Older People and Domestic and Sexual Violence

Report: 3
Date: 28 July 2009
By: Territorial Policing on behalf of the Assistant Commissioner

Summary

This report provides members with an overview of crimes of Domestic Violence and Serious Sexual Violence where the victim was over 50 years old, for the Financial Year 08/09 (01/04/08 to 31/03/09).

The report details MPS recorded statistics, policies and performance relating to Domestic and Sexual Violence.

A. Recommendations

That the report be noted.

B. Supporting information

Background

1. The Metropolitan Police Service (MPS) remains resolute in its commitment to investigate all aspects of domestic and sexual violence. To this end it is also wholly committed to demonstrating support for; and improving victim care whilst holding perpetrators accountable for their conduct.

2. It is through the continued development of its Public Protection Groups – and their dedicated Community Safety Unit and Sapphire investigative team assets - and its productive working relationships with strategic and operational (statutory and NGO) partners that the MPS seeks to achieve the commitments highlighted above.

3. The population statistics have determined that England is an ageing society. Since the early 1930s the number of people aged over 65 has more than doubled and today a fifth of the population is over 60. Between 1995 and 2025 the number of people over the age of 80 is set to increase by almost a half and the number of people over 90 will double.

4. This source also identifies that in London there were 2, 325, 815 people were aged over 45 years and over i.e. between 45 & 90+ as an age range. In the interim period the number of people in this age range will have increased.

5. The 2001 census showed the population of London to be 7,164,990. Of those people 890,712 (12.4%) were over 65 with 107,020 (1.5% of total population of London) of those being Black and Minority Ethnic (BME) people.

6. Figures from the 2001 Census estimated that the total black and minority ethnic population in England and Wales was just over 4.52 million (8.7% of the total population of Great Britain).

MPS Recorded Crime Data (1 April 2009 - 31 March 2009)

7. The MPS’ Crime Reporting and information System (CRIS) system was subject to a software upgrade in December 2008. This upgrade has ensured more accurate recording and identification of equalities data including ethnicity, nationality and disability when a staff member initially records a crime.

8. In addition this development will also enable the MPS to better identify:

• Disproportionality (including in performance outcomes)
• Compound discrimination
• Access and communication needs of victims & witnesses
• Which communities are being targeted
• Efficient and cost effective use of resources.

9. In Financial Year (FY) 08/09 (01 April - 31 March 09) there were 4557 recorded incidents of Domestic Violence (DV) where the victim was aged over 50 years. Of these victims 3056 were female and 1501 were male victims.

10. There is a significant decrease in offences recorded, where the victim is aged 65 years or older. There were 523 offences recorded for victims aged 51 years with a steady decrease until victims reach 65 years; where 82 offences were recorded.

11. FY 08/09 there were 27 recorded offences of DV homicide. Of these there were 5 matricide offences, sons and mothers and 1 patricide, father and son. Of these 6 victims 5 were over 50 yrs. Of the remaining 21 offences all of the victims were under 50 yrs old and the victim of partners or ex partners. Of the 27 homicides 25 victims were female and 2 male.

12. In the same period there were a total of 55 recorded allegations of a specified sexual offence [1] where the victim was aged 50 or over, compared to a total of 1554 recorded offences for all victims aged 18 years or over.

13. That said as can be seen from the table below, which illustrates the specified sexual offences, the majority of offences recorded (39 crimes) are of Rape with the lowest figure by contrast being an assault by penetration on a male (1 crime)

Relationship of victim to perpetrator

14. The MPS has adopted and works to the Association of Chief Police Officer (ACPO) DV definition of: 'Any incident of threatening behavior, violence or abuse (psychological, physical, sexual, financial or emotional) between adults, aged 18 and over, who are or have been intimate partners or family members [2], regardless of gender and sexuality' (ACPO - 2004).

15. Where the perpetrator is determined as being in a relationship with the victim, an ex-partner or family member falling within the scope of the above definition the allegation’s report will attract a CRiS DV flag.

16. Therefore where the relationship is recorded as a friend, acquaintance or is unknown [3] the report wouldn’t be flagged as such.

17. When broken down further the statistics reveal that of the 55 offences, 3 were committed on men, however no relationship was recorded to illustrate the victim/perpetrator relationship. Again this is noted as an area for improvement.

18. Of the offences reported by women, a husband or ex-husband committed 12; ten were perpetrated by a boyfriend or ex-boyfriend and one by a brother-in-law. The relationship recorded for the remaining 29 offences were shown as acquaintance, friend or other relationship.

Domestic rape

19. During FY 08/09 domestic rape accounted for 24.7% of all recorded rape offences. This is a rise of 3.3% when compared to FY 07/08 (21.4%).

20. As is the case with all other rape offences investigated by current TP assets, domestic violence rapes are subject to a risk assessment & management process with further oversight being provided by the Public Protection Group and Borough Daily Management Meetings.

21. Every domestic violence incident is subject to a risk assessment by the first responder supported by a secondary assessment in medium and high-risk cases. In the main the first responder will be a uniform response police officer. The SPECSS [4] + risk identification and assessment tool leads the officer through a series of questions relating to the victim / perpetrator history in order to determine the future risk level. Some of these questions relate to previous physical and sexual abuse. As a consequence a number of previously un-reported serious sexual violence crimes will be discovered during this assessment process.

22. It is current MPS policy that reported domestic rape would be investigated by Sapphire Investigators in partnership with Community Safety Unit staff.

Equalities Strands

23. The offences of rape, sexual assaults and DV disproportionately affect women. There has been no significant change in the percentage of males and females who are victims of rape from last financial year. Approximately 89% of recorded rape offences involved a female victim.

From information supplied there were 3 male victims of specified sexual offences; aged 51, 53 and 57 years. All these victims were of White North European origin.

Of the 55 specified sexual offences none were reported by BME males and 6 by self classed BME females. The remaining 46 sexual offences were reported by females classed as white British, white Irish, white other or unrecorded.

Of the 4557 DV reports recorded:

• 872 were reported by self classed BME females.
• 501 by BME males.
• The remainder involved 1000 male victims who were classed as white, white Irish white other or unidentified ethnic origin and 2184 females classed as white, white Irish, white other or unidentified ethnic origin.

 Of the 523 offences reported by victims age 51 years

• 135 were recorded by male victims and 388 by females
• 14 were Asian males
• 30 Asian females
• 13 Black males
• 35 Black females
• 1 mixed race male
• 7 mixed race females
• 2 Chinese males and 8 Chinese females.
• The remainder were of white origin or unidentified.

Of the 276 offences reported by victims age 55, eighty seven were reported by male victims and 189 by female.

• 8 were Asian male
• 15 Asian female
• 4 Black male
• 7 Black female
• 1 mixed race male
• 0 mixed race female
• 2 Chinese male and 1 Chinese female.
• The remainder were of white origin or unidentified.

Of the 197 offences reported by victims age 60, seventy were reported by male victims and 127 by females.

• 6 were Asian males
• 15 Asian females
• 5 Black males
• 9 Black females
• 1 mixed race male
• 2 mixed race females
• 1 Chinese male and 2 Chinese female.
• The remainder were of white origin or unidentified.

Of the 67 offences reported by victims age 70, twenty two were reported by male victims and 45 by female victims.

• 4 were Asian males
• 4 Asian females
• 4 Black males
• 5 Black females
• 0 mixed race male
• 0 mixed race female
• 1 Chinese male and 0 Chinese female.
• The remainder were of white origin or unidentified.

Of the 22 offences reported by victims age 80, six were reported by male victims and 16 by female

• 0 were Asian male
• 3 Asian female
• 0 Black male
• 1 Black female
• 0 mixed race male
• 0 mixed race female
• 0 Chinese male and 0 Chinese female.
• The remainder were of white origin or unidentified.

Of the 4 offences reported by victims age 90, 1 was reported by a male victim and 3 by female

• 0 were Asian male
• 1 Asian female
• 0 Black male
• 1 Black female
• 0 mixed race male
• 0 mixed race female
• 0 Chinese male
• 0 Chinese female
• The remainder were of white origin or unidentified.

MPS Performance Data (1 April 2009 - 31 March 2009)

24. The Sanction Detection (SD) [5] rate for the DV offences is 53.11% (2420); the MPS target SD rate was 45.3%.

25. Of these 1245 (51.4%) were charges / prosecutions and 1154 (47.7%) were adult cautions.

26. The SD rate for specified sexual offences is 25.45% (14) the MPS target SD rate was 31%.

27. In the last financial year the boroughs that were identified as not achieving MPS targets were Barking and Dagenham, Bromley and Croydon.

28. Barking and Dagenham Borough - achieved a SD rate of 39.1%, (bespoke borough target was 50%) a change of -7.3% on FY 07/08 and a DV arrest rate of 67.9 (MPS target of 67%) an improvement of 9.6%.

29. FYTD (28 June 2009) this borough is achieving a DV SDR of 37.7% (against a bespoke target of 44%) and an arrest rate of 69.8% (Borough / MPS target of 70%).

30. Bromley Borough - achieved a SD rate of 41.1%, (bespoke borough target was 43%) a change of -0.5% on FY 07/08 and a DV arrest rate of 64.9% an improvement of +3.4%.

31. FYTD (28 June 2009) this borough is achieving a DV SDR of 42.3% (against a bespoke target of 44%) and a DV arrest rate of 68.1% (Borough / MPS target of 70%).

32. Croydon Borough - achieved 40.1% SD rate (bespoke borough target of 48%) a change of -2.8% on FY 07/08 and a DV arrest rate of 67.3% an improvement of 5.6%.

33. FYTD (28 June 2009) this borough is achieving a DV SDR of 51.2% (against a bespoke target of 44%) and a DV arrest rate of 72.4%, which MPS target (Borough / MPS target of 70%).

34. Twenty of the 32 Boroughs achieved their bespoke DV sanctioned Boroughs in FY 08/09. The following boroughs were notable in their achievements; London Boroughs of Richmond on Thames, Havering, Bexley, Newham and Tower Hamlets.

35. Richmond on Thames - achieved a SD rate of 63.9% (bespoke borough target was 50%) a change of +5.8% on 07/08. A DV arrest rate of 87.6% was achieved, an improvement of 14.6% on FY 07/08.

36. Havering - achieved a SD rate of 61.2% (bespoke borough target was 65%) a change of -12.5% on 07/08. It should also be recognised that Havering Borough was set the highest bespoke SD target. A DV arrest rate of 84.6% was achieved, a change of -3.9% on FY07/08.

37. Bexley - achieved a SD rate of 60.3% (bespoke borough target was 45%) a change of -7.1%. A DV arrest rate of 80.5% was achieved, an improvement of 1.1% on FY 07/08.

38. Newham – achieved a SD rate of 54.4% (bespoke borough target 43%) an improvement of 11.3%. A DV Arrest rate of 79.1% was achieved, an improvement of12.8% on FY 07/08.

39. Tower Hamlets – achieved a SD rate of 50.8% (bespoke borough target 47%) a change of + 3.7% on FY 07/08. A DV Arrest rate of 79.1% was achieved, an improvement of 12.8% on FY 07/08.

40. The MPS has a robust and supportive performance management regime in place. The current performance framework, which includes domestic and sexual violence, involves the following:

• Borough daily management meetings
• Borough tactical tasking and co-coordinating meetings
• Borough senior management strategy meetings
• Link commanders’ meetings
• Crime control strategy meetings
• VCD daily management meetings
• CSU Detective Inspectors’ 6 weekly meetings
• Sapphire Team Leaders’ meetings
• Borough Crime Managers’ meetings
• MPA Domestic and Sexual Violence scrutiny boards
• Focused critical incident review, and
• Focused performance inspection and interventions conducted by the VCD Public Protection teams.

41. Performance matters feature at the Community Safety Unit Detective Inspectors’, Sapphire Team Leaders’ and Borough Crime Managers’ meetings. The standing agenda at these meetings are performance, good practice, areas for improvement and enablers and barriers to success.

Rape performance

42. In the last financial year the boroughs that were identified as not achieving MPS targets were Barking and Dagenham, Sutton and Merton.

43. Barking and Dagenham Borough - achieved a SD rate of 11.8%, (bespoke borough target was 43%) a change of -21.2% on FY 07/08.

44. FYTD (28 June 2009) this borough is achieving a SD rate of 25.0% (against a bespoke target of 35%).

45. Sutton Borough - achieved a SD rate of 14%, (bespoke borough target was 40%) a change of -14.6% on FY 07/08.

46. FYTD (28 June 2009) this borough is achieving a SD rate of 0% (against a bespoke target of 35%).

47. Merton Borough - achieved a 17.6% SD rate (bespoke borough target of 35%) a change of +0.2% on FY 07/08.

48. FYTD (28 June 2009) this borough is achieving a SD rate of 33.3% (against a bespoke target of 35%).

49. Boroughs that performed above set MPS targets for 08/09 were Bexley, Kingston-upon-Thames and Camden.

50. Bexley achieved a SD rate of 85.7% (bespoke borough target was 50%) a change of -4.8% on 07/08.

51. Kingston upon Thames achieved a SD rate of 57.9% (bespoke borough target was 35%) a change of +22.4% on 07/08.

52. Camden achieved a SD rate of 50.0% (bespoke borough target was 43%) a change of +11% on 07/08.

53. The same performance structure operates in this genre as reflected in paragraph 38 above.

Policy

54. MPS staff investigates DV and Rape & Serious Sexual Assault allegations in accordance with the relevant policy and standard operation procedure (SOP).

55. The Rape and Serious Sexual Assault (RSSA) SOP contains specific direction to investigators and others where an offence is alleged to have taken place within a DV relationship context. All staff are instructed to consider lines of enquiry, which maximize evidential, forensic, witness and intelligence opportunities including ascertaining the history of any reported or unreported physical and/or sexual violence.

56. In addition a notable principle in every investigation of rape is that the victim has got a fundamental right to be believed. Partnership working and bespoke support for the victim must underpin all that we do. The MPS will continue to reinforce, pursue and commit to this ethos in such investigations.

57. As the Sexual Office Investigative Team (SOIT) staff engage with the rape and serious sexual assault victims within an hour of their allegation, it was decided that the SPECSS+ risk identification, assessment and management tool would be included in the SOIT log and in the Crime Academy SOIT training course. SOIT staff play an essential role in the investigation and in victim support and also most pertinently in the risk identification, assessment and management process.

58. This guidance builds on the Domestic Violence Standard Operating Procedure and as such any investigation of a domestic serious sexual offence, should also include consideration of the distinct possibility that the reported serious sexual offence is part of a repeat escalating pattern of domestic violence offending. Any report of domestic sexual assault must be regarded as a high-risk crime, which requires a professional, intrusive and effective investigation, which is supported by a bespoke victim support package.

59. The Borough CSUs should be informed and where necessary provide tactical advice and progress liaison with local borough DV partners.

60. The recently launched MPS Safeguarding Adults at Risk (SAAR) Policy and SOPs, which was published on 10 June 2009, gives clear guidance to primary and secondary investigating officers when interacting with adult victims who may be at risk. Adults maybe at risk due to a number of factors including age, illness, disability or isolation.

61. The scope of the policy is intended to manage those cases where the victim and perpetrator have a care service relationship or where the perpetrator holds a position of trust in relation to the victim. This will include care being given to a spouse by a husband or wife or an adult son/daughter caring for a parent.

62. The MPS SAAR Policy is to be complied with where the victim is an adult over 18 years of age who may be at risk because of their personal circumstances at that time. If an allegation falls within the scope of the DV or RSSA policy, then either of these will be used in conjunction with the SAAR policy as necessary, to ensure the correct and appropriate level of referral, joint working and victim support is provided. If a crime falls outside the scope of the SAAR policy, where the victim would be classed as an adult at risk, but the perpetrator is not a care provider or in a position of trust, the SAAR policy would be utilised as best practice.

63. Where an allegation of crime encompasses two or more MPS policies, all policies are referred to, to ensure the victim(s) is/are provided with the most comprehensive service available. Where a Rape or sexual assault occurs within a DV relationship, the offence will be investigated in line with the TP Policy and Standard Operating Procedures for the Investigation of Rape and Serious Sexual Assault (RSSA) and the DV policy will be utilised as guidance to ensure correct procedures are followed regarding positive action, risk assessment, safety planning and victim support.

64. The MPS is satisfied that these policies and SOPs complement and add value to each other.

65. The recent review of the DV SOP and formulation of the SAAR has presented several opportunities to engage with relevant partner agencies representing older people, through the consultation process to inform and increase awareness and intervention opportunities. This has resulted in requests for the Violent Crime Directorate’s officers to present and engage with Safeguarding Adults Coordinators at numerous seminars and training sessions.

66. One such seminar was arranged through Action against Elder Abuse where officers were able to provide information on identification, assessment and risk management specific to domestic violence and older people. In addition, VCD staff have provided and supported training for Safeguarding Adult Coordinators in several boroughs specifically in relation to honor-based violence and the Forced Marriage (Civil Protection) Act, 2007.

67. In addition investigators and other staff engaged in the investigation of domestic violence and sexual offending have been provided with several presentations from groups representing older people to enable local strategies, to engage with and protect them from abuse.

68. A recent multi-agency launch of the SAAR at City Hall provided information and networking opportunities across the relevant agencies engaged in tackling crimes against older people.

69. Last year, a roundtable event organised by charitable organisations representing older people, people with disabilities and mental health issues, including Voice UK, Ann Craft trust, Action on Elder Abuse and MENCAP enabled the MPS to present on the links to HBV, DV and sexual offending.

70. The MPS Diversity and Citizen Focus Directorate (DCFD) is now completing the MPS Older Persons Strategy with the support of the VCD CSU Service Delivery Team. The CSU team is seeking to ensure that DV and sexual offences are included in the Older Persons Strategy.

71. DCFD staff has been working in partnership with Age UK (a merger of Help the Aged and Age Concern), London Older People's Strategic Group (LOPSG) and the Greater London Forum for Older People. (GLFOP) to assist in the development of a mature strategy.

72. In addition the Greater London authority (GLA) held a Crime and Older People event titled "Appreciating Our Seniors" on 6 March at City Hall. Issues and concerns of older people were collated, which have informed recommendations, which will be used to inform the MPS strategy.

Alcohol and drugs

73. The use of alcohol and controlled drugs amongst other reasons are significant factors in the investigation of rape. The capture of early evidence is particularly relevant in this area. All front line staff are trained in the use of Early Evidence Kits (EEK), which was originally developed in the MPS. The importance of gathering early evidence is stressed in MPS staff training. Sapphire investigators have been provided with training on the effects of drugs and methods of analysis.

The Havens

74. The Haven service is staffed by all female Sexual Offences Examiners Doctors. The non-availability of female doctors was a catalyst in the establishment of the Haven service. The MPS SOIT Officers include both male and female officers.

75. There are male only clinics established at the Havens, and Haven media campaigns and posters have been non-gender specific.

76. The MPS and the Havens have developed services with a view to improving access from BME people. This has included a review of the skills profile of the Sapphire Specialist Advisory Group, to ensure that more diverse groups are represented. The Havens have established the post of Asian Development Worker at Whitechapel. Haven awareness campaigns have focussed on specific London Boroughs and have enjoyed the support of businesses such as “Nail Bars” and “Hairdressers” with a high proportion of black female clients.

77. The Havens continue to provide the highest level of victim care and forensic examination. Whilst the Havens are developing a number of new initiatives, the primary focus for the Havens is to maintain a consistent service for all clients. Good practice and the maintenance of standards are co-ordinated across all three sites through the Haven Clinical and Training Group. This group also ensures that staff are provided with up-to-date training. Work was undertaken by TP CSU SDT officers and Haven staff to train staff in DV risk identification and assessment. This ensured DV risk assessment of any victim of a sexual assault attending the unit.

78. During 2008 the Havens and the MPS have conducted awareness campaigns, aimed at improving access to the service. The Greater London Authority has supported this campaign. The campaign has included the display of posters on key public transport routes and in community areas such as GPs’ Surgeries and Libraries.

79. The Haven text service has been promoted. Person’s texting the word “Havens” to 64118 will have the details of all three Havens sent to their mobile phone free of charge. Targeted use of the internet and search engines has delivered significant results. During the first month of the campaign, in September 2008, Haven website hits rose from an average of 5,000 per month to 15,000. There have now been over 50,000 hits on the site. In December 2008, the MPS funded a two-week radio campaign promoting the Havens. The percentage of “Self Referrals” to the Havens rose to around 20% from an average of 10%.

80. The Havens don’t currently collate performance information relating to the equalities data service users including self-referrals.

Diversity Impact

81. The MPS is cognisant of any adverse impact or disproportionality that may occur as a result of the delivery of its services, and fully embraces the need to engage and consult with communities and their informed representatives.

82. The Cross Government Action Plans on Domestic Violence and Sexual Violence & Abuse and the MPS’ own work recognises the gender inequality experienced through the commission of such crimes e.g. most perpetrators are men and most victims are women.

83. The MPS has fully supported HM Government’s consultation paper ’Together We can End Violence Against Women and Girls’ and the Mayor’s London Violence Against Women strategy.

84. In addition, the MPS Rape review highlights other vulnerabilities whereby women from black and minority ethnic backgrounds, and women who have mental health problems and/or learning disabilities, are disproportionately represented in the rape victim category. The MPS recognises that we must gain a better understanding of compound discrimination issues affecting BME women and how we shape our services to meet such needs. The support of partners is essential in this area.

85. The DV, Sapphire and SAAR Standard Operating Procedures, have all been subject to equality impact assessments and consultation with key partners to ensure the needs and views of the diverse range of London’s communities and those people affected by our service delivery are represented or otherwise catered for.

Contact details

Report author(s): Gerry Campbell, Detective Chief inspector, MPS

For more information contact:

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

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