A Councils Member briefing November 2014

Problem Oriented Partnerships

Problem Oriented Partnerships (POP) are an effective way of dealing with persistent crime and public protection issues. Councils can play a key role in taking this work forward, complementing the work of the . This briefing discusses the council role in Problem Oriented Partnerships and provides details of the winners of the 2014 POP Awards, announced this week, which offer useful models for this approach.

Overview Problem Oriented Partnership (POP) work emerged in policing in the late 1970s in the USA. The POP approach is based on the close working of a number of agencies, not just the police, with local communities. It involves focusing on the root causes of a problem and coming up with tailored solutions which greatly reduce the negative impact that it has on peoples’ lives. The POP approach has been successful in addressing a wide range of crime and anti-social behaviour problems that traditional enforcement policing methods alone have not been able to. These include abandoned vehicles, bullying in schools, child pornography on the internet, domestic violence, graffiti, street robbery, gang and serious youth violence and metal theft.

The London Problem Oriented Partnership Awards, now in its ninth year, is an annual award that celebrates innovative and effective partnership initiatives that address the causes of crime in a local area. The winners of the 2014 London POP Awards were announced on 24 November 2014.

This briefing provides an overview of the POP approach presents details of the winning entries to the 2014 POP Awards and discusses some of the issues and opportunities that Problem Oriented Partnerships present for London boroughs.

The winners in the Safer Communities category were: Gold Award: Havering - Violent crime in the night time economy in Romford Silver Award: Greenwich - Street prostitution and anti-social behaviour in Plumstead Bronze Award: Waltham Forest - Alcohol related anti-social behaviour in Walthamstow High Street

The winners in the Safer Travel category were: Joint Gold Award: and Roads and Transport Policing Command: Project Guardian - Sexual offences on the transport network; and Haringey Safer Transport Team: Drug-use and distribution around Turnpike Lane and Ducketts Common Silver Award: Hillingdon Safer Transport Team - Anti-social behaviour and drug-use along the Grand Union Canal cycle way Analysis Police agencies around the world have valued the POP approach which is built on the following principles:

• police deal with a range of community problems, many of which are not strictly criminal in nature • arrest and prosecution alone - the traditional functions of the criminal justice system - do not always effectively resolve problems • giving police officers, who have great insight into community problems, the discretion to design solutions is an extremely valuable aid to solving problems • police can use a variety of methods to redress recurrent problems • the community values police involvement in non-criminal problems and recognises the contribution the police can make to solving these problems.

There are a number of models for POP work, the most widely used by police organisations internationally, including the Metropolitan Police Service, is the SARA process:

Scan spotting problems using knowledge, data, maps etc Analyse using hunches, knowledge sources of information to dig deeper into a problem’s characteristics and underlying causes Report devising a solution which relates directly to the causes, working with partners (wherever possible) Assess looking back to see if the solution worked and what lessons can be learned

POP and local authorities Neighbourhood policing is delivered by Safer Neighbourhood Teams (SNT) in every local authority ward. Under the Local Policing Model each ward has a dedicated named PC and PCSO together with a sergeant, who would typically cover more than one ward. These teams are responsible for that ward and for responding to local priorities, reassuring and engaging with local people.

Safer Neighborhood Teams (SNT) will investigate low-risk, high volume crime that affects day- to-day quality of life of local people, including anti-social behavior, car and bike crime and local disorder. Officers of the SNT, and local councillors are often among the first people to become aware of a crime and disorder issue in a local area. The POP approach, which involves the systematic investigation, the drivers of a problem can greatly benefit from established borough community consultation and community engagement processes.

Problem Oriented Partnerships present local authorities with the opportunity to take a central role in tackling crime and disorder problems that are impacting on peoples’ lives. Councils are also ideally placed to work with the police, other agencies and the local community to develop solutions that address the root causes of a problem. The focus away from trying to find quick fixes or enforcement-only solutions that overly rely on the criminal justice system is an approach that is already familiar to boroughs. Early intervention programmes, employment training, housing advice and diversionary activities for young people are examples of the type of prevention activity that can form part of the solution for intractable crime and disorder problems.

Continued police and local authority enforcement actions, legal proceedings and criminal justice outcomes are expensive and may not be sustainable in the long term for a local problem such as persistent vandalism to a particular bus stop outside a pub usually on Friday and Saturday nights.

A POP approach however, might identify and work with the perpetrators with interventions by the transport company, the pub landlord and the local authority to develop a suite of solutions that stop the problem from happing in the first place. Such solutions are typically long term, sustainable and cost effective.

Joint Gold Award - Safer Travel: British Transport Police and Roads and Transport Policing Command: Project Guardian - Sexual offences on the transport network

The problem Project Guardian was launched on 1 April 2013 as a pan-London project involving the Metropolitan Police Service (MPS), British Transport Police (BTP) and (TfL) working in partnership to tackle sexual offences and unwanted sexual behaviour on the London’s public transport system.

Crime statistics show that on average (prior to the project), 1014 sexual offences are reported on London Transport each year, with 271 offences being detected, a detection rate of 27 per cent. However, a TfL study showed that reporting of sexual offences on the network was extremely low in relation to the number of offences actually committed - around 5 to 10% were only being reported.

The aim of Project Guardian was to tackle the problem of under reporting of sexual offences on the transport network and to create an environment which does not tolerate intimidation, assault or sexual harassment. The objectives included:

• increasing the confidence of reporting sexual offences which occur on London’s transport network • challenging unwelcome sexual behaviour • targeting offenders • reducing the risk of becoming a victim.

Measurements of success were set at: • an increase in reporting (as a measure of greater confidence) and a detection increase of 20 per cent.

The response A strategy was developed to:

• increase confidence and awareness through media and publicity • provide an outstanding victim experience for those who report • utilise the increased information to prevent and detect crime.

Significant local, national, and international reporting throughout the life of Project Guardian has enabled the excellent work of officers and staff to be rightly highlighted and has helped in encouraging witnesses and victims of sexual offences to be confident in reporting their experiences.

The project has also utilised social media as a key communication tool. A high profile hashtag campaign #projguardian has been a crucial method for engaging with the public and directing them to further information.

Targetted, specialist community engagement has taken place in order to create greater awareness and confidence amongst specific groups highlighted through the analysis phase. Engagement at a local level using local policing teams existing and developing community links has seen engagement at transport hubs, colleges, universities, faith groups, youth groups and wider community groups.

The MPS and BTP have specialist teams with responsibility for investigating sexual crime across the network. This means victims get a detective investigating their crime who has the skills and experience to provide an appropriate level of victim care and has the ability to idenitfy and prosecute perpetrators. BTP also utilise proactive teams of specialist officers who have been trained in idenitfying the behaviours displayed by sexual offenders. They will deploy to hot spot locations, idenitfy suspicious behaviour and follow potential suspects to the point of offence. This highly successful method has brought hundreds of suspects to justice.

Once a Project Guardian related arrest is affected, a series of processes to manage those offending on the network now come into play. Effective offender management implements preventive measures to prevent further offences.

Outcomes The performance data to date show a 46 per cent increase in reported sexual crime on transport and 33 per cent increase in detected sexual crime.

This comfortably surpasses the set targets and demonstrates the achievement of the project objectives - to increase public confidence, target offenders and reduce risk of becoming a victim. This increase in confidence is proven through the high number of sexual incidents reported.

The increase in information received from victims and witnesses has enabled the effective targeting of perpetrators - another of the project aims.

The immeasurable success is the anecdotal feedback from victims, witnesses, victim support groups, campaign groups and the wider general public. The project has been hailed as a success by all who have been impacted by it and it is undoubtedly making transport safer for all passengers within London.

Joint Gold Award - Safer Travel: Haringey Safer Transport Team: Operation Turpin, reducing drug use and dealing

The problem Local residents, businesses and transport users aound Turnpike Lane bus and underground stations had expressed concern about large groups of youths congregating and believed to be using or selling drugs at the above locations, as well as Ducketts Common and surrounding streets. The Safer Transport Team were receiving reports that the youths were using and selling drugs, leaving residents feeling isolated and intimidated. The problem was ocurring near bookmaking establishments, residential side streets and the park area which afforded concealment from the public and the police.

Factors contributing to the problem were the flow of pedestrians around the area, natural cover and poor lighting in the park. Fast food and betting shops were a further attraction to youths being in the area. In addition, youths were taking refuge in a nearby residential block where litter and evidence of cannabis smoking was found. Due to complaints from residents and businesses to the police and the London Borough of Haringey, it was necessary to take action to tackle the problem, particularly as the area was gaining a reputation further afield of being a “no go” area. A Dispersal Order had previously been set up but was discovered to be in the wrong location to achieve results and it was felt that a multi-agency partnership approach was needed to resolve the problems.

The response The team set up a partnership group consisting of Haringey Anti Social Behaviour Team (ASBAT), Haringey Legal Services, Haringey Street Enforcement Team, Friends of Ducketts Common, Haringey Parks and Recreation, Sydney Road Mosque, St Ann’s Mosque, Noel Park SNT & Haringey SNT Housing Association, Highbury Magistrates Court, Haringey Gangs Unit, and Andy Butters (STC ASBO Coordinator), with the objective of significantly reducing drug related anti-social behaviour around Ducketts Common and Turnpike Lane. Having ascertained the hotspot areas and main culprits, the partnership implemented a variety of tactics aimed at curtailing offenders’ activities. Activity was coordinated by the ASBAT and monitored at monthly meetings. Initially, letters to parents and home visits were made to the most persistent offenders. Parents were made aware of their child’s ASB and offenders were issued with Acceptable Behaviour Contracts. As residents in social housing, it was also pointed out that they risked eviction if their child’s offending breached their tenancy agreement. Many ABCs were not complied with and this and further evidence led to 10 post-conviction ASBOs being issued in 2013. As part of this intelligence gathering exercise, officers were able to identify other offenders and associates and use this information to gain a further 10 ASBOs.

A new dispersal zone was obtained, based on revised information, and this was widely publicized to the local community. Haringey council also installed CCTV around the transport hub and park. In addition, foliage was cut back and improved lighting installed, reducing available cover. The police have also been holding basketball matches with local young people to promote positive use of the recreational facilities there.

The outcome The CCTV and dispersal zone have proved very useful, as they have facilitated policing of the area, with arrests being made for breaches of ASBOs. Feedback from Ward Panels and police surgeries have shown an improvement in satisfaction and feelings of safety from both residents and local businesses, plus an increase in confidence to report incidents. Reductions in crime, drug use and anti-social behaviour have all been achieved since the project started. Communication and partnership work have been instrumental in achieving these positive results, allowing accurate information to be shared promptly, and enabling partners to deliver an improved response.

Gold Award – Safer Communities: Havering: Violent crime in the night time economy in Romford

The problem In response to urban decline in the 1990s Romford Urban Strategy led to an increase in restaurants, bars and late night venues. Whilst this was of economic benefit to the area, an unforeseen effect was an increase in violent incidents in the Town Centre. By 2010, Romford was considerably above the MPS average and the local press had started to highlight this issue, which in turn led to residents feeling unsafe in the area after dark.

Analysis of police and ambulance service data showed that there was a clear link between alcohol and offences. Key issues identified included inadequate safeguards for intoxicated people, irresponsible drink pricing and pre-loading. Previous responses focused on detecting offences rather than removing potential offenders, meaning that there was little fear of consequences. Due to intoxication of victims, identification of offenders was often difficult. Crowding occurred in certain areas forcing victims and offenders together, which was made worse by many premises closing at the same time, resulting in a large volume of people on the street. The most serious injuries were sustained where glass bottles had been used in assaults, causing a higher burden on the emergency services.

The response The Safe & Sound partnership group was set up comprising stakeholders from the police, licensed venues, street pastors and the local authority. Safeguards for victims/ potential victims were introduced through an effective radio link, between premises, CCTV, police and street pastors; a Safe Haven and Street Triage. Licensing conditions were used address the use of bottles as weapons, for example an agreement that bottled drinks were to be served in glasses so that bottles were not removed. Bans on irresponsible drinks promotions and restriction on adverts for cheap drinks were also used as conditions of licences. A “banned from one, banned from all” scheme meant that venues could refuse entry to those who had or appeared likely to be violent. Information and photos were shared between venues and local CCTV operators to reduce anonymity. A Safe Haven (The Deeper Lounge) was created to provide a safe space, refreshments and help from 10pm to 3am, run by volunteers working with Street Pastors and St Johns Ambulance.

To address the problems with the location, some of the street furniture was cleared and the closing times of venues were staggered. This reduced the congestion in the street and burden on local transport. A marshalled taxi-rank was also set up to improve the availability of legal taxis.

The outcome This project has resulted in a 22 per cent reduction in ambulance call-outs for injuries/ illness which can now be treated at triage and there have been just two assaults involving glass/bottles since January 2013. More than 215 people have been banned from entering the town for periods of three weeks to five years. There have been increases in the proportion of offenders identified, increased detections, increasing confidence and more victims willing to support prosecutions. Overall there has been a 71 per cent reduction in Night Time Economy violence since 2009/10 and 72 per cent reduction in London Ambulance assault victims during same period. As an added benefit, there has been an overall reduction in Night Time Economy crime in Romford and residents’ perceptions of safety have considerably improved. Safe & Sound continues to be monitored regularly and demonstrates the long-term commitment from all stakeholders and strong partnership which has been pivotal to the successes in Romford. Commentary Problem Oriented Partnerships draw on much of what London boroughs are doing already through the early intervention, prevention, community engagement and localism agendas. There is however, a significant opportunity for boroughs to further develop or lead on this multi-agency approach to tackling crime and community safety problems. Local councillors in particular are well placed to make a valuable contribution to these partnerships. Indeed, reduced resources across the board and fewer PCSOs in Safer Neighbourhood Teams mean local partners will need to maximise the effectiveness of existing resources, and the POP approach may provide important opportunities to do this.

Given the value of the partnership problem solving approach to policing and tackling crime, local partners would be encouraged to see POP promoted as a Metropolitan Police priority and valued alongside the more responsive elements of Total Policing. Given the current direction in the MPS for emphasising enforcement, it may well fall to councils to promote and use POP more than the Police.

Author: Rangan Momen, Principal Project and Policy Officer (Tel: 020 7934 9816) Click here to send a comment or query to the author

Links: Read case studies of other local crime solutions in London

Watch the 2014 POP Awards on the MPS YouTube channel This member briefing has been circulated to: Portfolio holders and those members who requested policy briefings in the following categories: Crime and Public Protection

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