Update on the use of Firearms and Taser

Report: 8
Date: 3 March 2011
By: Assistant Commissioner Central Operations on behalf of the Commissioner

Summary

This report details the use of Taser by the MPS Specialist Firearms Unit (CO19) and by the Territorial Support Group (CO20) to resolve dangerous incidents without the need to resort to direct physical force or the police use of conventional firearms, examining trends over the past three years. This includes diversity analysis and Taser use in relation to emotionally and mentally distressed persons (EMD). The report outlines the existing guidelines to CO20 officers on the use of Taser in non-weapons related incidents including use in custody situations and looks at the post incident debrief process and how organisational learning is influenced as a result. Community engagement by CO20 and CO19 in relation to the use of firearms and Taser is also detailed, particularly with black minority ethnic (BME) and the EMD communities.

A. Recommendation

That Members note the contents of this report and attached appendices.

B. Supporting information

The MPS and the use of Taser

1. The use of Taser by MPS officers over the last three years as a less lethal option has greatly assisted with the safe resolution of a substantial number of dangerous incidents without the need to resort to the police use of conventional firearms or the application of direct physical force.

2. Taser is a single shot, less lethal weapon designed to temporarily incapacitate a subject through the use of an electrical current, which temporarily interferes with the body’s neuromuscular system. The Taser is laser-sighted and uses cartridges attached to the end of the cartridge bay. The cartridges project a pair of barbs or darts which are attached to insulated wires. The maximum range of the device is currently 21 feet (6.4 metres); this being the length of the wires that carry the current. It may also be used in a “drive stun” mode both with, and without, a cartridge. The device delivers a sequence of high voltage pulses of very short duration through the wires.

3. The Conflict Management Model, contained within the ACPO Personal Safety Manual of Guidance sets out the process by which a measured and appropriate response can be made to any situation involving conflict. Any use of force in relation to use of Taser must be fully justified and recorded using an evidence and actions book (EAB) and reporting the use of the equipment on form 6624. The police use of force is governed by:

• Common Law
• Section 3 Criminal Law Act 1967
• Section 117 Police and Criminal Evidence Act 1984
• The Human Rights Act 1998

4. Taser works on two distinct levels. Psychological and physiological. Psychologically Taser is yellow in colour to distinguish it from a conventional police firearm, and is highly recognisable. A lot of people understand through television and media what the Taser is. This alone has resulted in many incidents being bought to a swift and peaceful conclusion by its mere presence without the need to deploy it. Physiologically, Taser incapacitates the subject by delivery of a sequence of very short, high duration, high voltage current into the subject’s body which results in a temporary loss of muscular control and pain. Medical and scientific research has shown that there are no long lasting physical consequences to the subject following Taser use.

5. Taser has a laser sighting system. This allows the operator to aim the top barb to where the laser is placed on the intended target. By placing the laser onto the individual (known as red dot) and drawing their attention to it the need to deploy the Taser can be avoided if the person desists from whatever violent or threatening activity they are engaging in. This has been a very effective part of the Taser use and has resulted in many situations bought to an early resolution without the need to deploy further.

6. Taser can be used to ‘warn’ people of its presence by ‘arcing’ the device. This ‘show of strength’ is achieved by raising the Taser into the air and towards the intended subject without the cartridge and activating the trigger. This causes an extremely audible ‘crackle’ and a visually impactive electric current to ‘arc’ between the two contacts situated within the cartridge bay. This tactic is used by the TSG as a show of force and not one that is used by firearms officers. This is primarily due to the difference between the types of incidents that firearms officers are called to deal with compared with TSG colleagues.

7. The final mode of operation is to activate the device either with a cartridge on and deploying the probes (maximum 21 feet) or by placing the end of the Taser on an intended target either with a cartridge on or without. This mode of operation is called ‘drive stun’.

8. The MPS currently have a total of 842 Tasers. There are 790 for operational use and 52 for training purposes; these are divided as follows amongst the following commands. CO19 currently have 115 Tasers, TSG(1) have 160 Tasers. The remaining Tasers are deployed to other firearm commands including Diplomatic.

Protection (SO6) (171), Aviation Security (SO18 (93), Royalty Protection (SO14) (108), Flying Squad (SCD7) (20), SCD11 Surveillance (64), Belmarsh Team (17) and Protection Command (SO1) (42).

Overview of CO19 deployments

9. This section will give an account of CO19’s Taser and conventional firearms deployments and usage. To put this into context, whilst the carriage of both Taser and conventional firearms is commonplace, their deployment and use is infrequent. Paragraphs 10 to 16 will detail the carriage, deployment and use of conventional weapons. The subsequent paragraphs will adopt the same format for Taser.

10. CO19 provides armed support in response to both spontaneous and pre planned firearms operations. Armed Response Vehicles (ARV) provide 24/7 response to all spontaneous firearms incidents in the MPS and also deal with a small number of pre planned operations. The Tactical Support Teams (TST) undertake a wide variety of operations; these include the execution of warrants by means of containment and call out operations (both uniformed and plain clothes) also TST's support surveillance operations and provide an armed support capability. Specialist Firearms Officers (SFO) are officers have undertaken additional selection and training in weapon handling, covert and overt operational skills, dynamic entry for evidence and rescue.

11. During 2010 (to 30/11/10) CO19 Armed Response Vehicles (ARVs) responded to 12004 calls from the public in response to spontaneous firearms calls and actually deployed some 2741 times (actually actively engaged subjects). This is a downward trend in relation to calls received from 2009 where ARVs responded to 13990 calls from the public, deploying 2734 times. The 2010 figures also show a downward trend from 2008 data which showed ARVs received 14156 calls, deploying on 2712 occasions. The trend from 2008 to 2010 (accepting 2010 data is only to 30/11/10) shows a 15% reduction in calls received by ARVs and a 1% increase in actual deployments. The reduction in calls is likely due to improved call handling with the introduction of the Central Communication Command (CCC).

12. In relation to pre-planned firearms operations ARVs in 2008 dealt with 171 operations reducing to 132 in 2009 and to 24 in 2010 (to 30/11/10). This represents an overall reduction from 2008 of 86%. The Tactical Support Teams (TSTs) dealt with some 269 pre planned operations in 2010 (to 30/11/10), this compared to 336 in 2009 and 432 in 2008. This represents a reduction of 37% from 2008 to 2010. Specialist Firearms Officers (SFO) dealt with 452 pre planned operations in 2010 (to 30/11/10), this compared to 470 in 2009 and 511 in 2008. This again represents a reduction of 11.5% from 2008 to 2010. The reduction in pre-planned authorised firearms operations is likely to be largely due to the introduction of The Firearms Command Unit (CO5). The unit was established in 2009 with responsibility for providing specialist command capability for all planned and authorised firearms operations. This has resulted in improved processes for the authorisation of firearms operations. Also significant has been the introduction of improved call handling processes through Metcall CCC.

13. Taking into account the number of calls and deployments by CO19 officers, the occasions when shots are fired using conventional firearms is rare. In 2008 two shots were fired at separate incidents both occasions being fatal (two white males). In 2009 there were zero fatal shots fired, however there were four non fatal shots fired at three separate incidents (Four black males, one male sustained no injury as round missed). In 2010 (to 15/12/10) there has been one non fatal shot fired (a white male).

14. Unintentional discharge (UDs). These are circumstances where a CO19 firearms officer has fired his or her weapon unintentionally in a public place. In 2008 there were no UDs by CO19 officers, 2009 there were three separate incidents, two of these incidents involved the unintentional firing of a Glock firearm and the third incident was the discharge of a MP5 firearm. This year to date there has been one unintentional discharge of a Glock weapon. During these incidents no members of the public were injured.

15. In all circumstances where shots are fired by police from a conventional firearm either being fatal or non fatal or in the case of unintentional discharges of police firearms in public places a full investigation is conducted by either MPS Department of Professional Standards (DPS) or the Independent Police Complaints Commission (IPCC). The relevant support for the officers concerned is provided through the Post Incident Management procedure, and learning from such incidents is captured through the investigative and debrief process. The learning from such incidents is captured by CO19 Organisational Learning and actioned accordingly whether through training or policy change.

16. Hatton rounds are a ‘breaching round’ fired from a shotgun and are used to gain entry to doors and locks when rapid entry is made to premises, they are also used for rapid deflation of tyres on vehicles. In 2008 Hatton rounds were fired on 11 occasions, in 2009 on 8 occasions and in 2010 (10/12/10) on 21 occasions. Attenuating Energy Projectiles (baton rounds) were used once in 2010, once in 2009 and not used in 2008.

17. Specifically in relation to Taser, usage is monitored by the Firearms Policy Unit for all firearm carrying commands. Upon any discharge of a Taser the officer completes form 6624, which captures a range of information including the circumstances of the incident, details of injuries, full demographic data and information in relation to whether the person concerned was considered to be emotionally mentally distressed (EMD).

18. In 2008 Taser was deployed on 106 occasions by CO19 officers (88 times fired, 11 times drive stun, 2 red dot resolutions, aimed 5 times). This compared to The Flying Squad (SCD7) where Taser was deployed 9 times, Diplomatic Protection Group 4 deployments and Aviation Security on 5 occasions. In 2009 CO19 officers deployed Taser 68 times (Fired 52 occasions, drive stun on 7 occasions and red dot resolution on 9 occasions). This compared to the Flying Squad (SCD7) where Taser was deployed on 6 occasions and the Diplomatic Protection Group where Taser was deployed on 1 occasion. In 2010 (to 15/12/10) CO19 have deployed
Taser on 85 occasions (Fired 66 times, Drive stun on 10 occasions, red dot on 7
occasions and aimed on 2 occasions). In the same period The Flying Squad has deployed Taser on 2 occasions, Diplomatic Protection Group on 2 occasions and Aviation Security on 1 occasion). Appendix 1 provides full details of these figures including a breakdown of ethnicity, age, gender and details where subjects have been classified as emotionally, mentally distressed. This is further discussed below under equality, diversity impact.

Overview of Territorial Support Group (CO20) Deployments

19. The extension of Taser use to unarmed officers in the TSG (CO20) commenced in November 2008 (part off a national pilot) after its effective and safe use by armed colleagues since 2003. The rationale for extended use was that police officers were and are dealing with more incidents of violence. The tactic at the time for dealing with violent people involved numerous officers and sometimes resulted in unintended and unnecessary injuries to both the subject and police officers. Taser offered a safer solution by maintaining distance control and is safer for the subject, the public and the police. The extension of use to TSG officers was also supported by the Police Federation, the Superintendents Association and the Independent Police Complaints Commission. The TSG were chosen for the trial as they are specially trained, cover pan London and are the MPS most effective response to violent incidents, they work in teams and are closely supervised ensuring immediate control at incidents. Officers received extensive training and a robust system of accountability, including Anti Felon Identification Discs (AFIDS), photography, downloads, reporting at ACPO level and mandatory reporting of public complaints to the IPCC. Whilst the trial has now been officially completed CO20 officers still operate Taser under the same strict conditions.

20. Accountability and AFIDS. Between 20 and 30 small paper discs are housed in the Taser cartridge. When the Taser is fired it ejects the discs across the floor in front of the person who deployed the device. Each AFID has the serial number of the Taser Cartridge printed on it. The AFIDS are different in colour and are very small, smaller than the push end of a drawing pin. They are designed to assist in forensication of a scene post deployment and will provide information on who deployed the Taser and where they were at the time.

21. The Officers from CO20 carry Taser whilst deployed on Commissioners Reserve. There are 5 Commissioners Reserve units on duty over a 20 (soon to be 24) hour period every day. Each Commissioner’s Reserve consists of one inspector 3 sergeants and 21 constables. There are 6 Tasers on each unit. Their shifts cover 8am - 4pm, 10am - 6pm, 4pm to midnight, 6pm to 2am and 8pm to 4am. There are therefore up to 18 Tasers on the streets of London with CO20 at any one time. In addition, CO20 Chief Inspectors are able to authorise the use of Taser on pre planned operations.

22. CO20 Taser use is monitored by the MPS Self Defence and Restraint Unit. Upon any use of force where a Taser is used (whether drawn, aimed, arced, red dot sighted, drive stun or fired) the officer completes form 6624, which captures a range of information including the circumstances of the incident, details of injuries, full demographic data and information in relation to whether the person concerned was considered to be emotionally mentally distressed (EMD). All use is also monitored by a dedicated CO20 Sergeant overseen by a CO20 Chief Inspector.

23. In 2008 CO20 deployed Taser on 446 occasions (132 occasions the weapon was just drawn, on 42 occasions the officer aimed the weapon, on 217 occasions the officer placed the red dot on the subject, 8 occasions the subject was drive stunned and on 56 occasions actually fired the weapon). In 2009 CO20 officers deployed Taser on 250 occasions (64 occasions the weapons was just drawn, 15 occasions the officer aimed the weapon, on 128 occasions the officer placed the red dot on the subject, on 4 occasions the officers arced the Taser, on 3 occasions officers drive stunned subjects and on 36 occasions fired the weapon). In 2010 (to 9.12.10) CO20 officers deployed Taser on 217 occasions (70 occasions where the weapons was just drawn, 9 occasions where the weapon was aimed, 5 occasions where the weapon was arced, 103 occasions where the subject had the red dot placed on them, 0 occasions of drive stun and 30 occasions where the weapon was fired). Appendix 2 shows a more detailed breakdown of these figures including diversity data. Diversity and Equality analysis is examined under equality, diversity impact below.

24. CO20 figures above show that use of force including simply drawing the Taser from its holster, aiming the weapon, red dot placement or arcing resolves the majority of situations without the need to deploy Taser by firing or drive stun. Gaining cooperation of an individual by drawing, arcing or red dot placement has significantly reduced the need to use force i.e. the individual has complied. The number of CO20 Taser deployments has reduced significantly: (From 446 deployments in 2008, 250 in 2009 to 217 in 2010 an overall deployment reduction of 51%), Drive Stun has also reduced significantly (from 8 in 2008 to 3 in 2009 to zero in 2010), Occasions where Taser has been fired has also reduced (from 56 in 2008 to 36 in 2009 to 30 in 2010 a 46% overall reduction).

Outline of the guidance provided to TSG in non-weapons related and custody incidents:

25. The guidance to CO20 officers on Taser use is contained at Appendix III. Since the introduction of Taser for use by firearms officers and unarmed TSG officers there has been a positive contribution to the effective and safe resolution of incidents involving conflict. Guidance to officers is clear that Taser is not a replacement for existing personal safety tactical options, but is an ‘option that should be considered alongside other personal safety tactical options, such as negotiation, batons, incapacitant sprays and dogs’. These do not constitute a hierarchy of lawful force and should be viewed by the officer as a range of approved options from which the most proportionate and appropriate tactic should be selected, according to the circumstances.

26. CO20 officers are called upon to attend custody locations where individuals are displaying violence of such severity that force could be used. Chief Inspector CCC remains the authority for requests for deployment of TSG reserves to incidents within the MPS. The CCC Command Team have been fully briefed in relation to the use of Taser by CO20, and are fully aware of the restrictions, and protocols for Taser. There are no circumstances where a specific request for Taser use as the only tactical option would be considered. It is the decision of a substantive TSG supervisor, based on a documented risk assessment, as to what tactical option is the safest and most effective option to use to resolve incidents of violence/potential violence. It does not seek to restrict an officer’s ability to use all the available tactical options within the conflict management model when dealing with incidents of violence/possible violence in custody situations. In custody situations the care of the detainee will be overseen by the Custody Sergeant and the incident will be recorded on CCTV. When Taser is deployed in a custody situation the same vigorous documentation and recording processes apply.

Summary of post incident debrief and learning processes to ensure that lessons are learnt from the deployment of Taser (Firearms Commands and CO20).

27. Following the deployment of Taser the following is undertaken by both CO20 and firearms commands

28. Taser discharges are no longer routinely referred to the Directorate of Professional Standards (DPS). Only if the discharge results in death or serious injury, or in danger to the public, or reveals failing in command, would the matter be referred to the IPCC. However, the MPS continues to assess the deployment of Taser in detail, and the guidelines for IPCC referral do not preclude forces referring discharges if they consider it appropriate.

29. The feedback processes to ensure lessons are learned from the deployment of Taser include:

• Post operational debriefs. CO19 and the other firearms commands that carry Taser conduct debriefs following all armed deployments, whether spontaneous or pre-planned in nature. This will include any instances where Taser is used. The debriefs are recorded and submitted to the Firearms Policy Unit (FPU). Points raised in debriefs (including positive points and learning points) are captured by the FPU and disseminated within the MPS either in training, briefings or changes to standard operating procedures. Where necessary any learning from incidents is fed into ACPO Use of Firearms Committee and the Home Office Scientific Development Branch (HOSDB).
• CO19 now has a member of staff dedicated to the role of organisational learning. The role ensures that all learning from debriefs is acted upon.
• CO20 also conduct debriefs following on from all Taser usage. The paperwork in relation to the use of force EAB and completed form 6624 are collated by a dedicated member of staff. Each incident is reviewed and any learning from incidents is instantly disseminated in either staff briefings or at officers’ annual update training. These are further reviewed by a Chief Inspector who has portfolio responsibility.
• All uses of Taser are reported by means of a ‘discharge evaluation form’ (6624), supported by a Force Medical Examiner (FME) report (in cases where the Taser is fired or drive stun used). These are reviewed centrally by the FPU and CO20 respectively.
• A MPS database is managed by the FPU and incorporates age, sex, ethnicity, type of Taser use, location, reasons for deployment and injury (if any) sustained. The database also records if the subject was suffering from emotional or mental distress at the time of the incident. A similar database exists in relation to CO20 officer use and is managed by a dedicated CO20 member of staff.
• Any learning that arises out of an investigation following a complaint either investigated by the DPS or IPCC is conveyed by means of learning recommendations. These are implemented as required through training, briefing or changes to SOPs.
• Any defects or suspected defects in Taser or cartridges are forwarded via the FPU
  to HOSDB.
• A ‘near miss’ is defined as “unplanned and unforeseeable event that could have resulted, but did not result in human injury, property damage or any other form of loss”. MPS near miss forms have now been specifically amended to incorporate firearms related issues, and capture Taser safety critical information. The information is fed back to the FPU, CO20, and Heath and Safety Branch (HR5). Any learning or change to policy or training is disseminated as described above.
• All unintentional discharges are reported to the FPU / Officer Safety Unit and monitored for the emergence of any safety critical trends.

30. Tactical developments for operational usage and their practical dissemination is the responsibility of in the case of firearms commands CO19 Training. Likewise for CO20 officers training is kept current and up to date with dedicated instructors. Training is constantly being refreshed incorporating not only lessons learnt in the MPS area but also nationally and internationally, this includes for initial training, refresher and re qualification courses.

CO19 Community Engagement Activity

31. Since 2009 CO19 now have a dedicated Chief Inspector with a portfolio lead for community engagement, diversity and partnership working. The Chief Inspector is supported by a Sergeant and two Constables. A number of initiatives have now been developed to engage communities across London to improve understanding, confidence and transparency in relation to the work of the command. Some of these initiatives are summarised below:

32. Operation Make Peace / Choices - This package is designed for 11-19 year olds and has the objectives of increasing awareness of the consequences of carrying weapons, the reasons that people become involved in gangs and armed offences, how the Police deal with those offences, the tactics that are used (including detailed information about Taser use by police) and what the likely outcomes are for someone in possession of a weapon, whether it is a gun or a knife. The package is predominantly delivered in schools and lasts for an hour utilising real life footage of armed officers dealing with an incident as well as depictions of first aid being administered and a funeral scene. This presentation will be augmented by the use of a drama workshop delivered in conjunction with the Greenwich and Lewisham Young Persons Theatre (named Choices) where the young people will be asked to come up with their own piece of work. There is no cost to the recipient as the project is funded through the Safer London Foundation and Families United, a charity set up by the families of victims of knife and gun crime. A representative of the charity will also attend and speak to the young people to deliver a very personal message on the effects violence. Operation Make Peace was the recipient of the MPS Diversity in Action Award from the Commissioner last year and also went on to win national recognition for Diversity in Action at the National Police Review awards.

33. This year to date nearly 8000 young people have attended Operation Make Peace / Choices presentations in schools, colleges and other establishments such as Feltham YOI. Feedback forms are completed in consultation with the school or establishment where the presentation is made (this year 77% of respondents described themselves from a BME background). The effectiveness of the presentation is currently subject of an academic review and the programme is currently part of Project Oracle (Mayors evaluation of youth intervention programmes).

34. Armed Policing - “Could You?” This is a presentation delivered to community members over 16 years old across London. In 2010 this was delivered to over 500 people and has included Borough Independent Advisory Groups, various community groups from a variety of social and demographic backgrounds, key opinion formers e.g. local councillors, local press, local judiciary, central MPS advisory groups and community leaders. The centre piece of this presentation is an interactive portable laser judgement range, similar to the one used by ARV officers as part of their training. It seeks to put the participant in the shoes of the Armed Officer during a scenario in order to give them more of an understanding of the challenges that the officer faces, i.e. the decision to shoot or not. They are talked through physiological changes due to stress, police tactics (including Taser), environmental awareness and justification. This activity is designed to prompt a discussion on armed policing in order to engender the views of the participants (this is facilitated by a CO19 officer and a member of the Senior Management Team). The programme has been updated for 2011 with updated equipment and scenarios. This will be delivered across various communities throughout 2011. From January 2011 participants will be asked to complete a questionnaire which captures confidence levels in armed policing both before and after the presentation. A full evaluation will take place after 6 months.

35. Metropolitan Police Specialist Training Centre (MPSTC, Gravesend Kent). Throughout 2010 a number of visits have been arranged to MPSTC. CO19 have been proactive in inviting key opinion formers such as MPA members, MPS Stop and Search Community leads, Chairs of Community Policing Community Groups (CPCG), local, national and international journalists, faith leaders, Government policy makers, Politicians, key community leaders, the Judiciary and academics to the training centre. Attendees receive a detail presentation about the work of the department, a presentation in relation to firearms training and the opportunity to witness training in progress, a full briefing on the firearms carried by police, a demonstration of firepower showing the effects of firearms and the opportunity to take part in a judgement range scenarios as per Armed Policing Could You as above. From January 2011 all participants will be asked to complete a questionnaire which captures confidence levels in armed policing both before and after the presentation. A full evaluation will take place after 6 months.

36. Firearms Master class: CO19 developed this concept in 2010. Community members are invited to attend, split into groups and asked to take on the role of planning a fictitious firearms operation. Community members are provided with intelligence and are asked to make a series of decisions in groups with respect to dealing with the fast moving incident. Community members are assisted by CO19 tactical advisors and at key parts of the exercise receive presentations from police officers who undertake key roles in the planning of firearms operation. This includes officers from CO5 - The Firearms Command. Community members are shown video footage of police tactics and are afforded the opportunity to ask questions of a panel of police firearms practitioners at the conclusion. This often covers issues surrounding post incident procedures following shootings, the use of less lethal options such as Taser and command and control questions. Feedback is captured and fed through the CO19 Organisational Learning Unit. In 2010 two events were held and delivered to over 160 people and included chairs from all 32 Borough Independent Advisory Groups and London Communities Together Partnership (CPCG chairs). There are a number of these events planned for 2011. Again from January 2011 participants will be asked to complete a questionnaire which captures confidence levels in armed policing both before and after the presentation. This will be evaluated after 6 months.

37. CO19 Confidence Project: CO19 have been working with the MPS Strategy and Improvement Unit to ensure that communities are better informed following CO19 officer deployments. CO19 now ensure that the local Safer Neighbourhood Sergeant is contacted following CO19 deployments by e-mail giving circumstances of the deployment and details of the tactical firearms commander should further information be needed. This is also sent with an offer of CO19 attending any community meeting to deliver a presentation or answer any community concerns in relation to a deployment. This has been in operation since 1st December and will be reviewed for its effectiveness in spring 2011. The Strategy and Improvement Unit have undertaken research alongside CO19 to understand confidence drivers in relation to post deployment. A leaflet has been designed which will be given out to community members post CO19 deployment, either following a spontaneous event or a pre planned operation. This will be done by and in conjunction with the local Safer Neighbourhood Team and in consultation with the local borough SMT. This can be further supported by CO19 officers attending community meetings to either deliver a presentation or address any concerns following an operation.

38. Community Police Consultative Group (CPCG) and other meeting attendance: CO19 regularly attends CPCG meetings primarily in high gun crime boroughs such as Lambeth discussing key firearms related issues e.g. police use of Taser. CO19 is represented at the MPA Stop and Search Scrutiny meetings and also attends a number of Borough based local meetings e.g. Southwark Youth IAG meeting.

39. Borough Liaison: Each Borough across London has a CO19 liaison officer. This officer (normally an ARV officer) will link directly with the borough and explore opportunities for the delivery of CO19 community engagement work as detailed above. The CO19 internal MPS website also has full details of all engagement opportunities that are available.

40. Post incident: Where a police firearm has been discharged, whether injuries have been sustained or not a member of CO19’s SMT will attend at the invitation of the local Borough Commander any Gold Group and undertake any additional engagement activity as necessary - including the above.

41. CO19 Volunteer Programme: In 2010 CO19 launched a recruitment programme to recruit a number of community volunteers to assist as role actors in its various training programmes. This benefits the command in that CO19 is more transparent to the community in how training is delivered to officers, and also having community members as role actors makes scenario training for officers more realistic.

42. Armed Police Reference Group (APRG): The APRG meets quarterly and is a representative group of community members. The terms of reference for the group are:

• Through significant community and stakeholder engagement, to support the ongoing development of tactics, weapons, equipment and training to ensure that the MPS can respond effectively to incidents requiring the deployment of armed police officers.
• To create ongoing relationships with community representatives to help develop their understanding of issues associated with the police use of firearms.
• Help those involved in the management of firearms operations to understand the impact of these within communities
• Provide advice for the management of community issues following specific critical incidents and identify lessons to be learnt
• Consult on operations likely to impact on public safety

CO20 Community Engagement Activity

43. The Territorial Support Group (CO20) has been engaged in a comprehensive community engagement programme regarding Taser since December 2007. Each Borough Commander has been afforded the opportunity for CO20 officers to provide a presentation educating the public they serve, regarding the subject of Taser.

44. Officers from CO20 have been engaged in this process since 2008 and to date have visited nearly all the boroughs in London, some on more than one occasion to discuss the implementation of Taser as a tactical option for unarmed officers. The Metropolitan Police Authority received the presentation in December 2007 and agreed its format would address the needs of the community. Indeed some members of the Authority asked for the presentation to be delivered in their Boroughs.

45. CO20 have delivered the presentation to 22 Borough CPCG groups to date, the MPS central Independent Advisory Group, Trident IAG, The Armed Policing Reference Group, and in excess of fifteen local Borough IAG groups to date. The presentation has also been delivered to partner agencies including the London Ambulance Service, a number of NHS mental health groups (Inc St Pancras and Highgate) and a number of youth groups and organisations. CO20 ask participants to complete a questionnaire in order that the presentation can be regularly updated and improved. CO20 continue to be proactive in this area and are always willing to attend any community meeting to discuss the deployment and use of Taser.

46. The presentations are at least an hour in length. The presentation includes an overview of the history of Taser and its use (both internationally and in the UK), an overview of the extensive training officers receive, details of aftercare provided following a incident, an overview of the different levels of force associated with Taser (from simply drawing, to placing the red dot aiming sight on a person to actually firing the Taser or using the device in drive stun mode), accountability in relation to the use of force (including legislation) and how the MPS govern and monitor Taser use. This is followed by a practical demonstration of the weapon on an inert target. There is also an opportunity for community members to discuss the use and any concerns or questions with the officers at the conclusion.

47. Officers from CO20 have also presented at the University of Law in New York to the 31st International congress in Law and Mental Health. The congress acknowledged CO20 in relation to Taser ‘as having the best training in the World and the governance and operational deployment protocols, some of the most comprehensive anywhere’. This was replicated at an international policing conference in Frankfurt where CO20 officers were invited to present on operational deployment and training protocols.

48. Amnesty International has always been critical of the use of Taser in law enforcement. CO20 invited Oliver Sprague the director of Police and Military issues at Amnesty to attend a training course. As a result, he publicly acknowledged MPS Taser training and insisted this was a benchmark for others to aspire to.

C. Other organisational and community implications

Equality and Diversity Impact

1. The MPS recognises the importance of monitoring all aspects of Taser usage. An officer defined ethnicity of the subject(s) involved is made at the time of the incident. This has been identified as the most effective method of recording as previously self defined ethnicity in many cases was left as blank.

2. Comparative analysis has been conducted for the period of 2008 to present for both CO20 and CO19 usage. This covers gender, age, ethnicity, disability and those people suffering from EMD.

Gender

3. Overall, the overwhelming majority of subjects involved in Taser incidents are males. For CO19 in 2008 this represented male 95.28% v 2.83% women, 2009 male 98.52% v 1.47% women and 2010 98.82% male v 1.17% women. For CO20 in 2008 this represented 96.3% male v 3.64% women, 2009 95.1% male v 4.89% women and in 2010 95.8% male v 4.16% women.

Age

4. For CO19, in 2008 the under 30 age group represented 60.37% of total use, 23.58% represented age range 30 to 39, 11.32% represented age range 40 to 49 years old, 4.47% were aged over 50 years old. In 2009 the under 30 age group represented 54.41% of total use, 17.64% were aged 30 to 39, 14.70% aged 40 to 49 years old and 10.29% over the age of 50 years old. In 2010 the under 30 age group represented 64.7% of the total use, 20% were aged 30 to 39, 9.41% were aged 40 to 49 years old and 5.88% were over 50 years of age.

5. The table below represents where Taser has been deployed against persons under the age of 18 years old from 2008 to 2010, including the type of use and ethnicity breakdown.

6. The youngest person to be involved in Taser was 14 years old (14.3.08) the oldest being 75 years old (25.5.10) a red dot incident. One of the challenges currently facing the MPS is the growing trend towards young people becoming involved in violence and gang activity. This is shown in the trend of young people homicides in the Capital 2009 being 43 and 2010 17 young people. CO19 are frequently tasked to high ‘gang activity’ areas and there has been an increasing and worrying trend in young people being stopped with weapons. Whatever the person’s age, officers have to deal with, make judgments’, and deploy proportionate responses to the danger presented by the individual members of the public concerned.

7. For CO20 similar trends apply, in 2008 61.24% persons where Taser was deployed were under 30 years old, 20.0% were aged 30 to 39 years old, 14.8% were aged 40 to 49 years old and 3.8% were aged 50 or over. In 2009 43.1% were under 30 years old, 28.1% were aged 30 to 39 years old, 24.8% were aged 40 to 49 and 3.92% were aged 50 or over. In 2010 34.93% were under 30 years, 39.75% aged 30 to 39 years old, 22.2% aged 40 to 49 years old and 3.01% were over 50 years old

8. The youngest person involved in a Taser incident with CO20 was 13 years old (in 2009) and the oldest being 58 years old in 2008.

Disability

9. Disability is not specifically monitored in relation to the use of Taser. However Taser use in relation to those people suffering from emotionally distressed behavior is monitored (previously referred to as Special Population Group).

Emotionally, Mentally Distressed Persons (EMD)

10. The term emotionally or mentally distressed is used to describe individuals who may behave in an unexpected, extreme or challenging manner as a result of a mental health problem, or emotional distress (ACPO manual of guidance p76). Authorised firearms officers and officers from CO20 receive extensive training in relation to members of the population who do not behave in an expected manner. This can be in the form of psychiatric illness (but can include the use of drugs or alcohol). This awareness of a person’s response to police requests and commands also extends to persons who may not comprehend police instructions due to deafness, where English is not the persons first language or where the subject has learning difficulties. Officers also receive training in relation to cultural differences that may result in a person responding differently when verbally challenged and also an awareness of how their language and tactics could be interpreted.

11. Authorised Firearms Officers and CO20 Taser trained officers receive specific training in relation to:

• Confrontation handling
• Awareness of other person’s non-verbal communication
• Threat Assessment
• Subject behaviour
• Drugs / unpredictable behaviour
• Surrender
• Vulnerable persons / Emotionally, Mentally Distressed

12. Negotiation training is an essential element to assist in building rapport and opening up lines of communication. Once taught, officers are expected to demonstrate their learning throughout practical exercises and final assessment.

13. CO19 have been working in partnership with NHS Mental Health Trust Hackney (Mellow). All CO19 officers have now received additional training in relation to dealing with subjects displaying emotional, mental distress. This was delivered by a number of mental health experts to increase understanding and recognition of mental health and de-escalation techniques. Officers also were afforded the opportunity to hear on a one to one basis from mental health service users about their experiences of being stopped by armed police. A full review of all training in relation to dealing with EMD issues for armed officers and the training that Firearms Commanders receive is currently being conducted (recommendation from Coroner following the inquest into the death of Mark Saunders).

14. The decision whether to record an individual as emotionally or mentally distressed is the responsibility of the officer completing the form 6624 (where this data originates from). This will either be from own observations or by FME observations.

15. In 2008 17.36% (14 out of 124) of the total number of people where Taser was deployed (all armed OCUs) were reported as being EMD. In terms of ethnic breakdown 42.85% were white, 35.71% were from a black background and 21.42% Asian background. In 2009 12.78% (9 out of 74) of the total number of people where Taser was deployed (all armed OCUs) were reported as being EMD. In terms of ethnic breakdown 44.44% were of white background, 33.33% were from a black background, 11.11% were from a mixed background and 11.11% was not stated. In 2010 9.1% (10 out of 91) of the total number of people where Taser has been deployed (all armed OCUs) were reported as being EMD. In terms of ethnic breakdown 60% were from a white background, 20% from a black background, 10% from an Asian background and 10% was not stated. A breakdown of EMD Taser deployments in shown at Appendix 1.

16. In 2008 20% (51 out of 255) of the total number of people where Taser was deployed by CO20 officers were reported as being EMD. In terms of ethnic breakdown 47.05% were white, 41.1% were from a black background, 3.92% were from a mixed background, 3.92% were from an Asian background, 1.96% were from a Chinese background and 1.96% were from other ethnic background. In 2009 26.2% (36 out of 137) were recorded as suffering from EMD. In terms of ethnic breakdown 41.66% were white, 36.11% were from a black background, 13.88% were from an Asian background, 2.77% were from a mixed background, 2.77% were Chinese and 2.77% were recorded as not known. During 2010 29.5% (44 out of 149) of the total number of people where Taser was deployed by CO20 were recorded as suffering from EMD. In terms of ethnic breakdown 70.45% were white, 22.72% were from a black background, 2.27% were from an Asian background, 2.27% were from a mixed background and 2.27% were reported as being from other ethnic background.

17. Armed OCU data shows a reduction over the three years of those being involved in Taser that are suffering from EMD. CO20 data shows a higher percentage of persons dealt with suffering from EMD. This is likely to be due to the type of incident CO20 officers are asked to resolve for example violent person resolutions.

Ethnicity

18. Appendix 1 captures all CO19 Taser use along with officer defined ethnicity coding (16 in total) following Taser deployment. As an overview of the data, the data has been grouped codes W1, W2 and W9 together as white, B1,B2 and B9 as black, A1, A2, A3, A9 and O1 as Asian, M1, M2 and M9 as mixed background, O9 as other background and NS as not stated.

19. In 2008 31.96% (39 out of 122) of the total of number of people where Taser was deployed (all armed OCUs) were from a white background, 36.06% (44 out of 122) were from a black background, 6.55% (8 out of 122) were from a Asian background, 14.75% (18 out of 122) were from a mixed background, 2.45% (3 out of 122) were
from a Chinese background, 2.45% (3 out of 122) were from other ethnic background and in 5.73% (7 out of 122) no ethnic code was provided.

20. In 2009 23.69% (17 out of 72) of the total number of people where Taser was deployed (all armed OCUs) were from a white background, 51.38% (37 out of 72) were from a black background, 5.55% (4 out of 72) were from a Asian background, 5.55% (4 out of 72) were from a mixed background, 6.94% (5 out of 72) were from another ethnic background and 6.94% (5 out of 72) reports had no ethnicity data included.

21. In 2010 (to 15.12.10) 30.33% (27 out of 89) of the total number of people where Taser was deployed (all armed OCUs) were from a white background, 50.56% (45 out of 89) were from a black background, 4.49% (4 out of 89) were from an Asian background, 7.86% (7 out of 89) were from a mixed background, 6.74% (6 out of 89) reports had no ethnicity data attached.

22. Between 2008 and 2010 29.32% (83 out of 283) of the total number of people where Taser was deployed (all armed OCUs) were from a white background, 44.5% (126 out of 283) were from a black background, 5.65% (16 out of 283) were from an Asian background, 10.24% (29 out of 283) were from a mixed background, 1.06% (3 out of 283) were from a Chinese background, 2.82% (8 out of 283) were from other ethnic background and in 6.36% of cases there was no ethnicity data recorded.

23. In relation to CO20 officer use (appendix II) provides a detail breakdown of officer defined ethnicity for Taser deployments. The number for total deployments includes all officers that were at the scene and deployed Taser. The Primary deployment data measures the highest level of deployment to the threat. The data has been grouped as above. In 2008 36.86% (94 out of 255) people of total Taser usage were of white background, 49.0% (125 out of 255) were from a black background, 5.88% (15 out of 255) were from an Asian background, 3.52% (9 out of 255) were from a mixed background, 0.39% (1 out of 255) were from a Chinese background,1.17% (3 out of 255) were from another ethnic background, and 3.13% (8 out of 255) no ethnicity data was recorded.

24. In 2009 38.68% (53 out of 137) of total CO20 Taser usage were of white background 48.17% (66 out of 137) were from a black background, 5.83% (8 out of 137) were from an Asian background, 2.91% (4 out of 137) were of mixed background, 0.72%(1 out of 137) was Chinese, 0.72% (1 out of 137) was from another ethnic background.

25. In 2010 46.9% (70 out of 149) of total CO20 Taser usage were of white background, 39.59% (59 out of 149) were from black backgrounds, 3.35% (5 out of 149) were from an Asian background, 3.35% (5 out of 149) were from a mixed background, 2.01% (3 out of 149) were from other ethnic background, 4.69% (7 out of 149) had no ethnicity data recorded.

26. In summary over the three year period the following trends are apparent for CO20 Taser deployment. 40.11% (217 out of 541) of subjects were of a white background, 46.2% (250 out of 541) were from a black background, 5.17% (28 out of 541) were
of an Asian background, 3.32% (18 out of 541) were from a mixed background, 0.36% (2 out of 541) were from a Chinese background, 1.29% (7 out of 541) were from other ethnic background and 2.77% (15 out of 541) had no ethnicity codes recorded.

Disproportionality

27. Figures both for TSG and armed OCUs show that you are more likely to be involved in a Taser incident with police if you are from a black, minority, ethnic community. Unlike the use of stop and search powers officers deploying Taser are doing so in response to a threat and on the majority of occasion have responded to a call from the public or the interaction forms part of a pre-planned operation in response to specific intelligence. Taser use unlike the exercise of stop and search powers is reactive rather than proactive, and this must be considered when addressing issues in relation to disproportionality.

28. Both CO20 and CO19 officers are routinely deployed to either in a pre-planned capacity or responding to calls from the public to boroughs, which are demographically diverse with high social and economic deprivation. Often these boroughs have the higher levels of recorded gun enabled crime and offences involving violence. The use of either conventional firearms or less lethal options will always be in response to the threat posed and fully recorded and justified in the officers’ notes.

29. There is stringent monitoring in place of all Taser usage. All use of force must be justified and recorded. Officer’s individual justification for the use of force must be recorded as part of the evidence action book, which is supervised by the officers 1st line supervisor. In cases where charges are bought this evidence is tested in the courts. All Taser use is also recorded on form 6624. For Firearm Commands, the FPU collates and quality assures that Taser is being used properly. This is the same with CO20 who have a dedicated Sergeant performing this role. The FPU and CO20 also ensure that any training needs are incorporated in the Taser refresher or reclassification process. Any improper usage of Taser would result in an officer’s authorisation to carry being removed and full investigation instigated.

30. CO20 officers having had three days training on the use and deployment of Taser are refreshed with an eight hour training session once a year. This again tests judgment, tactical awareness and justification of use of force. Training also includes lessons on recognising and dealing with person with EMD. In the case of firearms officers, ARV officers attend training every six weeks and are again tested with regards to judgment, tactical ability and justification in the deployment of both conventional and less lethal options. This is done using both live role play exercise and judgment range training. EMD scenarios, cultural awareness and dealing with language barriers are all covered in this training. Reactive firearms officers attend tactical refresher training twice a year where they also receive this input.

31. The Armed Police Reference Group (APRG) (independent advisory group on the use and deployment of firearms in the MPS) monitor and where necessary challenge the usage of Taser in both armed OCUs and that of CO20 and is a standing agenda item. Members of the APRG have watched the delivery of Taser training and have accompanied officers on operations when it has been used.

32. Both CO19 and CO20 have a dedicated Professional Standards Unit. The units examine all complaints arising from Taser usage /use of force and identify trends from complaints. Both units have delivered training / briefing to officers on ‘key encounters’ and improving customer service and satisfaction.

33. CO20 have completed an Equality Impact assessment in relation to use of Taser within communities, this is constantly reviewed and refreshed. CO19 have a wider EIA in relation to the standard operating procedures for police use of firearms. Both are included for reference at Appendix 4 and 5).

34. CO20 Taser use has been stringently monitored by the MPA. This has been in the form of an oversight group (chaired by Ms Cindy Butts) whom oversaw the introduction of Taser for use by the TSG. CO20 continue to supply weekly statistical information about Taser deployment to the MPA. The Firearms Policy Unit undertakes similar statistical collection on behalf of all armed OCUs.

Complaints

35. Appendix 6 depicts the amount of complaints made by the public where Taser has been mentioned by the complainant. Since 2007 there have been a total of 27 complaints. 20 of those complaints were unsubstantiated, withdrawn or not upheld. The total for substantiated complaints is zero. When considering the large amount of deployments and use of Taser, the number of complaints is relatively small. All complaints are thoroughly investigated either by the DPS or IPCC.

Consideration of MET Forward

36. The use of firearms by police including less lethal options for example Taser must maintain the confidence of the community. The extensive community engagement work undertaken by both CO19 and CO20 must continue to ensure that communities are both educated and informed about the police use of firearms. Work must also continue to monitor and address disproportionality in the use of Taser to maintain the confidence of minority communities.

Financial Implications

37. There are no financial implications highlighted in this report.

Legal Implications

38. There are no direct legal implications arising, as this is a report for information only.

39. This report highlights the circumstances that necessitate the use of force by the police service. Such use of force is set out under various provisions, and is primarily contained within Common Law; s3 Criminal Law Act 1967, s117 Police and Criminal Evidence Act 1984 and the Human Rights Act 1998.

Environmental Implications

39. There are no environmental implications identified in this report.

Risk Implications

40. There is a risk to community confidence in relation to police deployments with Taser particularly within the BME community. The report has outlined the work that both CO19 and CO20 undertake within communities to address issues surrounding disproportionality.

D. Background papers

• There are several papers in relation to Taser contained on the MPA website.

E. Contact details

Report authors: Robert Atkin, Chief Inspector CO19 Specialist Firearms Command, on behalf of Jerry Savill, Commander, Central Operations, MPS

For information contact:

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

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