MPS response to organised immigration crime

Report: 5
Date: 9 October 2003
By: Commissioner

Summary

This report provides a review of the progress of the MPS response to human trafficking and organised immigration crime.

A. Recommendations

That members note the report.

B. Supporting information

Background

1. Operation MAXIM is the Metropolitan Police Service (MPS) initiative in which the MPS Specialist Crime Directorate, led by SCD11 (Covert Operations Unit), is working in partnership with the United Kingdom Immigration Service (UKIS) and UK Passport Service (UKPS) to target ‘Level Two’ organised immigration crime in London, with the shared objective to significantly disrupt, prevent and reduce serious criminality. Operation MAXIM is aligned to the overarching Government sponsored national Operation REFLEX.

2. There are two aspects to Operation MAXIM that operate in tandem:

Dedicated team of 22 MPS officers and 7 support staff working in conjunction with officers from UKIS and UKPS to undertake intelligence-led proactive operations against those involved in organised immigration crime across London; and

A Met-wide programme that co-ordinates all activities throughout the MPS against organised immigration crime, of which the main strands are:

• Human Trafficking
• Vice and Prostitution
• Identity and Document Fraud
• Child Exploitation, and
• Money Laundering through `cash priority’ businesses.

3. The governance for Operation MAXIM is managed through a formal programme structure led by AC Ghaffur, which includes a now well-established strategic steering group, the ‘Proactive Team’ and a multi-agency ‘Joint Intelligence Cell’. It is intended to complement this structure with a ‘Community Reference Group’ drawn from hitherto untapped contacts amongst members of London’s communities from the principle source and gateway countries.

4. The introduction of the Joint Intelligence Cell, involving officers from the three Agencies has greatly improved the intelligence gathering capability. The Proactive Team is already making an impact and its move in October, from temporary accommodation to new offices at Electric House on the UKIS estate in Croydon, will provide a firm base for the future.

Achievements to-date

5. One of the strategic priorities set by AC Ghaffur for the Specialist Crime Directorate is the combating of organised crime affecting distinct and vulnerable communities. Operation MAXIM is now working effectively to support that objective.

Primary activity

6. Primary activity relates to a programme of operations led by the Operation MAXIM Proactive Team arising from intelligence packages developed by the Joint Intelligence Cell. A number of operations are outlined in Appendix 3.

Pilot phase results

7. The pilot phases of MAXIM have had significant results leading to the implementation of the permanent programme.

Phase 1 – took place between 24 and 29 April and resulted in 46 arrests: 15 for involvement in serious organised crime. Of the 46 detained, UKIS removed 31 as illegal entrants.

Phase 2 – commenced on 3 July and concentrated on Albanian and South East Asian crime groups. There were 19 arrests – including one person believed to be a prominent member of an Albanian organised crime group with significant UK assets. Further Phase 2 activity took place on 19th July with the arrest of 4 Bulgarians for the highly organised production and distribution of forged identity documents smuggled into the UK.

Secondary activity

8. This involves MAXIM acting as a clearinghouse working with other MPS units on Level 2 Operations focused on criminal activity connected with organised immigration crime. An example of the arrests arising from “secondary activity” in provided in Appendix 2.

Future activity

9. The future for MAXIM is about sustainability and continuing its high visibility programme. The Joint Intelligence Cell is currently researching a number of intelligence packages that the Proactive Team can develop into weekly ‘high impact’ operations to disrupt and dismantle criminal enterprises directly involved in organised immigration crime. At the same time, ‘good news’ stories and media briefings will continue, led by AC Ghaffur. To achieve this, the Joint Intelligence Cell and Proactive Team are researching up to forty intelligence packages with a view to conducting weekly Operations. These will include significant action on child trafficking, and Identity theft facilitation.

Achievements in the infrastructure development

Joint Intelligence Cell (JIC)

10. The JIC is now fully operational and currently staffed by one Detective Sergeant (Intelligence Manager), and two officers from UKPS. Two officers from the Immigration and Naturalisation Department Intelligence Service (INDIS) (UKIS intelligence wing) will join them in October. The UKPS and INDIS staff will also support the Operation REFLEX intelligence cell, which is co-located with the MAXIM JIC. Recruitment and selection is ongoing for two MPS Analysts and three MPS Researchers to join the JIC.

Proactive Team

11. Selection Boards to bring the MPS contingent of the Proactive Team up to 22 will be held in September with staff being in place thereafter over a 3-month rolling programme. Officers are already in place for the management and supervision posts.

Performance measurement

12. An external academic, Dr. Alan Wright, formerly of the University of Portsmouth, has been commissioned to develop soft and hard performance indicators and to evaluate MAXIM’s impact generally across London.

Financial investigation

13. It is intended that all detective constables on the MAXIM Proactive Team will be accredited Financial Investigators. This will enable the Team to focus on asset confiscation as a further measure to disrupt organised immigration crime by stripping away the wealth generated through criminal enterprises. Training for the first group has already begun.

Publicity

14. A marketing plan is being developed to create a highly visible ‘brand’ for Operation MAXIM, similar to that of Operation TRIDENT. The objective is to promote internally and externally awareness of MAXIM and its objectives through a range of media including the London Press. A number of News Agencies, including some from the ‘source’ and ‘gateway’ countries are expressing an interest in being present during planned MAXIM operations.

Funding

15. Operation Reflex has supported Maxim with an allocation of £1 million pounds which is to be spent on salary, overtime, I.T. and associated resources. Since April 2002, a further £700k has been successfully bid for, from the Reflex Additional Projects Fund to support proactive Operations throughout the Specialist Crime Directorate.

Management Issues

16. Operation MAXIM has identified a number of issues that need work to improve efficiency and effectiveness -

Short-term

• Joint training for MPS, UKPS and UKIS staff to increase skills and knowledge in this specialist subject and improve capacity building in all the Agencies. The focused use of combined powers under the Immigration Act and Police & Criminal Evidence Act will strengthen Operation MAXIM’s effectiveness against organised immigration crime.
• A ‘District Attorney’ style prosecutions team is being considered involving a senior Crown Prosecution Service (CPS) lawyer specialising in the prosecution of immigration offences. The idea is to counter the increasing number of specialist immigration defence lawyers and thus secure a more positive outcome for the prosecution. In addition, guidance can be given direct to the Proactive Team to focus and enhance pre- and post-operational activities. Further meetings are planned between the CPS and MPS towards agreeing a protocol between the two Organisations.
• Training and marketing information are required for the wider audience across the MPS and CPS to ensure a consistent application of policy that will ensure a positive stance on ‘Judicial Disposals’ for immigration offences. A Police Notice advising of a positive charge / caution policy will be written and circulated. A similar communication will be made through the CPS.
• The MPS is negotiating for a member of the Department of Works and Pensions to join the Intelligence Cell, thereby providing another (as yet) untapped source of intelligence.
• The Joint Intelligence Cell is generating a significant number of intelligence packages requiring prompt action. We now need to ensure MAXIM’s priorities are in line with those of other MPS Units to ensure we compete successfully for support from specialist units, such as the Territorial Support Group and SO19. Both Units require notice and planning time ahead of high impact MAXIM operations.

Longer term

• Development of procedures for sharing biometric data and for the other Agencies to provide 24-hour operational access to their systems. We also need to explore opportunities to acquire fingerprint information from source countries in order to speed-up identification issues.
• Current immigration legislation needs to be rationalised. There are presently in excess of 300 immigration-related offences.

Community Reference Group

17. An important parallel initiative under the banner of Operation MAXIM is the establishment of a Community Reference Group. A template has been designed which, in the first instance, will be applied to identified immigrant community structures from up to 12 of the principle source countries. This is currently being developed into an Action Plan. There are six strands to what will begin as a Community Partnership Programme with an overarching objective: to build public trust and confidence to significantly disrupt, prevent and reduce serious criminality connected to organised immigration crime. The six strands are:

Political – working at the diplomatic level with the Embassy or High Commission in London and Government Departments;

Business Forum – working with key people from the immigrant communities who have established businesses in London;

Religious Forum – working with the relevant faith leaders and support groups;

Youth Forum – integrating young people into the wider opportunities provided by the MPS and its Local Authority partners;

Media Strategy – working with London and foreign journalists to get the positive and robust message across to the communities here in London and the home countries about Operation MAXIM; and

Cultivation of community contacts – integration of key members of the communities into the existing community consultation framework, including the Borough Police and Communities Consultative Groups.

C. Equality and diversity implications

1. Operation MAXIM works to ensure that all activity meets with the obligations of the Human Rights Act and the Race Relations (Amendment) Act.

2. A vital strand of Operation MAXIM is the establishment of the “Community Reference Group” to act as a ‘critical friend’ to advise the MPS and ensure that MAXIM achieves its objectives in a culturally and community sensitive manner.

D. Financial implications

1. REFLEX funding was sought in 2002 principally for Police salaries and overtime costs.

2. The SR 2002 settlement provided funding which was allocated to the creation of 22 police posts commencing 1st April 2003 for 3 years. This REFLEX funding amounts to £3 million over three years. The total projected cost of the operation is estimated at £5 million. Existing MPS budgets held within the Specialist Crime Directorate have been identified to fund the expenditure not funded by REFLEX. The MPS continues to secure additional REFLEX funding under the Additional Projects fund (APF) as indicated at 6 below.

3. The costings given at appendix 1 reflect the projection of costs for the project initiation document (PID) submitted to AC Ghaffur in July 2003. Until the costs associated with moving into Electric House are finalised then these figures remain estimated.

4. Provision within the start-up costs is principally police officers and police staff salaries and overtime costs plus equipment, transport and IT.

5. The agreement with REFLEX partners is that the MPS will be provided with accommodation within the UKIS estate. Provision for the costs of accommodation is not included in this document, as UKIS is not proposing to charge the MPS for the offices at Electric House.

6. Wherever there is a budget shortfall due to unforeseen expenses during operations or for additional equipment not held by the MPS but required to maintain operational efficiency, an application will be made in the first instance to the REFLEX (APF).

E. Background papers

• Human Trafficking report (PPRC 8 May 2003 agenda item 9)

F. Contact details

Report author: Detective Chief Superintendent Frank Hooley SCD11, MPS.

For more information contact:

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

Appendix 3

Results

Significant operations in this area are described as follows:

• Operation POCHARD: in support of the “Adam” murder investigation (the boy’s torso in the Thames), Operation MAXIM has made 23 arrests leading to two immediate removals and the principal charged with 10 trafficking offences. The success of this Operation received significant media attention.
• Operation KITTIHAWK: in conjunction with CO14 (Clubs and Vice Unit) a female member of a Russian organised crime group (Ms Efimova) was arrested following her second illegal entry into the UK. She admitted to offences involving four forged passports (but there is evidence of far in excess of this number). She is currently serving a term of imprisonment and will be deported once her sentence is complete. This was another successful operation that received considerable Press interest (Daily Mail article, 28th August).
• Operation KONTIKI: another joint Operation with CO14 and the Immigration Service. This involved police visits to London’s saunas and brothels. So far this year 371 brothels have been visited. As a result a significant number of exploited women have been rescued and 9 trafficked juveniles have been discovered and handed into the care of the Social Services. Considerable intelligence has been obtained which has generated a number of larger trafficking operations and in turn locating other vulnerable women. As a consequence of this operation 154 women have been dealt with by the Immigration Service.
• Operation BEAU: is part of the UKPS intelligence research programme against organised passport fraud. One MAXIM-led operation under this programme in September resulted in 10 arrests, including a ‘Muslim cleric’ for facilitating false applications. 5 people were removed and 2 more have been charged; and one remains in custody, for a variety of organised immigration crimes. This ongoing Operation is a good example of the benefits arising from co-ordination between the Proactive Team and the Joint Intelligence Cell and the ability of the Agencies to work effectively in partnership.

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