Haringey report

Report: 2
Date: 2 February 2010
By Acting Detective Inspector Ralph Coates - Community Safety Unit

1. Domestic/Sexual Violence data for Haringey - quantitative information

2. Qualitative background

2.1 The Community Safety Unit (CSU) comprises a Detective Inspector and 4 teams consisting of a Detective Sergeant and 5 Detective Constables and/or Police Constables. In addition there is a part time post for a Multi Agency Risk Assessment Conference (MARAC) coordinator and an office manager. The CSU investigates all reports of domestic violence; race/hate crime and reports of honour based violence and forced marriage. Safeguarding Adult criminal allegations are currently investigated by the CSU or Criminal Investigation Department (CID) depending on the crime type. This is currently being reviewed with the intention of creating a post for a safeguarding adults coordinator within the CSU. The Borough also has a Public Protection Desk (PPD) comprising of a Detective Inspector, a Police Sergeant and 4 police officers/staff. The PPD is responsible for coordinating police and multi agency response for vulnerable children, vulnerable premises and dangerous offenders as they relate to children.

2.2 Since the 23 September 2009 SCD2 has investigated all reported rapes, assaults by penetration and other offences deemed to be a ‘serious sexual offence’. The team responsible for these investigations is located at Edmonton Police Station. The Team is also responsible for all such offences occurring in the Borough of Enfield. The Unit is staffed by 1 Detective Inspector, 2 Detective Sergeants, 7 Detective Constables, 7 Police Constables and an Office Manager.

2.3 Haringey Crime and Disorder Reduction Partnership (CDRP) has a Domestic Violence Partnership Board (DVPB) containing representatives from all key organisations including the Local Authority, GOL, Primary Care Trust, Voluntary Sector, Police, Community Group Representatives, CPS and Local Courts. They coordinate the CDRP strategy for tackling Domestic Violence. The Domestic Violence Forum and Operational Group implement actions to reduce Domestic Violence. The CDRP provide facilities, staff and various forms of support for the community through a range of services including Hearthstone, MARAC and the Independent Domestic Violence Advocate (IDVA) (see paragraph 4.7 - 4.9).

3. Policy compliance and quality assurance

Risk assessment and risk management

Primary

3.1 On attendance to a DV call Haringey Borough Officers will investigate the initial allegation and complete a primary risk identification and assessment using the Form 124D for guidance. The risk may be assessed as standard, medium or high risk and a proportionate and effective risk management plan is developed. The officer must record his or her rationale for their assessment onto CRIS. If assessed as medium or high risk the investigating officer must inform the patrol sergeant or duty inspector and take immediate action to remove, avoid, reduce or otherwise accept the risk (as per RARA risk management plan). The Sergeant must liaise with the CSU DS or Night Duty CID for all medium or high risk cases to discuss early intervention to ensure the safety of the victim and any children and take appropriate positive action in relation to the perpetrator.

3.2 Where there are children present or living in the household, the investigating officer must complete MERLIN PAC as per the MPS DV Policy. The MERLIN PAC will be further supervised by the patrol sergeant initially, but then by the PPD DS within 24 hours. If the child is thought to be at significant risk then Police protection will be invoked in line with the Police Protection SOP, the child (ren) will be taken into protection under Sec 46 Children’s Act 1989, with the Duty officer acting as the designated officer.

3.3 In accordance with MPS policy the Borough takes positive action in DV cases, which includes the arrest of the perpetrator where there are reasonable grounds to do so. This Borough is currently achieving 72% arrest rate against a bespoke target of 70%.

3.4 The Crime Management Unit (CMU) screens all DV reports in for further investigation and quality assures them, including correct use of flags amongst other recording requirements. There is a mandatory screening-in process for all DV cases and the report will be allocated to a CSU DS for further supervision.

Secondary

3.5 The CSU DS supervises the investigation which has been conducted to date and reviews the risk assessment and classification to confirm accuracy. The CSU DS will allocate to a secondary investigator, depending on experience, knowledge of case, skills and workload. The DS will then set out an investigative strategy ensuring that intelligence research using the Integrated Intelligence Platform (IIP) over the past 5 years is conducted on both the victim and the suspect and recorded on the crime report. Repeat victimisation is considered as an aggravating factor and will inform the risk level. The OIC then reviews the initial risk assessment and in all medium and high risk cases will carry out further risk assessment of the victim (SPECSS+ part 2) and consider further safety planning with the victim.

3.6 The OIC is then responsible for ensuring that the victim is given advice in relation to their specific needs and that appropriate referrals are made to specialist DV multi-agency partners in line with the risks. During office hours referrals are generally made through Hearthstone (see paragraph 4.7) outside these hours, agencies (refuges, social services, DV counseling etc.) are contacted direct by the OIC. In addition a DV information pack containing documentation on how all support services can be accessed (Hearthstone, Police, Civil proceedings, housing, refuge, social services, children’s services etc) is sent out to the victim in every case (except where the OIC has indicated that receipt of the DV pack may cause more risk to the victim). The main content of the pack is in the English language but it is accompanied by a supporting leaflet in 14 languages.

3.7 Throughout the investigation the OIC is responsible for ensuring that the victim is regularly updated especially if the perpetrator is arrested, cautioned, charged, remanded or released with or without charge. The CSU DS is responsible for supervising all crime reports including compliance with the Victims Code of Practice (VCOP) within 24hours and then every 7 days until the cases is concluded. For medium and high risk cases daily supervision is undertaken where practicable. Where offenders are charged they will go to Haringey’s Specialist Domestic Violence Court (SDVC) (see paragraph 3.12).

3.8 In high risk cases a longer term multi-agency approach is taken to keep victims and their children safe. In such cases victims will be referred to MARAC. (See paragraph 4.8)

3.9 In relation to SCD2 offences the primary response to any report of a serious sexual offence is undertaken jointly between Haringey and officers from SCD2. A Sexual Offences Investigation Team (SOIT) officer is dispatched to the victim within an hour of the crime being reported. The Secondary Investigation is conducted jointly between the Investigating Officer (IO) and the SOIT. These officers work closely together. They share information promptly to enable the best possible response to the crime. Where necessary the SCD2 IO will seek and utilise additional resources from Haringey or another SCD2 Cluster. This ensures that the time critical actions are concluded promptly.

3.10 The investigations are reviewed initially by a DS between 10-18 hours after report, the DI after 7 days and the regional DCI after 28 days. Victims of serious sexual offences are risk assessed as per the SOP and referred to MARAC. Risk identification, assessment and management are points that are covered in the reviews of the investigation. Out of hours SCD2 has access to an on call Resource Manager who in appropriate cases will obtain and fund short term emergency accommodation for victims at risk. All DV victims of serious sexual assault are referred to MARAC. Each member of permanent SCD2 staff will receive additional training through attendance at a uniquely designed course for dealing with Serious Sexual Offences.

Action against suspects

3.11 Haringey Borough ensures that the MPS DV policy in relation to positive action in all DV incidents/crimes is complied with by a supportive and intrusive performance regime. All primary and secondary investigating officers are aware of their responsibility regarding the prompt arrest of all DV suspects. If the suspect is not immediately arrested every effort will be made to arrest the suspect as soon as possible. This will include additional arrest enquiries by or on behalf of both primary/secondary investigators, allocation to support officers such as Safer Neighborhood Teams (SNT). Intelligence assets are exploited as necessary to trace the suspect, if not located through the Borough Intelligence Unit (BIU), and early circulation on Police National Computer (PNC).

The current DV sanction detection rate is 42%.

Criminal Justice Partnership

3.12 In October 2009 the Borough introduced the Haringey Specialist Domestic Violence Court (SDVC) to provide a coordinated response to proceedings involving domestic violence. This included the expansion and coordination of the provision of victim / witness services (see 3.14) within the criminal justice system.

3.13 SDVC holds weekly sessions (Tuesday) at Highgate Magistrates Court to deal with criminal domestic violence cases. If the defendant is charged and detained in police custody and the SDVC is not sitting then the defendant will be remanded either on bail or in custody to the next SDVC session. SDVC provide specialist training to District Judges, Magistrates, legal advisers and staff, Crown Court Judges and Staff.

3.14 Victims are supported by IDVA, Hearthstone, Witness Service and the SDVC Police Liaison Officer. This includes liaising with court security in order to ensure safe entry to the building and increased security for complainant and witnesses, as well as liaising with CPS/WCU with regard to the need for Special Measures/Interpreters.

3.15 The SDVC has provisions for cases where the client withdraws from the Criminal Justice System process. The Court, CPS and support agencies all have specific actions to complete to ensure the victim is provided with a safety plan, is given support regarding obtaining civil remedies and is encouraged to continue to report incidents to police. CPS attrition rates for DV cases from Nov’08 to Oct’09 were 38.9%. No statistics are available yet for SDVC attrition rates.

3.16 The SCD2 Detective Inspector meets regularly with the Haringey Branch Crown Prosecutor. This meeting enables the CPS and SCD2 to build relationships with CPS rape specialists and police Senior investigating Officers. During the meetings cases will be reviewed anticipated problems identified and addressed.

Public Protection Desk

3.17 Haringey PPD has implemented a new system to deal with fast track referrals made in line with the MPS ‘Every Child Matters’ policy. A First Response Multi-Agency Team (MAT) assesses and prioritises all enquiries directed to the MAT using an agreed threshold framework. They will identify and access any additional information required as part of the assessment, planning and intervention decision making process, ensuring a timely, effective, efficient and child-centered response. The MAT will also review progress and ensure appropriate action has been taken. Currently the MAT meets 3 times a week, although the plans for 2010 include a more comprehensive MAT being housed in one building so that referrals can be dealt with immediately. This development will see redeployment of the entire PPD to local authority offices. (See 6.5)

4. Partnership working and Crime and Disorder Reduction Partnerships (CDRP)

CDRP strategy

4.1 Partnership domestic and sexual violence work in Haringey is commissioned by the Domestic Violence Partnership Board (DVPB), based on priorities identified in the Domestic and Gender Based Violence strategy and action plan. The BOCU Commander is vice chair of the DVPB.

4.2 Haringey Borough has a four-year Domestic Violence and Gender Based Violence Strategy (‘Safer for All’) for the period 2008 to 2012. This provides direction for DV partnership work setting priorities and planning operations on a long-term perspective whilst reinforcing existing policies and services. (See priorities below)

4.3 Domestic violence and sexual violence are both included in the Borough Strategic Assessment. Sexual offences (particularly rape) are identified as a priority for the coming year (2010)

Priority 1: Improve the support and safety of those who experience or are threatened by Domestic of Gender based Violence.

Priority 2: Further reduce the tolerance of Domestic Violence and Gender Based Violence in our communities.

Priority 3: Holding Abusers Accountable.

Priority 4: Further Increase children and young people’s safety and welfare.

Funding

4.4 Hearthstone: the total cost of service is £214,300 and is funded by the Haringey Council Strategic, Community Housing, Children Services and supporting services with each service providing approximately £50,000.

Sanctuary Scheme: is funded by Homes for Haringey (amount not disclosed)

MARAC/IDVA: local authority (LA) has provided £8500 to support the service (for Jul’09 to Dec’ 09)

Counselling: LA provided £2,333

SDV Court: LA provided £3,000

Police Initiatives: LA provided £9,000

Training

4.5 The CDRP has a programme of training for all partners. In 2009 the programme included partnership training on Honour Based Violence, SDVC, MARAC (CAADA Champions course) etc.

Partnership successes

4.6 The DVPB works well on a strategic level and Hearthstone (see below), our Partnership DV advice and support centre, is an excellent example of partnership working with over 20 statutory and voluntary sector services operating from one location. The DVPB were presented with an award of distinction from the Mayor of London for outstanding and innovative work in this area.

Key services provided by the CDRP

Hearthstone

4.7 Hearthstone is a domestic violence advice and support centre providing victims with a ‘One Stop Shop’ philosophy to meet their needs. Hearthstone used to operate a drop in service, but due to high demands the service operates an appointment system except in emergencies. Appointments can be made by the clients or through other agencies, including the police. Haringey CSU provides a full time officer to Hearthstone to facilitate immediate access to the criminal justice system. Haringey Borough has provided funding to enable a computer to be installed with full access to police databases.

Services include:

• Advice on housing, access to refuge services.
• 'Sanctuary’ safety/security measures to support the victim remaining in their own home.
• Legal Advice, free appointments with solicitors.
• HAGA, counselling for clients who have substance misuse problems themselves or their partners.
• HARTS, outreach workers supporting victims with children.
• Haringey Young Peoples Counselling Service, outreach for children and mothers.
• NIA Project, strategy for women to cope with children affected by DV
• IDVA (through NIA Project) Independent Domestic Violence Advocacy, victim support and MARAC referrals.
• Elevate, support for survivors of DV.
• Wise Dolls, therapy for women.
• IMECE, Advice and Counselling for Turkish women.

MARAC

4.8 MARAC (Multi Agency Risk Assessment Conference) meets monthly, dealing with approximately 30 cases at each conference. Records show there were 116 new cases from Nov’08 to Oct ’09, with the amount of referrals increasing throughout the period as the process has become more established. Most referrals are from Hearthstone, IDVA and police. The CAADA (Coordinated Action Against Domestic Abuse) Risk Indicator Checklist and professional judgement are used to assess referrals. During the MARAC, a specific action plan is set for each case by the partnership to ensure a victim’s safety. Haringey’s MARAC has run for 15 months and is currently in the process of applying for CAADA accreditation.
IDVA
4.9 Haringey Borough has just one Independent Domestic Violence Advocate (IDVA) who works on the NIA project based at Hearthstone. The IDVA is responsible for working with High Risk clients to ensure a Multi Agency approach to their safety, referring cases to MARAC, representing clients at MARAC and supporting DV victims at SDVC court hearings. The Borough is currently reviewing the IDVA staffing levels following recommendations from the CSU and Haringey DV coordinator.

5. Work with victims and communities

Feedback

5.1 The DVPB funds a DV expert user group that gives us regular feedback on local services and improvements in provision. This information provided to relevant partners to action accordingly.

Victim updates/VCOP

5.2 The OIC or SOITs for SCD2 investigations are responsible for providing victims with regular updates and changes of circumstances in accordance with MPS DV policy and VCOP. The Borough has a DI who manages the Crime Management Unit. He is responsible for compliance with the Police Obligations within VCOP. Guidance and performance weekly reports are published. Reminders are also added direct to crime reports requesting remedial action. A system is also in place where police staff send out information letters to victims on behalf of investigating officers. VCOP compliance forms part of the SCD2 DS and DI reviews. The Borough Commander took the unusual step of placing a DI in charge of the CMU to address his concerns regarding VCOP compliance, this has resulted in significant improvement. VCOP compliance is currently at 95%.

Building community confidence

5.3 The Borough Safer Neighbourhood Teams (SNT) and Community Engagement Team are responsible for identifying and making initial contact with so-called ‘hard to reach’ communities and building trust with them. In addition to routine patrolling and attendance at community events and meetings, there are a number of projects in place to encourage contact with the police, e.g. a self-defence project that is currently operating at the Kurdish Community centre. The distribution of DV support literature is also part of the SNTs’ role.

5.4 The CDRP have also introduced a wide range of initiatives to inform identified ‘hard to reach communities’ of the DV services available to them. These include stalls at community events, DVDs in 7 languages, DV outreach events, DV stakeholder conferences and publicity campaigns. Last year the MPS Diversity and Citizen Focus Directorate (DCFD) in conjunction with the Violent Crime Directorate (VCD) delivered a domestic violence and honour based violence seminar to predominantly Eritrean women living in the Borough.

5.5 SCD2 recognizes that building trust and confidence is a key factor to enable victims of serious sexual offences to report the crimes. Without this we are unable to identify the offenders and assess the risks to the community. Consequently SCD2 will work with the CSU to engage with the community.

6. Organisational improvements

Homicide reviews

6.1. There was one domestic violence homicide in the period 1st November 2008 to 31st October 2009, which is currently subject to a domestic homicide review. Haringey Borough welcomes any constructive recommendations that may come from that review that will assist with policies, procedures and guidance that will enhance the service we provide to DV victims.

Implementation of SCD2

6.2. Upon its inception the SCD2 teams, accountable for investigating serious sexual offences on Haringey Borough, were split across two sites. The Haringey Officers worked from the Sapphire Team offices in Hornsey and the Enfield Officers from Edmonton. In November, once IT issues were resolved, the team co-located to Edmonton Police Station where they will remain until permanent accommodation is found. The Team had a particular difficulty in recruiting staff with only 2 of the original 14 Constables applying to join SCD2. This was in part due to the uncertainty of the team’s location and the proposed shift pattern. The picture looking forward for SCD2 is better. All the Detective Constables attached to SCD2 have applied to remain. The recruitment and retention of SOIT Officers however is of concern. The Cluster is one of the busiest within the MPS and this has meant that the first few months have been challenging for all those working on the Team. SCD2 has a recruitment strategy in place and are now targeting areas such as the Haringey/Enfield where recruitment has historically been difficult for the MPS.

6.3 The implementation process created challenges for the team, the majority having never worked together and taking a little time to adjust. In addition, most of the staff had not worked on the Borough of Haringey previously and therefore, had little knowledge of partner agencies and working practices. Thankfully, the team has bonded quickly and worked hard to improve their understanding and skills but it is acknowledged that a relationship with our partners is an area for improvement.

Honour based violence

6.4 Haringey BOCU recognises the significant risks to victims of HBV, by treating all cases as a priority. We use only officers who have been specially trained in dealing with HBV, supported by close supervision of a Detective Sergeant. All cases are investigated in line with corporate advice provided by the Violent Crime Directorate to ensure everything possible is done to ensure the victim’s safety. These include use of police protection, emergency accommodation and referrals to specialist HBV partners.

Public Protection Desk

Multi Agency Team First Response Pilot Project

6.5 Following the tragic murder of Baby Peter, all agencies in Haringey have worked together to bring about the changes necessary to safeguard children on the Borough. The MAT First Response Pilot is currently operational in Haringey Children’s Services and is part of the joint action plan that is being implemented in response to the murder. The pilot has been developed as a result of the weekly multi-agency monitoring meetings and the MAT now meets three times per week at 10.30am at CYPS.

Terms of Reference of the pilot meeting:

• CP Strategy discussions
• Exchange of information re: non-urgent cases
• Requests for information re: non-urgent cases
• Key remit is looking at chronic cases and re-referrals

Membership of the MAT:

• Public Protection Desk
• CAIT
• CSU
• Senior Named Nurse for Child Protection (GOSH in Haringey)
• CAF Manager
• Children and Families – 2 Senior Managers
• Duty Manager
• Screening Manager

6.6 It was acknowledged that PPD are key to the success of this group as the majority of cases require PPD information, with only a minority being CAIT cases. There is no requirement for the PPD to attend all meetings and this has altered to only when required - this being on the basis that their time was better spent feeding relevant information into the morning MAT meeting and completing updates post MAT.

6.7 Feedback from the pilot to date highlighted the need for a prioritisation system for MERLIN entries so that urgent cases can be highlighted in the system. It was suggested that a separate system might be necessary that could be used by police officers to highlight urgent cases by reference number. The outline prioritisation document is at appendix B.

Role and function of the team

6.8 The group developed a First Response MAT service model and agreed the role and membership of the team.

Objective

The First Response Multi-Agency Team will assess and prioritize all enquiries directed to First Response using an agreed threshold framework. They will identify and access any additional information required as part of the assessment, planning and intervention decision making process, ensuring a timely, effective, efficient and child-centered response. The team will also review progress and ensure appropriate action has been taken.

Function

Contacts will be screened by the screening team within the MAT and Framework I and Police checks completed. The contact will then be assigned the appropriate First Response level (Platinum, Gold, Silver or Bronze). Details of all contacts and the levels assigned / action taken will be recorded in a separate database which can be accessed by all MAT member agencies.

Platinum - 4

Urgent referrals requiring an immediate Strategy Meeting e.g. Section 47 or a child being taken into care. Referrals will require Children’s Social Care involvement + Police involvement e.g. CAIT or Sapphire. All Platinum cases to be noted at the daily MAT meetings for updates and any arising over the weekend are to be taken to the MAT on Monday morning. Urgent referrals may go straight to Platinum strategy discussions and not have initial MAT involvement. Platinum will update at the end of week review meeting.

Gold - 3/4

Referrals requiring Children’s Social Care, cases may be single or multi-agency and will be addressed at the daily MAT morning meetings. Members of the MAT will bring relevant information from their agency on each referral to the meeting. The Team Around the Child will be identified and the assigned Social Worker will act as Lead Professional. Gold will update at the end of week review meeting.

Silver - 2a/2b

Children’s Social Care involvement is not required but a CAF should be completed. A Team Around the Child may be needed; this decision will be informed by the CAF.

Bronze - low level 2a/1

Non-urgent contacts not requiring immediate action, these contacts will be closed after Framework I and PPD checks have been completed. However they can be re-opened at any point if additional information becomes available.

6.9 Roles and Responsibilities of Core MAT – Tasks common to all roles

• To ensure effective and speedy liaison with own agency re: all contacts
• To screen all contacts initiated within own agency and undertake agency checks
• To share relevant information in the appropriate forum.
  • Level 4 - Platinum cases, information to be brought to strategy meetings
  • Level 4/3 – Gold cases, information to be brought to daily MAT meetings
• To participate in effective planning for individual cases / contacts and agree the remit for own agency with other MAT members
• To participate in effective tracking and reviewing systems to ensure safe information sharing, planning, joint and single agency working
• To be involved in direct urgent operational duties as necessary

6.10 The First Response levels are aligned to the Haringey Thresholds and cases / contacts may move up or down the levels as appropriate. The First Response MAT model will be put into practice on a Monday-Friday 9-5pm basis with a view to addressing evening and weekend provision in the future as a result of lessons learnt.

Single improvement BOCU believes MPS could make

6.11 SCD2 is currently engaged in number of reviews to identify areas for improvement. These reviews will also focus upon remit and resource levels to ensure our staff are located in areas of demand and ensure a qualitative, effective and professional service is provided to victims.

Support required by MPA and DVSV board

6.12 SCD2 would wish the MPA to:

• Support Victim focused performance measures - on outcomes rather than Sanction Detections.
• To provide clarity on what constitutes good performance, and
• To ensure that proportionate resources are available to provide an excellent standard of care/safety to victims.

7. Equality and diversity

Equality and diversity implications

7.1 Haringey Council has commissioned an Equalities Impact Assessment (EIA) for domestic violence services, working with the full range of community groups represented on the DV Forum.

7.2 The EIA covers Gender, Ethnicity, disability, Sexuality, Religion/Belief and Age, but will also focus on equalities issues across the above equalities strands. The findings, particularly where gaps in provision are highlighted, will be utilised when reviewing and commissioning future specialist service provision in Haringey.

7.3 Figures show that, since November 2008, the Haringey MARAC has received 116 referrals. In the last 12 month period (November 08-October 09) the Haringey MARAC has discussed 116 cases, of which 4 have been repeat referrals (3% repeat rate). Of these 116 referrals, 91(79%) were for victims from BME community, 116(100%) referrals were for female victims, 1(0.8%) of the victims referred were flagged as having a disability and 1 (0.8%) as from LGBT communities.

7.4 Figures from the Hearthstone Centre show that in the period of November 2008 to October 2009 there were 790 new referrals to the Hearthstone Domestic Violence Centre. Of these new referrals, 81 became open and active cases at MARAC. The remainder have received a level of ongoing specialist support from the Hearthstone Centre.

7.5 A reporting process was introduced in 2008 by the Haringey Safeguarding Adults Board, working with officers from MPS and Social Services, which enable social care workers to report suspected incidents of abuse of adults at risk directly to the BOCU Community Safety Unit & the Public Protection Unit. The Safeguarding Adults at Risk Alert form can be e-mailed directly to the CSU and the PPU, where it is reviewed, recorded and allocated as appropriate.

7.6 Haringey CSU staff have all completed mandatory Equality and Diversity training, with 6 having completed a one week CSU course which provides specialist training around diversity issues like HBV. The CSU has officers that represent the BME community, LGBT community and disabled staff, which enables the unit to understand the needs of the victims that they support.

Send an e-mail linking to this page

Feedback