Officers who dealt with a Bedfordshire police sergeant prior to him taking his own life at an airport police base acted appropriately and considered his welfare, an investigation by the Independent Office for Police Conduct (IOPC) found.
Learning recommendations that we issued during the course of our investigation to improve security procedures governing access to armouries have also been implemented by Bedfordshire Police.
The IOPC investigated the contact between Police Sergeant (PS) Sean Duignan, and officers from Bedfordshire Police and Thames Valley Police, prior to his death on 31 May 2021.
An inquest today (14 November) concluded PS Duignan died by suicide after he had gained access to a firearm in the armoury at London Luton Airport.
We established that PS Duignan, who was a member of the Armed Policing Unit in Bedfordshire Police, was arrested on 29 May 2021 by Bedfordshire Police after a member of the public had earlier reported concerns over a vehicle being driven erratically. Police identified the vehicle as belonging to PS Duignan and an officer attended his home, where the vehicle was located and PS Duignan was arrested on suspicion of driving whilst unfit through alcohol or drugs. He was taken to Milton Keynes Police Station, in Thames Valley, where he was found to be over the legal alcohol limit. He was further arrested for dangerous driving and interviewed under caution before he was released from custody the following day.
In line with policy following an arrest, the force locked PS Duignan’s armoury account on 30 May, meaning he could no longer gain access to armoury. The day after his release, PS Duignan went to London Luton Airport Police Station, where he accessed a police issue firearm after a colleague granted him entry to the armoury.
IOPC regional director Graham Beesley said, “Our thoughts are with Sean Duignan’s family and friends following their tragic loss.
“We found no evidence to indicate that any police officer may have committed a criminal offence or behaved in a manner justifying the bringing of disciplinary proceedings. PS Duignan’s welfare was appropriately considered by Thames Valley Police, after he had been transferred to their custody, and relevant information was shared promptly with Bedfordshire Police. We found Bedfordshire Police took appropriate measures to safeguard PS Duignan, arranging immediate support for him when they learned of his arrest.
“We found the officer who enabled PS Duignan to enter the armoury was unfortunately unaware his access had been restricted.
“As a result, we issued Bedfordshire Police with learning recommendations relating to its security procedures governing access to armouries, and how this is audited. These learning recommendations were accepted by the force and were implemented prior to the conclusion of our investigation.
“While PS Duignan’s arrest and detention may have been a significant and contributing factor in his death, we concluded the decision to attend his address to undertake investigative and welfare enquiries was an appropriate policing response in the circumstances, in spite of the tragic events that followed.”
We began our investigation on 31 May 2021, following referrals from Bedfordshire Police and Thames Valley Police (TVP), and concluded in December 2021, when we sent our final report and a file of evidence to HM Coroner. We also shared our findings with PS Duignan’s family.
During our investigation statements were obtained from TVP and Bedfordshire officers and custody staff, including those who were both colleagues and close friends of PS Duignan. The BCH (Bedfordshire, Cambridgeshire, Hertfordshire) Firearms Standard Operating Procedures were reviewed as well as armoury access records and TVP custody records.
An act of parliament that provides the core framework of police powers to combat crime and provide codes of practice for the exercise of these powers.
Leads and manages the development of the police service in England, Wales and Northern Ireland.
The body that represents the interests of all police constables, sergeants, and inspectors.
Deals with someone’s inability or failure to perform to a satisfactory level, but without breaching the Standards of Professional Behaviour.
Focuses on putting an issue right and preventing it from happening again by encouraging those involved to reflect on their actions and learn. It is not a disciplinary process or a disciplinary outcome.
Department within a police force that deals with complaints and conduct matters.
Refers to lower-level misconduct or performance-related issues, which are dealt with in a proportionate and constructive manner.
This means doing what is appropriate in the circumstances, taking into account the facts and the context in which the complaint has been raised, within the framework of legislation and guidance.
The average is calculated using the individual results of the forces in that most similar force group.
An investigation carried out by IOPC staff.
Carried out by the police under their own direction and control. The IOPC sets the terms of reference and receives the investigation report when it is complete. Complainants have a right of appeal following a supervised investigation (unless it is an investigation into a direction and control matter).
This act sets out how the police complaints system operates.
How a police force is run, for example policing standards or policing policy.
An investigation carried out by the police under the direction and control of the IOPC.
The organisation that is responsible for assessing how to deal with a complaint. For example – whether it can be handled locally or reaches the criteria for referral to the IOPC. The appropriate authority may be the chief officer of the police force or the PCC for the force. If a complaint investigation finds that someone has a case to answer for misconduct, the appropriate authority is responsible for arranging any misconduct proceedings. If you make a complaint, the appropriate authority for your case will contact you.
An intelligence-led agency with law enforcement powers, it is also responsible for reducing the harm that is caused to people and communities by serious organised crime.
Policing bodies include police and crime commissioners, the Common Council for the City of London, or the Mayor's Office for Policing and Crime.
Investigations carried out entirely by the police. Complainants have a right of appeal following a local investigation (unless it is an investigation into a direction and control matter).
IOPC guidance to the police service and police authorities on the handling of complaints.
A complaint or recordable conduct matter that doesn’t need to be referred to the IOPC, but where the seriousness or circumstances justifies referral.
Parameters within which an investigation is conducted.
A person is adversely affected if he or she suffers any form of loss or damage, distress or inconvenience, if he or she is put in danger or is otherwise unduly put at risk of being adversely affected.
This is where a manager deals with the way someone has behaved. It can include: showing the police officer or member of staff how their behaviour fell short of expectations set out in the Standards of Professional Behaviour; identifying expectations for future conduct; or addressing any underlying causes of misconduct.
This could be the Police and Crime Commissioner, the Common Council for the City of London, or the Mayor's Office for Policing and Crime.
A flexible process for dealing with complaints that can be adapted to the needs of the complainant. It may involve, for example, providing information and an explanation, an apology, or a meeting between the complainant and the officer involved.
A flexible process for dealing with complaints that can be adapted to the needs of the complainant. It may involve, for example, providing information and an explanation, an apology, or a meeting between the complainant and the officer involved.
A breach of standards of professional behaviour by police officers or staff so serious it could justify their dismissal.
A matter where no complaint has been received, but where there is an indication that a person serving with the police may have committed a criminal offence or behaved in a manner that would justify disciplinary proceedings.
Disapplication means that a police force may handle a complaint in whatever way it thinks fit, including not dealing with it under complaints legislation. This may only happen in certain circumstances where the complaint fits one or more of the grounds for disapplication set out in law.
The ending of an ongoing investigation into a complaint, conduct matter or DSI matter. An investigation may only be discontinued if it meets one or more of the grounds for discontinuance set out in law.
Quarter 1 covers 1 April - 30 June
Quarter 2 covers 1 April - 30 September
Quarter 3 covers 1 April - 31 December
Quarter 4 covers the full financial year (1 April - 31 March).
You can request a review/appeal if you’re not satisfied with how your complaint has been handled.
Used to house anyone who has been detained.
Complainants have the right to appeal to the IOPC if a police force did not record their complaint or notify the correct police force if it was made originally to the wrong force.
The purpose of an investigation is to establish the facts behind a complaint, conduct matter, or DSI matter and reach conclusions. An investigator looks into matters and produces a report that sets out and analyses the evidence. There are three types of investigations: local, directed and independent.
The ending of an ongoing investigation into a complaint, conduct matter or DSI matter. An investigation may only be discontinued if it meets one or more of the grounds for discontinuance set out in law.
The type of behaviour being complained about. A single complaint case can have one or many allegations attached.
A person who makes a complaint about the conduct of someone serving with the police.
The ending of an ongoing investigation into a complaint, conduct matter or DSI matter. An investigation may only be discontinued if it meets one or more of the grounds for discontinuance set out in law.
List of officers and staff who have been dismissed from policing, or would have been if they had not retired or resigned.
The type of behaviour being complained about. A single complaint case can have one or many allegations attached.
Disapplication means that a police force may handle a complaint in whatever way it thinks fit, including not dealing with it under complaints legislation. This may only happen in certain circumstances where the complaint fits one or more of the grounds for disapplication set out in law.
An independent judicial officer, the coroner enquires into deaths reported to him/her.
A breach of the Standards of Professional Behaviour that would justify at least a written warning.
No further action may be taken with regard to a complaint if the complainant decides to retract their allegation(s).
A record is made of a complaint, giving it formal status as a complaint under the Police Reform Act 2002.
This is a format where information is written in plain English and short sentences.
The IOPC must be notified about specific types of complaint or incidents to be able to decide how they should be dealt with.
No further action may be taken with regard to a complaint if the complainant decides to retract their allegation(s).
Casework involves assessing appeals. Casework staff also have a role in overseeing the police complaints system to help ensure police forces handle complaints in the best possible way.
Disapplication means that a police force may handle a complaint in whatever way it thinks fit, including not dealing with it under complaints legislation. This may only happen in certain circumstances where the complaint fits one or more of the grounds for disapplication set out in law.
Conduct includes acts, omissions, statements and decisions (whether actual, alleged or inferred). For example: language used and the manner or tone of communications.
You can request a review/appeal if you’re not satisfied with how your complaint has been handled.
You can request a review/appeal if you’re not satisfied with how your complaint has been handled.