Domestic violence arrest rates and cautions

Report: 04
Date: 8 July 2008
By: Commander Simmons Territorial Policing, Violent Crime Directorate

Summary

This report relates to the MPS’ Domestic Violence performance in the key areas of sanctioned detection & arrest rates, and the charge to caution ratio. Where available the disproportionality data is also highlighted.

A. Recommendations

That the MPA Domestic Violence Scrutiny Board notes this report.

B. Supporting information

Background

1. The Metropolitan Police Service’s (MPS) Violent Crime Directorate (VCD) is charged with the responsibility of owning and developing the Services’ domestic violence (DV) policy and its accompanying standard operating procedures (SOP). In addition the VCD is also accountable for improving service delivery and consistency across London 32 boroughs.

2. The VCD’s Community Safety Unit (CSU) Service Delivery Team discharge these responsibilities on behalf of the Commander VCD. They also provide support and guidance to all MPS staff, department and directorates in all matters relating to DV and check policy and SOP compliance.

3. The MPS works to the Association of Chief Police Officer (ACPO) DV definition of: 'Any incident of threatening behaviour, violence or abuse (psychological, physical, sexual, financial or emotional) between adults, aged 18 and over, who are or have been intimate partners or family members, regardless of gender and sexuality'. (Family members are defined as mother, father, son, daughter, brother, sister and grandparents, whether directly related, in-laws or step-family) (ACPO - 2004).

4. This definition is wide to ensure that all forms of domestic abuse including intimate and within a family context, including cases of forced marriage and honour-based violence are captured. However we know that many DV cases affect those under 18 years or are perpetuated by extended family members outside the above relationships described above. We ensure that those victims are given an equally effective service in line with the MPS’ positive action policy.

5. All reported domestic violence cases falling within the ACPO/MPS definition must be recorded on the Crime Reporting Information System (CRiS) and highlighted or flagged with the marker ‘DV’  [1].

6. In DV cases the MPS aims to ensure the safety of victims, their children and families, whilst holding perpetrators to account for their actions. It’s with these aims in mind that officers are provided with clear guidance in how to conduct a perpetrator-focused investigation whilst effectively managing the risk(s) to victims. The MPS acknowledges that whilst victims must lie at the centre of decision-making the onus of decisions shall not be placed on them.

7. The MPS is committed to ensuring that its staff and its strategic and community partners have the best possible, accurate, timely and reliable data to permit them to effectively discharge their duties and responsibilities. Only data produced by the MPS’ Performance Information Bureau (PIB) is officially recognised. To this end it’s only this data that should be released to partners and otherwise published.

8. PIB produce data weekly, monthly, quarterly and annual performance reports and also reports relating to bespoke requests. Performance data produced outside of this recognised format is not ‘official’ and should not be released.

Performance Data (all data relates to 1st April 2007 and 31st March 2008 (financial year 07/08).

9. The MPS recorded and investigated 102, 227 DV incidents (crime /non-crime) of which 52,212 were recorded as crimes. This resulted in 22,598 cases being solved as sanction detections [2] . This compares favourably with previous years sanction detection performance and reflects the drive for continuous improvement, whilst recognising the need to improve on qualitative performance outcomes.

Number of incidents resulting in an arrest

10. In the last financial year the MPS was obligated to use Statutory Performance Indicator (SPI) 8a measurement, which relates to the percentage of arrests made arising out of the total number of DV incidents. The performance directorate calculates the measurement by analysis of the CRiS reports and uses a complex process of examining data using CRiS flags, relationships between the victim and suspect or accused, and examining if an arrest has been recorded. A full explanation of the methodology is shown at appendix 1. Using this method, the data is as follows:

• SPI8a defined incidents amounts to 84,026
• SPI8a defined incident arrests amount to 35,355
• SPI8a defined incident arrest rate is calculated as 42.1%

Equality data is not available for SPI8a defined incidents due to the complex nature of the search patterns used.

Number of DV flagged offences

11. The total count of all DV flagged criminal offences recorded on CRiS for financial year 07-08 is 50,986. That said the complex searches used for determining the Special Performance Indicator (SPI) 8a has highlighted that there were 52,212 domestic violence offences recorded. This would tend to be a more reliable search as it relies on more complex search patterns (as previously described and noted in appendix a) and is not reliant on the single DV flag measure.

12. The MPS Performance Information Bureau (PIB) has supplied the following equalities data in relation to these victims as:

Gender

• Male 9,279
• Female 41,425
• Unrecorded 485
• Total 51,189

Ethnic Appearance:

• White European 27,383
• Dark European 2,623
• African/Caribbean 12,455
• Asian 6,424
• Oriental 594
• Arabian/Egyptian 668
• Unrecorded 1,042
• Total 51,189

Age Group:

• 0-17 years old 1,176
• 18-29 years old 21,538
• 30-39 years old 13,762
• 40-49 years old 9,292
• 50-59 years old 3,292
• 60+ 1,593
• Unrecorded 536
• Total 51,189

Number of crimes resulting in an arrest

13. The MPS has used the special performance indicator procedure for filtering out the non-crime incidents to calculate DV offence arrest volume and rate. Using this method, the data is as follows:

• SPI8a defined offences amounts to 52,212
• SPI8a defined offence arrests amount to 33,559
• SPI8a defined offence arrest rate is calculated as 64.3%

14. Equality data is not yet available for SPI8a defined arrests.

Sanction detection rate

15. The MPS calculates the sanction detection rate by measuring the proportion of domestic violence flagged recordable offences that are disposed of by means of a sanction detection (as described in footnote 2). Using this method the MPS achieved a sanction detection rate of 44.3% for the financial year 07-08, which account for 22,598 perpetrators being charged or cautioned.

16. An examination of this sanction detection performance reveals that 55.7% were for adult cautions. As previously highlighted the MPS recognises that there is a need to focus on and improve qualitative performance outcomes.

17. The MPS PIB has supplied the following equalities data in relation to persons accused of domestic violence offences:

Gender:

• Male 11,524
• Female 1,556
• Unrecorded 4
• Total 13,084

Ethnic Appearance:

• White European 6,749
• Dark European 779
• African/Caribbean 13,649
• Asian 1,602
• Oriental 124
• Arabian/Egyptian 154
• Unrecorded 27
• Total 13,084

Age Group:

• 0-17 years old 146
• 18-29 years old 5,321
• 30-39 years old 3,933
• 40-49 years old 2,697
• 50-59 years old 762
• 60+ years old 224
• Unrecorded 1
• Total 13,084

Repeat victimisation

18. An examination of all domestic violence incidents reveals:

• That there were 77,388 victims aged 18 or over, involved in domestic violence (crime/non-crime) incidents.
• Of these victims, 53,755 were recorded in one incident and 23,633 appear in two or more incidents.
• That there were 46,327 victims aged 18 or over, involved in domestic violence crimes (offences) i.e. crimes against statute.
• Of these victims, 33,471 were recorded in one offence and 12,856 appear in two or more offences.

19. The above data is reliant on individual victim’s details being recorded in a consistent manner i.e. spelt similarly in separate reports. The equalities data for repeat victimisation is not yet available.

Number of incidents charged by the CPS

20. The MPS recorded that there were 9,903 domestic violence offences that were disposed of my means of a charge. However information supplied by the Crown Prosecution Service (CPS) reveals that the CPS prosecuted 6,688 cases that its agency had flagged as domestic violence. It must be recognised that by law the police can only prosecute an offender for the majority of crimes once it has the specific authority of a CPS prosecutor.

21. The difference in the two figures above reflect a high attrition rate from point of charge to initial progress to the criminal justice system (CJS) or is also indicative of CPS data input, retrieval and /or tracking problems.

22. All the MPS’s 32 borough have CPS colleagues located at the point of charge (or prosecution) who are assisted out of office hours by CPS Direct, which is a telephone assisted service available 24 hours per day. From the 8 May 2008 these CPS assets are further supported by CPS London Direct, which will operate each weekday between 10am and 5pm offering prosecution advice.

Performance relating to DV Homicides and serious assaults

23. There were 19 domestic violence homicides for financial year 07-08 compared to the same number for the year before. Of this total ten victims were male and the remaining 9 victims were females. Males were disproportionately represented in the suspect profile with 13 offences being perpetrated by males with the remaining 6 being perpetrated by females.

24. The demographic profile of the victims and suspects is as follows;

Ethnic Appearance of victims:

• 10 White European
• 5 Dark European
• 1 African-Caribbean
• 4 Asian

Ethnic Appearance of suspects:

• 8 White European
• 4 Dark European
• 4 African/Caribbean
• 4 Asian
• Oriental

Age Group of victims:

• None under 20
• Two between 20 and 29
• Eight between 30 and 39
• Two between 40 and 49
• Three between 50 and 59
• Two between 60 and 69
• One between 70 and 79
• One between 80 and 80

Age Group of suspects:

• One under 20
• Five between 20 and 29
• Six between 30 and 39
• Two between 40 and 49
• Three between 50 and 59
• One between 60 and 69
• None between 70 and 79
• One between 80 and 80.

25. The Critical Incident Advisory Team commenced a total of 19 domestic violence homicide reviews during financial year 07-08 and has completed 6 so far with the remainder nearing completion.

26. There were 508 domestic violence grievous bodily harm [3](GBH) cases recorded in the last financial year, which is a 6.3% reduction compared to the 542 crimes perpetrated in FY 05/06. This equates to thirty-four less primary victims and potentially 34 lives saved.

27. There were 607 DV GBH crimes recorded as perpetrated during FY 05/06.

28. The MPS performance directorate cannot currently measure the exact volume of specific specialised crimes e.g. DV and hate crime, brought to justice (OBTJ), which is reliant on a number of factors including court outcomes.

Dual Arrests

29. Dual arrests are where the victim and the suspect are both arrested at the alleged incident. It is the MPS policy that all DV incidents will be professionally and effectively investigated in which the primary aggressor is identified and positive action is taken. However it is also recognised that some incidents to which police officers and police staff (PCSOs) are called to are violent and dangerous to them and to all the other parties involved and that arrest is the safest way (for all) for the incident to be managed in the first instance.

30. The Strategy, Modernisation and Performance Directorate (SMPD) have examined all domestic violence CRiS reports using a complex enquiry to identify incidents where dual arrests were made.

31. This enquiry examines where two people were arrested in the same incident and where they were also described as victims (cross allegations). The CRiS database was interrogated for cases where there was a ‘DV flag’ and the victim was shown as being 18 years or older. It further looked for where the surname of the victim matched that of the suspect or accused and there was a minimum of 2 suspects or accused. The names of all parties with accompanying custody records were then retrieved for manual checking. It should be recognised that this data will include adult children and adult siblings being involved in DV incidents. As can be seen from the above this data query clearly has its limitations.

32. The enquiry calculated that there were 100 incidents where dual arrests were made. Given the complex nature of the search, data input errors and so forth this number should be regarded with caution.

33. Of the 100 incidents identified, 49 were disposed by means of a caution and 5 by means of a charge.

34. Equalities data is not yet available for dual arrests.

Honour-based violence (including forced marriage)

35. The MPS and its strategic partners (including ACPO and CPS) define honour based violence as;

A crime or incident, which has or may have been committed to protect or defend the honour of the family and/or community.

36. Forced Marriage (FM) is defined as;

A marriage conducted without the valid consent of both parties where duress is a factor (A Choice by Right 2000).

37. There were 143 CRiS records recorded as forced marriage (FM), 87 of which were also noted as being domestic violence related. Whilst honour based violence (HBV) is a form of gender-based violence, it is also intrinsically linked to DV and can be connected to organised criminal networks.

38. It should be noted that the ‘FM flag’ (forced marriage) is currently applied for all honour based violence matters. This will change as a new bespoke honour based violence flag is introduced this year.

39. Equality data in relation to the victims of ‘FM’ flagged reports is recorded as follows:

Gender:

• Male 33
• Female 174
• Unrecorded 1
• Total 208

Ethnic Appearance:

• White European 7
• Dark European 14
• African/Caribbean 11
• Asian 156
• Arabian/Egyptian 14
• Declined/Refused 2
• Unknown 3
• Unrecorded 1
• Total 208

Age Group:

• 0-17 years old 66
• 18-25 years old 81
• 25-32 years old 39
• 33-40 years old 7
• 41-50 years old 8
• 50+ years old 7
• Total 208

Self defined ethnicity:

• Any other Ethnic group 6
• Asian - Any other Asian background 14
• Asian - Bangladeshi 45
• Asian - Indian 13
• Asian - Pakistani 49
• Black - African 6
• Black - Any other Black background 1
• Mixed - Any other mixed background 3
• Person declines to define ethnicity 2
• Person does not understand 2
• White - Any other White background 5
• White - British 3
• Unrecorded 59
• Total 208

Policy Compliance, Implementation and Quality Assurance

40. The MPS has provided its staff with a clear and un-mistakable direction about supporting DV victims and its drive (with partners) to hold perpetrators to account for their conduct. We should not forget the role of the Crown Prosecution Service (CPS) regarding statutory charging decisions as determined by the Criminal Justice Act 2003 amended by section 37(A)(1)(a) of the Police and Criminal Evidence Act 1984.

41. The key provisions and principles of this legislation are:

• Crown Prosecutors will determine whether a person is to be charged in all indictable only, either way or summary offences subject to those cases specified, which police may continue to charge. It is pertinent to note that the vast majority of offences perpetrated by DV abusers require Crown Prosecutors authority to charge.
• Charging decisions by Crown Prosecutors will be made following a review of evidence in cases and will be in accordance with their guidance.
• Prosecutors will provide guidance and advice to investigators throughout the investigative and prosecuting process e.g. lines of enquiry, evidential requirements etc.
• Crown Prosecutors should be proactive in identifying, and where possible rectifying evidential deficiencies.
• Where it is necessary, pre-charge bail arrangements will be utilised to facilitate the gathering of evidence, including key evidence on which the prosecution will rely, prior to the charging decision being taken.

42. The VCD continues to work with the CPS to identify areas of vulnerability and disproportionality in the charging process at both a local branch level and CPS direct. The development of an updated MPS / CPS service level agreement (SLA) is being undertaken that will be cognisant of our joint recent learning. This SLA awaits the publication of the MPS DV SOP (June 2008) and the CPS updated DV Policy, which awaits a ‘sign off’ date.

43. As highlighted in previous MPA reports, the MPS recognises that the sanctioned detection rate is not the sole measure of success in this arena.

44. DV Performance across the organisation is measured using a range of statistics, which include:

• DV sanctioned detection rate
• Power of arrest ratio for DV offences
• Percentage of DV CAD calls resulting in a CRIS report.
• Repeat Victimisation measures and checks.
• Dip sampling of Risk assessments completed.

45. The MPS believes that further performance measures should also include:

• Measuring (and Improving) Victim satisfaction levels
• Reducing repeat victimisation
• Reducing seriousness (in terms of crimes committed) and homicide rates
• Volume of offenders brought to justice.

46. For the current financial year (FY 08/09) the Home Office indicators relevant to DV are;

• Number of most serious violent crimes per 1,000 population (PSA  [4] 23: Priority Action 1 [5].)
• Number of domestic violence homicide offences per 1,000 population (SPI and NIS).
• Percentage of serious violent offences (PSA 23: Priority Action 1) brought to justice (SPI).

And, in the case of domestic rapes:

• Percentage of serious sexual offences (PSA 23: Priority Action 1) brought to justice (SPI)  [6].

[NB. It is relevant to note that the DV homicide indicator only relates to relationships where victims and suspects were partners and ex-partners i.e. spouse including civil partner, common law spouse or co-habiting partner, ex-spouse, ex-common-law spouse or ex-cohabiting partner, boyfriend / girlfriend, ex-boyfriend / girlfriend and adulterous relationship – which sits outside the ACPO DV definition].

47. The MPS has a robust and supportive performance management regime in place. The current performance framework, which includes domestic violence involves the following:

• Borough daily management meetings
• Borough tactical tasking and co-ordinating meetings
• Borough senior management strategy meetings
• Link commanders’ meetings
• Crime control strategy meetings
• VCD daily management meetings
• CSU Detective Inspectors’ 6 weekly meetings
• MPA DV scrutiny boards, and
• Focussed performance inspection and interventions conducted by the VCD Public Protection teams.

48. The updated DV SOPs (due to published in June 2008) provides direction and guidance to all staff about their roles and responsibilities in the effective investigation and management of DV cases.

49. To the first responder this means maximising evidential, witness, forensic and intelligence opportunities. This is to ensure that investigations are not solely reliant on a victim statement to progress to prosecution but allows for sufficient evidence to be placed before the CPS for an informed charging decision.

50. To the Borough Senior Management Teams the SOP depicts their accountability across a range of disciplines including performance, partnership, resourcing, homicide reviews and so forth.

51. The MPS continues to successfully operate a gender-neutral positive action policy for domestic violence incidents, which was supported by our strategic partners at time of its inception. The policy is detailed below for ease of reference:

‘Where domestic violence has occurred our aim is to investigate the incident and identify, arrest and prosecute the perpetrator. Where a criminal prosecution of a perpetrator is deemed unfeasible, we will identify and pursue alternative courses of action, in consultation with our partner agencies, to stop the violence and make victims and their children safer.

Where an offence has been committed officers must arrest the suspect where there are reasonable grounds to suspect their involvement in the alleged crime. Failure to do so may result in a neglect of duty. Officers must justify any decisions not to arrest and clearly document that decision’.

52. The MPS acknowledges partners’ continuing concerns regarding dual arrests and will continue to work in this area responding to those concerns. The updated SOP clearly states dual arrests “are not encouraged and should be avoided, particularly where there are children in the relationship who maybe left without a parent.” The SOP clearly states that it’s important for investigating officers to identify who the primary aggressor is and who has acted in self-defence, when cross allegations are made to prevent dual arrests taking place. This point is again reinforced in the updated Book 124D (page3).

53. Borough CSU Detective Inspectors (DI) have also been provided with clear direction from the VCD to challenge locally, officers who undertake dual arrests. It should be recognised that dual arrests maybe necessary and appropriate in certain circumstances but there is an expectation and requirement that the arresting officer will always properly justify their decision to arrest both parties.

54. On behalf of the Home Office, the MPS continued to collate the SPi8a data (for FY 2007/08), whilst recognising that there were flaws in collating the data. The Association of Chief Police Officers (ACPO) also believed the SPi8a was not sufficiently robust to accurately reflect the Police Service’s DV arrest performance. Importantly an arrest cannot be made where there has been no crime committed, i.e. the incidents that the MPS will record on their Crime Reporting Information System (CRiS) as non-crime DV specified investigations. There was also significant difficulty in identifying appropriate DV incidents. The MPS has highlighted these issues in a previous MPA paper [7].

55. A more realistic performance indicator is to measure arrest rates where crimes have been committed and therefore affords investigating officer an opportunity to arrest. It’s to this end that the MPS also collated the arrest rate for all recorded DV offences and set a performance target of 60%, part way through the last performance year, achieving a 64.3% result at year-end. This performance indicator continues to be used for this current performance year with the target being increased to 67%.

56. The MPS will continue to work towards improving the quality of its DV performance outcomes as we recognise partners’ concerns about the charge: caution ratio. In doing so the MPS will continue to improve the quality of primary and secondary investigations, continue with its positive action policy, provide support to boroughs and continue to work in effective partnership with the CPS.

57. Only an officer of Inspecting rank or above can authorise a caution. The VCD has issued robust guidelines detailing how DV cautions can be undertaken with integrity where authorising officers justify the rationale for their decisions. Borough Senior Management Teams (SMT) have the responsibility and accountability for monitoring their officers’ compliance with the SOPs, which also includes information relating to the appropriate use of the cautioning provisions.

58. The accuracy of MPS performance data is very much subject to the correct identification and flagging of ACPO DV defined incidents correctly recorded on the MPS CRiS system. Secondary investigating officers and/or Crime Management Unit staff will quality assure the primary investigation and where necessary will enter the appropriate flags. As with any manual inputting system it’s prone to human error. The MPS’ Performance Information Bureau also generates a monthly data accuracy check/audit, which is despatched to boroughs, that highlights CRiS records, which have not been correctly flagged i.e. over and under use of the ‘DV flag’.

59. The above process is further supported by the Service’s Data Accuracy Team who performance an additional layer of quality assurance.

60. The VCD is currently working in partnership with the Directorate of Information (DOI) to further update the CRiS system by adding a mandatory flagging system to it. This update will add further integrity and accuracy to the system and reduce input errors leading to more accurate performance data.

61. In addition a significant element of ensuring data quality and flagging accuracy is the 6 weekly CSU DI meetings chaired by the DCI CSU service delivery team. Standing agenda items are performance, good practice, barriers to success and VCD support. It is so structured to encourage an open and frank discussion highlighting quantitative and qualitative issues allowing the VCD to review the quality and substance of Boroughs’ DV service delivery.

62. All BOCUs hold daily National Intelligence Model (NIM) compliant Daily Management Meetings (DMM) assessing DV incidents ensuring positive action including arrest and risk management procedures are undertaken. In addition the BOCUs also conduct fortnightly tasking and coordinating meetings, which addresses the borough’s control strategy and prioritises the allocation of resources and police/partnerships proactive deployments. This structured process ensures accountability, ownership and demonstrates leadership.

63. This National Intelligence Model (NIM) meeting structure is replicated at the TP Violent Crime Directorate and across other MPS Business Groups.

Risk Management

64. Risk identification, assessment and management is one of the cornerstones on which the MPS’s DV response is founded.

65. Through academic research and operational support the MPS developed the SPECSS+ model and developed the accompanying Book 124D, which has been seen and used as best practice in a number of police forces throughout the UK.

66. Primary and secondary investigators use this model to identify, assess and manage risk. The accompanying Book 124D is employed for 3 principle functions;

• · Aide memoire for officers in how to conduct an effective primary investigation and risk assessment process
• Document and record evidence including risk management plan; and
• Sign post victims to DV specific support services (tear off and handed to the victim).

67. It is the MPS’s policy that a Book 124D must be completed for all domestic violence cases, whether a crime of non-crime incident. The recorded information in these booklets must be transferred to the CRiS at the earliest opportunity. The primary investigating officer will assess the risk as standard, medium or high, which should be quality assured by a manager.

68. All initial investigating officers are charged with the responsibility of completing and recording a risk identification, now SPECSS+ [8] , to assess current and future risks. The management of that risk remains with the primary investigating officer until it’s formally handed over to the incoming response team or members of the appropriate investigative team. The victim is informed of the risk process and safety planning is discussed with them.

69. Secondary investigating officers within dedicated investigative units, such as the CSU or Sapphire [9] teams, are responsible for conducting a secondary risk assessment for all medium and high-risk DV incidents. Investigating officers are aware that risk assessments remain dynamic and should be constantly reviewed and updated.

70. Once officers have identified and assessed the risk they should develop a risk management plan with proportionate but effective control measures. These plans should be managed in accordance with the Remove Avoid Reduce Accept (RARA) model. Clear guidance is given to officers that safety planning for victims is to be implemented regardless of the victim’s desire to enter the Criminal Justice System (CJS). All MPS staff have access to a list of tactical options via the CSU Service Delivery Team’s Intranet site.

71. A new revised version of the Book 124D will be introduced in early Summer 2008. This version has been updated taking into consideration good practice, areas for improvement and feedback from users, CPS and other partners e.g. dual arrest is highlighted.

72. At present it still remains difficult to measure the actual borough compliance around 124D usage as performance data is reliant upon a free text search of the CRiS ‘details of investigation page’. This will be rectified with the CRiS software update referred to previously. However the last audit relating to the 124d was conducted in August 2007 and reflected a MPS performance average of 73.8% with some borough achieving in excess of 95% e.g. Tower Hamlets 97.6%.

73. Boroughs that have invested appropriately in DV service delivery and mandatory DV training see the value and worth of the Book 124D. This buy-in has got to be at frontline delivery, supervisory and management levels. Direct links can be made between the success these Boroughs achieve in relation to performance outcomes and the substance and quality of their service delivery.

74. The VCD has been provided with anecdotal evidence from boroughs that the book 124D is instrumental in achieving successful independent prosecutions. In addition this is further supported by the Violent Crime Directorate’s quality assurance processes, which reveal that there has been an improvement in the quality and effectiveness of DV investigations (as recorded on the CRiS system).

75. The MPS is working with ACPO and other strategic partners in the development of an universal risk assessment and management process for domestic abuse, stalking, harassment and honour based violence, which is known as DASH (2008). The ACPO expert risk panel, of which the MPS had membership, will report to ACPO Chief Officer Group on 5 June 2008.

Perpetrator Programme

76. Referral to or completion of a perpetrator programme as part of a sentence for DV is a welcome addition to the ‘toolkit’ to assist the MPS in their aim to hold abusers accountable for conduct, challenged attitudes and beliefs as well as addressing the safety of victims and their children.

77. The VCD’s view is that there is a significant benefit of the 28 week Independent Domestic Abuse Programme (IDAP) programme; that whilst perpetrators complete the programme they are being constantly monitored through the Probation Service and risk being brought back before the Court for breach of an order if they do not comply. In addition there is regular contact with the victim by the Probation Services’ Women’s Safety Officers to assess the victim’s safety and update her on the perpetrator’s progress.

78. However the MPS is aware of instances where orders issued by the Court have expired prior to the accused’s placement on the programme. The National Probation Service runs the IDAP scheme and there appears to have been well-documented problems in resourcing the programmes, which the MPS is given to understand is improving.

Crime & Disorder Reduction Partnerships

79. The VCD doesn’t have direct contact with Borough Crime and Disorder Reduction Partnerships (CDRP’s), however as part of the service delivery plan for DV and hate crime, the unit has used various means to influence the CDRP, to develop their response in local DV and hate crime matters.

80. For example Territorial Policing Command has encouraged and advised Borough Command Teams to include such matters within their Local Area Agreements (LAA) and to ensure that DV and hate crime initiatives are developed and monitored to ensure that targets under APACS are met. As previously documented performance in these areas are further scrutinised in the diverse layers of the performance management regime.

81. The VCD has been engaged in consultation with the Home Office and the various working groups developing the APACS targets e.g. how might the performance of a local Multi Agency Risk Assessment Conference (MARAC) be measured.

82. Borough Commanders and their SMTs must ensure that DV is included in all control strategies to tackle serious and volume crime. The SMTs must also robustly implement and monitor compliance of the DV SOPs on borough. It is essential that DV be incorporated in to a National Intelligence Model (NIM) compliant strategic and tasking process at both local and central level.

83. One of the key projects influencing DV Criminal Justice performance locally is Operation Athena. Whilst the initiative is lead by the police, engagement is encouraged through the CDRPs to encourage local partnerships to provide: community awareness and support, to engage the media in supporting the initiative from a partnership perspective and other such activities. This is part of the briefing provided to Borough Commanders prior to the operation.

84. The VCD consults with advocacy services though various channels, specifically regular meetings through Project Umbra strands and the London Domestic Violence Forum and other MPS Working Groups e.g. Honour Based Violence Steering Group and the projects promoting the MPS Equality Scheme.

85. How this consultation might impact on CDRPs is variable and hard to gauge. One example that can be provided evolves around current discussions between the VCD and its strategic partners on Strand 6 of Umbra - DV homicide review process. The membership has concentrated specifically on the role that the CDRPs need to play to ensure participation of the strategic borough agencies and how they interact to provide an effective and joined up service to DV victims and potential victims. This will certainly have a direct impact on CDRPs and has been specifically included into the guidance.

86. The MPS is also aware of areas of disproportionality within its key DV performance indicators. As a consequence the MPS’ Service Modernisation and Performance Directorate, in partnership with the VCD, have undertaken academic research to understand the reason for this disproportionality, where it occurs and why. The findings to this research should me available in the summer of 2008.

87. It’s also essential that a challenging but achievable arrest rate be set against all recordable DV crimes. There is clear unequivocal evidence that a professional and sound positive early intervention equates to successful outcomes. This will continue to be supported by PIB’s weekly publication of DV performance figures to borough.

88. It is essential that the MPS CPS relationship continues to develop to allow for mature and reasoned decision-making process. The relationship between borough officers and local CPS staff cannot be under-estimated as it is key to Boroughs achieving their performance targets and ensuring high risk victims stay safe. The VCD are working with the CPS to develop an updated SLA that will allow both MPS and CPS to work more effectively together in tackling DV.

89. The VCD has noted that boroughs are indicating problems in getting charging decisions in a reasonable time. Some boroughs have highlighted that suspects need to be bailed for in excess of 8 weeks to await a CPS charging decision. The consequence is that victims are being harassed and intimidated before entering the CJS. This may further explain many boroughs decision to caution suspects as a more reliable and timelier means of holding DV perpetrators to account for their actions.

90. The CPS has acknowledged this issue and as a result CPS Direct London has been initiated to tackle some of the above-mentioned issues. This project started on 8 May as previously described.

91. The MPS is firm in its commitment to improve service delivery to victims and to hold perpetrators to account. The MPS will continue to ensure that its staff has access support, training and knowledge products to assist staff to provide the best possible service to victims and conduct the best quality investigations. For example, all secondary investigators posted to Borough CSU teams for longer than 6 months have to complete the Crime Academy CSU course, which was recently reviewed by the VCD. As a consequence there will be several updates to ensure that the course remains up to date and fit for purpose.

92. The VCD is very positive about the employment of Independent Domestic Violence Advisors (IDVA) to support victims of DV. There is a significant evidence base that supports the value of IDVAs in ensuring a more rounded service is provided to victims and ensures they have confidence to stay in the criminal justice process.

The VCD acknowledges the value of Specialist DV courts and Croydon’s Family Justice Centre. The MPS fully supports the Family Justice Centre concept and has worked with Croydon Local Authority and the wider partnership to support the Croydon model, which opened in December 2005.

The centre, which is supported by specialist support from a diverse range disciplines including social services (adults and children), Victim Support, Education Welfare, housing, legal (assistance in applying for non-molestation orders direct to the Specialist DV court), Independent DV Advisors etc - the key elements of a bespoke 'wrap around' service for victims under one roof.

A further FJC is being planned by Newham Borough although this project is still in its infancy.

Victim support and empowerment are essential if a DV victim is to break the continuum of violence and make informed decisions about her quality of life and that of her children and increase the number of perpetrators being held to account within the criminal justice system. That said the onus of prosecution should not be placed on the victim, which is the direct responsibility of the police and its criminal justice partners.

93. It is essential that the MPS continues to develop its joint partner working particularly in supporting the development of high quality MARACs across London. In tandem with this is the development of information sharing protocols at a local level so that borough officers are confident and professional in sharing information with our key agencies. Likewise the MPS key partners at a local level are confident that the information they share with police will be stored, managed and used lawfully.

94. The MPS recognises that many DV cases are seen within National Health Service (NHS) and in Havens before, if ever, they are reported to police. The VCD is developing a seminar geared towards London’s A&E and Haven staff to promote the work the MPS and their partners are committed too in tackling DV. It’s intended to give medical staff the confidence to recognise risk and sign post victims to specialist DV support services and/or police.

95. The MPS will continue to demonstrate its commitment as a listening and learning organisation. The foundations of the MPS’ work has been built on listening to victims, partners and our own staff. The MPS continues to learn from critical incident and DV homicide reviews, partner input, DV scrutiny boards and best practise identified at local & national level.

96. The MPS wishes to continue to ensure that its performance outcomes are achieved with integrity and achieve its top level priorities of supporting victims, keeping them and their children safe and hold perpetrators to account.

Violent Crime Directorate Resources

97. The VCD has a total of 127.6 staff, which is made up of funded and ‘agreed overhold’ staff. This resource includes all Police Officer ranks from Constable to Chief Superintendent and Police Staff Grades Band F to Band A.

98. Of these 127.6 staff 42 are female and the remainder are male. Further equalities data will be available in the coming weeks.

99. There are currently a total of 6 vacancies in police staff grades B, D and F.

Abbreviations

ACPO

Association of Chief Police Officers

APACS

Assessment of Police and Community Safety

BOCU

Borough Operational Command Unit

CDRP

Crime and Disorder Reduction Partnership

CJS

Criminal Justice System

CPS

Crown Prosecution Service

CRIS

Crime Reporting Information System

CSU

Community Safety Unit

DASHH (2008)

Domestic abuse, stalking, harassment and honour based violence

DC

Detective Constable

DCI

Detective Chief Inspector

DI

Detective Inspector

DV

Domestic Violence

DoI

Directorate of Information

EIA

Equality Impact Assessment

FM

Forced Marriage

FY

Financial Year

HBV

Honour Based Violence

HO

Home Office

IDAP

Independent Domestic Abuse Programme

IDVA

Independent Domestic Violence Advisor

IT

Information Technology

LAA

 Local Area Agreement

MARAC

Multi Agency Risk Assessment Conference

MPA

Metropolitan Police Authority

MPS

 Metropolitan Police Service

NGO

Non-Government Organisation

NHS

National Health Service

NIM

National Intelligence Model

OBTJ

Offences Brought To Justice

PCSO

Police Community Support Officer

PIB

Performance Information Bureau

RARA

Remove, Avoid, Reduce, Accept

SLA

Service Level Agreement

SMT

Senior Management Team

SOP

Standard Operating Procedure

SPI

Statutory Performance Indicator

TP

Territorial Policing

VCD

Violent Crime Directorate

C. Race and equality impact

1. The MPS is mindful of any adverse impact or disproportionality that may occur as a result of the delivery of its services. In the delivery of its services the MPS fully embraces the need to engage with and consult wisely with all communities and their informed representatives.

2. An equality impact assessment is incorporated into an informed risk assessment, identification and management of each policy and SOP. It is essential to recognise the impact of equality and diversity and ensure that such considerations are threaded into all that we do.

D. Financial implications

There are no additional financial implications in respect of this report

E. Legal Implications

There is no legal implication concerning the information recorded in this report.

F. Background papers

• Project Umbra Review report June 2007
• MPA EODB Umbra Report 16 November 2007
• Update on the MPS Violent Crime Strategy 4th October 2007
• Update on the work of MPS Violent Crime Directorate – MPA Diversity Board 30th October 2007

F. Contact details

Report author(s): Detective Superintendent Campbell, MPS

For more information contact:

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

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