Select Committee on Home Affairs First Special Report

NPT-delivered probationer training

  48.   We were impressed during our visit to Ryton by the commitment demonstrated by the trainers and by the quality of the probationer constables we met. However, we are concerned that most of the probationers we spoke to felt that the course did not prepare them adequately in knowledge of the law and that too much was taught in too little time. We recommend that NPT examine this matter closely when they come to evaluate the new course. We look forward to seeing in due course the outcome of this evaluation. We were also concerned that probationers told us that the accommodation and food offered at Ryton was inadequate. We urge NPT to review accommodation and food offered to probationers and take steps to make improvements where appropriate (paragraph 63).

  49.  The Government notes the recommendation. The current structure and content of the probationer training programme derives from the recommendations of a steering group acting on behalf of the PTC. The steering group agreed the need for a training programme which ensured that officers were operationally competent by week 31. At that point probationers receive a salary increase and should be sufficiently competent to carry out independent patrol duties. NPT has acted on concerns that the first half of the Stage 2 course is too intensive, by altering the balance of law and procedural knowledge across the 15 weeks of the course. The probationer course is, however, necessarily intensive and demanding.

  50.  NPT has implemented a robust performance management regime in all its probationer training centres. Performance indicators include catering satisfaction levels. As a result of this initiative, the quality of catering and students' satisfaction levels have improved considerably. The Government nevertheless accepts that the facilities at some of the training centres are not ideal. Current funding arrangements and prolonged uncertainty about NPT's future have made it difficult for NPT to make substantial improvements to the quality of accommodation at Ryton and its other sites. The changes which the Government proposes should help to resolve a long-standing, unsatisfactory situation.

Probationer training in the Metropolitan Police Service

  51.   In the absence of a single costing model, comparing like with like, and a valid comparative evaluation of the quality of training provided, it is impossible to conclude whether NPT or the Metropolitan Police Service is more effective at providing high quality and cost-effective probationer training. We welcome the fact that a national costing model is to be introduced and that there is to be an assessment made of the cases for and against a single arrangement for probationer training. Until these initiatives are completed we recommend that the Metropolitan Police Service retain its separate arrangement for probationer training. This situation should be reviewed once an adequate comparison of the costs and quality of training can be made between NPT and the Metropolitan Police Service's training organisation. Once these comparisons have been made it will be possible to address the issue as to whether there should be a single provider of probationer training in England and Wales, as well as a national standard. Until then, national standards in training should be exactly that: all organisations providing police training should meet them (paragraph 69).

  52.  The Government notes the Committee's conclusions. As explained in paragraphs 21-23 above, the Government proposes the establishment of cluster colleges, subject to consultation and cost benefit analysis. It is envisaged that the colleges would deliver probationer training to the forces in their area. The training facilities provided by the Metropolitan Police Service could become part of the cluster college network, subject to further consultation (including with the new Metropolitan Police Authority).

The case for local delivery of all probationer training

  53.   The Chief Constable of Kent has made an interesting proposal, calling for the local delivery of all aspects of probationer training. Such a proposal might be desirable if it could be demonstrated that a national common minimum standard would be reached by all forces; and if such an arrangement would be more cost-effective than the current one. However, we have no evidence to suggest that either of these criteria could be met so we cannot support his proposal in its present form. We think that it is right that the core part of probationer training continues to be delivered by NPT at their training centres (paragraph 72).

  54.  The Government notes the Committee's conclusion. Standards and cost-effectiveness are not the only criteria in deciding whether probationer training should be delivered by individual forces. There is value in probationers mixing with officers from forces other than their own, to impress upon them that they are part of a wider service. Probationers would, as at present, mix with recruits from a number of forces if probationer training were to be delivered by the proposed cluster colleges.

Attestation

  55.   We agree with the Metropolitan Police Service, that it should be easier to remove probationers who are clearly not suitable to be police officers. To this end we recommend that the time of attestation be changed from the time of appointment (as is the case at present) to six months after that date (paragraph 75).

  56.  It is difficult to accept the argument that current arrangements make it difficult to remove probationer constables who are unsuitable. Regulation 15 of the Police Regulations 1995 allows a chief officer to dispense with the services of a constable during the first two years of service, the probationary period, if the chief officer considers that the constable is not fitted physically or mentally to perform the duties of the office, or that he or she is not likely to become an efficient or well conducted constable. There is no appeal process and the constable receives a month's notice or a month's pay in lieu of notice.

  57.  One of the procedures for removing a probationer is, as the Committee recognises, to take disciplinary action if this is appropriate. In some cases disciplinary action will be the proper course—not least to demonstrate clearly what behaviour is wholly unacceptable but also, in circumstances where non-probationary constables are involved, for equality of treatment. The Government understands that most forces take disciplinary action against probationers where the conduct warrants it. This may or may not result in termination, but a probationer will usually have little on the credit side with which to argue for leniency since he or she will have relatively little service. Disciplinary proceedings can and in some case should be instituted against a probationary constable. But if a chief officer feels it necessary to get rid of an unsuitable officer quickly then procedures enabling him or her to do so are available under regulation 15.

  58.  It is important that chief officers are able to take action against the minority of probationers who show themselves unsuitable to be members of the police service. But it is equally important that the procedures for doing so are fair and transparent. It is not clear that putting back the date of attestation by six months would, in any case, achieve the objective the Committee seeks. It would require primary legislation and wide consultation with police service interests. It would probably also require a whole new set of conditions of service for officers between their appointment and the time of their attestation. The Government also considers it important that probationary officers have the powers of constable throughout their probationary period, including the first six months.

  59.  For these reasons the Government does not propose to accept the recommendation.

Non-specialist post-probationers

  60.   We note with concern the views of the Police Federation, HMIC and the Home Office that officers who do not seek promotion or to become specialists do not receive sufficient training throughout their careers. Knowledge of law and operational procedures are crucial to the basic role of a police officer, and it is essential that police officers keep up to date with changes in the law. It is not acceptable that officers are being asked to fulfil this role with insufficient training. We recommend that all forces should review the training needs of all constables and sergeants and provide the training needed to fill any significant gaps which emerge. Police authorities should encourage forces to conduct such a review and look closely at the results, pressing for action where necessary. HMIC should review this exercise on a national basis and work closely with NPT, whose responsibility it should be to ensure that any national training needs which are identified are met (paragraph 79).

  61.   If established, as we have recommended, the new police training inspectorate should make it a regular feature of inspections to examine the training provided by forces for constables and sergeants who are not specialists. In any case, effective appraisal systems should be in place which identify training needs of individual officers (paragraph 80).

  62.  The Government agrees that the training needs of non-specialist officers who are not necessarily seeking promotion are not being properly addressed under current procedures. This is a defect to which the Police Federation and others have rightly drawn attention. The Government intends that the proposed new structure will support and ensure continuing development and updating of skills and knowledge for these officers and for all ranks.

  63.  The thematic inspection by HM Inspectorate recommended that:

Chief Constables should put in place an integrated and cohesive approach to staff development which ensures that the training provided to individuals contributes toward the achievement of force objectives and improved performance.

Sir William Stubbs also recommended that:

Each force should be required to prepare and maintain a fully-costed human resources plan which sets out how staff would be recruited and trained to at least the national occupational standards in support of the force's policing plan.

  64.  The Government fully endorses these recommendations. They are a fundamental part of ensuring that each individual has the necessary skills to perform his or her job to a high standard and that each force is equipped to meet its objectives. Chief officers should produce a costed human resources plan annually, which should form the basis of inspection by HM Inspectorate. Police authorities should also play an important role in scrutinising the plan.

  65.  The tripartite partners must work together to ensure that systems such as these annual plans are in place to support the continuing, profession-long training and education for all ranks. The policing environment is constantly changing and officers must continue to acquire new skills and update their existing knowledge. Continuing development will be supported by:

—  line managers and chief officers who can use the occupational standards and competencies as appropriate as the basis of recruitment and assessment procedures;

—  the use of Personal Development Plans for all staff;

—  the core curriculum, which will set out what employees need to know and be able to do;

—  requiring personnel to become qualified in certain areas and to undertake refresher training periodically; and

—  more effective use of Information and Communications Technology (ICT)-based learning, particularly in refresher training and in keeping knowledge, eg of relevant legal developments, up to date;

Custody officer training

  66.   We note with dismay the findings of the PCA survey which stated that approximately 23 per cent of custody officers are carrying out their demanding duties without having had specialist training. We agree with the Home Secretary that this is unacceptable. A mandatory requirement that all custody officers receive training before commencing duties should be strictly enforced and police authorities should make it their business to check that this is the case in their forces. As the Home Secretary noted, this is a clear example of where common minimum standards should be followed. We would expect this to be an area with which the proposed inspectorate of police training would concern itself (paragraph 85).

Baton training and CS spray training

  67.   We believe that there should be common minimum standards in baton training (we note that different forces use different batons, but we do not believe this means that there cannot be common minimum standards in terms of the training received). Again, this is an area where the proposed inspectorate of police training could comment and where police authorities should monitor closely the training provision of their forces. We look forward to the PCA's findings regarding CS spray and hope that these too will act as an impetus for forces to meet common minimum standards for training in those forces that use it (paragraph 88).

Self-defence and restraint training

  68.   Police officers do a challenging and often dangerous job. We are failing them and the communities they serve if we do not ensure that they are trained properly in self defence and restraint techniques. We support the PCA's call for high-quality training and regular refresher training. When reviewing the needs of constables and sergeants, as we recommend earlier, forces should ensure that self-defence training needs are taken into account (paragraph 90).

  69.  These three points, relating to specific areas of training, illustrate one of the main disadvantages of the current system. Each of the three types of training is the responsibility of individual forces. NPT has produced a national custody officer training programme, but individual chief officers do not have to use it and the selection and training of custody officers remains their responsibility. They may use all, part or none of the programme. A short, generic baton training module is delivered by NPT in Stage 2 of the probationer training programme, which ensures that all probationers receive the same level of training up to the point of using batons, but thereafter it is the responsibility of chief officers to train their officers in the use of their preferred style of baton. NPT also runs a national training programme for self-defence trainers, but forces are not required to use it and can make their own arrangements if they wish.

  70.  The Government would not wish to suggest that training in these and other areas should be delivered centrally. The answer is rather to introduce common minimum standards and to put in place robust mechanisms for quality assurance and independent inspection to ensure that they are met. A core curriculum (considered in paragraph 28 above) might also be of benefit in these and other areas.

  71.  As already mentioned, the Government believes that there is a strong case for requiring minimum standards in such specialist areas as custody officer duties by the introduction of mandatory qualifications.

Project Fforward

  72.   We congratulate the Police Federation for their creative approach to police training as demonstrated by Project Fforward. We support their call for a greater use of IT, distance-learning and for life-long learning. We also believe they are right to emphasise the fact that better training provision needs to be available for police officers who are not promoted and who do not seek specialisms. However, we are not convinced that Project Fforward offers a viable proposal for the future of police training. In particular, we are concerned that there could be a serious conflict of interest for a staff organisation to have the largest influence over the design, delivery, evaluation andstandard-setting of police training, as Project Fforward suggests. We also agree with the Home Secretary that there is perhaps an over-emphasis on IT in the plans. We also note that there would need to be a more rigorous process before any contract was awarded. For these reasons, we cannot support Project Fforward in its current form, but we would encourage the Police Federation to continue its innovative approach to police training (paragraph 98).

  73.  The Home Secretary welcomed Project Fforward as a valuable contribution to the debate about the future of police training. It contained good ideas which merited further discussions, although in its original form it contained a number of drawbacks which would have been difficult to overcome. In July 1999 the Police Federation put forward a revised proposal in their report Police Training—What Next? This report, which retained the principles and objectives of Project Fforward, proposed the setting up of a Police Training Standards Authority as a first step towards the establishment of a police university which would "enable, commission, co-ordinate and monitor all aspects of vocational and non-vocational training and development to national standards". It would consist of an interactive college and a virtual college, outsourced to the private sector.

  74.  The Police Federation's revised proposals would meet some of the criteria listed in paragraph 6 above, such as the need to set national standards for policing and measurable and effective training standards. Meeting some of the other criteria might be more problematic. The Government believes that the Police Federation's revised proposals, like the original Project Fforward, contain valuable ideas which merit further consideration. The Government is confident that its proposals as indicated in this response can meet the objectives of the Police Federation's paper and overcome the defects in the current system to which the Federation have rightly drawn attention. The Government will consider further to what extent the Federation's ideas can and should be incorporated in the proposed new structure.

  75.  The Police Federation has described the benefits that an increased, and more effective, use of ICT-provided learning and of distance learning could bring to training. Developments in recent years in the field of ICT-provided learning mean that it could now become a powerful tool in enabling all personnel at every level and stage of their career to develop and demonstrate new skills. In addition, the increasing use of ICT in further and higher education courses and in schools has led to a growing expectation and interest in such methods among recruits. It should play a more important part in police training than it has done to date, alongside more conventional methods such as classroom training. Distance learning and ICT-based learning must be supported by trained tutors, line managers, team leaders and supervisors, as the thematic inspection by HM Inspectorate recommended. The Government will work with interested parties to secure the development of an ICT-based learning system for the police which can deliver high quality, up to date and cost effective training for the police service.

  76.  The provision and updating of distance learning materials is currently undertaken by NPT's Educational Services at Harrogate. Individual forces have also developed expertise in this area. As the thematic inspection by HM Inspectorate acknowledged, some forces have invested inICT-based learning and have a particular knowledge of the issues. It is important to ensure that best practice and information are shared between all training providers and that duplication of resources and effort are avoided. For these reasons, a central facility for providing distance learning and ICT-based learning and for updating existing products could be considered. It could be located in the central police college. This would ensure that ICT-based learning and distance learning were at the heart of the new arrangements.

  77.  The Government is also keen to ensure that the police service can benefit from other Government initiatives, such as the University for Industry and individual learning accounts, which contribute to its priority of promoting lifelong learning.

The academic model

  78.   There is obviously a danger of forcing professional training too far down the academic route. However, we do believe that there is room for a larger educational element in police training. This would help to equip police officers for the more complex role they play in a modern society (paragraph 108).

  79.   We acknowledge the benefits which a more academic approach could bring to the delivery of police learning and training as put forward by the 1990 Trust. We agree that such an approach would expose officers to a wider cross-section of the community and weaken the negative elements of the occupational culture. However, we do not think that such an approach would be practicable because we are not convinced that the necessary policing skills could be taught better by academics than police officers (paragraph 109).

  80.   However, we certainly see value in officers having greater access to an academic dimension to their work and to this end we recommend that the Home Office consider an experiment, along the lines suggested to us by Professor Savage and Dr Wright. The Home Office should consider running a pilot scheme with a number of new recruits taking part in the year-long course proposed alongside the standard training for probationers. At the end of that time those officers should be assessed to see whether the exercise has been worthwhile in terms of equipping them to do their jobs better than those officers who received only the traditional training. Depending on the results of such a pilot scheme, consideration should be given to introducing the scheme on a wider basis. We realise that this would have resource implications, but if similar amounts of expenditure can be justified for trainee nurses and trainee probation officers, we do not see why the option should be ruled out for police officers (paragraph 110).

  81.  The Government agrees that there is scope for a more academic approach to some aspects of policing and police training, both to improve standards and to provide greater job satisfaction and opportunities for self-improvement for police officers. As already mentioned, the Government intends that there should be a greater use of qualifications in police training. These will include National Vocational Qualifications, non-vocational qualifications and higher education qualifications.

  82.  The Committee has rightly drawn attention to the dangers of relying too heavily on such an approach. Officers primarily need practical training and experience to enable them to carry out their duties and it is possible to place too much emphasis on examinations and qualifications. The Government nevertheless considers that greater use of qualifications has a role to play.

  83.  The Government will also consider further whether and how the proposals put forward by Professor Savage and Dr Wright might be evaluated and, if appropriate, incorporated into the proposed new arrangements. The Government nevertheless has doubts about whether testing such a pilot scheme on a "live" group of probationers in the way suggested would be acceptable, since it would result in a group of officers who had gone through a different process from their colleagues.

Review of National Police Training (NPT)

  84.   We welcome the outcome of the review into NPT. We agree with its central findings that there is a need for national and local provision of police training and we agree that NPT is the appropriate body to provide the former. We especially support the establishment of a police authority for NPT and hope that this will improve the strategic direction of the oraganisation and provide a better system of accountability. However, we think that, given that police officers themselves have a special interest in the effective provision of their training, there is a strong case for inviting the Police Federation and the Superintendents' Association to be part of the Authority alongside the tripartite membership. Police officers are important stakeholders in their own training: their representative associations should have a say in the body overseeing NPT (paragraph 120).

  85.   We welcome the setting up of a National Training Organisation and hope that it proves a useful body in co-ordinating police training and providing the national strategy needed. We would expect it to work closely with the training inspectorate we want to see established (paragraph 122).

  86.   We think that both the new Service Authority and National Training Organisation should pick up on the constructive points made by the Police Federation in the Project Fforward proposals and ensure that effective use is made of IT and distance learning in both NPT and force delivered training (paragraph 123).

  87.  As already mentioned, the Government envisages a changed role for NPT under the proposed new structure. It would in effect become the central police college for England and Wales, disseminating good practice and developing and promoting professional excellence across the police service. It would continue to deliver leadership training, such as the accelerated promotion courses and senior officer training, but it would no longer deliver probationer training. It would be accountable to a service authority.

  88.  The Government agrees with the recommendation that a National Training Organisation (NTO) for the police service would be beneficial and will encourage the tripartite partners towards that end. The Government sees the creation of an effective NTO as a vital part of the new structures for police training. The Government welcomes the significant amount of work which ACPO has carried out in this area. The primary responsibility of the NTO would be to develop national occupational standards for the service as well as advising on a national qualifications structure, identifying skill shortages and training needs and providing information on training and development opportunities.

  89.  The Government notes the Committee's recommendation that both NPT and the NTO should take account of the constructive points made by the Police Federation and make effective use of IT and distance learning. This point has already been covered in paragraphs 73-77 above.

Methods of recruitment

  90.   We are concerned that the police recruitment procedure can seem "disorganised and disjointed" and that potential recruits might be confused by it. We therefore support the call by HMIC for less variation in the eligibility criteria for police recruits and the proposal by NPT for common minimum standards of recruitment practices. It is somewhat disappointing to have to repeat a recommendation made by a predecessor Committee 10 years earlier, but it is clearly still pertinent: "we . . . recommend that the Home Office should investigate the establishment of a professional method of nationally directed and regionally organised recruitment into the police service" (paragraph 136).

  91.   We recommend that the Home Office review police recruitment with the intention of establishing procedures that ensure that there is more national coherence, ensuring that all forces use recruitment practices that are based on the competency framework of new constables, and ensuring that best practice is disseminated and followed by forces (paragraph 137).

  92.   The police training inspectorate which we want to see established should have as a function a remit to monitor the recruitment policies and practices of forces to ensure that these are effective, efficient and that they select recruits who are able to make the most of the training they will receive and become effective officers (paragraph 138).

  93.   We welcome the initiative undertaken by NPT and Warwickshire Constabulary which should ensure a stronger link between recruitment and training and help ensure that recruits are capable of responding positively to the training provided. We look forward to seeing whether this initiative is successful and, pending results, we urge the Home Office to consider extending the initiative wider to allow forces to make use of NPT's expertise when recruiting (paragraph 139).

  94.  The Home Office currently publishes minimum standards and guidelines on recruitment. Forces are not, however, obliged to follow them and there are numerous examples of forces choosing to move away from the guidelines. The Metropolitan Police, for example, recently lowered the recommended pass mark for the initial recruitment test (PIRT) and Lancashire use a completely different test. Some forces take the view that the demands of the job vary slightly from force to force and so, therefore, must the requirements placed on individual recruits. Some forces, for example, argue that recruits must be able to swim due to the geographical location of the force. This view appears, however, to be receding. The imminent loss of exemption under the Disability Discrimination Act has been a factor in this trend.

  95.  The Government recognises that Home Office guidelines are in need of regular review. To an extent this is already happening. The PIRT is currently being reviewed to ensure that it does not have a negative impact on ethnic minority candidates. The Home Office also intends, subject to available funding, to carry out an independent review of medical criteria in partnership with the Fire Service. The Home Office will also look at all other entry requirements. In addition, the Home Office recently organised a seminar at Bramshill for recruiters, to encourage the dissemination of best practice. The Home Office intends to follow up this event next year.

  96.  The Government is committed to national recruiting standards based on a competency framework. There will be a role in this context for the NTO for the police service which the Government wants to see established.

  97.  The joint pilot scheme undertaken by NPT and Warwickshire Constabulary has proved to be a successful initiative and is being extended to other forces in the region. The pilot has proved the effectiveness of maintaining consistency between the core competencies assessed in recruitment and those assessed during the probationary period. NPT has the expertise to develop the initiative nationally but at present there are no levers to encourage or require its adoption as a national process.

  98.  The Government envisages that the proposed training inspectorate will have a broad remit and will work closely with the newly established training bodies and with police authorities. The inspectorate will need to liaise closely with the District Audit Service and the Audit Commission in validating those elements of best value performance plans that are directly related to human resources and training. This will involve the development of common standards and key competencies for recruit selection and training.

The case for a Graduate-only Police Service

  99.   We agree with the argument put to us by the Home Secretary and others that there is no case for a system of graduate-only entrance to the police service and that such a system would deprive the service of many excellent officers (paragraph 146).

  100.  The Government agrees with the Committee's conclusion.

Current arrangements for graduates

  101.   While we do not think all entrants to the police service need to have degrees, we do believe that the police service could benefit from having more graduates within it. We support the existence of the Accelerated Promotion Scheme for Graduates (APSG), and note the beneficial effects it has for wider recruitment, but we believe it needs to be expanded significantly. We also recommend that all forces do as the Metropolitan Police Service does, and as the Home Secretary recommends, and take active steps to encourage interested graduates who are rejected for the APSG to join as normal graduate entrants (paragraph 150).

  102.  The Government notes the Committee's conclusion. A fundamental review of the APSG is under way, led by HM Inspectorate under the umbrella of the Home Office/ACPO Working Group on Leadership.

Training and recruiting the police in a diverse society

  103.   The Macpherson Inquiry has emphasised that the police service's ability to police the whole community fairly is not an add-on extra to its core duties, but absolutely central. Effective training and recruitment practices are essential to building the representative, fair and efficient police service we all want to see (paragraph 151).

  104.  The Government agrees with the Committee's conclusion. The Government recognises and welcomes the fact that Britain is a culturally diverse society and is determined to ensure that our institutions are equipped to function fairly and effectively in that environment. To this end, one of the principles guiding all work relating to police/community relations is that they should help and support the police to enforce the law in a multi-cultural and multi-ethnic Britain. NPT and ACPO are developing a comprehensive programme of training activities and good practice which includes racism awareness and other training needs. This involves the review and revision of existing provision, setting clear standards for the design and delivery of training and the identification of the best delivery methods.

  105.  The Action Plan which emerged from the Southampton Conference Dismantling Barriers emphasises the Government's commitment to a police service which is representative of the community it serves. The two booklets Dismantling Barriers: Action Plan and Dismantling Barriers: Targets, attached to the end of this response[15], set out the action which has been and will be undertaken.

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Prepared 7 December 1999