I am writing to you in response to His Majesty’s Inspectorate of Constabulary and Fire and Rescue Services (HMICFRS) inspection of early adopter forces in introducing the Soteria approach, published on the 22nd August 2024. Operation Soteria focuses on improving the police response to rape and serious sexual offences (RASSO) investigations and is of importance in ensuring victims of this horrendous crimes are supported effectively and that offenders are brought to justice swiftly.
The report makes 14 recommendations in total, with 5 for Chief Constables.
Whilst West Mercia Police aren’t included as an early adopter force, as Police and Crime Commissioner (PCC), I welcome the opportunity to respond to the findings. Below I set out progress underway by the Chief Constable to address the recommendations and the wider support and activity provided in my role as PCC.
Recommendation 3: By 31 January 2025, all forces should make sure personnel working on rape and other serious sexual offences receive College of Policing approved training on the investigation of word-on-word cases.
I am reassured that West Mercia Police has already begun preparations to meet this target with comprehensive training underway. Training for word-on-word cases is included in a number of training programmes such as the Rape and Serious Sexual Offences Investigation Skills Development programme (RISDP) undertaken by investigators working on RASSO cases. A cohort of officers are already trained in
RISDP with a further course before the end of 2024 and 4 more courses booked in 2025 to ensure that all officers receive appropriate training.
West Mercia Police will work with CPS colleagues through their Joint Operational Improvement Meetings to ensure lawyers are also trained on word-to-word cases to achieve positive outcomes at the earliest stage for victims.
Recommendation 5: By 31 July 2025, chief constables should make sure their forces use the new definition of repeat rape and other serious sexual offences suspects to identify and manage them.
I am committed to ensuring that our force takes this seriously, identifying repeat offenders is crucial in preventing further harm and protecting victims.
I am advised that West Mercia Police are awaiting the National Police Chief Coordination Centre definition to be agreed before they can adopt it. Until that point repeat suspects continue to be identified across RASSO and wider VAWG space through use of high harm data.
A pilot being launched in the Shopshire policing area identifies the monthly top 10 highest harm and top 10 highest frequency VAWG offenders. The nominals are then reviewed for appropriate disruption and management to take place. This is expected to be rolled out force wide mid-autumn to provide a consistent approach for members of the public in tackling those posing the most risk.
Recommendation 7: By 31 January 2025, all chief constables should make sure their forces prioritise identifying and disrupting rape and other serious sexual offences (RASSO) suspects. This includes making sure that:
- forces track, manage and respond effectively to breaches of bail and protection orders in RASSO cases; and
- all relevant personnel complete National Operating Model training.
‘Putting victims and survivors first’ and ‘Building a more secure West Mercia’ are key focuses of my Safer West Mercia Plan, as victims need confidence that their perpetrators are being closely monitored and that breaches of orders will be acted on swiftly.
West Mercia Police has seven RASSO Single Points of Contact (SPOCs) whose key role is to review all RASSO offences within the first seven days of reporting. These SPOCs actively explore civil intervention opportunities and ensure that the necessary applications are submitted promptly to enhance victim protection and offender management. This is supported by daily management meetings within each local policing area, focusing on suspects subject to civil interventions, those under police or court bail conditions, and high-risk outstanding arrests—including RASSO suspects.
Additionally, the Digital Intelligence and Investigations Uplift (DIIU) team has implemented a new process where daily checks are conducted for digital opportunities in relation to high-risk RASSO cases, high-risk domestic abuse offences, and outstanding or wanted Management of Sexual Offenders and Violent Offenders (MOSOVO) nominals. This provides targeted support and enhances the use of digital evidence in these investigations.
In preparation for the rollout of CPD training from the Soteria Joint Unit, two RASSO SPOCs have completed the College of Policing’s Train the Trainer program. This will facilitate the force-wide dissemination of specialist RASSO training, equipping officers with the knowledge and skills needed for effective investigations and improving the experience for victims of these abhorrent crimes.
Funding through Safer Streets has provided opportunity to improve the force response to VAWG including Behavioural detection officers training funded through Safer Streets, also enhance our capability to identify risky behaviours, particularly in the Night- Time Economy, offering further protection to potential victims.
Recommendation 9: By 31 January 2025, chief constables should make sure their forces have good processes in place for applying to retain DNA and fingerprints to improve their use of section 63G of the Police and Criminal Evidence Act 1984.
I continue to support investment in forensic capabilities, including a capital investment of £870,000 in our Sexual Assault Referral Centres (SARCs) in West Mercia. This investment will ensure that SARCs meet the Forensic Accreditation Standard ISO 15189 and further improve the forensic processes essential to RASSO investigations and achieving the best outcomes for victims.
I will continue to work closely with the Chief Constable to ensure that investment in technology and forensic capabilities continues to be a priority. West Mercia Police already has a semi-automated system in place with a clear process for retaining biometrics on police national systems when a person is arrested for a qualifying offence but subject to no further action.
Recommendation 11: By 31 March 2025, all chief constables should make sure that, as part of adopting the National Operating Model, their forces:
- develop a rape and other serious sexual offences problem profile;
- include the National Operating Model flight deck within their strategic performance monitoring; and
- adopt any key performance indicators that are agreed and published by the Soteria Joint Unit.
Domestic abuse and sexual violence have no place in our society and yet they continue to adversely affect the lives of many people, for some on a daily basis. Domestic abuse features in 1 in 5 crimes in West Mercia. I will ensure that domestic abuse and sexual violence in all their forms are understood and effectively responded to
West Mercia Police has developed a RASSO problem profile, which was last updated in March 2024. This profile provides valuable insights into current trends and risks, forming the foundation for a more targeted and strategic response to rape and serious sexual offences.
Of the 21 key performance indicators (KPIs) identified in the RASSO National Operating Model (NOM) flight deck, the force has determined that 6 KPIs are currently feasible, with 2 KPIs actively reported on.
Work is ongoing to assess the feasibility of 11 additional KPIs, while 4 KPIs have been identified as not currently feasible due to system limitations. The force remains committed to working towards improving system capabilities to meet these KPIs, ensuring a robust framework for measuring performance and enhancing outcomes in RASSO cases.
I recognise that measuring progress in RASSO investigations can be challenging, particularly when it comes to tracking the impact of new approaches. However, the ability to monitor and evaluate key performance indicators is critical in ensuring that victims receive justice and that our collective efforts lead to real improvements in outcomes for victims.
Whilst I am committed to providing necessary support to overcome these challenges, I will also hold the force to account for making tangible progress in this area and will monitor through my Assurance and Accountability Programme. I expect the force to deliver a clear plan to address any limitation in their data capabilities.
Assurance and Accountability
As Police and Crime Commissioner, I have a statutory duty to hold the Chief Constable to account for the effective delivery of policing across West Mercia, including a focus on VAWG through my Assurance and Accountability framework, I conduct regular scrutiny of the force’s performance on key issues, including rape and serious sexual offences (RASSO) investigations, victim support, and the implementation of VAWG initiatives.
This includes structured performance meetings, focused on tracking progress against national and local priorities such as the National Operating Model for RASSO, Victims Code of Practice compliance, and the effective use of civil interventions. I ensure that the force is held accountable for delivering timely and effective outcomes for victims, while driving continuous improvement in how the police identify, manage, and disrupt offenders.
This process extends to looking at the work of partners particularly the Crown Prosecution Service in regards to RASSO, through my Local Criminal Justice Board and Victims Board in tracking progress against the End to End Rape Review.
Commissioning
As Police and Crime Commissioner, I have prioritised significant investments and support services to improve outcomes for victims of sexual violence:
- Our commissioned ISVA services continue to support victims, with funding of £1.723 million allocated for 2024-25, supporting a range of specialist roles including Child ISVAs, Court ISVAs, and Neuro-Diverse ISVAs.
- We are investing £870,000 in our two SARCs to ensure they meet forensic accreditation standards, providing critical medical and forensic support to victims.
- I have also secured £503,000 in funding for Child Sexual Exploitation (CSE) Intervention and Prevention Services, which form an essential part of our response to sexual violence against children
Supporting victims and witnesses to cope and recover will continue to be a priority for me. However, this must be supported by sustainable funding to maintain and expand these crucial services for victims of RASSO. This will provide victims with the reassurance that the support they need will be there when they need it most.
Summary
The recommendations outlined in the HMICFRS report on Operation Soteria provide a clear framework for improving the police response to rape and serious sexual offences. I am fully committed to working with the Chief Constable and partner agencies to ensure that these recommendations are implemented within the specified timelines.
