Our investigation into Staffordshire Police’s response to incidents involving stalking victim Justene Reece has led to the force accepting training recommendations to improve the linking of incidents and crimes.
We looked at the effectiveness of the police response to 34 incidents either directly involving or connected to Ms Reece between September 2016 and when she died, in February 2017.
Ms Reece took her own life following a sustained campaign of harassment by her ex-partner, Nicholas Allen, who was jailed for ten years in June 2017 after admitting manslaughter, engaging in coercive or controlling behaviour, and stalking.
We began our investigation in March 2017 following complaints made about the actions taken by police after they were contacted by Ms Reece, her family and friends who were also targeted by Mr Allen, and other agencies.
Evidence gathered by our investigator indicated that, contrary to policy, Staffordshire Police had consistently failed to cross-reference incidents and crimes reported to them on force computer systems. Of the 34 incidents, 16 were not cross-referenced with any previous ones, and many of the remainder were only cross-referenced to one other incident rather than to a range. Seven of the 14 incidents reported by Ms Reece were not cross-referenced at all.
In six of 13 domestic incidents recorded, a mandatory domestic abuse risk assessment was not carried out, which was in breach of force policy. The assessments are a tool designed to indicate risk of harm and trigger safeguarding where necessary.
In nearly half (16) of the incidents no research or intelligence checks were made, as they should have been in a domestic abuse case.
IOPC Regional Director Derrick Campbell said: “Our sympathies are with the family of Justene Reece and all those affected by her tragic death.
“It is evident from our investigation that there were potential opportunities for the police to engage more robustly with Mr Allen.
“Officers were largely deployed to incidents appropriately, but a failure to cross-reference incidents led to them being treated in isolation, and a lost opportunity to recognise the scale of Mr Allen’s offending. The bigger picture of the level of harassment and stalking being perpetrated was not properly seen by police. We took the view that the prevalence of inconsistent practice among call handlers in cross-referencing indicated a training issue for the force, rather than a series of unrelated errors by individuals.
“I am pleased that Staffordshire Police has accepted our learning recommendations that all staff and officers who use the relevant systems should be further trained in the effective cross-referencing of incidents and crimes. This case has shown its importance, along with effective research checks, in helping police to join the dots and safeguard vulnerable people.”
The force agreed that, although it did not amount to misconduct, the performance of a now retired senior officer was unsatisfactory in relation to advice given not to arrest Mr Allen for a reported breach of a non-molestation order (NMO) in December 2016.
Guidance states that it is the responsibility of the offender and not the victim to ensure NMOs are complied with. Therefore, we did not accept the rationale given that Ms Reece had been complicit by going with Mr Allen to a pub after he turned up at the home where she was then staying.
It was one of seven NMO breaches by Mr Allen that Ms Reece reported to the force during the period under investigation.
It was also agreed with the force that seven officers and one member of police staff should receive management action in the form of advice as their performance had not met expected standards. This was in relation to issues such as the handling of calls and not completing risk assessments.
During our investigation, finalised in February this year, we reviewed relevant policies and guidance in relation to domestic abuse. We also studied police incident logs and crime records, and statements given by police witnesses, Ms Reece, and other people who knew her, including the complainants.
During National Stalking Awareness Week earlier this month we launched our ‘Make Yourself Heard’ campaign, to raise awareness of a system to help people alert police when in imminent danger but unable to speak.
You can read more about our campaign here
An act of parliament that provides the core framework of police powers to combat crime and provide codes of practice for the exercise of these powers.
Leads and manages the development of the police service in England, Wales and Northern Ireland.
The body that represents the interests of all police constables, sergeants, and inspectors.
Deals with someone’s inability or failure to perform to a satisfactory level, but without breaching the Standards of Professional Behaviour.
Focuses on putting an issue right and preventing it from happening again by encouraging those involved to reflect on their actions and learn. It is not a disciplinary process or a disciplinary outcome.
Department within a police force that deals with complaints and conduct matters.
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This means doing what is appropriate in the circumstances, taking into account the facts and the context in which the complaint has been raised, within the framework of legislation and guidance.
The average is calculated using the individual results of the forces in that most similar force group.
An investigation carried out by IOPC staff.
Carried out by the police under their own direction and control. The IOPC sets the terms of reference and receives the investigation report when it is complete. Complainants have a right of appeal following a supervised investigation (unless it is an investigation into a direction and control matter).
This act sets out how the police complaints system operates.
How a police force is run, for example policing standards or policing policy.
An investigation carried out by the police under the direction and control of the IOPC.
The organisation that is responsible for assessing how to deal with a complaint. For example – whether it can be handled locally or reaches the criteria for referral to the IOPC. The appropriate authority may be the chief officer of the police force or the PCC for the force. If a complaint investigation finds that someone has a case to answer for misconduct, the appropriate authority is responsible for arranging any misconduct proceedings. If you make a complaint, the appropriate authority for your case will contact you.
An intelligence-led agency with law enforcement powers, it is also responsible for reducing the harm that is caused to people and communities by serious organised crime.
Policing bodies include police and crime commissioners, the Common Council for the City of London, or the Mayor's Office for Policing and Crime.
Investigations carried out entirely by the police. Complainants have a right of appeal following a local investigation (unless it is an investigation into a direction and control matter).
IOPC guidance to the police service and police authorities on the handling of complaints.
A complaint or recordable conduct matter that doesn’t need to be referred to the IOPC, but where the seriousness or circumstances justifies referral.
Parameters within which an investigation is conducted.
A person is adversely affected if he or she suffers any form of loss or damage, distress or inconvenience, if he or she is put in danger or is otherwise unduly put at risk of being adversely affected.
This is where a manager deals with the way someone has behaved. It can include: showing the police officer or member of staff how their behaviour fell short of expectations set out in the Standards of Professional Behaviour; identifying expectations for future conduct; or addressing any underlying causes of misconduct.
This could be the Police and Crime Commissioner, the Common Council for the City of London, or the Mayor's Office for Policing and Crime.
A flexible process for dealing with complaints that can be adapted to the needs of the complainant. It may involve, for example, providing information and an explanation, an apology, or a meeting between the complainant and the officer involved.
A flexible process for dealing with complaints that can be adapted to the needs of the complainant. It may involve, for example, providing information and an explanation, an apology, or a meeting between the complainant and the officer involved.
A breach of standards of professional behaviour by police officers or staff so serious it could justify their dismissal.
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Disapplication means that a police force may handle a complaint in whatever way it thinks fit, including not dealing with it under complaints legislation. This may only happen in certain circumstances where the complaint fits one or more of the grounds for disapplication set out in law.
The ending of an ongoing investigation into a complaint, conduct matter or DSI matter. An investigation may only be discontinued if it meets one or more of the grounds for discontinuance set out in law.
Quarter 1 covers 1 April - 30 June
Quarter 2 covers 1 April - 30 September
Quarter 3 covers 1 April - 31 December
Quarter 4 covers the full financial year (1 April - 31 March).
You can request a review/appeal if you’re not satisfied with how your complaint has been handled.
Used to house anyone who has been detained.
Complainants have the right to appeal to the IOPC if a police force did not record their complaint or notify the correct police force if it was made originally to the wrong force.
The purpose of an investigation is to establish the facts behind a complaint, conduct matter, or DSI matter and reach conclusions. An investigator looks into matters and produces a report that sets out and analyses the evidence. There are three types of investigations: local, directed and independent.
The ending of an ongoing investigation into a complaint, conduct matter or DSI matter. An investigation may only be discontinued if it meets one or more of the grounds for discontinuance set out in law.
The type of behaviour being complained about. A single complaint case can have one or many allegations attached.
A person who makes a complaint about the conduct of someone serving with the police.
The ending of an ongoing investigation into a complaint, conduct matter or DSI matter. An investigation may only be discontinued if it meets one or more of the grounds for discontinuance set out in law.
List of officers and staff who have been dismissed from policing, or would have been if they had not retired or resigned.
The type of behaviour being complained about. A single complaint case can have one or many allegations attached.
Disapplication means that a police force may handle a complaint in whatever way it thinks fit, including not dealing with it under complaints legislation. This may only happen in certain circumstances where the complaint fits one or more of the grounds for disapplication set out in law.
An independent judicial officer, the coroner enquires into deaths reported to him/her.
A breach of the Standards of Professional Behaviour that would justify at least a written warning.
No further action may be taken with regard to a complaint if the complainant decides to retract their allegation(s).
A record is made of a complaint, giving it formal status as a complaint under the Police Reform Act 2002.
This is a format where information is written in plain English and short sentences.
The IOPC must be notified about specific types of complaint or incidents to be able to decide how they should be dealt with.
No further action may be taken with regard to a complaint if the complainant decides to retract their allegation(s).
Casework involves assessing appeals. Casework staff also have a role in overseeing the police complaints system to help ensure police forces handle complaints in the best possible way.
Disapplication means that a police force may handle a complaint in whatever way it thinks fit, including not dealing with it under complaints legislation. This may only happen in certain circumstances where the complaint fits one or more of the grounds for disapplication set out in law.
Conduct includes acts, omissions, statements and decisions (whether actual, alleged or inferred). For example: language used and the manner or tone of communications.
You can request a review/appeal if you’re not satisfied with how your complaint has been handled.
You can request a review/appeal if you’re not satisfied with how your complaint has been handled.
