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Despite this progress and investment, not all police leaders are ensuring thatdomestic abuse is a priority in practice. HMIC found that many forces do not assignto officers work to prevent, reduce and tackle domestic abuse effectively. Soopportunities to target perpetrators are missed and forces’ performancemanagement systems seldom promote and assess the effectiveness of the policeresponse to victims of domestic abuse.Leadership has a profound effect on the culture of the force and the attitudes ofpolice officers who are dealing with domestic abuse. It is vital that police leadersreinforce the right attitudes and behaviours. Victims told HMIC that they did notalways feel believed or that they were being taken seriously by the police.Sometimes they felt judged.Many frontline officers, and in some cases specialist police officers, lack the skillsthey need to tackle domestic abuse effectively. Officers are often ill-equipped toidentify dangerous patterns of behaviour in domestic abuse perpetrators accurately,in particular where there is no overt physical violence but instead there ispsychological intimidation and control, which can also have fatal consequences.Officers often have little or no information about the victim or the perpetrator whenthey arrive at the scene. Outdated information technology and poor force informationsystems are preventing vital information from being placed in the hands of frontlineofficers quickly.HMIC is concerned about the poor attitudes that some police officers display towardsvictims of domestic abuse. This may stem from a lack of understanding. The currentapproach to training, which is largely reliant on e-learning, 9 is failing to address thisissue. While recognising the financial constraints that forces are under, there is anurgent need to overhaul domestic abuse training. HMIC sees little, if any, value in elearning as an effective training method as it limits the opportunity for discussion,reflection and checking understanding. Some forces have built short face-to-facetraining sessions for response officers into their daily briefing meetings at little cost.9Typical e-learning is where an individual reads information on a computer and then answers a shortmultiple-choice test.9

There is evidence of ineffective supervision of all ranks, often with a failure tochallenge poor attitudes. We found limited examples of forces thinking creativelyabout how to improve officers’ knowledge, understanding, and, consequently, theirability to deal with domestic abuse victims with confidence.The voices of victims need to be heard to make sure the police response is focusedon them. Feedback from victims helps forces to plan appropriate services. It alsoprovides a means of assessing how well the force is performing. We found very fewexamples of forces routinely seeking the views of victims of domestic abuse. HMICunderstands that this needs to be done sensitively and safely, but it is important thatit happens.First contactThe first time a victim of domestic abuse contacts the police is, in most cases, notthe first time they have experienced it. Sometimes their life and the lives of theirchildren may be in immediate danger. Those answering that telephone call for helpneed to be able to recognise domestic abuse; to reassure the victim; and to advisethem on how to keep safe. They need to judge how quickly a police officer should besent. That officer needs to have a full picture of what has happened to the victim inthe past. It is vital they have the right information so they can take the most effectiveaction to support the victim when they get there.HMIC found that staff answering 999 calls usually understand the definition ofdomestic abuse and mark cases accordingly on their information systems. Theymake sure that in the vast majority of cases an officer responds either immediately orwithin the hour. We saw many good examples of call handlers getting the rightinformation from victims and providing them with sound advice on how to keep safeuntil the responding officer arrived.There are aspects of this first contact that could be improved. Some forces eitherhave no definitions of what constitutes a repeat (in terms of previous police contact)or vulnerable victim, and in some forces the definitions are not well understood bystaff. Where a definition of a repeat victim is in place, it varies from force to force. Ifforces are unable to identify repeat victims, and convey the history of the abuse they10

have suffered to the responding officer, then valuable opportunities to identify andsafeguard the victim on arrival are likely to be missed.Initial responseThe quality of the response of an officer attending a domestic abuse incident is justas important as the speed with which they turn up. A responding officer is expectedto keep the victim and their children safe; give them confidence in the policingresponse; assess future risk so that the force can keep them safe in the longer term;investigate the incident; and gather evidence to support a prosecution. It can becomplex and sensitive work. In some cases, victims can appear to be uncooperativewhen in reality they may be terrified, being controlled by the perpetrator and indesperate need of support. Officers too can be under pressure due to the busy andvaried nature of a response shift.Victims’ experiences of the initial response are very mixed. All too often, the qualityof the service that a victim receives is entirely dependent on the empathy,understanding and commitment of the individual attending. Without effectivesupervision and training in place forces are leaving the matter of the competenceand capability of the responding officer almost entirely to chance. The service thatsome of the most vulnerable victims in our communities receive from the policeshould not be a lottery.We conducted an on-line survey of over 500 victims of domestic abuse. Seventynine percent of the victims who had reported the incident to the police were satisfiedwith the initial police response, which is positive. When asked the main reasons fortheir satisfaction, one of the most common reasons was the speed of the policingresponse (14 percent). Another common reason (14 percent) said it was becauseofficers were helpful. Although a high number of victims felt satisfied, a third felt nosafer or less safe after the initial response.HMIC discussed the issue of the initial response in nine focus groups with 70 victims,allowing for deeper exploration of the behaviours of officers and the impact this canhave. Many of the victims we spoke to were higher risk and had multiple contactswith the police. The majority had experienced very poor attitudes at some point from11

responding officers. Victims told us that they were frequently not taken seriously, thatthey felt judged and that some officers demonstrated a considerable lack of empathyand understanding. Some of these behaviours were also observed during ourinspections of forces. A swift policing response is necessary but it is not sufficient.The poor attitudes of some officers can have a very serious adverse effect on theconfidence of victims.In many forces, HMIC found alarming and unacceptable weaknesses in thecollection of evidence by officers after arrival at a domestic abuse scene. We havevery serious concerns about the quality of the initial investigation. In a file review of600 domestic abuse cases of actual bodily harm (where the victim will have a visibleinjury), HMIC found that photographs of the injury were taken in only half of thecases, and in three cases out of ten the officer’s statement lacked important detailssuch as a description of the scene or the injuries of the victims. There is extensivenational police policy and practice on how police officers should carry out corepolicing tasks including crime investigation. It is simply not good enough that officersare not carrying out the tasks of evidence-gathering in cases of domestic violence ina professional and consistent way. It is a core part of officer competence.Almost all forces told us that they expect responding officers to take ‘positive action’at a domestic abuse incident. This term is confusing; it means different things todifferent officers and is open to wide and unhelpful individual interpretation. Oftenfrontline officers do not understand what is meant in practice by ‘positive action’. Onoccasions, victims might ask officers not to arrest the perpetrator. Officers need tounderstand that there may be complex reasons behind this request. HMIC isconcerned that the lack of clarity as to what ‘positive action’ actually means canresult in perpetrators of domestic abuse not being arrested when the officer hasgrounds to do so. This view is supported by the evidence, which showsunacceptable variation in the extent to which police officers arrest those suspected ofa domestic abuse crime. In most forces, the number of arrests as a proportion ofcrime identified as domestic abuse is between 45 percent and 90 percent.Responding officers should be reminded that it is their job to attend the incidentswiftly, identify the victim and the perpetrator, gather evidence that will support a12

criminal justice sanction if a crime has been committed, keep the victim safe andtake the proper action. This means where the officer can justify the arrest – theofficer should normally make an arrest. On the rare occasions where an arrest is notmade, the officer must provide a recorded rationale to justify this.Finally, the issue of risk identification requires urgent attention. The initial riskassessment process is important in making sure that the victim is both kept safe atthe scene and can be protected properly from future harm. While the police servicehas an agreed risk assessment form, DASH (which stands for domestic abuse,stalking and harassment), the extent to which it is used by responding officers andthe way in which it is used, vary significantly from force to force. There is often apoor understanding on the part of officers of the factors for risk assessment. Toooften the completion of the DASH form is seen as a compliance exercise rather thanone that is necessary to protect the victim. The measure of a successful policeresponse to a domestic abuse incident should not be whether a form has been filledin. It should be whether the officer has correctly identified the level of risk, has takenappropriate action to keep the victim safe as a result and has obtained or protectedevidence necessary for an appropriate prosecution.Action takenHMIC found a large number of committed officers working in domestic abusespecialist units, but in many forces there are significant weaknesses in how forceskeep victims safe and support them through the criminal justice process. Theseinclude: unnecessary duplication of risk assessments, delays in allocating cases andconfusion across the police force about who is responsible for supporting thevictims; uncertainty amongst officers and staff within forces about who is responsiblefor what element of victim care and the investigation; assessment of risk based solely on an unverified rigid tick-box approachrather than professional judgment and the weighing of different factors byexperts and specialists;13

limited systematic approaches to re-assessing risk at known trigger points, forexample when the perpetrator is released from police custody; reviewing standard and medium risk cases following a pattern of repeatincidents, but where the number of incidents that have to occur before areview is triggered is unacceptably high. Even more concerning is whereforces have no policy of review after repeat incidents; and risky gaps in the capability and capacity of specialist domestic abuse unitswhich may be under-resourced and overwhelmed. This is often due to highlevels of vacancies (in some cases due to stress), unsustainable workloads,limited or no additional training, and lack of effective support and supervision.As a result of these weaknesses, victims who have not been correctly identified ashigh risk are in danger of not being offered the appropriate safeguarding services.High risk cases are usually dealt with by specialist police officers who tend to havebetter knowledge and understanding of domestic abuse, and referrals are made to arange of other agencies that can help to support these victims. Some forces havethought creatively about tackling the problems highlighted. HMIC saw some goodexamples such as: secondments and attachments to work in the specialist areas, in some caseslinked to career progression as a detective; giving clear instructions to, and integrating well with, neighbourhood teams, sodomestic abuse is everyone’s business and a wider resource is devoted tosupporting victims; additional training for some PCSOs to provide support to victims in thecommunity; and use of independent domestic violence advisers in police stations to help buildthe capability and expertise of officers.Crimes associated with

In September 2013, the Home Secretary commissioned HMIC to conduct an inspection. 4. on the police response. We were asked to: report on the effectiveness of the police approach to domestic violence and abuse, focusing on the outcomes for victims and whether risks to victims of domestic violence and abuse are adequately managed;