Child Protection update and overview

Report: 8
Date: 14 October 2010
By: Assistant Commissioner Specialist Crime on behalf of the Commissioner

Summary

This report provides:

• An update on progress against recommendations following the Laming Review into the death of Baby Peter
• An update regarding the progression of the MPS action plan that is not related to specific Laming recommendations
• An update on sanction detection headline performance for the financial year 2009-10 for all CAIT investigated offences
• An overview of whether there has been any significant change in reporting prevalence for the financial year 2009 -10
• An outline of how SCD5 works with partners, communities and other MPS units to improve service delivery
• Details of future policy and practice developments within SCD5 and gives an indication of the overall direction of travel for 2010 -11.

A. Recommendation

That

1. Members note the conyent of this report.

B. Supporting information

Criminal Investigations, Reviews and Inspections

1. On 3 August 2007 police were informed of the death of 17-month-old Baby Peter, who had been brought to Hospital with a number of visible injuries. Baby Peter and two of his sisters, were on the Haringey Child Protection Register (CPR) at the time of his murder. The child’s mother Tracey Connolly, her partner Stephen Barker, and his brother Jason Owen, were all convicted on 11 November 2008 of Allowing or Causing the Death of a Child.

2. During the investigation, Child E, disclosed to her foster carers that, aged two and a half, she had been raped by Stephen Barker. Child E was on the CPR at the time of these offences. The allegations were investigated, Tracey Connolly charged with Wilful Neglect and Stephen Barker with Rape.

3. On 1 May 2009 Stephen Barker was convicted of rape and Tracey Connolly acquitted of neglect. On 22 May 2009 all three were sentenced as follows:

Stephen Barker: Life for Rape, 12 years for Causing Death. He was given a minimum tariff of ten years and an indeterminate sentence.
Tracey Connolly: An indeterminate sentence for Causing Death with a minimum tariff of five years.
Jason Owen: An indeterminate sentence for Causing Death with a minimum tariff three years.

4. Appeals were submitted by all three. Barker has had all appeals in this country rejected and has now taken his case to the European Court. His appeal against his rape conviction and indeterminate sentence is pending. Connolly and Owen appealed against the indeterminate sentence but Connolly subsequently withdrew her appeal. Owen’s hearing was set for 27 October 2009 and resulted in the indeterminate sentence aspect being removed.

5. The Haringey action plan drawn up following the Joint Agency Review (JAR) in November 2008 incorporates the learning from the Serious Case Reviews (SCR). A joint agency inspection of progress of the plan was made in June 2009 and reported to Secretary of State Ed Balls in July. A follow up inspection was undertaken in January 2010. The feedback from this inspection (Appendix 1) gave clear recognition of the progress made by SCD5 in ensuring robust procedures existed for managing risks to children at risk of harm. In a separate letter to the Commissioner (Appendix 2) particular emphasis was placed on the importance of the Child Risk Assessment Matrix (CRAM) and the improvements in recording, supervision and oversight it has introduced for the MPS. There was also explicit recognition of the commitment shown by the MPS to safeguarding through the provision of sufficient resource to ensure the new more rigorous processes could be effectively implemented. Together these were seen as being examples of best practice for the earlier and more effective identification and safeguarding of children.

Update on the MPS Response to the Lord Laming Review (Laming 2)

6. Lord Laming’s review, published on 12 March 2009, made 58 recommendations to the Government. The previous Government responded with an action plan ‘The Protection of Children in England’ in which they accepted all 58 recommendations. The new Government has appointed Professor Eileen Munro to conduct a review of children’s social work and child protection, building on the work of Lord Laming and Moira Gibb’s Social Work Taskforce (which considered what needed to be done within the profession to develop social workers). Professor Munro is due to report in April 2011 and has called for evidence to be submitted. The MPS has responded and a copy of that response is attached at Appendix 3.

7. The majority of Laming’s recommendations were high level, falling to the Home Office, Ministry of justice, DCSF and Dept of Health. A key element of a number of the recommendations is the revision of ‘Working together to Safeguard Children’.

8. As reported in June and November 2009 the MPS is progressing relevant recommendations as part of the modernisation programme as follows:

9. Recommendation 4 requires new statutory targets for safeguarding and child protection that will require the National Indicator Set to be revised and national indicators included in Local Area Agreements for the next Spending Review. The MPS is leading on behalf of ACPO a six force pilot of new national performance indicators. These indicators measure for the first time; quality and risk reduction management with partners, interventions and outcomes. The pilot commenced in July 2009 with details of the pilot and PIs being shared with partners through the London SCB. Data collection has been extended beyond the initial pilot phase as the indicators have continued to evolve.

10. Recommendation 8 requires DCSF to organise regular training on safeguarding and child protection and on effective leadership for all senior political leaders and managers across frontline services. Whilst there is no specific recommendation for police the MPS fully recognises the need for regular and effective joint agency training at all levels. The MPS provision, of Multi Agency Critical Incident Exercise (MACIE) training for each London borough has completed the delivery of training to all 32 boroughs. The 2-day training has now been refreshed and a second round of training to the 32 boroughs is underway. SCD5, in partnership with the Leadership Academy, has also developed a 1-day version of the MACIE training programme specifically for those at the practitioner level (i.e. DC and partner equivalents). A pilot of this new exercise is scheduled for October 2010 with roll out to the boroughs beginning in November.

11. Recommendation 16 refers to the need for ‘constructive challenge’ between agencies. The HMIC and the ACPO consultation on SCRs identifies the reluctance of police representatives to challenge where they may be unsure of their footing amidst a peer group who appear comfortable in their professional role. SCD5 training unit has developed and delivered a competency for constructive challenge in the child abuse environment and a course titled ‘Confidence in Communication’. This includes role play exercises with paediatricians, lawyers and social care managers. This training will also be supported by the new one day MACIE, which includes professional challenge within its learning outcomes.

12. Recommendation 25 states: “Children’s Trusts should ensure a named, and preferably co-located, representative from the police service, community paediatric specialist and health visitor are active partners within each children’s social work department”. As reported in June and November 2009 this has potentially significant resource implications for accommodation, IT, security of data, staff resilience and other equipment. Following an initial assessment in Haringey, a pilot project between police and children’s services has seen the creation of a co-located first response team at the local authority premises in Wood Green. The team began work in April 2010 and combined the referral and assessment functions of children’s social care, health, borough public protection team and CAIT under one manager. Whilst there have been challenges integrating working practices there have also been clear advantages with more effective joint working and information sharing resulting in more effective outcome delivery. SCD5 is fully engaged with the new Munro review and has indicated its support more effective joint working either through increased use of co-location or the creation of virtual teams with shared responsibility.

Progress of the MPS Action Plan

13. The following is an update on the areas for improvement and associated issues reported on in the June paper. Members will note a number of pilot initiatives are now in place.

Management of case files

14. The revised manual docket has now been placed onto the MPS crime recording system CRIS as part of the new risk assessment process (CRAM). This is a significant positive step that will enhance all aspects of managing files of children on care plans.

Supervision, capability, capacity and support

15. The recruitment process to ensure the additional 19DSs, 19DCs, 32 PCLOs and 19 researchers is now complete and the OCU is now consistently at or around its target strength of 456 police officers and 200 police staff. There is now a robustly managed workforce planning process in place coordinated by the newly formed Operational Support Group (OSG) which ensures that vacancies are forecast and then managed effectively through an appropriate recruitment and selection process. The command will continue with its recruitment strategy highlighting the work of the command to others in a variety of ways. A significant element of this is the launch of a new external mentoring scheme aimed at those officers who wish to join the command in the future. The command has also recently completed a DVD which focuses on the work the CAIT teams undertake and includes interviews with victims, staff, AC Dick and Lord Laming. This will be widely used in presentations detective training and recruitment events to promote the command.

16. An annual staff allocation review process has been developed to ensure planned strength and staff allocation matches workload. The 2010 process saw a move of posts amongst the regions to ensure staffing reflected work loads.

17. The impact of maternity leave remains an issue for SCD5. With the majority of new staff now in place the command has a gender balance of over 50% female police officers and 80% female police staff. Based on the last three years data and accounting for the growth it is predicted that maternity abstractions will equate to ten police officers and five police staff per year. The risk presented by abstractions from key roles is being managed within the enhanced resources of SCD5 by moving resources between CAITs.

18. A pilot extending the core hours of CAIT teams from 8am - 6pm to 8am - 8pm ran from June to August 2009 on the east region to determine any benefits to service delivery, administrative functions and overtime management. Following an extensive consultation exercise new extended hours were introduced across the command on 6 September 2010. All CAITs will now operate from 0800 - 2000. New on call arrangements are also being studied to ensure efficiency is balanced against the need to maximize effectiveness.

19. The Child Risk Assessment Matrix (CRAM) has now been rolled out to all of the CAITs. This has had the effect of standardising the referral process and has improved the identification, review and reduction of risk to ‘children at risk’. In addition to the positive endorsement of HMIC and Ofsted the command has also collected evidence that the CRAM has succeeded in identifying offences and criminality which would have gone unrecorded prior to its introduction.

20. A new SCD5 page on the CRIS crime recording system is currently being developed. Costing in the region of £0.5m to develop and implement the page will support supervision, intelligence retrieval, performance measurement and enhance data quality. It will specifically support the CRAM process and collation of the new child protection PIs. The roll-out date is for late 2010 / early 2011 and the command has formed a working group with DoI to refine the initial specification to ensure it is built to reflect the needs of the command and the practitioners who will use it.

21. The additional 19 general purpose vehicles to support attendance at child case conferences have received and are in place.

Child protection policy and standard operational procedures

22. A full review of SOPs affecting frontline CAIT work was conducted in conjunction with SCD15 (Performance Improvement Team) and included focus groups on all SCD5 regions. These groups proved invaluable in informing assessments of current SOPS, their relevance and the ability to deliver against them. The focus of these groups has now shifted to the CRAM process. Each region has a monthly CRAM focus group which is used to inform the continuing CRAM review process. The new CRAM procedures are captured in a manual of guidance which, whilst currently in draft form, will become an appendix of the SCD5 SOPs. As part of the modernisation programme, where relevant, SOPs were systematically reviewed and updated. This function has now been folded into the core business of the Continuous Improvement Team (CIT).

Governance and Continuous improvement

23. Responsibility for ensuring compliance and pan-London governance of CAITs sits with the SCD5 Continuous Improvement Team (CIT). The CIT is led by a DCI and includes quality assurance (QA), training and partnership. The merger of Camden and Islington CAITs in November 2009 enabled the enhancement of this team by 1 DI, 1 DS and 1DC in the QA team and creation of a band C training manager. Governance is being honed as follows:

• A rolling CAIT QA inspection programme has been developed and implemented over the past 12 months. The inspections focus on comparative analysis in the six areas identified as critical to the success of the CRAM and effective joint working and are reported on through a bi-monthly DI’s meeting chaired by the OCU commander. The six key thematic areas of the CRAM are:
  • Intelligence - comprehensive research and collation of relevant information from police records and other sources including partner agencies to including the continuing evaluation and identification of information gaps.
  • Risk factors - referenced areas of high risk are grouped in relation to the child (victim), the suspect (offender) and the household (location).
  • Risk assessment - this is an ongoing process requiring updating as the case develops. The assessment is case specific rather than an assignment of status of risk.
  • Supervision - competent, informed and regular supervisory input is required to support case officers and ensure appropriate case management and effective intervention to protect the vulnerable. Supervision must be proactive and visible with recorded rationale.
  • Records - recording information, intelligence, rationale and decisions underpin best practice. Records must be available for immediate operational reference and reports to other parties must be clear and concise.
  •  Communication - clarity is essential to risk assessment. Research, analysis and conclusions need to be clear and concise. Decisions and supporting rationale should be recorded. Strategy discussions and dialogue with others should be based upon the documented investigative and protective strategies. Where there is dissent this must be recorded and escalated as necessary.
    

24. The bi-monthly meetings are chaired by the OCU Commander and CAIT DI attendance is mandatory. Actions arising out of identified areas for improvement are reviewed prior to subsequent meetings and are auditable. The meetings have now been in operation for over a year and all the CAITs have been the subject of a review.

25. The support and challenge process used during the bi-monthly meetings is two-way with the emphasis on learning. The ethos of this process is to achieve consistently high quality practice and standards and develop a strong confident workforce that makes a real difference to children at risk. The result of the whole process is the agreement of an action plan for each CAIT which is reviewed after 3 months to ensure progress and delivery.

26. The SCD5 Training Unit has successfully managed the arrival of significant staff numbers in recent months as a result of the additional resource allocated to the command. The team continues to provide the specialist training to new entrants to the command required to become an accredited ‘Child Abuse Investigator’. The team is also in the process of reviewing the three-week course to ensure new learning descriptors set out by the NPIA are fully delivered. The command has also reviewed the support given to new arrivals and has introduced a comprehensive induction process given before they are posted to a CAIT. This training is complemented by the development of a ‘buddying’ programme where each new arrival is assigned a ‘buddy’ who will work with and assist them in their first few weeks on the command. The team continues with a full programme of CAIT ‘Continuous Professional Development Days’ (one per year per CAIT), workplace training for referral staff, development of PCLO and researcher competency workbooks, supplementary training to PCLOs and the ‘Confidence in Communication’ programme.

27. The training team has also been leading the development of the new one-day MACIE programme aimed at the practitioner level and will manage its delivery when it is rolled out from October 2010.

28. The formal Modernisation Programme has now been concluded and activity under this banner has been folded into the ongoing business of the Continuous Improvement Team and divided between training, QA and partnership. This shift has allowed the process of the continuing development of excellence to become embedded in core business.

Information and intelligence management

29. The sharing of information between Specialist Units, the Met Intelligence Bureau (MIB), Public Protection Desks (PPD) and TP Borough Intelligence Units is a continually evolving and improving process. Information sharing is facilitated by each command with a portfolio for public protection working together. This is achieved at the strategic level through the MPS Public Protection Steering Group. At an operational level the fortnightly MPS Public Protection Operations and Intelligence meeting, chaired by MIB, provides a forum to share cross-command intelligence.

30. To ensure that standards are maintained, compliance is determined by local inspection programmes within both TP and specialist units. This includes compliance checks regarding identifying and referring children at risk in domestic violence situations. Each Borough PPD is now accredited, and has been provided with a dedicated intelligence researcher post. Additional researchers have also been recruited for each CAIT referral desk. The CRAM now provides an improved structure for intelligence research and reporting, with its supervision, review and escalation process. This process will be supported by the new SCD5 page on CRIS.

Meeting attendance

31. Detective Sergeants are involved in all strategy discussions and meetings as part of the initial referral process. The CRAM requires that such discussions take place, where practicable, after all police information and intelligence has been researched. This enhances the value of the strategy meetings but may take longer than hitherto. The initial assessment including the strategy meeting should be completed within a maximum 24 hours. In 2010/11 for the first time the command set a performance measure for this within its business plan. All CAITs are now required to ensure that 75% of all referrals are dealt with within 24 hours. Current performance (July 2010 MMR) is 84% across the command.

32. The doubling of the PCLO strength is enabling attendance at review case conferences (RCC) where police attendance is deemed beneficial to the conference. CAITs continue to support RCCs by report and where police do not physically attend a supervisory process will involve pre and post RCC meetings between PCLOs and supervisors, monitoring of report quality and documented rationale. Non-attendance will normally be agreed in advance with the RCC chair. SCD5 continue to maintain 100% attendance at initial case conferences (ICC) and 100% report submissions to RCCs. Increased attendance at RCCs will also be a separate measure on the 2011/12 business plan for the first time.

2009/2010 Sanction Detection Headline Performance

33. The table below sets out SCD5 sanction detection headline performance (by exception - top 5 and bottom 5). The target for overall sanction detection performance in 2009/2010 was 22%. As a command SCD5 achieved an SD rate of 26%. Analysis and commentary is provided below the tables.

Top 5 CAIT’s by overall SD Rate 09/10

 Bottom 5 CAIT’s by overall SD Rate 09/10

34. The tables above show that 2 CAITs failed to meet the overall SD target of 22%. However, the command as a whole did succeed in meeting and exceeding the target. Each of the CAITs that failed to meet the target did so by 1%. Performance is monitored across the command on an ongoing basis through a robust and comprehensive process supported by the MMR and the rolling review framework.

35. Whilst it is important to continue to scrutinise overall headline performance the command has taken deliberate steps to refocus its assessment framework on the management of risk and the delivery of appropriate outcomes for children. In some cases this may mean not pursuing an SD if this is deemed by police not in the best interests of a child. It is therefore critical to view these statistics not in isolation but in the wider context of how success is measured within the command.

36. At first glance it may appear that Haringey is failing despite significant scrutiny and additional resource. However, a number of factors need to be considered in order to assess overall performance. The feedback from Ofsted and HMIC (discussed above) describes a team where there is clear evidence of improved communication between partners, better management of risk and consistency of decision making. HMIC identified Haringey CAIT as an exemplar of best practice where there was clear focus on the delivery of better safeguarding outcomes for children. In addition following the Ofsted inspection of December 2008 approximately 340 additional cases were discovered by children’s services. The subsequent investigation of these cases required significant additional resource from the CAIT and inevitably temporarily impacted on performance.

37. However, there are factors which do impact of SD performance delivery that are regularly considered and addressed by the command. The bi-monthly DI’s meetings and the rolling review process complimented by the MMR is the mechanism used by the command to drive this. Whilst each CAIT is considered separately there are a number of factors which consistently emerge as having an impact on performance. These are:

• Consistency of decision making within the MPS referral process (i.e. effective use of CRAM);
• Consistency of decision making within partner agencies (mainly Children’s Social Care) - this is often negatively impacted by a high turnover of staff;
• Linked to the above the effectiveness of the partnership relationship;
• Demographics of the individual boroughs.

38. Where performance issues are identified either through the Monthly Management Report (MMR) or rolling QA process swift action is taken by the SMT to ensure the appropriate support is delivered. This is often through the relevant DI or DCI and results in the development of an action plan but has also, in one critical case, resulted in the immediate removal of an underperforming manager.

39. The command continues to evolve its assessment processes to ensure opportunities to enhance delivery are identified and taken. The implementation of new processes and greater internal oversight has highlighted the following positive outcomes identified through the ongoing CAIT inspections and echoed by HMIC:

• Standardised practice between CAITs and consistent decision making
• Improved levels of research and information exchange with partner agencies (this includes the command continuing to explore opportunities for more effective joint working - co-location and virtual teams);
• Improving informed decision making around the assessment of risk;
• Improving levels of ongoing supervision;
• Improved quality of recording of information and decisions within all stages of business;
• Improved access to information on children subject to CPP for front line officers;
• Increased supervision and information exchange on children subject to CPP.

Update on Reporting Prevalence 2009/2010

40. During the financial year 2009-2010, SCD5 saw reported rape offences increase by 19%, reaching above 430. However, in terms of confirmed offences, the rate of increase was just 8%.

41. Compared to SCD2, this is a slower rate of increase but is still in line with longer-term strategic trends. Analysis conducted for the last two SCD5 Strategic Assessments identified a long-term downward trend in the reporting of all sexual abuse of children since 2005. As of August 2008, the rate of decrease slowed, with the emerging trend indicating a new upward trend.

42. It was predicted in April 2009, that should this upward trend continue, reported rape offences would increase by up to 25% in FY09/10, however given the longer-term trend, a 10% increase was more likely. The final year figures above support the accuracy of these predictions. This is largely due to both the long-term stabilising and seasonal recurring reductions in reporting, during traditional school holiday periods (August and December).

43. The strategic trend in reported rape offences (investigated by SCD5) further indicates that it is a base line of the level of reported abuse the command can expect each year. When compared to a four-year average change, the 361 rape offences represent just a 2% increase. Offences against children are inevitably widely under-reported, therefore while the increase can be viewed positively; it may represent a ‘plateau’ in terms of reporting. The UK Threat Assessment 2006 estimated Child Abuse to be 90-95% under-reported.

44. Overall, the command saw a 9% increase in confirmed crime during 2009-2010. No one offending type increased or decreased significantly. Intra-familial physical abuse of children rose by 6%, although this is again a slower rate of increase compared to previous years. In terms of volume, common assault and ABH of children remain the most frequently reported offences, together with incidents of neglect. In the 2009 Strategic Assessment, neglect was cited as an emerging issue having increased by 17% in 2008-2009. During the last financial year 2009-2010, the rate of increase was a comparable 14%. Often neglect is viewed as a less severe form of child abuse (in isolation), yet reports accounts for over a quarter of SCD5 volume. The increases in neglect may reflect safeguarding agencies improved recording of various types of neglect.

SCD5 Partnership Engagement

45. The partnership team has expanded their remit to support the CAIT inspections in respect of partnership working. The team is seeking to define a practical model of what effective borough/LSCB partnership working looks like; assessment/evaluation criteria, best practice, joint measures, shared responsibility etc. The team will look at internal, external, statutory and voluntary relationships as part of each CAIT inspection over the next 12 months. This will be vital to the command’s ongoing input to the Munro review as it considers models of more effective joint working.

46. Mapping project - The partnership team’s Project Ocean is currently working with the Safer Neighbourhoods OCU, BOCUs, SO15 and faith communities across London to map supplementary schools across the capital. Supplementary schools offer faith based education over and above formal education and generally sit outside the scope of the oversight mechanisms in place for mainstream schools.

47. No coordinated work has ever been undertaken to identify how many of these schools exist and what the level of safeguarding awareness is within them. Using Safer Neighbourhoods Teams across the MPS SCD5 is engaging with faith communities to identify supplementary schools in all London wards and subsequently work with the relevant faith community to assess and offer safeguarding support.

48. Once this survey is complete a mapping exercise will be undertaken by the SCD5 intelligence unit and a bespoke training and awareness package will be developed and offered to all supplementary schools. A smaller, but similar piece of work was recently carried out in conjunction with the Office of the Chief Rabbi for the benefit of orthodox rabbis across London. This resulted in significant positive feedback and an increased awareness of safeguarding opportunities and responsibilities.

49. Project Azure – The MPS response to Female Genital Mutilation recently carried out a pro-active operation in conjunction with colleagues from SO18’s safer airports team, Operation Paladin, BAA, Social Services, the Home Office and a variety of airlines. The operation engaged with passengers to raise awareness of FGM and the fact that people often use the summer school holidays to remove children from Britain for the purposes of genital mutilation. This was an intelligence led operation based at Heathrow Terminal 4 which focused on flights going to or connecting to destinations known to conduct FGM. The aim of the operation was to raise awareness amongst travellers of the consequences, both in terms of health and the law, of condoning this practice. Such was the success of the operation that this will now become a rolling programme of activity undertaken at or around major school holidays.

50. Project Violet continues to work with faith communities and local statutory and non-statutory partners to address issues relating to child abuse linked to a belief in spirit possession. A recent Channel 4 documentary has brought this issue into specific relief in the minds of many but rather than highlight a new or previously unknown issue it has simply underlined the value of the engagement work carried out by Project Violet.

SCD5 Policy and Practice Developments 2010-2011

51. The command is currently fully engaged with the Munro Review into child protection arrangements. Although ACPO and CEOP have also completed returns from the recent call for evidence it was felt, given the unique challenges of the capital that the MPS should also complete a return. As stated earlier this is provided for information at Appendix 3. The review will undoubtedly provide the context and direction for the future development of child protection procedures and the command will continue to ensure it is at the forefront of that process.

52. The command is currently in the process of reviewing the Specialist Child Abuse Investigators Development Programme (SCAIDP) in line with the new learning descriptors produced by the NPIA. Once complete this training will be offered to new entrants to the command to ensure that best practice is at the core of business across the command.

C. Other organisational and community implications

Equality and Diversity Impact

1. The work being progressed under the Children and Vulnerable Young People strand of the MPS Youth Strategy, now supported by the HMIC report on the need to improve supervision of high risk cases, has identified key risk factors which when combined, have a predictably negative impact on children and are strongly associated with physical offences against children. These factors include mental health, drugs, domestic violence, repeat victimisation, deprivation and BME background of the victim.

2. In order to impact on these factors, multi-agency work is progressing through the London Safeguarding Board to influence the provision of and access to services to improve the fate of children in these circumstances. Additional effort will be required to impact upon new communities and BME communities.

3. The pilot to address the impact of maternity leave and other long term abstractions on SCD5 will contribute to the MPS understanding and decision making in its commitment to being an equal opportunities employer.

Consideration of MET Forward

4. The ongoing process of improvement to which SCD5 is committed, supports the delivery of all of the Met Forward key outcomes of fighting crime and reducing criminality, increasing confidence in policing and giving better value for money. It specifically supports and enhances the Public Protection element of the Met Specialist work stream through a clear focus on the continued, and continuous, improvement of safeguarding delivery for the communities we serve.

Financial Implications

5. This is an update paper and there are no additional financial implications. Members should note that provision of £0.5m has been included in the capital programme for the CRIS updgrade referred to in paragraph 20.

Legal Implications

6. This is an update report for information only, therefore there are no direct legal implications arising.

7. This report highlights the MPS is committed to collaborative working with key agencies to ensure the risk of harm to children is well understood, assessed and acted upon the most appropriate way in each case.

8. The Governments launch of a new review into children’s social work in June 2010, commonly known as the Munro review, will build on the work of Lord Lamings Progress Report (March 2009), and will amongst other matters address how effectively children’s social workers and professionals in other agencies work together. The final report is due to be produced in April 2011. The MPS will be required to consider its service delivery, as appropriate, in relation to any new recommendations of best practice that may be made as a result of the review.

9. The Children Act 1989 (“the Act”) is the key legislative framework in relation to child protection matters. This Act provides a constable with powers to remove a child to suitable accommodation, or take such reasonable steps to ensure a child’s removal is prevented, where there is reasonable cause to believe that a child would otherwise be likely to suffer significant harm. The Act also sets out various duties upon the police force following the making of a Police Protection Order, including notification to the appropriate local authority.

10. It is recommended that Human Resources and DLS are engaged, as appropriate, in relation to the pilot scheme to address the impact of maternity leave upon SCD5, to ensure all issues are properly addressed and there are no employment law implications arising.

Environmental Implications

11. This is an update report on current SCD5 performance, staffing and practice. Therefore there are no environmental impacts arising as a result of this report.

Risk Implications

12. There are obvious serious risks associated with a failure to properly manage and investigate child abuse allegations. These are set out in the sections above along with the measures put in place by the command to mitigate them. There are no health and safety implications specifically associated with this report.

D. Background papers

None

E. Contact details

Report author: Detective Chief Inspector John Carroll, MPS

For information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Appendix 3

Child Abuse Investigation Command of the Metropolitan Police Service - Submission to the Munro Review call for evidence

Introduction

The Child Abuse Investigation Command (SCD5) has compiled this submission on behalf of the Metropolitan Police Service (MPS). It draws together experience and best practice from across the MPS and highlights safeguarding challenges and how the MPS is working with partners to address them.

The submission places emphasis on the critical importance of meaningful joint working across the partnership and the need to ensure effective joint working.

The MPS has also been consulted on the submission of the Association of Chief Police Officers in response to the call for evidence however the MPS submission is provided additionally to reflect the particular challenges and obstacles of safeguarding children within the capital.

Identifying and helping children and young people in need

Background - What was the problem or challenge?

The MPS has invested significant resource into developing an effective framework through which staffs are made aware of their safeguarding responsibilities. Using this framework are required to take positive action ensure the five key ‘Every Child Matters’ outcomes are delivered.

The MPS has developed processes that have facilitated decision making in relation to potentially at risk children. However, a consequence of this is the significant increase in the number of records of police involvement with children (MERLINs) being forwarded to social care. It is recognised that not all of these may have an ongoing safeguarding issue which requires partnership intervention and that this has placed an unforeseen burden on local authorities.

In addition there has been an increase in referrals where there are genuine safeguarding issues which require appropriate assessments and decision making. The MPS has recognised the need to ensure consistency in its risk assessment and screening processes to ensure effective safeguarding delivery.

However, there appears to be a gap of understanding between the MPS and others in terms of risk based decision making and this can lead to an inconsistent approach and duplication of effort.

Whilst effective partnerships exist the development of a safeguarding ‘team’ approach supported by collective accountability would assist more effective communication and support more effective decision making.

The MPS approach

All police officers have been provided comprehensive training in relation to ‘Every Child Matters’ outcomes and their individual responsibility to ensure these outcomes. However, it is recognised that greater sophistication is required when referral decisions are made.

As a result the MPS is working to introduce new screening and assessment processes which take better account of risk (repeat victimisation for example) and need when making referral and intervention decisions.

Over the last 12 months the Child Abuse Investigation Command has designed and implemented the Child Risk Assessment Matrix (CRAM) across London to better inform decision making.

This process makes a qualitative assessment of all relevant factors relating to a child and allows appropriate and informed decision making. Not only has the CRAM significantly improved the approach to decision making and referrals it has also allowed the MPS to identify child victims and criminality which may have gone undetected previously.

In a recent inspection of Haringey Her Majesty’s Inspectorate of Constabulary highlighted the critical importance of the CRAM to the improvements made within the MPS in relation to safeguarding issues. However, this process has involved considerable change and is not yet fully embedded. It is critical that the increased resource allocated to safeguarding within the MPS is maintained to ensure full implementation.

The MPS fully recognises the importance of demonstrating best value. It has fully engaged with the various pilots scheme’s run across the capital to assess joint and co-located working practices.

The MPS fully supports the development of more effective joint working which goes beyond the partnership model currently used. Whether this is best delivered through multi-agency triage ‘hubs’ or through the use of virtual teams is unclear and should be based on a full assessment of the individual pilot schemes. What is clear however is the need to move towards the creation of a ‘safeguarding team’ ethos with a shared sense of ownership and accountability which is complimented rather than constrained by its parent organisation.

Improved social work practice in assessing and helping children, young people and their families

Background - What was the problem or challenge?

Anecdotal feedback received during multi-agency training exercises has highlighted that partner agencies do not seem to have the same capacity for identifying an incident as ‘critical’ as exists within the police service. Colleagues from other agencies have remarked on the potential benefits of having a similar framework within the safeguarding partnerships through which incidents could be more effectively managed. The declaration of an incident as ‘critical’ ensures an enhanced level of response and support coordinated by a central ‘Gold’ command. This has proved to be an invaluable framework for managing particularly serious or challenging incidents where the required response exceeds usual or normal capacity. The MPS feels that this would also help to develop the sense of team working mentioned above by allowing complex issues to be jointly addressed and resolved.

The MPS approach

There seems to be a clear desire amongst partners to move towards developing a model where incidents that move beyond the scope of the usual arrangements can be escalated within the partnership. Decisions made within such a model could then be fed directly into the relevant organisation and would provide additional resilience for all agencies.

Strategies for assisting social workers to have the requisite skills

Background - What was the problem or challenge?

The MPS feels strongly that greater understanding of the practices and requirements of other partner agencies is crucial to continued improvements in safeguarding provision.

External drivers such as dictated performance indicators can create an inherent conflict and disconnect between management and service delivery. This can lead to a blurring of focus within partner organisations where decision making is influenced by the pursuit of targets as opposed to the delivery of the most appropriate safeguarding outcome.

The processes and performance drivers of other agencies are not easily or often understood within the partnership and this lack of clarity can lead to tension and the degradation of joint working.

Whilst the move towards decentralised oversight will allow for service delivery to be brought into more specific relief there is a need to consider both performance and assessment within the context of the safeguarding partnership.

The MPS approach

The MPS is committed to the idea of moving beyond partnership working towards true team working. To this end the MPS has fully engaged with the various ‘Triage’ co-location pilots.

However, co-location for its own sake should not be viewed as a panacea. This would be a costly and long term undertaking and without the appropriate governance structures would be unlikely to succeed.

It is the MPS view that in order to be successful safeguarding ‘teams’ require the support of robust local governance and assessment arrangements. These structures should support rather than blur organisational integrity but at the same time establish a clear and shared focus on the delivery of positive outcomes for children.

The MPS suggests the consideration of virtual ‘teams’ would be a sensible and achievable first step towards full co-location. The MPS would be keen to support a pilot of such a scheme.

Key to the success of such structures however is the development of greater understanding amongst partners. To this end the MPS has funded and developed immersive learning known as Multi-Agency Critical Incident Exercises (MACIE). The two day MACIE simulation exercise developed on behalf of the MPS by Prof. J. Crego offers delegates at a senior level from all partner agencies the opportunity to work through a case study in an interactive ‘virtual’ environment.

Decisions made in the exercise syndicates are scrutinised and discussed in plenary sessions in order to develop individual learning points.

All 32 London boroughs have now had the opportunity of attending the MACIE exercise and the feedback has been universally positive. In addition to the development of a new MACIE two day scenario which will be again be offered to partners the MPS is also in the final stages of development of a one day version of this programme for those at practitioner level. This will start to be delivered by October 2010

The MPS strongly supports the continued development of further dedicated joint training exercises.

Strategies for shared learning

Background - What was the problem or challenge?

The ongoing development of the evaluation and dissemination of Serious Case Reviews (SCR) provides a positive lever for the delivery of increased transparency. However, whilst the MPS is fully supportive of the move towards independent chairs it feels the decision to exclude authors from individual agencies presents challenges to this new framework which requires careful consideration. It is felt that the exclusion of these key individuals may hinder the development of meaningful forward looking learning outcomes.

The MPS approach

The MPS is planning to fully engage with wider efforts to examine the future of SCRs currently being progressed by the London Board however we feel it important to briefly set out our feelings on this issue.

The focus of SCRs needs to shift from the micro scale to the macro in the view of the MPS. Current assessment processes can place too great an emphasis on detail rather than outcome. We feel there is a need for a move towards establishing forward focused learning opportunities as opposed to a backward facing perspective. This tends to the catalyst for the development of damaging blame cultures and is certainly not conducive to joint working.

Clear guidance needs to be developed to ensure the authors of SCRs are fully sighted on the emerging themes of the ongoing work by the LSCB in response to the new structures. This will ensure that the potential benefits of the new processes are embedded at the earliest opportunity.

Linked to this safeguarding organisations need to review their mechanisms for cascading the learning from SCRs to ensure positive development rather than blame is the focus.

The MPS is undertaking a review of its SCR feedback processes and will be happy to share this with the review in due course.

The MPS also reiterates its strong support for the move towards independent local chairs. This supports the need for greater transparency and assists in delivering much needed local flexibility.

Whilst the MPS is keen to ensure that individual organisations retain their respective identities it would support any move to enhance local governance arrangements if it were demonstrated that it would deliver solutions and learning that matched the issues encountered.

Approaches to case discussions

Background - What was the problem or challenge?

The MPS is supportive of the move towards more flexible local governance that is reflective of local needs. There is however a lack, at present, of qualitative assessment and scrutiny of case discussions and conferences. Linked to this is a more general lack of consistency in approach to risk and risk assessment and management.

The MPS also feels that partnerships are not maximising opportunities which existing technology affords them for effective and prompt communication. This results in a rather traditional and occasionally overly burdensome view of discussion and conference attendance.

Whilst partnership responsibilities are understood the MPS still feels that organisational silos prevent the development of genuine and sustained team working. A lack of appropriate and specific training in relation to this area is felt to be a missed opportunity to further develop and embed team working.

The MPS approach and outcomes

The MPS feels that consideration should be given to the development of jointly agreed local accountability structures which include case discussions and conference. Consideration should also be given to the complimentary development of commonly understood and consistent risk assessment processes.

This would provide a firm basis on which to build more effective partnerships and enhance understanding between agencies. The MPS would welcome any opportunity to contribute to the development of these structures and the opportunity to pilot such processes.

The MPS does not feel that best value is currently being made of the opportunities to engage with partners ‘virtually’. Conference calls, video conferencing and other communication tools provide opportunities to create more effective teams without the need lengthy and occasionally disproportionate abstractions.

Linked to this and the other wider debate regarding governance arrangements is the need to develop a more acute focus on genuine joint engagement. Whilst it is imperative that the integrity and identity of parent organisations is maintained opportunities exist to address unhelpful siloed working practices. The MPS is supportive of a greater emphasis on team working reflected through further exploration of joint working arrangements and more flexible governance arrangements.

Improving transparency

Background - What was the problem or challenge?

A clear conflict arises between building and maintaining trust and confidence between partners and confidentiality. Organisational silos create a barrier to transparency which is not easily overcome or avoided.

Added to this historically the membership of LSCBs has fuelled concern regarding transparency. This was exacerbated by a lack of established communication flows to local communities.

The MPS approach and outcomes

Improving trust confidence and transparency between partners will be fundamentally, and positively, influenced by governance structures which reflect shared accountability and flexible assessment processes focused on outcome and learning.

It is the MPS view that safeguarding partners should build on the positive step of appointing independent chairs and consider the inclusion of lay members to LSCBs. The MPS would also advocate the development of effective communication strategies to feed directly into local communities.

The ongoing ability, and willingness, to pro-actively address community concern and tension demonstrates a clear desire for transparency and allows an opportunity to inform public debates rather than react to them.

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