There are ‘systemic deficiencies’ in the way some police forces in England and Wales deal with allegations of domestic abuse against their own officers and staff, an investigation has found.
The College of Policing, Her Majesty’s Inspectorate of Constabulary and Fire & Rescue Service (HMICFRS) and the Independent Office for Police Conduct (IOPC) investigated a super-complaint submitted by the Centre for Women’s Justice (CWJ).
The investigation found some forces are not doing enough to take account of the specific needs of domestic abuse victims when the suspect works for the police nor are they consistently going the extra mile to show that they understand the importance of protecting and demonstrating the integrity of the police response. Some did not recognise the unique barriers to reporting if the victim also works for the police.
Misconduct investigations are not always being carried out when they should be or conducted appropriately. Allegations of domestic abuse offences against police officers and staff should be reviewed and usually investigated by force professional standards departments. We have recommended chief constables address this immediately.
We did not find evidence that these investigations were conducted less well than other domestic abuse investigations with the charge rate found to be similar, although this is in the context of a police response to domestic abuse which still needs to improve across the board.
The investigation examined case studies submitted by the CWJ, as well as 56 domestic abuse cases where police officers and staff were suspects. The outcome data for 149 domestic abuse allegations from 2018, involving suspects from 15 police forces, was also investigated. Fourteen of these allegations, 9%, resulted in a criminal charge.
But, it was found that safeguards to ensure and demonstrate the impartiality of investigations and decisions when the suspect worked for the police were not consistently applied.
The investigation identified several recommendations and actions to better protect and support victims and to improve the quality of investigations, including:
- Chief constables should audit all live allegations of domestic abuse against officers and staff and investigations closed within the last year.
- Police forces should have plans in place to ensure cases of police perpetrated domestic abuse are investigated by someone with no prior connection to any of those involved in the allegations, including consideration of transferring cases to another force where necessary
- Police and Crime Commissioners, the Ministry of Justice and chief constables should ensure that their provision of domestic abuse support services and guidance can meet the specific needs of victims of police perpetrated domestic abuse
- National guidance to be clearer on the unique risks and challenges of domestic abuse allegations against staff.
The IOPC will now carry out a targeted programme of oversight work into the force handling of these cases. It will make this a main focus of its wider work on violence against women and girls.
Dave Tucker, Head of Crime and Criminal Justice at the College of Policing, said:
“This is the most thorough review ever undertaken of how police respond to domestic abuse cases involving their own staff and during our investigation we heard harrowing stories from victims about the abuse they had experienced, and the further harm caused to them by a poor response from policing.
“Our recommendations will significantly improve the police response to these allegations, so that victims of domestic abuse know they will be properly protected, receive a high standard of care and a good investigation – regardless of who the suspect is. I am encouraged to see many forces already taking steps to address the issues we found.
“During the investigation we also found examples of dedicated and committed police officers working incredibly hard to get victims justice. To support them as best as possible the College of Policing will review and improve our guidance and training, so it considers the additional risks when a suspect is part of the police workforce.”
Kathie Cashell, IOPC Director for Strategy and Impact, said:
“We hope that victims of domestic abuse will feel reassured that, as a result of this super-complaint investigation, a spotlight has been shone on the police response to police perpetrated domestic abuse, which will now be subject to greater scrutiny.
“The IOPC will be carrying out a programme of work to ensure police forces understand their obligations to handle these matters in line with police complaints legislation, and that, when appropriate, police officers and staff are held to account through the disciplinary system.
“We are clear in our report that we found examples of good practice, and our findings will not necessarily be reflective of police forces’ handling of every allegation. However, we urge all forces to use the findings and recommendations in this report to do more to ensure they can demonstrate these serious allegations are being handled robustly, and without fear or favour.”
Her Majesty’s Inspector of Constabulary Roy Wilsher said:
“Domestic abuse is a terrible crime and it's natural that when such abuse is perpetrated by police officers and staff, the public want to know that cases are being investigated thoroughly. While many forces are already taking steps to do this and most police officers act with the utmost integrity, we found that not all forces are treating these cases with the gravity they deserve, and that is not good enough.
“This is an issue that has been overlooked nationally in the past. I hope our recommendations today will encourage forces to recognise the risk to integrity and public trust that these cases can cause, and act now to ensure they are providing the right support to victims.“
The recommendations and actions will build on changes already being made by police forces, support a more effective system that protects victims of domestic abuse perpetrated by police officers and helps to ensure that allegations are dealt with appropriately as criminal and disciplinary matters.
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.
Refers to lower-level misconduct or performance-related issues, which are dealt with in a proportionate and constructive manner.
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.
A matter where no complaint has been received, but where there is an indication that a person serving with the police may have committed a criminal offence or behaved in a manner that would justify disciplinary proceedings.
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.
