By Elodie Rolls, Yasmin Youle and Charlotte Hartwright
Domestic abuse (DA) is a widespread crime. According to the Crime Survey for England and Wales, about 4.4% of people aged 16 and over experienced DA in a single 12-month period. This means approximately 2.1 million people were victims of DA in just one year (Office for National Statistics, 2023). The Government’s plan to tackle DA, announced in 2022, included the establishment of interventions for perpetrators, such as electronic monitoring (EM) for high-risk individuals. The Domestic Abuse Perpetrators on Licence (DAPOL) scheme was launched in August 2023 in two probation regions, the East Midlands and the West Midlands. DAPOL requires adult offenders at risk of committing DA to wear an electronic tag upon leaving prison, if deemed necessary and proportionate as part of the formal licence planning process. The scheme aims to strengthen offender management, help victims feel safe following the release of the abuser, and help prevent further offending. An evaluation of DAPOL was commissioned by His Majesty’s Prison and Probation Service (HMPPS). It will involve three types of evaluation: process, impact, and economic. This report presents findings from a process evaluation conducted during the first few months of delivery. The findings can be used to inform expansion of the scheme, prior to assessing impacts. 1.1 Evaluation Objectives The research was undertaken during the first six months of delivering the DAPOL scheme. The evaluation aimed to address four objectives: • To gather evidence that describes the context in which DAPOL was delivered (see Sections 4 and 8). • To collect evidence on how DAPOL was used by practitioners (see Section 5). • To provide a descriptive analysis of compliance and any early perceived impacts (see Sections 6 and 7). • To identify facilitators and barriers to the implementation of DAPOL (see Section 8). These objectives centred on understanding early implementation of the DAPOL pilot. This ensured that lessons learned could be embedded prior to any expansion and assessment of impact. The research comprised three strands: primary data collection through interviews and surveys with people on probation and staff working with EM or DA, an analysis of management information (quantitative) data, and qualitative analysis of probation case management records. By triangulating findings across these data sources, the research team aimed to capture the complexity surrounding the implementation of DAPOL. 1.2 Key Findings There were 442 DAPOL orders during the six-month evaluation period. Key findings are summarised below: • The scheme was used to manage high risk individuals with complex criminogenic needs. Probation practitioners typically used DAPOL with prison leavers who had a history of violent offending, stalking and harassment, and those with an elevated risk of perpetrating DA. People supervised under the scheme often had attitudinal and psychosocial risks relating to relationships, thinking and behaviour, and pro-criminality. EM was used alongside other licence conditions such as alcohol monitoring, freedom of movement, non-contact, supervised contact, disclosure of information and (notification of) relationships. The profile of people on the scheme was consistent with established predictors of DA perpetration (e.g., Costa et al., 2015), suggesting that DAPOL was applied with reasoned professional judgement around DA risk. • To gather evidence that describes the context in which DAPOL was delivered (see Sections 4 and 8). • To collect evidence on how DAPOL was used by practitioners (see Section 5). • To provide a descriptive analysis of compliance and any early perceived impacts (see Sections 6 and 7). • To identify facilitators and barriers to the implementation of DAPOL (see Section 8). These objectives centred on understanding early implementation of the DAPOL pilot. This ensured that lessons learned could be embedded prior to any expansion and assessment of impact. The research comprised three strands: primary data collection through interviews and surveys with people on probation and staff working with EM or DA, an analysis of management information (quantitative) data, and qualitative analysis of probation case management records. By triangulating findings across these data sources, the research team aimed to capture the complexity surrounding the implementation of DAPOL. 1.2 Key Findings There were 442 DAPOL orders during the six-month evaluation period. Key findings are summarised below: • The scheme was used to manage high risk individuals with complex criminogenic needs. Probation practitioners typically used DAPOL with prison leavers who had a history of violent offending, stalking and harassment, and those with an elevated risk of perpetrating DA. People supervised under the scheme often had attitudinal and psychosocial risks relating to relationships, thinking and behaviour, and pro-criminality. EM was used alongside other licence conditions such as alcohol monitoring, freedom of movement, non-contact, supervised contact, disclosure of information and (notification of) relationships. The profile of people on the scheme was consistent with established predictors of DA perpetration (e.g., Costa et al., 2015), suggesting that DAPOL was applied with reasoned professional judgement around DA risk. the early stages of this scheme, it is likely that demand will increase with further expansion of DAPOL. This may result in more demand for GPS tagging equipment. This report also found qualitative evidence that location monitoring was more time consuming to manage. Therefore, the potential for a greater time cost to supervise DAPOL cases should also be considered.
Ministry of Justice Ministry of Justice Analytical Series, London: UK Ministry of Justice, 2024. 77p.
