Implementation of crime mapping

Report: 6
Date: 4 September 2008
By: Assistant Commissioner Territorial Policing on behalf of the Commissioner

Summary

This report is intended to provide an update on the development of a new crime mapping website within the MPS. It provides brief details of the context in which this is being progressed alongside the consultation process that has been established. Some of the key implementation risks and the legal risks are identified along with the importance of the Equality and Diversity Impact Assessment.

A. Recommendations

That the MPA notes the progress towards fully establishing a Crime Mapping website by April 2009.

B. Supporting information

Background

1. In June 2008, Management Board approved the publication of enhanced crime mapping. The objective being to assist citizens to put crime into perspective in their locality and to encourage citizen engagement with neighbourhood policing.

2. The publication of mapped data is a Mayoral manifesto pledge.

3. Additionally, the Policing Green Paper outlines an expectation that all Forces would make crime mapping available to the public by December.

Current MPS Position

4. The MPS currently publishes crime data to ward level across London by rolling 12 months, financial year to date and the most recent month. The following crime types are published:

• Burglary
• Fraud or Forgery
• Sexual Offences
• Criminal Damage
• Other Notifiable Offences
• Theft and Handling
• Drugs Offences
• Robbery
• Violence against the Person

5. The data is available in tabular form and does not give any indication of the comparative level of crimes in surrounding areas. A further breakdown to that of neighbourhood level is not available in this format.

Legal Position

6. There has been considerable debate concerning the legal constraints of publishing crime maps within the public domain. Indeed, the Information Commissioner has previously required some Forces to amend or effectively close their sites due to the nature of the crime maps that were displayed.

7. The MPS has therefore sought legal advice as well as advice from ACPO and the Information Commissioners Office (ICO) on the issues which must be taken in to consideration. Particular care must be taken when considering information that may identify individuals such as the release of ‘point data’ that may identify individuals through addresses or post codes for example, as this may constitute ‘personal data’. The Commissioner has responsibilities to consider under both the Data Protection Act and Human Rights legislation, as well as a general duty of confidentiality.

8. Offences showing the incidence of particular crimes in a public place may present less of an issue but even then, care is still needed for identifiable locations such as places of worship, migrant hostels and halfway houses for example. Those crime types that are few in number such as those racially motivated, domestic violence or murder are likely to be identifiable and therefore require very careful consideration.

9. As a general point, one of the ICO’s key concerns is that the MPS balance the degree of intrusion against the likely benefits. If there is a risk to personal privacy through ‘point data’ mapping for example, and it actually delivers no extra benefits over and above those gained through a more detailed level of mapping, then the degree of intrusion is unjustified.

The Way Forward

10. In order to develop a way forward the MPS has considered the crime types that are already published in the public domain and discussed these directly with the Information Commissioner’s Office. We have also commenced a consultation process both externally and internally. What has become clear is that different people and groups have diverse expectations, desires and needs of the crime mapping proposal.

11. The MPS has therefore considered as a starting point, the mapping of 3 crime types that are generally understood and recognised by communities and that our external consultation showed a desire to have more information about. These crimes are robbery, burglary and motor vehicle. However, even with these crimes we must still be cognisant of the legal issues as previously mentioned. We have therefore agreed with the ICO that we will map the occurrence of these crimes at London level, at ward level and at sub ward level (known technically as Lower Super Output Area (LSOA)). London is mapped into more than 4700 LSOAs and each LSOA has an average of 633 households within it. The numbers of crimes that actually occur at each level will be displayed along with comparative data. Additionally each level will be colour coded so that Londoner’s can see how crime levels in their area compare with other areas.

12. It is emphasised that the mapping of these crimes down to sub ward level is only the first stage of the new website. Once Londoner’s have a product that they can identify with and the MPS have a product that is legally compliant then ongoing consultation and development will be more meaningful.

13. The ICO has written to the Minister for Policing, the Association of Chief Police Officers and each Chief Constable commending the approach of the MPS and our consultation methodology.

Other non-crime information on the site

14. It has already been indicated that the opportunities arising out of the crime mapping website will reach beyond that of simply supplying crime information. The website is an opportunity to inform and empower Londoners. With this in mind the website provides access to Safer Neighbourhoods teams, on-line crime reporting and local borough police sites for example. It is anticipated that future development will provide access to useful partner web sites and information.

Implementation and Launch

15. The development of the MPS Crime Mapping website to the above standards has required considerable technological work to be undertaken, not least the installation of new IT hardware in order to manage the system. This has required the release of a ‘test version’ into the public domain on 14 August 2008 that has enabled the MPS to continue to test load capacity and security arrangements for the new site.

Consultation

16. A range of consultation methods has already commenced. Externally, the established Safer Neighbourhoods Key Individual Network has already been approached and offered examples of crime maps and crime types as well as being asked what other information they would wish to see. This process will continue once new crime maps are formally published. We will also consult directly with the 7 wards that make up the Safer Neighbourhoods control wards to obtain early feedback both internally and externally from a range of stakeholders.

17. It is also intended to consult directly with victims of specific crime types in order that their views are considered in the ongoing development of the web site. Within the Crime Mapping website itself, an opportunity to comment and make suggestions is made available through a feedback button. Consultation will be an ongoing process throughout the development of the website.

18. Internally, a ‘Crime Mapping User Group’ has been established with representation from the MPA, Safer Neighbourhood Teams, and MPS Directorates.

Potential benefits

19. The release of Crime Maps into the public domain supports MPS survey analysis and research findings as to the most likely drivers of improving confidence in local policing:

• Will better inform the public of crime in their local area, what police are doing and what results are achieved;
•  Will provide access to advice on crime prevention and safety;
• Will enable engagement on a two way basis with police, public and partners; and
• Will encourage and enable citizens to actively contribute and/or be involved in making their neighbourhood safer

Implementation Risks

20. Whilst it is recognised that there is a desire to produce enhanced mapping data in the way described there are a number of risks that must be continually monitored and considered.

• Data Protection, Human Rights and the Information Commissioner considerations as already outlined;
• Potential for discouraging crime reporting and indeed the potential to increase the fear of crime;
• A potential to inadvertently identify suspects and victims;
• Potential adverse impact on local economy; house prices and businesses;
• Any ongoing consultation process often raises expectations that cannot always be met;
• It is not possible to fully articulate the costs of this project but with each activity there is an implementation cost and a development cost.

Future Developments

21. Once the test period is over we will be in a position to formally launch the new website and continue its development. It is proposed that this development will involve enhancement of maps, increased functionality and inclusion of other crime types (including violent crimes, crimes relating to anti-social behaviour and ‘signal crimes’ as a minimum). Consideration is also being given to mapping other information such as road traffic collisions. The site is likely to develop with enhancements likely to be added as a result of feedback following consultation with relevant users and partners. At present, due to the unknown nature of any future changes, future costs cannot be identified accurately. There is however a project management team in place that will regularly review all areas of the Crime Mapping site development and identify any relevant cost requirements.

C. Race and equality impact

1. An Equality and Diversity Impact Assessment (EDIA) has been commenced and will be subject to ongoing review. The MPS is aware of the need to promote good race relations and other legislation mentioned within this report that means that the release and management of data must be done with the support of the wider community. We are also aware that by its nature release of data in a pictorial format must be balanced by providing greater access to those with visual impairments and disabilities. By the nature of this process the needs of a wide range of communities will be identified alongside the operational needs of the MPS. This will enable the way forward to be developed appropriately. A full EDIA is being developed which will be used to shape the development of the programme.

D. Financial implications

1. Whilst the information being shown within the crime maps is already within the police data systems, the data is not always readily in a format that meets either the technological needs or the legal requirements. The development of the proposed crime mapping system does, therefore, involve some additional costs. The purchase of the new hardware had already been agreed within the Directorate of Information budget as a result of a previously agreed IT upgrade plan and was not specifically bought in for this project. The direct costs of the project to date total:

• £72k for development
• £136k for capacity management and protection against system overload failure

These costs have been contained within existing MPS budgets.

2. Any further developments to support the extension of the existing maps are likely to involve additional costs and will be subject to the normal MPA/MPS decision making and budget/business planning processes. It should be noted that, in order to progress the initial implementation of this project, the MPA approved (5 August 2008), through delegated action, to single tender action for the delivery of a website protection facility. Any further development of this facility, if needed, will need to be through a competitive tendering process. The timing of delivery for any further developments on the project will need to have due regard for the timetable for supporting appropriate procurement processes.

E. Background papers

None

F. Contact details

Report author(s): Chief Supt. Steve Bloomfield, TPHQ, MPS

For more information contact:

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

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