met police service review 2005-2006

MPS HIGH IMPACT SERVICE REVIEW – RESTRICTED Version1

MPS HIGH IMPACT SERVICE REVIEW

Family and Community Protection

“To reduce violent crime and safeguard individuals by undertaking a co-ordinated case management approach to danger”

Inspector James Cooke

MPS HIGH IMPACT SERVICE REVIEW – RESTRICTED Version 1 1


MPS High Impact Service Review TeamRoom 1322 New Scotland Yard, London SW1H OBJ

Tel. O207 230 4216 E Mail james.cooke @met.police.uk

CONTENTS

Section Page

Introduction……………………………………………………..

Section A – Summary of Main Findings……………………

How Danger is defined……………………………………………. How risk is identified at the front line……………………………. How those risks are referred on…………………………………. How the risks are assessed……………………………………… Multi agency action planning…………………………………….. Risk monitoring and review mechanisms………………………. Personnel and Training…………………………………………… IT and Manual support systems………………………………….

Section B – Scope………………………………………………

Units Reviewed…………………………………………………….. Risk Management Chain…………………………………………..

Section C – Planning…………………………………………..

Methodology……………………………………………………….. Review Milestones………………………………………………… Future High Level Issues………………………………………….

Section D – Ideas For Change……………………………….

Structure…………………………………………………………… Systems…………………………………………………………… Personnel…………………………………………………………. Cost Benefits………………………………………………………

Appendix A – Cost Benefit AppraisalAppendix B – Partnership Considerations



Appendix C – Comparative International & Domestic ProjectsAppendix D - Category ‘C’ Homicide InvestigationAppendix E – Achievability, Desirability and Feasibility IssuesAppendix F – New Public Protection Directorate Structure

INTRODUCTION

The review appraised the principal units in the MPS who manage different aspects of serious violence within families and the wider community. This included Jigsaw, Sapphire, Community Safety Units, Child Abuse Investigation, Mental Health, Prolific and Priority Offenders Scheme together with several SCD and Corporate units.

The purpose of the appraisal was to identify improvements that could be made to MPS efficiency and effectiveness in managing the “men of violence”, protecting vulnerable people and locations.

At the heart of the investigation was a guage on our performance in terms of the “Risk Management Chain” ie How we identify, refer, assess, manage and review risk levels in the most dangerous situations.

The appraisal has highlighted the numerous strengths in each individual unit in terms of expertise, systems, partnership activity and the statutory context BUT how little these strengths are being appropriately shared across different danger domains in a collaborative effort.

The investigation has also explored partnership linkages, category C murder and carried out some comparitive case studies with San Diego, New York and Harrow in London.

This review concludes with a proposed model for public protection together with an analysis of some of the major cost efficiency savings this would leverage which could be re-invested towards more and better trained public protection staff.



SECTION A – SUMMARY OF MAIN FINDINGS

Danger definition/Grading and Application

No common definition of danger across specialist departments or their main external partners

Differing focus and prioritisation between offenders, victims and locations by separate specialist police departments, founded on historical and legal factors.

Largely reactive police response to victims and offenders with very little proactive scanning of police indices.

Risk Identification

Reliance on ‘professional judgement’ to identify risks in certain specialist units such as SCD7, 8 and Sapphire. This is dependant on levels of knowledge and experience of the individual case officers concerned

No systematic proactive processes of scanning multiple police indices for signs of early heightened risk

Complete lack of systematic information sharing between specialist units in TP and SCD where there are common domains of danger between them. For example domestic violence, child abuse and sexual offences within the same family.

Variable and unsatisfactory community intelligence infrastructure at BOCU level to identify and collate intelligence outside the more formal police surveillance and DSU activity.

Lack of structured and appropriate training for front line policing and BIU in identifying behavioural and situational danger signs.

Inability of the organisation to take a balanced approach between tackling volume crime and distinguishing cases of high danger in victims, offenders and locations from the mass of TNO’s.

The need to focus SCD1 HPU effort on producing specific indicative risk models for front line policing and BIU’s in different domains of danger such as child abuse, gun and weapon criminality, hate crimes , serial offending and organised crime.

SCD11(7) saw a clear role in helping to identify other dangerous high risk prisoners in addition to sex offenders amongst the prison population.

Risk Referral



The need to establish a method of ‘thresholding’ at which point risks are initially assessed by the BOCU Crime Desk and/or BIU using a cumulative scoring mechanism for different incidents that the offender, victim or location comes to notice for. At predetermined trigger points such cases are referred on for full assessment and risk categorisation.

The need to re-establish standards of data entry and flagging for CRIS and CRIMINT entries which need to be assessed by the specialist units.

Risk Assessment

The complete disparity in assessment tools used between MPS and its main partners the Prison and Probation Service. MPS only use the accredited Matrix 2000 assessment process for sex offenders whilst our main partners in public protection use OASYS which is a generic first stage assessment system.

The need to focus SCD1 HPU effort on producing assessment tools which could compliment OASYS in assessing risks in different domains of danger as above.

Jigsaw appears to concentrate on too narrow a band of dangerous offender concentrating its efforts generally on sex offenders. There is a clear opportunity to leverage in its well defined business framework for other equally dangerous violent offenders.

The specialist units in TP and SCD are not generally engaged in any cross domain assessment work for their subjects.

The PPO project has not used any scientific approach towards selecting subjects and has concentrated on volume PSA crimes without consulting SCD1 and DCC2

There is enormous potential to properly assess subjects whilst they are in prison and distinguish those that pose a significant threat in different danger domains. Currently prisons concentrate on those that declare themselves a risk or are category 1 sex offenders. Police are generally not asked to provide an intelligence profile towards the assessment.

Risk Management Planning

Jigsaw and MAPPA provides the most consistent, structured and systematic multi-agency framework to manage dangerous offenders which needs to be exploited to its full potential.

SCD1 HPU are developing a manual of intervention options for different domains of danger which will compliment and extend the use of the ‘critical few’ manual produced by Jigsaw.

Failure to prioritise offenders and victims where there is a clear pattern of serial offending or vulnerability.

The need to get a much clearer sign off of actions eminating from MAPPA level 1-3 meetings. Each cooperating agency should be made much more accountable for agreed actions regarding a balanced plan of treatment, enforcement and diversionary measures.

There is a need for more internal level 1 MAPPA meetings between TP and SCD specialists about common interests in a subject and how to



target them in a co-ordinated way. This has been commenced with the bi-weekly operational meetings.

There are clear opportunities to expand the use of pre release intelligence packs on potentially dangerous offenders (PDO) in Prison. SCD11(7) can provide Borough Jigsaw teams with these and their use would help in compiling an appropriate and effective action plan to help prevent further offending.

Monitoring and Review

No consistent and structured review mechanisms are in place and only SCD5, PPO and Jigsaw operate any formal procedures and these were considered to have weaknesses.

VISOR provided an opportunity to monitor and review cases using automated scheduling based on time, anniversary and trigger events.

Personnel and Training

There is an adhoc level of compulsory and voluntary training between different specialist units, which is delivered centrally, by the Crime Academy or through individual BOCU team development.

There is a lack of front line police training in behavioural and situational high risk danger signs.

SCD1 HPU are developing a new module for SIO’s to be delivered by the Crime Academy.

Personnel responsible for public protection are resourced differently between BOCU’s, with varying levels of prioritisation to PP work.

Personnel are fixed into different specialisms at both a Borough and central level with limited cross discilinary co-operation leading to missed risk identification, assessment and management opportunities.

There is a clear view that detective and risk management expertise at the centre in SCD is insufficiently alligned with Borough needs to manage dangerous offenders.

IT and Manual Management Systems

Poor data entry and flagging standards on CRIS, CRIMINT and MERLIN IT systems

The development of data mining tools to proactively scan for danger signs in various police indices. This is being led by DCC2 and project Asset.

Jigsaw reliance on Matrix 2000 as the only MPS electronically supported assessment tool

The opportunity of using VISOR by all the specialist units to manage the case load of high risk subjects and share information electronically between them and other police service units nationally.

The need to develop electronically supported threshold assessments for incidents. Risks can then be referred on after being filtered by the Crime Desk and BIU.



The need for electronically supported indicative and assessment models from SCD1 HPU for different domains of danger.

SECTION B – SCOPE

The review is designed to evaluate how the MPS can become more effective and efficient in managing the “Men of violence” who pose a serious or lethal danger to families and communities

This review has appraised the MPS response to dangerousness from an offender, victim and locational perspective. It has investigated how MPS:

o Identifies risks in individuals and locations o How these risks are then referred ono How risks are assessed in terms of the level of danger posedo How the risks are then managed putting in place a multi agency

action plano How risk is monitored and reviewed for changes

The following Units/ Projects were appraised:

o Jigsaw and MAPPA arrangementso Sapphireo Prolific and Priority Offenders Schemeo The Race & Violent Crime Task Force (RVCTF) and Community

Safety Unitso Mental Health Disorder Teamo SCD5 Child Abuse Investigationo SCD 7 Serious and Organised Crime Groupo SCD 8 Tridento SCD 10 Homicide Prevention Unito SCD 11(7) Prison Intelligence Unito DCC2 Corporate Strategyo Bichard Project Team

Operation Compass and Missing persons has not been appraised in detail but this area of danger is worthy of incorporation into the new Public Protection approach due to the vulnerability of the subjects to serious violence.



SECTION C – PLANNING

Methodology

Desk top research on each unit incorporating annual plan, policies, standard operating procedures and guidance.

Semi-structured interview of Head of Unit SWOT and GAP analysis of findings Interim recommendations Workshop of all leading practitioners Developed recommendations

Review Milestones

SCD Appraisal of methods to manage dangerous Offenders:o Commissioned August 2004 DAC Griffithso Appraisal incorporated into Bichard Project October 2004o Reported interim recommendations to TP/SCD ACPO leads on

violence January 2005 Seconded to MPS High Impact Service Review Team May 2005 Specialist Unit Workshop to appraise proposed new public protection

command at Borough and central level June 8th 2005 Report by 20th June on recommendations

Future High Level Issues

Criminal Justice Act 2003 Sentencing of “Dangerous Offenders” Childrens Act Childrens Directors Local Boroughs Childrens Trusts Violent Crime Reduction Act The Domestic Violence Crime and Victims Act 2004



SECTION D – IDEAS FOR CHANGE

INTRODUCTION

The following section breaks the proposals down into three main sections, (a) Structural changes to re-allign those assets with a key interest in managing violence more effectively at NIM level 1-3, (b) the more efficient and effective use of existing and new systems and (c) key personnel considerations.

Throughout reference is made to linkages with external partners and how they can be made more effective. Appendix B summarises the main partnership considerations.

At the end of the section a qualitative summary of the main efficiency savings is set out contrasting the existing position with the proposed changes, highlighting the main improvements achieved as a result.

STRUCTURE

Borough Public Protection Group

Creation of a new Public Protection Group in every Borough co-locating Sapphire, CAIT, Jigsaw, PPO, CSU, Mental Health Liaison and Missing Persons. All overseen by a new PP Group Manager and accountable to BOCU Commander for operational performance.

Creation of a new Public Protection BIU Focus desk as an integral part of above to conduct threshold assessments, research, analysis and NIM assessments on behalf of the entire PP Group.

The 120 current offices used will be reduced to 32 main Borough co-locations

Central Public Protection Directorate

Creation of a new central Public Protection Directorate which co-locates all the above specialist strands under one DAC/Commander head of profession. Responsible for Borough operational support, level 2-3 criminality and standards across all levels.

The current ten police buildings used for different aspects of HQ PP work will be reduced to one co-located building.

As part of HQ Directorate the creation of:



o One overall strategic Intelligence Unito One overall policy and standards unito Five proactive/reactive MIT teams to support the Boroughs

manage high risk subjects and level 2-3 criminality(2 CAIT, 2 RVCTF and Paedophile Unit)

o One SCD/external partners liaison desk for high risk subjectso One Hi Tec Unito One Administration and personnel unito One Crime Academy training liason officero One strategic Tasking and Co-ordination Groupo One DSUo One Integrated Ports Team (Jigsaw, Sapphire, CAIT)o Homicide Prevention Unit (Currently SCD10)

SYSTEMS

Risk Management Chain:

Risk Identification and Referral

New CRIS, CRIMINT+, MERLIN and PNC Flagging criteria and standards

124D development Risk rating matrix for CRIS, CRIMINT+ and MERLIN electronically

supported developed by Homicide Prevention Unit and DCC2 Risk identification training for front line policing and SCD units Ward profiling including identification of risk offenders, victims and

locations

Risk Threshold Assessments

BIU Public Protection Desk cumulative risk rating assessment developed by HPU and DCC2. Once trigger score reached referred on to main public protection group referral desk. Case placed on VISOR system

Project Asset (DCC2) to be re-commissioned to allow data mining on separate police IT indices to identify indicative behaviours illustrating heightened risk. This software is designed to automatically scan CRIS, STOPS, CUSTODY, HOLMES and DNA databases

Main Risk Assessment

Adopt Probation and Prison OAYSIS risk assessment model operated by trained PP staff and/or clinician attached to Group. Based on VISOR

Specialist assessment tools used as needed thereafter such as Matrix 2000 or others being developed by HPU

Risk Management



Referral desk to nominate lead specialist team for case management purposes depending on nature of risk.

Case registered on MAPPA if appropriate (VISOR) Tactical multi agency action plan developed as part of MAPPA level 1-

3 meeting or care plan procedures in operation with social services and Mental Health Trust.

SCD cases registered at central PP Directorate to be brought to referral desk by SCD IO/case officer who will proactively manage them with the assistance of local Borough PP Group where they reside.

Risk Monitoring and Review

Registered Borough and Central PP cases will be monitored continuously for heightened risk factors which could change the degree of danger. This will be done by:

o BIU PP Desk referring ongoing incidents with risk scores to the case officer from front line policing using VISOR entries from CRIS, CRIMINT, PNC and MERLIN flagged incidents.

o Case officer to ensure anniversary or other trigger dates are monitored using VISOR automatic reminder schedule.

PERSONNEL

Training

Integrate the existing training packages for CSU, Jigsaw, Sapphire, CAIT with the new SCD1 HPU training package into a new public protection accredited course. This should be modular and include:

Behavioural and situational sciences Risk Identification and assessment MAPPA processes and structures Multi Agency action planning Monitoring and review processes Use of VISOR IT system Problem solving

Pool all the training staff from SCD5, CSU, CAIT, Sapphire and Jigsaw into a new public protection training and development department based in the Crime Academy. Make this team responsible for developing the course and seeking accreditation. Deliver using Crime Academy and distance learning.

Training team to be made responsible for developing additional modules for FLP in risk identification, management and referral methods. To be delivered through direct area training and distance learning using intranet.



Roles and Responsibilities

Borough and SCD Front Line Policing

Identification and referral of heightened risk factors in subjects they manage at incidents/operations

Timely, appropriate and accurate flagging of subjects giving cause for concern onto CRIS, CRIMINT, PNC and MERLIN.

In co-operation with the Borough Public Protection Group Safer Neighbourhood officers to conduct home visits on subjects registered as a risk.

Safer Neighbourhood Unit to compile ward profile including at risk subjects who reside, work or frequent area.

Borough BIU Public Protection Focus Desk

NIM level 1 Threshold assesments on subjects coming to notice vide FLP flagging processes. Risk score to be entered for each incident and cumulative score monitored. Once a “trigger point” reached case to be notified to main PP Referral desk.

Operation of project ASSET data mining software Research and analysis on behalf of main PP Group NIM tactical assesments on PP business areas.

Borough Public Protection Group

Accountable to Borough Commander for local operational effectiveness and efficiency. Borough tasking and co-ordination group to undertake this function

Referral desk to enter all referrals (SCD, Borough FLP and Social Services) onto case file and VISOR

Referral Desk will designate team to manage case Specialist teams responsible for first level assessment using OAYSIS

and subsequent heightened risk assesments such as Matrix 2000 and other MPS models being developed

Clinician to be employed to help conduct assessments Advocacy services to be established to assist victims choose protective

mechanisms Main function of PP Group officers is to assess, manage and review

high risk subjects. If specialist support services are needed to manage those risks such as a proactive team and/or surviellance this will be ordered vide Borough TCG to Central PP Directorate TCG.

It is envisaged that the Borough PP Group will have a police Group Manager of appropriate rank to the size of the Borough.



Central Public Protection Directorate

To be commanded by a DAC level officer with an appropriate level of DCS, Supt and DCI and operational police officers/staff.

Responsible for all cross border work and supporting Borough PP Groups with proactive and reactive teams.

Responsible for policy and standard operating procedures used consistently by Borough PP Groups.

COST BENEFIT SUMMARY

Structure

The creation of Public Protection centres of excellence at a Borough level will:

o Enable a consistency of approach to high risk subjects across different specialisms which is well co-ordinated and holistic in nature. Thereby different issues and dangers in one family group can be addressed in one tactical multi agency action plan.

o Place all the specialisms in a co-location which will assist physical day to day communication.

o The local BOCU Commander will have responsibility for the effectiveness of the CAIT team which has been under SCD5 control. Their performance can then be more fairly judged.

All levels of the public protection function will thereby be alligned and integrated from front line policing through to central support and standards.

Lines of authority and accountability have been simplified and made clearer.

SCD will have for the first time a structure through which it can bring high risk cases for proactive management.

Systems

The new PP structure will enable both micro and macro profiling to be carried out at Borough and Central level respectively to enable thorough case management and strategic planning to be carried out.

By using our Prison and Probation partner assessment system (OAYSIS) a more thorough first line risk assessment can be carried out

Lateral adoption of MAPPA and VISOR will give ALL specialisms grouped under PP function an opportunity to use a statutory multi agency framework to exchange information, categorise and manage subjects, without enlarging the Jigsaw teams ten fold.

SCD can for the first time put subjects onto VISOR and manage them as MAPPA cases in co-operation with the local PP Group on the Borough

There will only be need for one local PP Intelligence desk and one Central Strategic Intelligence Unit covering all specialisms instead of seven.



There will only be need for one co-ordinating and tasking function at Borough and central level instead of seven.

Consistency of systems and their expert use will help to ensure dangers are identified and prioritised much earlier and effectively, SAVING LIFE

Personnel

There will only be need for one administration and personnel function instead of seven.

There will only be need for one training unit with one modular programme covering different specialisms instead of seven.

Personnel will be interchangeable (long term) to switch between PP specialisms to cover demand, operations and abstractions.

HQ staff of all seven specialisms can be rationalised to reflect integrated nature of structure and systems ie flattening of pyramid with role and expertise being more important than rank.

The PP Directorate will enable a much closer working relationship between SCD and the Boroughs.

Savings Re-Investment

Expanded and enhanced training programme of modular competency based distance and direct learning.

Expanded use of VISOR terminals (£400 each) across all specialisms and SCD departments

Co-location of specialisms in one building on Borough and centrally. External partner posts established in new Borough and Central

structure ie Probation Employment of psychiatric clinicians on Borough PP Group

SERVICE REVIEW OVERLAPS WITH INTELLIGENCE, SURVEILLANCE & LEVEL 2 CRIMINALITY

Intelligence



MICRO and MACRO intelligence needs will be differentiated for local tactical and central strategic aims.

PP Intelligence personnel can be rationalised to accommodate a local and central configuration

The Safer Neighbourhoods unit will be engaged to provide ongoing community intelligence about the subject.

Surveillance

PP surveillance assets need to be grouped and available at centre for deployment to heightened risk cases on Borough and level 2-3 criminality. Need to have specialist PP skills.

Level NIM 2 Criminality

SCD level 2 and prison release subjects can be managed locally where they live using a multi agency tactical action plan under the MAPPA framework. Social services, housing, probation and the Prison service will all have a role in this at a level which is effective and the partners are accountable for performance.

The central PP Directorate will be able to better co-ordinate assets and intelligence to counter level 2 PP criminality.

APPENDIX A

COST BENEFIT ANALYSIS



INTRODUCTION

The following section is a rapid appraisal of the cost benefits in adopting the proposed public protection model. It is divided into three principal sections considering the efficiency and effectiveness gains in changes to structure, system use and personnel matters.

It is not precise given the time constraints but is intended as an indicator of the main areas where the MPS can make significant efficiency improvements in the use of existing specialist personnel and systems.

The ultimate objective of this will be further sustained reductions in Murder and serious violence through effective management of high risk subjects and locations.

STRUCTURE

Accommodation

Currently there are:

One hundred and twenty (120) Borough based offices, dedicated to family and community protection, with an average size of 50sq feet each, totalling 6000sq feet of floor space

There are thirty two Borough Intelligence Units with an interest in family and community protection against violence, with a further total of 6000sq feet of accommodation

There are seven (7) HQ departments covering seven principal family and community protection business areas. These are based in ten (10) buildings with an approximate total of 1000 sq feet

There are eight (8) SCD Intelligence Units which have an interest in violence risk management with a total floor space use of 160sq feet.

Proposed changes:

There should be thirty two (32) new Borough Public Protection Groups accommodated in thirty two places with all seven specialisms co-located with an integral BIU Public Protection Focus Desk

There should be one (1) new central Public Protection Directorate based in one building (preferably Cobalt Square)

Grouped Functions

Currently there are:



Seven separate specialist business areas at Borough level concentrating on family and community protection, these include:

o Community safety Units (Domestic Violence) (32 teams)o Child Abuse Investigation Teams (19 teams)o Prolific and Priority Offenders Scheme (32 liaison officers)o Jigsaw Sex and Violent offenders unit (32 teams)o Mental Health Liaison (32 officers)o Missing Persons Enquiry (32 officers)o Sapphire Rape and Sex offences Investigation (26 teams)

Seven separate specialist business areas at Central HQ level managing above areas with seven separate policy and SOP arrangements

CAIT and CSU have proactive/reactive MIT teams (2 each)

CSU, Sapphire and CAIT each have a central strategic intelligence unit

No systematic proactive case management structures within SCD to reduce violence in collaboration with Borough police and partner agencies

Proposed changes:

All seven specialist business areas to be grouped in a new Borough Public Protection Department and a new central Public Protection Directorate, instead of seven separate departments.

The Borough Group to be overseen by a new Public Protection Manager (Supt/DCI) thereby reducing the need for a DCI Sapphire (19 reduction)

Every Borough to have a Grouped public protection function with seven business areas. This will require de-brigading Sapphire and Child Abuse teams covering certain Boroughs

CAIT and CSU proactive/reactive MIT teams to be positioned in central

Public Protection Directorate to support Boroughs and level 2-3 case management

One combined ports team for public protection involving CAIT, Jigsaw and Sapphire business areas, based in central Directorate

SCD10 Homicide Prevention Unit to be re-positioned into central Directorate to facilitate subject profiling, risk management systems and tactical intervention manual.

A new Borough Intelligence Unit Public Protection desk to be established as an integral part of the new Borough Public Protection Group to undertake risk threshold assessments, research, analysis across all seven business areas with tactical NIM products and assessments.



One overall policy and standard operating procedures unit with separate BUT integrated procedures for seven business areas.

One combined referral desk in each Borough PP Group processing internal (Front line policing and SCD) and external subject referrals then delegating to appropriate specialist desk for case management

Lines of Authority and Decision Making

Currently:

All the Borough specialist units except CAITare accountable to BOCU Commanders for performance and reciprocal resourcing support

CAIT comes under central SCD5 control and utilises Area Child Protection Committees to case manage the work load.

The central HQ for all units except CAIT only apply informal support to the Boroughs and attempt to standardise work practices and policies separately to EACH business area. Heavily dependant on BOCU Commanders support and interest.

Proposed changes:

New Borough PP Group Manager accountable to local Borough Commander for performance concerning subjects residing on that Borough.

BOCU Commander responsible for ensuring Borough PP Group is resourced according to central directorate policy

Central PP Directorate responsible for operational proactive/reactive MIT support to Boroughs, level 2-3 criminality across seven business areas and setting consistent standards across all Boroughs.

SYSTEMS

Risk Management Chain

Currently: There is no system of systematically identifying and prioritising

offenders who are operating across all seven specialist areas. There is no system of systematically identifying and prioritising repeat

victims with connections across all seven specialist areas. There is no system of systematically identifying and prioritising

locations which are connected to all seven specialist areas. SCD 1, 7, 8, and 11 do not proactively case manage their most

dangerous offenders in collaboration with the Borough’s in which they reside

Jigsaw teams tend to focus their work on category 1 sex offenders whilst the MAPPA framework was designed for a broader remit of violent offenders.



Innappropriate and adhoc use of flagging systems on CRIS, CRIMINT and MERLIN systems

Proposed changes:

Joint intelligence function at Borough and central level across all seven business areas

Joint tasking and co-ordination PP group as part of Borough T&CG function

Expanded use of MAPPA for appropriate subjects across all seven specialist areas.

Adoption, development and implementation of DCC2 project Asset to data mine in separate indices for risk indicators

Training and supervision standards of incident flagging on IT systems SCD case officers to bring dangerous subjects to Borough PP group

for assessment and management

Use of Information Management Systems

Proposed changes:

Expanded use of VISOR case management system by all specialist units in Borough, Central PP Directorate and SCD BIU’s.

PERSONNEL

Borough and Central Configuration

Proposed Changes:

New Borough Public Protection Group with seven specialist Focus desks with focus on investigation and proactive case management. Cover the urgent need for more investigating officers by replacing first line supervisors (DS/PS) with DC’s. This would remove 240 Borough DS/PS and 50 centrally based DS/PS replacing them with 350 DC case officers.

New Borough Public Protection Referral Desk. This would need to accept, register on VISOR and/or CRIS and designate cases taken from the BIU PP Desk, SCD and external partners across all seven specialist areas. This could be performed by four trained police staff freeing up 19 CAIT referral DS’s

New Borough BIU Public Protection Focus Desk. This would require functions of risk threshold assessment, research, analysis and NIM products and assessments. Personnel would vary according to Borough profile but would average eight personnel all of whom could be police staff.

Training



Currently:

CAIC, Sapphire, Jigsaw, Mental Health, PPO and CSU staff all undergo training but of varying depth and length with different accreditation and delivery systems.

Sapphire and CAIT have dedicated training officers based centrally (8 staff total)

Proposed Changes:

A new modular competency based training programme across all seven specialisms, delivered directly and through distance learning by the Crime Academy (8 staff saved)

OVERALL EFFICIENCY AND EFFECTIVENESS IMPROVEMENTS

Accommodation

1. Currently there are one hundred and twenty offices located in the Boroughs dedicated to public protection areas of business occupying an average 50sq feet each. It is intended to reduce this to thirty two public protection departments based in each of the Boroughs.

2. Currently there are seven HQ departments representing each of the public protection realms considered. These are spread across ten principal sites. It is intended to group these into one Public Protection Directorate based at one location.

Personnel

3. Currently there are three strategic Intelligence Units dedicated to public protection (RVCTF, CAIC, Sapphire) based within the respective HQ departments. It is intended to reduce this to one overarching strategic Public Protection Intelligence unit saving an estimated £1million each year.

4. Currently there are five proactive/reactive MIT teams based in RVCTF and CAIC. It is proposed to move these all into the Central Public Protection Directorate to support Borough PP activity and manage level 2-3 subjects with 30% efficiency/effectiveness savings.

5. Currently cold case reviews are undertaken by Sapphire and other Public Protection Units. It is proposed to move these under the auspices of the Murder Review Group SCD2 saving £500,000 per year.



6. Currently there are eight(8) staff (CAIC and Sapphire) dedicated to training. It is proposed to move this responsibility to the Crime Academy with a cost saving of £400,000 per year

7. Currently there are a number of personnel across the seven specialisms assigned to policy and standard operating procedure development totalling 15 staff. It is proposed that this is amalgamated into one unit within the new Public Protection Directorate with a maximum of 5 staff, saving £700,000 per year

8. Currently there are twelve(12) DCI’s attached to HQ departments. It is proposed that this is reduced to 5 within the new PP Directorate, with a cost saving of £400,000 per year

9. Currently there are five(5) Superintendents attached to HQ departments. It is proposed that this is reduced to three(3) with the others becoming Borough PP Group Managers of the larger case load Boroughs. Cost saving of £177,000.

10.Currently there are nineteen Sapphire Borough DCI managers. It is proposed that these become the new Borough PP Group Managers with training and are supplemented by a further seven DCI’s and two Superintendents from HQ departments as above giving coverage to 28 Boroughs without additional resources. Efficiency/effectiveness savings.

11.The two (2) Chief Superintendents should be incorporated into the new Central PP Directorate

12.The Directorate will need either a Commander or DAC head of profession. Commander David Johnston is currently ACPO lead on Family and Community protection issues.

Efficiency Savings

13. It is estimated that the total man hours saved through one Borough PP Group and one Central PP Directorate carrying out joint processes and joint partnership meetings such as:

Joint Tasking and co-ordination meetings Single Case management Intelligence collation Risk assessments Joint MAPPA/VISOR use

This grouped function will achieve a minimum 30% efficiency improvement releasing PP staff for additional duties. ie 1900 PP staff boosted by the equivalent of 570 staff (DC’s)each year equating to £29million saved.



Saved Life and Injuries

14.SCD10 Homicide Prevention Unit have conducted detailed research into the field of “Preventable Homicide” looking in particular at 73 Homicides between 2001-2005 caused by offenders with serious mental health disorders. Clear opportunities for intervention were identified in 42% of these cases which would have saved the victims life. Indicative intelligence was held on various police and agency indices but a holistic intelligence profile was never completed. If this was extrapolated to all domains of Homicide running at an average 200 incidents per year in MPS area 84 lives could be saved through the successful implementation of public protection proposals. Each Homicide is estimated to cost the state £300,000 - £1.2 million. A minimum £25 million saving.

15. In 2004-5 the Service Intelligence Bureau was notified of approximately 200 serious threats to life (OSMAN cases) identified largely from Boroughs with enhanced Public Protection functions. Co-ordinated intervention took place to save life. This is a minimum state saving of £60million

16. In 2004-5 there were 3,200 GBH’s recorded by MPS. Using the same principle as Homicide preventable crime it is estimated that if the new public protection model is implemented 42% of these could be prevented (1280) The Home office approximate each GBH to cost the state at least £100,000, equating to £1.3 billion saved.

APPENDIX B

PARTNERSHIP CONSIDERATIONS



The entire rationale of the new public protection approach is proactive case management and violent crime reduction. There are a number of key partners the Borough PP Group and Central PP Directorate will work with:

BOROUGH PUBLIC PROTECTION GROUP

Crime and Disorder Reduction Partnership (CDRP)

Responsible for the proactive management of PPO subjects and overseeing the entire management system for dangerous subjects including Jigsaw, CSU and Sapphire nominals.

Probation Service

Co-location of a liaison probation officer with the Borough PP Group using Probation IT link

Utilising the Probation service OAYSIS risk assessment tool for offenders and suspects

New Directorate to make full use of “duty to co-operate” provisions under 2003 Criminal Justice and Court Services Act to empower full information sharing and multi agency MAPPA action planning

YOT

YOT subjects identified for deter and prevent strand of PPO scheme using diversion and restriction methods.

SCD BIU’s & SCD Prison Intelligence Unit

Responsible for transferring dangerous subjects with a case officer for proactive management at Borough of residence using tailored MAPPA action planning process.

Responsible for notifying Borough PP Group of imminent release of dangerous subjects from prison including an intelligence pack for proactive planning.

Social Services

Responsible for referring criminal cases of child abuse to new Borough PP Referral Desk

Jointly responsible for mental health detention orders and care plans with Mental Health Trust

Housing



Work in collaboration to exchange information and develop action plan of housing restrictions using Housing Act, Local Government Act and Anti Social Behaviour legislation.

Health and Mental Health Trust

Psychiatric clinician to be attached to Borough PP Group to carry out risk assessments using OAYSIS and other specialist methods.

Consider shared use of Sapphire Havens for domestic violence victims.

CENTRAL PUBLIC PROTECTION DIRECTORATE

London Crime Reduction Directors Board

Representation needed as this will constitute the main corporate strategic prevention body overseeing all the Borough CDRP’s

MPS Violent Crime Prevention Board

Currently led by SCD this Board draws together and co-ordinates the NIM control strategy for violent crime linking TP, SCD and DCC specialists

National Probation Service

On-going work will be required to develop an expanded role for MAPPA use between probation and the new Borough and Central Directorate.

National Prison Service

A reinvigorated risk assessment programme is urgently required for the entire prison poulation, ¾ of whom are considered to be potentially dangerous offenders (PDO’s) Increased police intelligence input is needed into the OAYSIS assessment .

Criminal Justice System

Strategic development work will be required to establish joint criminal/civil court for family issues with a trained and experienced bench team of judges. See Croydon example.

APPENDIX C



COMPARATIVE INTERNATIONAL & DOMESTIC PROJECTS

The San Diego Family Justice Center

The San Diego Family Justice Centre brings professionals and services under one roof to help victims of family violence and their children.

At the centre there are police officers, prosecutors, forensic examiners, probation officers, legal advocates, shelter and support services.

The two main units are the City Attorney and Police Domestic violence Department. These focus solely on the investigation and prosecution of domestic violence, child abuse and stalking cases.

In the UK the London Borough of Croydon has commenced a pilot emulating this one stop service.

New York Bronx Integrated Domestic Violence Court

All civil and criminal justice issues dealt with in one court overseen by trained experienced judge.

Both the victim and their children are represented in the court. The Judge has a resource co-ordinator to oversee actions taken for the victim, offender and any children ensuring they are completed.

The court takes both a protective and enforcement role where civil and criminal issues are present. All matters are dealt with before one court on one day.

New York Sanctuary For Families

This is a free legal advocacy service to the victims of domestic violence with 18 full time lawyers providing a 24/7 helpline and court representation.

New York Police Department – Domestic Violence Unit

This maintains a database for all personnel to view details on domestic violence victims, offenders and children together with any associated court orders.

NYPD officers complete a form of 124D for domestic violence incidents and gather evidence on the premise that the victim will not assist the prosecution.

Training given to front line officers after parades to increase cross danger domain nature of violence and recognising heightened risk factors.

New York Batterers Intervention Programme



26 week programme which has to be completed by offenders with referrals made by the criminal justice system. Offenders have to pay for course.

New York Mayor’s Office

The DV Unit is resonsible for the full co-ordination of policy and resourcing towards domestic violence with 13 full time staff.

They take responsibility for ensuring evidence of violence reporting to Hospitals and help lines is acted on as 65% of victims will not report to police. Legislation ensures that patients are screened for DV in Hospitals with a DV clinic.

The most vulnerable repeat victims are identified and an action plan created to protect them.

London Borough of Harrow Police Command

In Harrow risks are managed within an integrated framework whereby the specialist units such as Sapphire, CSU, CAIT and Jigsaw work together in one crime department co located at South Harrow . All have a defined process for referring high risk cases onto MAPPA management.

This means that different categories of dangerousness are catered for within the MAPPA process not just sex offenders as in a normal Borough arrangement. For example two gun crime nominals and most of the PPO subjects are on MAPPA. Offenders who are considered to pose a serious danger are considered even if by reason of no previous convictions they do not meet the category 1-3 definition. These subjects are discussed as separate agenda items in the multi agency MAPPA meetings.

Within the Crime Department at South Harrow two desks have been set aside for probation officers and there are plans to connect these desks to the Probation Service IT network

Similarly two council officers from Housing work in the Crime Department on Anti Social Behaviour and have been given full reading rights to CRIMINT.

APPENDIX DCATEGORY ‘C’ HOMICIDE INVESTIGATION



Introduction

During the challenge panel sessions of the Service Review it has been suggested that the proposed Public Protection Directorate should take responsibility for the investigation of category C murder investigation as they are “largely domestic in nature” and would fit comfortably into the Directorates business area. Options for incorporation were investigated.

Options

The establishment of a category C MIT resource based at the central Directorate of the new Public Protection function and available for Borough deployment.

The devolvement of category C investigation responsibilities to Borough CID departments with composite return of SCD1 detectives to Borough

The establishment of an SCD 1 dedicated category C MIT recognising the unique qualities of these cases and future witness and familial responsibilities

Evaluation

It was universally highlighted that Borough already investigated category C murders against policy to a poor standard.

There was a high risk that Borough would narrow the investigation too quickly if there was a prime suspect cutting off broader investigation and evidence capture opportunities if the murder subsequently became a category B or even A status which often happened

The vast day by day case management challenges requiring maximum flexibility of personnel deployment within the “on call” and “In Frame” team considerations negated the benefit of a dedicated team.

Threat of diluting expertise with Borough devolvement with skilled personnel being delegated volume crime enquiries

SCD1 are vigourosly re-establishing their role for all murders including Child Abuse and Trident murder investigation (See SCD Business Group report)

SCD1 have a well structured case progression function which is largely missing at Borough.

Recommendation

That all reactive murder investigation remains with SCD1, including category C cases.

The proposed Public Protection Directorate concentrates on proactive case management to prevent serious violence



APPENDIX E

ASSESSMENT of DESIRABILITY, FEASIBILITY and ACHIEVABILITY

AREA of PROPOSAL DESIRABILITY FEASIBILITY ACHIEVABILITYSTRUCTURE Citizen focus clearly defined at

NIM level 1-3 with local level 1 accountability resting with PP Group Manager and BOCU Commander. Level 2-3 accountability resting with DAC Head of Profession

Re focus on reducing serious violence through collaborative working between specialist Units with overlap interests.

New Borough PP Referral Desk will expand current CAIT facility for cross specialism use ensuring consistency of registration and case delegation standards.

Most proposed changes have a nil overall cost.

Borough sites to retract from 120 separate locations into 32 main Borough PP sites

HQ sites to retract from 10 separate locations into 1 main site

Specialisms retained but integrated to form PP Directorate with common Intelligence and Tasking & Co-ordination functions

SCD5 most resistant to change and further explanatory sessions needed.

New structure will facilitate new HMIC PI’s for domestic violence, sex offending and danger management.

Inability to find suitable co-locations for Borough and Central Directorate specialisms

The proposal will require a major effort to map the various policies and standard operating procedures for each specialism and then to integrate them into a streamlined PP approach

Placing the new structure will require a management board decision with inevitable winners and losers in terms of current asset positioning.

SYSTEMS SCD case officers to bring their subjects to Borough PP Group where MAPPA mechanisms most effective

MAPPA framework to be used universally across specialisms to effect sound multi agency action planning and information exchange..

DCC2 project Asset to be re-activated and implemented with £2million projected cost to enable cross indices data mining for risk factors

Use to be made of existing technology more effectively ie VISOR, CRIS, CRIMINT and MERLIN.

£2 million cost of project Asset Reluctance of SCD officers to

proactively manage their most dangerous subjects at Borough level in collaboration with the new PP Group.



Joint Borough and Central PP Intelligence Units to avoid duplication and bureacracy

Existing legislation for MAPPA to be used laterally for structured accountable partnership work across all specialisms.

PERSONNEL Specialist Unit personnel co-located for easy communication and co-ordination objectives

Training to become modularised and competency based across specialisms by joint PP Crime Academy Team.

Public protection to become a career path with a competency based performance framework to increase retention and job satisfaction

In the long term personnel to become multi disciplinary enabling the PP function to cover abstractions and major operations in particular business areas.

De brigading needed in Sapphire and Child Abuse co-borough locations to enable dedicated Borough PP Groups to be established.

Rationalisation of HQ staff needeed to release Supt and DCI’s to Borough for PP Group management role

The new Borough PP Group Manager will need training to a competency standard to get the most effective/efficient output from the PP Group

An increase in PP function staff is anticipated to rebalance the current ratio of 5% of MPS staff and budget being used to manage 20% of TNO’s (VAP)


met police service review 2005-2006

Documents

review risk levels

risk assessment

risk referral

risk monitoring

risk categorisation

risk management chain

dangerous high risk

different danger domains