Merton BOCU response to domestic and sexual violence

Report: 4
Date: 6 October 2009
By: Detective Inspector James Wingrave, MPS

A. Administrative details

Author: Detective Inspector James Wingrave, Public Protection Group (Community Safety Unit)

B. Overview of report

This report has been compiled at the request of the MPA Domestic and Sexual Violence Board to give information on how Merton BOCU works in partnership to tackle domestic and sexual violence. This includes how Merton BOCU strives to keep survivors safe, hold offenders to account and bring offenders to justice. This report also outlines how Merton BOCU seeks to increase reporting of domestic and sexual violence and works in partnership with organisations and communities to continuously improve the response to victims and survivors of domestic and sexual violence.

C. Specific requirements

C1 Data for both Domestic and Sexual Violence

1. Number of incidents flagged as Domestic Violence:

The number of incidents flagged as domestic violence for the reporting period is 2041.

Gender analysis of victims

Female 1436

Male: 588

Unknown: 17

Age analysis of victims

18 to 29 Years Old: 777

30 to 39 Years Old: 517

40 to 49 Years Old: 428

50 to 59 Years Old: 190

60 Years and Older: 112

Unknown: 17

The unknown figure of 17 represents a gap in the housing-keeping of data standards on the CRIS system and is being reviewed by the Community Safety Unit Detective Inspector.

Ethnicity analysis of victims

Asian: 136

Black: 201

Chinese: 26

Mixed: 29

White: 776

Not Stated/Unknown: 873

2. Number of crimes flagged separately as Domestic Violence:

The number of crimes flagged as domestic violence for the reporting period is 886.

Gender analysis of victims

Female: 698

Male: 172

Unknown: 16

Age analysis of victims

18 to 29 Years Old: 369

30 to 39 Years Old: 232

40 to 49 Years Old: 162

50 to 59 Years Old: 71

60 Years and Older: 36

Unknown: 16

The unknown figure of 16 represents a gap in the housing-keeping of data standards on the CRIS system and is being reviewed by the Community Safety Unit Detective Inspector as an area for improvement.

Ethnicity analysis of victims

Asian: 66

Black: 84

Chinese: 16

Mixed: 11

White: 368

Not Stated/Unknown: 341

3. Number of crimes flagged separately as Serious Sexual Offences:

The number of crimes flagged separately as serious sexual offences for the reporting period is 53.

Gender analysis of victims

Female: 48

Male: 5

Unknown: Nil

Age analysis of victims

18 to 29 Years Old: 25

30 to 39 Years Old: 16

40 to 49 Years Old: 8

50 to 59 Years Old: 3

60 Years and Older: 1

Unknown: Nil

4. Proportion of incidents of repeat domestic victimisation:

A search of local live CRIS data shows there were 101 victims who have been victims on three or more occasions.

• 1 victim has been a multiple repeat victim on 8 occasions
• 2 victims have been multiple repeat victims on 7 occasions
• 6 victims have been multiple repeat victims on 6 occasions
• 17 victims have been multiple repeat victims on 5 occasions
• 19 victims have been multiple repeat victims on 4 occasions
• 56 victims have been multiple repeat victims on 3 occasions

All victims identified as multiple repeat victims on 4 or more occasions have been referred to the IDVA for inclusion in MARAC. Merton is preparing for the first MARAC review by CAADA (Coordinated Action Against Domestic Abuse) on 27 October 2009.

A search of local live CRIS data also identified 53 multiple repeat perpetrators:

• 1 individual has been identified as a perpetrator 6 times
• 2 individuals have been as a perpetrator 5 times
• 7 individuals have been as a perpetrator 4 times
• 43 individuals have been as a perpetrator 3 times

The processes for dealing proactively with multiple repeat perpetrators are addressed on page seven of this report. The Borough has also identified the following demographics for those accused of domestic violence.

Gender analysis of perpetrators

Female: 19

Male: 155

Unknown: Nil

Age analysis of perpetrators

18 to 29 Years Old: 77

30 to 39 Years Old: 40

40 to 49 Years Old: 42

50 to 59 Years Old: 11

60 Years and Older: 4

Unknown: Nil

Ethnicity analysis of perpetrators

Asian: 22

Black: 44

Chinese: 6

Mixed: 11

White: 95

Not Stated/Unknown: 3

Merton’s approach to addressing the imbalance in the ethnicity of perpetrators compared with the ethnic diversity of the general population is dealt with on page twenty of this report.

5. Sanctioned detection rate Domestic Violence:

The sanctioned detection rate for domestic violence, i.e. those offences for which a perpetrator was charged or cautioned during the requested reporting period is 47% with the target being 44%.

6. Sanctioned detection rate Serious Sexual Offences:

The sanctioned detection rate for serious sexual offences [1], i.e. those offences for which a perpetrator was charged or cautioned during the requested reporting period is currently 14% with no specific target set by the MPS. The sanctioned detection rate for offences recorded specifically as rape for the year to June 2009 was 60% with the target being 35%.

7. Domestic Violence sanctioned detections which are cautions:

The percentage of domestic violence sanctioned detections that were dealt with by way of caution for the reporting period is 49%. All cautions for domestic violence are reviewed by an officer not less than the rank of Inspector and in most cases a Detective Inspector with experience of DV investigations. Very few perpetrators are cautioned on more than one occasion if there is a history of domestic violence offences. Cases that are being considered to be dealt with by way of caution focus firstly on whether that outcome would be in the interests of justice and the victim before proceeding further.

8. Serious Sexual Offences sanctioned detections which are cautions:

The percentage of serious sexual offences that were dealt with by way of caution for the reporting period is 13%.

C2 Local data for both Domestic and Sexual Violence

1. Number of serious sexual violence cases which are not-crimed or crime-related incidents:

49 offences were initially classified as rape of which sixteen have been confirmed as ‘no-crime’ and five are shown as crime related incidents. A TPHQ review in March 2009 scrutinised 11 reports that had been reclassified as no-crime; concluding that the Sapphire Team demonstrated a very high level of integrity in this area. The BOCU saw a 30% increase in rape allegations from 57 in 2007 to 74 in 2008 prompting the BOCU to create a Rape Crime Problem Profile and Analysis covering the period April 2008 to September 2008. The key findings established that there were no stranger rapes, 85% of victims knew the offender, 50% occurred in the victim’s home and 25% in the offender’s home. A third of offences were domestic related and a third of victims declined to assist further police investigation. A third of all suspects were under 20 year of age and 45% of victims were under 20 years of age.

This rise in reported offences could also be explained by:

1. Increased confidence in the response given by borough officers including raising awareness of support provided by the Havens.
2. The intrusive review of recording standards introduced in June 2008 that have impacted on increased reporting across London.
3. Closer links with the community have been established with School Liaison Officers deployed in each high school, complementing the Safer Neighbourhood Programme.

2. Number of cases of serious sexual violence which are referred to the Havens:

Staff from the Sapphire Unit have attended the Havens to gain familiarity with the available services that can be provided and enhance the number of referrals. All victims of rape are sign-posted to services provided by the Havens although there is no feedback on the outcome.

3. Number of domestic violence incidents also flagged as ‘honour-based’ violence and/or forced marriage:

The number of domestic violence incidents also flagged as ‘honour-based’ violence and/or forced marriage for the reporting period is 3.

Gender analysis of victims

Female: 2

Male: 1

Age analysis of victims

18 to 29 Years Old: 3

Ethnicity analysis of victims

Asian: 3

4. Number of domestic violence homicides over the last twelve months:

There has been one domestic homicide over the last twelve months committed in February 2009. The perpetrator currently awaits trial and whilst there had been one previously reported domestic incident in September 2008 further details are not included in this report in order to avoid subjudicy. A homicide review is being conducted into the police and partnership responses to the actions taken since September 2008. The outcome of the review and recommendations will be published following the outcome of the current prosecution.

C3 Policy Compliance and Quality Assurance

1. How does the BOCU use risk assessment and risk management tools to ensure survivors are made safer and that perpetrators are made accountable for their behaviour:

Emergency calls to police for Domestic Violence incidents are recorded on the Computer Aided Dispatch (CAD) system and coded as ‘Type 29 DV incidents’. Merton’s average conversion of CAD incidents to crime reports (CRIS) currently stands at 82.1% (MPS average being 80.5%). The BOCU response to these calls is overseen by front line supervisors and is scrutinised at the Daily Management Meeting.

The risk management process for domestic incidents is addressed in four key stages:

1. Staff are trained to undertake an immediate dynamic risk assessment at the first point of contact, usually the police staff communications operators who will assign the CAD incident with an appropriate response grade; ‘I’ immediate or ‘S’ soon.
2. On arrival a second formal risk assessment is made by the initial investigating officer with the completion of a book 124D. The initial risk assessment follows the SPECSS+ model and is assessed as being ‘standard’, ‘medium’ or ‘high’.
3. Once the level of risk has been assessed the initial investigating officer identifies and implements options to remove, avoid, reduce or accept the risk. These actions are recorded in the book 124D and the risk management plan recorded on the CRIS report. This is supervised either by the response team Sergeant or Inspector.
4. Once the book 124D and CRIS have been submitted all reports are reviewed by one of two Detective Sergeants on the Community Safety Unit (CSU). That officer reviews the risk assessment and intervention strategies and if the risk is perceived to by ‘medium’ or ‘high’ directs a dedicated CSU investigator to carry out a secondary risk assessment and further interventions to remove, avoid, reduce or accept the risk. The CSU Detective Inspector has overall responsibility for ensuring that these procedures are complied with.

To manage the highest risk victims of domestic violence a Multi Agency Risk Assessment Conference (MARAC) was implemented at Merton in June 2008. A MARAC is held every six weeks at Wimbledon Police Station. To date there have been a total of 67 referrals and as mentioned previously CADDA are reviewing the process on 27 October 2009.

Current membership of Merton’s MARAC includes representatives from:

1. Merton Police
2. Merton Housing Association
3. Merton Mental Health Team
4. Primary Care Trust
5. Education Authority
6. Safer Merton Crime and Disorder Reduction Partnership
7. Social Services – children, schools and families and the vulnerable adults unit
8. Victim Support Service

Invitations have been extended, but to date not accepted, to the local Women’s Aid and Women’s refuge. Work is also currently being undertaken with the Diversity Directorate to identify specialist support agencies to provide advice as required.

To monitor the referral process, a MARAC flag is applied to CRIS reports by CSU staff and the IDVA maintains a record of cases brought to MARAC. When tasked the Borough Intelligence Unit (BIU) produces details of multiple repeat victims. Additionally, when tasked, the BIU compiles a profile of the top 6 Domestic Violence suspects. The nominals are selected because of their perceived likelihood of further offending, their level of potential violence, or the heightened risk to the victim or others. This information is disseminated to staff on the Borough and is placed within the briefing structure.

Experience has shown that many of these nominals are involved in other criminal matters and this can be taken into account when considering the police response. Where it is deemed necessary a nominal will become part of a problem solving process where they will effectively become ‘owned’ by an individual CSU officer. This will include profiling and monitoring the perpetrator and undertaking proactive work, for example conducting checks on curfew or other bail conditions imposed by the police or court. Multiple repeat victims are reviewed in a similar process with those considered to be at highest risk referred to the IDVA. This enables an ongoing review of the partnership response and is focused on keeping the victim, and any children, safer.

Where offenders are not present at the scene or not available to be arrested the BOCU utilises ‘Operation Swift’  [2] This ensures early positive action focusing on the safety of the victim and any children. Additionally, the Borough Task Force support the CSU by conducting arrest enquiries on regular mini ‘Operation Athena’ days.

Serious sexual assaults, predominately rapes, are investigated by the Borough Sapphire Team or other CID and CSU staff in relevant DV cases. Performance, in terms of sanctioned detections, has over the past two years been of concern and resulted in several inspections by both TPHQ and Merton BOCU. A 56-point improvement plan was agreed in January 2009 and to date 75% of these improvements has been successfully integrated into daily business. This includes enhanced leadership, additional training and earlier engagement with the Crown Prosecution Service. Additional and more experienced staff, resources and restructuring have been made and performance is now improving from the 4.3% sanctioned detection rate achieved in August 2008 to 45.5% in August 2009. This plan is owned by the dedicated Detective Inspector post with responsibility for the Sapphire Team. Previously this post also line managed the Community Safety Unit. However, in August 2008 an additional post was created enabling responsibility for a dedicated Detective Inspector on each unit allowing for enhanced focus and leadership.

A risk assessment and risk management plan is documented on all rape CRIS reports. Compliance is monitored at mandatory review periods conducted by the Detective Sergeant and Detective Inspector at 10 hours and 7 days respectively. The Detective Chief Inspector conducts reviews after 28 days and this is dip sampled by the Operations Superintendent. The Borough Commander conducts his own dip sampling of 10% of all rape crime reports prior to reports being closed formally. All reports of domestic violence are reviewed by the CSU Detective Sergeants and investigators are given clear strategy plans for the conduct of the criminal investigation and welfare of the victim. All reports of serious assaults, threats to kill and suspected honour based violence are subject to the same review process as those conducted for serious sexual offences.

The London Probation Service operates an Integrated Domestic Abuse Programme (IDAP) that can form part of sentencing at court. Convicted offenders are subject to monitoring for up to eighteen months as a condition of release. Behaviour that breaches the order e.g. re-offending can result in them being brought back before the court. Merton BOCU supports this programme and the local information exchange protocol was ratified on 22 April 2009.

2. What processes are in place to support officers and ensure that they are effectively implementing Standard Operating Procedures, especially in cases where several procedures may be relevant to a particular case:

Merton borough has formed a Public Protection Group (PPG) led by the Detective Chief Inspector. This comprises the CSU, Sapphire Team, Public Protection Desk (PPD) and Jigsaw Unit. From 21 September 2009 the CSU and PPD will fall under the management of one Detective Inspector. This amalgamation means that victims and perpetrators will be managed more effectively, increasing victim safety and bringing those accountable to justice wherever and whenever possible. For domestic violence incidents where children are part of the relationship, whether present or not, a Primary Assessment Checklist (PAC) is created on the Merlin database system. The BOCU PPD review and prioritise cases notifying other statutory partners such as Social Services, Child Protection Team, Education Services or Primary Care Trust when a child comes to notice in circumstances that give cause for concern [3].

Where several operating procedures apply to an individual case the Detective Inspector at the originating unit retains initial responsibility for the case. Liaison then takes place at Detective Inspector level to agree primacy or to adopt a joint investigation. Where agreement cannot be reached the matter is referred to senior managers. Where Domestic Violence is identified within another crime investigation, a DV flag is applied to the CRIS report regardless of who is leading the investigation. All SOPs are designed to be victim focused and complement each other. In such cases a CSU investigator will also support the enquiry.

3. Completion of Form 124D and integration with IT systems:

During 2008 Merton BOCU took part in the consultation process with the Department of Information (DoI) that helped to design and set up a system within the CRIS system to enable monitoring and supervision of the form 124D. We recognised that if any remedial action is required it is best to instigate this at the time, or as soon as possible, after completion. All our procedures are designed with this in mind and it has become embedded within the culture of staff across the BOCU. Currently 95% of DV investigations show completion of the book 124D. To increase compliance to the desired 100% the Administrative Support Officer in the CSU conducts a compliance check once a month for review by the CSU Detective Inspector. This process compares the level of compliance indicated on CRIS against actual supervision of the Book 124Ds. Transgressions are dealt with directly by the CSU Detective Inspector through the Response Team Inspectors.

It is MPS policy that officers will record the fact that they have completed the 124D on the CRIS along with any Merlin reference and CRIMINT reference numbers. This process then has two further levels of supervision, the immediate line supervisor followed by the Community Safety Unit supervisors. The CSU Detective Sergeants review six DV reports each week highlighting best practice and non-compliance at the Daily Management Meetings twice a week. Feedback to response teams and the CSU is provided through the Superintendent (Operations) and the CSU Detective Inspector. Staff and supervisors are also able to search across multiple databases using the Integrated Information Platform (IIP). IIP allows access to CRIS, MERLIN, CRIMINT and Custody databases enabling officers to conduct searches across the MPS using just one search process.

Front line supervisors and investigators have received bespoke training delivered by the CSU Detective Inspector and Detective Sergeants and are instructed, where possible, to attend every domestic violence incident where a substantive crime has been alleged and / or committed. A supervisor’s proforma has also been designed that must be entered onto every domestic CRIS report. Compliance with this proforma ensures that a satisfactory level of initial investigation has been achieved within two hours of the initial investigation. This clearly demonstrates the commitment of the BOCU to attain a high standard of investigation for all domestic incidents and secure the safety of victims and their children. A second round of training, supported by TPHQ, is now being delivered by the CSU Detective Sergeants commencing 18 August 2009 reinforcing the importance of conducting an effective initial investigation. The enhanced DASH risk management model is available to all staff via the intranet and has been circulated to staff on the CSU and Sapphire Units. TPHQ is coordinating MPS wide training and a revised version of the book 124D with implementation anticipated to be completed by the end of 2009.

4. Support for staff experiencing domestic and violence and ensuring staff who are perpetrators of domestic and sexual violence are held accountable for their behaviour:

Merton BOCU applies the corporate policy contained within Police Notices regarding domestic violence and serious sexual offences, for all employees of the MPS who are suspects. The CSU Detective Inspector ensures that the principle of intervention through positive action is maintained. The Police Code of Conduct expressly identifies the need for officers to act in a professional manner in discharging their official duties so that the public can have faith in the integrity and honesty of the MPS. MPS staff who are suspects are therefore treated and held accountable for their actions as would any other citizen. These instructions are available to all MPS employees through the MPS Intranet.

Five allegations concerning MPS staff have been investigated over the period 31/05/2008 and 01/06/2009. Investigations are conducted by the relevant CSU or Sapphire Team under the supervision of the Crime Manager. In exceptional circumstances cases will be investigated elsewhere. Merton has reciprocal arrangements with Sutton Borough to provide independent investigators where the victim and/or offender live and work on the Borough to ensure impartiality and independence. Line Managers are informed to make sure staff who are victims or suspects have access to support programmes through Occupational Health. When a member of MPS staff is identified as a suspect for domestic violence the CRIS report is restricted and flagged ‘PE’. The Directorate of Professional Standards and TP Violent Crime Directorate Service Delivery Team are informed of all such cases and they ensure the internal processes for recording and monitoring the investigation are completed. The Senior Management Team responsible for staff at the relevant BOCU is notified to ensure that welfare officers are nominated and the enquiries are expedited. Information about the investigative processes and support services are available to all staff via the Intranet.

C4. Resources and Training

1. Number of posts within the Community Safety Unit and Sapphire Unit, including administrative posts and vacancies:

The CSU is currently staffed with one Detective Inspector, two Detective Sergeants, five Detective Constables, five Trainee Detective Constables, three Police Constables and one member of administrative staff. There is currently one vacancy on the CSU and two posts where officers are abstracted on maternity leave. It is anticipated that from 23 September 2009 there will be one vacancy, for a minimum of six months, with staff being seconded to the central rape and serious sexual violence investigation command (SCD2). Merton also has a Police Constable who is the LGBT liaison officer for the BOCU. He is not directly aligned to the CSU; however, he reviews all cases flagged as HO and sits on the LGBT forum, the BOCU Diversity Forum and Safer Merton Partnership Hate Crime Project Management Board. The CSU currently has four members of staff following flexible working patterns ranging from twenty to thirty-nine hours per week.

The Sapphire Team was restructured in August 2008 and there is now a dedicated Detective Inspector. There is one Detective Sergeant, two police constables and six Detective Constables; two of whom are part time, working twenty and sixteen hours per week respectively. There are two dedicated SOIT officers, comprising of one male and one female officer. These two officers are posted to the Sapphire Team for twelve months at a time and are then rotated with other qualified staff. They are brigaded with Kingston and Richmond BOCU’s, who also have two SOIT officers each, so that a 24/7 call out service can be provided. This ensures that victims are met within one hour of the incident being reported to police. There are no current vacant posts and officers will be redeployed on 23 September 2009 to SCD2.

2. Demographic Profile of staff:

CSU: one male Detective Inspector, two male Detective Sergeants, six male investigators and six female investigators. The administrative assistant is also female. Currently no staff openly present as LGBT and there are three BME staff members.

Sapphire Team: one male Detective Inspector, one male Detective Sergeant, four male investigators and four female investigators. One member of staff is LGBT and there are no BME staff members.

3. Successes and areas for improvement of Public Protection Desks:

The Public Protection Desk (PPD) at Merton was established in August 2008. Staff employed on this desk received BOCU-wide training in 2008 on domestic and honour based violence. They have received a one day seminar/training arranged by TPHQ and local on-the-job training delivered by the Desk’s Detective Sergeant who has himself attended a one-week specialist course. Merton’s PPD was one of the first to receive full accreditation by TPHQ and is now fully operational. Situated within the unit is a representative of Merton Social Care who works with them one day per week to review and streamline information sharing and ensure effective multi-agency working. The Detective Sergeant in charge of the unit is responsible for quality assurance with overall responsibility for compliance held by the Detective Inspector.

Although the PPD is a relatively small unit, it performs consistently to a high standard with 2063 PACs having been created during the reporting period. The Detective Inspector with line management responsibility for this desk is also a member of a working review panel into child death matters. The Borough Commander has regular meetings with the Director for Children Services and the Superintendent Operations has held several bespoke meetings with senior social care services managers.

The CSU Detective Inspector routinely scrutinises domestic violence and Hate Crime CRIS reports. Having done so written reports highlighting both good practice and learning opportunities are submitted to the Operations Superintendent on Tuesdays and Thursdays in advance of the Daily Management Meeting. As a result of this increased scrutiny additional training and gaps in service and resource provisions have been identified that otherwise may not have been the case previously. An example of this is where Station PCSOs have been given further training in the completion of Form 124Ds and the use of digital cameras.

Merton BOCU’s instructions direct officers to consider photographs at every domestic violence incident where a substantive crime is alleged to have occurred. The use of photographic evidence, or at least consideration of such use, must be recorded onto the DETS page of the CRIS report. This must be endorsed and reviewed by the supervising officer using the supervisor’s template discussed on page nine.

4. Interchangeable and transferable training for Domestic Violence and Sapphire Team officers:

All officers who are currently working within the Sapphire Team have previously worked on a CSU therefore, have all received the enhanced mandatory training. Three staff in the CSU have previously worked within the Sapphire Team thus sharing knowledge and experience between the two units. Officers on the CSU attend a 5-day course which includes understanding of research and analysis regarding the profile of domestic violence, sexual offences and offenders. Merton aims for a balance between maintaining stability with the Detective Inspector, Detective Sergeants and Detective Constables remaining in post for at least twelve months. Trainee Detective Constables and Police Constables attached to the CID can expect to be rotated between CID departments. A staggered rotation system ensures the balance between providing development opportunities whilst maintaining experience and stability within the unit.

5. Training on child protection, honour based violence, forced marriages, stalking and harassment and victim care:

The CSU 5 day course syllabus relating to Domestic Violence highlights that officers must be able to:

1. Professionally investigate allegations of domestic violence when children form part of the domestic environment.
2. Recognise and understand the impact of cross-cultural communication on police community interactions
3. Identify the ingredients of civil legislation and family law that has an impact on work within a CSU
4. Recognise and deal effectively with Honour Based Violence cases

The Borough secured extra funding to deliver Multi-agency ‘Honour Based Violence’ training. In May 2008 training days were set up at the Wimbledon Guild Hall and were supported by TPHQ. This was a multi-agency training event over two days with approximately 80 attendees at each event. There has also been additional training specifically for Inspectors on sexual offences and all front line officers have had local training by staff from the Sapphire Team as well as from officers from SCD4 dealing with crime scene forensics and the role of Crime Scene Examiners. Merton has two Scene Examiners specifically trained in sexual offences forensic corroboration. It is also embedded practice for the forensic staff to be involved in the forensic strategy of an investigation at the earliest opportunity.

6. Percentage of staff trained

94% of staff received domestic violence training during the 2007/2008 training cycle. This included testing officers via a training quiz so that a base line of knowledge across all BOCU teams and departments could be established. 7% of BOCU staff are SOIT trained. SCD5 (Child Abuse Investigation Team) have also given a training input to 72% of our staff. From 18 August 2009 mandatory training on domestic and honour based violence is being delivered across the BOCU.

Within the CSU three officers await their one-day course and one officer awaits their five-day course. The next round of staff moves, anticipated in April 2010, will take into account the developmental needs of staff whilst ensuring retention of experience and investigative resilience.

All officers across the BOCU are required to complete mandatory Respect for Equality and Diversity training by April 2010.

7. Equipment and training available to support officers to collect best evidence at the scene at the time of response:

Frontline officers attending scenes have the ability to capture visual evidence with the use of digital cameras. These have been issued to every response team Inspector and are consequently are available to all staff on a 24/7 basis.

There is always a Crime Scene Examiner available, whether this is a local member of staff or via a reciprocal call out procedure amongst neighbouring BOCUs. Early Evidence Kits (EEKs) are carried in all police vehicles. These kits allow the officer to obtain evidential swabs and samples when necessary. All police vehicles also carry car seat covers to prevent cross-contamination of forensic evidence.

In February 2009, as a direct result from feedback from victims of serious sexual assaults and staff attending seminars on the victim’s perspective of serious sexual assaults, Merton furbished a room within Wimbledon Police Station to act as a victim comfort suite. This ensures the comfort of a victim whilst conducting the initial investigation. It is hoped that improving the victim’s experience of the police service will make them feel safer and more comfortable.

Whilst a separate comfort suite is not available for victims of domestic violence staff from the CSU are sensitive to the need to conduct enquiries in a safe and welcoming environment. There are private interview rooms at Mitcham, Morden and Wimbledon Police Stations and The One Stop Plus offers an alternative venue at which victims can be supported. The IDVA working from the CSU at Wimbledon Police Station has been tasked with identifying suitable premises away from police buildings where victims can be supported safely and in private.

8. What training is delivered in partnership with the community:

In March 2009 training was delivered to representatives from SCD5, Merton Local Safeguarding Children Board (MLSCB), the borough’s Diversion Inspector, Smart Centre, and the head teacher from one of the borough’s comprehensive schools – St Mark’s Academy. The agenda for this meeting was to tackle pupil-on-pupil sexualised behaviour. One key outcome is work on a joint strategy with the CAIT team, Local Safeguarding Children's Board and the Local Education Authority to develop a program to educate and inform children and young adults on what is appropriate sexual behaviour under the Sexual Offences Act 2003.

There have been two presentations in the past twelve months between representatives from Merton and Sutton Mediation and MASCOT Community Alarms and CSU staff. This has reinforced the exchange of information and understanding of working practices between the three agencies to ensure appropriate referrals to keep victims safer.

A domestic violence training day took place on 20 November 2008 with partners from across Safer Merton dealing with honour based violence, forced marriage and female genital mutilation. Staff from the CSU and Violent Crime Directorate have made two presentations to partners agencies on domestic violence, forced marriages and honour based violence. Staff from the CSU make regular presentations to the Domestic Violence and LGBT forums to encourage information sharing and to instil confidence in vulnerable communities to report offences. Staff from the CSU and PPD are also attending, for the second year running, the local Safeguarding Children’s Conference on 9 October 2009.

All partners involved in MARAC received bespoke training from CAADA on 8 April 2009.

A bespoke training day took place in November 2008 for all staff within the CID with specific training around rape investigations delivered by the MPS forensic lead on sexual offences. A further training day for the CID has been arranged for 15 October 2009 including a presentation by the dedicated CPS Community Prosecutor. This presentation will be focusing on best practice for case building for domestic and sexual violence investigations including the introduction of bad character evidence, historical allegations and providing special measures at court. Further contact has been made with the MPS Diversity Directorate to identify specialist speakers from the Independent Advisory Groups to make presentations on improving services to BME, LGBT and disabled crime victims.

C5. Partnership working and Crime & Disorder Reduction Partnerships (CDRP)

1. CDRP budget and dedicated funding for domestic and sexual violence:

The total CDRP 2008/2009 budget for Merton is £4.8 million including funding from the National Treatment Agency and Primary Care Trust for drugs services and staffing from other agencies. From this community safety funding is comprised of £137,150 from the Borough Command Unit, £40,000 from the MPA and £1.1 million from the London Borough of Merton. There are also limited funds available for commissioning services for Victim Support (£71,977) and Merton & Sutton Mediation Services (£15,375).

The funds allocated specifically to domestic violence are in the form of the employment and support of three domestic independent violence advocates (IDVA). However the funding comes from a variety of partners and the contributions are:

1. First IDVA: £13,000 from the Police match-funded by another £13,100 from the London Borough of Merton.
2. Second IDVA: £25,877 from the MPA fund committed for two years.
3. Third IDVA: £20,000 Home Office grant for ‘Private Space Violence’.
4. There was an additional £7,500 Home Office grant for training purposes for the IDVAs and the MARAC
5. Additional funding support for domestic violence of £11,000 although an application submitted to the Home Office for an independent sexual violence advocate was not approved

2. Domestic and sexual violence priority and action within the Crime and Disorder Strategy:

Domestic Violence is a strategic priority for this year, 2008-2009. It has just been agreed, following a lengthy community consultation process, that it will remain a strategic priority again for 2009-2010. The Sapphire Unit and CSU Detective Inspectors have both submitted actions plans that are retained on BOCU to ensure there is effective succession planning for the future.

3. CDRP domestic and/or sexual violence projects in progress:

CDRP and partnership agencies actively support a Domestic Violence Project Management Board (DVPMB) with performance reported through the Safer and Stronger Executive Board and Safer and Stronger Strategy Group. The CDRP also supports the running of a Domestic Violence Forum. There is no specific funding for sexual offences per se but the Safer Merton Partnership has been allocated a project fund of £4000 through the DVPMB for work to be delivered within the financial year. The CDRP also coordinates the local Sexual Violence Forum that meets quarterly and manages the Sexual Violence Action Plan. This is supported by attendance from partnership agencies including, but not exclusively, the police, Primary Care Trust, Safer Merton and Victim Support. The DV and Hate Crime Project Management Boards also ensure partners across the BOCU support local and national events; for example Peace Week, Black History Month, IDAHO Day and Drug Action Week. Merton also operates a Joint Tasking Fund from which partners can submit a business case to bid for small amounts of immediate funding to deliver support to vulnerable victims.

The BOCU has also worked closely with the local Borough Criminal Justice Group with the implementation of Mainstreaming Domestic Violence and the Criminal Justice System. From the police perspective Merton is fully compliant with the requirements of the mainstreaming process. Case files are marked clearly as referring to domestic violence and perpetrators are dealt with, where possible, on a Tuesday at Wimbledon Magistrates Court to coincide with the Witness Service being available to support victims and survivors with applications for non-molestation and occupation orders. This is still a work in progress with the next meeting scheduled for 29 September 2009.

4. Partnerships with the voluntary and statutory sector agencies:

The DVPMB has gone from strength to strength over the past two years; all statutory CDRP partners are represented and there is voluntary sector representation from Victim Support. The three IDVAs are line managed by the Victim Support Service and are funded with partnership money until April 2010. One of the IDVAs works at Wimbledon police station identifying and taking direct referrals of the higher risk cases.

Whilst Merton is a relatively small Borough in terms of resources there is no complacency with establishing effective working partnerships with non-governmental agencies to support domestic and sexual violence victims. Referrals are made to local, neighbouring or national organisations either directly from staff working within the PPG and Sapphire Units or via Victim Support and the IDVAs. Staff and partners are reminded on a regular basis that referrals can be made to organisations such as:

Eaves Housing, (the Amina Scheme and Resettlement Service), Foreign & Commonwealth Office, National Domestic Violence Help Line, Karma Nirvana, Iranian & Kurdish Women’s Rights Organisation, Southall Black Sisters, Broken Rainbow, Housing Services, Drug & Alcohol Support teams, the Tamil Information Centre and Victim Support.

Whilst there is no database maintained of referrals staff, partners or the IDVA have made referrals, or engaged, with:

Merton Against Trafficking, The Poppy Project, The Vine Project, Women’s Refuges, the Croydon Family Court, South London African Women's Organisation, Forced Marriage Unit, Karma Nirvana, Rights of Women, Mental Health Advocacy Service, Citizens Advice Bureau, Sanctuary Scheme, MASCOT Community Alarms, and the MARACs at Sutton and Croydon.

The IDVA also actively supports the local Community Group program for children and young people exposed to domestic abuse.

The internal reviews into the ‘honour based’ murder of the late Ms Banaz Mahmod has substantially raised awareness and highlighted the availability of specialist support groups across London, e.g.: the Southall Black Sisters. However, we have identified that there are a number of other community groups within Merton that do not have sufficient representation or support networks. To fill this gap in services in August 2009 Statutory and NGO partners established the ‘One Stop Plus’; a fortnightly drop-in-service to provide holistic and practical support to survivors of domestic abuse. Based on the Kingston One Stop Shop Model this initiative is supported by The Benefits Agency, Children's’ Social Care, Family legal Services, Housing (including access to Refuges), London Borough of Merton Family Support, MASCOT Community Alarms, Police, the South London African Women's’ Organisation and Victim Support. Extensive consultation with the MPS Diversity Directorate assisted to locate the One Stop Plus at the New Horizon Community Centre that provides flexible access for all service users including those with hearing or visual impairments and the physically disabled.

Staff from the BOCU have also taken on partnership working with Merton Against Trafficking (MAT) with the support of the Eaves Housing Poppy Project. One of the purposes of MAT is to support vulnerable victims working as prostitutes on the borough by providing practical support to find housing and employment. Led by the Safer Neighbourhood Teams the BOCU response includes the removal of classified advertisements in newsagents offering ‘personal services’ and establishing access to support networks in anticipation of activity aimed at disrupting brothels. The next meeting to discuss the progress of MAT is due in October 2009.

C6. Work with victims and communities

1. Monitoring and integration of service user satisfaction and feedback:

The current procedure concerning quality call-backs stipulates that call-backs will not be made to victims of domestic violence or serious sexual assaults. It also states that these cases will not be handled by the victim focus desk.

The Victim Support Service carried out 50 telephone surveys with individuals who had been victims of domestic violence. These surveys were conducted between September 2007 and March 2008. Telephone surveys were the chosen method of research employed at that time. To ensure the safety of the victim their anonymity and confidentiality was assured and maintained. The satisfaction rate increased with each round of surveys, and the cumulative percentage of all respondents stating they were satisfied or very satisfied with the service provided by the Police has increased.

TP Project Sapphire utilise a ‘User Satisfaction Questionnaire’, this was designed following a rape review conducted in 2005. One of the recommendations was that performance measurements were instigated with a view to gauging the level of victim satisfaction following interaction with Police, Havens and the Courts. As a direct result of feedback the Sapphire Team designed and secured a ‘Victim Comfort’ room at Wimbledon police station.

2. In what proportion of cases are victim impact statements taken:

The CSU routinely takes Victim Personal Statements from victims of serious assault, particularly those involving life changing injuries, for example GBH. Such statements are also taken from adults at risk; however, it is also common practice to include an impact statement within the body of an ABE (Achieving Best Evidence) interview.

The Sapphire Team’s protocol is to take an early statement from victims by a specially trained SOIT officer. This does include the impact the sexual assault has had on the victim. If the case is one where the Crown Prosecution Service has authorised a prosecution and an offender is charged, a full and more detailed impact statement is taken. Additionally, it is our practice to take impact statements from friends and family members of the victim. This serves to highlight how the victim has been affected since the incident.

When a Victim Impact Statement is taken the investigating officer is required to make an entry on the Victim’s Code of Practice (VCOP) screen on CRIS. The flag’s MV, MW or MY are shown to denote at what stage of an investigation or prosecution the statements are taken.

3. Regular updates for victims on cases and any changes or decisions, particularly those that may impact on their safety:

SOIT officers are all full-time staff dedicated to this specific role and are not distracted with other duties. They are therefore able to concentrate on providing victim care, access to support services and act as a point of contact between investigators and the victim. As a matter of course they ensure victims are updated on a regular basis; this would include any updates regarding bail. The Detective Sergeant monitors compliance carrying out weekly reviews on all current investigations.

Domestic Violence victims are regularly updated by the investigators themselves with an entry made on the CRIS report utilising the VCOP page. However it was identified that many officers were in regular contact with victims but often did not update the VCOP sections of the CRIS system. This was clearly an administrative issue but it should also be noted that even if victims were properly update for each and every contact, the VCOP headings are very broad e.g. a heading of ‘regular update’ can be selected on the VCOP screen without the officer being able to specify the nature or method of contact. This does not ask for any further clarification or details as to what the update contained. A free text entry can be made within the DETS page, but this is not searchable to monitor compliance or review quality control.

A policy has been instigated across the BOCU where staff request victim’s email addresses as a method of contact. Approximately 30% of victims are providing this information allowing regular and routine updates regardless of the different shift officers are working. This provides an additional means of communication that is generating positive feedback from victims.

4. Ensuring compliance with the victim’s codes of practice:

Compliance on VCOP is measured by the Victim Focus Desk and the compliance rate for January 2009 stood at 66%. However, it was clear that in many cases regular updates had been provided and that some officers have omitted to complete the VCOP page on the CRIS report. This was identified as a performance issue with all staff in the CSU; robust and intrusive supervision by the Detective Sergeants has seen the compliance rate for July 2009 increased to 85%.

5. Building trust and confidence with hard-to-reach communities, particularly around sensitive cultural issues such as forced marriages and honour based violence:

In March 2008 religious leaders from across the borough were invited to attend a meeting coordinated by the Merton Racial Equalities Partnership (MREP). MREP provided a vital link to the community and monitored all racist and religiously aggravated or motivated crime committed on the BOCU. However funding constraints have unfortunately meant that this partnership is unable to continue. The local authority and the Safer Merton Crime and Disorder Partnership are undertaking a review to identify the gaps in service and are planning to create a Hate Crime Forum under the direction of the Hate Crime Project Management Board. Victim Support continues to receive details of all individuals who have been victims of hate crime, domestic and sexual violence.

Some statutory and NGO Partners on the BOCU have worked together to implement and market the One Stop Plus. Agencies across the BOCU have welcomed this initiative that has been advertised in the local Guardian newspaper and supported by publication in news letters with the Primary Care Trust, Housing Departments and on the Merton Police website. The Primary Care Trust has also agreed that leaflets can be provided in all their doctors’ surgeries. The development of the One Stop Plus will be monitored and reviewed through the Domestic Violence Forum and Project Management Board with future marketing strategies including advertising on local radio and the inclusion of fax, email and mobile phone details to broaden the range of opportunities for contact with hard to reach communities. The review process will be discussed at the next forum meeting on 18 September 2009.

The Borough has sought advice from specialists, including from within the MPS Diversity Directorate, on the most appropriate way to make services more accessible. This is reflected in the accessibility of Morden, Mitcham and Wimbledon Police Stations that includes provision for assistance dogs, wheel-chair access, facilities for people with mobility impairment, automatic doors, induction loops, assistance for the visually impaired and a sign language service. The Merton Police website also contains links to alter the font size and contrast of text and details access information for Text Phone Users. Marketing for the One Stop Plus has been revised to include email, fax and mobile phone contact details. Standard letters have also been translated and made available in nine languages including Polish, Urdu and Tamil and can be sent, where appropriate, with increased font sizes as required. This forms part of an established action plan to review and implement improved access to services. This also includes contacting local organisations such as the Tamil Information Centre, Age Concern, Merton Sickle Cell & Thalassaemia Group, Merton Vision, Asian People’s Disability Alliance and Carer’s Support Merton to establish partnerships, encourage reporting and support vulnerable victims. Meetings have been arranged with some agencies, for example Age Concern on 29 September 2009, with other responses anticipated.

Two of our local high schools have introduced a confidential system for the anonymous reporting of crime, harassment, bullying and hate crime including domestic and sexual violence. Reports can be made directly or on behalf of third parties.

C7. Organisational Improvement

1. Implementation of recommendations from homicide reviews of serious case reviews:

As outlined above there has been one domestic homicide during the reporting period that is still subject to ongoing legal proceedings. Merton follows established processes for implementing recommendations from homicide reviews including clear terms of reference and guidance supported by the Critical Incident Advisory Team at the Violent Crime Directorate and the Safer Merton Partnership.

2. HBV Action Plan implementation:

Following the ‘honour-based’ murder of the late Ms Banaz Mahmod in January 2006 The Safer Merton Partnership has written HBV into the DVPMB action plan and ensured greater awareness of HBV through training. We have a BOCU protocol representing good practice with contact details of approved support agencies. On 18 August 2009 staff from the CSU began delivery of a bespoke training program to support response team officers dealing with initial investigations of domestic and honour based violence. The provisions of the Forced Marriage Act (Civic Protection Act 2007) have been publicised widely as has the support from agencies available through the Foreign and Commonwealth Office website.

3. Single improvement for local response for Domestic Violence:

Consideration should be given to using targets other than sanctioned detections to reflect victim-focused outcomes, e.g. referral to support or welfare groups. In cases of serious abuse or assault the concept of public interest has to be considered but the majority of victims consider the criminal justice system to be inadequate at providing effective long-term solutions to prevent offending and re-offending.

4. Single improvement for local response for Sexual Violence:

There are currently three dedicated Haven sites located at Whitechapel, Paddington and Camberwell respectively, which offer 24 hour assistance to the victims of rape or sexual assault. Set up in 2000 the experienced staff within these centres offer counselling, psychological therapy, and emotional support to both police referred and self referred victims of sexual abuse. They are an excellent support service that also adds significant value to the police investigation. The Havens at Whitechapel, Paddington and Camberwell are not easily accessible to victims from Merton in terms of distance and time to travel and access via public transport. It has been noticed that some victims, whilst initially supportive of visiting a Haven, become reluctant to access the services for these reasons. We consider that better access to such facilities would have a positive effect on more victims who in turn are more likely to support police with an investigation.

5. Suggestions for support from MPA and members for dealing with Domestic and Sexual violence:

It is clear that MPA Members who sit on the Domestic and Sexual Violence Board have a wealth of collective experience and knowledge on improving services to victims and survivors. The provision of an updated copy of contact details would enable BOCUs to draw on the experience of individuals and agencies in their particular areas of expertise.

D. Equality and diversity

Merton Borough recognises that domestic abuse is widespread throughout every socio-economic group and across all sections of society irrespective of race, culture, nationality, religion, sexuality, disability, age, class or education. Whilst our services are open to all, each incident has a set of unique circumstances which can affect how victims and survivors respond to the support that is available. Our staff are aware of these issues and have received training in order to be sufficiently flexible to take account of the individual issues whilst ensuring processes are sufficiently standardised to provide a consistent response.

The Borough strives to make services available to all victims of domestic and sexual violence, particularly those who are hardest to reach and most vulnerable. Particular emphasis has been placed on marketing accessibility of services for disabled victims of domestic and sexual violence and those from minority communities. The BOCU is a strong advocate of the principle that the attitude of the MPS and employees must not be a barrier to reporting offences and providing an effective level of support whenever possible.

It is a well established fact that the unacceptable exertion of power and control by men over women results in a disproportionately high number of female victims. The increased emphasis on equality and diversity at Merton is driven by the realisation that ethnic minority groups are disproportionately represented as victims of domestic abuse. For example the ethnic diversity of the population in Merton is shown to be 73.4% white, 7.5% African Caribbean or Black African and 3.6% Asian. By comparison victims of domestic violence are 31% white, 9% Black or African Caribbean and 6% Asian with perpetrators shown as being 55% white, 24% Black or African Caribbean and 12% Asian. There is clearly a disparity between the level of reporting and the demographics of the Asian and African-Caribbean communities in Merton. With this in mind efforts have been made to establishing professional relationships with vulnerable and hard to reach communities, raising awareness about domestic and sexual violence. There are also currently community engagement programs at the Baitul-Futuh Mosque offering female safety training and informal drop in centres run by Safer Neighbourhood Teams. In addition all staff on the BOCU are scheduled to complete a mandatory computer based distance learning package on respecting diversity and equality before April 2010.

Contact details

Report author(s): Gerry Campbell, Detective Chief inspector, MPS

For more information contact:

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

Appendix 1

Overview and demographic profile of Merton Borough

Comprising approximately 14.5 square miles in the South West of London, the London Borough of Merton sits just south of the River Thames. Merton has the London boroughs of Croydon, Kingston, Lambeth, Sutton and Wandsworth as its neighbours.

The three main commercial sectors in Merton are Mitcham, Morden and Wimbledon, with Wimbledon being the largest. Merton is described as an inner London borough, however, is more similar to outer London boroughs in terms of population density.

The Borough contains 43 primary schools with a nursery attached, 8 secondary schools, including 2 academies and 3 special schools. Although Merton is one of the smaller London boroughs with a population of approximately 199,300, it has a surprisingly diverse community and has one of the fastest growing Black and Minority Ethnic Communities in London.

In 2001, the census recorded that 25% of the population of the borough was from an ethnic minority. The highest ethnic populations were recorded in wards in the east of the borough (Mitcham, Eastfields and Pollards Hill). The percentage of population from ethnic minorities is predicted to rise across the borough within the next decade. According to the council's comparative assessment of wards made in 2004, the most deprived wards within the borough were in the south and east where unemployment rates, educational attainment and the quality of health were worst. The most affluent wards were in the north and west of the borough [4].

Comparative crime rates appear to be unrelated to the deprivation ranking of wards. The wards containing Mitcham town centre and the St Helier Estate are ranked highest for crime within Merton with the wards containing the smaller commercial centres of Colliers Wood and South Wimbledon also featuring high in the ranking. In the English Indices of Deprivation 2007, Merton was ranked 220 out of 354 local authorities in England.

Diversity – Minority Ethnic Groups in Merton

Merton has a young and increasingly diverse population within the UK. Those who describe themselves as White represent 73.5%, whilst the largest non-white community are Indian 4.6%, followed by black African 3.9%, black Caribbean 3.6% and ‘other Asian’ 3.3%.

The ethnic composition of the borough is very similar to that for outer London boroughs as a whole. About half of the minority ethnic population lives in the east of the borough, bordering Lambeth and Croydon. Black and Minority Ethnic people in Merton have a much greater number of under 18’s in their population and a lower proportion of over 65’s. Variation also occurs within the white ethnic group, with white Irish (2.5%) residents having a much older population than other white groups.

The proportion of the BME population is expected to significantly increase by 2011. The Asian population will show the greatest increase, rising to 17% of Merton’s population, whilst the black population will also show moderate growth with black residents comprising 11% of the population [5].

Merton has a relatively diverse religious population including Christian 63.3%, Muslim 5.8% (compared to a National average of just 3%), Hindu 4.7&, Buddhist 0.8% and Sikh 0.3%.2

Merton borough is home to Baitful Futuh Mosque. Built in 2003, it can accommodate 10,000 worshipers of the Ahmadiyya faith, and is the largest Mosque in Europe.

Buddhapadipa Temple is situated in Wimbledon Village. Built in 1980, it is the only Thai Buddhist temple ever built in Europe.

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