Pan London Domestic Violence Service – contract extension

The Police and Crime Plan made a number of commitments to tackle Domestic Abuse (DA) within the priority of Violence Against Women and Girls. This includes continued funding and support for Independent Domestic Violence Advocate (IDVA) provision in London.

Under cover of DMPCD 143 in 2014, the DMPC approved MOPAC’s committal of up to £5 million to fund a pan London Domestic Violence Service from 2015 to 2017.

Under cover of DMPCD 212 in 2017 the DMPC approved the extension of this funding agreement for nine months providing £1,499,700 from 1st July 2017 to 31st March 2018. This was to allow MOPAC officers time to align this service with the wider universal victims offer and also to allow MOPAC time to evaluate and review the current service in line with the upcoming VAWG strategy, wider PCP commitments and future commissioning options.

A series of reviews throughout the extension period highlighted some significant areas of potential service development. If implemented these improvements would allow increased benefit to high risk victims. In addition, we suggest realigning resources to enable a small pilot to focus on the increased use of Domestic Violence Protection Orders (DVPOs). This is due to their lack of application in London currently.

This Decision seeks the DMPC’s approval to further extend the funding agreement for twelve months from 1st April 2018 to 31st March 2019 providing £1,999,600. This will allow the time needed to implement service improvements including a small scale pilot to address London’s low rates of DVPOs.

The DMPC approves the variation of MOPAC’s current funding agreement with Victim Support in respect of its pan London Domestic Violence Service project to provide £1,999,600 as a contribution to its costs of the same between 1st April 2018 and 31st March 2019.

1. Introduction and background

1.1. April 2015 MOPAC launched a competitive tendering exercise to select a provider/s to deliver a Pan London Domestic Violence service.

1.2. This exercise resulted in a single provider (Victim Support) being appointed over all four regions of London.

1.3. The service has supplemented the then existing number of 115 IDVAs within Local Authorities by 40.5 IDVAs.

1.4. There is clear demand for the additional capacity created by the Pan London DV Service. In the first two years that the service operated, a total of 10,765 new referrals were received. In addition, there has been an overall upward trend throughout every quarter since the start of the programme meaning the service continues to grow in terms of demand.

1.5. The evaluation demonstrated the enormous benefits victims felt through receiving the service. The victim satisfaction data recorded throughout the lifetime of the service affirms that having this provision in place provides a level of support and care for victims which they would otherwise not have access to.

1.6. The length and nature of the funding arrangements has meant that over the duration of the project Victim Support has developed its delivery model significantly. The service is a flexible resource spanning 32 boroughs and has benefitted from being able to adapt to changes in the local landscape.

1.7. This flexibility has supported the continuous development of, and adjustment to, the operating model throughout the contract period. For example, changes to funding and local structures have meant that in order to maintain the same level of front line IDVA provision throughout the contract period, the service now has 40.5 IDVAs and 12 case workers.

1.8. During the proposed 12 month extension period, it will be required that that the model is further modified in line with recommendations from recent service reviews. The principle recommendations are for IDVAs to be primarily co-located in hospital settings and police stations. Also, for a small pilot to take place which focuses on Case Workers supporting the use of DVPOs. Both of these measures are expected to enable the service to better meet the needs of high risk victims.

2. Issues for consideration

2.1. Under cover of DMPCD 174 the DMPC approved a commitment to review how universal services can better support specialist services in delivering provision to victims. Under cover of DMPCD 212 an initial extension to the Pan London DV service was approved to allow time and capacity for a full evaluation to inform this work. It was not possible for delivery to take place with the short extension period.

2.2. However, the proposed service improvement as set out in this Decision offers an opportunity to realise this ambition. It would also allow for staff within the existing universal service to be upskilled to enable them to better provide a specialist response to DA victims, providing improved support to standard and low risk cases.

3 Recommendation

3.1 This Decision recommends that the current funding agreement with Victim Support in respect of its Pan London DV Service is extended to maintain the service for an additional 12 months.

3.2 While the service continues to demonstrate significant benefits for those that receive it, we feel there is scope for improvement to better meet the needs of Londoners.

3.3 This Decision recommends a short period of service remodelling to result in:

- 40.5 IDVAs primarily co-located in hospital and police settings

- Building on the learning from Essex constabulary, the service to commit 4 Case workers as a dedicated DVPO resource. Specifically this element of the service should seek to increase the number of DVPOs issued in London and measure victim satisfaction with the process and outcomes related to these orders.

3.4 A 12-month extension will allow for a period of stability while Victim Support fully aligns the service with MOPAC’s future strategic ambitions with regard to supporting victims of domestic abuse.

3.5 An extension will ensure consistency of service for victims while this service development period takes place. Any changes will not affect current active caseloads. It will also provide sufficient time for full consultation with partners.

4 Financial Comments

4.1 This Decision sits in line with MOPAC’s total financial commitments for Integrated Victim Services and the associated specified areas of work over the next three years as set out in Decision DMPC PDC 174. This includes the allocation of the Ministry of Justice’s Victims’ Grant and details MOPAC’s additional funding for the provision of victim and witness services for London.

4.2 The Integrated Victims budget for 2017 – 2020 provides for £1,999,600 FY 2018/19 for the Pan London DV Service.

5 Legal Comments

5.1 MOPAC’s general powers are set out in the Police Reform and Social Responsibility Act 2011 (the 2011 Act). Section 3(6) of the 2011 Act provides that MOPAC must “secure the maintenance of the metropolitan police service and secure that the metropolitan police service is efficient and effective.” Under Schedule 3, paragraph 7 MOPAC has wide incidental powers to “do anything which is calculated to facilitate, or is conducive or incidental to, the exercise of the functions of the Office.” Paragraph 7(2) (a) provides that this includes entering into contracts and other agreements.

5.2 Section 143 (1) (b) of the Anti-Social Behaviour Crime and Policing Act 2014 provides an express power for MOPAC, as a local policing body, to provide or commission services “intended by the local policing body to help victims or witnesses of, or other persons affected by, offences and anti-social behaviour.” Section 143(3) specifically allows MOPAC to make grants in connection with such arrangements and any grant may be made subject to any conditions that MOPAC thinks appropriate.

5.3 The powers in section 143 were given to MOPAC following the Government’s response to the consultation Getting it Right for Victims and Witnesses (2 July 2012) in which it set out a package of reforms to the way in which support services for victims of crime are to be provided.

5.4 The recommendations in this decision are in line with the legislation.

5.5 Under MOPAC’s Scheme of Delegation, approval of the strategy for the award of individual grants and the award of all individual grants (for crime reduction or other purposes) is a matter generally reserved to the DMPC (paragraph 4.8). The release of funding in accordance with the proposals set out in this decision form is accordingly to be approved by the DMPC. The delegation of responsibility for the finalisation of planning and contractual/grant arrangements, including relevant terms and the signing of agreements, to the Chief Executive Officer for activities to the value of £499,000 or less, is in accordance with the general power of delegation in section 5.

5.6 Officers must ensure that the funding agreement is varied in accordance with the provisions of the same, executing all necessary documentation, before any commitment is made to the provision of the funding proposed.

6 Equality Comments

6.1 The service is commissioned on the basis of meeting the needs of London’s diverse communities, including those with specialist needs and those that are harder to reach. The original DMPC Decision 2014 143 outlines the equality considerations that have been made throughout the previous commissioning process

6.2 The VAWG Strategy Refresh 2013-17 Community Impact Assessment and Imkaan report ‘Beyond the Labels’ outline the impact of domestic violence on different groups. Women are disproportionately affected by domestic violence and these documents highlighted that for certain groups of women the risk of violence is even greater due to aspects such as ethnicity, faith, culture and age. These documents were considered in developing the original approach for the Pan London DV Service and this has been corroborated through the recent consultation process for the VAWG strategy refresh.

6.3 To fulfil their role, providers must have an understanding of local demographics, including the client base; the under-represented groups; the specific needs of different groups; and any service barriers that exist. MOPAC also expects providers to demonstrate how their services, including referral and integration with other local services and partners where appropriate, will meet this need and will ensure accessibility and maximum value for all victim groups identified.

6.4 Whilst women are disproportionately affected by domestic violence, the service will deliver services for men in addition to provision of women-only spaces and services that we know that women and girls value, and that make them feel safer, protected and understood.

6.5 MOPAC is clear that the outputs from this service will provide a better standard of provision to victims of Domestic Abuse whilst having a greater positive impact on certain groups in society who are disproportionately vulnerable to and affected by crime.

7 Background/supporting papers

7.1 DMPCD143 Pan London DV Decision (2015)

7.2 DMPCD212 Pan London DV service extension (2017)