Changes needed to ensure stalking victims get the right response from police

The Independent Office for Police Conduct (IOPC), His Majesty’s Inspectorate of Constabulary and Fire and Rescue Services (HMICFRS) and the College of Policing found that police understanding of stalking is improving, and this is reflected in some innovative action by the police.

But too often these cases are not being taken seriously enough and the quality of investigations is inconsistent.

The report, published on Friday (September 27) follows a detailed joint investigation into a super-complaint made by the Suzy Lamplugh Trust, on behalf of the National Stalking Consortium, about the way police respond to reports of stalking.

The report details 29 recommendations to ensure better support for victims. These include:

• Outlining steps chief constables should take now to improve the quality of stalking investigations;
• Changing the criminal law on stalking, which is currently confusing in places, to make it easier for police to understand and apply;
• Making stalking protection orders simpler and easier for the police to use; and
• Ensuring police and support services work more closely together to improve the service provided to victims.

The joint report says these recommendations – to chief constables, police and crime commissioners, the National Police Chiefs’ Council (NPCC), the Home Office, the Ministry of Justice and the Crown Prosecution Service – will support policing to make “the necessary improvements to ensure reports of stalking are consistently taken seriously and victims are better safeguarded”.

IOPC Director General Rachel Watson said: “Stalking is a serious crime that can have a devastating impact on victims. Those affected need to have confidence to come forward, knowing they will be listened to and supported by those whose role it is to keep them safe.

“Change is happening – and today’s report highlights some excellent work we want to see become standard right across England and Wales. Sadly, we also saw too many cases where police failed to recognise stalking or take the necessary steps to protect victims – and policing must act now to improve this.

“I would like to thank all the victims and support services who shared their experiences. This report is a chance to make sure their voices are heard, and the issues they highlight are urgently addressed.”

His Majesty’s Chief Inspector of Constabulary Andy Cooke said the “seriousness of stalking should not be underestimated”.

“It is a devastating crime and the impact on victims can be life-long,” he said. “Police forces must do all they can to tackle it with the utmost urgency.

“We have previously recommended that stalking is prioritised by forces and the wider criminal justice system.

“However, it is concerning that we are still not seeing change as quickly as we should; investigations are often not effective enough and all the risks to victims are not being identified.

“While examples of positive practice were found, this progress is not significant enough to achieve the outcomes all victims deserve.

“Change is needed, and today’s report must be a springboard for action.”

Chief Constable Sir Andy Marsh, College of Policing chief executive officer, said: “Stalking has a significant physical, psychological, and emotional impact on victims and we are determined to support policing to take a robust approach to offenders and to support victims.

“Our joint investigation into Suzy Lamplugh Trust’s super-complaint has shown that policing has made progress in the way it tackles stalking. I’m pleased that we have been able to share the examples of promising practice we encountered during the investigation on our practice bank so that they can be adopted more widely across policing.

“Despite the progress made, our investigation has also shown that the service needs to improve further. To support this improvement officers now have access to updated advice and training for when they are responding to stalking or harassment cases. One, of a number, of next steps will be to strengthen national guidance for police across England and Wales to improve the quality of investigations.

“Our report has also recommended policing now explores how emerging technologies such as artificial intelligence (AI) can be used so that policing systems and frontline officers can spot stalking risks in cases at the earliest opportunity to allow offenders to be targeted and victims supported and protected from harm.”

The IOPC, HMICFRS and the College of Policing have jointly investigated the concerns raised in the super-complaint, which was submitted in November 2022. They found “clear evidence” to support these concerns.

As part of the investigation, they reviewed police investigation case files and spoke with officers and staff involved in responding to reports of stalking.

They also spoke with victims and support services, to better understand their experiences, and reviewed a significant amount of research and data on the subject.

A survey of all 43 police forces in England and Wales was also carried out, and IOPC stalking cases were reviewed as part of the investigation..

Among the findings highlighted in the report are:

• Poor risk assessment and safeguarding may be leaving some victims at serious risk;
• Laws and guidance for police are confusing and inconsistent;
• There is a lack of understanding by police of the scale and types of stalking in their area;
• There are issues with the quality and resourcing of some investigations; and
• More can be done to share and build on the good work already being done.

As part of the recommendations, the NPCC has been asked to share a report, which will be published online, in the coming months outlining the progress made to make these important changes.

Association of Police and Crime Commissioners joint portfolio leads for victims, Surrey police and crime commissioner (PCC) Lisa Townsend and London’s Deputy Mayor for Policing and Crime, Sophie Linden, responded: “This report raises significant concerns regarding the protection and support offered to victims, underscoring the urgent need for systemic improvements in how police respond to stalking.

“PCCs are working with policing to enhance its response to stalking, with various force areas commissioning dedicated victim support services and collaborating on multi-agency perpetrator programmes.

“The use of Stalking Protection Orders is being embedded to safeguard victims, and front-line officers are being supported to better identify stalking amongst a range of other dangerous offences.

“We are determined to ensure that the police responses are consistent and appropriate across all forces so that every victim receives the same level of protection and support, regardless of where they live.

“However, as the report highlights, greater efforts are needed to ensure that stalking is treated as the serious crime it is – one that has a profoundly damaging impact on victims, both physically and emotionally.

“Stalking affects an estimated one in five women and one in ten men over their lifetimes, with approximately 1,639,000 people aged 16 and over falling victim to stalking in England and Wales last year alone.

“As PCCs, we are committed to ensuring that victims of stalking receive the protection and justice they rightfully deserve, while holding perpetrators accountable for their crimes. We strongly support the call to strengthen the foundations of policing, enhance safeguarding measures, and improve investigations for stalking victims.

“We recognise the critical importance of collaboration among partner organisations to enhance support for victims of stalking. They are entitled to feel safe, and PCCs will do what is needed to strengthen and monitor victim support services to ensure that they can.

“Additionally, we will work with those within and beyond policing to manage perpetrators and address their behaviour which inflicts such terror on their victims.

“PCCs are required to respond to the report’s recommendation within 56 days of its publication and we look forward to providing a full response in due course.”

Katy Bourne, Sussex PCC who has had personal experience of being stalked, commented: “Stalking is a pernicious crime that leaves victims feeling increasingly scared and distressed as an offender’s repeated and obsessive behaviour impacts their lives. It can take many forms on- and offline, and anyone can be a victim.

“Today’s report is a valuable reminder that, whilst there have been some improvements in the police response to stalking, there is far more to be done to ensure better and consistent support for those who are the targets of this terrifying unwanted behaviour.”

Deputy Chief Constable Paul Mills, National Police Chiefs’ Council (NPCC) lead for stalking, said: “We welcome the recommendations made in the super-complaint and remain committed to doing everything possible to improve the policing response for victims of stalking.

“Stalking and harassment can have a devastating impact on victims. Our criminal justice system must recognise the damage and harm perpetrators cause and protect victims at the earliest opportunity.

“To effectively do this, policing must respond as part of a wider system approach. As the report highlights, police forces that have integrated multi-agency models to respond to reports of stalking have seen the best success at disrupting perpetrator behaviour and safeguarding victims.

“We must continue to drive best practice nationally across forces and ensure that police officers and staff have the right skills and resources to identify and investigate reports and provide support for victims through the criminal justice process. “We are carefully working through the recommendations made for policing and will work closely with our partners across the criminal justice system and beyond to further improve and standardise the service victims receive.”

He said policing is working hard to improve its response to stalking and harassment, which accounts for 40 per cent of all offences related to violence against women and girls.

Each force has a dedicated stalking lead, and many have specialist advisors to support victims through the reporting stage and investigative process. Updated training and guidance for officers and staff has been implemented nationally, which focuses on better understanding stalking and harassment behaviours, the impact on victims and maximising existing police powers to effectively pursue offenders and safeguard victims.

The introduction of a national stalking screening tool for frontline officers – following a period of trial in selected forces – has been designed to support police responders to better identify whether a stalking crime is being presented, as opposed to a harassment, coercive and controlling behaviour, or malicious communications, to initiate urgent investigative action, implement safeguarding measures and safety planning processes, and to ensure referrals to the most appropriate support services are offered.

“We have been working with the Home Office to further embed Stalking Protection Orders with updated statutory guidance in relation to the standard of proof thresholds and improve the access to official SPO data on a more regular basis,” said the NPCC. “Working with chief constables and PCCs to share the learning from multi-agency perpetrator programmes.”

To improve prosecution rates, the NPCC said it is working in partnership with the Crown Prosecution Service (CPS) to improve prosecution rates by refreshing the joint protocol on the appropriate handling of stalking or harassment offences, and supporting the CPS in the development of the Domestic Abuse Joint Justice Plan principles to improve the response to both domestic and non-domestic stalking.

Improving the available data concerning the incidence of stalking will help target further improvement activity, said the NPCC, which is working closely with stalking charities to “better understand the experience of victims and drive improvements in the police response”.

Victims’ Commissioner, Baroness Newlove said the findings “come as no surprise”.

“For far too long stalking has been poorly understood, which has resulted in the failure of police officers to understand the level of harm caused by stalking.

“This is in part a result of police viewing incidents in isolation and failing to acknowledge the wider pattern of behaviour and the cumulative impact this has on victims. All too often, those responsible for protecting victims and apprehending offenders have failed to act, sometimes with serious and tragic consequences.

“Whilst the report highlights some welcome improvement in police response to stalking, such as increased number of recorded crimes, today’s findings set out the need for significant changes, ensuring reports are consistently taken seriously and victims are better safeguarded.

“Recommendations such as clearer legislation, police training and improved statutory guidance – as well as steps to promote the use of stalking protection orders are also welcome.

“I also welcome the findings which acknowledge the need for a ‘whole system approach’ to stalking, with enhanced focus on multi-agency working, bringing together criminal justice staff, health professionals and independent stalking advocates. Stalking hubs, which have been piloted in some parts of the country, have much to offer when it comes to scaling up response and support to victims.

“For too long, victims of stalking have been let down by the police and other criminal justice agencies. This report sets out a clear path forward. Only by accepting and implementing the recommendations set out by IOPC and others can we be sure future victims will get the support and protection they so badly need.”