Non-confidential facts and advice to the Deputy Mayor for Policing and Crime (DMPC)
1. Introduction and background
1.1. Tackling Violence Against Women and Girls (VAWG) is a key priority in the Mayor’s Policing and Crime Plan (2017-21). The refreshed London VAWG Strategy (2018-21) aims to reduce the prevalence of VAWG in London, tackling perpetrators and supporting victims and survivors. The refreshed strategy underwent substantial consultation with victims, survivors and the members of the VAWG Board.
1.2. In 2017 MOPAC were awarded significant funding over three financial years (Decision PCD291 and Decision PCD153) through the Home Office VAWG transformation fund and Police Transformation Fund to support earlier intervention and prevention. Three bespoke programmes of work have been developed to better meet the needs of survivors of sexual violence as well as to develop new approaches to tackle repeat perpetrators of stalking and domestic abuse. These three key programmes have been developed working in collaboration with the VCS, local authorities and other PCCs across the country. The Home Office funding ends in March 2020.
1.3. Following an increase in demand and cuts in central government funding the Mayor has had to rethink what needs to be done centrally from City Hall to tackle VAWG and ensure appropriate support is available to victims and survivors. The Mayor has committed to invest £15million of new money, across a three-year period to improve and increase the support that is available to victims and survivors of VAWG.
1.4. The budget has been allocated across three financial years 2019/20-21/22, with an emphasis on maximising immediate investment in services which are struggling to meet demand as well as allowing for funding to be allocated over a 30-month period supporting the sector’s need for more sustainable access to resource. This funding will be delivered in four tranches;
1. Maintain existing investment.
2. Sustain current innovation.
3. Competitive grant allocation – developing grass-roots based provision.
4. Managing an increase in demand.
1.5. This decision concerns tranches two, three and four of the fund and the final allocation of any underspend from tranche 1.
1.6. Tranche 1, maintaining existing investment has been fully allocated with £1.35million being immediately invested in MOPAC funded services. This will increase the number of Independent Sexual Violence Advocates (ISVA) and Independent Domestic Violence Advocates (IDVA), as well as allowing the sector to improve the quality of staffing and retention. This is outlined in DMPC Decision PCD 448.
2. Issues for consideration
2.1. This section provides an overview of:
• the aims and objectives for each tranche for the Mayor’s VAWG fund;
• the proposed allocation of funding for each tranche;
• the proposed approach to delivering each tranche; and
• details of any other specific pieces of work required to support delivery of the tranche.
2.2. The proposed amounts allocated to each tranche of the VAWG Fund remain indicative at this point. These allocations may need to be reviewed, but this will only be in the following circumstances:
• if the work currently being undertaken by MOPAC’s Evidence and Insight team to map current levels of demand and need for, and gaps in, existing VAWG services in London highlights a need to review the allocation to ensure they appropriately reflect demand and need;
• if the work MOPAC proposes to commission to support the delivery of tranche 2 (a Feasibility Study on the Home Office Transformation Projects, see paragraphs 2.5 – 2.8 below) highlights that the budget allocated to this tranche should be reviewed; or
• if there is an underspend on any of the other tranches, including tranche 1. In this case, any underspend would be re-allocated to tranche 4 to increase the value of that fund.
2.3. The DMPC is therefore asked to delegate authority to MOPAC’s CEO for the virement of monies between each of these tranches, should this be required, as long as the total amount allocated to the VAWG Fund does not exceed £15 million, which is the total amount available for the entire Mayor’s VAWG Fund.
Tranche 2: Sustaining Current Innovation
2.4. The aim of tranche 2 is to review and sustain current Home Office transformation innovation projects which are due to end in March 2020. MOPAC attracted funding from the Home Office Police Transformation Fund and Home Office VAWG Fund to enable the development of bespoke programmes of work to better meet the needs of survivors of sexual violence as well as to develop new approaches to tackle repeat perpetrators of stalking and domestic abuse. These three key programmes have been developed working in collaboration with the Voluntary and Community Sector (VCS), local authorities and other PCCs across the country. The three programmes are:
• The Drive Programme – a VCS, Local Authority (LA) collaboration to reduce the reoffending of harmful repeat DA offenders
• Multi Agency Stalking Intervention Project – This is a multi- agency stalking intervention programme which reviews all cases to identify risks of stalking and put in place safety planning for victims and enforcement for perpetrators.
• Sexual Violence Triage programme – developing a new way for survivors to access support in terms of advocacy, counselling and wider advice across the services commissioned in London across the voluntary and statutory sector
2.5. A study will be conducted to review the feasibility of the current innovation projects, and the existing services based in London that are currently delivering time limited services utilising funding awarded from the Home Office Police Transformation Fund (PTF) and Home Office VAWG Transformation Fund. This will inform future DMPC Decisions relating to the continuation of all, or elements of, these services.
Tranche 3: Competitive Grant Allocation – Developing Grass roots-based Provision
2.6. Tranche 3 will focus on developing grass roots-based provision through a fund management arrangement. The fund manager will be appointed through a competitive process and their role will be to develop and support the growth and networking of community-based organisations responding to VAWG in London as well as awarding grants to relevant VAWG specialist organisations. It is intended that awarded funding will cover at least a 24 month delivery period, focusing on sustainability of services and not short-term innovation.
Tranche 4: Managing an Increase in Demand
2.7. Tranche 4 of the fund will focus on managing an increase in demand on services supporting women and girls affected by violence. The increase in demand on services is as a result of both increases in numbers of incidents and severity of violence.
2.8. MOPAC will develop a prospectus for this biddable element of the tranche using the findings from the data pack that is being produced by MOPAC’s Evidence and Insight team. This will inform the prospectus that will set out the key outcomes for the fund.
2.9. The majority of the fund will be allocated through an open and competitive bidding process in response to the prospectus, enabling significant investment in services supporting the most at risk women and girls. Consideration will be made to ensure wider services are responding appropriately to victims and survivors as well as reviewing developing referral pathways.
2.10. The DMPC is also asked to ring-fence up to £1million of this tranche to address the pan London issues associated with revenue funding of safe accommodation. Further consultation is taking place around how to deliver this, including exploring options for securing match funding. A further Decision will be submitted seeking approval on the approach to be followed and any monies that no longer need to be ring-fenced for this purpose will be re-allocated through the bidding process for tranche 4 (see 2.9).
3. Financial Comments
3.1. This decision seeks DMPC approval for the allocation of £13,650,000 across tranches 2 to 4 of the Mayor’s VAWG Fund.
3.2. The funding for these services comes from the additional £15 million announced by the Mayor on 27th February 2019 (https://www.london.gov.uk/press-releases/mayoral/mayors-15m-boost-to-tac...) to tackle violence against women and girls. £1.35 million of this funding has already been allocated to increasing the investment in existing MOPAC funded services, as set out in PCD448.
3.3. The proposed allocation of the remainder of the £15 million across tranches 2 to 4 for the years 2019 – 2020 through to 2021 – 2022 is set out below:
Tranche Proposed Allocation
2: Sustaining Current Innovation £3.4 m
3: Developing Grass roots-based Provision £3.42m
4: Managing an Increase in Demand £6.83m
Total allocation for tranches 2 to 4 £13.65m
3.4. The amounts set out in the table above, allocated to each tranche of the fund, remain indicative at this time and will be finalised following completion of work currently being undertaken to review the evidence base.
3.5. The £100,000 for the Feasibility Study for the Home Office Innovation Projects will come from MOPAC’s commissioning budget.
4. Legal Comments
4.1. 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.
4.2. 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.”
4.3. The recommendations in this decision are in line with the legislation and in line with MOPAC’s Scheme of Delegation as set out below.
4.4. In line with section 4 of MOPAC’s Scheme of Consent and Delegation, the DMPC has authority for the:
• approval of business cases for revenue expenditure above £500,000 (section 4.8);
• approval of the strategy for the award of individual grants and the award of all individual grants (section 4.8); and
• approval of the procurement strategy and requests to go out for tender for contracts (section 4.13).
4.5. Further DMPC Decisions will be submitted regarding the award of any contracts and grants for tranches 2 to 4 of Mayor’s VAWG Fund.
4.6. In line with section 5.22 of MOPAC’s Scheme of Delegation, the Chief Executive Officer has authority for the finalisation of planning and contractual/grant arrangements, including relevant terms and the signing of contracts and grant agreements.
5. Commercial Issues
5.1. The majority of funding for tranche 2 is likely to be allocated via a direct award of grant to the existing providers as this is funding is being made available to sustain current Home Office Innovation Projects.
5.2. The funding in tranches 3 and 4 of the Mayor’s VAWG Fund will be allocated following open and competitive grant award processes. These processes will be conducted in line with MOPAC’s governance processes and Scheme of Delegation.
5.3. The supplier for the Feasibility Study for the Home Office Innovation Projects will be identified via an open and competitive tendering process. Professional, technical advice is being sought from MOPAC’s Procurement Manager and TfL procurement colleagues in relation to the procurement approach to be followed. It will also be subject to TfL governance arrangements to ensure that the process is fully compliant with the Public Contract Regulations 2015.
6. Public Health Approach
6.1. VAWG is a significant public health issue, costing the health care system £1.3 billion a year. Domestic abuse (Drive) and stalking (MASIP) have significant and enduring impacts on individual’s physical health and mental wellbeing. Both Drive and MASIP seek to intervene with perpetrators and provide support to victims (and their children). Both Drive and MASIP aim to hold perpetrators accountable for their behaviour as well as increasing the visibility of perpetrator responses to these forms of VAWG. MASIP has a health engagement element within the model (as a treatment option where appropriate for individuals who have engaged in stalking offending behaviour), and both programmes work in partnership with health, social care, criminal justice agencies and the voluntary sector to manage the risks posed by these individuals and seek to reduce repeat victimisation.
7. GDPR and Data Privacy
7.1. A full Data Protection Impact Assessment will be completed by all providers if required as part of the mobilisation for the services, to ensure that all delivery is fully compliant with the requirements of the GDPR.
7.2. All contracts and grant agreements will include clear provisions relating to compliance in this area, and in relation to the processing of personal data. These terms have been drafted following consultation with MOPAC’s GDPR Project Manager.
8. Equality Comments
8.1. The Police and Crime Plan and associated commissioning plans are based on two clear principles:
• Victims First – putting victims at the heart of everything we do.
• Reducing inequalities in communities – a focus on setting an agreed standard and addressing the disparities we see across the city.
8.2. In order to address the inequalities that exist in London, MOPAC has three targeted priorities directed at those people who are disproportionately affected by crime. The priorities aim to provide specialised services that safeguard the most vulnerable in society and reduce evident existing inequalities. These priorities are reflected in MOPAC’s victims’ commissioning plans over the next three years, as set out in this decision form. They are:
• Keeping Children and Young People Safe
• Tackling Violence Against Women and Girls
• Standing together against extremism, hatred and intolerance
8.3. MOPAC is clear that the outputs from this commissioning plan will provide a better service to all victims whilst having a greater positive impact on certain groups in society who are disproportionately vulnerable to and affected by crime.
8.4. The impact assessment for the Police and Crime Plan details the proposed priorities and assesses potential impact, whether positive, negative, neutral or unknown. In conducting the assessment, and in line with the intentions of the draft Plan, the potential impact has been assessed as positive across all objectives.
8.5. The evidence indicates differential experiences of victim satisfaction and confidence amongst different sections of London’s community – BAME (black, Asian and minority ethnic), women, young people, boys/men, and people with physical and mental health disabilities. The evidence also indicates that some areas of London are more vulnerable than others to crime and victimisation. However, analysis shows that the number of high harm victims that are either BAME or White is proportionate to the current London ethnic projections.
8.6. The assessment has been conducted to determine whether proposed priorities would have any negative impact on any protective characteristics. In conducting the assessment the potential impact has been assessed as positive across all objectives.
8.7. In November 2016, MOPAC published a needs assessment that it had commissioned in partnership with NHS England (London.) This considered the extent of sexual violence need and demand in the Capital and how this was being met by the services that MOPAC and NHS England (London) were commissioning. This needs assessment highlighted that:
• Each year around 24,000 adults in London experience sexual assault ore rape;
• Most of these victims and survivors are women (85%)
• For both men and women, the offender is male in 99% of cases
8.8. Disabled women are more likely to be victims of domestic abuse and sexual violence than non-disabled women. Victims with learning disabilities are also at increased risk of abuse and are least likely to proceed through the criminal justice service to see the conviction of the offender, cases where no further action is taken are 4.4 times higher than for those without learning disabilities,
8.9. 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.
8.10. MOPAC is clear that the outputs from this programme of work will provide a better standard of provision to victims of survivors of VAWG whilst having a greater positive impact on certain groups in society who are disproportionately vulnerable to and affected by crime
9. Background/supporting papers
- PCD 448
- PCD 153
- PCD 296