Satisfaction gap between White and BME victims of crime

Report: 9
Date: 3 September 2009
By: AC Territorial Policing on behalf of the Commissioner

Summary

The purpose of this report is to provide an update regarding the satisfaction gap between white and black and minority ethnic (BME) victims of crime reported to the SOP in April 2009. The report provides background information regarding the satisfaction gap and details the work currently being undertaken by the MPS to reduce the gap.

A. Recommendation

That members note the content of this report and progress being made to narrow the satisfaction gap between white and BME victims of crime

B. Supporting information

General performance on the BME satisfaction gap

1. The User Satisfaction Survey (USS) measures victim satisfaction with the service received from the police. The results are gathered through interviews with 18,000 London victims each year and focuses upon burglary, violent crime, vehicle crime, road traffic accidents and racially motivated crime. The survey enables comparisons to be made between the satisfaction levels of white and BME victims of crime - using the HO measure ‘Satisfaction gap between white and BME victims of crime [ref: APACS 1.2] Self-defined ethnicity is collected in the survey. White respondents are those who define themselves as 'White British', 'White Irish' or 'White Other'. All other respondents, with the exception of 'Refused' or missing cases, are in the non-white group.

2. HO national results indicate white victims of crime generally express higher levels of satisfaction with the service received from the police than BME victims. At a national level the satisfaction gap currently stands at 5.7% as of March 2009 (this is the most recent data available at a national level on IQuanta).

3. Current performance on the satisfaction gap for the MPS is 4.7% for the 2008/09 financial year. This places the MPS second within its most similar group (see figure 1).

Figure 1: White / BME gap for MPS and Morris Steering Group

4. The satisfaction gap at the MPS has broadly unchanged at around the 5% mark over the past 3 years (See figure 2).

5. It is not possible to generate robust BOCU data on the BME satisfaction gap. The sample size of the USS at the BOCU level is typically 600- 650 victims per year, spread across five incident types and a white and BME split this sample size is too small to facilitate robust comparisons at this level.

Figure 2: The total white/BME gap for the MPS over the past 3 years.

Type of offence and satisfaction

6. The white/ BME satisfaction gap is not equal across the five incident types. Burglary and vehicle crime show the widest satisfaction gap - a consistent finding each quarter over the past year. There is also a smaller, but statistically significant, gap between white and BME victims of violent crime. There is no significant gap for either Road Traffic Collision (RTC) or Racially Motivated Crime (RMC) groups. This is illustrated at figure 3. Across ethnicities, burglaries and RTCs report the highest satisfaction – potentially attributable to the fact that most victims receive a timely visit although no analysis is available to prove this theory.

Figure 3: White / BME satisfaction by victim group (Jul 08–Jun 09 data)

*denotes a statistically significant result

Summary of current knowledge on the satisfaction gap

7. Analysis of the USS indicate that the key behaviours that drive victim satisfaction in general, are treating crime seriously, being supportive and sympathetic, being visited in a timely fashion and being perceived to make some form of investigation. Cases resulting in a charge also report more satisfaction. These drivers are consistent across all ethnic groups.

8. Specifically exploring the satisfaction gap additional research and analysis undertaken by the Strategy Research & Analysis Unit (SRAU) indicate that; contact method used, prior opinions of the police and victim age, alongside deprivation levels are key influencers as contributors to the gap.

The method of police contact

9. A higher proportion of BME victims report their incident to police via a 999 call or visit to the front counter - see figure 4. Both these reporting methods attract a lower level of satisfaction.

10. Victims who report their crime incident via 999 express lower levels of satisfaction with response times when compared to those who reported via a non-999 telephone number, even when the actual response time is similar.

11. The USS does not give us any insight into whether people who use the 999 service summon police help have greater expectations about the level of service provided. We do not know whether the call was an emergency, and was not assigned an emergency response. We do know that satisfaction with response time declines as the waiting time increases. This effect is more pronounced in BME groups. A portion of this difference is attributable to the higher proportion of BME communities reporting via 999.

12. Generally, front counter reporting produces lower levels of satisfaction than other reporting methods. It is possible that people who choose to report at front counters feel differently about the police to begin with; this has not been examined. Nonetheless, when asked about waiting times and being dealt with promptly, front counters come out far worse than other contact methods.

Figure 4. Contact method and satisfaction by White / BME group (July 08 – June 09 data)

Prior opinions of the police and age of victim

13. One of the questions on the USS asks the respondent to give a view of their opinion of police prior to the incident they are being asked about. The pattern found within the survey is that as the age of respondent increases the more likely it is that they will have higher opinions of the police. This relationship is linear and true of all ethnicities, but has particular relevance to BME groups (see figure 5).

14. This pattern is strongly linked to the fact that younger victims report having a lower opinion of police prior to coming into contact with them as a victim. One potential factor may be their perceived negative experiences with the police (e.g. previous SRAU research indicated that stop and search may contribute to such perceptions, where young BME communities are proportionally more likely to be stopped).. Activities to address these issues are referred later in this report particularly in relation to Stop and Search and Youth Engagement.

15. There are also a higher proportion of younger victims within the BME group. This suggests that actions to improve the MPS engagement with youths may have an indirect influence on satisfaction which in turn will further affect expectations or prior opinions of the police.

Figure 5. Victim age by White / BME group (July 08 – June 09 data)

16. Consideration has been given to victim’s perceptions of police based on their country of origin. However the MPS will never be able to control victim’s experiences of Police services in other countries. The MPS will address this by engaging with individual communities within London to explain the quality of service that they can expect through our embedded and ongoing community engagement.

Area Characteristics and the satisfaction gap

17. Survey results show that victims resident in more economically deprived areas express lower levels of satisfaction than victims resident in more affluent areas. The proportion of BME victims who live in areas of high deprivation is statistically higher,

Strategies to address and reduce the satisfaction gap

18. As previously reported, the MPS Victim and Witness Satisfaction Working Group has been established to co-ordinate pan London activities in relation to victim care and to share best practice. Members of the group include specialist crime departments, MPS research unit and Victim Support. An MPA Officer is a member of this group and an Action Plan is being developed.

19. It is the aim of the working group to drive MPS initiatives to improve the level of service provided to victims of crime and meet their expectations and needs. These efforts, combined with specific initiatives to improve the satisfaction of BME victims, will contribute toward improving overall satisfaction and narrowing the BME gap.

20. The group reports to Commander Organisational Capability and Criminal Justice Reform.

Update on initiatives to improve service to all victims of crime including BME

Central Communications Command

21. As reported the experience of callers into the MPS Central Communication Command can directly affect their levels of satisfaction should their queries or expectations not be met. Improving the quality of service delivered by CCC should therefore impact on BME satisfaction.

22. In support of the Pledge commitment to offer callers an appointment that suits them, a three-borough pilot process will commence on 3rd August within the boroughs of Brent, Harrow and Barnet. At the first point of contact callers will be offered an appointment within 48 hours, and processes will be in place both centrally and locally to appropriately service and re-schedule appointments where necessary. As well as fulfilling a Pledge commitment it's anticipated that an effective appointments system will assist in alleviating the pressure on front-line response units, whilst at the same time driving up levels of satisfaction and confidence. Learning from this project will be analysed and shared with other OCU’s

Front Counters

23. Lower levels of satisfaction are reported by victims who report their crime to the front counter of a police station with waiting times contributing towards dissatisfaction. As a greater proportion of BME victims attend police stations to report crime the improvement in service should impact on BME satisfaction.

24. Work is ongoing to improve Front Counter Services by:

• Introducing front counter training to PC recruits and providing training to volunteers commensurate to the role.
• Introducing triage systems at those front counters with the highest levels of public contact to manage peaks of demand.
• MPS Internet site development to create a virtual counter, collating all existing Internet front counters services into one place to improve access and increase electronic submission of applications.
• Development of Information Kiosks: to provide self –help information and reporting facility within buildings to alleviate queues and outside buildings to access services when closed, to be trialed from August.
• Development of electronic property handling system to improve and aid the recording of property involved in crime, found property and exhibit handling.

Victim Focus Units (VFU)

25. Victims of crime report improved satisfaction the more they are kept updated and informed of developments in their case.

26. Performance for July 2009 is showing that 88% of victims are kept informed about the progress of their case on a monthly basis. TP Emerald has recently revised VFU guidance documents to include the Policing Pledge commitments. TP Emerald are developing better ways of keeping front line staff better informed of recent survey findings and how their units can directly address areas of concern.

27. Younger victims of crime form a higher proportion of the BME group and TP Emerald are actively exploring alternative methods of contact, particularly in relation to SMS Text Messaging as an alternative to the more traditional approach of written and phone contact.

Burglary initiatives

28. The available research shows that BME victims of burglary report lower levels of satisfaction. During 07/08 the satisfaction gap was 12% however following Operation Spotlight, an intense burglary initiative, earlier this year the gap reduced to 8%

29. Building on the success of Operation Spotlight, plans are ongoing to further enhance the service given to victims of burglary during the latter half of 2009.

Victim information booklets/packs

30. A contributing factor towards overall satisfaction is how well victims of crime are provided with practical assistance in relation to the crime they have experienced.

31. Work continues to develop an MPS wide Victim Information booklet, However to coincide with a re-launch of the Bumblebee initiative in October 2009, TP Emerald has diverted efforts to have ready an improved burglary information booklet for victims of crime. It will be used to provide help and assistance and information to those who have been burgled and to also better inform the public who seek to improve their home security.

Supervision and the 5 Ps

32. The 5 Ps are Presence, Professionalism, Productivity, Performance and Pride. How the public and victims of crime are treated when they come into contact with the MPS is vital to building confidence and satisfaction.

33. To increase the positive experience that victims and the general public receive from the police, the MPS has been delivering information and raising awareness to all front line staff encompassing the MPS Policing Pledge and how the principals provided by the Commissioners 5 Ps can directly improve the level of service provided. Particular references have been made in relation to our accessibility, our professionalism and how supervisors should monitor the quality of the service delivered by their staff. It is anticipated that almost 6500 staff would have received this by the end of September 2009.

34. Compliance and success of the pledge is monitored via a monthly performance scorecard that is broken down to borough level. This report is also discussed at a weekly pledge meeting chaired by Commander Central Communications Command.

Contact and feedback cards

35. From 1 August 2009 a three month pilot has been started on the London boroughs of Barnet, Brent, & Harrow to support the delivery of the Policing Pledge. This pilot will be centred on how the boroughs fulfil the pledge standards & allow for new methods of delivery (e.g. changes to response to calls from the public) to be trialed.

36. As part of this pilot Commander CCC is supporting the trial of a revised contact card. Based on the "Doorstep" initiative in Kent the card has space for contact details (officer/phone & incident/crime numbers) and a questionnaire on the quality of service received. This part can be detached & returned via a freepost service to the Citizen Focus Policing Programme at NSY.

37. It is intended that success in use of the cards will be monitored by the percentage returned & change in satisfaction/confidence - although this change may also be attributable to other changes being implemented as part of the pilot.

38. Each borough has been supplied with 900 "Contact & Feedback" cards with a target of distributing 300 per month starting in August. Due to the limitations of this pilot it has been suggested that the cards be given to Response officers to supply whenever they have contact with a member of the public (with the exception of anyone subject to any enforcement action) in place of the existing contact cards. Analysis will be carried out by the Citizen Focus Policing Programme team at NSY & fed back to each borough as appropriate.

Update on Initiatives to improve level of service to BME victims.

Victim of crime letters

39. All victims of crime should receive information regarding the decisions taken to investigate the matter further and update the victim with any developments. TP Emerald recently made further revisions to the content of the letter based on feedback from borough units and victims of crime.

40. The current default language for letters is English, and the MPS may not be communicating the information as well as we could with BME Victims of crime whose first language is not English.

41. TP Emerald are now exploring appropriate languages to have the letters translated into, before an IT change request is made to have them automatically available from our Crime Recording System. This change will allow the MPS to communicate decisions taken on crime report in a language the victim would prefer.

Stop and Search

42. As reported earlier, the experience of stop and search particularly in young and BME people can affect their perception and opinion of the police.

43. It is recognised that it is essential to have the trust and confidence of London's communities in all stop and search powers and a structure is in place to listen and respond to the communities of London. Every Borough has a community monitoring network looking at local stop and search activity.

44. Monthly stop and search data including disproportionality rates are available via the internet in order that communities can hold senior officers to account in relation to stop and search activity. The MPA and the Stop and Search Strategic Committee also provide a pan-London scrutiny of this activity.

45. A stop and search DVD was introduced in June 2008. This was developed by the MPA/MPS as part of an engagement strategy primarily aimed at young people. The audience will be both police and community and focuses on the importance of the powers and the views of persons stopped. A resource pack supports the DVD.

46. In the first quarter of 2008 14,000 officers were briefed following a Street-craft Conference. The purpose was to communicate good practice in relation to stop and search together with the communities’ viewpoints on the importance of the encounter. Stop and Search Key Encounter Workshops commenced in September 2008 and are intended to form a part of the Initial Police Learning Development Programme.

Youth Strategy

47. The current youth strategy will improve young people’s perception of police.

48. This three year strategy outlines our commitment to deliver long-term sustainable reductions in youth crime, harm to children and young people and anti-social behaviour. Its objectives are designed to prevent and deter young people from either engaging in offending behaviour or becoming victims of crime. The MPS is working with partners to target and support those engaged in criminal activity to enable them to break the cycle of offending.

49. It will also see the enhancement of Safer School Partnerships and the integration of diversion and prevention programmes that have a proven record in delivering positive police engagement with young people. At the same time the MPS will continue to develop the Serious Youth Violence work strands and the delivery of the Every Child Matters programme.

Community newsletters

50. Following a small scale project conducted during 2008 it was found that local newsletters had a positive impact on being kept informed, confidence in policing. Following the newsletter dissemination, residents on the test wards reported significantly higher levels of agreement to a number of statements pertaining to their perceptions of the police, particularly local confidence (8% rise) .

51. The central Safer Neighbourhood Unit co-ordinate the production, printing and distribution of newsletters for all 631 Safer Neighbourhood teams. These are produced twice a year with current funding until April/May 2010. The content is produced by the boroughs and total distribution across the MPS is 3.3 million copies per issue. These are in addition to any Safer Neighbourhood ward based newsletters.

52. The newsletters are produced in English but there is a facility for translations if teams wish to have their newsletter in another language for a particular event/operation addressing members of the community whose first language is not English. Newsletters have been translated into Turkish in Haringey and Punjabi in Ealing, with requests for the forthcoming issue for Korean in Kingston, Bengali in Camden and Vietnamese in Bexley.

Monitoring the success of these initiatives

53. The impact of these initiatives will be monitored via a variety of measures. Some of the initiatives will have data that can be monitored directly whereas other wider initiatives should allow a correlation to be drawn in relation to improvements. Success would see an improvement in overall satisfaction from all victims of crime and a reduction of the BME satisfaction gap

C. Race and equality impact

1. This paper is entirely focused on understanding issues of disproportionality in relation to victim satisfaction and the strategies in place to address this. It is based on the analytical evidence of specific issues that contribute towards the overall levels of satisfaction and confidence.

2. Whilst not explicitly evident within the analysis it is accepted that other cultural and community cohesion factors may also have an impact upon BME satisfaction levels.

3. Additionally it is believed that the prosecution process and judicial outcomes that do not meet victim’s expectations have a negative impact on victim’s satisfaction with the police.

4. Further research to examine the veracity of the above suppositions will be undertaken by the MPS and will be linked to the new Diversity Strategy that is currently being formulated.

5. The aims of this strategy will focus on delivering efficient and effective strategic operational policing services that are fair and clearly responsive to the diverse needs of the people we serve. It will seek to do this by improving workforce representation, improving service delivery and community engagement.

6. Work is also ongoing with the LCJB Equalities and Diversity board to address the disproportionality issues across the Criminal Justice System.

D. Financial implications

The development of new awareness materials will involve a development and production cost, which are difficult to quantify at this stage. However any additional costs will be managed within the existing TP budget provision.

E. Legal implications

No legal implications are noted.

F. Background papers

• None

G. Contact details

Report author: Alan Catlin, MPS

For information contact:

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

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