Source · Select Committees · Home Affairs Committee
First Report - Violence and abuse towards retail workers
Home Affairs Committee
HC 141
Published 29 June 2021
Recommendations
7
Acknowledged
Ensure government learns lessons from pandemic and provides clear guidance for future restrictions.
Recommendation
A lack of clarity with regards to Government guidelines on mask wearing and social distancing exacerbated an already difficult situation for retailers in the early days of the pandemic. If in future new public health restrictions are required the Government …
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Government Response Summary
The government agreed to work closely with retailers to ensure any future public health restrictions and guidance are clear and workable, stating that BEIS and DEFRA will continue this engagement.
Home Office
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9
Not Addressed
Para 57
Police guidance for retail workers insufficient to address perception of inaction on retail crime.
Recommendation
We welcome the guidance for retail workers on when to use emergency and non- emergency numbers when seeking a police response and, in particular, setting out risk factors which will help the police respond appropriately to incidents. However, we do …
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Government Response Summary
The government details existing and ongoing work by the National Retail Crime Steering Group (NRCSG) and its Task and Finish groups, including the establishment of two new groups on substance misuse and information sharing. However, the response does not specifically outline new actions to address the committee's concern about the perception that police 'don't care' about retail crime.
Home Office
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10
Accepted in Part
Para 70
Police forces inadequately record data on assaults against shopworkers and retail crime.
Recommendation
We welcome the Government’s work to provide better guidance and support for retail workers on reporting retail crime. However, it is deeply disappointing that the main thrust of the Government’s response to shopworkers, who have lost confidence in the police …
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Government Response Summary
The government agrees that incidents must be reported and acknowledges current data under-reporting. It commits to working with the National Business Crime Centre to consider options for adding more granularity to crime recording, but notes consultation will be needed to assess the administrative burden on police forces.
Home Office
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11
Deferred
Para 71
Mandate adding a "business crime flag" to offences committed in retail environments.
Recommendation
As a starting point, we recommend that it is made mandatory to add a “business crime flag” to offences committed in a retail environment, including assaults on retail Violence and abuse towards retail workers 63 workers. This simple step would …
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Government Response Summary
The government commits to working with the NBCC to consider options for adding more granularity to police recorded crime data, acknowledging that any changes would require consultation with the police service to assess administrative burden and value.
Home Office
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14
Acknowledged
Para 78
Require Police and Crime Commissioners to establish Business Crime Reduction Partnerships and retail crime plans.
Recommendation
As local representatives Police and Crime Commissioners are well placed to understand the specific issues facing the retail community in their area and to ensure police forces focus attention on this critical issue. Collaboration between police and retailers to identify …
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Government Response Summary
The government acknowledges the importance of reporting and commits to working with relevant bodies to scope options for online business crime reporting and to consider how to encourage the creation of Business Crime Reduction Partnerships, alongside highlighting existing police funding and the Safer Streets Fund.
Home Office
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15
Not Addressed
Few Police and Crime Commissioners prioritise violence against retail workers in crime plans.
Recommendation
We strongly support calls for Police and Crime Commissioners to make action on violence and abuse towards retail workers a priority in police and crime plans. We are very concerned how few appear to have prioritised this in past plans, …
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Government Response Summary
The government's response details funding for additional police officers and the Safer Streets Fund, which has been expanded to include commercial areas and has allocated funds to projects focused on commercial settings. However, it does not directly commit to the committee's specific recommendation for PCCs to prioritize violence against retail workers or establish related performance metrics in their police and crime plans.
Home Office
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16
Not Addressed
Para 80
Require Chief Constables to improve monitoring, recording, and response to violence against shopworkers.
Recommendation
Chief Constables must do much more to demonstrate that they recognise the human cost of escalating violence and abuse against shopworkers. They need to ensure they have proper systems in place for monitoring and recording. Most importantly, they need to …
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Government Response Summary
The government acknowledges the current lack of mandatory recording for business crime and violence against shop staff due to data system challenges. It states that victims must report violence accurately and that existing sentencing guidelines already treat offenses against public-facing workers as an aggravating factor, but does not commit to the recommended actions for Chief Constables.
Home Office
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17
Not Addressed
Para 85
Lack of neighbourhood policing capacity damages retail worker confidence and crime prevention efforts.
Recommendation
The lack of capacity in neighbourhood policing teams to build relationships with retailers, identify prolific offenders and respond swiftly to incidents of retail crime has damaged the confidence of retail workers. It has made it harder to maintain close relationships …
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Government Response Summary
The government highlights its commitment to recruiting 20,000 additional police officers and the funding provided for territorial policing. However, it does not specifically commit to prioritising or ring-fencing these new resources for neighbourhood policing teams, as recommended.
Home Office
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19
Deferred
Para 90
Provide central funding for the continued operation of the National Business Crime Centre.
Recommendation
The Home Office work to tackle violence and abuse against shopworkers over the last twelve months has been welcome. But the temporary working groups they set up to draw up new guidance are not sufficient to deliver sustained change or …
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Government Response Summary
The government did not commit to providing central funding for the continued operation of the National Business Crime Centre, instead stating national leadership is provided by the ongoing National Retail Crime Steering Group and only considering funding an online reporting service if a viable option is identified.
Home Office
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20
Acknowledged
Para 95
Provide greater government support for Business Crime Reduction Partnerships, involving shopworkers and employers.
Recommendation
Business Crime Reduction Partnerships have huge potential to improve communication and collaboration between the police, local retailers and local authorities on the issue of retail crime. Tailoring the policing response to areas of particular vulnerability, identifying repeat offenders, and developing …
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Government Response Summary
The government stated it will continue to work with relevant bodies to consider what more can be done to encourage the creation of Business Crime Reduction Partnerships but deflected the recommendation to involve shopworkers and major employers to the NABCP and individual BCRPs for consideration.
Home Office
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21
Accepted
Actively encourage Safer Streets Fund bids for shop worker safety, setting this as a future priority.
Recommendation
We welcome the additional money available to local authorities and Police and Crime Commissioners to spend on preventative measures via the Safer Streets Fund. However, we note that none of the funding rounds have placed any emphasis on preventative measures …
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Government Response Summary
The government stated that it has already made clear the Safer Streets Fund welcomes bids for measures improving shopworker safety, with the second round expanded to include commercial areas, and the third round (Autumn 2021) will have a broader focus on reducing violence.
Home Office
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23
Accepted in Part
Set out clear government guidance for employers on supporting retail workers and mitigating crime risks.
Recommendation
We welcome the Government’s creation of downloadable digital assets for the #ShopKind campaign which we hope will raise awareness amongst the public about retail crime and its impact on shop workers. However, we think this action completely fails to address …
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Government Response Summary
The government highlights ongoing support for victims through NRCSG resources and future work with restorative justice charities. It commits the Home Office and NRCSG to review existing resources and consult on the creation of an Employers Charter, in conjunction with the Suzy Lamplugh Trust, to provide additional advice, training, and support for victims and employers.
Home Office
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24
Acknowledged
Para 108
Agree an Employers Charter for retail workers, based on Suzy's Charter, with industry groups.
Recommendation
We applaud the work of the Suzy Lamplugh Trust in creating Suzy’s Charter, a far more effective and useful tool than the Government’s guidance for securing the safety of retail workers. The Government’s lacklustre endorsement of the Charter, a fleeting …
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Government Response Summary
The government committed to reviewing existing resources and will consult with the National Retail Crime Steering Group about whether they would support the creation of an Employers Charter for retail workers, using Suzy’s Charter as a template.
Home Office
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28
Acknowledged
Para 118
Include specific 'tool kit' material in government resources to support employers mitigating retail crime.
Recommendation
We recommend that the Government’s resources, which would be particularly beneficial for independent shops and small businesses, additionally include specific ‘tool kit’ style material to support all employers to take the following actions: • An internal communication campaign to encourage …
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Government Response Summary
The government acknowledges existing resources and states it will review these resources with the NRCSG, giving full consideration to the committee's recommendation for further toolkit material when planning future work.
Home Office
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29
Deferred
Require local authorities to work with police to identify vulnerable high streets and plan security bids.
Recommendation
We also encourage large national retailers to play a leading role in local business partnerships, working with local councils and the police to encourage and include small independent high street retailers in security measures including CCTV or local communication networks …
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Government Response Summary
The government defers this recommendation to local authorities, noting that the scope and timescales for the Safer Streets Fund bidding process are detailed elsewhere.
Home Office
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31
Acknowledged
Provide sustainable central funding for national rehabilitation programmes and ring-fenced funds for local services.
Recommendation
We welcome the new funding the Home Office will be providing for drug treatment. However, it is only for one year, when sustainable increased funding is needed for ongoing services. We recommend that the Government makes central funding available for …
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Government Response Summary
The government refers to future plans to be set out after the Spending Review for tackling drug misuse and improving treatment, but explicitly states it has no plans to prescribe how enforcement partners use proceeds of crime funds for rehabilitation.
Home Office
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34
Deferred
Para 151
Retail workers enforcing laws and facing risks deserve equal legal protection as emergency workers.
Recommendation
Retail workers are responsible for enforcing laws with regard to age-restricted sales and restricted goods such as medicines or weapons. It is well established that conflict over these types of sales is a key trigger for violence and abuse. The …
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Government Response Summary
The government acknowledges existing laws treat offences against public sector workers seriously, but commits to considering an amendment to the Police, Crime, Sentencing and Courts Bill in the Lords, and will take into account the Protection of Workers (Retail and Age-restricted Goods and Services) (Scotland) Act 2021.
Home Office
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35
Acknowledged
Para 152
Consult urgently on scope of new specific offence for enhanced legal protection of retail workers.
Recommendation
We believe there is a strong case for extra protection in law for retail workers through a specific offence. The Government should consult urgently on the scope of the offence, recognising the particular pressure on those in different occupations who …
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Government Response Summary
The government's response is only a heading, 'Strengthening the legal framework,' offering no specific commitment or detail regarding the recommendation.
Home Office
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36
Deferred
Para 162
A new standalone statutory offence would powerfully reset expectations on retail worker abuse.
Recommendation
Violence and abuse towards retail workers is a complex and multi-faceted issue and any meaningful solution will involve a package of measures from Government, the police, employers, retail workers and the public. Legislation can only ever be one part of …
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Government Response Summary
The government acknowledges existing offences and sentencing guidelines but, in response to a tabled amendment, has committed to consider a new standalone statutory offence in the Lords if appropriate, taking into account the Protection of Workers (Scotland) Act 2021.
Home Office
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37
Deferred
Para 163
Creating specific offences for emergency workers improved prosecutions; retail workers need similar focus.
Recommendation
Early data following the introduction of the Assaults on Emergency Workers (Offences) Act 2018 suggests that the creation of a new offence is having a positive impact on prosecution rates for that crime. We note that even though it was …
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Government Response Summary
The government notes existing offences and aggravating factors for assaults against workers, but commits to considering an amendment in the Lords and taking into account the Scottish Protection of Workers Act to address violence and abuse towards retail workers.
Home Office
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39
Acknowledged
Consult urgently on a new standalone offence to protect retail workers from violence
Recommendation
The text of the Protection of Workers (Retail and Age-restricted Goods and Services) (Scotland) Act, having undergone lengthy consultation and close scrutiny, provides a potential starting point. As we have previously recommended, the Government should consult urgently on the scope …
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Government Response Summary
The government highlights existing legal protections but commits only to considering an amendment in the Lords if appropriate and to taking the Scottish Act into account during this consideration, rather than committing to an urgent consultation.
Home Office
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Conclusions (18)
1
Conclusion
Deferred
Para 10
No one should encounter violence at work. The last 5 years has seen a shocking rise in attacks on retail workers. We find it very disturbing that violence and abuse towards those working in the retail environment is becoming endemic in British society. The appalling truth, exposed comprehensively by data …
Government Response Summary
The government acknowledges the unacceptable rise in violence against retail workers, highlighting existing legal offences and sentencing guidelines that treat such assaults as aggravating factors. It also commits to considering a legislative amendment in the Lords, taking into account the Protection of Workers (Scotland) Act 2021, to address the issue further.
2
Conclusion
Deferred
Para 15
The appalling abuse suffered by retail workers on a daily basis is completely unacceptable. Abuse should never be “simply part of the job” or accepted as a “norm” in any workplace. The unique vulnerability of retail workers, who face being confronted with repeat offenders who live in their local area, …
Government Response Summary
The government expresses sympathy and states that existing offences and sentencing guidelines already address violence against retail workers. However, it also commits to consider a legislative amendment in the Lords, taking into account the Scottish Act, in response to the ongoing issue.
3
Conclusion
Accepted
Para 25
Where shopworkers are confronted by hate-motivated abuse in the course of their employment this should be taken seriously by employers and reported to the police. It is vital that the police, in dealing with these incidents, manage them with sensitivity and give them the attention that they deserve. We support …
Government Response Summary
The government stated that the 2020/21 Commercial Victimisation Survey, currently underway with results due March 2022, already includes questions on hate-related violence as recommended, and an Expert Reference Group will review its coverage in Spring 2022.
4
Conclusion
Accepted in Part
Para 29
There are several factors driving the increase in violence and abuse towards retail workers over the last 5 years. However, the primary factor appears to be increasing levels of acquisitive theft which are linked to both organised crime and prolific offenders with substance addiction problems. By comparison, conflict over the …
Government Response Summary
The government is committed to tackling drug misuse, which drives acquisitive crime, referencing Dame Carol Black’s review. It details £80m investment in drug treatment and recovery for 2021-22, additional funding for rough sleepers, extension of the Individual Placement and Support programme, and expansion of Project ADDER to address drug dependency and prevent related offending.
5
Conclusion
Accepted
It is unconscionable that violence and abuse towards retail workers has further increased during the Covid-19 pandemic. These are individuals who have been working on the frontline and have put their lives at risk to ensure that the public could access essential items such as food and medicine. At a …
Government Response Summary
The government response details existing measures, including interim sentencing guidance for Covid-19 related assaults and revised guidelines with aggravating factors, published safer working guidance, and ongoing collaboration between BEIS/DEFRA and retailers to ensure Covid-19 related safety.
6
Conclusion
Accepted
Para 37
We welcome the revised guidance from the Sentencing Council which makes the despicable act of deliberate spitting or coughing an aggravating factor for common assault. However, we note that incidents of offenders threatening to spit or cough would not be covered by its terms and regret that the sentencing guidelines …
Government Response Summary
The government clarifies that the revised common assault guideline includes a new high-culpability factor for 'intention to cause fear of serious harm, including disease transmission', which addresses threats to spit or cough related to Covid-19.
8
Conclusion
Acknowledged
Para 56
The Committee has heard overwhelming evidence that the policing response is simply failing to match the rising tide of violence and abuse against retail workers. The evidence also suggests that the response varies significantly between police forces: while there are examples of good practice, on far too many occasions retail …
Government Response Summary
The government outlines the ongoing work of the NRCSG and its task groups in producing resources for retailers on crime reporting, data sharing, and victim support, and notes the establishment of two new Task and Finish groups on substance misuse and information sharing.
12
Conclusion
Deferred
Para 72
However, we recognise that the current broad definition of “business crime”, which encompasses cybercrime, fraud or theft at an unoccupied business premises has limitations when it comes to tackling assaults on shop workers. The broad definition does not distinguish between crimes which result in financial loss to businesses and crimes …
Government Response Summary
The government agrees the issue is not about financial loss and will work with the NBCC to consider options for adding more granularity to police recorded crime data to better distinguish violence against retail workers.
13
Conclusion
Acknowledged
Para 73
We therefore recommend that the National Business Crime Centre work with the National Police Chiefs’ Council to agree a better long-term way to identify and properly measure the violence and abuse suffered by retail workers in the crime statistics gathered by local police forces. We appreciate that the definition of …
Government Response Summary
The government is working with the NPCC to consider options for adding more granularity to crime data for violence against retail workers, acknowledging the need for police consultation on administrative burden, but did not commit to implementing a specific new flag.
18
Conclusion
Acknowledged
Para 89
There is clearly an issue with the consistency of the policing response to retail crime across the country. In light of this finding, the Committee was disappointed to learn that the Government is no longer directly funding the work of the National Business Crime Centre. The National Business Crime Centre …
Government Response Summary
The government explains that national leadership is provided by the NRCSG and that while the NBCC will not be directly funded, it will receive appropriate government support and the Home Office will work with them to scope and potentially fund online business crime reporting services.
22
Conclusion
Accepted in Part
Para 106
Employers have a duty of care and play a vital role in ensuring their employees have the confidence to report incidents, and the appropriate support to deal with difficult situations. Evidence from our public survey, and the Government’s 2019 call for evidence, suggests that many retail workers are not getting …
Government Response Summary
The government highlights existing support for victims through NRCSG resources, including webinars and case studies, and ongoing work with restorative justice charities. It also commits the Home Office and NRCSG to review current resources and consult on creating an Employers Charter to enhance advice, training, and support for victims and employers.
25
Conclusion
Deferred
Para 116
Smaller retailers are much less likely to have access to security expertise or investment in technology and, as many have been heavily affected by the pandemic, they may also struggle to find additional funds to invest in the area. Small local high street shops sometimes have only one member of …
Government Response Summary
The government acknowledges the specific vulnerability of smaller retailers and their workers. While noting existing resources, it commits the Home Office and NRCSG to review these resources and give full consideration to the committee's recommendation when planning future work.
26
Conclusion
Acknowledged
Para 117
The Committee was impressed by this range of solutions and the potential of new technology to improve both the safety of retail workers and the ability to gather evidence about incidents of retail crime. The methods described above, such as body worn video cameras, headsets for internal communication, counselling services …
Government Response Summary
The government acknowledges that while useful resources have been created, more is needed, and commits the Home Office and NRCSG to review existing resources and fully consider the Committee's recommendation for future work.
27
Conclusion
Acknowledged
Para 118
The guidance provided by the Government and the National Retail Crime Steering Group, published nearly 10 months after the response to the call for evidence, amounts to eight A4 pages of highly general advice followed by 10 pages of example statements and reports. While elements such as the short de-escalation …
Government Response Summary
The government acknowledges that while useful resources have been created, more is needed, and commits the Home Office and NRCSG to review existing resources and fully consider the Committee's recommendation for future work.
30
Conclusion
Accepted
Para 131
The Government has acknowledged that drugs play a significant role in a large number of crimes and with prolific offending in particular. Yet, one year on from the Government’s response to the call for evidence on violence and abuse toward shop staff, work to develop the evidence base regarding the …
Government Response Summary
The government details its commitment to tackling drug-driven crime, referencing Dame Carol Black's review and ongoing work including £80m investment in drug treatment and the expansion of Project ADDER to eight additional sites.
32
Conclusion
Deferred
Para 143
The everyday experiences of retail workers show that the current framework is too often failing to protect them from abuse, provide justice for victims or a deterrent for offenders. With prosecution rates vanishingly small, the existence of an aggravating factor in the sentencing guidelines is not sufficient to deal with …
Government Response Summary
The government acknowledges the issue, states existing laws and sentencing guidelines address assaults on workers, and commits to considering a legislative amendment in the Lords and taking the Scottish Act into account.
33
Conclusion
Deferred
Para 150
Retail workers, by the very nature of their employment, are placed at an increased risk of violence and abuse compared to members of the general public. They are 68 Violence and abuse towards retail workers vulnerable to repeat offenders who are able to return time and again to stores, compounding …
Government Response Summary
The government expresses understanding and sympathy for retail workers facing abuse, acknowledging existing legal protections. They commit to considering an amendment in the Lords and reviewing the Scottish Protection of Workers Act to potentially address the identified unique vulnerabilities.
38
Conclusion
Accepted
Para 164
The patchwork of existing offences for prosecuting incidents of violence and abuse against individuals is not effective enough to address the escalating scale and nature of offences committed in the retail setting. Introducing a new statutory offence would bring the following benefits: Violence and abuse towards retail workers 69 • …
Government Response Summary
The government highlights existing measures by the Sentencing Council, including interim guidance on Covid-19 related assaults from April 2020 and revised assault sentencing guidelines from May 2021, which address aggravating factors for common assault.