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Contents

Report 5 of the 10 January 2005 meeting of the Equal Opportunities & Diversity Board, covering the following areas: Project Sapphire; Domestic Violence; Forced Marriage; Female Genital Mutilation; Hate crime; and Women’s safety in public spaces e.g. open parks and on public transport.

Warning: This is archived material and may be out of date. The Metropolitan Police Authority has been replaced by the Mayor's Office for Policing and Crime (MOPC).

See the MOPC website for further information.

Gender based violence

Report: 05
Date: 10 January 2005
By: Commissioner

Summary

This report covers the following areas:

  • Project Sapphire
  • Domestic Violence
  • Forced Marriage
  • Female Genital Mutilation
  • Hate crime
  • Women’s safety in public spaces e.g. open parks and on public transport

A. Recommendations

That members note the contents of this report.

B. Supporting information

Project Sapphire

Objectives

1. To improve victim care and the investigation of rape by implementing all 38 Metropolitan Police Authority (MPA) recommendations from the Scrutiny Report into Rape Investigation and Victim Care April 2002 and the relevant recommendations from Her Majesty’s Crown Prosecution Service Inspectorate (HMCPSI) Thematic Inspection 2002.

What has the project achieved?

  • Formation of Sapphire Independent Advisory Group (IAG). Members represent the views of diverse communities and advise on victim care.
  • Existing policy reviewed and replaced considering gender, race, disability, mental health, sexual orientation, age and faith.
  • The creation of Sapphire investigation teams on every London borough.
  • Performance management data collected and scrutinised for rape and serious sexual offences.
  • Provision of a pan London Haven service, in partnership with the National Health Service (NHS), to provide specialist acute and aftercare services by female and visibly ethnic medical staff for all victims of rape and serious sexual assault.
  • Sapphire Intelligence Unit specialising in rape created to provide strategic and tactical products and to improve the links between boroughs, Metropolitan Police Service (MPS) Intelligence Unit, National Crime and Operations Facility (NCOF) and the National Crime Intelligence Service (NCIS). Introduction of a Crime Reporting Information System (CRIS) sexual offences page as a new analytical search tool.
  • Bespoke training designed and delivered to all MPS and Haven staff.
  • Early Evidence Kits designed and implemented nationally to enhance early evidence collection and victim comfort.
  • Quality of service research completed: “Understanding the Complexity of Sexual Assault Victim Withdrawals”.
  • In partnership with Greater London Authority (GLA), MPA, Transport for London (TfL) a successful three-year public awareness campaign entitled “Know What You Are Getting Into”, warning of the dangers of using illegal minicabs, thereby reducing the numbers of sex attacks on women in London.
  • A public awareness campaign entitled “Who’s Watching Your Drink”, warning of the dangers of Drug Facilitated Sexual Assault (DFSA).
  • Creation of the Sapphire Cold Case Investigation Team. Forensically led investigations into historic unsolved rapes.
  • Increased reporting by improving public trust and confidence in the MPS’s response to rape and the introduction of the Haven self referral option.

What are the remaining challenges?

  • Continue to encourage and increase reporting by diverse communities.
  • To ensure compliance with policy by operational teams, thereby continuing to improve service delivery and performance.
  • To devise and implement victim care and attrition rate monitoring mechanisms.
  • Progress the findings from the strategic report on Group and Gang Rape, in partnership with other stakeholders.
  • Conjoining intelligence relating to group rape, gangs and youth crime
  • To gather forensic evidence to address the media and academic perceptions in relation to the scale of Drug Facilitated Sexual Assault in London.

How have women’s experiences informed the development of the project?

  • To improve investigation of rape and victim care the Project has been informed by the following academic specialist studies.
  • Literary Reports:
    • Rape the Forgotten Issue? A European research and networking project. Professor Liz Kelly, Child and Woman Abuse Studies Unit London Metropolitan University (CWASU)
    • Rape: Still a forgotten issue. Professor Liz Kelly, CWASU
    • British Crime Surveys 1998 and 2000
    • Living Without Fear, An integrated approach to tackling violence against women. Home Office
    • A Research Review on The Reporting, Investigation and Prosecution of Rape Cases. HMICPSI
    • Dealing With Cases of Forced Marriage – Guidelines for Police. Home Office
    • Women, rape and the criminal justice system. Victim Support.
    • Setting The Boundaries, Reforming the law on sex offences. Home Office.
    • Protecting the Public. Home Office
  • IAG advice on all aspects of improving victim care and the investigation of rape.
  • MPS quality of service research: “Understanding the Complexity of Sexual Assault Victim Withdrawals”.
  • Haven steering groups to implement the two North London Havens, made up of NHS, MPS, and user group representation to advise on service provisions.
  • Quality of service questionnaires at the Havens, which include breakdowns by gender, ethnicity, group and age to target the diverse needs of victims.
  • Sapphire strategic reports into illegal mini cabs and group rape

How do they continue to inform it?

  • IAG, which includes members of the public, to advise from the victim’s perspective.
  • Quality of service questionnaires at the Havens, which will also be expanded to capture referral paths and be available on the Internet.
  • Haven – Camberwell to pilot the use of ‘mystery shoppers’ using the self-referral pathway. This has been agreed by NHS Medical Ethics Committee.
  • Operation Matise, a six-month research project to identify the nature and scale of involuntary administration of controlled drugs, including alcohol, to facilitate sexual offences. Following collation and analysis a research report will be prepared and the results will be used to educate both the public and professionals as to the prevalence of Drug Facilitated Sexual Assault (DFSA) as determined by this in-depth research. The research is being carried out in partnership with the following forces and Sexual Assault Referral Centres (SARCs):
    • The Havens (Camberwell, Paddington, Whitechapel), London (MPS)
    • REACH Centres, Newcastle Upon Tyne, Sunderland (Northumbria Police)
    • SAFE Centre, Preston (Lancashire Constabulary)
    • St. Mary’s Centre, Manchester (Greater Manchester Police)
    • Derbyshire Constabulary
    • Walsall Rowan Centre (West Midlands Police)
    • Juniper Lodge (Leicestershire Constabulary)
  • Working groups made up of practitioners and independent advisors to address the recommendations from: “Understanding the Complexity of Sexual Assault Victim Withdrawals”.
  • Identify a suitable case-tracking medium to examine and develop measures of attrition to put the judicial disposal rate measurement into context, including conviction rate measurement.
  • The MPA has had involvement with Project Sapphire during the Scrutiny that was conducted during 2002 and provides continuing support for the Pan London Havens.
  • Project Sapphire will be reviewing and outlining future strategy during 2005 and would welcome MPA involvement and support.
  • A working group has been formed to implement recommendations from research conducted into the reasons for victims withdrawing from the Criminal Justice system. Membership of this group includes practitioners at all levels and women directly affected by rape.

MPS Performance

2. Detections target for rape offences is 35%. The MPS is currently at 31.5%

Domestic Violence

3. In excess of 106,000 incidents of domestic violence were reported to the MPS last year. 25% of all murders within the MPS are domestic violence related. The Domestic Violence, Crime and Victims Act recently received Royal Assent thereby further highlighting the issue and importance of domestic violence. The Act will strengthen police powers creating a power of arrest for Common Assault and make breaches of civil protection orders an arrestable offence.

4. Domestic violence continues to be a priority for the MPS and is included in the National and MPS Policing Plan as well as in the Policing Performance Assessment Framework. (PPAF)

5. The MPS has appointed Deputy Assistant Commissioner (DAC) House as the ACPO Lead for Domestic Violence with Commander Brian Moore responsible for implementation. Rachael Flagg represents the MPA on the Strategic Working Group.

6. To support improved service delivery, the Diversity Directorate, DCC4’s Domestic Violence Team has been aligned to operate within Territorial Policing (TP).

7. Community Safety Units (CSUs), dedicated teams of specially trained officers were established on every borough to investigate allegations of domestic violence and other hate crimes, support victims and their families and to hold perpetrators to account. These units are supported centrally by the Community Safety Unit Service Delivery Team (DCC4), now part of TP Crime, which has responsibility for driving forward strategy, policy and initiatives in response to domestic violence in a multi-agency context.

8. The following information highlights some of the current work being undertaken by the MPS in conjunction with its partner agencies to improve and enhance responses to incidents of domestic violence and to ensure that the MPS vision of “stopping the violence and holding offenders to account” is achieved.

MPS Domestic Violence Working Group (DVWG)

9. The DVWG is currently under review and revised terms of reference and membership and the future work plan are expected to be agreed at the next meeting on 21 January 2004. It is envisaged that the DVWG will oversee the implementation of ACPO DV guidance, the development and implementation of Project Umbra and its 5 key work areas, the evaluation of the MPS DV risk assessment model (SPECSS), and phase 2 of the DV strategy.

MPS Domestic Violence Policy and Strategy

10. The MPS launched its Domestic Violence Policy and Standard Operating Procedures on 6 December 2004. These provide minimum standards for all police staff to effectively investigate and manage DV, which holds offenders accountable and makes victims and their children safer.

11. “Enough is Enough”; the MPS Domestic Violence Strategy was published in 2001 and was intended to be Phase 1 of an umbrella document defining the over-arching domestic violence strategy. DCC4/TP and the MPS Domestic Violence Working Group will be developing the future domestic violence strategy incorporating requirements set out in the DV, Crime and Victims Act, risk assessment, risk management, murder prevention and Project Umbra.

Performance Management and Monitoring

12. The following are just some of the ways domestic violence performance is being monitored:

  • Domestic violence is now included in TP performance meetings with all Borough Commanders.
  • Performance is published and circulated on a weekly basis by Performance Information Bureau (PIB) and includes data on both sanctioned and non-sanctioned detection in domestic violence cases.
  • Action plans are developed for the lowest performing 5 boroughs to assist with performance improvement. To date 10 Boroughs have been supported to develop improvement plans with direct monitoring by Commander Moore who chairs meetings to deliver the improvement plan actions.
  • MPS wide Athena day held on 7 December 2004. (200 arrests made and significant media coverage gained.)
  • OCU Commanders now include domestic violence in structured Daily Management Meetings and discuss overnight domestic violence cases including cases when an arrest has not been effected instigating remedial action where appropriate.
  • Under auspices of Project Umbra looking to adopt best practice from Project Sapphire and Havens to domestic violence.
  • As part of the London Criminal Justice Board – priority crime work stream, processes are being put in place for fast –tracking of priority cases through the criminal justice process.
  • The MPS Inspection Unit is currently conducting an MPS wide Self Inspection on compliance with the reporting and recording of Domestic Violence allegations including positive action policy. (500 DV crime reports have been examined in December 2004).
  • Using intelligence to identify repeat victims and serious and prolific offenders and identifying other areas of criminality these domestic violence offenders may be involved in and targeting them for these offences. 80% of the proactive operations led by DCC4 Proactive Task Force are against domestic violence offenders.
  • MPS/CPS domestic violence service level agreement (SLA), which aims to provide victims of domestic violence with a service from the criminal justice system that will ensure their safety and bring offenders to justice including, where necessary, unsupported prosecutions in which the victim declines to give evidence. Implementation and compliance with the SLA is now under review with a report due to be published in imminently.
  • The MPS is the first force in the UK to include DV crime as one criterion in the Prolific and Priority Offender Scheme.

DV Risk Assessment Model, Enhanced Evidence Gathering- Initial Reporting Form 124d.

13. A new initial reporting form (Form 124d) is a risk assessment tool to improve initial investigation and effective evidence gathering; is currently being rolled out across the MPS following successful pilot trials in two London boroughs. This is supported by mandatory one-day training for all staff up to the rank of inspector. The form will improve victim safety by identifying those at particular risk and in need of positive intervention. This model has been very well received by operational officers and our partners.

14. ACPO Domestic Violence Working Group has commissioned an independent evaluation of the MPS risk assessment tool by University of Warwick. Findings are expected to be published in summer of 2005.

Project Umbra

15. Project Umbra is a response to the recognition of the pervasive effects of domestic violence on society. Its vision is to stop the violence and hold offenders to account whilst its aims are to improve service delivery across all sectors involved in domestic violence by co-ordinating a range of options available to both victims and offenders. A two-day event was held during November 2004. MPA members Cindy Butts and Kirsten Hearns were invited.

16. Project Umbra is an MPS led initiative under the strategic lead of Commander Brian Moore, commissioned by the London Criminal Justice Board. It is a major initiative that will require multi-agency commitment across all sectors but will result in fundamentally changing and enhancing the inter-agency response to domestic violence in the Capital. Project Umbra will also draw together much of the work currently being undertaken by DCC4 in response to domestic violence and related issues e.g. forced marriage and other honour based violence crimes.

17. Project Umbra is now in its developmental stage. Following widespread consultation with partner agencies five key areas of work have been identified:

  • Strand 1 - Improving performance and data sharing
  • Strand 2 - Advocacy and support to victims
  • Strand 3 - Children in DV households
  • Strand 4 - Offender management
  • Strand 5 - Integrated laws and courts.

18. Multi-agency delivery teams have now been proposed to develop and implement work plans and initiatives to achieve the aims and objectives of each of the key work areas. A Programme Board is being established to oversee and monitor each of the key work areas supported by an Independent Challenge Panel to critique the development and implementation of the various strands of Project Umbra.

19. As part of Project Umbra the MPS will be commissioning work to look at the costs and benefits of an advocacy and support service for the Capital to ensure minimum standards of service provision for victims. Currently less than half of all CSUs have access to co-located advocacy staff.

20. In addition to the advocacy and support initiative further work is to be undertaken to look at further development of specialist domestic violence courts in London. There are at present only two specialist domestic violence courts (West London and Croydon) that bring together the work of the civil and criminal courts to provide a two-pronged approach supporting and enabling victims whilst addressing offender behaviour. The CPS is evaluating the two courts and will report in the New Year.

21. Through the development and implementation of Project Umbra, it is envisaged there will be an improvement in responses to domestic violence across sectors and agencies by holding more offenders to account, providing holistic support to victims and children, preventing further and more serious violence and most importantly saving lives. Umbra will be one of the vehicles to make the case for a statutory duty for Public Authorities to disclose violence coming to the notice of such bodies

MPS Staff DV Policy

22. At the recent Dancing on the Glass Ceiling events sponsored by DAC Howlett as part of the MPS Gender Agenda initiatives a number of MPS employees raised the issue of domestic violence and their experiences. This has drawn attention to the need for the MPS to identify and produce corporate policy for staff who commit DV or are victims thereof. Such a policy would include involving Occupational Health staff in addressing DV and its impact upon MPS employees.

23. ACPO has published a policy relating to police officers who commit domestic violence related offences and chief officers are encouraged to adopt the aims and principles of this policy to all employees.

24. The MPS will shortly be issuing its policy on how MPS staff who are DV perpetrators will be managed. This is important for the well being of our staff and the confidence of our partners and public.

Transgender Community

25. Although crimes of violence are reported to the Police it is probable that there is under reporting. The Sexual Orientation Project engages with the Transgender Community through the Transgender Sub Group of the LGBT Advisory Group to the MPS. The Clare Project based in the South of England provides this contact on a regional basis. The MPS made a joint proposal to the ACPO LGBT Portfolio Group in October 2004 along with South Yorkshire Police for a National Transgender Conference to be held in 2005 to resolve identified issues. A London based Transgender Conference is also being planned for July 2005.

26. The Diversity Training Support Unit is currently developing a Performance Needs Assessment (PNA) on behalf of the Home Office which is identifying police training needs on transgender issues as part of a wider LGB / gender remit.

27. Broken Rainbow is an active member of the MPS Strategic Domestic Violence Working Group. Members of Broken Rainbow also support training and investigations relating to LGBT cases.

28. The DCC4 [4] Strategic Relationships Team has agreed to manage third party reporting received by Broken Rainbow. Broken Rainbow are currently establishing their office and help line. Once they are ready DCC4 will develop a system of assisted reporting which emulates our current successful arrangements with GALOP. The MPS will shortly decide whether to participate in the national True Vision Third Party reporting scheme, which offers self-reporting through an LGBT and Gender pack and a Race and Faith Pack. The MPS has recently made submissions to PITO via the ACPO Police Portal Programme Board to develop online reporting via the secure PNN network for True Vision. Hyperlinks can be added to any site subject to approval from the ACPO Race and Community Relations Committee, there is no reason why this cannot be extended to the Broken Rainbow website.

29. Between 17 December 2003 and 17 December 2004 there were 87 recorded incidents of transgender related hate crime.

Disabled Community

30. In terms of disability, over the past year the Strategic Disability Team have initiated a Disability Independent Advisory Group, which has its first business meeting in February 2005. The AG was developed by a steering group of disabled people and was selected via an independent panel; issues relating to violence against disabled women will be progressed within that forum. There is a current review of marking /flagging of disability incidents. It is planned to introduce a disability flag early in 2005.

31. Between 17 December 2003 to 17 December 2004 66 incidents were recorded

Women Against Women DV

32. The issue of same sex DV is one of under reporting and training officers to identify and deal with it. Currently a one-day DV package is being delivered to all front line MPS staff, this includes an input relating to service delivery to the LGBT community. Once again the issue of training is being addressed as part of the PNA as described above. Some research has been undertaken with regards to same sex DV by the Understanding and Responding to Hate Crime Team, which has identified under reporting as an issue.

33. The current system of flagging does not include a separate flag for same sex partners involved in Domestic Violence. At present to obtain this data a series of searches can be conducted however this can take some time to complete to provide accurate data. We are currently reviewing this situation.

General

34. The MPS is developing strategies and policies as a result of feedback from victims of crime about addressing their needs.

35 The introduction of a flag on the crime recording information system (CRIS) for all disability related hate crime and transgender incidents has led to the enhanced ability to search for these incidents specifically and provides a better picture of how many are being reported to police. This data can be looked at by borough intelligence units to assist in the deployment of resources and target areas where these incidents appear to be prevalent identifying and dealing with offenders accordingly. Previously we did not have a flagging system to identify these specific incidents.

36. The following are barriers that have been identified to getting data regarding specific types of incident from the CRIS system.

  • Incorrect incidents flag being applied.
  • Incorrect or no gender code being recorded for either the victim or the suspect
  • Officers not recording relevant data as to why the incident is flagged as hate crime.
  • Officers not flagging the incident as a hate crime
  • The removal of the ability by all users to carry out an ad hoc search on CRIS where the officer can choose what fields they are searching for such as the gender of the victim and suspect together with a DV flag. Only individuals who have attended a specific course in its use can now have this facility.

37. Diversity Directorate will raise the first four points with the boroughs.

38. The MPS has been involved in focus groups, conferences and meetings with survivors and survivor support groups. There is regular consultation with a range of groups that represent victims including Women’s Aid and Refuge.

Resources

39. The DCC4 Pro-active task force will be aligned to TP. The two re-investigation teams will be aligned to SCD.

Conclusion

40. As can be seen from the above the MPS is driving forward its efforts to improve service delivery and responses to incidents of domestic violence at both strategic and operational levels, pan-London and at a borough level.

41. In addition to the above, the MPS continues to raise awareness and responses to a range of issues e.g. forced marriage and other honour based violence, same-sex domestic violence, etc.

MPS Performance

42. Detections target for DV offences is 35%. The MPS is currently delivering 51%. Of this the sanctioned detection rate is 17.5% with other detections being 34%.

Forced Marriage (FM)

Background

43. Since February 2001, the MPS Forced Marriage Project Team (FMPT) has been at the forefront of strategic and operational initiatives to address the issue of forced marriage.

44. Supported by, and working in partnership with, the Foreign and Commonwealth Office and the Home Office, the MPS has assisted in the creation and dissemination of national guidelines for police responding to incidents of forced marriage, developed effective and positive partnership working with a range of agencies working in domestic violence and related fields, and held a successful pan-London multi-agency seminar.

45. The structure of the MPS response to FM has developed within a broader context of domestic violence and child protection strategies, with an emphasis on partnership and service provision.

46. The MPS team has contributed to legislative changes related to domestic violence and sexual offences and has taken account of policy and practice changes arising from the Climbie Inquiry and Her Majesty’s Inspectorate of Constabulary (HMIC) inspections.

47. There are two broad dimensions to the work of the team; the first involves an international focus, with the aim of protecting victims taken abroad from the UK to marry; and the second focuses on effective service delivery in London and within the UK.

Structure

48. The MPS Forced Marriage Project Structure has recently been reviewed to improve the internal and external partnership working and facilitate the delivery of an FM strategy and action plan.

49. The new structure, comprising an FM Partnership Board, an FM Commissioning Group and an FM Action Group, provides greater clarity on the overall partnership structure and on the multi-agency collaboration, provides for operational sub-groups to implement operational aspects of the strategy and establishes a mechanism for the allocation, monitoring and evaluation of funding. The ACPO line management lead within the MPS is Commander Brian Moore, and DAC Carole Howlett has the ACPO lead nationally under the broader Race and Diversity Business Area.

Current Activity

50. There are seven broad themes that are being addressed within the ACPO Forced Marriage Working Group work programme which commenced earlier this year and is programmed until mid 2006. The themes are:

  • Review and implementation of policy guidelines - original guidelines are currently being reviewed and will be re-launched at a conference to be held on 16 February 2005.
  • Training
  • Data collation and analysis
  • Communication strategy
  • Effective investigation
  • Working in partnership
  • International activity

51. The MPS FM Team is about to embark upon a wide scale consultation exercise on its FM Strategy and work plan. This document is the culmination of multi-agency work with a range of partners across sectors in London, nationally and internationally. It incorporates the ACPO work plan and clearly links to child protection and domestic violence policies and strategies.

52. The MPS FM Team has been funded by the Home Office to lead on a number of significant projects as detailed below:

  • The establishment of a national, multi-agency forced marriage steering group that will work alongside the ACPO FMWG
  • To hold a national Forced Marriage Conference. This event is to be held on 16 February 2005 and will bring together a range of agencies across sectors to share best practice and learning from the past three years. Dr Erturk, the United Nations Special Rapporteur on violence against Women has agreed to be a keynote speaker at this event reflecting the international element to this work.
  • To develop and disseminate a range of publicity materials to raise awareness of forced marriage and support available to those at risk.

53. In addition to the development of the MPS FM Strategy, leading on the ACPO FMWG and undertaking the above projects, the MPS FM team also:

  • Act as a consultancy service to police and other agencies in responding to incidents of forced marriage and other honour based violence issues.
  • Devise and deliver training for a range of agencies including police and Safeguarding Children’s Boards.
  • Work as part of a youth empowerment programme based in Tower Hamlets College and cited as a model of best practice by Baroness Scotland

Work with Communities and Faith Groups: Extent of FM in the MPS area

54. In March 2004, the MPS FM Team supported by analysts undertook an audit of forced marriage incidents to ascertain the extent of such incidents and related incidents, identify the range of offences and to identify affected communities.

55. Findings to date confirm that allegations of offences (recorded on CRIS), linked to forced marriage have been ‘flagged’ and are only identifiable since February 2002.

56. Terminology such as forced marriage and honour-based violence was not in common usage by the MPS before then and offences presented to police were not generally named as such. MPS (CRIS) recorded cases - February 2002 –October 2004 are as follows:

  • Female victims = 310 allegations
  • Male victims = 8 allegations

57. There has been a substantial increase in recording during this period. The figures are on a sharp upward trend. It cannot be said that this reflects increasing incidence or greater (police and public) awareness of the issue.

58. The Foreign and Commonwealth Office record over 200 incidents each year of cases where victims are taken abroad and forced to marry.

59. The non- government organisation, campaigning and support group, Southall Black Sisters documents over 500 cases a year.

60. Police records in West Yorkshire hold over 2000 cases.

61. Within the MPS the abuse and crime linked to FM are generally recognised and recorded as forms of domestic violence. Offences include:

  • Murder (‘Honour’ Related Murder – this area of work is led by Commander Baker, Head of Homicide Investigation)
  • Forced Abortion
  • Female Genital Mutilation
  • Rape and other sexual offences
  • Trafficking
  • Assaults - Common – GBH
  • Abduction/Kidnapping
  • Poisoning
  • Harassment

62. Police resources are also committed to assisting victims who are suffering self-harm, mental Illness and suicide as a consequence of forced marriage or threatened forced marriage.

63. The FM team has worked with a range of victims and community groups and it is clear that recorded allegations are only the tip of an iceberg. A range of sources suggests much higher numbers than those reported to the Authorities.

Creation of a specific offence

64. Following publication of the White Paper, Safety and Justice, there were many calls from a range of agencies for the creation of a specific offence of forcing someone to marry to be included in the Domestic Violence, Crime and Victims Bill. The Bill recently received Royal Assent, however, the specific offence has not been included.

65. The Home Office will be continuing consultation on the creation of a specific offence. As leads on the ACPO FMWG and as the leads for the establishment of the national forced marriage steering group, the MPS FM Team will be closely involved with the consultation exercise.

Conclusion

66. Whilst much has been achieved by the MPS FM Team not least in meeting all of the recommendations contained within “One Year On”, a report by Southall Black Sisters, much work still remains. Some issues of concern and recommendations for the future are listed below:

  • Urgent need for sufficient refuge space for FM victims
  • Development of FM based structure which incorporates other ‘honour’ based violence issues including FGM, dowry, early marriage, trafficking leading to ‘honour’ killings in order to raise awareness of the issues and improve police responses to victims of such crimes.
  • Provision of effective FM training across agencies and the criminal justice system in line with aims of narrowing the criminal justice gap.
  • Resourcing the development of further police research, policy and standard operating procedures as against other policing priorities.
  • Rachael Flagg represents the MPA on the Strategic Working Group

Female Genital Mutilation

Background

67. FGM constitutes all procedures that involve partial or total removal of the external female genitalia or injury to the female genital organs, whether for cultural or any non-therapeutic reasons. There are four main types of mutilations, each type increasing in severity, but all having serious health consequences. The practice is deeply embedded in traditional belief systems, although there is no endorsement for the practice in the Bible or the Koran. There are also no medical, hygienic or health reasons to support FGM in any of its forms. It is a form of violence and a breach of basic human rights.

68. The World Health Organisation estimates that between 100 and 132 million girls and women have been subjected to FGM. Internationally, FGM is mainly practised in Africa, but is also carried out in Middle Eastern and Asian countries, and more recently among African immigrants in Europe, Australia, New Zealand, the USA and Canada. It has become an issue of global concern. In the UK, FGM is most often seen in minority ethnic populations from Somalia, Sudan, Eritrea, Dijbouti, Ethiopia, Sierra Leone and Nigeria.

69. It is most commonly carried out on girls between the ages of 4 and 10 and anaesthetics and antiseptics are not generally used, thereby adding to the risks of disease and illness of the victim. Depending upon the degree of mutilation, FGM will have a wide range of both short-term and long-term health implications, psychological damage and sexual dysfunction.

70. Within the UK, families are likely to seek a traditional circumciser from their own community to perform the procedure on their daughters. Use of medically qualified doctors is rare, although two doctors have been removed from the Medical Register for the practice. The difficulty in seeking out a circumciser in this country has meant an increase in the risk of girls being taken abroad for the procedure.

71. The FGM Act 2003, which came into force on 3 March 2004, makes it an offence for UK nationals or permanent residents to carry out FGM abroad, or to aid, abet, counsel or procure the carrying out of FGM abroad. Maximum penalty is now 14 years imprisonment.

Structure

72. The Women’s National Commission Violence Against Women Working (WNCVAW) Group has established a female genital mutilation (FGM) sub-group. This comprises representatives from specialist organisations in the field, has access to a wide network of expertise and has regular contact with the Home Office and the Foreign and Commonwealth Office. The group is also represented on the ACPO Women & Policing Group. Within the MPS, the FGM lead is within the Serious Crime Directorate, SCD 5, Child Protection Operational Command Unit (OCU).

  • The WNC is the Government’s independent advisory body on women’s issues, working in partnership with women’s organisations representing up to 8 million women.
  • The remit of the WNCVAW Working Group, which is chaired by Nicola Harwin, is to develop a cohesive and effective voice to Government on action needed to address violence against women. The Working Group membership includes representatives from all the key women’s organisations, academics and service providers working in the area of violence against women.
  • The WNC VAW Working Group oversees the work of the FGM Sub-group, chaired by Anne Weyman, Chief Executive of fpa, and comprises representatives from the Agency for Culture and Change Management in Sheffield, FORWARD, the Refugee Women’s Resource Project (Asylum Aid), Black Women’s Health and Family Support and other specialist organisations in the field. It also has access to a much wider network of expertise and has regular contact with Government and officials, particularly within the Home Office
Potential Police/MPA action

There are many areas the Police could assist in the effective implementation and utilisation of the FGM Act 2003. This includes the following:

  • Capacity building with overseas police forces on how to deal with FGM as a child protection issue (through secondments etc);
  • Collection of intelligence regarding and prosecution of known circumcisers in the UK;
  • Police FGM awareness training on legislation and the complexities and realities of FGM;
  • Development of protocols for the investigation of a potential FGM case, including intervention, where to refer families and girls at risk.
Work of the WNC FGM Sub-group
  • Following the meeting held in May 2004 officials from both the FCO and the MPS are now involved in the group;
  • The FGM Sub-group have been asked by the MPS to provide feedback on how the ACPO Forced Marriage Survey could potentially be amended to gather information on what constabularies are doing in the area of FGM. The Secretariat is in the process of collecting replies.
  • The FGM Sub-group has also produced a briefing, at the request of the Police and the FCO, outlining key issues to do with FGM.
  • Following the enactment of the Female Genital Mutilation Act 2003, the group developed a document, which mapped the gaps in policy and provision and outlined recommendations on how the legislation could be successfully utilised.
  • At a subsequent meeting the FGM Sub-group decided to explore the potential of producing a report using this document and information we could glean from Government departments on what policies and measures they intend to have in place to ensure effective utilisation of the FGM Act 2003.
  • As part of this information gathering exercise the Sub Group welcome Government department feedback on any existing or newly developed prevention/ education, protection, support and monitoring and research strategies.
  • Representatives from the Sub-group are now in the midst of developing an outline for the proposed report and establishing potential funding sources for its production. It is hoped there will be a full proposal to put to the broader Sub-group for consultation early in 2005.

73. London child protection protocols are considered best practice and were developed in partnership with NGOs. The London Child Protection Committee has stipulated that agencies should work together to promote a better understanding of the damaging consequences to health of FGM. In practice, if an agency is informed that a girl has been or may be subject to FGM, a referral must be made to social services department in accordance with child protection procedures. Social services inform the police child protection OCU, who are responsible for any criminal investigation.

Issues for Consideration

74. The difficulty with investigating and prosecuting crimes under this legislation lies in the fact that FGM differs from other forms of child abuse in two ways:

  • Parents genuinely believe that FGM is in the child’s best interest to conform with their prevailing custom. They believe that it makes the child socially acceptable within their community and do not intend it as an act of abuse.
  • There is no element of repetition - it is a one-off act of abuse.

Vision

75. The aim is to eradicate FGM in London within the next five years. Using London as a pilot case, the intention is to pass on the experience gained to colleagues across other police forces, UK-wide.

76. The following strategy and action plan are still in the planning stage, but give an indication of the activities that are considered necessary to start to address a problem that is still very low on agencies’ agendas.

Strategy

  • Engagement and education - a community outreach programme to enable engagement with relevant communities and raise awareness of the problem, building trust within those communities and encouraging community leaders and citizens to collaborate with police and other agencies; road shows to travel around community centres in key London boroughs, covering both male only and female only audiences; delivery of talks to key agencies within the child protection arena
  • Intelligence Gathering - the sensitivity of this subject area makes it very difficult to gather any reliable figures in the UK. However, intelligence is critical to build up an accurate picture, using information from, amongst others, doctors and nurses. The feasibility of discrete surveys within communities will also be explored
  • Communication - a broad range of activities, including road shows, educational articles in local and national media, leaflet dropping comprising educational materials and helpline numbers for confidential calls, posters etc.

Action Plan

Prevention
  • A vital component, involving educating communities that FGM is illegal. Community contacts have already been made with voluntary agencies such as FORWARD, Somalian Human Hope, AFRUCA. Other contacts are being pursued with religious organisations.
  • Posters and Leaflets - designs are currently being worked up for circulation in Somali and English to Somalian communities.
  • Community Meetings - half day community meetings for the Somalian community are being arranged in Harrow, Finsbury Park, Barking, Newham, Streatham and Ealing; commencing in February 2005 (funding permitting).
  • Professionals - targeting educational, social services, health specialists and voluntary agencies to raise awareness. There will be input on FGM at the Hounslow ACPC conference in March 2005, and a presentation to Newham ACPC in January 2005.
  • Liaison with other agencies - engaging with other significant agencies such as airlines and immigration. Current negotiation includes production of information leaflets on arrivals/departures for “holidays” to or from Africa.
  • Media - community radio, television and papers will be targeted in 2005
Intelligence
  • Identification of target areas and communities - commencing in January 2005.
  • Liaison with help lines and Crimestoppers to identify potential victims and feed all this intelligence through the Child Abuse Intelligence Cell for research and action where appropriate.
  • Closer links with countries where FGM is practised, and particularly where there is anti-FGM legislation already in existence, are being explored. An exchange with Uganda is being planned.
  • Exploration of how the ACPO Forced Marriage Survey could potentially be amended to gather information on what constabularies are doing in the area of FGM, as currently no data is available.
Enforcement
  • Targeting of circumcisers, and undertaking arrests and prosecutions, are important elements in demonstrating that the MPS is taking this issue seriously. This responsibility lies primarily with SCD5.
  • Enforcement must be closely linked with child protection, and operations must be a joint agency activity between police and social services
  • Development of protocols for the investigation of a potential FGM case, including intervention, where to refer families and girls at risk.
  • Police FGM awareness training so that they understand that FGM is not a matter than can be decided by personal preference, culture or custom, and that they should not be reluctant to investigate alleged offences of FGM for fear of being considered racist.

Hate Crime

77. The material produced is in response to the following questions:

  • Hate crime - what are women’s experiences as victims of racist, homophobic and disability motivated crime?
  • What work is going on to tackle this specific area?
  • What does MPS performance look like and how does consultation with the women affected by these crimes challenge and inform MPS performance?

78. Research conducted in 2001 showed that:

  • 20% of Race Crimes are committed by males on females
  • 10% of Homophobic Incidents are committed by males on females
  • 40% of Racial Crime victims are female
  • 20% of Homophobic Crime victims are female
  • Female victims of Racial and Homophobic crime are less likely to suffer violence as opposed to male victims of the same offences.

79. There is no useful data available in relation to Disability motivated crime. Offences where disabled people are targeted are recorded however, the data is not broken down any further besides gender.

Data from CRIS showing victims of hate crime

  • Female Homophobic Victims (April–October)
    • 2003: 11.4%
    • 2004: 17.2%
  • Female Racial Victims (April–October)
    • 2003: 28.6%
    • 2004: 33.3%

The above figures show that females were the victims in 11.4% of Homophobic crimes during 2003 and this increased to 17.2% in 2004. In the case of Racial Crime, females were the victims in 28.6% of crime during 2003 and 33.3% in 2004.

80. A project is being managed by T/Chief Inspector Parm Sandhu, entitled ‘Women and Policing Project’. This has involved four ‘listening’ exercises with a variety of customer groups. The exercises were held between December 2003 and April 2004. As a result of these listening groups, 62 actions were raised. Three of those actions relate to hate crime:

  • Asylum seekers/Refugees – understanding of issues that effect them
  • Reassurance of ethnic minority communities to report incidents – Third party reporting
  • Reassurance of Muslim communities regarding terrorist activities

81. Two feedback exercises have followed. One was held in June 2004 and the other in November 2004. The results of these have been disseminated to department heads to influence changes of policy and practices.

82. A new hate crime policy was published by the MPS on 13 October 2004. This policy seeks to ensure that victims of hate crime receive an enhanced service.

83. Bonnet Obong represents the MPA on the Strategic Working Group.

MPS performance

84. Detections target for Homophobic crime is 26%. MPS performance is currently 27.6%.

85. Detections target for Race crime is 26%. MPS performance is currently 29.9%.

Women’s safety in open spaces and on public transport

86. This is in response to the question, “In line with the Mayor's priority of women's safety, how is the MPS working to ensure women's safety in public spaces, e.g. open parks and on public transport?”

87. Each police BOCU has individual responsibility for policing open spaces within the corresponding London Borough. However, there are two pan London units in existence which specifically support the policing of wider open spaces and the transport network.

88. The MPS was approached by the Royal Parks Agency in 2000 with a request that the Royal Parks Constabulary (RPC) be merged into the MPS. The MPA acceded to this request and a new, fully funded Royal Parks OCU was created in April 2004, with the specific remit of policing the Royal Parks throughout London. At the moment, MPS and RPC officers and staff police the Royal Parks in a co-policing arrangement under MPS command. It is anticipated that legislation within the Serious and Organised Crime and Police Bill will wind up the RPC in about the summer of 2005.

89. The major Royal Parks are: Richmond Park, Bushy Park, The Regent’s Park & Primrose Hill, Hyde Park & Kensington Gardens, St James’s Park, Green Park, and Greenwich Park.

90. One of the objectives for the OCU in 2004, was to increase visible police presence in the Royal Parks. This has been achieved in every month, thanks partly to the recruitment of 45 Parks Police Community Support Officers (PCSOs). This new PCSO role is proving both effective and popular with staff. Parks PCSOs’ primary role is public reassurance and crime prevention, but they are also getting involved in, for example, parks-related educational activities, cycling and events.

91. The Royal Parks OCU Commander is working with GLA staff on the pilot project Women’s Safety in Parks and Open Spaces. It is planned that three London parks/open spaces will be selected to trial a ‘toolkit’ of measures to improve safety and reassurance. The measures will be in the following areas:

  • Visible policing and reassurance
  • Design
  • Management and maintenance
  • Media and communications

92. The trial is planned to start by the end of February 2005 and to last for seven months. The work is co-ordinated by the Crime and Disorder Plus Steering Group.

93. The Transport Command (TOCU) has responsibility for policing the transport network is shared between the British Transport Police (BTP) and the MPS. BTP has responsibility for the Underground and Railways. MPS has responsibility for the buses and bus routes.

94. TOCU was formed in 2002 and is funded by Transport for London (TfL). TOCU is dedicated solely to providing a problem solving approach to policing the London Buses network.

95. Two objectives relate to safe travel -

  1. Ensure public and staff feel safe using the Bus infrastructure on agreed routes/priority locations.
  2. Enforcement of the law relating to taxis and private hire vehicles within Metropolitan Police District (MPD) to ensure the safety of the public.

96. Operational tactics on buses are based on crime problem analysis by the pan London intelligence unit, patrols by plain clothed and uniformed officers (including PCSO staff) and the investigation of bus based CCTV evidence.

97. Results have included:

  • Customer perception of safety on buses = 85% 1st quarter 2004 - TfL survey.
  • Annual passenger perception of safety in cabs = 86% - TfL survey.
  • Additional surveys show decrease in taxi tout activity in Central London, which is the desired outcome.

98. The Cabs Enforcement Team is another part of TOCU. One of their responsibilities is to focus upon illegal mini cab drivers who are one of the biggest concerns to women’s safety in the Capital. ‘Safer Travel at Night’ is a multi agency partnership led by the Mayor and which has Project Sapphire as one of the main stakeholders. Two major TV advertising campaigns have been launched over the last two years which have been very successful in raising awareness of criminal behaviour caused by illegal taxi touts.

99. The ‘Safer Travel at Night’ campaign included consultation with the IAG. For the advertising element of the campaign, the advertising company, TBWA, conducted independent research into the target audience i.e. women between the ages of 18 to 35. These interviews took place in a Central London nightclub in October 2004. The Suzy Lamplugh Trust has also been closely involved in the campaign.

100. The Cabs Team engages illegal cabs both operationally and by supporting poster and media campaigns. Since 2001, indecent assaults in mini cabs have been reduced by 65% and rape reduced by 55% (Sapphire figures). Since 1 April 2004, the Cabs team made 616 arrests for illegal mini cab touting. In a single-day operation in 2003, 77 arrests were made. Since the team started in April 2002 they have made 1,458 arrests for illegal mini cab touting. We are convinced that this is a major factor in increasing women’s safety and reducing the fear of crime.

101. Other police operations have included anti-kerb crawling patrols. These covered bus routes and occurred in February, September and November 2004. This proactive and intelligence led approach resulted in 85 arrests which included 79 arrests for kerb crawling.

C. Race and equality impact

There are no additional implications for equality and diversity beyond those already reflected within this report. However, race equality impact assessments will be completed prior to the implementation of individual projects and initiatives as required.

D. Financial implications

There are no financial implications arising from this report. Costs will be met from within existing MPS budgets

E. Background papers

None

F. Contact details

Report author: Commander Brian Moore

For more information contact:

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

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