The problem is, Mikey, it is broke, and very much so.
The original concept of police cautions was that first time offenders committing trivial (not the right word because no crime is trivial to the victim, but I can't think of a better one for the moment) offences should receive a caution instead of being prosecuted. The aim was twofold - to reduce the cost and police time involved in bringing a matter to court and to divert offenders away from the court who, although of previous good character, had made a single minor transgression and prevent them acquiring a criminal record. So far so good.
For some time judges and magistrates have been suggesting that the use of police cautions has become far too widespread and that serious offences or multiple offenders are being dealt with by their use. In 2010 the new government imposed restrictions on the use of cautions. However, those restricions did not go anywhere near far enough. In the 12 months to September 2012 (the latest full figures I can find without searching too hard) 9,600 cautions were issued for offences of violence, 23,300 for theft and handling stolen goods, 2,400 for burglary, 1,400 for sexual offences. In 2012 in London five people received cautions for rape (maximum penalty Life imprisonment), 180 for Section 18 GBH with intent (the most serious of offences involving violence without a death resulting) and 131 for robbery.
As far as multiple offenders goes, the government issued proposals last year to prevent offenders being issued with a caution for second or subsequent offence of a similar nature within two years. (almost 5,000 offenders were subject to just that in 2013).
The problem is that the police view the issue somewhat differently to me. Spokesman for the ACPO, Chief Constable Lynne Owens said this:
" It is important that there is room for officer discretion in any system to ensure the punishment is proportionate to the offence. "
It is not for the police to determine what punishment is proportionate to the offence. That is a matter for the courts. There is no doubt that the use of police cautions has got out of hand. Multiple offenders (whether the offence is similar or not) should not receive them and the range of offences for which first time offenders can be subject to them should be strictly limited.