Policing, child protection and domestic violence and abuse

The Rethinking domestic abuse in child protection (RDAC) research project aims to better understand and improve the national response to domestic abuse and child protection. A new open access publication explores some of the issues concerning the policing of domestic violence and abuse (DVA) where children are involved.

In 2022, over 650,000 children were referred to children’s social care (CSC), up 8.8% from 2021 and 1.1% from 2020. Referrals from the police remained the most common source of referral - accounting for three in every ten referrals. It is estimated that around half of all DVA call-outs recorded by the police indicate children present, and most of the high and medium risk survivors of DVA have children. These children are victims in their own right, as set out in the Domestic Abuse Act 2021, even if they are not physically harmed.

Reviews conducted by His Majesty's Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS) concerning the policing of domestic violence and abuse have raised concerns regarding the increase in referrals to CSC. They discuss the delicate balance between ensuring victim-survivors are protected without overwhelming CSC capacity. Some have also voiced concerns that this increase in referrals could be related to an approach by police that is too cautious.

The review highlighted a belief amongst frontline police that their role is shifting towards a social services focus, which can at times impact their relationships with victims-survivors. An example of this is the use of the Domestic Violence Disclosure Scheme which is intended to allow partners to identify a potential risk of DVA. However, evidence suggests that the scheme can sometimes be used by CSC as part of parenting assessments.

Also notable were concerns about a lack of consistency in policies published by local Safeguarding Partnerships regarding the referral procedure when there is a risk to children due to potential DVA. These included the variety of risk assessment tools used and/or transparency regarding these tools, as well as the recognition and recording of children as victims, irrespective of direct harm.

Whilst faced with a large quantity of information, studies identified in the review suggest that police officers tend to make judgements regarding risk and referral based on a small number of factors. This includes victim/survivors’ level of fear, the escalation of incidents, the number of prior incidents and the use of alcohol and drugs.

The value and utility of the Domestic Abuse, Stalking and Harassment and Honour-Based Violence (DASH) risk assessment tool remains highly contested in the literature, particularly when it comes to predicting risk accurately and owing to the impact of police presence on victim-survivor responses known as ‘officer effect’. As Myhill and colleagues argue, a police officer’s age, ethnicity, gender, and or professional ranking can often shape how a person answers the DASH. This turn can influence the accuracy and reliability of the DASH as a tool for identifying risk. Indeed, the ways in which the intersections of ethnicity, race, and gender shape how victim-survivors and their families engage with police is a significant issue in British policing, however, it was beyond the scope of this review.

The extent to which the DASH assessment prioritises physical harm over non-physical coercive and controlling behaviours can also present problems, in addition to inconsistency in the ways the assessments are completed by different police forces. To counter these challenges, some studies suggest machine learning may offer a more reliable predictor of future risk. However, other studies have documented concerns that the use of machines could obscure the voices of victim-survivors given the over-reliance on police data which has its own limitations.

However, whole-systems responses that take a public health approach to the prevention and reduction of DVA via multi-agency Violence Reduction Units indicate an improvement in data collation and sharing, targeted interventions and a more trauma-informed approach. While evaluations of these are primarily process focused as opposed to outcome focused, these types of multi-agency responses that bring key partners together,  including police and CSC suggest an improved response to DVA.

Evidence has long shown that the separation of partners is a significant factor in the increase of risk and severity of violence. Data concerning the risks posed to victim-survivors and their families after an (ex)partner has been released from prison tells us that several factors are consistently present, including a lack of information sharing, a limited number of programmes to support those that harm and poor risk assessments and monitoring.

There are many points at which the intersection between policing and children’s social care overlap, which can both facilitate and restrict referrals for interventions and support, or notifications for further risk assessment. These intersections can also risk duplication or lead to an approach that is too cautious, which could overwhelm services. 

To provide effective support for victims and survivors of DVA, it’s important for police and children’s social care to work together.