10. Memorandum submitted by
the Home Office
Further to your call for written evidence for
the above inquiry, I attach a memorandum outlining the Government's
position on the specific issues the Committee has set out in its
terms of reference together with some more general points on the
police reform process as a whole. The Committee will also want
to consider the section on policing contained in the Home Office
Strategic Plan we published on 19 July (Confident Communities
in a Secure Britain—Cm 6287) which sets out proposals
for the development of our reform agenda.
I should also flag up now that we intend to
publish, probably during early September, the results of the Policing:
Building Safer Communities Together consultation exercise.
And we want to publish a further consultation document on police
reform this autumn. I will keep you in touch with developments
on this and, of course, ensure that the Committee has early sight
of the relevant material.
Hazel Blears MP, Minister of State
29 July 2004
OVERVIEW
1. The Government welcomes the opportunity
to set out progress on the specific items of the police reform
agenda the Committee has highlighted. The overall programme is
showing real results, building on the proposals set out in the
White Paper of December 2001[9]
and the subsequent Police Reform Act 2002. The chance of being
a victim of crime is historically low and we are making inroads
into people's fear of crime. The resources available for policing
are historically high—we have nearly 140,000 officers as
at the end of May 2004 and record numbers of police civilian staff.
There are over 3,500 Community Support Officers on our streets
now providing a visible, reassuring presence. We have increased
Government police funding by 21% in real terms since March 1997.
Forces are being helped by technological and scientific advancements
such as DNA and better communications systems. The complementary
work of Her Majesty's Inspectorate of Constabulary and the Police
Standards Unit is bearing fruit—as is the partnership work
being undertaken by the police and others within Crime and Disorder
Reduction Partnerships. Crucially, we see a performance culture
really embedding itself within the police service.
2. The Government is not complacent about
any of this. And as we signalled in last year's Building Safer
Communities consultation paper and the Home Office Strategic
Plan we have just published, we want to go further with reform.
As the Government made clear at the time, we did not see the proposals
contained in the December 2001 White Paper as representing a one
off change for policing in England and Wales. In taking forward
the reform process, we want to build on the bedrock of success
that has been achieved to date—through the hard work of
the police service, police authorities and their partners from
the community and voluntary sector, local and central government.
The work which these partners are doing to tackle anti social
behaviour is a good example of this (the Government notes that
the Committee has announced a separate inquiry into anti social
behaviour and will separately respond in full on this issue to
that inquiry).
3. A strong focus on performance will remain
at the heart of the Government's forward reform agenda. But as
we have made clear, it also means addressing some fundamental
issues such as the service which the police provide to communities;
how policing is structured; how community engagement in policing
can be increased and how accountability mechanisms can be clarified
and strengthened. We see these elements as being very much inter-linked.
We must also look at things in the round—from policing at
the neighbourhood level to improving the effectiveness of tackling
crime at the national and increasingly international level.
4. The Government is clear that reform is
not an end in itself—and that it must lead to demonstrable,
practical improvements on the ground for communities and the police
service itself. Building on the thoughts set out in last year's
consultation paper and the Home Office Strategic Plan, we intend
to publish further proposals on the whole of the reform agenda
this autumn.
5. In the meantime, the Government sets
out below comments on the specific reform elements highlighted
as being of interest to the Committee. At Annex A to this memorandum
is a short note on the governance of the police reform programme.
NATIONAL POLICING
PLAN
6. The Police Reform Act 2002 amended the
Police Act 1996 to require the Government to lay before Parliament
by the end of November each year a National Policing Plan (NPP)
for the following three years.
7. The first NPP (for 2003-06), issued in
November 2002, built on the proposals in the December 2001 White
Paper, establishing a single place where the Government's priorities
for policing; initiatives in place or under development for delivery
of those priorities; and the performance indicators for measuring
progress against those priorities all came together. The Plan
acknowledged the achievements of the police over recent years,
especially in crime reduction and the early stages of implementation
of the police reform programme. It placed this work in the context
of the delivery of Public Service Agreements and rested on the
Policing Performance Assessment Framework (PPAF) as the means
by which police performance would be measured.
8. The second NPP (for 2004-07), published
in November 2003, represented an incremental change in Home Office
expectations for police planning. It was broadly welcomed by the
police service as coherent and focused Plan which supported their
local planning activities. The Plan set a national framework of
minimum standards against which policing should be delivered locally.
It also signalled the direction of travel for the ongoing police
reform agenda. Once again, it set out the Home Secretary's key
priorities and reflected the considerable progress that had been
made over the previous year as well as relevant changes in the
policing environment. It described the significant PPAF developments
and how it would be used to account for performance.
9. The Home Office intention for the third
NPP (for 2005-08) is to make it a strategic and succinct document
which will provide genuine flexibility for the identification
of local policing priorities within a national framework. The
2005-08 Plan will be developed with the new set of Home Office
Public Service Agreements from the Spending Review 2004 and the
contents of the Home Office Strategic Plan firmly in mind. The
intention to put the law-abiding citizen at the heart of policing
will be central to the Plan's message. It will also be closely
allied to the embryonic National Community Safety Strategy.
RELATIONSHIP BETWEEN
NATIONAL PRIORITIES
AND LOCAL
DECISION MAKING
10. The NPP seeks to strike a balance between
national and local priorities by setting a clear framework of
national minimum standards and performance assessment while leaving
sufficient flexibility for locally identified priorities to be
addressed. An overall national reduction in crime and anti-social
behaviour and improved feelings of public safety can be achieved
by the police service engaging with their communities and partners
to identify priorities and the best means of tackling them. The
Policing Performance Assessment Framework then measures how effective
and efficient forces have been in tackling both local and national
issues.
11. The Home Office Public Service Agreements
set out the performance delivery target which have implications
for police authorities and forces. The current Public Service
Agreements set targets for domestic burglary and robbery in 10
street crime initiative areas from the Spending Review 2002. These
were set out in the first two National Policing Plans for 2003-06
and 2004-07.
12. The new set of Public Service Agreements
from the Spending Review 2004 is less prescriptive. For example,
PSA 1 simply sets a target of a reduction in crime of 15% by 2007-08
and does not single out particular crime types for reductions
by so many per cent. This leaves room for chiefs and authorities
to identify those crime types that are the biggest problem in
their areas and to take appropriate action to tackle them. Force
performance will then be measured through the Policing Performance
Assessment Framework. Assessments of performance will consider
both force and BCU performance against local as well as national
priorities, to ensure a fair view of performance.
ACCOUNTABILITY MECHANISMS
13. Strengthening the accountability of
policing in England and Wales formed a key element of the Building
Safer Communities Together consultation paper. Further details
are set out in paragraphs 109-113 of this memorandum. One of the
factors which influenced the thinking behind the proposals in
last November's consultation paper was Home Office research, undertaken
with the Association of Police Authorities[10],
which indicated a general consensus that the public does not have
a say in decisions about policing and that people want better
communication, information and involvement. The vast majority
of people involved in the research had not heard of police authorities.
14. We intend to bring forward detailed
proposals about police accountability in the autumn. But the Home
Office Strategic Plan set out some broad principles which we want
to develop:
— a new system at the neighbourhood
level—which will build on existing good work being done
by a variety of neighbourhood bodies;
— at the district level—strengthened
links with local authorities and with Crime and Disorder Reduction
Partnerships playing a central role;
— at the police force level—strengthened
police authority arrangements so that they have a clearer enhanced
role in terms of holding chief constables to account; have greater
democratic accountability themselves but also have clearer responsibilities
in terms of the delivery of efficient and successful policing
that meets the needs of their communities.
15. The Government is clear that these changes
will not damage the principle of the tripartite approach.
EMBEDDING POLICE
PERFORMANCE
16. A stronger focus on performance is now
firmly embedding itself in the police service and will continue
to drive forward the delivery of policing. The requirements for
improving overall policing performance and for closing the gap
between the best performing forces and others—as set out
in the Public Service Agreement targets set at the time of the
Spending Review 2002—are key to ensuring high standards
of policing and consistent professionalism across the country.
This is central to the Government's sustained programme of police
reform.
17. The embedding of a performance-focused
approach to policing are encompassed in both the national arrangements
for assessing effective performance and in the steps to enhance
the capability of the police service to deliver performance improvements.
Key components of the approach to shaping this performance drive
have been:
— arriving at a more comprehensive
and informed view of what comprises effective police performance;
— a greater emphasis on assessments
of force performance which are objective, independent and data
driven;
— more use of comparative performance
information which highlights variations in achievement between
forces, Basic Command Units and their peer groups; and
— an increase in the capability to
access up-to-date performance data at both the national and local
level.
18. The inception of the Police Standards
Unit (PSU) was a strong feature of December 2001 White Paper.
PSU has been key to the development of this change in approach
to police performance:
— through the Policing Performance
Assessment Framework (PPAF), a broader, more comprehensive assessment
of policing performance has been developed;
— through the development of iQuanta,
the Home Office, police forces, police authorities and Crime and
Disorder Reduction Partnerships have access, for the first time,
to real time, monthly data on how well local areas are performing;
and
— PSU's engagements with a number of
police forces with a "performance gap" has provided
both a new capacity and a new method for driving up police performance
The Policing Performance Assessment Framework
(PPAF)
19. The National Policing Plan in 2002 explained
that the Home Office, in partnership with ACPO, APA and the other
key stakeholders, would be developing a balanced performance assessment
framework for policing—the "Policing Performance Assessment
Framework" (PPAF). PPAF will facilitate the monitoring of
policing performance across six performance areas (domains): citizen
focus; reducing crime; investigating crime; promoting public safety;
providing assistance and resource usage.
20. PPAF is intended to be an effective
and fair way of measuring and comparing strategic performance
in policing across the full range of policing responsibilities.
Finance and resource management are both seen as key aspects of
performance so PPAF is also introducing a consistent approach
to activity-based costing.
21. The Government's reform agenda places
an emphasis on ensuring public services meet the needs of users.
PPAF reflects this aim by focusing on outcomes (end results) rather
than focusing on who is responsible for delivery. This focus should
ensure that PPAF data and analysis leads to improvements in policing
such as:
— less crime and disorder;
— improved response time;
— more offenders brought to justice;
22. Improving these areas of policing will
also help deliver critical improvements: greater satisfaction,
trust and confidence in policing across all communities. The focus
on outcomes also allows forces to be innovative in developing
better ways of delivery.
23. An interim set of measures linked to
PPAF domains was agreed, based on performance indicators in the
National Policing Plan 2003-06. The Home Office published 2001-02
force data relating to these measures in the form of "performance
monitors" in February 2003. It published an update using
2002-03 data in October 2003. The monitors describe force data
and compare it to the average for that force's group of "most
similar forces".
24. A new suite of "statutory performance
indicators" was established on 1 April 2004. These included
an improved focus on "user satisfaction" and measures
have also been introduced to monitor any disproportionality in
operational performance (eg detection rates for violent crime
by ethnicity of victim). A measure on front-line policing has
also been introduced. Work continues to develop new and revised
measures for statutory introduction on 1 April 2005. The intention
this year is to undertake consultation as part of the process
to prepare the National Policing Plan 2005-08. This should enable
us to advise police authorities and forces on 2005-06 measures
on publication of the National Policing Plan in November 2004.
www.homeoffice.gov.uk/rds/
iQuanta
25. Another key development which PSU have
driven over the past 12 months has been the development of "iQuanta".
Rather than having to rely on old crime statistics, iQuanta
provides real-time data on the performance of all forces and BCUs
across the major crime types. iQuanta is an internet based
police performance analysis tool. It is available on-line (but
with password protection) to the Home Office, forces, BCUs, police
authorities and to CDRPs. It currently has more than 2,000 registered
users.
26. The iQuanta software produces
a range of charts to illustrate current performance at force,
BCU and CDRP level. The analysis gives an impression of how particular
units compare with their peers, shows up significant change in
performance, and tracks progress towards targets. The charts are
accessed via a simple drop down menu. iQuanta is intended
to show performance against the indicators that contribute to
the performance monitors. It has been a crucial development as
it has provided the whole of the police service, and associated
stakeholders, with a consistent language for considering police
performance. It has also enabled forces and BCUs to look outside
of their own local area to compare themselves with their peers
and to assess both where they are strong and where they need to
improve.
Baseline Assessments
27. Baseline Assessments are Her Majesty's
Inspectorate of Constabulary's new inspection methodology. HMIC
have introduced the risk assessment approach to focus its inspection.
This approach is entitled "baseline assessment" because
it seeks to monitor change in each force (improvement or deterioration)
against a baseline of performance identified. The baseline assessments
draw upon the quantitative data of the Policing Performance Assessment
Framework, to which they add a standards-based policing judgement
of the quality of the processes that underpin performance. It
involves producing a tailored, three-year inspection programme
for each force, with areas of under-performance being subjected
to more detailed inspection. Other types of inspection activity
will be integrated into each programme, reflecting the three-year
planning process based on National Policing Plans. The main elements
include:
— a traffic light assessment of police
functions and activities;
— a framework of questions and the
standards expected;
— more use of self-assessment and the
views of other regulators and partners;
— assessment of strengths and areas
for improvement that are high level, comprehensive and annual;
and
— a tailored programme of inspection
activity for each force, based on the assessment and the force's
own strategic development programme.
28. The first baseline assessments were
published on 14 June 2004. Performance Management was one of the
stronger areas of positive performance, across the service, which
emerged. The grading they contained is based upon quantitative
information wherever this exists, supplemented by qualitative
judgements and knowledge of the context within which each force
is working.
29. Following the first baseline assessment,
a three-year inspection programme is planned, tailored to the
inspection needs of the force and taking account of the force's
own strategic development programme. It includes: focused inspections
on activities/areas of special concern; BCU and Best Value Review
inspections; and quarterly visits by HMIC staff officers.
30. The quarterly visits will be used to
check progress in areas highlighted during the initial assessment
and will incorporate other routine HMIC monitoring in areas such
as overtime monitoring and efficiency plans. Following all significant
inspection activity, the baseline assessments will be updated.
The results will build towards a formal annual presentation by
Regional HMIs to forces and police authorities and publication
of the updated assessment.
31. It is planned, later this year, to republish
the baseline assessments, following realignment of the framework
with the PPAF domains. Thereafter, they will be published annually
every autumn.
Police Performance Steering Group
32. These quantitative and qualitative assessments
of police performance are brought together in the Police Performance
Steering Group which meets fortnightly, is chaired by the Home
Office and contains representatives from PSU, HMIC, the Association
of Chief Police Officers and the Association of Police Authorities.
It considers the performance assessments of forces and BCUs and
takes receipt of progress reports on key areas of performance
improvement activity. It forms a crucial link in the accountability
chain for delivery priorities from the top of government, through
the Home Office and down to forces and BCUs.
33. PPSG is key to the delivery of the principal
policing performance improvement target. This target seeks to
improve the performance of all police forces, and significantly
reduce the performance gap between the best and worst performing
area.
34. This performance gap has been quantified.
Based on the data published in the October 2003 Performance Monitoring
Report, a number of forces showed "gaps" of more than
10% in performance at the end of 2002-03 when compared with their
Most Similar Forces, either in Domain 1 (Reducing Crime) or Domain
2 (Investigating Crime), or both. The Home Office and Treasury
have agreed that in the other domains there are no gaps to be
filled. In other words, a number of forces showed performance
more than 10% worse than the average performance of the forces
they were being compared with for the financial year 2002-03.
"Significantly reducing the performance gap"
will require forces to get within 10% of the fixed 2002-03 baseline
levels of their most similar force comparators by the end of the
financial year 2005-06. In other words, by April 2006 levels of
target crimes in all forces will be within 10% of each forces
2002-03 MSF average. The Domain 2 score for each force will be
within 10% of the average Domain 2 score for its MSF comparators
for 2002-03.
Police Performance—current state of play
35. Based upon the most recent data available,
improvements have been made in all PPAF domains for which there
is data available. Domain 1 (reducing crime) shows particular
improvement with a reduction in target crimes per 1,000 population
of 12.7%. Forty of the 43 in England and Wales have reduced the
levels of target crime in the most recent 12 months compared to
the baseline year. Improvements have also been seen in Domain
2 (investigating crime), although a lower proportion (around a
half) of forces have seen improvements.
36. There has been a fall in the fear of
crime and the level of perceived disorder of 3.5% in 2003 compared
with the previous year, while the percentage of BCS respondents
believing that the police do a good or excellent job has been
roughly constant (a 0.3% rise). Significant progress has been
made towards achieving the Domain 1 gap target with five of the
11 gap forces now within 10% of their fixed MSF average. A further
five are on trajectory to achieve their targets. In Domain 2,
one of the seven gap forces is now within 10% of its MSF average
with a further two on trajectory to meet their targets.
Further front-line improvements
37. Considerable effort has been made to
ensure that all stakeholders are familiar with the performance-focused
agenda of police reform. PPAF and baseline assessments have been
communicated to the service at every level. The widespread usage
of iQuanta throughout the service demonstrates that all police
stakeholders are highly aware of the performance agenda, of the
need to raise performance levels to those of the best and of the
relentless drive to seek further improvements.
38. Other key developments in this process
include specific performance modules in the training for chief
officers and BCU commanders as well as extensive PSU, HMIC, ACPO
and APA briefings throughout the service.
39. It should also be noted that the introduction
of the National Intelligence Model (NIM) has played a crucial
role in refocusing policing activity towards a process for risk
assessing and prioritising policing needs, mapping progress and
responding accordingly.
40. A further key step for the further development
of this agenda is the performance management good practice guide
which PSU—in conjunction with ACPO, HMIC, APA and the Superintendents'
Association—are developing and which is intended to provide
police managers at every level of the service with an understanding
of the key components for driving policing performance improvement.
THE ROLE
OF THE
POLICE STANDARDS
UNIT
41. The Police Standards Unit (PSU) was
set up by the Home Secretary in June 2001 to help deliver the
Government's commitment to raise standards and improve the operational
performance of the police. The focus of PSU's activities is to:
— Measure and assess police forces
performance.
— Understand the underlying causes
of performance variations.
— Provide support and focused assistance
to forces where a problem with performance has been identified.
— Sponsor and disseminate proven good
practice.
Performance Management
42. PSU has driven the development of "iQuanta",
an on-line analysis tool for police performance data (details
above). Through iQuanta timely data is now available on
the performance of all forces and BCUs across all the major crime
types. This is a step change in the Government's engagement with
forces. This data is also available to forces themselves and police
authorities. Police authorities now have a timely means of holding
forces to account. PSUs work on the audit of performance data
has helped ensure accuracy and consistency in recording practices
across forces.
43. The development of a National Incident
Recording Standard (NSIR) should help measure and handle the police
response to the weight of non-crime incidents more effectively.
44. The development of the Policing Performance
Assessment Framework (PPAF) is helping to understand police performance
in the round. PPAF has been accepted by ACPO and the APA as a
fair means of assessing the complexities of police duties.
Performance Support
45. PSU is engaged with eight under-performing
or "target" forces: Avon & Somerset, Cambridgeshire,
Cleveland, GMP, Humberside, Nottinghamshire, Northants, and West
Yorkshire. This proactive role has changed the dynamic of the
Department's relationship with the police service—underpinned
by a sound analytical and evidence-based footing—demonstrating
a new and effective way of doing business.
46. Each engagement has been different.
In some, PSU has helped a force's own improvement regime to go
further and faster. In others, the Unit has been a catalyst for
change. In the third category, PSU's involvement has a more fundamental
process of attempting to put the force on a path towards recovery.
47. Over 2003-04, the forces with whom PSU
was engaged reduced volume crime by 13.3%, which is twice the
rate of the other forces in England and Wales. Three of the five
largest reductions in crime across the 43 forces were in PSU's
target forces. PSU's funding amounts to only around 0.33% of the
total force resource budgets suggesting PSU's interventions are
cost-effective. PSU's budget has allowed the provision of prompt
funding and evaluation for cutting-edge projects, particularly
around how forces drive performance improvements.
48. In liaison with the Association of Chief
Police Officers (ACPO), PSU has launched the high profile, national
Alcohol Misuse Enforcement Campaign. This links in to the Government's
Alcohol Harm Reduction Strategy and aims to crack down on alcohol-fuelled
disorder, through the use of tough enforcement measures taking
action against irresponsible drinkers and vendors who are fuelling
anti-social behaviour. To date, 39 police forces are involved,
as well as other related partners including Trading Standards
and the Department of Health. This campaign has been positively
received and early data has provided a baseline to measure the
impact and success that this campaign will have throughout the
summer.
49. PSU's work on national projects, such
as Automatic Number-Plate Recognition (ANPR), National Video Identification
(NVIS) and the Policing Priority Areas (PPAs) have been widely
recognised as a success. In the period June 2003-May 2004, during
the ANPR project, 173,000 vehicles were stopped, 13,000 arrests
made, 51,000 FPNs issued and £8 million property recovered.
£1 million in hypothecated income has been generated and
the rate of 100 arrests per full time officer is 10 times the
national average.
50. PSU's role in police use of forensic
science has been successful, in particular on DNA and NAFIS (Fingerprint
Automation) and through reviewing and changing force-level forensic
processes. This has helped the 62% increase in the number of DNA
matches achieved and the 34% increase in the number of "DNA
detections" delivered. PSU have led development of a computer
simulation model for forces to identify blockages in their forensic
processes. A work-package of good practice is to be disseminated
to all forces in August 2004.
51. Launched in March 2002 the Policing
Priority Programme was aligned to the Government's Strategy for
Neighbourhood Renewal and sites were first piloted in Bradford,
Bristol, Camberwell, Rhyl and Stoke. Each demonstrated how working
with small communities suffering from crime, the fear of crime
and anti-social behaviour can bring about significant improvements
in police and partnership working. This police-led programme has
now been extended and is in its fourth phase where Forces were
invited to submit expressions of interest. Neighbourhood Renewal
funding was no longer part of the selection criteria although
Forces needed to make a business case as to how similar their
areas were to Neighbourhood Renewal funding criteria. There are
now 29 identified sites. There has been significant success in
reducing crime and providing public reassurance in the existing
PPAs and the programme continues to build on the progress made
so far.
Knowledge Management for the policing community
52. PSU have established a Knowledge Management
Board to bring together the main stakeholders: ACPO, HMIC, NCPE,
PITO, as well as the Home Office Partnership and Regions Drugs
Unit (PRDU), and Research, Development and Statistics (RDS). This
will provide a forum for co-ordinating and driving forward PSU's
knowledge needs.
53. With ODT Consulting, PSU have mapped
out a clear process of how knowledge should be handled in policing,
including evaluation and accreditation of potential good practice.
This has identified gaps in previous arrangements that the Knowledge
Management Board might fill. PSU have also mapped out the roles
of the key stakeholders to ensure that these fit together most
effectively.
NATIONAL CENTRE
FOR POLICING
EXCELLENCE
54. The vision for a National Centre for
Policing Excellence (NCPE) was set out in the December 2001 White
Paper, which recommended its establishment as a centre of excellence
for all aspects of operational policing, promoting evidence-based
practices that have been professionally validated.
55. The NCPE was established in April 2003
as a national training and development resource for crime and
operations, which also provides facilities in relation to high-tech
crime, scientific support and specialist work involving other
agencies. It also serves as the central repository of good practice
for the police service, collating, developing and disseminating
good practice on successful professional approaches to investigation
and incident management.
56. To this end, the NCPE produces codes
of practice under legislation, guidance and practice advice. Its
first code, on the Police use of firearms and less lethal weaponry,
was issued last year. Further codes on the Police National Computer,
the National Intelligence Model and the Serious Crime Analysis
Section have also been submitted to the Home Office in draft,
and will be issued later this year.
57. Following the publication of the Bichard
Inquiry, the NCPE are now also working on a new code of practice
on information management.
POLICE SCIENCE
AND TECHNOLOGY
DNA
58. The UK is currently the world leader
in the law enforcement use of DNA, having a database which not
only holds the largest number of DNA profiles in absolute numbers,
but which also represents by far the largest proportion of the
population. This success is a direct result of the investment
in the National DNA Database through the DNA Expansion Programme.
One example of the impact of DNA is the detection rate for burglary,
which when DNA is available rises from the national average of
15% to 46%.
59. An international conference involving
law enforcement and government officials was held in May to identify
how we can build on this success both within the UK and internationally.
Work is underway to develop the Forensic Integration Strategy
(FIS) to deliver real investigative efficiency and performance
gains through partnership with the police and CJS stakeholders.
The FIS will build on the success of the DNA Expansion Programme
to ensure that the UK is at the leading edge in all forms of forensic
science, not just DNA.
Beyond the White Paper: DNA and the Forensic Integration
Strategy
60. The aim of the Forensic Integration
Strategy is to fully integrate—by March 2008—all forensic
intelligence to provide maximum value, quality and impact in the
investigative process. At present DNA, fingerprints and other
scientific processes are used independently. FIS will ensure the
integration of forensic intelligence to enhance its value to investigators
and so present more focussed evidence to the CJS. Such integration
will raise the level of detections in a highly cost-effective
manner. The FIS will support the Bichard Inquiry recommendation
calling for the delivery of a National Intelligence Framework
supporting the needs of the whole CJS. It will deliver a step-change
in the management and use of forensic science through effective
partnership with ACPO, PITO, police reform and other CJS stakeholders.
National Automated Fingerprint Identification
System (NAFIS)
61. The IDENT1 project will take forward
the existing National Automated Fingerprint Identification System
(NAFIS) capability and provide a strategic platform for future
biometric capabilities and a wider range of identification services,
including palm print searching. This project is closely aligned
to PALM1, its counterpart project in Scotland.
62. IDENT1, continuing from NAFIS and AFR
(Automated Fingerprint Recognition), will be an essential tool
for the wider criminal justice community. It will help with the
identification, bringing to justice and successful conviction
of offenders.
63. The legislative changes in the Criminal
Justice Act 2003 enable fingerprints to be taken on arrest. This
with the use of technology to digitally scan and check prints
in custody suites means that there is less chance that the police
will arrest and then release a suspect only to find that they
gave a false identity and were wanted for a much more serious
charge.
Airwave
64. Airwave is the new radio communication
system for the police service in England, Wales and Scotland.
Airwave is based on terrestrial trunked radio technology (TETRA),
a European standard that was agreed in the 1990s by the European
Telecommunications Standards Institute.
65. Airwave is not simply a replacement
for existing systems. Airwave uses digital technology, and so
offers very clear quality signals. Airwave will enable more of
the country to be covered: far fewer "holes" in coverage
that can endanger police officers. Thanks to its sophisticated
encryption techniques, TETRA technology is secure. Criminals can
no longer eavesdrop on police communications. Airwave also provides
high capacity. TETRA can cope with major incidents, when many
users will want to use their radios at the same time, without
overloading the network. TETRA can transmit voice and data communications
at the same time so that police officers can use their radios
to connect with facilities such as the Police National Computer.
66. Airwave is now available in 38 forces
and has more than 60,000 users. Airwave is expected to be available
to all forces by mid-2005, with all forces being fully operational
by mid-2006.
67. Feedback from officers and senior staff
is that they are very much impressed with the clarity of the signal
and the improvement in coverage. Some officers already have access
to the PNC Vehicles database through their Airwave handset, more
will get such access and officers will access to the PNC Names
database over the summer.
Other Key developments
PITO Central Customer
68. On 21 August 2002 Home Office Ministers
approved the initiation of the Central Customer, with responsibility
for the identification and prioritisation of operational and organisational
information management requirements for the Police Service, to
secure service-wide commitment for the take-up of national solutions,
and to provide a single voice with vested authority to agree trade-offs
in time, cost and quality on behalf of ACPO.
69. An effective methodology to enable the
construction of the first "Information Management Capability
Plan for the police service was developed in year. That methodology
was then used to deliver an initial prioritised list of police
capability requirements. The methodology used has attracted interest
from other organisations seeking an objective means of prioritising
requirements.
70. Development of a business benefits realisation
strategy to provide guidance to forces regarding what forces need
to do to ensure that the business benefit of national solutions
are realised was delivered in year.
PITO End to End Review
71. In January 2004. Home Office Ministers
announced a Review of PITO (the Police Information Technology
Organisation). The review was to include an end to end business
process review of PITO's role in the provision of IT and Communications
Services to the Police Service. A Steering group has been set
up and a Scoping Study completed and approved by Ministers.
72. The Review has three objectives; it
is currently focussed on the first two. They are:
1. To determine the most appropriate structure
to deliver the best possible provision of ICT to the police service
and the criminal justice system.
2. To determine how PITO meets current and
future stakeholder business needs in the delivery of ICT capabilities
and services.
73. The Review has a current target to provide
a final report to Ministers on these objectives by November 2004.
Bichard
74. The Bichard Inquiry published its report
in late June. In particular its recommendations include eleven
directly about the provision of a National Intelligence System,
the PNC and a Code of Practice on information management. The
Home Office Strategic plan indicates the Government's commitment
to ensuring maximum progress towards implementing the recommendations
of the Bichard Report before Sir Michael Bichard reconvenes his
Inquiry in five months time.
Single Non-Emergency Number
75. The 2001 White Paper proposed the establishment
of a Single Non-Emergency Number for access to the police, subject
to feasibility and cost. It purpose was to make telephone access
to the police easier and to reduce the number of inappropriate
and unnecessary 999 calls. A Feasibility Study was completed in
March 2002 and we planned to operate a small pilot to prove that
the concept was workable and would provide business benefit. Identifying
suitable, and willing, forces took some time and before we had
implemented the Concept Demonstrator, we decided to go to consultation
of a proposal, set out in the Green paper of November 2003, to
extend the service beyond the police to encompass other local
services. An analogy was drawn with the 311 system in parts of
the United States.
76. The consultation demonstrated overwhelming
support with the principle and we are now embarking on further
scoping to establish what services the new expanded system might
access. The Home Office Strategic Plan indicates the Government's
commitment to the early introduction of a three digit single non-emergency
number.
ViSOR
77. ViSOR is a software application that
stores information about offenders with convictions for violent
and sex offences. It is also a management system that enables
police and probation services to manage these offenders. The data
is stored in encrypted form and access to the system is only permitted
to named individuals who meet the stringent tests for access to
this sensitive material. It has been developed at a cost of about
£10 million and will be rolled out to Police forces by the
end of 2004.
Police Science and Technology Strategy
78. Key developments, including those above
are brought together within the Police Science and Technology
Strategy. The aim of the strategy is to "to ensure the police
service is equipped to exploit the opportunities in science and
technology to deliver effective policing as part of a modern and
respected criminal justice system".
79. The strategy identifies where science
and technology can have the greatest impact on policing over a
five-year period. It builds on the National Policing Plan to provide
a framework for forces, police authorities, and key providers
like the Forensic Science Service (FSS), Police Scientific Development
Branch (PSDB) and Police Information Technology Organisation (PITO),
to draw up their individual plans for the use of science and technology.
The first strategy (2003-08) was launched the strategy on 16 January
2003 and a revision for 2004-09 was published in May this year.
80. The Strategy Group, chaired by the director
of policing policy, includes senior representatives from the key
stakeholders. The strategy brings together the three main areas
of police science and technology: forensic science, information
and communications technology (ICT) and technical equipment. Its
three main aims are to prioritise, co-ordinate and anticipate,
hence it sets out:
— the priorities in the police requirements
for science and technology;
— the mechanisms for co-ordination
of the work of the police and main service providers to ensure
the requirements are met;
— the need for a systematic future
scanning process to ensure scientific developments are foreseen
and their benefits maximised and the potential for misuse minimised.
RESPONSE TO
THE O'DOWD
REPORT ON
BUREAUCRACY
81. The O'Dowd report was published in September
2002 and contained 52 recommendations. A steering group, co-chaired
by ACPO and the Home Office and with representatives from all
key police stakeholders, was set up to take forward the action
plan arising from the report. To date, 27 recommendations have
been delivered, 21 are underway and it has been agreed collectively
that four should not be taken forward nationally. Those still
underway mostly require legislation, developments in IT or wide-ranging
changes to the criminal justice system. The steering group has
since widened its remit to address issues relating to bureaucracy
as they arise, in addition to the recommendations contained in
the O'Dowd report.
82. Effective communication to front line
officers of the good progress being made nationally remains central
to the success of the drive against bureaucracy. Each force has
a named officer to oversee the delivery of the implementation
of the Taskforce recommendations, ensuring that the progress being
made nationally is assimilated into the lives of officers on the
beat and that the necessary cultural changes take place. The Home
Office is also continuing to take every opportunity to raise the
profile of the work that is being done. For example, articles
on reducing bureaucracy are included in each Police Briefing and
regular updates are added to the e-bulletin to all forces. We
have also appointed a National Bureaucracy Advisor at Acting Assistant
Chief Constable level to enhance our capacity in this area. He
is visiting forces to provide practical assistance in their work
to reduce bureaucracy, raise awareness of the whole agenda and,
where necessary, challenge existing practices and assumptions.
83. In terms of evaluating progress, HMIC's
baseline assessment provides a summary of progress made by forces
in terms of reducing bureaucracy, the outcome of forces' work
in this area is being quantified in force efficiency plans and
we will be able to assess the overall impact of the range of reducing
bureaucracy initiatives in increasing the amount of time spent
on front line duties through the frontline policing measure.
84. There have been a number of achievements
to date:
— Over 6,700 forms have been made obsolete
across all 43 forces.
— All 43 forces have the capacity to
undertake video identity parades to speed up the identification
of suspects.
— Over 50,000 police officers and staff
now use Airwave radios in 38 forces and 31 forces are using mobile
information. These facilities allow forces to cut down on the
amount of time spent returning to the station.
— The national roll out of the penalty
notice for disorder scheme was completed in April 2004. Around
20,000 tickets had been issued at the end of June, each representing
a file for court not having to be prepared.
— The number of performance indicators
is now 13, compared with 51 in 1997.
— 198 Livescan Units, which enable
electronic fingerprint images to be taken from people instantly,
in 37 forces.
— We are investing £13 million
over two years into 10 pilot projects which test out new ways
of using police staff, thereby freeing up officers' time to go
back on the beat.
— HMIC's assessment of force 2003-04
Efficiency Plans noted that 25 forces had between them identified
efficiency gains of £25.2 million attributed to implementing
Bureaucracy Taskforce recommendations.
— We have set up a Reducing Bureaucracy
Awards Scheme with the Police Federation which encourages frontline
officers to come up with suggestions for reducing bureaucracy.
The first awards ceremony took place at the Police Federation
Conference in May.
— Good progress is being made to address
the concerns around the Regulation of Investigatory Powers Act
2000 (RIPA) including new forms and codes of practice.
— On 1 September, the Policing Bureaucracy
Gateway will begin to operate. This will identify, challenge and
influence the demands made by new policies, legislation and procedures
that affect the police service.
POLICE TRAINING
85. The overarching aim of the Home Office's
work on police training is to improve police performance through
developing, implementing and maintaining effective training, development,
appraisal and promotion procedures. We are aiming to ensure that
the available resources are used in the most efficient way.
86. Key principles underpinning our current
workplan include:
— to develop and maintain a curriculum
for learning for officers and staff at all levels of service;
— to embrace and embed the principles
of continuous professional development;
— to enhance professionalisation by
establishing a qualifications framework for training and development;
— to help individuals to develop skills
and expertise in specialist areas;
— to help all officers and staff meet
national occupational standards;
— to use training and development to
help modernise the culture of the service and help officers and
staff work better with diverse and changing communities; and
— to involve members of local communities
in the design and delivery of training.
87. Among current specific projects are:
— Initial Police Learning and Development
Programme: Under this major programme of reform, new police officers
will be trained within their local communities, helping to increase
their awareness of local diversity issues and needs.
— Police Race and Diversity Learning
and Development Programme: The primary aim of this programme is
to ensure the implementation of effective race and diversity training
and development for everyone in the service, staff as well as
officers. This should help drive up standards of police engagement
with all sections of local communities.
— Leadership Development Programmes:
We have worked with CENTREX to develop two new programmes to ensure
that officers and staff at all levels of the service have access
to high quality leadership training. The Core Leadership Development
programme, which focuses on post-probationer constables, sergeants,
inspectors and equivalent police staff. The Senior Leadership
Development Programme is for chief inspectors, superintendents,
chief superintendents and equivalent police staff. These are modular,
optional programmes, so that individuals' development can be tailored
to meet their years. They are all being implemented.
— Performance and Development Reviews:
These are at the heart of almost all of our work on training and
development. We are currently working with HMIC to ensure that
they are used, and used effectively, throughout the service.
— Promotions Review: Following a review
of the way in which the service identifies, develops and selects
officers for promotion to the rank of sergeant and inspector,
we are now trialling a work based alternative to the current examinations,
which will be based on National Occupational Standards.
— Career pathways: We are currently
embarking on this major project, under which we will consider
how officers and staff can develop specialisms, so that all officers
and staff can be develop areas of particular expertise.
— Qualifications Framework: As part
of our wider work on professionalising the service, we are seeking
to develop a qualifications framework for the accreditation of
all police training and development.
WORKFORCE MODERNISATION
Pay
Achievements
88. The greater pay flexibilities introduced
in the 2002 PNB deal have been implemented. Slightly over 75%
of eligible officers are receiving competency related threshold
payments. All forces are operating Special Priority payment schemes.
Following a review of the first year's operation, the proportion
of officers who could receive the payments has been increased
to 40% (from 30% in the initial agreement). HMIC has completed
an initial review of the operation of the scheme to reduce overtime
by 15% by the end of 2005-06. New pay arrangements were agreed
in PNB in 2003 for Superintendents and Chief Officers which introduced
elements of performance related progression and bonuses. The pay
scales for Chief officers have been revised to give the biggest
rewards for the most heavily loaded posts.
Evaluation/benefits
89. It is too early to evaluate the impact
of SPPs on retention in front line posts. The schemes have been
received as divisive by the staff associations and as inflexible
by ACPO. Nevertheless, there is evidence that some forces have
used them imaginatively to reward officers in posts with additional
responsibility and community leadership roles. CRTP is believed
to have had a significant impact on sickness absence (see below).
62.7% of forces reporting to HMIC achieved their first year overtime
reduction target. We are working with HMIC to identify reasons
why not all believe they will do so, and to estimate the extent
of the shortfall.
Next steps/plans
90. We have begun informal discussion with
interested parties on the basis of a social partnership approach
to identify priorities for the next round of pay and workforce
reform. The initiative will need to consider structural reform
of police staff pay and conditions of service, linking incentives
to professionalisation and skills acquisition and equal pay issues.
Pensions
Achievements
91. Proposals for a new police pensions
scheme, with accrual of benefits at a constant rate over 35 years
and a minimum retirement age of 55 are now with PNB and are on
track for introduction from April 2006. 30+ was rolled out across
the country from April 2004.
Evaluation/benefits
92. The new pensions scheme will reduce
the cost of police pensions in the long term by about 20%. The
removal of dual accrual should make for greater movement into
and out of the police service by officers at different stages
of their career. About 140 officers have opted for 30+ so far.
Next steps/plans
93. We are considering the scope for further
relaxation of the rules on pension abatement in order to make
30+ attractive to a greater number of officers. Work is underway
to reform the funding of police pensions so that forces bear the
cost of employer contributions instead of the cost of pensions
in payment and so alleviate the effect short term local fluctuations
in retirement rates on force financial planning.
National recruitment standards
Achievements
94. All forces are committed to implementing
the national recruitment standards, a common application form
and a standard assessment centre. All but one has now done so.
Each element of the recruitment process has been designed with
a view to minimise adverse impact on women and ethnic minority
applicants.
Evaluation/benefits
95. Applications to join the police service
are at a very high level. The national, standardised system allows
the service to monitor the impact of recruitment procedures on
diversity and to implement national priorities—for example
in implementing common tests for respect for diversity. Evaluation
of the early implementation of the tests shows a positive impact
on the recruitment of women into the service but there is concern
over the impact on members of ethnic minorities. The implementation
of the NRS has provided a strong evidence base from which to address
the issues raised by `The Secret Policeman' and these will be
examined in the context of the CRE's inquiry into race equality
in the police service.
Next steps/plans
96. We plan to review the operation of the
NRS on the basis of the first year's experience of its operation.
We will consider developing similar standards, based on the Integrated
Competency Framework and National Occupational Standards supplied
by the JSSC, for CSOs.
Attendance management
Achievements
97. £19m has been committed since 2002-03
for the strategy for a healthy police service in order to develop
the occupational health capacity of forces. Changes have been
made to strengthen the ability of managers to address sickness
absence, and guidance issued to occupational health units to enable
consistent application of good practice. CRTPs have been used
to incentivise good attendance.
Evaluation/benefits
98. Sicknees absence has fallen from 12
days per officer and 12.6 days per support staff member in 2000-01
(the year before the Strategy was launched) to 10.4 and 11.7 days
respectively in 2002-03. 38 forces have met or exceeded the NPP
target for 2006 of 11.5 days sickness per police officer per year,
and 25 have met or exceeded the NPP target of 12 days per support
staff member per year.
Next steps/plans
99. New more challenging targets will be
proposed in this year's NPP. Remaining Strategy for a Healthy
Police Service funding will be allocated, in part, based on how
forces evaluate their spending of previous funds.
COMMUNITY SUPPORT
OFFICERS
100. The Government's commitment to the
introduction of Community Support Officers (CSOs) was explicitly
spelt out in the December 2001 White Paper. We have made swift
progress since then.
101. The Police Reform Act 2002 put the
necessary legislation in place—the relevant sections of
which were commenced in December 2002. As signalled in the House
during the Act's passage, the power of detention for CSOs was
commenced, in December 2002, in six pilot forces—the Metropolitan
Police Service, West Yorkshire, Lancashire, Devon and Cornwall,
Northamptonshire and Gwent. Powers to enable CSOs to issue Fixed
Penalty Notices (FPNs) were commenced in November 2003 with further
powers to issue FPNs for anti social behaviour coming into force
in January 2004.
102. We set an initial target of having
4000 CSOs by December 2005. There are now already over 3,800 CSOs
on the streets across 38 forces and we hope to reach the target
of 4000 CSOs by this autumn. Cumbria will be recruiting its first
tranche of six CSOs this year bringing coverage up to 39 forces.
They are providing a visible, reassuring presence in communities—typically
spending around 70% of their time on patrol. Local evaluations,
carried out by individual forces, have shown that CSOs have been
well received by communities and are having a positive effect
on perceptions of public safety. They are seen by many within
the police service as a valuable new resource in supporting police
officers in their day to day duties.
Forward look
103. As indicated in the Home Office Strategic
Plan published on 19 July, we will recruit a further 20,000 CSOs
by 2008. We are kick-starting recruitment this year with £50m
of new money. As the Strategic Plan also indicates, we will explore
ways of empowering local communities to enable, for example, some
co-funding of CSOs, if this is what local people or local businesses
want. We will manage funding for CSOs as part of the wider development
of the Neighbourhood Policing Fund. Is it too early to present
the details of how the increase in CSO numbers and the Neighbourhood
Policing Fund will be managed, but we are clear that CSOs will
play an increasingly important role within the extended police
family. The Government is also clear that growth in CSO numbers
will not be at the expense of police officer numbers.
104. We will consider carefully the findings
of the joint evaluation work which has been carried out by HMIC
and the Home Office's Research, Development and Statistics Department
on the use of the CSO detention power in the six pilot forces.
In addition, Ministers are considering the recommendations contained
in the HMIC thematic report on workforce modernisation published
on 20 July (Modernising the Police Service). We are also developing
a national evaluation of CSOs and expect an interim report to
be completed by December 2004.
ISSUES RAISED
IN POLICING:
BUILDING SAFER
COMMUNITIES TOGETHER
105. The Government sets out below a summary
of proposals and questions raised in the four main sections of
Policing: Building Safer Communities Together (the full
consultation paper published in November 2003 and the shorter
questionnaire version published in February 2004), the responses
to them and how our thinking on these issues is developing.
105. Responses to the consultation papers
were constructive and encouraging. We received around 400 responses
to the full paper, many of which were the result of wider consultation
with local communities, and around 5,000 to the questionnaire
which was aimed at the general public. The majority of responses
were supportive of the vision behind the police reform programme.
We intend to publish a full summary of the responses in early
September which will be available to the Committee.
Increasing community engagement
106. Increasing community engagement is
at the heart of the forward police reform agenda. We asked a series
of questions about how we could achieve this and ensure that the
police are made more visible and accessible to the public. As
a starting point we asked what kind of information on policing
communities would find most useful and how it could be distributed.
We also asked about how better use could be made of Specials,
members of the local community, and community groups such as Neighbourhood
Watch; and how the police and business can work more closely together.
107. The vast majority of responses to this
section were supportive of the desire to increase community engagement
and a range of suggestions were put forward in response to the
questions asked—some of the main themes are summarised below:
— People were less interested in general
statistics on force performance and more interested in information
on what is happening in their local area such as who their local
beat officer is, how to contact them and what the local police
are doing to tackle crime. A huge range of suggestions were put
forward for how this information could be distributed including
newsletters/leaflets through the door, public meetings, internet
and through personal contact with local beat officers.
— There was felt to be a need for dedicated
neighbourhood officers who would not be abstracted to other duties.
Greater use of CSOs to increase visibility was welcomed. Public
meetings and beat surgeries were welcomed to a point but many
wanted contact with the police through everyday interaction in
the community.
— The use of Specials and other volunteers
were broadly welcomed although many in the police service noted
that adequate resources were needed to support and maintain volunteer
programmes. Suggestions on how to increase numbers of Specials
tended to focus on offering incentives and rewards such as payment
or time off work in lieu although some went as far as to propose
a paid reserve police force.
— Suggestions on how to enhance the
role of community groups focused principally on improving communications
between groups and the police. A similar response was also received
to the question on how to ensure that business and the police
work more closely together to improve community safety.
108. The Home Office strategic plan states
that we are aiming to put the law abiding citizen first and includes
various commitments aimed at increasing community engagement including:
— A fundamental shift to a customer
service culture within the service.
— Supporting the expansion of neighbourhood
policing to ensure better communication with the public, a more
proactive way of working, greater responsiveness to citizen's
concerns and needs and ensuring local people become part of the
solution to local problems.
— Freeing up 12,000 officers for front
line duties, maintaining record police numbers and supporting
the recruitment of 20,000 new CSOs.
— Setting minimum standards of information
provision on policing for all households eg the name and contact
number of the local neighbourhood officer, information on local
police performance and crime trends.
— Enhancing the role played by community
groups and members of the local community eg through the modernisation
of Neighbourhood Watch.
— Increasing the number and effectiveness
of police service volunteers including Specials.
Accountability of policing
109. In this section we stated our intention
to clarify and strengthen the current accountability arrangements,
taking a more "bottom up" approach, and invited views
on how this could be achieved. We also invited views on strengthening
partnership arrangements and several new proposals including local
service level agreements, community advocates, a single non-emergency
number and neighbourhood panels.
110. There was broad support from the public
and from other stakeholders including ACPO, APA, the Police Federation
for pursuing a more "bottom up" approach to police accountability
and the development of neighbourhood panels. However, it was noted
that a one size fits all approach to neighbourhood panels would
not be appropriate and that existing bodies such as neighbourhood
management schemes should be built on rather than replaced. Most
thought that focus should on community safety rather than solely
policing. On the issue of direct elections to police authorities
there was no groundswell of support.
111. Responses indicated widespread support
for Crime and Disorder Reduction Partnerships and Local Strategic
Partnerships although there was some concern that not all partners
currently pulled their weight, that partnerships were not accountable
for their performance and the public knew little about their work.
112. The concepts of local service level
agreements, community advocates and the single non-emergency numbers
were broadly welcomed, particularly by the general public. 73%
of respondents to the questionnaire welcomed service level agreements,
68% welcomed community advocates and 78% welcomed the single non-emergency
number. Community advocates did receive some opposition particularly
from police authorities and local authorities who felt that they
already performed this function.
113. The Home Office Strategic Plan reiterates
out intention to develop a more bottom up "neighbourhood
accountability system" building on good work by existing
panels, forums and other neighbourhood organisations. It outlines
various measures being explored including:
— enabling neighbourhood bodies who
can demonstrate that they represent people in their area to hold
police and other services to account;
— the development of mechanisms to
enable communities to trigger immediate action in response to
local concerns;
— building stronger accountability
mechanisms at district level, strengthening links with local authorities
and with CDRPs playing a central role;
— strengthening police authority arrangements;
— developing minimum standards of service
that the public can expect from their police—a broad national
framework to be built on at local level;
— the development of community advocates
to actively help people resolve problems with the police, monitor
community concerns and the quality and accessibility of policing
services; and
— the early introduction of a three
digit single non-emergency number.
Operational effectiveness
114. In this section we opened a debate
on whether the 43 force structure is the right one for today's
and tomorrow's policing needs and invited views. We also asked
what more could be done to enhance central support to the police
service. Common themes in the responses on this section included:
— On structures the responses were
mixed with some strongly in favour of restructuring, some strongly
opposed and many offering a cautious welcome to the debate but
noting that a lot more work was needed to gather evidence and
look at issues such as greater collaboration. A clear message
was that form should follow function. The majority of those who
welcomed the debate, including ACPO, acknowledged that that restructuring
should not be rushed into and that work was needed to define what
capability and capacity a force needed and to assess whether existing
forces meet the definition.
— The question on central support did
not spark a huge number of responses although significantly ACPO
did raise the prospect of developing a modernisation agency to
drive through change within the service.
115. The Government has not yet come to
any firm conclusions on the question of force structures. The
gap in tackling level 2 crime raised in the consultation paper
has been highlighted by the recent HMIC baseline assessment and
HMIC are taking forward further work to assess the full scale
of the problem and potential solutions to it. HMIC have also been
commissioned specifically to look at the issue of force structures
and to report their findings by early 2005.
116. The Home Office Strategic Plan indicates
our wish to establish a National Policing Improvement Agency to
drive a culture of self improvement within the service.
Modernising the Police Service
117. In this section we set out the Government's
approach to workforce modernisation and invited views on building
a more unified workforce, achieving a truly representative workforce,
improving the leadership and management of the service and also
on the concept on earned autonomy. Common themes which emerged
in the responses include:
— Most respondents welcomed greater
use of staff and changes to terms and conditions and regulations
to allow forces greater flexibility in the deployment of personnel.
A small number opposed changes to terms and conditions notably
the Federation.
— Career pathways, multiple entry points
and changes to the pension system were all identified as important
to reform by a number of respondents.
— The concept of earned autonomy was
favoured by most respondents although ACPO, APA and some police
authorities felt that autonomy should be the norm unless performance
was poor. Those in favour noted that a strong, transparent and
objective measurement base would be needed.
— Responses on building a more representative
service covered a range of proposals including taking decisive
action to tackle racist attitudes and behaviour, effective leadership
and training and the need for more flexible working practices
to allow people to move in and out of the service. Broad support
was also expressed for the new selection process testing race
and diversity and for the use of community assessors.
— On leadership many in the service
noted that leadership success is currently only rewarded with
promotion which can lead to a high turnover of leaders and a lack
of continuity in communities. There was broad support for the
need to encourage leadership development at all levels of the
service.
118. The Home Office Strategic Plan reiterates
our commitment to further modernise the police workforce:
— Develop a service which is truly
representative of the communities it serves.
— Ensure a more flexible workforce
with a better richer mix of skills.
— Ensure there is good leadership and
management at all levels underpinned by proper training and support.
Additional issues
119. In addition to the questions and proposals
we put forward in the consultation papers many of the respondents
also raised other issues which they felt needed to be addressed.
These included:
— Data sharing: a call for clear guidance
on removing barriers to data sharing between forces and crime
reduction agencies/partners.
— Vulnerable sections of society: the
importance of positive engagement with vulnerable groups in particular
children and young people.
— Professional integrity: ACPO and
the Met raised the potential development of a code of ethics for
all police officers and staff.
— Customer service: several members
of the public commented services in police stations and police
call handling could be improved.
— Financial and internet crime: the
need for a greater focus on tackling fraud, corruption and internet
based crime.
— Road safety: Some responses noted
that roads policing was not a central theme of the consultation
and should be a priority. Others took an opposing view and thought
motorists were unfairly targeted.
120. As we have indicated elsewhere in this
memorandum, the Government intends to publish further proposals
on the overall police reform programme during the autumn.
29 July 2004
9 Policing a New Century-A Blueprint for Reform. Back
10
The Role of Police Authorities in Public Engagement-published
on 4 November 2003; available at: Back
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