Appendix 3
Memorandum submitted by the Northern Ireland Office
on 9 July 2007 in response to Questions from the Committee relating
to the Northern Ireland Office Autumn Performance Report 2006
Efficiency targets
The report contains an update on progress against
efficiency targets established under the 2004 Spending Review
(SR04). The results are reported clearly, and the use of tables
helpfully builds on the presentational approach of the Efficiency
Technical Note. However, only very brief mention is made of the
Department's measures to monitor and maintain service quality
and validate figures, with the report directing the reader to
the Efficiency Technical Note.
The efficiency gains for 2005/06 listed in the Autumn
Performance Report show that overall the NIO outperformed those
forecast in the Efficiency Technical Note. The Police Service
Northern Ireland (PSNI), Northern Ireland Prison Service, and
the Criminal Justice Directorate especially performed well beyond
expectations. The PSNI gains come from above-expectation savings
through corporate services; policy, funding and regulation; and
increased productivity. For instance, the outcome for productivity
for 2005/06 was £17,227,000, far above the forecast of £11,695,000.
However, the forecast for 2007/08 has been revised down from that
in the Efficiency Technical Note.
1. What
has enabled the Department to achieve efficiency savings in excess
of initial forecasts, particularly in corporate services; policy,
funding and regulation; and increased productivity?
Answer:
The Department's efficiency programme has been structured
using a series of efficiency delivery groups, each of which reports
progress on a quarterly basis. As a result, the focus on efficiency
created by regular reporting and an increased awareness of the
issue as the programme has progressed throughout the SR2004 period
has resulted in more efficiencies being delivered than originally
forecast. In some cases efficiencies have also been delivered
more quickly than originally planned. In particular, the PSNI
has continued to be the biggest contributor to the Department's
efficiency programme and savings from FTR officer reduction, civilianisation
strategies and reduced overtime - covering corporate services,
policy, funding and regulation and increased productivity - have
contributed significantly to the Department achieving efficiency
savings in excess of initial forecasts.
2. What
has the Department done to ensure that these gains have not had
a negative impact on services?
Answer:
To ensure the maintenance of service quality a process
of self-assessment has been adopted within the Department - in
line with best practice outlined by the National Audit Office.
A verification and challenge role has been embedded within the
Department's Financial Services Division (FSD). The self-assessment
methodology has incorporated key performance indicators, customer
surveys and feedback, PSA targets and service level agreements.
In addition, the Department reports on the maintenance of service
quality to HMT on a quarterly basis.
3. Is
there scope for increasing the final efficiency gains total by
2007/08 beyond those forecast?
Answer:
The Department considers that the efficiency targets
set by HMT were stretching and has focused on achieving and, where
possible, exceeding these targets. The current forecast of £98m
efficiency savings by March 2008 is in excess of the £90m
target and, whilst it is unlikely that the Department will generate
further significant savings, the focus on efficiency will continue
to ensure that current forecasts are delivered.
4. Why
have gains from productivity increases been so far above forecast
for 2005/06, while the forecast for 2007-08 has been revised down
since the publication of the Efficiency Technical Note?
Answer:
Efficiency savings from the Chief Constable's decision
to reduce the Full Time Reserve have been realised quicker than
originally planned, hence the over-achievement against 2005/06
forecasts. In addition, the Northern Ireland Prison Service's
initiative for the early and successful introduction of Night
Custody Officers has also had a significant impact on the Department's
ability deliver productivity gains. The forecast for 2007/08 is
only marginally down (£1m) from the Efficiency Technical
Note forecast due to more accurate forecasting as the efficiency
programme has progressed.
The Efficiency Technical Note specifies headcount
reduction targets of 1,446 public servant posts, a figure which
includes 128 civil servant posts, leaving a target of 1,318 for
public servant reduction. While the 2006 Annual Report made this
clear, the Autumn Performance Report does not explain that the
figure of 1,446 public servants is inclusive of the civil servant
target. At September 2006 there was a forecast reduction of 272
civil servant posts and 1,077 public servant posts by March 2008.
The NIO admits in the Efficiency Technical Note and the Autumn
Performance Report that the decision of the Chief Constable in
September 2004 to retain 680 Full-Time Reserve Officers in the
PSNI has had a negative impact on the Department's ability to
meet these targets. In response to questions posed by the Committee
following review of the 2006 Annual Report, the Department said
it was seeking headcount reductions elsewhere in order to offset
this. The Department also noted that the Treasury considered the
civil servant target to be the more important, and that it was
on course to exceed this target. The Autumn Performance Report
states that 'measures are in place across all programmes to ensure
that service quality is at least maintained, if not improved'
as a result of staff reductions.
5. What
are the measures in place to ensure a continued level of service
quality despite staff reductions? How is the Department monitoring
the effectiveness of these measures?
Answer:
As described above (answer to question 2) a process
of self- assessment has been adopted which incorporates key performance
indicators, customer surveys and feedback, PSA targets and service
level agreements to ensure a continued level of service quality.
For example, the PSNI has in place a number of robust measures
to ensure service quality is maintained and effectiveness monitored.
These include:
- Accountability
to District Policing Partnerships;
- District
audit and accountability requirements to chief officers;
- Best
Value Reviews;
- Local
Financial Management and appointment of professional financial
management teams in districts and HQ Departments; and
- Measurement
and reporting of performance against policing plan objectives
to the Policing Board.
6. What
steps are the Department taking to offset the Chief Constable's
decision to retain 680 Full-Time Reserve officers?
Answer:
Original efficiency forecasts factored in the decision
to retain 680 Full Time Reserve Officers. Therefore, this decision
has not impacted on the forecast delivery of efficiency savings.
In relation to headcount, HMT's public servants' reduction target
was predicated on all FTR officers leaving. The Department has
informed HMT that the public servant staff reduction target is
unlikely to be achieved given the decision to retain 680 officers.
Higher than target staff reductions elsewhere will assist in minimising
the extent to which this target is not achieved.
7. More
broadly, I would be grateful if you could let me know what impact
the restoration of devolution in Northern Ireland will have on
the NIO's performance against its efficiency targets and whether
the targets will be revised in light of these developments?
Answer:
It is not expected that the restoration of devolution
in Northern Ireland will have an adverse impact on the NIO's performance
against it efficiency targets. Therefore, targets have not been
revised.
PUBLIC SERVICE AGREEMENT TARGETS
PSA Target 1 (part 1), which aims to increase confidence
in the police by 3% by April 2008, relies on a composite suite
of measures of public views taken from the Northern Ireland Crime
Survey (NICS) and the Northern Ireland Omnibus Survey. The PSA
SR04 Technical Note recorded the baseline confidence level at
71%, and the Department therefore aimed at a figure of 74% by
March 2008. The Autumn Performance Report draws on new data from
NICS fieldwork for the period July 2005 to June 2006. This has
meant the baseline is now raised to 73% and therefore the target
to 76%. Progress against PSA Target 1 (part 1) has slipped from
76% in March 2006 to 75% as of June 2006. The Autumn Performance
Report describes the target as 'on track with confidence currently
up by 2%'.
8. Does
the Department expect that by April 2008 public confidence in
the police will have ceased to fluctuate in the manner of the
current trend since June 2005, and therefore avoid dropping below
target?
Answer:
Maintaining levels of confidence in policing remains
a significant challenge for all the key stakeholders in policing,
including the NI Policing Board and the Police Service of Northern
Ireland.
As the influences on the delivery of this target
are extremely complex the Department believes that it is unlikely
that public confidence figures will have ceased to fluctuate in
the manner of the current trend since June 2005. Although the
latest confidence figures from the NI Crime Survey (NICS) show
a slight upward movement, the rounded composite measure for the
period April 2006 - March 2007 remains at 75%.
The NICS continuous fieldwork tends to evidence gradual
change over a longer period and confidence figures can be significantly
affected by public opinion (based on perception rather than actual
personal experience) which in turn can be influenced by various
external factors, including the media reporting of historic /
unresolved cases and high profile incidents.
Other positive factors such as the recent restoration
of the NI Assembly, a more stable political climate and the decision
by Sinn Fein to support the PSNI and take their seats on the Policing
Board and District Policing Partnerships may also have an impact
on the level of public confidence in policing. Overall, confidence
levels remain high and the Department will continue to work collaboratively
and co-operatively with the key stakeholders to achieve this PSA
target by April 2008.
The NIO met the PSA Target 1 (part 2) interim target
of 18.5% Catholic representation in the police service by March
2006. The Autumn Performance Report sets a new interim target
of 23.5% by March 2008.
9. How
did the Department decide upon the new March 2008 interim target
figure for Catholic representation in the police service?
Answer:
The target was set according to an assessment of
projected trends in the composition of the PSNI in the period
ahead. In making the assessment, consideration is given to the
overall goal of achieving the target of 30% Catholic officers
by 2010/11; the PSNI establishment remaining at 7500; the severance
programme; recruitment continuing at a rate of 440 per year and
the variable of natural wastage.
PSA Target 2 requires that public confidence in the
criminal justice system rise three percentage points against the
baseline figure by April 2008. The Technical Note, using NICS
2005/06 data, set this baseline at 38%. The Autumn Performance
Report, drawing on the newer NICS results, raises this figure
to 39%. Confidence has been recorded every three months as standing
at 42-43% consistently since June 2005, and has been steady at
43% since December 2005. The NIO is therefore currently exceeding
this target.
The NICS employs a 'composite suite of measures'
on public views on policing and the criminal justice system for
PSA Targets 1 (part 1) and 2, respectively.
10. Could
the Department provide a breakdown of results for the components
of the composite suites used for PSA Target 1 (part 1) and Target
2?
Answer:
| PSA Target 1 (Confidence in the Police and Policing Arrangements)[29]
| |
| | Jul-05
|
| | Jun-06
|
| Police do a good job | 61
|
| Police provide ordinary day to day policing service
| 80 |
| Police treat Catholics and Protestants equally
| 76 |
| NIPB independent of police | 75
|
| NIPB helps police do a good job | 76
|
| OPONI independent of police | 90
|
| OPONI helps police do a good job | 86
|
| Composite Confidence Measure | 75
|
| Source: Northern Ireland Crime Survey. All figures exclude don't knows and refusals.
| |
| PSA Target 2 (Confidence in the Criminal Justice System)[30]
| |
| | Jul-05
|
| | Jun-06
|
| Bringing those who commit crimes to justice
| 43 |
| Meeting the needs of victims of crime | 34
|
| Respecting rights of people accused and treating them fairly
| 79 |
| Dealing with cases promptly and efficiently
| 38 |
| Reducing crime | 34
|
| Dealing with young people accused of crime |
28 |
| Composite Confidence Measure | 43
|
| Source: Northern Ireland Crime Survey. All figures exclude don't knows and refusals.
| |
The NIO has far surpassed its targets within PSA Target 3 (part
1) for reducing domestic burglary and vehicle theft. Burglary
has diminished by 20% and vehicle theft 48%, against targets of
only 15% and 10%, respectively, by April 2007.
11. Does
the Department plan to revise the surpassed PSA Target 3 (part
1)?
Answer:
These were challenging targets agreed with HM Treasury
some five years ago and were based on similar targets set for
the Home Office. Working in partnership with a range of organisations
we have successfully over-achieved with reductions of 24.6 % for
domestic burglary and 52.5% for car crime. The Department has
no plans to revise these particular targets. However, as part
of the current Comprehensive Spending Review, the Department will
set new testing targets in other crime areas. These are currently
being worked on and will apply during the CSR07 years.
The NIO cannot provide an outturn for PSA Target
3 (part 2), which aims to reduce the rate of reconviction compared
to the predicted rate by 5% by April 2008. The performance measure
is based on the 2005 cohort, and an outturn can only be identified
once the data for that cohort on reconviction over two years following
discharge is available. Although reconviction rates for 2001 and
2002 were lower than predicted, the rate rose from 41.4% to 43.1%
over those years.
12. How
does the Department account for the increasing reconviction rate
between 2001 and 2002?
Answer:
Personal characteristics such as age, gender, offence
type and number of previous offences (criminal history) are closely
associated with reconviction rates. Consequently, direct comparisons
cannot be made with previous years as the personal characteristics
of those who receive a non-custodial disposal or are released
from custody will vary year on year. The reconviction rates referred
to above are actual reconviction rates. As these are not directly
comparable, a statistical model has been developed to provide
predicted rates to act as yardsticks in assessing progress towards
reducing re-convictions. Statistical modelling of the criminological
characteristics of offenders contained in the 2003 cohort predicted
a reconviction rate of 48.5%. The actual reconviction rate at
the end of the two-year follow-up period was 43.7%. This represents
a reduction in reconviction of 10% compared to the predicted rate.
The comparable reductions for 2001 and 2002 were 11% and 7% respectively.
13. Has
the Department drawn any lessons from the results for reconviction
for 2001 and 2002 which will help it meet PSA Target 3 (part 2)?
Answer:
The substantial reductions in reconviction indicate
that the current interventions from inter alia the Probation Board
for Northern Ireland, the Northern Ireland Prison Service and
the Criminal Justice System are effectively impacting on reconviction
levels. The aim is to build upon and refine current practice
to exert further downward pressure on re-conviction rates. However,
the multi-faceted nature of re-offending means that it is not
possible to directly attribute the reductions to individual or
discrete interventions.
The 2005/06 outturn for PSA Target 4, which aims
to reduce cost per prisoner place in Northern Ireland, has been
verified since the 2006 Annual Report. The target for 2005/06
of £86,290 was met, with the actual outturn £85,900.
However, the NIO admits that the 2006/07 target of £85,250
is at risk because the number of prisoner places has not increased
as planned. The six strand Strategic Development Programme is
intended to help the NIO meet future targets.
14. What
are the exact gains, or projected gains, from each strand of the
Strategic Development Programme?
Answer:
Strand 1 reviewed a number of areas including the
future prisoner population, security classification, needs of
inmate groups and the future prisoner role of each establishment.
For the first time this permitted NIPS to examine its future
prison requirements strategically against the projected population
levels and the needs of the individual categories of prisoner.
Strand 2 examined the current state of the prison
estate, alternative design solutions and the effect on local areas
should the Service take a decision to relocate an establishment.
This data has already been utilised in the design and delivery
of new contingency cell accommodation. The report by consultants
on the economic effect has been published.
Strand 3 examined the potential for contestability
and the associated risks. This covers the option to use private
sector provision in services provided by NIPS - it remains confidential.
Strand 4 looked at the current and future provision
of escorting services. This led to the Ministerial decision to
unite the escorting and court custody functions under a single
management structure. This led to the transfer in February of
100 private sector staff into the newly created Prisoner Escorting
Court Custody Service (PECCS). After full implementation, it
is anticipated that savings of over £2m per annum will be
achieved from 2008/09 onwards.
Strand 5 covered personnel issues including staff
pay, grading, reward and HR Strategy. A major achievement has
been a 3-year pay and efficiency deal, which has just been approved
by the Pay Review Body (PRB). This led to the cutting of the
equivalent of 150 staff in April. Through a large reduction in
overtime, this will save the Service up to £5m per annum
and permit the reallocation of financial resources to meet the
increasing level of prisoner numbers and staffing of new facilities.
Also agreed is the introduction of lower cost Operational Support
Grades (OSGs) who will replace Main Grade Officers (MGOs) in support
posts and release them to the front line. This will commence
in late 2007.
Strand 6 covers a number of areas including the relocation
of NIPS central training, which our Minister announced in February
would be collocated with the PSNI and Fire & Rescue in a new
integrated training college for Northern Ireland. This will most
probably be available from 2011/12 onwards. The NIPS is currently
seeking Outline Planning Permission (OPP) for its existing college
to maximise its disposal value. Other work already completed
includes the recruitment and deployment of Night Custody Officers
(NCOs) to replace MGOs during the night, permitting their redeployment
to front line daytime duties. A Management Development Programme
to train future uniformed managers commenced in March 2007. The
budget for prisoner Healthcare transferred to the DHSSPS in April,
which will have the effect of reducing Cost per Prisoner Place
by 3.5% from 2007/08 onwards, which is similar to what occurs
in England and Wales. The HPSS will take lead responsibility
for prisoner healthcare.
Other work currently includes an Options Appraisal
for late summer 2007 building upon the work in Strands 1-3 which
will permit the Service and Ministers to identify the options
for replacement of Magilligan Prison, at the current or at an
alternative site. Additional cellular accommodation to meet the
growing population needs is underway with two new blocks being
delivered in 2008/09. Before then further accommodation will
also be available from June 2007 at Magilligan.
30 29
Back
Back
| 
