Official Statistics

Technical Note

Published 19 January 2023

Introduction

The Electronic Monitoring statistics publication covers the use and delivery of electronic monitoring, including location monitoring tags and alcohol monitoring tags, for England and Wales. This document provides more detail on the statistics in this publication and is intended to be used as a guide.

Overview of Electronic Monitoring Statistics

Background

Electronic monitoring supports the police, courts, prisons and wider justice system in England and Wales. It is a way of remotely monitoring and recording information on an individual’s whereabouts or movements and alcohol consumption, using an electronic tag which is normally fitted to a subject’s ankle. Information about the compliance with an individual’s order is monitored. Electronic monitoring may be used:

• as a condition of court bail;

• as a requirement of a court sentence, primarily community orders and suspended sentence orders;

• for Home Detention Curfew;

• as a licence condition following release from custody;

• as a condition of immigration bail, managed by the Home Office; or

• to intensively monitor a small number of individuals including: some of the highest risk offenders managed under Multi-Agency Public Protection Arrangements (MAPPA); those granted bail by the Special Immigration Appeals Commission (SIAC); and those made subject to Terrorism Prevention and Investigation Measures (TPIMs).

Electronic monitoring was first introduced in 1999 to monitor compliance with curfews using radio frequency (RF) tags. This was expanded from November 2018 to introduce satellite enabled (GPS) location monitoring tags. The tags use GPS technology to record an individual’s movements 24 hours a day. Rollout was fully completed in March 2021 with the provision of location monitoring for under 18s.

GPS tags provide additional functionality, allowing the monitoring of:

• compliance with exclusion zones.

• attendance at a required activity or appointment.

• an offender’s whereabouts, known as trail monitoring. This can provide Probation Practitioners with data about an individual’s whereabouts to support rehabilitative conversations (this is not available for court bail and the Police Courts and Sentencing Act 2022 introduced this for Youth Rehabilitation Orders.)

• multiple conditions or requirements if necessary, such as a combination of exclusion zones, curfew, monitored attendance and trail monitoring.

More recently HMPPS has expanded the use of GPS tags to two offender cohorts:

• acquisitive crime: From April 2021 they have been used as a licence condition for adult offenders convicted of acquisitive crime as their principal offence and who have received a custodial sentence of 12 months or more and been released on licence. This is currently being piloted by 19 police forces. In late October 2022 this was expanded to those who had received a custodial sentence of 90 days or more and been released on licence.

• immigration expansion: The Immigration Act 2016 introduced a duty on the Home Office Secretary of State to impose an electronic monitoring condition on Foreign National Offenders and other non-UK citizens subject to deportation proceedings. Following this, in August 2021, HMPPS began using GPS monitoring for those individuals who had been released from Prisons or Immigration Detention under ‘Immigration Bail’ on behalf of the Home Office. This was extended to Scotland from 31 August 2022 and Northern Ireland in December 2022.

Electronic monitoring using a non-fitted device was introduced in November 2022 for the immigration cohort. These devices utilise periodic biometric verification as an alternative to using fitted GPS devices.

Alcohol monitoring was introduced to courts in Wales in October 2020 and expanded to courts in England on 31 March 2021 to support the new community sentencing option, the Alcohol Abstinence and Monitoring Requirement (AAMR). An AAMR may only be used when sentencing for alcohol-related criminal behaviour and it imposes a total ban on drinking alcohol for up to 120 days. Compliance with the ban is monitored electronically using an alcohol tag which continuously monitors for the presence of alcohol in offenders’ sweat.

It may be imposed by the court as part of a community order or suspended sentence order where:

• the offence, or associated offence, for which the requirement is being imposed, is alcohol-related;

• the subject is not alcohol dependent or has an Alcohol Treatment Requirement (ATR) recommended or in place; and

• the subject is an adult (18 years or over)

For offenders being released from custody whose offending and risk is alcohol related, an Alcohol Monitoring on Licence (AML) additional licence condition was introduced in Wales in November 2021 and rolled out in England in June 2022. There are two licence conditions available for AML:

• requires total abstinence from alcohol, or

• requires the offender to comply with requirements specified by their Probation Practitioner to address their alcohol needs, this will include limiting alcohol use.

Data Sources and Methodology

The data in this release are compiled from Electronic Monitoring Services (EMS) contractor data and Alcohol Monitoring Services (AMS) contractor data, which in turn is derived from their case management systems. Caseload information about tagged individuals, as covered in this release, is considered to be of good quality as these are data required to actively manage a case. However, due to the use of different data sources the statistics may differ from other statistics on electronic monitoring requirements provided by other data sources (such as those presented within the Offender Management Statistics Quarterly publications which are based on data held by the Probation Service).

This release contains data about:

• Monitored individuals

A monitored individual is defined as an individual with a tag fitted and (if required) a Home Monitoring Unit (HMU) installed. An individual may be subject to multiple RF and GPS orders at the same time. In this instance the cohort an individual is counted under is determined according to the following:

• if one GPS order (other than GPS bail), choose this;
• if multiple GPS orders (other than GPS bail), select the order with the longest duration;
• if multiple non-GPS orders, select the order with the longest duration;
• if multiple GPS bail orders, select the order with the longest duration.

Due to the data being captured in separate systems, individuals with an alcohol monitoring tag are counted separately to those with a non-alcohol tag. As with other tag types, an individual can have multiple alcohol monitoring orders at the same time. In this instance the individual will be counted once, under the order type with the longest duration. However, there are a few individuals who will be being actively monitored under both systems, “dual” tagged, that will be double counted if not accounted for.

• New order notifications This is a count of all new order notifications, regardless of whether a tag is fitted or whether an individual is already covered by another order.

• Completed order notifications This is a count of all completed orders, regardless of whether a tag was fitted or whether an individual is still covered by another order.

• Compliance with alcohol monitoring tags Compliance with AAMR alcohol monitoring is a cumulative measure, calculated as the total number of days in which the tags have not registered a tamper or alcohol alert divided by the total number of days the tags were fitted. Compliance over the latest quarter is calculated using the data received closest to, but prior to, the start of the quarter, and the data received closest to, but prior to, the end of the quarter. This monitoring data is also used to inform supervision for those with an alcohol tag for licence conditions (AML). Consumption of alcohol may be allowed for some offenders on licence, therefore the compliance methodology used for AAMR reporting does not provide an accurate measure of compliance for this cohort.

Caseload details are received from the contractors at a regular frequency throughout the year. We conduct a range of quality assurance checks on these to identify any errors or inconsistencies in the data. For EMS data, the monthly new starts, and monthly completions files are re-delivered at the end of the following quarter to ensure any errors in previous returns have been corrected and to ensure any late order notifications, which may have been missed from the original extracts, are included. For AMS data, the caseload file is also regularly re-delivered. We also conduct an annual reconciliation process to ensure a sample of the regular reports produced by the contractors for their internal use are consistent with the analysis produced for this release.

As a result of this activity, specific data quality concerns have been identified and adjusted as follows:

Immigration bail: In August 2021 Schedule 10 of the Immigration Act 2016 was commenced, which significantly increased the numbers to be added to EM on immigration bail. An increase was consequently seen in the number of immigration bail new start order notifications. However, a system error in the recording of these individuals incorrectly labelled many of the new immigration bail orders as not being actively monitored. Working with the Home Office and EMS we have used data about active GPS tags (those which have had activity logged within the last 7 days) to identify individuals with both a live immigration bail case order and an active tag.

Alcohol monitoring: Due to an error in the case management system there is an over recording of the number of individuals with an active alcohol monitoring tag fitted. We account for this by using the live system to identify the active tags and matching this to the caseload data.

Dual tagged: Although managed by the same contractor, alcohol tags are managed through a separate case management system. Some individuals are subject to both alcohol monitoring and electronic monitoring (RF or GPS) and so summing the number of individuals from both systems would be an over-estimate of the number of individuals subject to electronic monitoring. AMS does record whether an individual is subject to an EMS order when a new order notification is received, but this does not provide an accurate count of the number of individuals subject to both tag types on any specific date. To estimate the number covered by both EMS and AMS we link those that have a dual tag indicator on AMS and using the EMS reference (where populated), or the name and date of birth, to EMS. Where this join produces a match, and both the EMS and AMS record is a) live at that date, and b) has a tag fitted, the individual is considered as being dual tagged.

Processing changes

As part of the process of continuous improvement, following the introduction of a more automated and systematic process for adjusting the data for known data quality issues, some minor adjustments have been made to improve the coding used. This has resulted in some small changes to the overall numbers of actively monitored individuals. In advance of the next release we will be reviewing, with the Home Office, the methodology used for adjusting the number of actively monitored individuals within the immigration cohort. This may result in some revisions to the figures.

Data Limitations

This publication has been produced to the high professional standards as set out in the Code of Practice for Statistics. However, the analysis is only as good as the data upon which it is based and there is inherent uncertainty when the data is derived from diverse administrative data systems.

For example, there are a number of individuals who, according to the case management systems, are covered by a live order but do not have a tag fitted. This could be for several reasons, such as the tag not yet having been fitted. However, it can also arise from communication issues, such as the correct authority having not been informed when an individual has been recalled to prison.

Furthermore there are gaps in the evidence base that the administrative system cannot fill. Work is ongoing to address some of these limitations, including:

• Developing a measure of compliance (with the non-alcohol tags)

• Undertaking a feasibility study to link data from EMS to other data sources held centrally, such as the Probation Service’s case management system (nDelius)

• Undertaking a discovery exercise to see what we can find through other data sources held centrally with regards the demographics and protected characteristics of individuals with tags

Symbols and Conventions

The following symbols have been used throughout this publication.

Symbol	Description
0	nil
-	not available
..	suppressed (see confidentiality section)

Notes

Confidentiality

This statement sets out the arrangements in place for protecting persons’ confidential data when statistics are published or otherwise released into the public domain. The Code of Practice for Statistics states that:

“Organisations should look after people’s information securely and manage data in ways that are consistent with relevant legislation and serve the public good”. (Trustworthiness pillar, T6 Data governance)

To comply with this and with the Data Protection Act of 1998, and to maintain the trust and co-operation of those who use reoffending statistics, the following provisions have been put in place.

Private information collected by the Ministry of Justice is stored in line with Ministry of Justice data security policies. Electronic data are held on password-protected networks. All new staff undergo Ministry of Justice security vetting before receiving access to data systems, and all staff undertake mandatory training on information responsibility annually.

Three types of disclosure risk are considered in relation to reoffending statistics: general attribution, identification (including self-identification) and residual through combination of sources. Assessment of the risk of disclosure considers the following:

• Level of aggregation (including geographic level) of the data

• Size of the population

• Likelihood of an attempt to identify

• Consequences of disclosure

As a result, the number of monitored subject counts of 2 or fewer are suppressed. This is to prevent the disclosure of individual information.

Timeframes and Publishing Frequency of Data

This publication is part of the Electronic Monitoring Statistics series. This version of the release will be published quarterly and will be accompanied by a more detailed annual version every July.

Revisions

Figures for the most recent quarter should be treated as provisional, and all other data can generally be considered final. However, we are still embedding improvements to the data processing and as part of the continuous improvement process, minor processing changes may make small changes to the historical figures. Any significant planned or potential future processing changes will be noted in the release prior to their introduction. However, any significant errors will be corrected in line with the Code of Practice for Statistics.

In accordance with Principle 2 of the Code of Practice for Statistics, the Ministry of Justice is required to publish transparent guidance on its policy for revisions. A copy of this statement can be found at: https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/182363/statistics-revisions-policy.pdf.

The three reasons specified for statistics needing to be revised are changes in sources of administrative systems or methodology changes, receipt of subsequent information, and errors in statistical systems and processes. Each of these points, and its specific relevance to the Electronic Monitoring publication, are addressed below:

1. Changes in sources of administrative systems/methodology The data within this publication comes from a variety of administrative systems. This technical document will clearly present where there have been revisions to data accountable to switches in methodology or administrative systems. In addition, statistics affected within the publication will be appropriately footnoted.

2. Receipt of subsequent information The nature of any administrative system is that data may be received late. For the purpose of this criminal justice statistics publication, the late data will be reviewed on an annual basis but, unless it is deemed to make significant changes to the statistics released; revisions will only be made as part of the final release containing the calendar year statistics. However, should the review show that the late data has major impact on the statistics then revisions will be released as part of the subsequent publication.

3. Errors in statistical systems and processes Occasionally errors can occur in statistical processes; procedures are constantly reviewed to minimise this risk. Should a significant error be found, the publication on the website will be updated and an errata slip published documenting the revision.

Contact details

For enquiries, comments or further information, please contact:

Julie Sullivan
HMPPS Electronic Monitoring Performance
Data and Analysis
Ministry of Justice
10th Floor
102 Petty France
London
SW1H 9AJ

Email: statistics.enquiries@justice.gov.uk

Alternative formats are available on request from statistics.enquiries@justice.gov.uk

Annex A: Glossary of terms

Acquisitive Crimes	Theft, robbery or burglary
Alcohol Monitoring	A way of remotely monitoring and recording information on an individuals alcohol consumption, using an electronic tag
Alcohol Monitoring Services (AMS)	The organisation responsible for the delivery of Alcohol Monitoring
Court Bail Order	When an individual is awaiting a court hearing or trial and are released from custody until the hearing or trial but must be monitored with an electronic tag
Court Sentence	When community orders or suspended sentence orders are imposed on an individual by the court requiring monitoring with an electronic tag
Electronic Monitoring	A way of remotely monitoring and recording information on an individual’s whereabouts or movements, using an electronic tag
Electronic Monitoring Services (EMS)	The organisation responsible for the delivery of Electronic Monitoring
Foreign National Offenders	Offenders who are not UK citizens
Licence	The period in which a prisoner is released from prison to serve the remainder of their sentence in the community
Location Monitoring	Satellite enabled (GPS) electronic tags
Immigration Order	Foreign National Offenders released from Prisons or Immigration Detention under ‘Immigration Order Bail’ must be monitored by an electronic tag, along with other non-UK citizens subject to deportation proceedings, while awaiting deportation
Post-Release Order	When an individual has been released from prison on the condition that they are monitored with an electronic tag
Specials	Highest risk offenders managed under Multi-Agency Public Protection Arrangements (MAPPA); those granted bail by the Special Immigration Appeals Commission (SIAC); and those made subject to Terrorism Prevention and Investigation Measures (TPIMs)

Annex B: Electronic Monitoring Timeline

Overview of Electronic Monitoring policy changes

Date	Summary
Nov 2018	National rollout of GPS tags
Oct 2020	Alcohol monitoring tags launched in Welsh courts
Dec 2020	GPS tags introduced for the immigration cohort
Mar 2021	Alcohol monitoring tags expanded to English courts
Apr 2021	Acquisitive crime cohort launched for eligible prison leavers released on licence in 6 Police Force Areas
Aug 2021	Immigration cohort expanded to non-UK citizens subject to deportation proceedings
Sep 2021	Acquisitive crime cohort expanded to 19 Police Force Areas
Nov 2021	Alcohol monitoring for prison leavers launched in Welsh pathfinder prisons
Jun 2022	Alcohol monitoring for prison leavers expanded to England
Aug 2022	Immigration cohort expanded to Scotland
Aug 2022	Electronic monitoring as Licence Variation pilot launched
Oct 2022	Acquisitive crime cohort eligibility expanded to offenders who have received a custodial sentence of 90 days or more and been released on licence
Nov 2022	Non-fitted devices introduced for the immigration cohort
Dec 2022	Immigration cohort expanded to Northern Ireland

Annex C: Service Level Agreement Details – all to be attempted within the specified timescales

EM Service Level Measure 4A: Equipment Installation and Subject induction – First attempt

The Electronic Monitoring service provider will receive a notification of a new monitoring requirement. Where the information supplied in the request is complete there is a requirement that the provider makes a first installation attempt within defined timescales of receipt, as follows:

1. The first day of monitoring requirement where the curfew is a Daytime Curfew and is received 4 or more hours before the end of the curfew period.

2. the first day of monitoring requirement where the curfew is an Overnight Curfew, or a Split curfew and the notification is received before 15:00 of that day and the curfew start time is before 23:00 for adult subjects and before 21:00 for juvenile subjects.

3. the second day of monitoring requirement where the curfew is Overnight Curfew, or a Split curfew and notification is received after 15:00 on the first day of monitoring requirement or the curfew start time is before 23:00 for adult subjects and 21:00 for juvenile subjects.

4. the deadline times for installation are 23:59:59 for adult subjects and 22:00 for juvenile subjects, except where the curfew start time is at or after 23:00 (or after 21:00 for juvenile subjects) the deadline time is the earlier of two hours after the curfew start time or 01:00 the next day.

This measure provides assurance that the provider has made the necessary steps to initiate the electronic monitoring of the subject. The timeliness element of the measure is to incentivise good public protection practice and compliance with sentence delivery.

EM Service Level Measure 4B: Equipment Installation and Subject induction – Further attempt(s) within specified timescales

The Electronic Monitoring service provider will receive a notification of a new monitoring requirement. Where the information supplied in the request is complete there is a requirement that the provider makes a first installation attempt within defined timescales of receipt. Where a first attempt to install monitoring equipment is unsuccessful the provider should make a second (and for juvenile subjects, where required, a third) attempt to install monitoring equipment, each attempt being made within defined timescales, as follows:

1. The second day of monitoring requirement for the second attempt (and the third day of monitoring requirement for the third attempt for juveniles only) for Overnight Curfews, Daytime Curfews and Split Curfews.

2. the deadline times for installation are 23:59:59 for adult subjects and 22:00 for juvenile subjects, except where the curfew start time is after 23:00 for adult subjects the deadline time is the earlier of two hours after the curfew start time or 01:00 the next day.

This measure provides assurance that the provider has made the necessary steps to initiate the electronic monitoring of the subject. The timeliness element of the measure is to incentivise good public protection practice and compliance with sentence delivery.

EM Service Level Measure 4C: Equipment re-installation

The Electronic Monitoring service provider will receive a notification to re-install monitoring equipment following an address variation or authorised absence. Where the information supplied in the request is complete there is a requirement for the provider to make up to two attempts (3 for juveniles) to re-install the monitoring equipment, each attempt being made within defined timescales, as follows:

1. On the first day of monitoring where the notification is received before 15:00 of that day and the curfew start time is before 23:00 for adult subjects and before 21:00 for juvenile subjects.

2. on the second day of monitoring requirement where notification is received after 15:00 on the first day of monitoring requirement or the curfew start time is before 23:00 for adult subjects and 21:00 for juvenile.

3. the deadline times for installation are 23:59:59 for adult subjects and 22:00 for juvenile subjects, except where the curfew start time is after 23:00 (or 21:00 for juvenile subjects) in which case the deadline time is the earlier of two hours after the curfew start time or 01:00.

This measure provides assurance that the provider has made the necessary steps to continue the electronic monitoring of the subject. The timeliness element of the measure is to incentivise good public protection practice and compliance with sentence delivery.

EM Service Level Measure 5A: Visit for removal of equipment

The Electronic Monitoring service provider should make a first attempt to remove the monitoring equipment by 23:59 on the day that the monitoring requirement ends for a Subject. If the monitoring requirement ends at AM (e.g. 07:00) on the last day, then a decommission visit must be made on the previous day between the start of curfew and 23:59.

This measure ensures that monitoring is ceased at the correct time and that publicly owned equipment is recovered.

EM Service Level Measure 5B: Visit for removal of equipment (bail cases)

The Electronic Monitoring service provider should make a first attempt to remove monitoring equipment for bail cases within defined timescales on the day that the monitoring requirement ends.

1. If bail end paperwork is received before 3pm then a visit must be made by 23:59 on the day that the monitoring requirement ends for adult and juvenile Subjects.

2. If bail end paperwork is received after 3pm then a visit must be made by 23:59 the following day for adult and juvenile Subjects.

This measure ensures that monitoring is ceased at the correct time and that publicly owned equipment is recovered.

EM Service Level Measure 5C: Visit for removal of equipment (Tampers)

The Electronic Monitoring service provider will receive an alert when a subject has tampered with their equipment. On receipt of this alert the provider shall visit the subject’s address within specified timescales, as listed below, to check the equipment. The timescales are:

1. Within 4 hours from the time of the alert, if the incident occurs within a curfew period and there are 4 or more hours remaining within the current period.

2. Within the first hour of the next curfew period, if the incident occurs within a curfew period and there are fewer than 4 hours remaining period and there are more than 3 hours remaining in the period.

3. Within 4 hours less the time available within the current period, if the incident occurs within a curfew period and there are fewer than 3 hours remaining in the current curfew period.

4. Within the first 4 hours of the next curfew period, if the incident occurs outside of a curfew period and the next curfew period is 4 or more hours in length.

5. If the incident occurs outside of a curfew period and the next curfew period is fewer than 4 hours in length, the deadline is calculated by rolling through subsequent curfew periods until 4 hours has expired.

This measure provides assurance that the provider collects evidence of tamper violations for the Probation Service to use in breach proceedings and ensures a Subject has working equipment which allows them to be electronically monitored. This measure provides assurance that all subjects have working equipment. The timeliness element is to incentivise good public protection practice and compliance with sentence delivery.

EM Service Level Measure 7B: Requesting information required to commence orders

The Electronic Monitoring service provider will receive a notification of a new monitoring requirement or requirement to reinstall monitoring equipment. On receipt of a notification the provider shall check the notification for incomplete information. Where information relating to one of eighteen specific categories is found to be incomplete, the Service Provider will request the missing data, within defined timescales, as follows:

1. within two hours of the notification being received if it is received before 15:00 on a working day,

2. by 10:00 of the next working day where the notification is received on a non-working day or at or after 15:00 on a working day.

3. by 10.00 the next working day when it is discovered by the field monitoring officer, on attempting a visit, that the address cannot be reasonably located.

This measure provides assurance that the provider has made the necessary steps to initiate the electronic monitoring of the subject. The timeliness element of the measure is to incentivise good public protection practice and compliance with sentence delivery.

EM Service Level Measure 8: Contact Curfew Location in the Event a Violation Exceeding 5 Minutes

The Electronic Monitoring service provider will receive an alert that a subject has violated their curfew requirement. On receipt of this alert the provider shall call the curfew location within 60 minutes or less (or 35 where the incident time and process time are the same).

This measure ensures that the provider collects information on the whereabouts of the subject and any information which may be used by the Probation Service as evidence in breach proceedings. Appropriate investigation of alerts can also indicate equipment faults. Such investigation can incentivise good public protection practice and compliance with sentence delivery.