Policies, guidance and documents relating to identifying unknown persons
Freedom of information request reference no: 01.FOI.23.034401
I note you seek access to the following information:
Please could you provide all Metropolitan Police Service policies, guidance and documents relating to identifying unknown persons?
Please can the policies, guidance and documents be those which were applicable as of the period 22/06/2022 to 25/06/2022.
Decision
I have today decided to disclose some of the requested information. Some data has been withheld as it is exempt from disclosure and therefore this response serves as a Refusal Notice under Section 17 of the Freedom of Information Act 2000 (the Act) by virtue of the following exemptions:
Section 31(1)(a) – Law Enforcement
Reason for decision
Section 31(1)(a) – Law Enforcement - In considering whether or not this information should be disclosed, I have considered the potential harm that could be caused by disclosure. Disclosing the document in full, containing the internal, non-public facing emails and telephone numbers, and external email and telephone numbers not otherwise public, would be likely to lead to increased disruption. Disclosing these details could lead to nuisance communications and / or ‘spam’, which would disrupt our work and consequently our service provisions.
In addition, important communications could go to incorrect departments / teams rather than where they were supposed to go (via advertised routes) which could lead to unnecessary delays in dealing with them.
The release of the contact and address details of specific teams / units that are not public facing would provide persons intent on disrupting the work of the MPS with information that would assist them to do so. In this regard, a person with this intent would be likely to use this information to make inappropriate contact with these teams and units and/or send them vast amounts of unsolicited correspondence. This would disrupt the work of these members of staff and teams, causing disruption to the work of the MPS, and hindering their ability to deal with the real work that needs to be done.
I accept that there is a public interest in transparency when any request is made for police information. However, the public interest favouring release must be balanced against any associated risk and/or prejudice that would be caused through disclosure.
Having carefully considered this, I have found that the public release and publication of these contact details would provide persons intent on disrupting the work of the MPS with information that would assist them in this endeavour. Given this and the fact that the removal of this information does not detract from the information disclosed, I have found that the release of this information is not in the public interest.
Disclosure
Please find the redacted document below. Please note, this was the document being used during the period requested.
Unidentified Bodies/Persons
Unidentified bodies/persons - Q&As
What is an unidentified body?
An unidentified body is a dead body whose identity is unknown or in doubt. This includes bodies of persons of any age (including babies), body parts and skeletal remains. If there are any possible names for the person, these should be added to the ‘Other Surnames/Forenames’ fields on Merlin.
For classification purposes, please enter UNIDENTB on MERLIN.
What is an unidentified Person?
An unidentified person is a found person (alive) whose identity is unknown or in doubt. Any possible names for the person should be added to the ‘Other Surnames/ Forenames’ fields on Merlin.
For classification purposes, please enter UNIDENTP on Merlin.
What is a Found Person Wandering?
A found person wandering is an identified person (alive) who, for example, has been found wandering and who cannot remember their home address, or a tourist who cannot remember their temporary address.
For classification purposes, please enter FOUNDPER on Merlin.
What is classed as a Sudden Death?
Sudden death is when an identified body has been found and reported to the police. In situations when the next of kin has not been informed, circulate on PNC Bureau (using the PNC+ Reports button).
For classification purposes, please enter SUDDEATH on Merlin.
If the identify is unknown or in doubt, classify as UNIDENTB.
What action do I take with a suspicious unidentified body?
The attendance of a senior BOCU Detective and Homicide Assessment Team (HAT) is required in all suspicious cases, as is the handling of the scene as a crime scene until further details have been established.
All cases of unidentified bodies where the death is initially believed to be suspicious need to be recorded on Merlin as an Unidentified Body Incident. This is to enable descriptions to be searched should the person be reported missing at a later stage or at a different location.
These reports must remain open until the body is identified and a relative, or other responsible person (such as a solicitor) have been informed. The responsibility for identifying the body will lie with either the SC&O Homicide Command or the BOCU Crime Manager, depending on who takes the investigation.
What action do I take with a non-suspicious unidentified body?
If the death is non-suspicious the police will conduct all relevant early enquiries in an attempt to identify the body, and record the incident and findings on Merlin. They will ensure that details of the incident are circulated on the PNC (using the 'circulate to PNC button' on the 'PNC + Reports' page of Merlin).
A descriptive Unident cross-match search must be made on Merlin at an early stage to see if anyone matching the deceased's description is currently recorded as a missing person. Further descriptive searches may need to be made by the Investigating Officer at a later stage. For further guidance, refer to “A Guide to Merlin Descriptive Cross-Match Searches” in the (REDACTED – S.31).
Please also refer to UK Missing Persons Bureau ‘Identification Process - Good Practice Guide’ in (REDACTED – S.31).
The BOCU Crime Manager (DCI) maintains overall responsibility for all unidentified bodies found where the circumstances are non-suspicious. It is also the responsibility of the crime manager to carry out a review of each open case at various intervals (at 7, 28 days, 3, 6 months and annually) and record each specific review on Merlin.
When do I need to conduct a Merlin cross-match search?
Initial Investigating Officers need to conduct a cross-match search when they create a new Unidentified Person/Body incident on Merlin. However, where a body is very decomposed, or skeletal, and its description is limited, then it may be appropriate for the cross-match search to be delayed until further examination of the remains has taken place at the mortuary. The rationale for deferring the initial cross-match search should be recorded in the Dets.
How do I carry out a cross match search against unidentified persons/bodies?
When creating a Merlin record and whilst in update mode carry out the following steps:
• (REDACTED S.31)
Once you have received the results you can view them for any possible matches.
Before you navigate back to the initial actions page you must press save otherwise the search results will be lost.
Once the report is created and the initial cross match search has been saved, further searches will be necessary. These may be conducted using the “Unidentified Person/Body Cross-Match with Missing Persons” search template from the main search templates list on Merlin. The frequency of these searches will depend on the nature of the investigation. Any review of the investigation should consider the frequency of future searches (daily, weekly, fortnightly). For further guidance, refer to “A Guide to Merlin Descriptive Cross-Match Searches” in the (REDACTED – S.31).section.
When should I obtain identification samples?
All appropriate samples should be obtained from the remains as soon as possible in order to identify the individual. Early submission of samples may hasten the identification of outstanding missing persons thereby minimizing distress to families.
What action do I take with the deceased’s fingerprints?
The deceased's fingerprints should be submitted to (REDACTED – S.31) their advice may be sought on (REDACTED – S.31). In the case of a search where no identity has been established, missing persons with CRO numbers should not be excluded from enquiries (unless they can be eliminated on other grounds - e.g. description). If you are unable to exclude from your investigation a missing person who has a CRO number then a request should be made to SCO4 for the missing person's CRO fingerprints to be compared on a one-to-one basis with those taken from the deceased.
How do I arrange a photographer to take photographs of the deceased?
If not already done, arrangements should be made for a MPS photographer to attend the mortuary to take photographs of the deceased (1 x full face; 1 x three-quarter; 1 x profile; and any marks/scars/tattoos etc.). Photographs should also be taken of the deceased's clothing and property. The attendance of a photographer (non-suspicious cases) may be arranged via (REDACTED – S.31).
The attendance of a photographer at the mortuary in unidentified body cases is advised if only ICEFLO images have been taken. Please e-mail one set of the images to (REDACTED – S.31).
How do I obtain a DNA profile for submission & comparison?
DNA in unidentified cases (living and deceased) must be obtained and submitted to the MPS Forensic Service Provider for comparison against the national DNA database and National Missing Persons DNA Database (MPDD). Speak to your local forensic manager for advice on obtaining samples. For submission to the MPDD you will need to obtain the ‘Hermes’ reference from UK Missing Persons Bureau.
Tissue (or tooth/bone) samples for DNA profiling can be requested/arranged via the Coroner's Office, prior to submission to the Lab.
DNA profile matching will be relied upon in many cases but essential where skeletal remains are found. For further guidance on submission to the Missing Persons DNA Database see NCA FAQ document in the (REDACTED – S.31) or contact (REDACTED – S.31).
Queries can be addressed directly with (REDACTED – S.31).
How do I arrange an E-Fit?
Consider arranging for an E-fit or artist's drawing to be compiled from the photos for use with your local/media enquiries. A detective artist may be arranged through the (REDACTED – S.31).
How do I circulate case details to other force areas?
Once local enquiries are complete, consider circulating details of the incident (description, circumstances of finding, contact details etc) to all Forces via an All Forces PNC Broadcast Message, with a request they search their local missing person records. To request an All Forces PNC Broadcast Message contact the 24hr PNC Bureau Supervisor directly on Ext. **** to discuss your requirements. If you have other lines of enquiry in hand which may soon identify the body you should delay the 'all Forces' circulation. The UK Missing Persons Bureau at the National Crime Agency may also be prepared to circulate a briefing slide (containing an E-fit of the deceased, together with images of relevant clothing/property/jewellery etc if available) to all Forces (or selected Forces). They may be contacted by (REDACTED – S.31).
How do I obtain dental records?
If the body remains unidentified after normal enquiries have been completed, a request should be made to the Coroner's Office for the deceased's teeth to be examined by a forensic odontologist and for a post-mortem dental charting to be obtained. A copy of the post-mortem dental charting should be forwarded to the (REDACTED – S.31).to search in the Dental Index of Mispers & Unidents (containing dental charts relating to long-term Mispers and found unidentified bodies). However, before requesting the attendance of an odontologist you will need to ascertain who will be paying his/her bill (i.e. your OCU or the Coroner's Office).
Where can I get appeal posters?
If appropriate, appeal posters may be compiled (REDACTED – S.31).
What if an unidentified body is a suspected foreign national?
If the deceased may be from overseas, consider circulating details (description, photographs, fingerprints, dental etc.) through Interpol to relevant countries (REDACTED – S.31).
What action is required when incidents are solved?
Once a person/body has been identified, update the Merlin report. In dead body cases, if a next-of-kin has not been informed of the death, then the Incident sub-type should be amended to Suddeath. In cases where the subject is alive and remains in hospital without a friend/relative being informed (including where the patient declines to have someone informed), then the incident sub-type should be amended to Hosper. It is important that only the reports for persons/bodies when the subjects are unidentified that they are given an incident sub-type of Unidentified Person or Unidentified Body. This helps to ensure that Merlin only cross-matches between missing person and unidentified person/body records.
What actions must I do when creating a report in relation to intoxicated persons?
A noticeable number of Unidentified Person incidents on Merlin relate to such people being found collapsed or injured in the street after becoming intoxicated and are subsequently taken to hospital. These are often the type of reports which do not get reviewed/supervised on boroughs and can remain live on Merlin for weeks/months after the incident occurred, even though the likelihood is the patients will have left or been discharged from hospital within hours of being brought in. Having Unidentified Person reports open unnecessarily (i.e. where the person has since been identified and/or has left hospital) can lead to officers wasting time viewing reports retrieved in their cross-match search between Missing Person and Unidentified Person/ Body incidents, only to find a number relate to unidentified drunks taken to hospital, but where there have been no updates added to the report since the report was first created. It is important this type of Unidentified Person report is cancelled once the person has been identified and/ or is no longer at hospital.
What action do I take if the search throws up a possible match with a missing person?
If a hit identifies a missing person as a possible match with the unidentified body then certain actions must be considered. All possible matches must be compared with the body found.
Great care must be taken when using photographs as a means to identification. Even in cases of the recently deceased, identification can be difficult due to the changes such as muscle flaccidity and tone, or skin pallor. Reliance on images of a missing person as a means of identifying or eliminating a subject in enquiries when comparing other images can be unreliable.
Corroborative evidence or information must be sought before elimination or identification is made solely on the basis of such comparisons.
Prompt consideration to comparing the DNA profiles is required in cases where there is a potential match but other methods of identification can’t confirm the match.
How can the Marine Policing Unit help me?
The Marine Policing Unit (MPU) supports BOCUs in policing the River Thames and other marine environments within the Metropolitan Police District.
Recovering bodies from the river requires a special expertise. The MPU will assist officers and staff in recovering such bodies. They are also able to remove the body to their base at Wapping where their facilities allow for a proper examination of the body by staff dealing with the investigation. In addition to the benefits of the facilities offered by the MPU, removing the body to Wapping will also ensure that members of the public are not caused undue distress should detailed examination of the body take place on the foreshore of the river.
Who is responsible for the investigation when a body is recovered from the water?
Irrespective of sightings of the body, the responsibility will lie with the BOCU where the body eventually comes to rest. The Marine Policing Unit may assist BOCUs when disputes occur over responsibility.
What do I do if I receive a report of a person seen jumping into a river?
There are occasions where a person has been seen to jump into the River Thames or into another waterway within the Metropolitan Police District and have not been seen to emerge from the water or no body has been recovered. On these occasions the incident should be reported using the UnidentP (Unident Person) Incident Sub-Type on Merlin. This will ensure that the victim's description is available to Merlin users when descriptive Misper Cross-match or Advanced Misper Cross-matchsearches are run. However, if the identity of the missing victim is known then a Missing Person incident should be created instead.
By reporting such incidents in this way the full description of the person seen to enter the water can be recorded, along with the date, time and place where the incident happened, including the full details of any witnesses to the person entering the water. Should a body be subsequently found and an investigation instigated to establish the cause of death, the information previously recorded regarding the person entering the water will be vitally important to the investigation.
Unidentified BODIES Found - Initial Investigation Practitioner – checklist
All actions are mandatory
Actions
• Update supervisor and CID via on-call DI - Request attendance of both to scene.
• Request the attendance of the Homicide Assessment Team (HAT) in unexplained or suspicious cases of unidentified bodies found. This includes found body parts/tissue/bones.
• Secure and manage scene as appropriate whether public area, body of water or private premises – seek advice from a supervisor if in doubt.
• Seize any property or associated items from the scene when appropriate and deposit via Book 66. Reference location deposited on Merlin.
• Request forensic scene examiner (SOCO) to photograph body in-situ and location.
• Consider forensic opportunity at the scene including obtaining of DNA – Seek guidance from forensic scene examiner.
• Complete thorough initial investigation in line with (REDACTED S.31)
• Create Merlin report - Incident Type ‘Person Found’ - Sub-Type ‘UNIDENTB’.
• If a possible identity for the deceased is known (but not confirmed) include details in the Other Names field on the Merlin report.
• Make a full record on the UNIDENTB report: the subject’s full description, clothing, property details etc. must be added to the relevant fields on the Subject Details and Material Items screens.
• Although it may be useful to summarise this information within the Circumstances or Dets fields, it is imperative this data is added to the relevant descriptive fields.
• Ensure all additional detail from Initial/Linked CAD reports is included on Merlin.
• Circulate the incident to PNC Bureau using the PNC + Reports button on the MERLIN.
• (PNC Bureau will create a ‘Found’ report for the incident on PNC - Unidentified Body incidents are usually added to PNC using a generic surname of ‘Information’).
• Complete a descriptive Unident cross-match search via Merlin to identify if anyone matching the deceased's description is currently recorded as missing.
• Run Search Button on Initial Actions tab via Incident Details screen ensuring you press ‘SAVE’ once the search is run (see (REDACTED S.31)
• Attempt to establish the identity of the deceased by utilising MPS and national intelligence databases based on all known information.
• If the deceased is identified, attempt to identify and alert next of kin/relative and update Merlin accordingly.
• Change the Incident Sub-type on the Merlin from ‘UNIDENTB’ to ‘SUDDEATH’ where the deceased is subsequently identified, ensuring the Surname/Forename/DOB fields are updated and send an amendment circulation to PNC Bureau.
• Subsequent actions should follow the (REDACTED S.31) until next of kin etc. are alerted.
• Ensure Coroner’s officer is made aware of the incident and record details on Merlin.
Unidentified BODIES Found - Initial Investigation Supervisor (incl. Duty Officer) – checklists
All actions are mandatory
Supervisor actions
• Attend scene to ensure all appropriate initial actions are undertaken by initial responders and sufficient resources have been allocated.
• Supervise the Merlin report to assess progress, particularly in the following areas:
i) Correctly and adequately completed descriptive detail to enable cross-match searching;
ii) Efforts made to identify the body/ remains.
• Ensure Cris report is raised where criminality is suspected.
• Record investigative actions on Merlin/Cris report as appropriate.
• Allocate any further initial actions required - consideration should be given to a wider circulation of the incident across the MPS and other force areas.
• Bring the matter to the attention of the duty officer (and on call senior leadership where suspected serious crime or critical incident)
• Supervise and review on a weekly basis where an Unidentified Body investigation remains or is allocated to your staff.
Duty officer actions
• Review nature of incident, any observations of investigators/Homicide Assessment Team and ensure resources are available to progress investigation including scene management.
• Liaise with borough crime manager/senior leadership and agree ownership of investigation if the death is suspicious or unexplained.
• Appoint an investigating officer in all non-suspicious cases.
• The ownership in such cases is crucial to ensure continued progress.
• Ensure full handover from shift to shift in early stages when case rests with the response team.
• Ensure all unidentified cases are notified to UK Missing Persons Bureau where identification is not established after 48 hours (REDACTED S.31).
• Ensure liaison with coroner has been established.
• Record all actions on Merlin/Cris as appropriate.
Unidentified BODIES Found - Secondary Investigation - checklist
All actions are mandatory
Actions
• Acknowledge ownership and responsibility for the ongoing investigation via Merlin.
• Review actions completed to date and progress identified lines of enquiry.
• Re-run cross-match searchat regular intervals.If a cross-match search has suggested a possible match with a Missing Person then you must consider a comparison for possible identification, recording full rationale where the possible match is discounted (REDACTED S.31)
• See Merlin Cross-Match Search guidance document in useful (REDACTED S.31) for further instruction.
• Update descriptive fields in Merlin as further details become known, e.g. surgical procedure scarring evidenced at Post Mortem. These will also include jewellery, clothing, possessions and tattoos.
• Ensure case details are notified to MPS boroughs for awareness (via Met Intel/LIT and Missing Person Units).
• Notify UK Missing Person Bureau (UKMPB) - cases beyond 48 hours where the report indicates the deceased remains unidentified need to be notified to UKMPB (REDACTED S.31).
• (REDACTED S.31)
• Submit deceased’s fingerprints to (REDACTED S.31)
• Photographs- If not already taken, MPS photographer (REDACTED S.31)
• Obtain DNA sample at an early stage and arrange for submission. Where the DNA search is negative, the profile should be added to National Missing Persons DNA Database (REDACTED S.31)
• Advice around obtaining samples can be obtained from your local forensic scene examiner.
• Consider artist’s impression to be made up from photographs for use with media/circulation appeals (REDACTED S.31)
• Circulate incident details to other Force areas to enable MPS cases to be considered for comparison in those areas. This could be done via PNC Bureau (all forces broadcast) or briefing slide (REDACTED S.31)
• Dental Records - Arrange for dental charting to be carried out via Coroner’s Office if the body remains unidentified after more basic enquiries (REDACTED S.31)
• Consider Appeal Posters to be designed by (REDACTED S.31)
• Consider circulation of case details through INTERPOL via International Black Notice if there is any indication that deceased is from overseas (Interpol/NCA will assist; see (REDACTED S.31)
• Manage the Merlin record - If the deceased is identified details should be added to the report and the Investigating Officer must confirm that next of kin have been notified. [Once a next-of-kin has been informed then the Merlin report may be cancelled and a cancellation message sent to PNC Bureau (via the Merlin record).
• If the deceased is identified but without a relative being informed, then the Incident Sub-type on the Merlin report should be changed from ‘UNIDENTB’ to ‘SUDDEATH’, the Surname/Forename/DOB fields updated, and an amendment circulation sent to PNC Bureau.
Unidentified PERSONS (including babies) Found - checklist
All actions are mandatory
Actions
• Create a Merlin report - Incident Type ‘Person Found’ - Sub-Type ‘UNIDENTP’.
• If a possible identity for the subject is known (but not confirmed), include details in the Other Names field on the Merlin report.
• Raise a Cris report where the individual is believed to be a victim of crime and bring to the attention of a supervisor.
• Make a full record on the UNIDENTP MERLIN report: the subject’s full description, clothing, property details must be added to the relevant fields on the Subject Details and Material Items screens.
• Although it may be useful to summarise this information within the Circumstances or Dets fields, it is imperative this data is added to the relevant descriptive fields.
• Consider the protected characteristics of the unidentified person (REDACTED S.31) and treat according to their needs. Avoid making assumptions or stereotyping.
• Contact SC&O17 in cases of babies being found alive in circumstances of being abandoned.
• Record as ‘Unknown” and do NOT record temporary name as given by hospital staff of social services. Refer to the (REDACTED S.31).
• Fully record clothing and details of blankets etc. that the baby was found wrapped in at the time of finding.
• Ensure all additional detail from initial/linked CAD reports is included on Merlin.
• Circulate the incident to PNC Bureau using the PNC + Reports button on the MERLIN.
• PNC Bureau will create a ‘Found’ report for the incident on PNC - Unidentified Person incidents are usually added to PNC using a generic surname of ‘Information’.
• Complete a descriptive Unident cross-match search via Merlin to identify anyone matching the person’s description is currently recorded as missing. Run Search Button on Initial Actions tab via Incident Details screen ensuring you press SAVE once the search is run (REDACTED S.31).
• Attempt to establish the identity of the person by utilising MPS and national intelligence databases based on all known information.
• Attach a photograph of the subject to the Merlin record where appropriate.
• If the patient declines to have someone informed, you will need to tick the ‘Patient does NOT want friend/relative informed’ box in incident details page. Refer to (REDACTED S.31) for advice on progressing as Hosper.
• Where subject remains in hospital without anyone informed, change the Incident Sub-type on the Merlin from ‘UNIDENTP’ to ‘HOSPER’, ensuring the Surname/Forename/DOB fields are updated accurately and send and amendment circulation to PNC Bureau.
• Cancel and put away immediately incidents that are solved (those not becoming Hospers).