Thematic learning issued to address cultural concerns in nine linked investigations– Metropolitan Police Service, June 2018

We investigated nine linked inquiries known collectively as Operation Hotton, following referrals from the Metropolitan Police Service (MPS). The allegations stemmed largely from conduct matters occurring between 2016 and 2018.

In total, we investigated 14 police officers. Most officers held the rank of police constable and the majority were based at Charing Cross Police Station. Most of the officers worked on Impact Teams which dealt with disorder and crime in the West End. These teams have now been disbanded.

Operation Hotton began with an allegation of bullying and sexual harassment. The matter was referred to us in June 2018. The progressive investigation strands included the following allegations:

• bullying, harassment and sexual harassment of other police officers
• police officers having sex while on duty
• concerns a police officer assaulted his partner and demonstrated misogynist behaviour and actions
• the use of steroids by police officers
• deletion of material that was relevant to an ongoing criminal investigation
• officers engaging in conversations on WhatsApp that were discriminatory in nature
• failure to report, challenge, or appropriately deal with such allegations

During our investigation, we obtained and reviewed a substantial volume of evidence. To progress Operation Hotton, we carried out an extensive witness appeal. Due to the number of officers implicated in conduct matters and our concerns about possible systemic issues, we approached the MPS for assistance in securing cooperation from further police witnesses to prove or disprove the allegations. We reviewed statements and held meetings with witnesses in response to the witness appeal. We also reviewed detailed meeting notes between MPS officers and our investigators.

We interviewed subject officers and took statements from police colleagues who had worked either directly or indirectly with any subject officer. While investigating specific allegations, we seized electronic devices and analysed content on mobile and IT equipment belonging to officers. We also reviewed relevant data from MPS databases.

Throughout Operation Hotton, we cross-referenced evidence gathered from different strands of the investigation. We also compared the evidence to relevant policing policies, procedures, and guidance. We continuously consulted ‘The Code of Ethics’ which sets out the principles and standards of behaviour that will promote, reinforce and support the highest standard from everyone who works in policing in England and Wales.

Our investigation concluded in March 2020. We waited for all associated proceedings to be complete before publishing our findings. All misconduct meetings and hearings were finalised in September 2021.

14 officers were put under notice that they were being investigated. Two officers were dismissed for gross misconduct and put on the barred list preventing future employment with the police. One of the officers resigned prior to these hearings. A further four officers attended misconduct meetings and a fifth would have attended a misconduct meeting had they not resigned from the force. A further two officers received Management Action and another officer received practice requiring improvement. One of the officers who attended a misconduct meeting also received practice requiring improvement.

Certain officers were subject to investigation across multiple strands. Our findings have been grouped by each investigation strand. 
The officer to which the original allegation related to, was criminally investigated, and found guilty of Improper use of public electronic communications network under Section 127 of the Communications Act 2003. The officer was dismissed and placed on the barred list.

Three officers had a case to answer for misconduct in relation to failing to report, challenge, or appropriately deal with the allegation of bullying, sexual harassment and harassment. A disciplinary panel proved misconduct for all officers. One officer received a written warning while two officers had no further action.

The main allegation regarding sex in a police station was not proven however misconduct was proven by a disciplinary panel for an officer’s failure to report or challenge the alleged conduct. The officer received management action.

Gross misconduct was proven for two officers concerned with a police officer assaulting his partner, misogynist behaviour/actions and drug use. Both officers were placed on the barred list.

Gross misconduct was proven for an officer during the investigation into alleged steroid use and the failure to challenge or report this conduct. The officer was placed on the barred list. Another officer received management action after misconduct was proven.
One of our investigation strands was discontinued and resulted in no further action.

Gross misconduct was proven for an officer subject to the allegation that evidential material, relevant to an ongoing criminal investigation, was deleted. The officer was placed on the barred list and another officer received management action.

Gross misconduct was proven for two officers subject to an allegation that discriminatory actions and behaviours were identified from WhatsApp messages. Both officers were placed on the barred list. Additionally, six officers received management action. 
Misconduct was proven for an officer subject to the allegation that they engaged in conversations that were discriminatory in nature. The allegation that two officers engaged in sexual activity while on duty was not proven. An officer resigned prior to the completion of the misconduct investigation.

Each investigative strand had its own final report that dealt with the alleged conduct. However, throughout the course of the investigation, concerns emerged about cultural and structural issues.

We identified behavioural themes about the attitudes and behaviour of police officers that ran through the investigations. These included bullying and aggressive behaviour; ‘banter’ used to excuse oppressive and offensive behaviours; discrimination; toxic masculinity, misogyny and sexual harassment; challenging and reporting improper conduct.

We also found several structural issues relating to working practices that enabled the behaviour to go unchecked. Such working practices included the nature of work, shift patterns, isolation and acting up in unofficial promotions.

To address these cultural issues, we issued organisational learning to the MPS. We made 15 learning recommendations to improve policing and public confidence in the police complaints system and prevent a recurrence of similar incidents, under Paragraph 28A of Schedule 3 of the Police Reform Act 2002.

We issued a learning report to the MPS with our thematic findings.