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Standing Together
Our plan for police, community safety, criminal justice
services and citizens in Greater Manchester
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
2 Standing together
3
Contents
Foreword from the Mayor 6
Introduction 8
Deputy Mayor 8
Chief Constable 10
Lead Chief Executive 12
About Greater Manchester 14
Priorities 20
Keeping people safe 25
Reducing harm and offending 41
Strengthening communities 51
and places
Better services 61
Budget, grants and accountability 69
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
4 Standing together
5 Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
6
Foreword from the
Mayor of Greater
Manchester
This plan will make Greater Manchester
a safer place for everyone. By
organisations working closely together
with communities I am confident that
we will make a difference for the citizens
of Greater Manchester. The safety and
security of people in Greater Manchester
is my top priority, and to achieve the
commitments in this plan, we will have to service. Our ability to do this is threatened
overcome the financial challenges that by the Government budget cuts that GMP
have made the job of our police much have endured in recent years. As a result,
harder. I am confident that we can do this we have lost more than 2,000 police
by standing together. officers, whilst at the same time more
people than ever are contacting the police
While Greater Manchester Police (GMP) and asking for help. The nature of crime
has faced up to their challenges by is changing and we now deal with crimes
transforming services, putting in place new that, until recently, were hidden from view.
ways of working and pooling resources with These crimes, such as child sexual abuse,
partner organisations to tackle complex online grooming, internet-based fraud and
issues such as child sexual exploitation modern-day slavery, ruin lives, and the
and modern slavery, we are still developing police have to respond to them differently.
innovative ways to do things better and But the police can’t do this alone - we have
deliver the priorities set out in these pages. to work together to protect those who are
vulnerable.
This plan outlines the opportunities
to invest and improve policing and The police, local authorities and other
community safety through the recruitment organisations continue to work hard to
of more police officers, improving access make Greater Manchester one of the best
to police services, and protecting and places to grow up, get on and grow old, and
strengthening neighbourhood policing feeling safe is key to this. Only by standing
– the eyes and ears of our communities together can we build safer communities.
and the cornerstone of an effective police
Standing together
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As Mayor, I will take advantage of This plan sets out our vision for a strong,
the opportunities of my role to bring safe, resilient Greater Manchester. A
together all those working to build safe Greater Manchester that stands together
communities, to deliver real change. and works as one to keep people safe and
protect and support the most vulnerable in
I am committed to building on the our society.
hard work and dedication of our police
officers, communities and all our partner
organisations, to make our communities
safer and increase public confidence
in the criminal justice system, while
continuing to lobby Government to ensure
our police service is properly funded. Our Andy Burnham
police service has and continues to face Mayor of Greater Manchester
immense challenges. They deserve better,
as do local communities.
This is a plan for the police, criminal justice
services, community safety and the people
of Greater Manchester. It’s a plan that has
been shaped by community and voluntary
organisations, victims’ groups and support
services, and local people. It is a key part of
the blueprint for Greater Manchester and I
look forward to working with you to bring it
to life.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
8
Introduction from community safety partners, health
services and voluntary and community
the Deputy Mayor
organisations.
Over many years we have seen central
for Policing and Government make drastic cuts to the
budgets for the police, local authorities
Crime and other public services. Despite these
cuts, and ever increasing demands for its
services, Greater Manchester Police has
This is the first Police and Crime Plan I have
remained incredibly resilient.
prepared as Deputy Mayor for Policing and
Crime in Greater Manchester and I want it
This plan recognises that the maintenance
to work for everybody.
of public safety involves more than just the
police and is not limited to crime. It builds
In preparing this plan, I consulted
on the foundations that have been laid
extensively with the people who use
down by my predecessor to reshape how
services as well as the wide variety of
different organisations can work together
people in different organisations who
and with the diverse communities that
provide them: police, local authorities,
Standing together9
make the region so vibrant. I believe that by standing together we can
make a real difference and make Greater
The consultation with our citizens and Manchester one of the best places in the
partners helped to shape three priorities for world to grow up, get on and grow old.
this plan:
1. Keeping people safe
2. Reducing harm and offending
3. Strengthening communities and Bev Hughes
places Deputy Mayor for Policing and Crime
To help achieve together our ambition
of safer, stronger communities this plan
includes 34 commitments made jointly
by the Chief Constable, leaders of local
authorities, heads of other organisations,
myself and the Mayor. We commit to
work differently with each other, with local
businesses and most importantly, with the
people of Greater Manchester.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester10
Introduction from Events in 2017 have shown the importance
of the national police network. Greater
the Chief
Manchester benefitted from support
that was provided following the terrorist
attack on Manchester in May 2017. We
Constable are also a contributor to the national law
enforcement arrangements providing a
Keeping people safe is the primary aim home to national assets and ensuring
of Greater Manchester Police and it is specialist officers are available to support
not something we can do on our own. across the country.
Everyone in Greater Manchester from
partner agencies through to local people All these elements place the police service
can play their part. This plan helps to under considerable strain but with the
outline the priorities, the challenges support of partner agencies, local people
and the ambition we all have for Greater and the clear direction in this plan we can
Manchester. continue to focus on keeping people safe
in the years to come.
Policing is now more complex than ever
before with officers dealing with everything
from terrorism and serious crime through
to burglary and antisocial behaviour. We are
facing new threats to safety with emerging
problems including online crime, terrorism Ian Hopkins
and modern slavery. But at the same time Chief Constable
we still receive calls for help with burglaries, Greater Manchester Police
robberies and incidents of vehicle crime.
Every day there are around 3,000 calls for
help and at the same time we have seen
financial constraints that have led to the
loss of 2,000 police officers. It is why we
are looking to transform policing and find
new ways of working that will mean despite
the challenges we can still provide the best
possible service to people across Greater
Manchester.
We are already introducing integrated
working arrangements with colleagues
from local authorities, health and other
service providers. It means Greater
Manchester can be at the forefront of
reforming the way public services are
provided with the support of the Mayor and
Deputy Mayor. It is these developments
that will ensure we can continue to have a
commitment to providing neighbourhood
policing not just now but in the years to
come.
Standing together11 Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
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Lead Chief Executive for Police and
Crime
I welcome this plan for police, community Safety Partnerships across Greater
safety, criminal justice services and Manchester. Understanding what concerns
citizens in Greater Manchester. The people will help us to target our resources
title of the plan, Standing Together, in areas of greatest need and importantly,
gives a clear message of collaboration, help us to understand whether what we are
partnership working and inclusion, doing is making a difference.
to make Greater Manchester safe for
everyone. I know that consultation with the public
and other stakeholders has been
As interim Chief Executive with portfolio important in shaping this plan. In the
responsibility for community safety, I will public consultation, there was widespread
work closely with the police, other chief support (80%) for the priorities which
executives, elected members and officers means that we can be confident that we
to support the Mayor and Deputy Mayor to are tackling the issues that matter most
make a positive difference to people’s lives. to Greater Manchester residents and by
I am pleased that the plan recognises the standing together we can reduce crime
important contribution of all partners, now and anti-social behaviour and make
and for the future, such as local authorities, Greater Manchester a safer place for
health, probation and the community and everyone.
voluntary sector, each having a distinct
strength so that our approaches reflect
the complex problems that we are trying to
solve.
The development of an outcomes Pat Jones-Greenhalgh
framework for the plan will give us a clear Interim Chief Executive, Bury Council
picture of progress. I will encourage the use Lead Chief Executive for Police and Crime
of problem-solving approaches using the
right organisations, with the right resources
to take a lead.
Shared learning of successes and
challenges will be another priority for me,
so that all Greater Manchester citizens can
reap the benefits of feeling safer where
they live, work and visit.
I am particularly pleased that we are
introducing a Greater Manchester-wide
perception survey which will ensure that
we know whether this plan is making a
difference for citizens. This will be a useful
source of information for Community
Standing together13 Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
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3
About Greater
Manchester –
the place and the
people
Standing together15
G
Greater Manchester covers an area Greater Manchester’s growing population
of nearly 500 square miles and is has also become more diverse. Latest
home to approximately 2.8 million estimates suggest that 16% of Greater
people, forming 1.2 million households. This Manchester’s residents are of black, Asian
makes Greater Manchester the second and minority ethnic origin, and 8% of
largest city region in the UK and home to residents do not have English as their first
almost 5% of the UK population. While the language. Greater Manchester celebrates
region has some rural and remote areas, it its diverse culture, with a huge number
is a predominantly urban conurbation that of people of different faiths living in the
comprises the two cities of Manchester city region, and a thriving lesbian, gay, bi
and Salford, surrounded by eight large and trans community. However, minority
metropolitan areas which are: Bolton, Bury, groups still face hatred and intolerance
Oldham, Rochdale, Stockport, Tameside, which can result in increased demands on
Trafford, and Wigan. Although a single police and other services.
functioning economic area, one of the
hallmarks of Greater Manchester is its The resident population is increased by
great variety and diversity: whether in its very large numbers of university students
people (its residents, student populations, and the large number of people who visit,
those who travel in for work, and those socialise in, shop in, commute into, or
who choose to visit); or its places (its travel through Greater Manchester. With
neighbourhoods, town centres, amenities, just under 100,000 students across four
cultural attractions and green spaces). universities, Greater Manchester has one of
The latest forecast for Greater Manchester the largest student populations in the UK,
suggests that the population will grow and indeed in Europe.
by more than 2% over the four years of
this plan with a notable increase in the Manchester was the UK’s third most
number of people aged 70 or more and in popular city for international visits in 2016,
those under 16. As the population grows with 1.2 million visits and Manchester
and ages there will be an increase in the Airport is the UK’s Global Gateway from the
demands for police and other services. North, and the UK’s third biggest airport,
handling over 22 million passengers a year.
Greater Manchester has one of the largest
travel-to-work areas in the UK with 7 million
people living within one hour’s travel of the
centre. Around 370 million commuting
journeys are made per year, according to
latest information held by Transport for
Greater Manchester.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester16 Taking full account of all the reasons that Super League teams. If conferences people travel (commuting, shopping, and demonstrations are included there sports and entertainment, socialising, are more than 1,250 events each year etc.), an estimated 2.1 billion journeys per throughout Greater Manchester. year are made by residents; approximately 5.7 million per day. Cars are the dominant Maintaining the safety and wellbeing of mode of transport, but walking accounts these different groups brings a variety of for 26% of trips and 268 million journeys different challenges to the police and other are made on public transport. services. The cultural, arts and leisure offer includes The employment rate has recovered from over 20 large festivals held in Greater a post-recession low of 66.3% in 2011 to Manchester (such as Parklife, and the Jazz 71.5% in 2017. However, there are some Festival); cultural celebrations (including significant inequalities in education and Pride Big Weekend, Saddleworth Festival employment opportunities between and one of the country’s biggest Chinese different parts of the city region. In some New Year celebrations); and home matches of Greater Manchester’s wards, as many for two top Premier League football teams, as 40% of the resident population have a Division One Cricket team, a Rugby no qualifications and employment rates Union Premiership team, and two Rugby in some parts of the city region are less Standing together
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than 40%. In-work poverty is increasingly trends observed nationally; this includes
prevalent, and more than a quarter of rough sleeping, which has increased by
residents rely on tax credits to support 42% between 2016 and 2017, with 286
their incomes. The city region has relatively rough sleepers in Greater Manchester in
large numbers of low wage jobs; slightly 2017.
less than a quarter of the workforce (more
than 250,000 people) earn less than a There is a broad consensus amongst
living wage (as calculated by the Living economic forecasting experts that leaving
Wage Foundation). the European Union (so-called Brexit)
is likely to have a negative net effect on
These disparities within the labour the economy, with losses outweighing
market form one part of a wider picture any economic gains, at least in the short
of inequality, with significant differences term (5 to 10 years). The main issues
between the most affluent and most facing Greater Manchester include: firms
deprived parts of Greater Manchester’s adjusting their trading and operations to
population. An estimated 585,000 of reflect the emerging agreements with the
Greater Manchester’s residents are living European Union, growth in new markets
in neighbourhoods among the most outside the EU; and more broadly changing
deprived decile in the country, whilst levels of net migration and potential
employment rates for disabled people and change in the scale and mix of different
those from ethnic minorities lag behind local communities, which will affect the
the UK average. This all translates into a availability of skills in the labour market.
stark health inequalities challenge: there
is an average gap of around five years The developing Greater Manchester
in life expectancy between Trafford and Spatial Framework will enable an informed,
Manchester. integrated approach to planning across the
region. Increasing the number of people
Levels of all forms of homelessness have living in and around our town centres,
increased over the last five years, reflecting and development on brownfield sites will
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester18
take advantage of the good transport Greater Manchester is one of the most
connections and existing facilities and challenging places to police in the United
services and contribute to the suggested Kingdom, if not Europe. This is reflected
need to build at least 10,000 homes per in the demands for services provided by
year. Similarly, new development will the police and other agencies from the
take advantage of existing transport public, voluntary and private sectors.
infrastructure, and so higher density These demands take a variety of different
developments are planned around forms and reflect changes in society.
transport hubs such as rail and Metrolink Many of these services have become
stations. more complicated and part of protracted
processes such as investigation,
There is an established relationship protection and reassurance of people in
between the concentration of people vulnerable and dangerous situations.
and the demands for public services, The recently-refreshed Greater Manchester
particularly services from the police. Strategy has the vision to make Greater
People become concentrated together for Manchester one of the best places in
a number of different reasons including the world to grow up, get on and grow
travelling (especially public transport); old. Included in its 10 priorities is building
socialising (such as sporting events, safer and stronger communities. This
festivals); shopping; or because of living Greater Manchester wide priority aims to
conditions (deprived areas tend to be strengthen how, through joint working, the
more densely populated areas). In addition police, local authorities, community safety
marked disparities between different organisations and voluntary organisations
communities can fuel anti-social and work with communities and the private
criminal behaviours. sector to provide a portfolio of services that
will improve and maintain public safety.
Standing together19 Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
20 4 Priorities Standing together
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“Intervention in
reducing crime at the
root cause is better
than tackling it when
it has become too
difficult to manage.
Protecting the
vulnerable in society
is important and
building communities
gives people a sense of
safety and something
worth protecting
themselves.”
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester22 In order to achieve our ambition for better policing, community safety and criminal justice services in Greater Manchester we must work together. No single organisation or community acting alone can keep people safe, reduce harm and build cohesive, strong communities. Consultation with the public and those who contribute to community safety, has identified three priorities. By working to achieve these priorities we can help to make Greater Manchester one of the best places in the world to grow up, get on and grow old. Standing together
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Our priorities
Keeping people safe
Protecting and caring for people who live, work,
socialise and travel in Greater Manchester.
Protecting those who are vulnerable and those
who are victims of crime or at risk of being
victimised. Building resilience, feelings of safety
and confidence in policing and community safety.
Reducing harm and offending
Preventing anti-social and criminal behaviour
including the most serious offending and
terrorism by solving problems, intervening early
and rehabilitating offenders to build confidence
in criminal justice.
Strengthening communities and places
Helping to build resilient and resourceful
communities including online communities and
protecting the places where people live, work,
socialise or travel. Supporting the delivery of the
IT systems, buildings, roads, street lighting and
other public assets needed to solve problems in a
21st century society.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester24
We know we will make a difference if
»» People feel safer at home, at work, socialising, and when travelling
in Greater Manchester
»» People express increased confidence in police and other
organisations that contribute to community safety
»» People believe the police and community safety services are
effective, efficient and fair
»» People believe the justice services (court/out-of-court) are
effective, efficient and fair (accessible and proportionate)
»» People believe places are safe and believe communities to be
strong
Standing together25
Priority 1
Keeping People Safe
Protecting and caring for people who live, work,
socialise and travel in Greater Manchester.
Protecting those who are vulnerable and those
who are victims of crime or at risk of being
victimised. Building resilience, feelings of safety
and confidence in policing and community safety.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester26
The Social Cohesion
Commission
The Greater Manchester Preventing
Hateful Extremism and Promoting Social
Cohesion Commission was announced
by the Mayor in May. It will consider the
The attack on the Manchester Arena in broader determinants of social exclusion
May 2017 was a harrowing and sobering and how we can work collectively to
reminder of how quickly innocent people’s address these; engage in dialogue with
lives can be devastated. It was also a our communities and the business sector
reminder of how important the police and to consider the development of a Greater
other public services are in keeping us safe, Manchester Charter: a set of shared
caring for those who have been harmed values and commitments which could
and in helping to rebuild lives. be used as the foundations upon which
the Greater Manchester Strategy work is
The attack illustrated how international built and develop a distinctive community
events can impact upon lives in Greater led Greater Manchester approach to
Manchester. In the aftermath of the challenging radicalisation.
attack the diverse communities of
Greater Manchester came together in Prevent is a strand of the national approach
a phenomenal show of solidarity and to counter terrorism and extremism. It
defiance of this hateful extremism – involves the police and other organisations
however, at the same time there was an identifying those at risk of being radicalised
increase in hate and crimes of intolerance. and taking steps to prevent harm as part of
safeguarding arrangements.
We commit to working together to take
account of any recommendations from
the Greater Manchester Preventing
Hateful Extremism and Promoting Social
Cohesion Commission
Standing together27
However, many threats are much closer
“The priorities
to home – some, such as domestic
abuse are within homes or via our internet
deal with
connections such as online fraud or cyber
crime. preventative
The government’s continuing austere
public finances have cut police budgets
measures,
and those of other public services. Greater
Manchester Police has lost more than
intervention
2000 police officers since 2010 and in
addition to this there are now hundreds and
fewer Police and Community Safety
Officers (PCSOs) and police staff. This has
led to changes in the services that can be
community
provided and different ways of working.
At the same time the number of police response. This
means there
officers has been reduced there has been a
marked increase in the demands for police
services.
The increase in the demands for services
is collective
from the police is not limited to crime, it
also includes anti-social behaviour. This responsibility
is a broad label covering a wide variety of
community nuisance which, if repeated,
can cause considerable distress and
for tackling
have a corrosive effect on communities
or escalate into more serious behaviours. crime and
anti-social
The effects of anti-social behaviour also
lead to considerable demands on services
provided by local authorities ranging from
repairing damage, street cleaning, noise
abatement, dog warden and adult and
behaviour.”
child social care.
- consultation response
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester28 Standing together
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Anti-social behaviour
Anti-social behaviour is a common
reason for an individual to come to the
notice of one or more public services,
especially the police. As part of place-
based integrated working, individuals
may be referred to the ‘problem-solving
team’. Children and young people
exhibiting anti-social behaviour is often
a consequence of parents struggling to We commit to working with Community
cope. Safety partnerships to develop a
consistent, place-based response to
The approach is characterised by a lead dealing with and preventing anti-social
worker continuing to challenge and behaviour and crime.
support an individual and their family
to build relationships and a deeper We commit to working in partnership
understanding of problems and their with local authorities, housing providers,
causes. Having gained a more holistic transport for Greater Manchester and
understanding of needs, the worker public health to develop effective
is able to arrange for a coordinated responses to flagrant use of drugs in
package of actions to be taken and public, the litter related to this and to
remove or reduce the need for a series educate young people about the risks
of referrals to and between different associated with using drugs.
providers. Often the workers are
advocates for people in difficulty with, for
example, social landlords or in helping
them to access assistance schemes or
treatment to improve mental or physical
health. The investment of the time
and effort to understand the causes
and provide a coordinated response
has reduced subsequent demand for
services from individual agencies.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester30 As well as increasing, the demands for services are changing and now include digital crimes which increasingly target some of the most vulnerable people in our communities as well as businesses. However, cyber crime is not limited to fraud and whilst often hidden its impacts can be shattering – digital harm is real harm. Fraud prevention and investigation The government agency that responds to fraud often cannot meet the needs of all victims, including some of the most vulnerable. In recognition of the harm caused to vulnerable victims of fraud a pilot Economic Crime Awareness service will be provided by GMP to reduce fraud and meet the needs of victims. The Economic Crime Awareness service will work with banks and businesses to identify suspicious activity; raise public awareness of the measures people can take to protect themselves from preventable online fraud, romance frauds, bogus traders and other scams and allow the police to act proactively using warnings to disrupt and deter fraudulent behaviour where chances of prosecution are low. The service will include the recruitment of cyber specials and volunteers and work closely with victim service hubs to meet the needs of vulnerable victims and to prevent re-victimisation. We commit to developing a fuller understanding of the nature and scale of online vulnerability and working with service providers to make people safer when they are online. This will require establishing the resources needed to increase online safety. Standing together
31 Our plan for police, community safety, criminal justice services and citizens in Greater Manchester
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Domestic abuse ruins lives. It may remain
hidden for a very long time. It takes a
variety of different forms and need not
involve physical violence for example
coercive control or damage to property. Greater Manchester is one of the most
It happens within trusting relationships challenging areas to police in England and
irrespective of race, gender, income, Wales, threats from terrorism, serious and
sexuality, age, educational attainment or organised crime, child sexual exploitation,
religion and has consequences for whole serious sexual offences, substance misuse
families. Dealing with domestic abuse and other crimes are all increasing. In
is complicated, requiring sympathy and common with other police services, there
empathy for victims who may be reluctant has been a marked increase in demands
to report their abuse. It involves the police for services associated with protecting
and many other organisations throughout people for example, those who are mentally
the criminal justice and care systems. ill.
Mental ill-health
Domestic abuse
Mental health nurses will be based in the
Over the past two years a network of police control room, providing advice
volunteers has been developed to provide to the police about how to respond
support in the early stages of domestic when calls are received from people
abuse. This support includes advice on who appear to be in distress due to their
claiming benefits, accessing housing mental ill-health. This will help the police
and help to access health services such to make better choices and to get people
as a GP. Results have been extremely who are in crisis the right support more
positive and there are plans to invest quickly. It also avoids unnecessary visits
further so that the volunteer network to Accident and Emergency.
can be developed to cover the whole of
Greater Manchester.
Standing together33
“I’m pleased that
a mental health
nurse is available
as I believe the
police have to assist
many more people
with mental health
conditions due to the
absence of adequate
funding for mental
health services.”
- consultation response
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester34 Standing together
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Children and young people have been
We commit to working together to review
recognised as vulnerable at various
our approach to complex safeguarding of
transition points to the age of 25, such as
children in Greater Manchester and take
starting school, moving from primary to
account of any recommendations made
secondary education, puberty and leaving
by the Assuring the Effectiveness of
social care. How these transition points
Multi Agency Responses to Child Sexual
are negotiated has a huge impact on an
Exploitation in Greater Manchester work.
individual’s life chances. The extent of this
vulnerability and its consequences are
greater for some groups of children than We commit to maintaining a focus
others and this will shape how services are on the needs of children and young
provided. people, striving to keep them safe and
recognise that they can be victims of
crime at home and in the community.
Safeguarding We will consult with the Youth Combined
Authority and will consider creating a
In order to ensure that children and young schools engagement panel about how
people are protected, an independent best to keep young people safe.
evaluation has been commissioned
which will provide assurance that Greater
Manchester has the best possible systems
in place to safeguard children.
Specific ‘edge of care responses’ are
being piloted which aim to support more
families to stay together where it is safe to
do so and to support those leaving care for
example by providing access to housing.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester36
Protecting people, particularly those who
are most vulnerable is complicated and Missing children
produces an ongoing demand for police
services. People may be vulnerable for a Some children and young people go
variety of different reasons and the number missing from home frequently. This puts
affected can vary considerably from one them at risk of harm and in some cases
place to another. Every year, thousands of exploitation, and creates a high demand
children and adults are reported missing for the police and other services. By the
from home, most are returned home time a young person has gone missing
safely, but this requires a considerable six times a pattern of behaviour that is
effort on the part of the police and other difficult to break, has often formed. The
organisations. Footsteps project works with children
who have been missing from home more
than once. The reason for running away
and the risks associated with running
away are explored with the children and
their families. The project has helped to
build self-esteem and confidence and
the early findings suggest that this early
intervention is having a positive impact.
Standing together37
Modern slavery
In addition to the more obvious causes The Modern Slavery Coordination
of vulnerability, the police and other Unit is at the forefront of dealing with
organisations work to uncover so-called crimes of slavery, human trafficking
hidden demands. As the label might and exploitation were growing in
suggest, the true extent of these remains Greater Manchester. This multi-agency
unclear. However, the vulnerability, abuse unit provides care to victims such
and exploitation caused by modern slavery, as safe accommodation, material
female genital mutilation and so-called assistance and access to counselling
honour-based abuse is undeniable. and therapeutic support. It also raises
awareness about the forms and signs
of slavery, trafficking and exploitation
Female genital mutilation and it encourages people to report their
concerns. The unit has a network of
The Guardian Project works with young specialist advisors who help to develop
women and girls who are either at risk strategies and co-ordinate interventions
of, or have already been subject to that protect victims. Stop the Traffik
female genital mutilation (FGM) and their co-ordinates the Greater Manchester
families. It educates families and raises network of voluntary organisations which
awareness of the harm caused and identifies likely human trafficking and
the illegality of FGM. This has included modern slavery and has contributed
providing information about their rights to Greater Manchester achieving the
to girls through schools in the areas highest number of prosecutions for any
of highest risk of harm. In the past 12 police force area in the UK. Over the next
months over 70 referrals have been 12 months a complementary network of
received. Building on this partnership businesses will be developed.
approach we will work with the NHS to
improve access to counselling services
We commit to lobbying government
across Greater Manchester and with
about the importance of addressing
police and criminal justice partners to
poverty in the countries in which victims
progress FGM protection orders and
of modern slavery originated. We also
prosecutions.
commit to lobbying the Home Office
to improve the services offered to
repatriated victims in country of origin.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester38
GMP will continue to reform to meet the
So-called honour-based abuse challenge of providing services but this will
require some hard choices to be made; it is
Project Choice started as a pilot last year no longer possible for the police to attend
and has since been expanded to cover every call for service. The police continue
the whole of Greater Manchester. The to prioritise their responses according to
project has been specifically designed to the greatest risk of harm or distress. This
support people who are victims of forced means that more incidents are dealt with
marriage and so-called honour-based without being attended by a police officer.
abuse. In addition to offering support It also means placing a greater emphasis
and advice and working in schools to on stopping problems before they happen
raise awareness of the issue, the project so the police can prioritise issues that
has helped a number of vulnerable cause the greatest harm. It also means
individuals to obtain forced marriage developing new ways for the public to
protection orders. Some of the children contact and receive advice from the police;
helped by the project have been as young GMP is experimenting with the use of more
as 14. online services such as live chat which in
many case, will provide information faster.
We commit to further expanding the
training offered to frontline workers to Some of the services that the police have
help them spot the warning signs of provided in the past may look very different
a possible forced marriage to prevent in four years’ time; some may be provided
victimisation by a different organisation and others may
not be provided at all.
Standing together39
Victim service
A new service for victims is being rolled
out across Greater Manchester to provide
and co-ordinate support to victims of
anti-social behaviour and crime. The
service will help victims cope and recover
from the impact and consequences
Drugs Early Warning System of their experience; identify and tailor
support to vulnerable and repeat victims,
The Greater Manchester Drugs Early including children and young people;
Warning System, provides the results of place particular emphasis on victims
testing the purity and strength of illicit of fraud and cyber crime, domestic and
drugs to the police and others, including sexual abuse, hate crime, anti-social
medical professionals. This has become behaviour. This tailored approach may
a trusted source of information to advise trigger an enhanced offer to address
would be drug users about the specific more complex needs and may involve a
risks associated with using particular multi-agency approach to ensure wider
batches of drugs. For example in 2017, needs of victims are met. Support will
the drugs early warning system informed be provided through a single point of
the response to and media coverage of contact who will ensure that victims
the use of Spice. progress through the criminal justice
system smoothly. Those who do not
Anybody can be vulnerable at any given
progress through the criminal justice
moment, but some people clearly have a
system will continue to be supported.
higher level of vulnerability than others.
Helping to keep the most vulnerable safe
is the top priority for the police working We commit to commissioning victim
with others. support services that meet the different
needs of victims and care for those who
For those who have been subject to abuse have been abused or exploited.
or have been exploited, the police and
others play a vital role in caring for them We commit to looking to expand and
and in helping to rebuild their lives. develop the access to forensic and
aftercare services provided to victims,
particularly those who have been abused
or exploited. By taking a place-based
approach to providing the aftercare
to victims of rape and sexual assault,
female genital mutilation and child
sexual exploitation, victims will receive
the care they need closer to home.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester40
We will know we are keeping people safe if,
in addition to the overarching outcomes:
»» There are fewer repeat victims; particularly victims of violence,
abuse, exploitation, domestic abuse and hate
»» Those who have been abused or exploited are cared for and
helped to recover. This includes children and young people;
disadvantaged people; women and girls; elderly; those suffering
mental ill-health and those abusing substances
»» Service users are satisfied with the services they received from
the police and other organisations that contribute to community
safety
»» There are fewer inequalities in satisfaction and confidence
»» The incidence of crimes against the person is in line with that for
similar areas
»» The incidence of household crimes is in line with that for similar
areas
Standing together41
Priority 2
Reducing harm and offending
Preventing anti-social and criminal behaviour
including the most serious offending and
terrorism by solving problems, intervening early
and rehabilitating offenders to build confidence
in criminal justice.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester42
Crime and anti-social behaviour
can damage and destroy lives. The Prevent
consequences of even a single offence
can be devastating and widespread; going The Counter-Terrorism Prevent team is
beyond the immediate victim and offender primarily focussed on the safeguarding
to affect the lives of wider family, friends of individuals vulnerable to radicalisation,
and communities. regardless of the ideology.
Keeping people safe, our first priority, The team is piloting a collaboration with
also depends on reducing harm, and mental health partners which includes
focusing on those who offend or are at police officers and NHS psychiatric
risk of becoming offenders. There is a nurses working alongside each other
broad spectrum of harm, from terrorism to assess vulnerable individuals and
and organised crime, through violence, identify those with diagnosable mental
acquisitive crime and anti-social behaviour. health conditions. As a result of the pilot,
The police and partner organisations individuals with undiagnosed mental
will focus on prevention, disruption and health issues have been identified
investigation and will identify offenders and and they have been given support or
establish the necessary evidence. treatment.
People become offenders for a variety of
different reasons and if a young person
Problem-solving justice
commits crime or anti-social behaviour, it
can have serious consequences not only
Criminal justice agencies have adopted
for themselves, but also for their families
a problem-solving approach in dealing
and their communities. Therefore it is
with female offenders. This approach is
important there is a whole family approach
a collaboration between magistrates,
to changing their behaviour.
local women’s centres, domestic abuse
services, health and housing. This family-
Support on release and in centred approach has kept more families
custody - family support together and addresses offending
behaviour. It has reduced reoffending
Parental imprisonment has a significant and benefited the wider families. We
impact on any child and their wider will now take a similar problem-solving
family. Positive family relationships approach in dealing with young people
reduce reoffending. Working with the which should prevent reoffending, reduce
governors of three prisons and with victimisation and support the young
prisoners from Greater Manchester, people identified to be valued members
partners are jointly commissioning of their communities.
family support services for offenders,
their families, friends and significant
others. This approach is the first of its
kind nationally and will ensure that family
support for offenders serving custodial
sentences and their families, are better
co-ordinated.
Standing together43
Care in Custody
We commit to developing a better
People in police custody, at court and
understanding of the behaviours that
being released from custody can have
precede offending such as non-payment
many complex problems which, if
of rent, children absent from school, or
not addressed, could result in further
increased alcohol use. As part of our
offending. The Greater Manchester
family-centred approach, place-based
Liaison and Diversion scheme co-
multi-agency teams will use these
commissioned by the Deputy Mayor and
indicators to identify people, particularly
the NHS will introduce assessments by
women, and take steps to prevent their
trained health staff so that vulnerable
behaviours escalating into offending.
individuals in custody affected by issues
We will promote voluntary engagement
such as mental ill-health, homelessness,
with services and, where necessary,
or learning disabilities, are helped to
use all the powers available to police
access appropriate support as soon as
and criminal justice agencies to enforce
possible. This is a new project, the first
compliance with programmes which
of its kind in England and will help us
will address the causes of offending,
to ensure that support follows people
including the use of conditions,
through the criminal justice system
such as drug and alcohol treatment
reducing duplication and stopping
requirements.
people falling through the gaps, and
thereby reduce offending.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester44
“Community
building
is hugely By adopting a problem-solving approach
important. and intervening early, the police and
others can reduce and prevent anti-social
If people behaviour and offending. It is common
for offenders and their families to be
users of or known to a variety of different
respect their public services including housing, health,
emergency services, social care and
communities education. This represents a considerable
demand and cost to these services
they are less individually and collectively. Reducing this
demand and breaking this cycle cannot
be achieved by one agency on its own
likely to offend and requires work to address underlying
problems. Only by working together
in them.” with partners across public services,
including criminal justice and the voluntary
sector can we challenge and change the
behaviours that cause the most harm.
- consultation response
Standing together45
Early intervention and
prevention
Early Intervention and prevention involves
a variety of different frontline workers
from, for example, voluntary sector,
health, education, police and housing
recognising and sharing early indications
of need. These indications can include
Intensive Community Orders
poor school attendance, rent arrears and
Greater Manchester has historically
a lack of boundaries and these signs are
had a high number of 18 to 25-year-old
used to trigger supportive interventions
young men whose offending behaviour
that stabilise individuals and their
would result in a short-term prison
family situations. This support may be
sentence with a high risk of committing
in relation to housing, health, education
further offences on release from prison.
or employment and skills either
Many of these men are immature, have
individually or collectively and is provided
learning needs, poor school attendance
locally. A number of case studies have
and limited employment and short
demonstrated how, by responding to
term prison sentences do not address
such early indications of need, individual
their needs. Intensive Community
and family circumstances and life
Orders are being used to challenge
chances can be dramatically improved
offending behaviour and support
and break a cycle of dependency on
community sentences and meet the
public services.
needs of individual offenders and their
We commit to maintaining a focus families. The orders take account of the
on the needs of all children and young individual’s age and encourage changes
people, including those in the criminal in behaviour which reduce reoffending.
justice system to help them achieve There is a strong evidence base that
their potential. For those young offenders Intensive Community Orders ensure
who do need to be in custody, we will that young men successfully complete
lobby the Ministry of Justice for a their community sentence, reduce their
secure school for Greater Manchester offending and improve their lifestyles.
working with local businesses and other
criminal justice partners. We will engage We commit to explore opportunities
with businesses to develop mentoring with criminal justice partners to develop
schemes for the young people to help consistent, age appropriate interventions
them get on in life. delivered by youth and adult offending
services together. This will involve
We commit to working with the Ministry improving the links between children’s
of Justice to take local control of the and adult’s services
education and training of prisoners to
give them skills that match the Greater
Manchester jobs market and explore
other opportunities to take back power
from Westminster.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester46
“I think the number
one priority is to
keep people safe, but
you have to look at
the reasons people
commit crime and try
to address those if
you want to make a
big difference.”
- consultation response
Standing together47
Organised crime is often associated
with drugs, violence and firearms but
is also responsible many other types of
crime and criminality; either directly or by
undermining the fabric of communities
and creating a climate of fear in which
anti-social behaviour and crime can thrive.
Organised crime is often associated with
counterfeit goods including illicit alcohol
and tobacco both of which may be viewed
as Robin Hood crimes but can result in
significant health harms.
Programme Challenger
Responding to the problem of organised
crime requires collaboration, as well as a
positive, reciprocal relationships between
these agencies and the law-abiding
public. Programme Challenger is Greater
Manchester’s partnership approach to
tackling serious organised crime in all its
forms. It brings together police, councils,
and other public, private and voluntary
sectors organisations. Funding has been
provided to target offending behaviour
and prosecute criminals involved in
serious and organised crime, Programme
Challenger is committed to ensuring that
individuals and communities affected
by these crimes receive appropriate
protection and safeguarding.
The police and others play a vital role
in protecting and supporting not only
those who have been victimised but also
rehabilitating those who have committed
the offences. However, this does not mean
that offenders go unpunished. For those
who have caused the greatest harm,
this will include custodial sentences and
management and supervision in the
community.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester48
Offenders managed and
supported in Greater
Manchester
The Greater Manchester Spotlight
Integrated Offender Management
teams manage those who have
committed acquisitive crimes, violent
crimes and domestic abuse. The teams
are made up of officers from police,
national probation and the community
rehabilitation company who work closely It is vital that the public have confidence
with other local services. They aim to in the wider criminal justice system and
reduce reoffending and increase their the organisations that contribute to it,
compliance with the sentence conditions but this confidence will only exist if the
by responding to changes in offender public believe the system is both fair and
behaviour rapidly effective. Part of this effectiveness is
measured by the rehabilitation of offenders
Sex offender management during their time in custody or whilst
serving a community sentence. It is also
Sex offenders represent a significant important that the impact on prisoner’s
risk of harm to communities, ruining families is recognised and interventions are
lives and placing a considerable demand made to reduce negative consequences.
on the police and partner agencies.
We have introduced a joint programme Many prisoners are vulnerable immediately
to assess and manage offenders after release from prison, particularly if
and reduce the risk they pose. The they don’t have access to employment or
programme is also seeking to prevent suitable accommodation which may lead
further harm and increase efficiency, them to re-offend.
by targeting interventions through new
ways of working, for example by using
polygraph testing with sex offenders
being managed in the community.
Specialist research, data modelling and
forecasting is being used to examine
the offender population to help develop
effective systems to manage offenders.
The programme hopes to deliver a better
understanding of types of offending
beyond simple risk levels and analysis
of existing criminal justice processes to
produce the evidence for change from
April 2018.
Standing together49
Others who have offended or who are
at risk of offending may have learning
difficulties, disabilities or autism. Such
people have distinctive needs that should
be incorporated in the approaches taken
to justice and rehabilitation. This requires
the involvement of other partners such as
the NHS and the community and voluntary
sector to help some of the most vulnerable
people to be diverted from the criminal
justice system earlier, and to reduce the
risk of reoffending.
Support on release and in
custody - employment, Restorative justice
learning and skills
Restorative justice brings offenders
Approximately 40% of adult prisoners together with their victims, and facilitates
report having been permanently a conversation between them which
excluded from school and 60% leave allows the victim to express the impact of
prison without gaining any skills or the offending and requires the offender
qualifications that will assist them in to see the consequences of their actions.
securing employment. The devolution The approach personalises the crime
agreement provides Greater Manchester and delivers an outcome that satisfies
with the opportunity to take more victims and the wider community and
responsibility for the lives of the prison aims to help offenders understand the
population. An integrated work and skills impact of their crime and prevent further
system is being developed which will offending. Over the next 12 months, a
identify the skills needed in the local jobs service to better co-ordinate restorative
market and train prisoners accordingly. justice across Greater Manchester will be
established.
We commit to working with the Ministry
of Justice and prison governors to
develop a resettlement prison for We commit to developing a strategy
Greater Manchester to prepare prisoners for dealing with offences out-of-court.
for release and help them to secure This will bring greater consistency in the
employment, housing and prevent use of restorative justice approaches
reoffending. across Greater Manchester ensuring that
the needs of victims are met and steps
are taken to prevent further offending.
These steps may be concerned with
rehabilitation, reparation or punishment
and set conditions the offender has to
meet.
Our plan for police, community safety, criminal justice services and citizens in Greater Manchester50
We will know we are reducing harm and
offending if, in addition to the overarching
outcomes:
»» There are fewer recidivists; particularly those who perpetrate
violence, abuse, exploitation, domestic abuse and hate
»» There is a reduction in the frequency and seriousness of
offending particularly amongst those who cause the greatest
harm including sex offenders
»» Justice is perceived to be fair and equitable
»» There is increased confidence in the way the criminal justice
system treats offenders
»» There is increased confidence in restorative approaches,
rehabilitation/recovery – of those who have harmed
»» There is public confidence in how serious and organised crime is
managed
»» There is public confidence in counter-terrorism
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