Crime Prevention Advice
Tackling Vehicle Crime: A Five Year Strategy
Vehicle Crime Reduction Action Team
6: Better regulation
1. This chapter discusses two main areas in which better regulation can make a significant contribution to achieving the Government’s vehicle crime reduction target: better regulation of the salvage industry and tightening up vehicle registration procedures.
"most salvage dealers operate to high standards and fully within the law"
The salvage industry
2. We are certain that most salvage dealers operate to high standards and fully within the law. They provide a valuable service, disposing of about 1.5 million vehicles a year. But for the unscrupulous, the salvage industry can provide a means to dispose of stolen motor vehicles, either replacing their true identity with that of a legitimate vehicle which is an insurance write-off (a process known as "vehicle ringing") or breaking them for parts.
3. In 1998, of the vehicles handled by the salvage industry, about 430,000 were written off by insurance companies, most of which would have been disposed of through the salvage industry. It is these vehicles which provide cover for disguising the true identity of some of the 120,000 vehicles stolen and not recovered in 1997/1998. The police estimate that about 65% (78,000) of these stolen and unrecovered vehicles are either "rung" or broken for spare parts. In addition, insurance fraud is thought to account for a further 20% (24,000 vehicles), some of which will end up in the salvage industry and be reported "stolen" by the owner.
4. The Action Team aims to achieve better regulation of the industry which will make it harder for thieves to dispose of stolen vehicles. Reducing the market for stolen vehicles will in turn, over time, reduce the amount of vehicle theft.
Existing regulation
5. The salvage industry is regulated by the Environmental Protection Act 1990 (EPA) but the purpose of this Act is prevention of harm to human health and the environment. It was not intended to facilitate enforcement of measures to reduce vehicle crime.
6. In terms of reducing vehicle crime, existing regulation
is achieved by trade associations. The British Vehicle
Salvage Federation (BVSF) represents the larger salvage
dealers (over 70% of the salvage business) and the Motor
Vehicle Dismantlers Association of Great Britain (MVDA)
represents smaller dealers. They undertake to comply
with the Motor Conference Code of Practice for Disposal
of Motor Salvage, which provides for the responsible
disposal of written off vehicles – the main source of
donor vehicles for "ringing".
The main points of the Code of Practice are:
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salvage should be inspected and categorised as to whether it is suitable only for scrap or is repairable;
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insurers should notify the DVLA of the salvage category into which a written off vehicle has been put;
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a Notification of Destruction should be sent by the salvage dealer to the DVLA when a motor vehicle is broken up and the chassis crushed;
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DVLA should ask the police to investigate when an application is made for documentation for a motor vehicle which had previously been notified as written-off and "unrepairable".
Proposals for achieving better regulation
7. Better regulation can be achieved either by voluntary means (self-regulation) or by legislation or a combination of both. Government policy is that no legislative proposal which has an impact on business should be brought forward without a thorough assessment of the risks, costs and benefits, a clear analysis of who will be affected and an explanation of why voluntary measures would not be sufficient. The Action Team therefore first examined the potential for better regulation of the salvage industry to be achieved by voluntary means.
8. The existing Code of Practice could be enhanced in a number of ways, for example by:
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linking the insurance industry MIAFTR database (Motor Insurance Anti-Fraud and Theft Register) to the DVLA vehicles register. This will enable DVLA to have a more comprehensive record of total loss vehicles and to make that information more widely available (e.g. on the Vehicle Registration Document – see paragraph 15);
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establishing a set of requirements for record keeping so that an effective audit trail of purchases and disposals is maintained;
"better regulation can be achieved either
by voluntary means or by legislation"
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agreeing to police and legitimate insurer fraud enquiry access to premises and records when required;
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setting minimum standards for identification procedures for anyone selling or disposing of a vehicle to a salvage dealer, or purchasing one from a salvage dealer;
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improving procedures so that motor salvage is properly categorised at the outset so that fewer vehicles are re-categorised later on. This will enable attention to be focussed on a smaller number of re-classified vehicles and improve the prospects of identifying those which have been stolen and "rung";
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improving procedures for salvage dealers to complete a Certificate of Destruction whenever a motor vehicle is destroyed;
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improving procedures for the responsible disposal of motor salvage;
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developing more stringent checks on repaired or re-built vehicles before they are returned to the road.
The effectiveness of the Code of Practice would also be improved if it were adopted by companies (principally those such as hire companies, and the Crown, that operate large fleets of vehicles) which carry their own insurance against total loss. A draft revised Code of Practice will be issued for consultation by the end of the year.
9. The Action Team considers that these enhancements to the Code of Practice will, if implemented, make a significant contribution to reducing vehicle crime. But maximising these benefits requires the backing of legislation given the disparate nature of the industry. Whilst work is in hand developing a revised Code of Practice, there is a growing belief that it should be given statutory backing. A clearer view will emerge after the consultation period at the end of the year.
10. One other issue that the Action Team is considering is the ability of owners to retain vehicle salvage, in particular unrepairable salvage, which has been assessed as fit only for scrap and which should not be allowed back on the road. This provides the opportunity for unsafe vehicles to be put back on the road and facilitates vehicle ‘ringing’. Consideration is being given to the possibility of requiring legislation that would prevent this.
11. The measures the Action Team has proposed will address the problem of vehicles being broken for spare parts as well as "ringing". This is a sizeable problem with police estimates of about 40% of stolen and unrecovered vehicles (about 48,000) being broken for spare parts.
12. The Home Office New Car Security Guidance recommends that motor manufacturers should number major component parts as an effective way of making it harder for criminals to sell stolen parts and increase the chances of detection. A key issue is how these marks (which include VIN plates, chassis numbers, engine numbers and window-etched numbers) can be protected from alteration or erasure so that the police can prove from which vehicle the part originated. Legislation to make it an offence to tamper with marks and to trade in parts where the marks have been tampered with would achieve this. The Action Team is considering recommending such legislation but has yet to examine the options fully.
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"maximising these benefits requires the backing
of legislation"
Driver and Vehicle Licensing Agency (DVLA)
13. DVLA plays a vital role in helping to reduce vehicle crime by maintaining a comprehensive and accurate vehicles register containing information about vehicles and their registered keepers.
14. There are three main car crime problem areas which could be reduced by improving vehicle registration procedures:
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vehicle "ringing" (where the identity of a stolen vehicle is disguised with one which has been written off);
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vehicle "cloning" (where the identity of a stolen vehicle is disguised with that of a legitimate vehicle, often off the road and in the motor trade); and
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vehicle clocking (where the mileage recorded on the odometer is reduced).
15. The Action Team believes that one of the most effective ways of helping combat these problems is by raising the status of the Vehicle Registration Document (V5). At present, its status and purpose can be unclear and confusing to many consumers, and it is relatively easy to obtain a replacement which can be used to disguise the identity of a stolen vehicle. The Action Team believes that procedures for issuing the Vehicle Registration Document should be changed so that it is better protected from fraud and contains more information of value to consumers. This could be achieved by, for example:
"procedures for issuing the Vehicle Registration Document should be changed"
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Requiring proof of identity of the applicant at the time a Vehicle Registration Document is issued;
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Making it compulsory for the appropriate part of the Vehicle Registration Document to transfer with the vehicle when it is sold;
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Requiring production of the Vehicle Registration Document with an application for the Vehicle Excise Duty licence, if not submitted on a V11 form;
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Making collection of mileage data compulsory and making the information more widely available. The proposed computerisation of the MOT will assist this process;
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Collecting more data on total loss vehicles and recording it on the Vehicle Registration Document;
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Reviewing fine levels for vehicle registration document offences and possibly making such offences "endorseable";
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Setting up a DVLA telephone "hotline" to provide the public with total loss vehicle information;
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Making, at least, a voluntary provision on the vehicle registration document to record ownership, although there are outstanding problems as to how this could be achieved;
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Charging for duplicate vehicle registration documents.
We recognise that some of these proposals would inconvenience the majority of motorists who are honest. However, we hope that such measures will be acceptable as part of the drive to stamp out vehicle crime.
"These measures also need to be supported by increased public awareness"
16. These measures also need to be supported by increased public awareness of the need for purchasers of vehicles to have sight of the Vehicle Registration Document before completing the purchase. Taken together, these measures will make it more difficult for thieves to obtain legitimate vehicle registration documents and to sell stolen vehicles on to unsuspecting members of the public. They also complement the new initiative being piloted by the Retail Motor Industry Federation (RMIF) to collect mileage information. Under the scheme RMIF members will log the mileage centrally whenever a vehicle is serviced, repaired or MOT’d. This data would then feed into commercial databases operated by those organisations offering vehicle history checking services.
"these measures will make it more difficult for thieves to obtain legitimate vehicle registration documents"
Vehicle number plates
17. Tightening up on the supply of number plates is another way in which vehicle "ringing" can be tackled successfully. At present, the supply of number plates is unregulated, with no requirement to request proof of identity or to keep records.
18. The Action Team is considering the options for tightening up the supply of number plates and the information they might contain (such as make, model, Vehicle Identification Number), via new technology, which would make it more difficult to disguise a vehicle’s identity. Options include whether self-regulation or legislation is the best way forward, including how any new arrangements might best be enforced; what obligations should be put on manufacturers, retailers and consumers; and what information number plates should contain. The Action Team believes there is a case for introducing a secure number plate system. Discussions are being held with the industry with a view to making recommendations by the end of the year.
19. The Action Team welcomes the Government’s recently issued consultation document on proposed new regulations setting out requirements for the display of vehicle number plates. The aim of the proposed changes is to prohibit fonts, layout or the fitting or treating number plates in such a way as to make them difficult to read or photograph. These proposed new regulations will not only help the police enforce motoring laws more effectively but will also assist in the identification and recovery of stolen vehicles and tackling crime generally.
"The Action team believes there is a case for introducing a secure number plate system"
Effectiveness
20. The Action Team believes that effective regulation of the salvage industry, combined with proposals to protect parts markings and revised DVLA procedures, will reduce vehicle crime by about 100,000 offences over the period of the target.
7: What the motorist can do to help
1. The full benefits of all the measures the Action Team has proposed will not be realised without the active co-operation of motorists and the wider public.
2. In order to address this, communication strategies will be developed alongside each of the initiatives, aimed both at practitioners and those affected by vehicle crime. A long-term programme of communications and publicity must be developed and co-ordinated to accompany these measures, because:
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In most cases the public will need to be made properly aware of what is being done.
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In many cases it will be necessary to shift public attitudes towards the key issues, which will take time.
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It will only be possible to effect a change in the actual behaviour of motorists if the two issues identified above have been successfully delivered.
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It will provide a foundation for local authority/police partnerships to build their own communication strategies.
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A sustained communications effort is an important contributor to building the confidence and momentum required in order to achieve the target.
3. Motorists need to be informed about security aspects of new or used cars – and to be encouraged to take these into account when making purchasing decisions. They need to be made more aware that security is not simply an optional extra but an important way in which they can safeguard what is often the second most expensive – if not the most expensive - purchase they will make. In a competitive market place, manufacturers and retailers respond well to consumer demand and we would expect to see an overall raising of security standards over time, in line with the delivery of a successful communications programme.
4. Although motorists have a responsibility to secure their vehicle and other possessions, everyday behaviour reflects low levels of awareness of security issues. Simple things like leaving valuables on display and leaving the car unlocked when unattended are commonplace. (The 1998 British Crime Survey showed that in 12% of "thefts from" entry was gained through an unlocked door; and that 29% of "thefts from" are personal goods). A change in this behaviour also needs to be delivered through effective communications.
5. Successfully encouraging motorists to look out for and use "Secured" car parks would also help to deliver the target, but for this encouragement to work it is first essential to create far greater awareness of their existence. Motorists will need to be persuaded that it is worth actively seeking out a "Secured Car Park". Again, given enough momentum through communications, public opinion will fuel consumer demand, which in turn will help drive the initiative forward.
6. Motorists need more information and advice. Information about security features should be available not simply through the motoring press but at the point of sale. In relation to used cars, retailers should be encouraged to actively promote the security features of cars. This initiative needs to be supported by a wider publicity campaign targeted at motorists, which provides information about the security package and cars with approved security features. The campaign should provide advice that encourages more security conscious behaviour by motorists.
7. The Action Team has established a separate Task Group to develop a publicity and communications strategy to raise public awareness of the key issues and to encourage all motorists to be conscious of security and what we all, as members of the public, can do to reduce vehicle crime.
"everyday behaviour reflects low levels of awareness of security issues"
8. Another way in which members of the public generally, and motorists in particular, can help to reduce vehicle crime is to assist the police by providing information about vehicle crime and criminals. Information may be given direct to the police or anonymously through CRIMESTOPPERS. The Action Team fully supports the current SMART campaign (Stop Motor crime And Ring Today).
The CRIMESTOPPERS telephone number is 0800 555 111.
Summary of action points
Chapter 2 – Better vehicle security
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The law should be changed so as to require used cars 7-10 years old to be fitted with electronic immobilisers. (i.e. cars registered during 1991-1994, if legislation were to take effect from April 2001). (Paragraph 9).
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Manufacturers should be encouraged to fit deadlocks more widely on the new car model range, particularly on cars produced in volume. (Paragraph 10).
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Manufacturers should be encouraged to fit laminated glazing more widely on the new car model range. (Paragraph 11).
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A used car security package should be agreed with retailer representatives and promoted by the industry to consumers. (Paragraph 14).
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Consumers should be provided with more information about the security features of new cars and the recommended security package for used cars so that it informs their purchasing decisions. (Paragraph 10 & 14).
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There should be a comprehensive end user registration scheme for trailers and certain plant and equipment. (Paragraph 16/19)
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Trailers exceeding an unladen weight of 1020 kgs should be recognised as vehicles and allocated a Vehicle Identification Number (VIN). (Paragraph 19)
Chapter 3 – Better enforcement
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The Police Service to identify good practice in dealing with vehicle crime and then spread it to all forces so that the performance of all is raised to that of the best. (Paragraph 3).
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Police officers should be given training in key vehicle crime reduction messages. (Paragraph 5).
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The law should be changed so as to allow the police access at the roadside, via the Police National Computer, to DVLA driver records. (Paragraph 8).
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Plans in hand for MOT records to be computerised and the Motor Insurance Database, an initiative of the motor insurance industry, will significantly improve the information available to the police at the roadside. (Paragraph 9).
Chapter 4 – Safer environment
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Regional Development Managers to follow up leads stemming from the recent Home Office Minister of State’s letter and other initiatives promoting the Secure Car Park scheme. (Paragraph 8).
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A Secured Car Park Directory should be published, initially in the North-West, to make information about the location of Secured Car Parks more widely known. (Paragraph 9).
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Local authorities should be encouraged to erect road signs with a distinctive logo so that consumers may identify car parks with "secured" status more readily. (Paragraph 9).
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A wider publicity campaign should include the Secured Car Park initiative so as to raise public awareness and encourage their use. (Paragraph 9).
Chapter 5 – Modernising information systems
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A direct link should be established between the Motor Industry Anti-Fraud and Theft Register (MIAFTR) and DVLA. (Paragraph 2).
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Extending the coverage of information held on MIAFTR to include fleet and other vehicles, where owners carry their own uninsured losses, should be investigated. (Paragraph 2).
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The proposed computerisation of MOT records and the Motor Insurance Database of insured drivers should both link into the Police National Computer to provide police officers at the roadside with ready access to information. (Paragraph 2).
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A separate Task Group of the Action Team should be established to look for appropriate linkages between different information systems. (Paragraph 4).
Chapter 6 – Better regulation
Salvage industry
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The existing Motor Conference Code of Practice for the disposal of motor salvage should be enhanced. (Paragraph 8).
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The coverage of the Code of Practice should be extended to include companies such as fleet hire companies and others that self-insure. (Paragraph 8).
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The Action Team should give further consideration to the question of legislation to prevent vehicle owners being allowed to retain salvage and giving legislative protection to manufacturers’ marks on parts. (Paragraph 10 & 12).
Driver and Vehicle Licensing Agency (DVLA)
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Legislation should be considered and resources provided to:
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Require proof of identity of the applicant when a Vehicle Registration Document (V5) is issued. (Paragraph 15).
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Make it compulsory for the Vehicle Registration Document to transfer with the vehicle when it is sold. (Paragraph 15).
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Require production of the Vehicle Registration Document with an application for a Vehicle Excise Duty licence, if not submitted on a V11 form. (Paragraph 15).
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Make collection of mileage data compulsory. (Paragraph 15).
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Collect more data on seriously damaged vehicles and record it on the Vehicle Registration Document. (Paragraph 15)
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Public awareness should be raised about the importance of the Vehicle Registration Document and the need to see it before completing a purchase. (Paragraph 16).
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The Action Team should consider further the options for tightening up on the supply of number plates and the information they might contain. (Paragraph 18).
Chapter 7 – What the motorist can do to help
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Communication strategies need to be developed alongside each initiative, aimed both at practitioners and those affected by vehicle crime. (Paragraph 2).
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The profile of vehicle crime needs to be raised in a properly co-ordinated way, providing a foundation on which localised communications activity can build. (Paragraph 2).
A long-term programme of communications and publicity should be developed in order to provide information and advice to motorists about vehicle security issues. (Paragraph 2).
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Last update: September 2003