Gun Crime Scrutiny 2004 recommendations progress report

Report: 10
Date: 31 March 2005
By: Commissioner

Summary

This report updates members on progress to implement the recommendations arising from the 2004 Gun Crime Scrutiny, together with any other significant developments in gun crime related areas.

A. Recommendation

That members note the content of the report and in particular new issues and opportunities arising.

B. Supporting information

Introduction and Background

1. Co-ordination and Policing Committee approved the recommendations arising from the gun crime scrutiny in February 2004, shortly before the full Authority considered the final report. The last recommendation from the scrutiny was that members should receive a regular six-month report covering:

• Progress in implementing the scrutiny recommendations
• Progress on other gun crime projects.
• Any other significant issues or developments around gun crime.

2. This is the second six monthly update report.

3. Appendix 1 that details the main points of progress since the last update in September 2004.

4. The main report below discusses the principal issues and developments arising in the interim, which need the particular attention of the members.

Gun Crime Scrutiny Recommendation Progress

MPA lead Recommendations

5. Recommendation 9 concerning the identification of alternative role models is now being progressed on several fronts encouraged by central government:

• The Black Police Association Leadership Programme for schools
• The GLA Working Links education project for London schools
• The Dorothy.Com school video scenarios that encourage a positive and safe response to violence incorporating role models.

6. Recommendation 10 concerning an expanded role for the Disarm Trust has been superseded by several important developments:

• The establishment of the Home Office led “Connected Project” which sets out on a dedicated web site good practice for community action against gun crime, contact database, funding advice for projects and occasional direct grant facilities
• It is proposed that the Connected Project now expands into an enhanced role to advice on violent crime approaches within which gun crime would feature. This reflects growing concerns over the rate of violent crime being reported and Boroughs’ concentration on gang and knife crime issues, which quantitatively (recorded crime) are much greater than gun criminality.

7. Recommendation 12 concerning an outright ban on all replica weapons being manufactured and sold is ongoing. After vigorous lobbying from the MPA, central government is still considering the results of the national consultation on firearms legislation undertaken in 2004. Options are currently being considered by Home Office Ministers.

8. Recommendation 14 concerning the promotion of the new five year mandatory sentence for carrying any form of firearm illegally in a public place had been taken up by central government with the development of several line drawings making people aware of the danger of imprisonment. These together with local radio broadcasts had been targeted at hot spot boroughs. This campaign had been perceived as being moderately successful but now requires reinforcement effort on a well co-ordinated scale.

MPS Lead Recommendations

9. The clarification of roles and responsibilities advocated by recommendation 1 had led to new working practices as set out in the September 2004 update. Borough requests for support from the Serious Crime Directorate (SCD), SCD 8 Trident and various reactive units in SCD7 through a single point of contact continues to work well. A 24/7 SCD Reserve Desk is now well established.

10. Emerging trends in gun crime had been encapsulated in a National Intelligence Model problem profile on gun crime published by the SCD10 Firearms Focus desk. This was distributed to key units and boroughs in February. See recommendation 2.

11. The expansion of SCD8 Trident’s role in investigating all firearm discharge incidents (Trafalgar) not just those black on black crimes, had largely addressed the issue of SCD8 working with other distinct communities. The proactive intelligence, operational and prevention assets of Trident had been expanded accordingly to meet these new demands. The remaining issue concerns the investigation of all gun-enabled homicides, which would be removed from SCD1 Homicide giving Trident a holistic responsibility and specialism in all forms of serious gun violence. To be reviewed regularly as part of recommendation 3.

12. Over the last year, much work has been done by Government Office for London, TPHQ and SCD to encourage the Boroughs to scope out their budgetary requirements to counter serious gun violence. This has now been re-enforced through guidance given for the completion of the 2004 Crime and Drugs Audit and 2005-8 Crime and Drugs strategy. This firmly positions gun criminality as a specific area of investigation and strategic development. Subsequently, budget requirements will be identified and placed before the new Safer and Stronger Community Fund, which replaces the Building Safer Communities Fund. The separate Basic Command Unit (BCU) fund provided directly to the police also has provision for gun crime project work but this has rarely been taken up in the past.

13. Recommendation 6-8 concerning linked work on drug and gun criminality is complicated due to the number of variables between the two areas:

• There is not a causal link between gun and drug criminality, nevertheless there are many strong to weak correlations.
• The behaviour of gun criminals can be hugely aggravated by drug misuse leading to extreme violence and a sense of invincibility. (See Gun Crime in London. Sustaining the Success story July 2004)
• It is accepted that many criminal gangs use guns to intimidate and enforce drug supply and territorial control.

14. Police and central government priorities are changing rapidly to counter violent crime in ALL its forms and to take a holistic approach albeit segmented. It has been particularly difficult to engage the Boroughs on the basis of gun crime alone and there has been a need for realism in countering the vastly greater problems of knife and gang related violence.

15. This change is leading to a new approach examining the drivers for violence particularly alcohol, drug misuse, mental health and general intolerance within individuals which lead to a propensity for extreme violence disproportional to the circumstances. Guns and drug misuse will be key constituent elements of this investigation and strategic approach.

16. One of the consequences of this will be a new focus on dismantling criminal networks many of which use guns and are involved in the supply of controlled drugs. See MPS policing objectives 2005-6.

17. In response to this change of focus the SCD led Strategic Gun Crime Prevention Board is to expand its role to address all serious violent crime.

18. A further initiative, which may support recommendation 6, is Project Asset being developed by DCC2 Corporate Strategy Unit. Prototype software has been established which searches different police automated indices such as CRIS, CRIMINT, CUSTODY, DNA, STOPS and HOLMES for behaviour patterns and high-risk indicative features for offenders, victims and locations alike. This could potentially be used as a research tool-linking drug and gun crime features.

19. Recommendation 15 continues to be developed under the “Safe and Sound” initiative. This is now managed by a sub group of SCD8 Trident targeting high-risk clubs and other licensed premises prone to gun violence. In late 2004 MPS Clubs and Vice secured £40K of Home Office funding for the project. This money is being distributed on a grant basis to licensed premises within nine pilot Boroughs grouped into three waves:

• 1st wave Hackney, Haringey and Lambeth
• 2nd wave Southwark, Tower Hamlets and Brent
• 3rd wave Richmond, Kingston and Havering (Operation Blunt Outer Boroughs)

The local police survey problem premises and then bid to the Safe and Sound managing group for a grant towards equipment (search arches/wands, hand held CCTV) and training.

20. Recommendation 13 concerning the Witness Protection Programme continues to be a very controversial area. Last year 2004 there were over 100 high risk categorised threats to life that necessitated a full risk management plan for each case. This involved a menu of options including intensive surveillance, Osman warnings and taking the victim/witness into protective care using the witness protection programme. These demands are unlikely to diminish due to our duty of care responsibilities to all people whether or not they are involved in crime themselves.

21. The Mobility Scheme run from a central Home Office unit arranges accommodation for subjects at risk throughout the country using an assortment of premises. The arrangement time however takes a minimum of three weeks to six months in the case of premises in the South East. Furthermore in the case of subjects who do not have temporary leave to stay in the UK this facility is not open to them. This is therefore NOT an emergency facility. The MPS relies heavily on its own safe houses and emergency temporary accommodation.

22. An increase from £900K to £1.5 million for 2005-6 has been approved on the unit’s budget based on the large increase in protection and change of identity needs resulting from over 100 high risk threats to life in 2004 alone. Work has increased particularly in Trident connected threats due to the growing trust in the OCU’s capability.

23. The mobility scheme although helpful does not cater for the MPS’s emergency witness protection needs in terms of resources for protection and provision of emergency accommodation.

• Recommendation 16 continues to be developed and the MPS has directly supported Dorothy.com in the following areas:
• The provision of £70K for developing the 9 -11 transition package.
• The purchase of 40,000 primary school packs for 9-11 year olds and associated teachers training
• The development of ‘watch over me’ series 2
• Purchase of teacher and police officer training packs associated with ‘watch over me’ phase 2 for all 32 boroughs
• The development of a training programme for the safer schools officers

Progress on Other Gun Crime Projects

Communities that Care (CtC)

25. The phase I survey of secondary school students (years 7-10) in the six Trident Boroughs has now been completed and analysed. 15,000 students took part out of a total target group of 38,000. The numbers taking part vary greatly between the Boroughs but each is recognised as an acceptable total for analytical purposes. A bespoke ‘risk and protective’ analysis report and summary has now been sent (10 copies each) to the six Borough Commanders and local Authority Chief Executives.

26. Phase II involves CtC presenting the findings to key stakeholders in each borough. Great effort has been made to encourage the use of this data in the Crime and Drugs Audit and to inform the new 3-year Crime and Drug Strategy. They contain a wealth of information about weapon, drug and gang criminality. Some boroughs are also using the findings to influence other children and young person strategies. It is proposed that CtC present their findings individually to the MPA in a special presentation.

27. A project implementation group has been established by SCD 3(2) to oversee the implementation of phase III.

28. Phase III involves the development of one neighbourhood project in each Borough to tackle serious violence. The selection will be dependent on the survey findings. Phase III will be funded with £100K of central government funding direct to CtC to help lever match funding opportunities locally.

GLA ‘Calling the shots’ Education Project

29. The MPS has been a member of the programme board developing the GLA education package ‘calling the shots’. This is an innovative and practical education programme encouraging young people in London to develop a positive lifestyle away from violent culture. This programme will compliment the Miss Dorothy packages by focusing on young people more at risk of involvement in violent crime.

Gun Crime Conference December 2004

30. The Gun Crime Conference took place on 2 December 2004 at Simpson Hall, Hendon. The principal speakers were Minister of State Hazel Blears and the then Commissioner designate Sir Ian Blair.

31. The purpose of the conference was to raise awareness of the impact of gun crime on individuals and communities and to launch the MPS document ’Tackling gun crime London 2004 to 2007’. Several key agencies representing victims were present such as Mothers Against Guns. The Commissioner made it clear that the men of violence involved in gun crime would be targeted in the forthcoming policing plan for 2005-6 with a range of overt and covert measures.

32. The conference received extensive positive local and national media coverage, with particular interest in the unveiling of a sculpture ‘Map 272183’ formed from parts of the 3,085 weapons handed in during the 2003 amnesty.‘

Crime Stoppers Re-Launch 2004

33. In September 2004 Crime Stoppers re-launched their communication materials with a focus on violent crime. This emphasised the anonymity of the contact and the need to stop serious violence. The launch was conducted in partnership with Capital Radio and Choice FM who broadcast a series of new advertisements for the scheme.

Other Significant Gun Crime Issues

Emerging Trends

34. The overall volume of serious gun violence against the person has remained largely constant over the last year and SCD Trident has been successful in containing outbreaks of violence and retributive strikes amongst its principal nominals through excellent intelligence work and rapid prosecution of offenders. Similar high levels of proactive work have been implemented to protect potential victims and witnesses who are under a serious threat to life.

35. Trident highlights the growing propensity to use extreme violence in so called ‘disrespect’ incidents. For example stepping on someone’s feet at a party, a minor traffic incident or insulting taunts. Shootings occur disproportionately for these reasons and are not about drug market control issues as perceived in MPA recommendation 6-8. The behaviour of the offender can nevertheless be affected by drug use and this may be one of the drivers for such a disproportional response.

36. However at the other end of the scale there is increasing evidence that low to medium levels of intimidation and violence are occurring amongst young British born nationals of all ethnicities but especially white - British, using converted and non lethal barrelled weapons such as BB and cap guns. SCD liaison work with the South London Trident Boroughs and Lewisham reveal a growing profusion of BB and cap gun availability which look and feel like real lethal barrelled guns. These are openly and legally for sale in a network of sports, toy and hardware stores. They are purchased by or for a relatively young age band (10-16) and inevitably reinforce the gun culture, leading to a graduation to more lethal weapons. Both Lambeth and Lewisham have carried out extensive operations against this type of sale with Trading Standard Officers. Warning notices have been attached to each pack and overt sale promotion discouraged.

Supply Side Intelligence

37. SCD10 and Borough BIUs have highlighted the very limited intelligence about supply side issues connected to gun criminality. There is very limited knowledge about the scale and type of:

• The conversion market
• Leakage from the legal arms trade
• Military leakage
• Supply routes

Operation Bembridge

38. This operation was set up as a result of intercepted guns found in the public and private courier postal sector leading to concerns over the scale of supply using Internet based wholesalers such as Guns2U based in France. This is an overnight postal service requiring no documentation apart from payment details. A full range of lethal weaponry was available.

39. The American Internet Service Providers supporting Guns2U were monitored and a series of controlled deliveries carried out over two phases.

40. Much vital intelligence was collected and illegal arms supply uncovered, however the majority of receivers were previously unknown persons ordering firearms for defensive or ornamental purposes. From the MPA’s perspective this has certain implications regarding an otherwise law abiding customer group arming themselves to defend against attack by intruders at home. This was demonstrated in several high profile incidents during the Autumn 2004.

Home Secretary’s Round Table

41. The Home Secretary’s Round Table meetings on gun crime have not met since the resignation of the previous Home Secretary. MPS await notification as to whether they will be re started. In the meantime consideration is being given by the GLA, MPA and GOL through the violent crime prevention partnership in establishing a structured network and coordination of voluntary and community leaders involved tackling gun enabled criminality.

Managing Danger Appraisal

42. In August 2004 an appraisal was commissioned by SCD tasking and co-ordinating Group to investigate the effectiveness of structures and systems for managing violent and dangerous situations overarching victim, offender and locational issues.

43. This appraisal over three months reported in January 2005 to DAC Griffiths making forty one recommendations for linking intelligence systems, specialist desks at Borough level and expanding the use of the MAPPA framework to encompass the men of violence including gun criminals. This appraisal has a direct relevance to recommendation 6-8 of the MPA scrutiny report

SCD CDRP Liaison Officers

44. In January 2005 AC Ghaffur authorised the establishment of thirteen SCD Detective Superintendent liaison officers for the thirteen hot spot Borough Crime Disorder Reduction Partnerships (CDRPs).

45. The purpose of this is to represent and facilitate SCD interests onto the local Borough CDRP agenda ensuring serious violent crime (including gun crime), as it effects each Borough, is properly addressed and SCD assets are properly aligned.

46. The effectiveness of this approach will be further reported on in future updates once this role has been developed.

3-Year Action Plan

47. A three year action plan has now been developed by the MPS to directly underpin the document “Tackling Gun Crime in London 2004-7”. This is the primary reference document outlining specific intelligence, enforcement and prevention elements that go towards the overall control strategy.

DFES Engagement

48. During the course of the CtC project difficulties were experienced in engaging effectively with DFES central to develop the different phases at a local and regional level. GOL supplied its Education officer but efforts to get DFES’s help in accessing schools and developing and coordinating gun crime educational packages have remained inconsistent and difficult.

ACPO Gun Crime Prevention Lead

49. It is confirmed that the ACPO lead on Gun crime prevention will be held by Commander MPS i/c Serious and Organised Crime Group, currently Commander Cressida Dick.

ACPO Gun Crime Conference 5 April

50. The ACPO, Strategic Criminal Use of Firearms Group (SCUF) is holding a gun crime conference on 5 April in Manchester. The conference will launch an ACPO gun crime Strategy.

C. Equality and diversity implications

1. The gun crime scrutiny found that although gun crime still disproportionately affects the black community, it is rising among other ethnic groups. The scrutiny sought to ensure that all minority communities would receive the appropriate level of focus in future.

2. Recommendation 2 proposed an analysis of long-term trends in firearm offences to pick up areas of growing concern in minority communities

3. Recommendation 3 proposed a possible expansion of the remit of Operation Trident to the communities identified.

4. Recommendation 5 was designed to ensure that the resources would be in place to support an expanded remit.

5. Young people are more affected by gun crime than other parts of the community and the scrutiny contains several recommendations to address this, notably recommendations 9, 15 and 16.

6. The scrutiny highlighted the unequal impact of gun crime on different parts of the community and developed recommendations aimed at reducing it.

D. Financial implications

None in respect of this report, which is purely for information purposes

E. Background papers

• MPA Gun crime scrutiny final report
• SCD3 Tackling Gun Crime in London 2004-7 Strategy and Action plan
• SCD3 Gun Crime in London Sustaining the Success Story 2004
• SCD10 Gun Crime in London, Problem Profile 2005

F. Contact details

Report author: Inspector James Cooke, Specialist Crime Reduction Team SCD3(2)

For more information contact:

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

Appendix 1: MPA Gun Crime Scrutiny Report 2004 Recommendation Progress - March 2005 (2nd Update)

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