of the requirements that were imposed (up to a maximum of 300 words) please describe innovative and best practice, challenges, and impact associated with each. 

Looking back at last year (2022-2023), have there been any improvements to the challenges you noted? Are there any challenges you are still facing this year (2023-2024)? 

Please provide any examples of work with community justice partners, including the third sector, to effectively deliver CPOs. 

Is there any other relevant information you wish to highlight? This may include: