Suzy Lamplugh Trust stalking super complaint

By 27 March 2025, where required, seek changes to their crime recording systems to enable staff and officers to document and search for crimes not recorded as the principal crime, as included classifications on crime records.

Processes should be put in place to make sure this system capability is effectively used by officers and staff.

While any necessary system changes are pending, Chief Constables should put alternative measures in place to make sure stalking and related offences are fully searchable. This could, for example, be the submission of intelligence reports.

Response

• At present, the crime recording system used by Merseyside Police only allows the recording of principal crimes within the stats class - secondary crimes are recorded within the occurrence enquiry log.
• Discussions are ongoing with the software company who own the crime recording system to determine whether system changes can be implemented so secondary crimes can be recorded.
• Should the software company be unable to instruct such changes, several options have been collated to support the force in achieving this recommendation.

By 27 March 2025, review and update their learning and training provision relating to stalking so it:

• Meets the learning outcomes on stalking within the public protection national policing    curriculum.
• Makes appropriate use of the stalking or harassment E-Learning product developed by the CoP.
• Uses the skills and knowledge of local victim advocates or others from outside policing with relevant expertise.
• Includes information on relevant local policies and practice where necessary.
• Is provided to the officers and staff who will most benefit from the learning.

Chief Constables should also make sure that their policies and practice are reviewed and updated in accordance with the findings in the super-complaint investigation report.

Response

• Merseyside Police’s Training Academy are in the process of reviewing the Stalking training offer against the Public Protection National Policing Curriculum. This exercise will ensure the training provided meets the learning outcomes.  Post this review, a training needs analysis will be completed to ensure those who would benefit from the learning are able to access the training.
• The Stalking or Harassment e-learning product is available to the workforce and completion rates are being monitored.
• Merseyside Police work closely with regional and national forces to identify best practice and where areas for improvement are identified have a plan in place to make such improvements. Further, personnel attend national conferences to ensure knowledge and learning are kept up to date.
• Merseyside Police’s Stalking and Harassment policy has been subject of a recent review and will be reviewed again following the release of any updated APP from the College of Policing.

By 27 March 2025, make sure that appropriate mechanisms are in place to fully understand the scale and types of stalking behaviour within their force and the effectiveness of their response. This should align with the VAWG national delivery framework. Mechanisms should include:

• Problem profiles using police data and intelligence and other sources of information to ensure that the full extent of stalking is well understood. This could include information sharing with local victims’ services and other public services and national and local statistics.
• Regular assurance work such as audits to better understand the force response and make improvements where appropriate, including monitoring the use of SPOs, investigation outcomes and the quality of investigations.
• Ways to regularly receive feedback from victims, such as victim surveys.
• Force management statements which reflect current and future demand from stalking.

Response

• A problem profile has been commissioned and will be delivered during June 2025.
• In terms of routine audit, Merseyside Police complete a monthly audit of behavioural crime to ensure compliance with the Home Office Counting Rules. There is a process in place for relaying learning back to reporting officers.  The Force Crime Registrar also undertakes regular audits to govern compliance with the National Incident Recording Standards and Home Office Counting Rules.
• All stalking investigations have supervisory oversight through which direction is provided to the officer in charge and there are built in routine reviews to ensure the timely progression investigations. Merseyside Police also partake in a variety of independent scrutiny processes including reviews by third sector partners and peer reviews. 
• Stalking and Harassment features in several force governance structures including the force Strategic Performance Meeting, the force Vulnerability meeting and the Stalking and Harassment improvement plan.
• Stalking and Harassment victim feedback surveys are sent out regularly and an electronic dashboard is under development which will enable analysis and learning.
• The force facilitates lived experience workshops involving victim-survivors and support advocates. These are invaluable in educating the workforce.
• As part of the development of the Force Management Statement, the Force considers its ability to meet both current and future demand across all crime types, including stalking.  The force continues to review the way in which it aligns its resources to priorities and at the same time, release efficiencies. 

By 27 March 2025, take steps to make sure that risk identification, assessment and management is effective in all stalking and breaches of orders cases, including by:

• Considering implementing the stalking screening tool to support the identification of stalking and the risks associated with stalking.
• Having clear policies and procedures in place for assessing and managing risk in all cases. And where appropriate, embedding recognised risk assessment tools in force systems so that it is easy for officers to access, use and document their consideration of risk and safeguarding.
• Recognising (in policies, guidance, and training) the heightened risk associated with breaches of protective orders and measures.
• Implementing screening and checking processes to support the early identification, assessment, and management of high-risk cases. This may require stalking and breach of order cases to be considered at daily management meetings.

Response

• Merseyside Police already use a Stalking Screening Tool which is available for discretionary use by officers and staff. This tool has been compared to the NPCC Stalking Screening Tool and with there being only minimal differences, the force has elected to remain with the tool currently used for now.  That said, Merseyside Police is looking at ways to embed the NPCC Stalking Screening Tools into force systems.
• Further, the force uses the Merseyside Risk Indication Tool (MeRIT) to identify risk in Domestic Abuse incidents - this incorporates stalking risk factors. All Domestic Abuse cases are risk assessed and are assigned a level of risk which dictates next steps.  Merseyside Police is currently reviewing Stalking Risk Assessment tools that are recommended by the College of Policing e.g. risk assessment tools for Non-domestic related Stalking incidents.
• Merseyside Police use the nationally recognised THRIVE mnemonic as an aide memoire to assess risk and provide a platform on how best to make decisions.
  • T: Threat
  • H: Harm
  • R: Risk
  • I: Investigation
  • V: Vulnerability
  • E: Engagement
• THRIVE is a working practice designed to assess risk in a consistent way and is aligned to the Code of Ethics and the National Decision-Making Model.
• Merseyside Police’s Stalking and Harassment policy, training and guidance include risk assessments and factors that are believed to heighten risk.
• There is an ongoing rollout of training and awareness raising in relation to Stalking Protection Orders. This includes breaches and how to robustly deal with them.

By 27 March 2025, take steps to make sure that force strategies, structures and processes are in place so that police consider an SPO in every stalking case, and apply for an SPO where relevant and appropriate to prevent harm and further offending.

To achieve this, Chief Constables should review, and revise where necessary:

• Local training and guidance on SPOs, including training and guidance for supervisors.
• Mechanisms for supporting investigating officers to identify cases where SPOs would be appropriate and assisting them with SPO applications. This could be through dedicated teams or roles and/or through daily management meetings considering risk and safeguarding.

Response

• During 2023, Merseyside Police delivered a series of CPD workshops to raise awareness of Stalking Protection Orders (SPOs). Guidance documents have been developed and are readily available on the force intranet.  There are also identified points of contact should further support be required.
• Force systems are checked twice weekly for Stalking crimes, OICs are contacted via email for support and advice along with an occurrence enquiry log entry. This contact includes ensuring the officer in charge considers an SPO and provides advice on this process.
• The force has implemented a process whereby all officers in charge of a Stalking Investigation receive a bespoke and timely email prompt to consider SPOs and are signposted to guidance materials. The force is seeking to embed a strategic governance mechanism to identify, track and monitor cases and/or individuals who it is believed an SPO would be appropriate for to prevent harm and further offending.
• Training is currently being rolled out specifically in relation to SPOs in terms of the process, importantly highlighting the requirement to look at the offender’s history in detail. Bespoke training will be provided to Supervisors prior to SPO applications being submitted for review.
• Screening for in Custody Stalking cases is completed daily and support and advice is offered where appropriate.

By 27 March 2025, take steps to make sure stalking victims receive the rights they are entitled to under the Victims’ Code and have access to support services. Chief Constables should make sure:

• Victim needs assessments are always completed.
• Their force has appropriate processes to make sure all stalking victims are told about their rights under the Victims’ Code.
• Information about the national and specialist stalking support services available in their force area is easily available to police officers and staff, victims, and the general public.
• Victims who would like to receive support are referred to an appropriate service in a timely manner.
• They monitor the number of stalking victims who are referred to specialist support services and take action when referral numbers are low.

Response

• There is an existing automated offer of support containing a link to the Victim Code of Practice (VCOP). Non-Domestic Abuse stalking victims are offered victim care Merseyside support 24-hours after a reported crime and the Victims Hub respond to self-referrals within 2 working days. A two-way messaging portal to share support service information is also under development.
• Data around the number of stalking victims who are referred to specialist support has been recently developed to capture onward referrals. Victim Needs Assessments are also currently being developed for incorporation into the force crime recording system, which will allow easy access for officers and staff. Both these solutions will enhance monitoring of compliance including low-referral rates.
• VCOP training has been provided force-wide and E-Learning packages made available. The Victim Care Hub also sign-posts or onward refers victims who have agreed to contact with national support helplines.

By 27 March 2025, CC work with PCC to review commissioning arrangements and make changes as soon as possible to ensure they embed collaborative working and information sharing between policing and services providing victim support to stalking victims.

Response

• The force promotes self-referral to the Paladin support service. The force also refers victim-survivors of Stalking by intimate partners with a high-risk level to localised Independent Domestic Violence Advocates (IDVAs). The force is working with a number of support services to develop referral pathways for victim-survivors of Stalking – including Tomorrows Women, Merseyside Domestic Violence Service and Phoenix Healing.
• The OPCC receives two victim service grants:
  • £1.6m Victim Services Core Grant, which funds the Victim Care Merseyside hub, and the specialist victim services contracts.
  • £1.7m Uplift Grant for Domestic Abuse and Sexual Violence, which goes out to about 25 organisations across Merseyside.

By 27 March 2025, make sure the new CoP investigations APP content on case allocation is reflected in the relevant policies relating to the allocation of stalking and breach of order cases for investigation. Force policies should support the allocation of stalking cases to officers with the right skills and experience, taking into account the potential risk and complexity involved in stalking and breach of order cases.

Response

• Merseyside Police currently allocate all Stalking cases to Investigators within the Protecting Vulnerable Persons teams and Area Investigation teams, who have expertise in relation to safeguarding and risk management.
• The force uses an Investigation Allocation Model (IAM), which determines the level of investigator required depending on complexity of the investigation. Once allocated, investigative officers are directed to complete a review of risk, complete a timeline of harassment or stalking behaviours and research all suspects using local and national systems. 

By 27 March 2025, take steps to improve the quality of stalking investigations by taking a victim centred, suspect focussed, and context led approach. Chief Constables should make sure:

• Their workforce has the capacity and capability to undertake effective stalking investigations and can apply new and innovative investigation techniques to pursue digital lines of enquiry.
• All reasonable lines of enquiry are pursued, supported by good supervision.
• Arrest and search powers are used to gather evidence from and about suspects.
• The impact on victims is evidenced in witness statements, so it can be used to inform charging decisions and improve the likelihood of successful investigation outcomes.

Response

• Stalking cases are investigated within specialist Protecting Vulnerable Persons teams and Area Investigation teams – these personnel are regularly provided with training and development inputs around public protection themes. The teams are made up of PIP1 and PIP2 investigators supported by a team of PIP2 Supervisors and Managers. 
• The force also has ‘Digital Kick Start’, a team of qualified Cyber investigators who provide tactical advice to investigators where cases have a digital footprint. When dealing with a suspect for Stalking or Harassment, investigating officers are directed to gather all evidence, including previous incidents, to establish a course of conduct.  Supervisors provide an investigation allocation plan having identified all reasonable lines of enquiry.  The officer in charge is required to keep reasonable lines of enquiry under review throughout the life of the investigation. 
• Each investigation with a suspect is subject to a 35-day supervisor, a 10-week Inspector, 32-week Chief Inspector and 48-week Superintendent review. Cases where a suspect is identified and processed, a Police Decision Maker (PDM) who is independent to the investigation also reviews all the evidence collated, and, where necessary, identifies new lines of enquiry.   This PDM review also stipulates that the OIC has completed the Joint NPCC and CPS Evidence Checklist.
• Merseyside Police advocate for positive action to be taken in response to public protection incidents, this includes officers/staff considering arrest and use of appropriate search powers.
• Merseyside Police encourage officers and staff to include the impact upon victims within all behavioural crime victim statements. The force has invested in the roll out of Domestic Abuse Matters training which is a culture change programme to improve the forces response to behavioural crimes including Stalking.  Whilst the programme is focused upon Domestic Abuse, there is clear interconnection with non-Domestic Abuse related cases.  

Merseyside Police encourages OICs to obtain Victim Personal Statements throughout the lifespan on an investigation. 

By, 27 March 2025, take steps to improve how their force effectively recognises and responds to online elements of stalking. This should include making sure:

• The scale and nature of online stalking behaviours informs their strategic understanding of, and the response to, stalking.
• Examples of online stalking are included in locally produced training and guidance material about stalking.
• Clear online safety advice is available to officers and staff, drawing on the CoP APP on stalking or harassment when it is developed.
• Appropriate tools, technologies, and support services to digitally safeguard victims are procured and officers and staff use these resources when appropriate.

Response

• The Cyber Dependent Crime Unit (CDCU) Digital Kick Start Team are responsible for hosting training for all new PIP2 staff. The course covers a variety of themes including digital, inclusive of Cyber Crime, Digital Forensics, Visual Evidence and telecommunications. Within this training there are sections on Coercive and Controlling behaviours and Stalking and Harassment.
• Several courses are also delivered to new officers, PCSOs and call handlers.

The Digital Kick Start team support investigations with Stalking and Harassment, alongside Coercive and Controlling Behaviours and other Domestic Abuse Crime types. Kickstart officers are deployed into investigative hubs to work alongside staff 1 day per week, supporting them with tactical digital advice, guidance, and support.  With this offer is Protect advice and how victims can keep themselves safe online. 

By 27 September 2025, using the information collated by the NPCC lead under recommendation 21, to consider whether and how dedicated stalking officers and staff, or other subject matter experts, can be used to add value and support the force response to stalking.

Response

• Stalking cases are investigated by officers/staff within Protecting Vulnerable Persons investigation teams – these are specialists in dealing with vulnerability related crime and the safeguarding of victim-survivors.
• The force has a Stalking Subject Matter Expert, who provides tactical advice to investigators. The force also has two protective orders officers, who work closely with the force legal team to govern the SPO process and breaches of orders.

By 27 March 2025, implement a mechanism for early screening of crimes to improve the identification, recording and management of all stalking cases.

Forces should consider screening crimes similar to stalking or where stalking behaviours may be present as part of a course of conduct, like harassment, malicious communications and breaches of orders.

Response

• The Force Crime Incident Audit Team reviews every Domestic Abuse call that comes into force on a crime code and then is closed on a non-crime code – this audit activity ensures compliance with the Home Office Counting Rules (HOCR).
• Every ASB personal incident is reviewed for HOCR compliance other ASB is also dip sampled.
• Whilst there is no specific audit of Stalking alone, the Crime Management Team review Domestic Violence Stalking and Harassment crimes - this includes Malicious Communications and Breaches of Orders.

By 27 March 2025, explore opportunities to improve how their force works with partners to contribute to a multi-agency response to stalking. This should include considering:

• How the force works in partnership with healthcare, the CPS, probation services and other criminal justice partners to manage stalking perpetrators and address their behaviour.
• Whether and how they should collaborate with other forces to effectively and efficiently contribute to multi-agency partnerships on stalking.
• How multi-agency public protection arrangements (MAPPA) are being used to effectively manage stalking offenders.

Response

• Merseyside Police personnel have visited several forces who have Multi-Agency Stalking Intervention Programmes (MASIPs) or similar. There is no intention at this time to develop a MASIP model due to the limited evidence base in relation to their effectiveness.  This position will be kept under review.
• Work remains ongoing to map out statutory and non-statutory responses to stalking perpetrators.
• Merseyside Police participate in a regional force Stalking and Harassment working group which feeds into the national NPCC Stalking and Harassment portfolio. Attendance enables force personnel to learn about and cascade best practice and associated policy advancements. Merseyside along with Cheshire Constabulary and the Crown Prosecution Service also undertake a monthly scrutiny programme to review Stalking investigations to ensure compliance with policy and identify areas for improvement.
• Merseyside Police have recently enhanced the response to Offender Management, developing the roles of Domestic Abuse Offender Managers. There has also been a growth within the Integrated Offender Management team.  The force is developing mechanisms to improve the identification of nominals who would meet the criteria for MAPPA.

By 22 November 2024 (56 days from publication), publish on their force website an action plan which explains what their force will do in response to each of the recommendations made to them and send the NPCC a link to where this action plan can be found.

By 27 March 2025 (6 months from publication) provide an update to the NPCC describing the progress they have made against their action plans.

Response

Recommendation complete.