Anti Social Behaviour (Policy & Procedure)

Transcription

1 Anti Social Behaviour (Policy & Procedure) Publication Scheme Y/N Can be published on Force Website Department of Origin Corporate Support Department Policy Holder C/ Supt SRO for Crime and ASB Author Chief Inspector N. Gunatilleke / Sergeant P. Mullally Related Information Authorised Professional Practice Graded Response Policy National Contact Management Strategy National Standards for Incident Recording Date First Approved at BMG 23/02/2011 This Version Version th May 2017 Date of next Review May 2019 May 2017

2 Policy Statement Tackling anti-social behaviour remains a key priority for Merseyside Police. We understand the serious impact it can have on individuals and communities and we have invested significant resources to deal effectively with anti-social behaviour. However, Merseyside still has a relatively higher than average level of anti-social behaviour. It remains one of our local community s top concerns so we must do more to reduce it further and will explore all available options for improvement. We will build on what has been proven to work well using the best elements of early and appropriate interventions coupled with longer term problem solving. Our focus is on delivery for the victim through protection and support. We intend to take more account of the victim perspective, to better assess the harm caused and encourage those suffering to come forward. Aims This policy aims to ensure a consistent and effective approach to tackling all aspects of antisocial behaviour. An overriding aim is to identify those who are especially vulnerable, including repeat victims, and ensure that every possible action is taken to help and protect them. The policy is underpinned by procedures designed to provide clear, definitive and unambiguous direction for all those involved in its deployment. The procedures apply from the moment an incident is reported. Objectives Specific objectives are to: a) Reduce the number of anti-social behaviour incidents b) Introduce a new system that will enable the consistent assessment of the level of victims vulnerability (RA/1 and RA/2 forms) c) Reduce vulnerability of victims d) Identify those individuals and groups who cause anti-social behaviour and deliver joined up services to reduce re-offending including the use of restorative practice when applicable. e) Increase amount of intelligence and analysis to help target offenders f) Create an effective structure to integrate the contribution of partner agencies g) Develop protocols across partnerships to help provide a shared perspective and increased accountability h) Comply with national guidelines for recording all incidents i) Raise the confidence and satisfaction of our community Status V1.5 1 Last Update: 17/05/17

3 Application and Scope All police officers and police staff, including the extended police family and those working voluntarily for Merseyside Police must be aware of, and are required to comply with, all relevant policy and associated procedures. The Chief Officer lead for Anti-social Behaviour is the Assistant Chief Constable responsible for Local Policing & Criminal Justice. Outcome Evaluation Outcomes should reflect specific objectives and be measured against these objectives on a routine basis. Responsibilities and activities involved in measurement will be included in a separate deployment plan monitored on an on-going basis by the Corporate Support Department Governance arrangements will include participation by partner agencies. Status V1.5 2 Last Update:17/05/17

4 Version History 2/6/2011 V 1.1 Para 6.16 inserted to cover completion of Vulnerable Person Referral Forms (VPRF). 11/1/2012 V1.2 Minor amendments to reflect updates to organisational/meeting structure. Appendix F expanded to provide more detail. 9/2/2012 V1.3 Para 3.5 inserted to emphasise need for STORM log creation. 15/09/2015 V1.4 Update of Policy in line with current organisation priorities / strategy and use of new risk assessment forms, RA/1 and RA/2. 24/05/17 V1.5- Update of Policy to reflect the Community First Operating Model Status V1.5 3 Last Update:17/05/17

5 Status V1.5 4 Last Update:17/05/17

6 Procedure Contents Outline Definitions Call Handling Dispatch Actions At Scene Assessing Vulnerability Ownership by Local Policing Community Hub Case Management Community Hub Governance Working in Partnership Local Policing Governance Force Governance Police Authority Governance Appendix A- Y-GET OUT Appendix B- Risk Assessment & Guidance Appendix C- Response to Risk Assessment Appendix D- Guide to Anti-Social Behaviour Powers Appendix E- Referrals to Light for Life Appendix F- NICHE guidance for Occurrence Entries & flow-chart Status V1.5 5 Last Update:17/05/17

7 This Page has been left Intentionally Blank Status V1.5 6 Last Update:17/05/17

8 1. Parameters This policy is structured around the timeline of an Anti Social Behaviour Incident. Time- Line Ownership by Local Policing Working in Partnership Call Handling Local Governance Action Taken at Scene Force Governance Deployment Case Management Local Policing Governance PCC Governance Assessing Vulnerability Status: V1.2 7 Last Update: 9/2/2012

9 2. Definitions The Anti Social Behaviour Act 2014 defines anti-social behaviour as being A) Conduct that has caused or is likely to cause harassment, alarm or distress to any person B) Conduct that is capable of causing nuisance or annoyance to a person in relation to that persons occupation of residential premises or, C) Conduct capable of causing housing related nuisance or annoyance to any person. As can be seen, sections b and c 2.1 Linked to the above statutory definitions sit the three categories of anti social behaviour within the National Standards of Incident Recording (NSIR 2011) 2.2 These are: Environmental Nuisance Personal It is important to note that anti social behaviour can vary in practical terms from an incident of youths riding a scrambler bike around a housing estate (Nuisance) to a group of youths throwing broken bottles at a house to frighten the disabled occupant in a targeted campaign of victimisation (Personal) 2.3 Merseyside Police must act to address both issues in a proportionate manner providing extra support for those identified as being most vulnerable to harm caused by anti-social behaviour. 2.4 Threat, Harm and Risk (T,H & R) Threat, Harm & Risk is defined as following: Threat anything that has the potential to cause harm. Harm actual impact on a person, community and organisation. Risk likelihood and impact of harm should it occur. 3. Call Handling 3.1 Merseyside Police will fully adhere to the National Call Handling Standards when taking calls from members of the public concerning anti-social behaviour. Status V1.5 8 Last Update: 17/05/17

10 It is the role of the Force Contact Centre (FCC) call taker to utilise the National Decision Making Model, the Graded Response Policy and, where appropriate, 'Standard Operating Procedures (SOP) dependent on the type of incident being reported and perceived level of vulnerability. Call takers will ask appropriate questions that will prompt a conversation with the victim around vulnerability. Depending on the answer to the questions, and the conversation generated, the call taker will determine whether a deployment of a police patrol is necessary and appropriate. In line with the FCC s Graded Response Policy, where an incident has been initially threat and risk assessed and requires the attendance of a police patrol, the appropriate level of urgency will be decided by the 'first contact' person who should then create a STORM incident log and forward it to Dispatch for fast time deployments (Emergency or Priority) and other departments, such as the Crime and Demand Unit (CDU), Planned Demand Teams (PDT) for slow time response (Scheduled or Resolution Without Deployment). Call handlers will ensure that they follow the relevant anti-social behaviour standard Operating Procedure on the STORM Command and Control system in order to ascertain the correct information about the nature of the incident 3.2 Upon creation of an incident log call handlers will seek all appropriate information and assess the following If there has been previous call history from the location. If there is a Response Action Plan / LOI marker held in the system for that location The caller s immediate vulnerability. Consider the diversity strands. Do these represent additional impact or aggravating factors? Prioritising Incidents 3.3 Urgency Factors Every incident will have its own combination of circumstances, Basic and Additional Urgency Factors. 3.4 Basic Factors The basic factors are: a) Risk to life or limb is indicated. b) A member of the public is in fear or distress. c) A criminal offence is in progress. d) A criminal offence is anticipated. e) Suspects at or near the scene are at risk of escape. f) Evidence is at risk of being lost. g) A Force or LPA level instruction applies to this type of incident. Status V1.5 9 Last Update: 17/05/17

11 h) A member of the public requires reassurance. i) The incident requires investigation at scene. j) A member of the public is in fear, is vulnerable or upset. The presence of one or more of the above Basic Factors should affect the degree of TH&R 3.5 Additional Factors The additional factors are: a) The level of risk to life or limb. b) The seriousness of any offence involved. c) The level of fear or distress involved. d) The nature and circumstances of the persons affected (Including, for instance, where the incident involves any minority community). e) The potential seriousness of the incident. These additional factors must be considered in all cases and will serve to raise or lower the level of urgency required and will affect the attendance time allocated and notified to the caller. 3.2 From the first point of contact, staff should ask the caller questions to identify vulnerability and identify TH&R to enable an appropriate threat and risk assessment and subsequent action in line with the NDM. The use of all relevant IT systems will be used to support the decision making process (for example the use of STORM to identify previous call history and address information markers). The information obtained by the caller handler will be used to determine the opening code of the anti social behaviour in line with the National Standards of Incident Recording (NSIR), and the appropriate grade of the response in line with the Merseyside Police Graded Response Policy. The caller will be informed of the likely response time and the incident transferred to Dispatch with appropriate comments justifying the category and grade. 3.3 When dealing with members of the public, staff must ensure that they advertise the Force non-emergency number 101 (or 999 in case of emergency) as a point of contact to report anti-social behaviour incidents. Local police station numbers are not appropriate in this respect and should not be advertised as such. This will ensure consistent Contact Management processes across the Force area. 3.4 The Force Contact Centre will ensure that anti social behaviour calls are subject to rigorous quality assurance processes in order to maintain professional levels of call handling. 3.5 Where reports of anti-social behaviour are received by Local Policing or Patrol staff directly and not reported through 101/999, it is essential that these reports are logged on STORM to ensure an accurate record exists. This must be done to Status V Last Update: 17/05/17

12 ensure compliance with NSIR and allow for the proper investigation/resolution of the incident. This will also enable demand to be monitored and analysed. Status V Last Update: 17/05/17

13 4. Deployment 4.1 The newly created incident log will be transferred to FCC Dispatchers who will deploy a patrol in line with the incident grade. In doing so, we will adhere to the national targets for answering calls for service. Where possible, but not to the detriment of a timely response, dispatchers will deploy Local Policing Dedicated Officers to incidents of anti-social behaviour or if suitable, Police Community Support Officers. 4.2 Any decision to down-grade an incident must be in line with the Graded Response Policy and can only be authorised by a dispatch supervisor. It is essential that the rationale is included on the log, the informant is contacted and advised of the revised response time and the incident log endorsed accordingly. 4.3 At the conclusion of the incident, the incident log must be closed with the appropriate closing code endorsed in line with the NSIR. A dispatch supervisor must close all incidents that were initially classified as being anti-social behaviour. It is accepted that upon investigation incidents that were initially classified as being anti-social behaviour may warrant a different final classification in line with the NSIR. Were these circumstances exist they must be fully justified on the incident log. 4.4 Where the incident has been dealt with as a scheduled response rather than a Priority or Emergency, for example when the call is for information only with regard to a previous incident, the dispatcher will endorse the incident log to this effect along with the justification and tag it to the relevant Local Policing for further action or create a NICHE Occurrence under the title ASB Risk Investigation (See Section 7). 4.5 Compliance with the NSIR for anti-social behaviour incidents will be subject to quarterly audit by the Force Crime Registrar who will compile a performance report for chief officers; a quarterly report will also be submitted to the Office of the Police and Crime Commissioner. 5. Actions Taken at Scene 5.1 On deployment to an incident of anti-social behaviour, the attending Officers will adhere to the principles of the Y-GET OUT mnemonic (See Appendix A). By following this guide staff can ensure that a premium service is given when responding to incidents. This is in line with the objective to tackle anti-social behaviour rather than merely responding to it. It is essential that officers conduct more then rudimentary high visibility checks when responding to such calls taking steps to carry out the important first assessment of what has occurred; this can greatly assist any further follow up work by the relevant Local Policing staff. Status V Last Update: 17/05/17

14 5.2 Staff need to ascertain if the victim is reporting repeat incidents or if they are they Vulnerable. Any enquiries must focus on disability of the victim where applicable or any other factor that would lead to the victim being classed as vulnerable. Disabilities such as those relating to learning can play a major role in singling individuals out for targeting by offenders or disproportionately affect their feelings or response to incidents of anti-social behaviour. 5.3 The fact that responding officers have complied with Y-GET OUT must be recorded on the Incident Log (storm prompts this question to operator). Where such compliance has not occurred, (and it is accepted that in some situations it may not be applicable), the reason must be recorded on the storm log. 5.4 Where the informant wishes to speak to an officer, the interaction is important as it can enable vital information to be obtained regarding the incident and an assessment to be made of the informant s vulnerability. 5.5 When dealing with incidents of ASB officers must NOT use the IAN and DAN to assess victims needs or vulnerability. This assessment must be completed on the relevant ASB risk assessment forms, the RA/1 and RA/2. (See separate policy for use of IAN and DAN) 6. Assessing Vulnerability 6.1 The College of Policing have defined vulnerability as being A victim of anti social behaviour is vulnerable if the conduct in question causes an adverse impact on their quality of life. Adverse impact includes the risk of harm; deterioration of their health, mental and or emotional well being; or an inability to carry out normal day to day routine through fear and intimidation 6.2 There is a clear need to determine how vulnerable a victim of anti-social behaviour is. This level of vulnerability will be used to determine the level of police support that is provided. It is clear that some people, because of their own personal circumstances may be more vulnerable than others. This vulnerability can be seen in the way that they can become targets for such behaviour or may not be able to cope with such behaviour. 6.3 Factors such as age, disability, health, race, gender, sexuality and religion can all influence the level of vulnerability of a victim. As stated, Merseyside Police will undertake an assessment of the vulnerability of each known victim of anti social behaviour. 6.4 This assessment will determine the scale of the response by Merseyside Police. Those deemed to be most vulnerable will receive a premium service drawing on the support of partner agencies with a view to reducing the vulnerability to the lowest practicable level. Status V Last Update: 17/05/17

15 6.5 Vulnerability will be assessed via a two stage process which is designed to be efficient and will take the form of a filter question followed by a Risk Assessment. 6.6 This vulnerability assessment must either be carried out by the responding officer where there is an actual deployment to an incident or subsequently by Local Policing staff when they are undertaking call backs to anti social behaviour victims (see Section 7). 6.7 The Vulnerability Assessment The vulnerability assessment is broken down into two stages. The first is designed to act as a filter to determine which cases clearly fall outside the definition of vulnerability thus not warranting a premium service. The first stage can be quickly completed with the minimum level of administration. Stage 1. At each incident the attending officer or the member of staff undertaking further investigation will consider the following question in light of the needs and circumstances of the victim Is this person at risk of harm due to either this incident or the cumulative effect of this or other incidents? The above test, whilst essentially subjective, will quickly identify those incidents such as environmental nuisance related calls which can be filtered out as there is no impact on the vulnerability of the caller or victim. For example, a one off call related to youths drinking in a nearby park or a car being parked blocking a driveway. Simply put the question relates to harm and specifically whether there is any and the degree to which it will effect the individual. Harm is both physical and psychological nature and staff need to be aware that those most at risk may be hostile or show resistance to attempts to assess their needs. Should the answer to this question be YES the person conducting the risk assessment must move onto the second stage. Should the answer be NO the risk assessment process will end and the incident can be finalised in line with the Graded Response Policy. The fact that a stage 1 risk assessment has been carried out must be endorsed on the incident log. The phrase Stage 1 negative is used to indicate that the above question has been considered and the answer was NO. If the answer to the above questions is YES then officers need to move to Stage 2. Once there is an indication that the case may involve a vulnerable victim there is a requirement to carry out a more detailed risk assessment to determine its level. Staff responding to an initial incident of ASB are required to complete the risk assessment form shown in Appendix B (The RA/1) and available via the Intranet here or via Niche where it can be completed electronically via the Reports tab on an occurrence. Status V Last Update: 17/05/17

16 6.8 Once the questions are answered, the overall level of vulnerability can be determined through a scoring system. This can range from Low to Medium to High risk. 6.9 The level of the police response will then be determined by the assessed level of risk as shown in Appendix B. In all cases the completed risk assessment must be sent to the relevant Local Policing team for follow up. This is done in 2 ways. 1) Niche occurrence created including details of victim, address, suspects / offenders. The RA/1 is then completed electronically direct on Niche and a task is sent to the relevant Local Policing Niche pot for attention of the Local Policing team. 2) The RA/1 is completed by hand, scanned on to the Niche occurrence created and again a task sent to the Local Policing team notifying them of the completed risk assessment. In all cases an OEL entry should be made informing the Local Policing officers of any other relevant information not contained within the RA/1 document. The risk assessment is divided into 3 sections, these being HISTORY, VULNERABILITY and SUPPORT. This enables a detailed examination of threat, harm and risk and generates responses from the victim that will enable Merseyside Police and partner agencies to target resources effectively and proportionally Where new circumstances come to light which affect the risk assessment, the initial assessment can be reviewed to reflect the new information. This new information may increase or decrease the risk assessment score and may therefore alter the response the victim receives from the Police. Any review MUST be completed on the RA/2 form and the OEL updated to reflect the new risk assessment outcome Disability Hate Crime. Special emphasis must be given to incidents where the victim may be targeted due to their being disabled. There are numerous types of disability and not all are immediately obvious so effective communication is the key. It is in these cases where there is most likely to be the risk of harm. Staff conducting risk assessments must always be aware of this possibility, even if the victim does not openly state it. It is the perception of hate being the motivating factor by any person that is important and investigations at scene may determine that such hate is the cause and this should be noted. As can be seen on the Risk Assessment form, hate issues are a separate question and are given weight in the overall evaluation. Where hate is a motivating factor, the Hate Incident Policy should be adhered to and the appropriate Level 2 SIGMA detective notified of any incident at the earliest opportunity. The Local Policing team should link in with the Level 2 Investigation team and Hate Crime coordinator to ensure the appropriate Status V Last Update: 17/05/17

17 supportive measures and enforcement activities are put in place. Both teams need to avoid duplicating each other s efforts and provide a joined up service Third Party Reporting. It must be remembered that victims of anti-social behaviour may not initially call Merseyside Police, opting instead to contact a partner agency such as the Local Authority or a Registered Social Landlord In these circumstances it is beneficial for the receiving agency to undertake a risk assessment in line with the Merseyside Police model. Accordingly staff should encourage partner agencies to adopt the police model as this will create a joined up process where common standards are applied in the determination of risk and the creation of interventions. Where the partner agencies do not adopt the police model, then upon receipt of a report of anti-social behaviour from a partner agency or third party a police risk assessment must be undertaken using the two stage vulnerability assessment process outlined in the above process. Within the RA/1 and RA/2 forms there is a section for the recording of the 3 rd party details reporting the ASB to the Police on behalf of the victim. Capturing this data enables Merseyside Police to identify a potential contact should the victim not be willing to engage with us Unknown Vulnerable Victims. Further to the above, there will be instances when vulnerable members of the public are suffering from anti social behaviour but do not report it either to the police or any other partner agency. These people can often be the most vulnerable due to their seclusion. Although no set procedure can be adopted to identify these unknown victims there is a clear duty for the police to take action to pro-actively investigate circumstances that point to the existence of such people. These circumstances could occur where the local knowledge of Local Policing staff identifies such individuals or there is contact by worried neighbours or friends. Although there is no antecedent anti-social behaviour report, Local Policing staff must follow up all such leads in order to prevent further harm. Protecting those most vulnerable in society lies at the heart of our decision making and we must do all we can to identify and protect any such vulnerable victims Vulnerability and Crime Recording. Given that a risk assessment will be carried out when dealing with reports of anti-social behaviour, there is a requirement for the issue of vulnerability to be considered when officers and staff are dealing with reports of crime that are linked to anti-social behaviour. For example, an officer may be called to attend a report of witnessed Criminal Damage with no antecedent report of anti-social behaviour. If it becomes apparent that the Criminal Damage was part of an on-going incident of anti-social behaviour, then a risk assessment must be carried out. The mere fact that the complainant had not called to report the anti-social behaviour when it was occurring should not be a bar to an assessment of vulnerability as it may well be that the Criminal Damage is a key indicator that the victim is indeed vulnerable and at risk of greater harm. Status V Last Update: 17/05/17

18 6.16 Completion of Vulnerable Person Referral Forms (VPRF). There is some overlap between risks identified by officers dealing with ASB and the requirement to notify the VPU of vulnerable persons using the VPRF. When officers complete the risk assessment form they are prompted to complete a VPRF1 if necessary and asked to record on the RA/1 and RA/2 whether or not they have completed one. A VPRF1 can be completed regardless of level of risk of the victim and should be considered in all attended incidents. The responsibility for completing this document is that of the attending officer based on their assessment of the individual (s) or address they are attending. The referral should be regarded as way of securing further partner agency intervention to support the victim / family. Where a referral is made the Local Policing Team team will still maintain the lead for investigating and resolving the case unless the Detective Inspector in charge of the PVP deems otherwise. 7. Ownership by the Local Policing Team 7.1 The key objective of intervention into anti social behaviour by Merseyside Police is the reduction in vulnerability to its lowest practical level and the prevention of a reoccurrence of further incidents. 7.2 Central to the achievement of this objective is the role played by local policing teams throughout the force area. Accordingly, the local policing team, led by the Inspector will take the lead tactical role in determining solutions to cases where there is an on-going risk to a vulnerable victim. 7.3 Call Backs. As a starting point to any actions taken, the local policing team must ensure that every known individual who reports an incident of anti-social behaviour receives a call back either by telephone or in person ideally with 24 hours but no later then 72 hours of making their report. This call back is to be seen as being additional support alongside any initial response given to the incident and not a substitute. 7.4 The purpose of the call back is to provide reassurance to the person reporting the incident, obtain further information pertaining to it and undertake a Stage 1 Risk Assessment if one has not already taken place and then a Stage 2 assessment if deemed necessary. Once a call back has been made, the incident log must be endorsed accordingly and any substantive new information added where necessary. This may include details of witnesses, crime reference numbers and actions taken in support of the person reporting the incident. 7.5 Where a Stage 2 vulnerability risk assessment (RA/1) has taken place then the duty to take ownership of the case falls upon the local policing team. Appendix C The response to the risk assessment, lists a series of minimum actions that need to be put in place according to each grading of vulnerability. 7.6 Upon receipt of a completed ASB risk assessment, it may be apparent that the initial grading needs to be reviewed. This could be for variety of reasons including the presentation of new information or the immediate removal of a threat (for example, the relocation of the victim or the offender). Any review must be Status V Last Update: 17/05/17

19 completed on the RA/2 form (re-risk assessment form) and the OEL on Niche updated to reflect the new level of risk and other relevant information. Local Policing supervision should be notified as to any change in risk level. 7.7 After the local policing teams have taken relevant actions to minimise the threat, risk and harm to the ASB victim and after a suitable period of time a review should be completed of the vulnerable person and the current level of risk to them. This re-risk assessment should be in the form of the RA/2 document and will be completed on niche or scanned on to niche and made available for others to view if needed. This re-risk assessment will give officers a clear indication of the current level of risk to the ASB victim. 7.8 Investigations. Even in cases of a Low assessment of vulnerability, it is incumbent on the Local Policing team to undertake an investigation. This purpose of this investigation is to: Obtain evidence about the incident Locate witnesses Identify if any crimes have occurred and record them as required, Determine the identity of offenders Take action against those identified (this may range from warnings, ABC s, arrest and prosecution) Provide support for the victim. 7.9 Partner agencies provide key support mechanisms which can either directly assist victims or take action to prevent re-offending by perpetrators. (For example a warning issued to a tenant by an RSL.) Such support may not be necessary in Low risk cases but it is vital where there is the risk is identified as being Medium or High Enforcement. Anti-social behaviour often involves the commission of criminal offences. Whilst every effort must be made to support vulnerable victims a key aim of the investigation is to take action against offenders. This action can range from prosecution for offences of Disorder and Criminal Damage to the institution of proceedings utilising anti-social behaviour legislation. The latter process is often more protracted and whilst it can offer a long term solution to a problem caused by a key individual or group it may not satisfy the immediate needs of a victim of anti-social behaviour. As stated in the HMIC report Stop the Rot there is a need for the Police to institute dynamic solutions as well as provide longer term ones. Accordingly, where offences are disclosed, action should be taken by way of arrest or summons. The commencement of proceedings to obtain a Civil Injunction or Community Protection notice is not a substitute to undertaking such a prosecution. Where offenders are charged with offences, officers should consider the imposition of bail conditions to prevent the commission of further similar offences and / or the application of a criminal behaviour order. Appendix D contains a guide to current relevant anti-social behaviour legislation and whilst Status V Last Update: 17/05/17

20 every Local Authority has different protocols the descriptions of each power and its effect remain the same. Key to any investigation is the flow of intelligence. All operational staff are encouraged to pro-actively gain intelligence on individuals and groups who are committing acts of anti-social behaviour and submit it via the Force intelligence system. Intelligence can be gained through investigations, observations and community contacts and together provide an essential resource to the investigation of incidents At the conclusion of the investigation, the case must be reviewed by an Inspector. This review must be in writing (recorded on the OEL) and the reviewing officer must be satisfied that all practical steps have been taken to reduce the level of risk and thus the level of vulnerability Any material generated throughout the process including any investigation notes must be treated as part of the Management of Police Information (MOPI) scheme and thus kept for a seven year period These investigations and the provision of support must be recorded in a secure retrievable manner. (On Niche) 7.14 Location of Interest (LOI) markers. A key requirement for medium and high risk cases is the need to place a LOI marker on the Storm system detailing the fact that the person at the location is classed as vulnerable and suffering from incidents of ASB. Care needs to be taken when setting the marker to ensure that the system does not delete it when it is still relevant Problem Solving. The support provided to a victim or actions taken to tackle incidents of repeat victimisation must be set around the principles of problem solving. The START and RECAP guidelines need to be used when dealing with vulnerable victim investigations The SARA model must be considered when tackling protracted Repeat Location investigations. Utilising the SARA model to tackle a specific issue will enable the recording of actions and allow for suitable supervisory quality assurance of solutions. On some occasions a repeat location may also be one of the Community Priorities. In these events, the Neighbourhood Priorities OEL type should be used in place of an ASB Risk Investigation one. 8. Case Management 8.1 Where a victim has been identified as being at risk regardless of its level it is clear that further action by the police is required to reduce the risk thus preventing the likelihood of harm occurring. Status V Last Update: 17/05/17

21 8.2 These activities will need to be coordinated, transparent and readily accessible. As such there is a need for them to be subject to case management using the NICHE system. 8.3 To assist with the framing of information two mnemonics are in existence, START and RECAP, which when applied cover the key points that should be covered at the start and finish of any ASB investigation. Within the OEL, when the F3 function is utilised this will enable officers to select either the START or RECAP guide which will assist officers in recording the correct data / information required. 8.4 It is important that all notes made during the investigation are clear and cover the necessary points such as the involvement of partner agencies. APPENDIX F has full details of how to create a NICHE occurrence and minimum points that need to be covered. 8.5 Once identified as being at risk, the case will then be allocated to a Local Policing Officer in a similar manner to a crime allocation. The officer will create a NICHE Occurrence if not already created and identify it as being anti-social behaviour related. 8.6 Once a person is identified as being subject to this level of risk, Merseyside Police has a clear duty to take action. A Low, Medium or High Risk victim of antisocial behaviour must be treated in the same manner as the victim of a crime with the same emphasis on identification of offenders, prevention of harm and provision of support. 8.7 Contact with the victim should be in line with VoC standards unless the victim feels otherwise. This should be endorsed on the OEL. 8.8 All victim contacts and investigative actions taken will be endorsed on the NICHE Occurrence record using the OEL tab and any statements taken must also be placed within it. 8.9 The principle aim of the investigation is to set in place a series of actions that will result in the reduction of the level of risk of harm to the victim. It may well transpire that during the investigation, crimes are discovered and the identity of the offender becomes known. In this case, these crimes will need to be separately recorded following the principle of One Victim, One Crime Report 8.10 Victim support. It is important to consider that further support can be provided by voluntary organisations. The commissioning of victim support services is handled by the Police and Crime commissioner. Each Community Hub now has access to a directory of such services that are available from the intranet. Many of these services aim to provide qualitative support to victims to improve their life. Where the victim is identified as being High Risk a special support service exists. Light for Life are a charity based in Sefton who have been commissioned by the PCC to provide care to high risk anti-social behaviour victims. In Status V Last Update: 17/05/17

22 addition to counselling they can provide, where the circumstances dictate it, an ARC ANGEL monitoring device. This device is worn by the victim and when it is activated, it will put them in direct communication with Sefton Security who will be able to pin point their location and call the police should the circumstances dictate. Referrals to Light for Life can be made via ( victim Intervenion) and more details on this service and the referral form can be viewed in Appendix E A key advantage of using NICHE to record incidents is that it will allow links to be created to other crimes and offenders and therefore assist in creating a joined up approach to tackling anti-social behaviour and crime When investigations have been completed and actions put in place, the Occurrence must be finalised. Supervisors are required to assess the quality of the investigation and ensure that all appropriate steps have been taken to reduce the level of risk. This may well involve the use of services provided by partner agencies such as Local Authorities and Social Services The use of NICHE is mandatory for all LOW, MEDIUM or HIGH risk cases A guide to possible risk reducing interventions is contained within Appendix C. This list is not exhaustive and staff must remain focused on the objective of reducing risk to its lowest practical level when undertaking interventions. Status V Last Update: 17/05/17

23 9. Local Governance 9.1 The operational lead for targeting anti-social behaviour is the Local Policing teams led by the Inspector. In addition to the protection of vulnerable victims there is a key requirement to actively target incidents of anti-social behaviour as part of their day to day priorities. This need is exemplified by the HMIC view that anti-social behaviour destroys the vitality and confidence of local communities Repeat Locations. In many instances a repeat location will be one and the same as the location of a vulnerable victim. Indeed the level of repeat incidents is one of the aggravating factors that determine the level of risk. However, there can be instances where despite the level of repeat incidents there is little or no affect on the vulnerability of individuals. A good example of this could be on-going environmental anti-social behaviour in a local park. Whilst these anti-social behaviour hot spots will be affecting the quality of life of the local residents and park users there may no direct impact on any one individual s vulnerability. That said, given the need to tackle anti-social behaviour, each Local Policing team must put measures in place to reduce the level of repeat incidences. 9.3 Repeat Victims. In a similar manner to repeat locations, a repeat victim of antisocial behaviour may be one and the same as a vulnerable victim of anti-social behaviour. Again, however, there are instances where an individual makes frequent complaints of anti-social behaviour without actually being defined as being vulnerable. A good example would be a regular caller complaining about youths on small motorbikes driving through an estate causing an environmental nuisance. Whilst this person may not be classified as being vulnerable the Local Policing team must put in place steps to target this anti-social behaviour and provide support to the individual. Successful intervention will lead to a reduction in anti-social behaviour incidents and boost the confidence of the individual reporting the incident. 10 Working in Partnership 10.1 As part of the process to tackle anti-social behaviour, Local Policing teams should consult fully with and integrate their responses with those of local partners such as the Local Authority, Registered Social Landlords, the Merseyside Fire and Rescue Service (MFRS) and Victim Support. Whilst it is not possible to be prescriptive as to exact manner of each interaction across each Local Policing area in the Force area, there is a clear expectation such support will be sought when investigating cases of vulnerable victims and when tackling incidents of repeat victimisation. The five Local Authority areas within Merseyside differ in structure and reporting mechanisms. To secure joint agency solutions to problems Local Policing teams 1 HMIC Stop the Rot 2010 Status V Last Update: 17/05/17

24 will have to work closely with their relevant Local Authority ASB Units. These ASB units can then act as a conduit to securing support from other parts of the local authority such as Social Services as well as facilitating contact with external partners such as Registered Social Landlords. Social Services LPA Team LA ASB Unit Highways / Leisure Service RSL s In this way, Local Policing Inspectors can seek flexible joint agency solutions which can be determined on a case by case need. Whilst the ASB units are key facilitators in the provision of solutions, Local Policing staff can also make direct links with other partners as they see fit. The role of the retail sector is also important as many anti-social behaviour problems revolve around shops and other local businesses. Where the illegal sale of alcohol is an issue, staff must work closely with licensing teams and the local Trading Standards department to ensure that both prevention and enforcement activities are carried out. A good example of such preventative measures are the bespoke training courses offered to off-licence staff by the Drinks Industry to educate them in complying with licensing legislation There is clear need for High Risk vulnerable cases to be subject of such a multiagency solution and this support should be planned and accounted for within the investigation To this end, local policing teams should build close working relationships with local partners to facilitate joint working objectives Offender Management A key part of the partnership work will involve the imposition of community prevention orders to control the actions of individuals in line with anti-social behaviour legislation. Such statutory controls are an essential part of tackling repeat offenders who may be instigating attacks on vulnerable victims or causing disorder at repeat locations. Status V Last Update: 17/05/17

25 10.5 Each Local Authority has its own policies and procedures for the obtaining of such prevention orders. Local Policing staff should familiarise themselves with these policies and seek the support of the relevant ASB unit s at the earliest opportunity To support the above, Local Policing Commanders should ensure that effective protocols exist with their relevant Community Safety Partnerships detailing service level agreements to tackle anti-social behaviour both through the provision of support to individuals and the undertaking of enforcement activities against offenders. Any sharing of information must be supported by an agreement that meets the requirements of the Data Protection Act. 11. Local Policing Area Governance 11.1 Each LPA is responsible for the tackling of anti social behaviour within its geographic area Command teams must ensure that levels of anti-social behaviour are monitored and steps are put in place to ensure that the needs of the victim and the community are addressed at the earliest opportunities The LPA must ensure that anti social behaviour is part of the Strategic Threat Assessment and that incidents are monitored via the Tasking and Coordinating Process and the Daily Management Meeting. 12. Force Governance 12.1 The Assistant Chief Constable (Local Policing & Criminal Justice) is the force lead for anti-social behaviour. The force has appointed a Strategic Responsible Officer (SRO) at the rank of Chief Superintendent who is given the responsibility to reduce crime and anti-social behaviour. The SRO is supported by a Lead Responsible Officer for anti-social behaviour. The SRO will measure performance and ensure that steps put in place to tackle vulnerable victims, repeat victims and repeat locations through a monthly governance process. The LRO will monitor policy and doctrine and provide guidance to LPA s in the targeting of anti-social behaviour and protection of vulnerable victims. The ACC will also hold LPA s accountable through the quarterly Community First Inspection process. Status V Last Update: 17/05/17

26 13. Police and Crime Commissioner Governance 13.1 The tackling of anti-social behaviour is one of the key elements of the Police and Crime Commissioners (PCC) strategy for policing. She will hold the Force accountable for the overall levels of recorded anti-social behaviour and ensure that measures are in place to protect vulnerable victims and target offenders The PCC will receive a quarterly report on performance on all aspects of antisocial behaviour. This will include the overall number of incidents and compliance with the National Standards of Incident Reporting In addition to the above the Chief Constable s Annual Report will detail annual performance and highlight key actions taken to tackle anti-social behaviour. Status V Last Update: 17/05/17

27 Appendix A At an ASB Incident Y G Why is this incident occurring- is the victim being targeted or are they vulnerable? Is disability or hate a factor here? Get out of your vehicle and speak to the victim/informant. If they want to remain anonymous make contact with other nearby residents E Examine the scene and gather evidence. Is there enough evidence for you to take action now? T O Take names and addresses of all victims, witnesses, offenders or suspects Offer advice, including crime prevention advice and what to do if it happens again U Update the STORM log with the actions you have taken, and forward intelligence to your area intelligence unit. T Take action - all quiet on arrival is not an option. Status V Last Update: 17/05/17

28 APPENDIX B RA/1 Merseyside Police Anti Social Behaviour (ASB) Initial Report & Assessment Form Part A About the ASB Date of initial report: Date the form is completed (if different) Storm Incident Number or other ref: Niche number (when generated) A1. When did the ASB take place? Time Day Date Location A2. Please summarise the ASB being reported A3. Contact details for the victim (if being reported by third party on behalf of victim then complete section A4 also) Name of victim Self defined ethnicity of victim Address of victim (include postcode) Telephone number (s) address How would the victim prefer contact? e.g. only at certain times or locations, by telephone, in person or by letter? A4. Contact details of the agency/ third party/ witness information if the report is made by a witness or third party. Name of witness or third party Name of agency (if applicable) Address and/ or Telephone numbers Status V Last Update: 17/05/17

29 A5. If this report is being made by a witness or third party, is this with the victim s knowledge? Tick one box below [ ] Ye s [ ] No [ ] N/A Now complete Part B The Risk Assessment form Circle the number in the centre column which corresponds to your victims answer. At the conclusion add each number circled and record this total number in the total score box. Part B: Anti Social Behaviour Risk Assessment Form This risk assessment is designed to help you identify vulnerable victims, witnesses, and complainants. It should be used as a guide and in combination with your own judgement to help ascertain what support and protection is required in any given situation. All action taken as a result of your assessment should be discussed with the witness to ensure it meets their needs. Any further information can be included in the additional information section at the end of the assessment. 1. Other than on this occasion, how often do you experience ASB? Daily Most days Most weeks Most months Only occasionally/first occasion 2. If you have had previous incidents of ASB do you think the current incident is linked to those previous incidents? If so, why? 2 0 Maximum Score: 4 Yes No History 3. Do you think that incidents are happening more often and/or are getting worse? 4. Do you know anything about the offender/s? If so, what / who are they? If known please include details in additional info section and consider immediate action to be taken 5. Does the perpetrator or others with them have a history of or a reputation for intimidation or harassment? Maximum Score: 2 Yes getting worse or more often No Maximum score: 2 They are known to each other They do not know each other Maximum score: 2 Offender or their associates have harassed the complainant in the past Offender or their associates have not harassed the complainant, but have a history or reputation for harassment or violent behaviour Offender is unknown / Offender or their associates 0 have no known history or reputation for harassment or intimidation Maximum Score: 4 6. Have you informed any other agencies about what 0 Details: has happened? Yes / No. If so who or what agencies have been informed? Status V Last Update: 17/05/17

30 7. Who do you think that this incident deliberately targeted? (If anybody other than the victim then provide further details in the additional information section) No Score for this question (Info gathering to assist / enable Police / Partnership working) You Your family Your community None / unknown 8. Do you feel that this incident is associated with your: Faith [ ] Nationality [ ] Ethnicity [ ] Sexuality [ ] Gender [ ] Age [ ] Disability [ ] Gypsy or Traveller heritage [ ] Other [] Details: 3 0 Maximum Score: 4 Yes (If necessary treat as hate motivated incident and take necessary additional actions as per Hate Incident Policy) No Maximum Score: 3 Vulnerability 9. In addition to reasons given above, do you feel that there is anything that is increasing you or your household s personal risk (e.g. because of personal circumstances or threats/use of violence from the suspect/offender). Details: 10. How affected do you personally feel by what has happened? Please specify: 11. Has yours or anyone s health been affected as a result of this and any previous incidents, or have you had to seek medical help from a doctor or nurse? (Mental or Physical) Please specify: Yes No Maximum Score: 3 Affected a lot / Extremely affected Moderately affected Affected a little Not affected Maximum Score: 4 Yes No Maximum Score: Do you consider you have a disability? (Hearing impairment, visual impairment, learning difficulty, mental or emotional distress, physical impairment, deaf British Sign language User, long term health condition e.g. diabetes, arthritis, HIV, MS) Please give details: 2 0 Yes No Maximum Score: 2 Support 13. Do you have anyone to support you? Please specify: Is it a professional? i.e. social worker/health visitor Is it family/friends? Would you like us (Merseyside Police) to speak to anyone about this incident on your behalf, Yes / No? Details The complainant is isolated from people who can offer support The complainant has a few people to draw on for support The complainant has a close network of people to draw on for support Maximum Score: 3 Status V Last Update: 17/05/17

31 14. Apart from any effect on you, do you think anyone else has been affected by what has happened? Detail who so follow up action can be taken against those effected: Your family Others in local community No Maximum score: 2 RECORD TOTAL SCORE (Maximum Score 37) LOW MEDIUM HIGH The scores are there as a guide and should be used in combination with other local resources, and your own judgement of what support and protection are required in any given situation. All action taken as a result of your assessment should be discussed with the witness to ensure it meets their needs. Additional Information Status V Last Update: 17/05/17

32 1. I have carried out the risk assessment and the result falls within the LOW, MEDIUM, HIGH range (please delete). 2. I have considered the use of a VPRF1 and HAVE / HAVE NOT (please delete) submitted one on this occasion. If one has been submitted then please scan onto Niche with this risk assessment document. Likewise consideration should be given to including a copy of this ASB risk assessment with any VPRF1 completed. Consideration should be given to completing one when the impact of ASB is having a significant impact on that of the victim / family. The VPRF1 will enable further partnership work and early intervention to support the victim and / or their family. Officer name completing the risk assessment form: Collar/ID Number: Station / Department: Contact Telephone: Date: / / SIGNATURE OF OFFICER COMPLETING RISK ASSESSMENT ENSURE THIS DOCUMENT IS NOW SCANNED ONTO NICHE IF NOT COMPLETED ELECTRONICALLY ON NICHE (See Page 30 below for the RA/2) Status V Last Update: 17/05/17

33 RA/2 Merseyside Police Anti Social Behaviour (ASB) Re Risk Assessment Form Part C Re assessing the Risk Niche Number for this case: 05 A1. Contact details for the victim (if being reported by third party on behalf of victim then complete section A2 also) Name of victim completing the re risk assessment Address of victim (include postcode) Telephone number (s) address How would the victim prefer contact? e.g. only at certain times or locations, by telephone, in person or by letter? A2. Contact details of the agency/ third party/ witness information if the re risk assessment is being completed by a witness or third party. Name of witness or third party Name of agency (if applicable) Address and/ or Telephone numbers Now complete the Re Risk Assessment forms on Page2 4. Circle the number in the centre column which corresponds to your victims answer. At the conclusion add each number circled and record this total number in the total score box. Status V Last Update: 17/05/17

34 Part C: Anti Social Behaviour Re Risk Assessment Form This re risk assessment is designed to help you identify the new level of threat, harm and risk involving vulnerable victims, witnesses, and complainants. This re risk assessment (RA2) should ONLY be completed after a RA1 form has been done so previously. All action taken as a result of your assessment should be discussed with the witness to ensure it meets their needs. Any further information not captured through the question and answers can be included in the additional information section at the end of the assessment. 1. At this present time and since the previous risk assessment the Police conducted with you how often have you experienced further ASB Every Day Most days Once or twice a week Once every two weeks or so I have experienced no further ASB since the previous report 2. Do you think that incidents are happening more often and/or are getting worse? Maximum Score: 4 Yes getting worse or more often No They are reducing but still happening occasionally No History 3. Do you know anything about the offender/s from the initial incident or any other subsequent incidents? If known please include details in additional info section and consider what action can be taken. 4. If you have had any recent incidents and if you know the perpetrators do they (or their associates) have a history of, or reputation for, intimidation or harassment? Maximum score: 4 They are known to each other They do not know each other Maximum score: 2 Offender or their associates have harassed the complainant in the past Offender or their associates have not harassed the complainant, but have a history or reputation for harassment or intimidation 0 There have been no further incidents OR I do not know the recent perpetrators Vulnera bili 5. If there have been further incidents have you informed any other agencies about what has happened? Yes / No / No other incidents If so who or what agencies have been informed? (Continue in additional info if needed) 6. If any further incidents who do you think this incident(s) deliberately targeted? Please list who and why (use additional info if needed) 7. If there have been any further incidents do you feel that this incident(s) is associated with your: Maximum Score: 4 0 Details: No Score for this question (Info gathering to assist / enable Police/Partnership working) You Your family Your community Unknown or No further incidents Maximum Score: 4 3 Yes (if necessary treat as hate motivated incident and take necessary additional actions as per Hate Incident Policy) Status V Last Update: 17/05/17

35 Faith [ ] Nationality [ ] Ethnicity [ ] Sexuality [ ] Gender [ ] Age [ ] Disability [ ] Gypsy or Traveller heritage [ ] Other [] Details: 8. In addition to reasons given above, do you feel that there is anything that is increasing you or your household s personal risk (e.g. because of personal circumstances or threats/use of violence from the suspect/offender). 9. At this present time how affected do you feel about what has happened / is happening? 10. Has yours or anyone s health been affected as a result of this and any previous incidents, or have you had to seek medical help from a doctor or nurse? (Mental or Physical) No I don t or No further incidents Maximum Score: 3 Yes (include details in additional info section) No Maximum Score: 3 Affected a lot / Extremely affected Moderately affected Affected a little Not affected Maximum Score: 4 Yes (Include further details in additional info section) No 11. Do you consider you have a disability? (Hearing impairment, visual impairment, learning difficulty, mental or emotional distress, physical impairment, deaf British Sign language User, long term health condition e.g. diabetes, arthritis, HIV, MS) 2 0 Maximum Score: 2 Yes (Include further details in additional info section) No Support 12. Do you have anyone to support you? Please specify: Is it a professional? i.e. social worker/health visitor Is it family/friends? Would you like us (Merseyside Police) to speak to anyone about this incident on your behalf, Yes / No? Details 13. At this present time apart from any effect on you, do you think anyone else has been affected by what has happened / what is happening? Detail who so follow up action can be taken against those effected (use additional info section) Maximum Score:2 The complainant is isolated from people who can offer support The complainant has a few people to draw on for support The complainant has a close network of people to draw on for support Maximum Score: 3 Your family Others in local community No Maximum score: 2 RECORD TOTAL SCORE (Maximum Score 37) LOW MEDIUM HIGH Status V Last Update: 17/05/17

36 The scores are there as a guide and should be used in combination with other local resources, and your own judgement of what support and protection are required in any given situation. All action taken as a result of your assessment should be discussed with the witness to ensure it meets their needs. Additional Information Additional Information (cont) Status V Last Update: 17/05/17

37 1. I have carried out the re risk assessment and the result falls within the LOW, MEDIUM, HIGH range (please delete). 2. I have considered the use of a VPRF1 and HAVE / HAVE NOT (please delete) submitted one on this occasion. If one has been submitted then please scan onto Niche with this risk assessment document. Likewise consideration should be given to including a copy of this ASB risk assessment with any VPRF1 completed. Consideration should be given to completing one when the impact of ASB is having a significant impact on that of the victim / family. The VPRF1 will enable further partnership work and early intervention to support the victim and / or their family. Person completing the re risk assessment form: Collar/ID Number: Station / Department: Contact Telephone: Date: / / SIGNATURE OF OFFICER COMPLETING RE RISK ASSESSMENT ENSURE THIS DOCUMENT IS NOW SCANNED ONTO NICHE Status V Last Update: 17/05/17

38 ASCU Appendix C Response to Risk Assessment -Conduct investigation -Home/personal visit offered by PCSO/ Constable (if declined, seek as much information as possible regarding the vulnerability or support needs of anyone resident at the property). -Explore victim support options -Actions must reflect the need to maintain risk at the lowest practical level. -Conduct investigation. -Con/ Sgt to make personal visit -Consider problem solving plan -Explore victim support options i.e. Local Policing officer, tenancy support or where available referral to Victim Support -Consider target hardening -Actions must reflect need to reduce risk and prevent escalation. -Investigation to be quality assured by Inspector. - Investigation plan added - Sgt to make Personal visit and brief LPA Inspector accordingly. - Agree Contact Plan - Explore victim support options i.e. Local Policing officer, tenancy support or where agreed referral to Victim Support -- - Consider target hardening. - Coordination of ongoing response must be via LA ASB Unit. -TAU marker added to address on Storm. - Consider Threat Assessment on Address. - Review of case by ASB lead and monthly Governance Meeting Status: V Last Update: 14/07/15

39 Appendix D The guide to anti-social behaviour powers is now contained within the following document that is available separately on the intranet Operational Guidelines on the use of ASB Legislation 2015 These guidelines are a practitioner s guide and should also be read in conjunction with the Home Office statutory guide to the new legislation.

40 Appendix E Victims Intervention Service [VIS]: Briefing Note Introduction The following is a brief synopsis of the model used by the Victims Intervention Service (VIS) The briefing note describes the methodology (with case studies) in order to illustrate various parts of its methodology. Overall the VIS model is framed using assessments and outcomes best described using two main headings: Cope and Recover. 1. Cope The Victim Intervention Service (VIS) uses a structured methodology in order to understand and assess how the victim is coping. The service uses the headings below to frame their understanding of the risks and needs of the victim. Positive and informed risk assessment [clear understanding of risks/impact of the incidents on the victim] The VIS has designed a referral form that allows the Police to refer clients to the service. In addition to being a referral form, the resource allows officers to highlight issues such as mental health/physical health problems; if the victim is elderly; resides alone; has no immediate family or wider supportive networks; if the victim feels they are being targeted because of any perceived difference. Finally, the form allows the referring officer to state if they believe that the last incident is one in a series of incidents that are escalating in terms of their seriousness and impact on the victims overall safety and wellbeing. Since June, 11 victims have been referred into the service (with 5 children) Proportionality [titrate victim risk with protection and contact] The referral system, in addition to a personal visit within 24 hrs, allows the VIP to clearly understand the impact the risk is having on the victim and their immediate family. Whilst each client is unique understanding their risk is critical if the service is to design interventions to protect them.

41 Since June the VIP s have arranged for CCTV to be installed for 2 victims, have arranged for 2 victims to have Fire Safety Assessments and protective letter box equipment fitted and has liaised with housing providers to secure the eviction of 2 perpetrators. A snap-shot of 3 high risk cases over a 4 week period reveals: The victims were met at their home address on a total of 6 occasions The victims were contacted in total 7 times by the service The victims contacted their Intervention practitioner 9 times all calls answered immediately. Average phone call lasting 35 minutes with the victim The Intervention practitioner contacted the Police to update them on 6 occasions The intervention practitioner contacted other agencies (e.g. Merseyside Fire and Rescue, Housing provider a total of 4 times to request services and support which was immediately actioned) The Intervention practitioner contacted support agencies (e.g. youth interventions and support programmes and adult support interventions for the victims and their family) on 6 occasions The service prevented homelessness applications in all 3 cases (all victims were considering abandoning their properties.) Defensible decision-making [clear audit of all decisions] Given the risk it is essential that there is a clear audit trail of all decisions taken. To this end the VIP s keep extensive client records of all client contacts, what was

42 discussed, risks remaining and actions taken which are securely stored. The VIP S have now had official Merseyside Police clearance and have been given access to force and Niche which means that in addition to the records they keep for Light for life they can now immediately update any relevant logs for Local Policing s Officers so as to improve the quality and immediacy of services delivered to high risk victims. Risk of re-victimisation The risk of assessing the probability of re-victimisation is a dynamic process. The initial assessment is based on what has happened to the victim as a result of the latest incident. However the risk of repeat incidents [or if the incidents are escalating in their severity and frequency] is assessed with the client and with information ascertained from the completed VIS referral form. [See section below designed to diagnose risk that are completed by the referring officer] Have there been a series of incidents? [Please give details of incidents and their location]. Are the incidents escalating in terms of their frequency and severity? Is the victim afraid of further incidents happening? What impact have these latest/this latest impact had on the victims overall health and wellbeing? Impact and consequences of repeat incidents (victim/family) The VIS spends considerable time with the victim to better understand the consequences impact and consequences the offender[s] behaviour is having both on them and their wider family. This often does not appear on the Police risk matrix but is really important in allowing the VIP s to develop interventions and support that allow the client to cope One of the clients referred had a number of children all under the age of 11 years. The offenders had persistently targeted the victim s external utilities meters and had turned off the gas and electric so the house was in total darkness to intimidate the victim and her children. Unknown to other services, but disclosed to the VIP s, was the fact that this was having a major impact on one of the children who had previously been traumatised by a separate, unlinked serious assault committed

43 during the hours of darkness. The VIS informed the Housing Association (of the consequences - not the incident) who immediately secured the meters and to date the victims gas/electric have not been interrupted. As a result the victim and her family feel more confident and safer in their own home. Victims perceptions of the risk to themselves and their immediate family The VIS service ensures that they put the client at the heart of all the risk based conversations. They do this to understand if the client is making informed rational decisions when balancing known and anticipated risks with their probable consequences or if the consequences they anticipate are a product of their hypervigilance. One victim who had experienced repeated abusive behaviour from a specific individual had decided to not just reduce the risk, but remove the risk, by no longer actually leaving the property. When they did it was in a way that would still reduce the possibility of meeting that person to as close to zero as possible. So, for example, the victim would not go into the front garden to water their plants because the offender would be there. They would only do their shopping in the middle of the night in a 24 hour super-store by taxi. The Police logs indicated that the risk had reduced due to high visibility patrols in the area, unaware that the reduction in reports was due to the victims self imposed imprisonment. This was only disclosed to the VIS service on their second visit to the victim s house. Over the next 2 weeks the VIS talked to the victim about positive risk and over that period the victim regained their confidence to go out. Number of repeat incidents The VIS keep in touch with the referring Police Officer about all repeat incidents disclosed to them by the client (and vice versa) so that the Police and the VIS have the fullest and best informed risk picture

44 2. Recover As the victim moves ever closer to becoming a client (as risk decreases) the Victim Intervention Practitioners (VIP s) assess how the victim s exposure to risk has effected both them and their immediate family. During this stage the VIP s use (within a structured conversation with the client) a number of questions from the below recognised diagnostic instruments to understand (as opposed to diagnose) the client s immediate needs from which referrals can then be discussed with the client about their recovery. Recovery: Assessment of Needs: Adult Wellbeing Scale [Snaith et al, 1978] which can assess depression, irritability, anxiety and hyper-arousal Family Activity Scale [Smith, 1985] which can be used to assess the impact of the events on the victims immediate family (children aged 2-6/ 7-12) Strengths and Difficulties Questionnaire [children, 4-16] Home Conditions Scale [Davies et al, 1984] which assesses the family environment/home conditions] Contextualising behaviour [recovery based needs/impact assessment] Proportionality [titrate client/family needs with other services best placed to meet them] Tolerable risks [allow the client to take positive risks that increase their happiness and allow them to recover and re-integrate as opposed to remaining safe but unhappy and thus failing to recover] At this stage the VIP s move the conversation with the victim from risk to recovery and allow the client to focus their attention and energy on what they want to achieve; what they wish to return to; a positive vision of a way of living where their decisions are not dominated by the avoidance of risk [either real or imagined]. The VIP s steer the client away from risk based conversations and instead discuss how they could access services (or simply do things we should all take for granted) that allow them to fulfil their life plan based on how they (either implicitly or explicitly) wish to live their life, now and in the future. The below are some case examples of clients using recovery based services. The VIS have engaged with all CVS in Merseyside and have specific points of contact within each so as to triage clients into the best

45 available recovery based services dependent upon the clients immediate and longer term needs As such one client was referred into local children s holiday based provision in order to address the social isolation they experienced as a result of being a victim of hate crime. One client was referred to Age Concern in order to address their longer term needs and recovery, accessing new services and opportunities through their befriending provision, allowing them to take up new opportunities. In this way clients are not retained by a victim based service for any longer than they need to be. The service uses the above two headings to ensure that its support of the victim in managing risk (under the coping phase of the work) does not intrude and continue to dominate discussions and plans with the client in the recovery phase of the intervention. In this way the service avoids embedding attitudes, such as behavioural avoidance, within the conscious and unconscious decision-making of the victim in a way that inhibits their recovery (such as their social re-integration and overall wellbeing). If there is no clear delineation between the approach to risk as opposed to the approach to recovery than the client can become and remain hyper-vigilant seeing any and all uncertainty as risk; where clients remain victims fearing various real and imagined consequences from everyday life events in a way that can continue to dominate their life as well as those within their family. The fact that risk continues to dominate the overall agenda when working with victims is perhaps one that owes its origins to a reputational risk management approach; one that sees the victim and the service as inseparable identities. This model seeks to reduce client risk to a theoretical zero as an attempt to mitigate service risk and the services own vicarious liability; an approach that can, and often does, have unintended consequences when the needs of the victim become surpassed by the needs of the service. To prevent this the VIS model uses a client-centred approach to make sure that services wrap around the client whether it be in the coping or recovery phase of the process. As such, and perhaps self evidently, services used to address risk [and thus coping ] are not the same as those that address and assess recovery. However whilst coping and recovery services are not the same, neither are they mutually exclusive and both need to fit together seamlessly and be titrated against the needs of the client if a service is to produce real and tangible outcomes. Recovery based analysis The VIS use the below assessments to understand [as opposed to diagnose] the impact the risk has had on client, their children and their family and the immediate needs of the client in recovery. The below is a brief synopsis of what each covers.

46 Adult Wellbeing Scale: This assesses client s irritability, depression, anxiety IDA Scale. Snaith et al, 1978). This scale looks at how an adult is feeling in terms of depression, anxiety and irritability. As such it explores if clients can relax, are they cheerful, their appetite, their temper, if they still laugh, feel close to losing control and lashing out, anxious, awake for hours before they need to be, are tense and wound up, lost interest with previous activities, are scared and panicky, angry with themselves, cannot go out without feeling anxious, self critical or contemplating self harming. The Family Activity Scale (Derived from The Child-Centredness Scale. Smith, 1985). These scales give practitioners an opportunity to explore the environment provided for their children, through joint activities and support for independent activities. This scale includes understanding the social environment in which children live, as well as how their carers/parents respond meet their children s needs (such as for example, concerning play, storytelling, going to local events, clubs, parks, visiting friends, visiting relatives, going to the cinema...or simply going out to play in the street or garden] There are two separate scales; one for children aged 2 6, and one for children aged Home Conditions Scale (The Family Cleanliness Scale. Davie et al, 1984) addresses various aspects of the home environment (for example, smell, state of surfaces in house, floors). The total score has been found to correlate highly with indices of the development of children. The Strengths and Difficulties Questionnaires (Goodman, 1997; Goodman et al, 1998). These scales are a modification of the very widely used instruments to screen for emotional and behavioural problems in children and adolescents. The actual questionnaire incorporates questions within 5 scales: pro-social, hyperactivity, emotional problems, conduct (behavioural) problems, and peer problems for children and young people aged between 3 to 16 years. The questions examine issues such as their children s restlessness, fidgeting, increasing solitude, nervousness and clinginess or if they are becoming increasingly scared.

47 Victim Intervention Practitioners Referral Form Police LPA Details Police LPA Lead Contact Details [Rank/FIN/contact telephone] Address [Police Station & Postcode] 1. ASB Victim Details: Name Date of Birth Address and Postcode Telephone Number [landline/mobile] Ethnicity Children at Address [Names & DOB] Date/time of most recent Incident: [please include the following points]: 1. Have there been a series of incidents? [Please give details of incidents and their location]. 2. Are the incidents escalating in terms of their frequency and severity? 3. Is the victim afraid of further incidents happening? 4. What impact has this/these latest incidents had on the victim (and family)? Client Risk Factors

48 Please state if you are aware of any factors that may increase the vulnerability of the victim [for example: any relevant mental health/physical health problems; if the victim is elderly; resides alone; has no immediate family or wider supportive networks; if the victim feels they are being targeted because of any perceived difference] Are you aware of any other agencies supporting the client or involved in the case? For example this could include a Housing Association, Adult Social Care and/or relevant Community Organisations Relevant Police Log Number(s) [Please list all relevant Police logs] Is there anything about the alleged perpetrator that we should know in order to minimise the risk to the victim or our service when we visit? This could include if the offender has a history of similar offences; if they live in sight of the victims property; if they are likely to confront staff from our service; if they pose a physical risk to the victim and our staff. Are there any risks/issues that the Victims Intervention Practitioners should be aware of before they visit? For example this could be issues at the house such as aggressive dogs, not parking in the immediate area of the victim s property as this might lead to an increased risk to the client.

49 Client Consent: All the information on this form will be used to assist the client. It will be securely protected and destroyed once it is no longer required. I agree to all this information being shared with Light for Life (Victim s Intervention Practitioners). Please note this is a mandatory field, the referrals are consent referrals only. Has the client consented to be contacted? Yes/No 2. Any Further Information/Notes: Please add any further information you feel is relevant for us to assist the victim that you have not included above but feel we should know about. Please include date/time/details of any information that would assist. Referral process Completed Referral forms should be ed to the Victims Intervention Service shared Outlook Mailbox named: Victim Intervention Service If you need any immediate advice from a Victims Intervention Practitioner then please call the below mobile telephone numbers (these are not to be given out to clients at this stage). Dave Fenney [ ] Joanne Williams [ ] Once in receipt of a referral one of the team will you to let you know we have taken receipt of the referral and will update the referring officer with all relevant information as the case progresses.

50 Appendix F Guidance on the use of NICHE to undertake enquiries into victims at risk due to Anti Social Behaviour. Page 2 Part 1- Technical guidance on the use of NICHE to create an ASB Occurrence 5 Searching for Vulnerable victims 6 Part 2- Minimum standards required on a NICHE Occurrence Log Initial points on opening an investigation- START Minimum standards on the closure of an investigation- RECAP. 8 Part 3- Summary & Process Map

51 Part 1 Managing Vulnerable ASB Victims on Niche This Guidance has been put together to provide clear direction on the minimum standards required when creating a niche occurrence for a vulnerable victim of ASB. Create a new occurrence in the usual way. Remember to include vulnerable persons in the Disp type and ASB Risk Investigation in the Occ type. This is important when searching for incidents at a later date Complete the Summary Box to show the following ** High Risk/ Medium Risk/ Low Risk ASB Risk Investigation See OEL for detail of vulnerability along with attached Risk Assessment **, This is important as it allows the Occurrence to be easily located. Next, link the involved vulnerable person. The classification should be aggrieved person reporting and witness.

52 Include in the remarks the fact that this occurrence involves a vulnerable ASB victim IMPORTANT: Once you have linked the person, open up the person record and click on the Warning / flags tab. Right click in the normal way and add a vulnerable ASB victim flag. Add the Eff from date. Add Flag expiry date (3 months) then right click in the Persons to notify box and add the appropriate person. In most circumstances this will be the OIC who is likely to be the dedicated officer. Tick the Notify on expiry box and then the number of days in the Time before expiry to send notification (7d equals a week before, 14d equals 2 weeks etc). This will ensure a task is sent to the nominated person before the flag elapses. Link the involved address in the usual way and any other involved people / witnesses.

53 Below will be the page with all details completed and the vulnerable ASB victim flag attached Link in any current officers this is to include the OIC, Supervision, and any other investigating officers who may be dealing with a criminal offence linked to the ASB e.g. Race Hate investigation link the occurrence and also the officers dealing with that investigation it is important to know all of the relevant officers involved in the case. Initial Opening OEL Entry must contain details of why this victim is vulnerable providing as much information as possible. Complete a victim contact plan in OEL this is to be agreed with the complainant Identify actions to be considered, or taken, and detail in OEL in doing so review the risks identified on the Stage 2 Risk assessment and document control measures that will be put in place this will take the place of the victim care plan so will also include partnership work, Victim Support, Vulnerable Victims Champion, RSL involvement, ASBU involvement where appropriate. Create a task to Local Policing supervision. All High risk ASB victims MUST be brought to the attention of the Bronze threats CIM (for inclusion on Force R & R report and assistance if required re default patrols, extra attention etc) and the relevant Local Policing Team.

54 Searching for Vulnerable ASB Victims on Niche On the detailed person search screen, go to the Persons address tab Choose your area, neighbourhood or even beat. Next, go to the warning tab (you will need to click on the right arrow in the top right corner several times) In the Flag type field click on Vulnerable ASB victim Then click This search will return all current victims with a vulnerable ASB victim flag attached to them. If the inputting of the flag is carried out correctly with the flag expiry date completed, there is no need to input dates in your search.

55 Once a victim is no longer vulnerable the flag can be manually removed by updating the flag expiry date field. This victim will then no longer appear in a search. Part 2 Minimum Standards for OEL Entries It is important to ensure that the correct OEL type entry is chosen when updating the OEL. Comments by investigating officers should be made in Upper case and comments by Supervisors should be in lower case. Victim Contact Any contact with the victim by any person to include, where known, details and dates of partnership contact with the victim. Timeliness of victim contact should mirror that of victims of crime, i.e an agreed contact strategy should be created with contact on a minimum basis of every 28 days. Given the inherent vulnerability of victims of ASB, contact should be more frequent. Supervisor Comments This can include a comment on the progress of an investigation, recommended action etc. Review This is to be completed by the relevant supervisor within the required timescales for a High risk victim - monthly by the Inspector, medium monthly by the Sergeant, Low monthly by the OIC. The review should record progress to date, key actions, outstanding actions and a revisit of the grading by reviewing the original risk assessment and the control measures put in place. If an individual is downgraded, or upgraded, the rationale is to be recorded. It is important to also update the initial remarks section to state that the grading has been changed and record the date of the change. Manager Comments This is to be completed monthly by Chief Inspector Operations for High Risk Cases and will involve an element of review and observation on the progress of the case and its management. Attachments It is important that all relevant documentation is attached to the occurrence and not kept elsewhere, what follows is guidance as to the type of documents that should be attached where appropriate. Stage 2 ASB Vulnerability Assessment Scanned in using the correct template Referrals to Local Authority ASBU

56 VPRF Form Caf referrals Witness Statements Photographic evidence Partnership communications such as letters, eviction notices, promise leaflets Bids for Target Hardening Initial Points The start of each OEL should contain sufficient information to enable a colleague to understand what has occurred, the level of risk involved and the proposed police actions. To this end a mnemonic has been developed as a guide to ensure that the OEL encapsulates all the relevant points : S T A R T Summary Provide a brief summary of the incident. Threat - What is the current threat and risk to the individual. Action Plan What is the proposed Action Plan. Refferals- What Partners will be involved. Tasking- What other Police Action will be taking place. Entries are to be concise and clearly distinguish between fact and opinion. Closure of an ASB Occurrence Prior to closing an ASB Risk Investigation it is vitally important that the case is subject to a full review by the Local Policing Inspector, or in their absence Sergeant High cases however must be reviewed by a Local Policing Inspector prior to closing. The following Mnemonic is useful when summarising a case ;

57 R E C A P Risk What was the risk and threat to the victim. Complete the RA/2. Evaluation- What is the new level of risk? Have the threats been negated or have they dissipated. Remember it is only in unusual cases that a case would go from a High to no vulnerability at all so ensure rationale is clearly recorded. Care Plan- What actions have been taken to protect this victim e.g Target hardening, regular visits, contacts by other agencies. Actions taken- What has been done to identify the offenders. Who are they? Have they been prosecuted or deterred? Partners What Partners have been involved. What actions have they taken and are there any out-standing or on-going actions by them e.g re-housing. Partner Agencies such as the ASB unit must be made aware of our decision to close a case as it is in cases where there is a breakdown in communication that people suffer. This communication must be recorded within the OEL write up. NICHE Closure Once the above actions have been completed the OIC muse ensure that the Niche Occurrence is closed as per a crime occurrence. All tasks must be closed. Change the status of the occurrence to filed. On the Finalisation / Misc tab tick the finalised button