Race and Faith Inquiry – exploring options for multi point entry in the Police Service

Report: 6b
Date: 26 May 2011
By: Chief Executive

Summary

The Race and Faith Inquiry Panel identified three issues which they felt required particular attention, including multi-point entry which they proposed “should be thoroughly examined in the MPA’s national symposium and a conclusion reached and acted upon. Again the potential beneficiaries are not just from Black and Minority Ethnic (BME) communities. They are individuals from all background and, crucially, the police service itself. Opening up the senior levels of the police to people of different backgrounds, cultures, races, faiths and life experiences can only make leading and managing this complex, and vital business more creative and effective.” Following the symposium in January 2011, a number of potential options to implement the next stage of this recommendation have been developed. These are set out in the paper at Appendix 1. (Please note, the appendices to the paper itself have not been included for full Authority, but are available to Members on request).

A. Recommendations

That Members agree the approach to the next stage of multi-point entry proposals set out at paragraphs 4-8 of this report and in Appendix 1. 

B. Supporting information

1. When the Race and Faith Inquiry was announced, the Mayor of London made clear his reasons for the inquiry, saying “Clearly the issues of race and discrimination in the Metropolitan Police must be examined. That is why I have asked Cindy Butts to look at some key questions, such as the progression of Black and Minority Ethnic (BME) candidates through the ranks of the service, the relation between staff associations and management, and the extent to which there is visible and effective leadership around race and faith issues.” The Inquiry report and its recommendations remain a Mayoral priority. In response to one of the recommendations, the Metropolitan Police Authority (MPA) hosted a national symposium to explore the benefits and practicality of multi-point entry for police officers, removing the requirement to progress through every rank; and instigating discussions with the Government on the issue. The symposium, whilst recognising the challenges, was very supportive of the principle of multi-point entry.

2. Since the Inquiry started there has been a significant change in the financial and economic climate in the public sector, including the police service. In addition, there have been a series of measures, such as the Police Reform and Social Responsibility Bill, and reports, including Lord Hutton’s “Independent Public Service Pensions Commission: Final Report” (The Hutton Report), part one of Tom Winsor’s “Review of remuneration and conditions of service for police officers and staff” (The Winsor Review) and Peter Neyroud’s “Review of police leadership and training” (The Neyroud Review) which have the potential to make significant changes to the policing landscape.

3. Part two of the Winsor Review looks, amongst other things, at how officers enter the police service. It was due to be published at the end of June 2011, but will be delayed until January 2012. His views on the possibility of multi-point entry are therefore capable of being influenced by the Authority and the MPS. The Neyroud Review, whilst not asked to consider multi-point entry, acknowledged there remains overwhelming support for a single point of entry from within the police service. Peter Neyroud in his report felt this should not, of itself, persuade against consideration of multiple points of entry, but indicates that there is opposition to an approach that has been seen through the 20th century as substantially devaluing the professionalism of police officer. No evidence is provided to support this assertion.

4. Nevertheless, with lower wastage, fewer promotion opportunities and an abundance of internal candidates seeking promotion, the issues around a lack of diversity and specialist skills, remain. Whilst the paper at Appendix 1 sets out three options, the environmental conditions within the police service are likely to remain challenging for some time, e.g. current changes in recruitment pathways, the need for positive action support, and a changed organisational structure post the Olympics and Paralympics. Consequently, introducing any scheme which brings candidates in at a more senior level or ‘fast tracks’ candidates is going to be difficult. It must also be recognised that to introduce multi-point entry, some changes to legislation or Regulations would be required. The three options in the paper at Appendix 1 are:

1. An ‘in house’ version based upon existing programmes with access to the other two models;
2. A ‘direct entry’ version based upon specialist skills with entry at superintending rank; and
3. A ‘rank’ skipping option designed to provide intensive learning and experience at three critical levels – constable, inspector and Borough Commander – the first two within the first 2-3 years’ of service.

Whilst none of the options is mutually exclusive, in all three options the expectation is that there would be a rigorous external evaluation process both for entry to the scheme and as part of a continuing assessment process.

5. While discussions continue on the merits of these options this report proposes exploring them. An interim step which would give an opportunity to trial a new approach by combining elements of Option 1 and Option 2. This would be a ‘proof of conduct’ exercise. There are significant changes in other parts of the public sector, e.g. United Kingdom Border Agency (UKBA), Her Majesty’s Revenue and Customs (HMRC), the Security Services and local authorities which will impact upon promotion and career development opportunities, as well as reducing overall numbers. Given this context it should be possible to establish the requirements for performance at senior levels in the MPS in roles requiring specialist, but arguably transferable skills. Having done so, it should be possible to identify staff from existing ‘talent’ programmes in the MPS and staff from UKBA, HMRC, etc who may be looking for new career opportunities and to trial an independent assessment process for these two groups of staff. Ideally this would comprise a range of different evaluation ‘tools’ to identify staff with the ability to perform senior, specialist roles in the police service. The results from the ‘internal’ and ‘external’ groups could then be benchmarked against one another to assess the suitability of the process, without any formal commitment to selection to a substantive senior post. This will benefit both internal and external candidates by providing an invaluable learning experience for future job applications.

Next steps

6. In order to ensure that this approach is operationally sound, the ‘proof of concept’ should be overseen by small joint MPS/MPA team chaired by an MPS officer at a very senior level to take responsibility for ensuring that the assessment process meets its objectives, has clear authority and that the context, including risks, is actively managed. There would need to be significant consultation with senior colleagues in the Met, staff associations and other interested parties, together with a full Equality Impact Assessment; arguably it should still be possible to carry out this ‘proof of concept’ in the current financial year in order to inform the nature and timing of any further work.

7. Meanwhile, the Authority will follow up the letter from the Mayor of London to the Home Secretary on taking proposals for implementing multi point entry forward, and will respond in greater detail on options for multi-point entry to part two of the Winsor Review. Given the delay in delivering part two of the Winsor Review, the likely organisational changes post Olympics and the anecdotal evidence which suggests there will a significant exodus of officers – particularly senior officers - from the service at the same time the next 12 months will be an ideal opportunity to explore this issue in the way suggested.

C. Other organisational and community implications

1. Equalities Impact

1.1 There are enormous equalities and diversity impacts arising from this report. Whilst an EIA was carried out for the Inquiry, further EIAs would have to be completed on the ‘proof of concept’ and any of three options which are going to be explored further. This would be monitored by the Authority as part of its audit and assurance processes.

2 Met Forward

2.1 There are two specific work streams within Met Forward – “ensuring a representative workforce” and “effective police leadership.”

3. Financial Implications

3.1 At this stage there is a £40k budget for equalities in the MPA budget for 2011-12, excluding staff costs. There are no immediate financial implications arising from this report as the proof of concept and three options have not been agreed by the Authority. If any trail is to be conducted its cost will have to be met from existing resources.

4. Legal Implications

4.1 There are legal implications arising from any full-scale change around multi-point entry. However, part two of the Winsor Review does provide a further opportunity to change entry requirements as part of a wider package of measures.

5 Environmental Implications

5.1 There are no environmental implications at this stage.

6 Risk Implications

6.1 There are no risk implications at this stage.

D. Background papers

• Race and Faith Inquiry report, Full Authority (22 July 2010)
• Response to race and faith recommendations, Full Authority (25 November 2011)

E. Contact details

Report authors: Alan Johnson

For more information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Appendix 1: Report on exploring options for multi point entry in the police service with a pilot programme for the Metropolitan Police Service 

Context

Race and Faith Inquiry

1. When he commissioned the Race and Faith Inquiry, the Mayor of London said “Clearly the issues of race and discrimination in the Metropolitan Police must be examined. That is why I have asked Cindy Butts to look at some key questions, such as the progression of Black and Minority Ethnic (BME) candidates through the ranks of the service, the relation between staff associations and management, and the extent to which there is visible and effective leadership around race and faith issues.” The Inquiry report and its recommendations remain a Mayoral priority. In response to one of the recommendations, the Metropolitan Police Authority (MPA) hosted a national symposium to explore the benefits and practicality of multi-point entry for police officers, removing the requirement to progress through every rank; and instigating discussions with the Government on the issue. The symposium, whilst recognising the challenges, was very supportive of the principle of multi-point entry.

What do we mean by multi-point entry?

2. In essence, multi-point entry normally operates in different ways in different organisations, but is a means of ‘fast tracking’ candidates to a middle or senior ranking position in an organisation by virtue of education, training, experiential learning, etc. This may mean entry at a single point of entry above the normal entry level or entry at a number of different levels within an organisation or ‘grade skipping’. In the MPS, multi-point entry for police staff has operated for many years and there are large numbers of such staff with particular skills and expertise that have entered at a very senior level. This report is concerned with police officers.

The case for change

3. The Inquiry considered that multi point entry could bring a wide range of benefits to the MPS and policing in general, which go far beyond increasing diversity at middle and senior police ranks. It could:

• enhance the MPS’s ability to attract the brightest and the best individuals;
• improve the culture of the organisation;
• directly benefit from the particular skills and experiences which those wanting to embark on a second career in the MPS would bring; and
• allow the MPS to better position itself within an increasingly competitive London labour market.

4. Against this are significant challenges:

• Managerial experience in a role outside of the service is no guarantee of managerial success in the police.
• A key aspect of police management is operational decision making and this can only be learnt in role.
• Potential lack of credibility for officers recruited through multi-point entry.
• Unique benefits derived from the office of constable (regardless of the rank performed), the experience of performing the role, understanding the exercise of coercive powers and the exercise of discretion.
• Whilst promoting diversity there would be considerable additional pressure on those selected who may be perceived as been given opportunities based on their race/or gender rather than their competence to perform the role of a police officer.

5. The Inquiry felt that the significant benefits if officers could join the police service at ranks higher than constable and thus radically change the workforce outweighed the challenges. Discussions around progression and the policing culture often identify a sudden slowing of progress for under-presented groups in middle ranks which militate against change. Multi-point entry would afford an opportunity to challenge the prevailing cultural norms within the organisation, and bring in experience and expertise from outside which could be hugely beneficial.

6. In 2007 the Authority carried out a scrutiny into talent management and succession planning which identified a lack of strategic perspective, resource or financial management awareness amongst the candidates for the most senior positions in the Service, whom the MPA were responsible for appointing. There was a real concern about the issue in the MPS, other forces and police authorities, including more broadly how talent and leadership skills were identified, developed and managed.

7. The aim of the scrutiny was to make recommendations that would; identify and address gaps that may currently exist, support an accessible and transparent process, which would provide police officers with the skills they require to be effective leaders and provide the MPS with the right calibre of leaders at every rank. The MPA acknowledged that all police officers and police staff are talented and important to the success of the police service. It was a question of providing the opportunities and development for people as far and as fast as they are able to go in order to deliver the greatest benefit to the service and – in the MPS – to the people of London.

8. There was serious concern about the lack of women and BME candidates at middle and senior management levels of the Service. It was suggested by some of those who gave written evidence that there was a similar lack of officers across other equality strands, i.e. disability, faith and sexual orientation, although reliable data to support these suggestions was not available for all police officers as it relied upon self classification and many officers had not provided a complete diversity profile.

9. In addition to a lack of diversity, the nature of the workforce is changing with demands for greater specialisation in a range of disciplines throughout the police service. As a result there is a smaller pool from which to draw and a need to attract, identify, develop, deploy and engage specialists in order to have the skills the police service needs. For the MPS there is a greater demand to get the skills mix right given the challenges faced by policing in London and the commitment to reflect the needs and diversity of London’s communities.

10. This leaves the police service facing a hidden challenge, and highly vulnerable if key roles are not filled or key individuals retained. What will be the cost both in terms of service delivery and in trying to find or replace these individuals? This has enormous implications for Specialist Operations and Specialist Crime Directorates. Whilst the police service provides some challenging areas of work, there is a growing reliance upon having the right people with the right skills and knowledge in place at the right time.

11. Since the scrutiny there has been a significant change in the financial and economic climate and fewer police officers are leaving the Service. As a result there fewer promotion opportunities and an abundance of internal candidates. However, the issues around a lack of diversity and specialist skills, remains. The lack of specialist skills is likely to become more acute post the London Olympics and Paralympics as officers with such experience find more lucrative employment outside the police service.

12. There are precedents in other parts of the public and private sector, and while it could be argued – for example - in the case of the armed forces that this has not significantly enhanced diversity, it does demonstrate that frontline experience may not be a necessary requirement for success at more senior levels of a uniformed and disciplined organisation. Another model is the prison service, where senior officers start ‘on the landings’ in order to understand the dynamics of prison life, but then have accelerated promotion to governor. There are also policing examples from other countries who have introduced direct entry to senior ranks such as Portugal who introduced a double point entry scheme.

Metropolitan Police Service (MPS)

13. The MPS has worked very hard over the last ten years, within the current regulatory framework, to increase the proportion of under-represented groups at all levels amongst police officers and police staff. Following requests from the MPA, the MPS provided to the Communities, Equalities and People Committee in July 2010 a number of projections in the context of the anticipated impact of an overall increase in BME and female recruitment, improved retention rates, the new MPS recruitment model for police officers, the change in MPS promotion processes, the impact of the Equalities Act 2010 and subsequent regulations relating to the duties of public bodies, the Developing Training Programme and the introduction of a Professional Development Domain Framework, the MPS Workforce and Working Culture Action Plan, the impact of the Race and Faith recommendations and continuing Talent Management activity.

14. Historical workforce information provided a measurement of the change in progression over time at the different levels in the workforce. The projections were based upon the observed changes over time in BME and female representation levels within police officer ranks and police staff bandings. It was evident that in the last ten-years, the corporate environment has changed significantly with unparalleled growth in the number of police officers and, to a lesser extent, police staff, with the introduction of a range of strategies covering positive action, recruitment and retention. Conversely, during the next ten-years, the economic climate may mean fewer opportunities and the environmental conditions are likely to be very different (e.g. changes in recruitment pathways, positive action support, promotion opportunities) which may, in turn, affect the projections.

15. Dealing specifically with police officers, the projections suggest that over the next ten-years, whilst BME officer representation is likely to increase substantially in the junior ranks, the BME officer representation amongst senior ranks (i.e. chief superintendent and higher) may not improve. Therefore, during the near future, the progression of BME officers to the chief inspector and superintendent ranks will be critical to BME representation amongst chief superintendents and ACPO ranks.

16. The projections for female progression appear to be very positive. However, the relatively low increase in female representation within the superintendent rank reveals a potential longer-term risk for female representation within chief superintendent and ACPO ranks. Arguably there needs to be some radical intervention in the form of multi-point entry to stimulate greater representation at middle and senior ranks.

17. However, in an organisation the size of the Met achieving significant organisational and cultural change takes time particularly when it has to be delivered against the backdrop of a challenging and constantly changing policing environment. However, moving BME officers into senior positions has proved a slow process and the current demographics at the end of February 2011 do not make encouraging reading:

18. In July 2010 the MPS provided a summary of projected progression for BME and female officers. It showed that with the police strength remaining constant at 32,684 officers over the ten-year period, overall BME officer representation is likely to reach 15.2% (n = 4,955) by March 2020 (net increase of 1,855 BME officers). The BME officer representation amongst constables is likely to reach 17.8% (n = 4,325), nearly 1 in 5 constables from BME communities. The BME officer representation amongst sergeants is likely to increase from 5.1% (n = 305) to 7.9% (n = 460). The inspector rank is likely to see BME officer representation increase from 4.4% (n = 74) to 7.1% (n = 118). The BME officer representation amongst chief inspectors is likely to increase from 4.3% (n = 21) to 7.7% (n = 37). The BME officer representation amongst superintendents is likely to increase from 3.6% (n = 8) to 5.5% (n = 12). The projections for the chief superintendent and ACPO ranks did not reveal any increase in the number of BME officers or representation levels.

19. Since that report, the draft London Business Plan 2011-14 has been considered by full Authority in January this year and identifies a continuing budget gap – which will be bridged – and predicts a fall in the overall number of officers over the period.

20. Officers from the MPA, MPS and Greater London Authority (GLA) have worked closely together in helping develop budgetary proposals for 2011-12 in a period of considerable uncertainty on funding. Whilst the Mayor has identified additional funding for policing within his overall financial strategy, there remains further savings to be made by the MPA and MPS over and above those already built into the draft policing budget.

21. In terms of police officer numbers and promotion opportunities, this may mean fewer opportunities and the environmental conditions are likely to remain challenging (e.g. changes in recruitment pathways, positive action support, promotion opportunities, etc.) Consequently, introducing any scheme which brings candidates in at a more senior level or fast tracks their promotion is going to be difficult.

22. Having said that, historical workforce information, together with future predictions, provides a working measurement of the likely change in progression over time at the different ranks in the workforce. Looking at this data it is evident that, at middle and senior ranks, the prospect of achieving a representative workforce remains a distant aspiration given the current level of progress. Arguably there needs to be some radical intervention in the form of a multi-point entry scheme to stimulate greater representation at these ranks.

Legislative constraints

23. Legal advice suggests that an amendment to Regulation 10 (Qualifications for appointment to a police force) of Police Regulations 2003 may be required to lawfully enact any new model for recruitment at a higher rank. This is because it potentially introduces as yet unspecified additional entry requirements for appointment as a police officer. Regulation 10 also provides that candidates for appointment in the rank of sergeant, or inspector, must be qualified for promotion to such rank in accordance with the provisions of the Promotion Regulations.

24. At the most senior levels, Policing and Crime Commissioners (PCCs) – or in London the Mayor’s Office for Policing and Crime (MOPC) - will be responsible for the appointment of Chief Constables as a result of changes to policing governance. Chief Constables, together with all other ACPO ranks, are currently the responsibility of police authorities under sections 11(1), 11A and 12(2) of the Police Act 1996, subject to the approval of the Secretary of State and regulations made under Section 50 of the Police Act 1996 (Secretary of State’s determinations). Candidates should have successfully completed the police service’s Strategic Command Course (SCC) and receive the approval of the Senior Appointments Panel (SAP) who act on behalf of the Secretary of State.

25. Appointments to these roles in the MPS are currently governed by sections 9B to 9G of the Police Act 1996, as inserted by the Greater London Authority Act 1999; appointments to the City of London Police are governed by the City of London Act 1839.

26. Currently it is expected that candidates for the post of chief constable should meet the standard eligibility requirement for that post, as set out in paragraph 1 of Part 1 of the determination made under Regulation 11 of the Police Regulations 2003. The posts of Commissioner and Deputy Commissioner of Police of the Metropolis are made under Royal Warrant. Their appointments are subject to approval by the Secretary of State, who would make his recommendation to the Palace, having consulted the Mayor of London and the Metropolitan Police Authority (MPA).

27. The standard eligibility requirement requires candidates for the post of chief constable (unless there are exceptional circumstances) to have worked at ACPO level for at least 2 years:

• in another police force (from the one to which they are applying); or
• in the British Transport Police; or
• whilst engaged on relevant service within the meaning of section 97(1) of the Police Act 1996 (see box below); or
• partly in one of the capacities above and partly in another.

Section 97(1) of the 1996 Police Act

Section 97(1) of the 1996 Police Act defines "relevant service" as meaning:

• temporary service relating to the provision of advice and assistance to international organisations etc (section 26 of the Police Act 1996);
• temporary service with the Independent Police Complaints Commission (paragraph 6(2) of Schedule 2 to the Police Reform Act 2002);
• temporary service as an assistant inspector or staff officer in Her Majesty’s Inspectorate of Constabulary (section 56 of the Police Act 1996);
• temporary service in connection with any body that the Secretary of State considers necessary or expedient for promoting the efficiency and effectiveness of the police (section 57 of the Police Act 1996) or in connection with research or other services related to the police;
• temporary service with the Police Information Technology Organisation;
• temporary service with the Central Police Training and Development Authority;
• temporary service with the Assets Recovery Agency;
• temporary service as a member of staff in the Serious Organised Crime Agency;
• temporary service as an adviser to the Secretary of State;
• service which attracts expenses payable under section 1(1) of the Police (Overseas Service) Act 1945;
• temporary service with the Police Ombudsman for Northern Ireland (to be commenced);
• service in the Police Service of Northern Ireland;
• service pursuant to an appointment under section 10 of the Overseas Development and Co-operation Act 1980; or
• service in connection with the provision by the Secretary of State of assistance under the International Development Act 2001.

Exceptional circumstances

28. The standard eligibility requirement is, however, subject to paragraph 2 of Part 1 of the determination made under Regulation 11 of the Police Regulations 2003. Paragraph 2 provides that where ‘exceptional circumstances’ apply, consideration may be given to whether the standard eligibility requirement should be waived for a particular candidate.

What is the process for determining ‘exceptional circumstances’?

29. If a potential candidate considers that there are ‘exceptional circumstances’ for which consideration should be given to whether the standard eligibility requirement should be waived, he or she should make an ‘exceptional circumstances request’ which should be attached to his or her application form. The request should set out (i) the nature of the ‘exceptional circumstances’ and (ii) any relevant alternative experience that the candidate has.

30. The police authority will then submit all the applications to SAP in the normal way, together with any ‘exceptional circumstances requests’.

31. The SAP, when reviewing all of the applications for the chief constable post in question on behalf of the Secretary of State, should jointly consider any ‘exceptional circumstances request’ and make a recommendation as to whether the standard eligibility requirement should be waived for the individual. SAP should also consider the impact on equality to ensure that there are no unintended or unforeseen impacts, and/or that any impacts are managed. At the SAP meeting, the chair of the police authority to which the individual has applied will be invited to express a view on the implications for the balance of the whole ACPO team should the candidate be successful in securing the post. The Secretary of State will then consider the advice of the SAP for all candidates, including any recommendations for exemption from the standard eligibility criteria, when approving the final candidate list. It may be that, under the new governance arrangements, the Secretary of State will make such decisions as SAP will be scrapped.

32. At present, the Civil Nuclear Constabulary is the only police force to appoint a Chief Constable from outside the police service in this manner.

33. Finally, Regulation 12 (Probationary service in the rank of constable) of the Police Regulations 2003 provides that a police officer shall be on probation for the first two years of their service, and does not allow any reduction to this to take account of other criteria. There may be further consequential amendments required to the Police Regulations or Police Promotion Regulations due to the incompatibility of such a proposal with the existing provisions.

Race and Faith inquiry findings

34. The Inquiry panel identified that if police officers could join the MPS at ranks higher than constable the MPS could change its profile radically, but identified ‘permafrost’ in the middle of the organisation which militates against change. The panel took the opportunity to discus multi‐point entry with many contributors to the inquiry. It appears a polemic issue; senior MPS managers do not see it as impossible but are understandably cautious about how it would successfully be implemented. They were also concerned that that very few applicants would be successful and that the risk of it going wrong in the first tranche would jeopardise the future of the programme and carry real risks for that first wave of officers who were prepared to join at a rank above constable.

35. Police officers within focus groups and interviews were against this concept, emphasising the need for experience at every rank from constable upwards in order truly to understand the business of policing. Concerns were raised about the perceived lack of credibility any officers recruited through multi‐point entry would have, leading to resentment. Some officers and staff felt that multi-point entry for the purposes of increasing the diversity of officers of management ranks would lead to a backlash from officers who felt they were unfairly given the opportunity purely because of their race and/or gender rather than having to work and demonstrate commitment and competence as a police officer.

36. From the feedback received in the Inquiry’s focus groups, there was a belief that serving police officers would unite against this proposal although, in giving evidence to the Inquiry, some individuals within the police service were more supportive of the concept. However, the idea is currently being considered afresh in part two of the independent review of police officers’ and staff remuneration and conditions which is due to report in January 2012.

37. The Association of Chief Police Officers (ACPO) and Her Majesty’s Inspectorate of Constabulary (HMIC) have highlighted risks in introducing multipoint entry without a thorough consideration of the practical and cultural implications, both in the short and longer term; nationally the Police Federation and the Superintendents’ Association are both opposed to the concept.

38. On the issue of promotion, throughout the course of the Inquiry’s evidence gathering it was clear there was a real difference of opinion between senior and more junior staff. When respondents to the inquiry were asked to provide their feedback on the promotion processes, they generally acknowledged that the MPS has worked hard to continually improve the processes and systems, respondents felt that BME promotion stalled after inspector level because arguably the process was no longer as independent and therefore bias and subjectivity influenced the decision making.

39. However, under current arrangements it is important to factor in length of service when considering progression rates. The vast majority of officers above the rank of inspector have 15 years or more service, whereas the surge in BME recruitment has only taken place in the last 7-8 years.

40. Additionally, and as a result of the MPA Talent Management and Succession Planning Scrutiny in 2007, the MPS established a number of initiatives such as the Equip to Achieve programme, a positive action scheme aimed at developing high potential BME sergeants and inspectors, with a view to equipping them to join the national high potential development scheme (HPDS). Details are attached in Appendix 1 of currently funded MPS schemes.

The Business Case

Strategic perspective

41. The MPA believes that the police service must be properly accountable for their performance as well as their conduct, and their performance management framework must only reward activity that delivers a better service. The complexity and challenges of modern policing mean that every opportunity is taken to reform the workforce to ensure that it is flexible, well trained and highly motivated, with a diverse range of skills and expertise. A key goal should be to enhance the ability of Chief Constables and the Commissioner of Police of the Metropolis, in agreement with their PCC, to manage their workforces but be held accountable for their performance to their local communities.

42. This will require a more specialised workforce that encourages police officers and police staff to use and develop their skills to the maximum effect, new more flexible team structures with training and development targeted to address skills gaps and ensuring everyone has the opportunity to reach his or her full potential. This can be achieved through new entry routes and career paths for those with non-policing experience, e.g. around people, resource and performance management and delivery, and rewards for skills, effort and performance.

43. ACPO have also previously argued a single entry point for all applicants prevents large sections of the community from applying to the police: “The police service has inflexible recruitment practices preventing direct entry into higher levels or specialised areas regardless of proven skills and expertise. Such structures and inflexible pension provisions consequently focus police constable recruitment on the pool of people with potential rather than attracting a significant proportion with proven skills and knowledge. The service currently recruits, trains and rewards all recruits alike, whether they are mature, highly paid, skilled and experienced fraud investigators or community development managers, or a 19 year old school leaver. Two year probationary periods and residential training courses create further barriers to recruiting significant proportions of the community.”

44. Importantly direct entry would not allow inappropriately experienced managers to move straight into senior police positions; candidates who enter the force at a higher level must have relevant skills and experience and prove that they qualified for the position they are applying for. Instead of lowering standards, direct entry should raise them by increasing the number of talented and qualified people who apply to the police. It will also allow the recruitment of experts in particular specialised fields.

45. As HMIC have previously recognised in their report on modernising the police workforce, “Policing is now highly complex and spans a massive spectrum of activities requiring a similarly extensive range of skills and competencies in those taking up the challenge. The omnicompetent officer has been a traditional icon and supposed mainstay of the service. It is debatable whether effective omnicompetence has ever actually been achieved but it is now abundantly clear that such an aim is no longer viable, or indeed appropriate, for 21st century policing needs.”

Community perspective

46. The police service has a long history of responding positively to challenges both in what it is expected to do and how it is expected to do it. Multi-point entry should therefore be seen as an opportunity to address the current challenges by enabling the very, very brightest and the very, very best from all walks of life to have a career in the police service and then ensure that the Service does not stifle that flair, intelligence and initiative at such a critical time for the service, by forcing these individuals through a time served process which does not make the best use of those talents.

47. The basis of British policing is policing by consent. Whilst the principle holds good for 21st Century policing, today’s citizens demand more. For policing to achieve meaningful citizen-focused policing with the active engagement of citizens, those citizens must recognise themselves in that service. There has been an increasing call for the police service to ‘look’ more like the communities it serves to underpin its legitimacy in our democratic society. The events of the last ten years have made it clear that to effectively police a diverse society there needs to be a representative police service – it is consequently an operational imperative for the Met to increase the number of police officers from more diverse backgrounds.

48. So why is achieving diverse representation difficult? The police service’s inability to consistently recruit and retain BME and female officers has been well documented. In attempts to overcome these difficulties a range of reports and action plans have been developed and promoted by various bodies. These have generally been predicated on the basis of ‘positive action.’

49. Nevertheless, there are encouraging precedents. Including the provision within Police Regulations to appoint at Chief Constable level someone with no policing background. The police service has also embraced the recruitment of police staff specialists in a variety of managerial roles. In human resources, finance, IT and legal services, police staff specialists play an integral role within chief officer teams across most Forces. With work force modernisation there is potential for a broader spectrum of specialist recruitment at a number of organisational levels. Direct entry to such roles, and in particular at chief officer level, affords the opportunity for subject specialist expertise, exposes the organisation to external experience, enhances representation of senior and other teams and broadens force’s capability to deal with an ever challenging operating environment.

50. However, in addressing this issue it needs to be recognised that whilst police officers have the flexibility to respond to all kinds of emergencies, judging what needs to be done and imposing solutions, arguably in order to deliver a modernised police service the police service needs a greater degree of flexibility to appoint suitably trained, experience or qualified police officers at above entry level to address the ever changing needs of policing and the communities policing serves.

Business benefits

51. No one could doubt that the business case for equality and diversity in the police service is well established, but the Authority believed this needs to be more readily promoted across the service as a business priority since there is clear evidence that it enhances creativity, encourage innovation, and improves organisational performance and productivity. Research shows that a diverse team works more effectively to solve problems, provide a rich variety of approaches and is more innovative in providing lasting solutions, all of which will be critical in delivering the Inquiry’s recommendations and improving performance at a time of significant financial challenges. These include:

Broader skills and experience base:

52. If the police service becomes more representative at all levels it will be drawing from a broader pool of skills and experience. By creating a positive working environment in which all police officers feel respected and valued, they will become more involved in their work. This will lead to increased innovation and performance, higher job satisfaction and lower staff turnover.

Increased confidence:

53. An organisation that is built upon the widest range of skills and talents available to it, and that does all it can to make the best use of those talents, will inspire more confidence in policing in the community. Proper external communication and engagement with the communities we serve at every level of policing will assist in this.

Intelligence and information:

54. A more confident and trusting public will communicate better with the police and will supply the service with the information and intelligence that is so important to our delivery of effective intelligence led policing service. Ultimately this will allow for the reduction and detection of more crime. Neighbourhood Policing and the Neighbourhood Teams are the primary resource involved in this.

Improved service delivery:

55. By building a clear and comprehensive intelligence picture, making the best use of all the information that the community provide to the police and using the National Intelligence Model, including working with our partner agencies, police effectiveness will be improved and ultimately will allow for the greater reduction and detection of crime.

More positive image:

56. Improved performance will lead the police service to improving its image and greater respect amongst all sections of the community.

57. The police service has come a long way over the last few years in its understanding, recognition and development of a more diverse workforce, but for policing to remain valid and legitimate it needs to sustain trust and confidence. Despite the fact that the communities that are policed have become increasingly diverse in their make-up, essentially the warrant to protect and serve remains dominated by a white, male workforce.

Key principles

58. The term "police culture" has been referred to in several different perspectives of policing. It can refer to the "us versus them" attitude that is attributed to police forces almost everywhere, where by "them" can be variously meant "society at large," "criminals" and "senior police officers." It can also refer to police attitudes towards the use of their discretionary powers, especially where the end (protecting society from criminals) is thought to justify the means (for example, disproportionate use of stop and search or stop and account, excessive use of force or partial testimony.) Finally, it can refer to the strong feeling of loyalty towards and solidarity with fellow officers, a feeling which goes beyond what is normally encountered among employees, even other professionals. As a result:

• Proposals for multi-point entry and its implementation must take account of the significance and scale of the cultural shift involved.
• Any new system must be credible and appropriate, developed with the full engagement of the staff associations.
• Accepting the strength and divergence views there is a need, nonetheless, for the police service and staff associations to undertake a constructive dialogue to inform the development of proposals and options.
• In developing thinking on multi-point entry it is important to be clear on what is sought to be achieved by such an approach. The current debate on the benefits and outcomes is largely based on individual and collective opinions, with only little underpinning analysis and research. In taking forward the debate it is important to establish with clarity what we are intending to address e.g. bringing in new skills, increasing diversity etc. and establishing that multi point entry is the most effective mechanism to achieve the desired aims.
• Proposals for multi-point entry should have the broad support of staff so as not to create an environment of failure for prospective candidates.
• A single proposal for direct entry without exposure at the rank above constable e.g. at inspector or superintendent following a military model, are unlikely to be supported as this does not take account of the unique nature of policing.
• Performing the role of a constable, experiencing the use of discretion and the exercise of police powers are seen as a significant component of policing and is likely to form part of any entry route for those who will be charged with making operational decisions.
• In addition to critical rank specific roles, which may be viewed as an essential in the development of a candidate within multi-point entry, there are likely other critical areas where specific exposure and breadth of experience is a key component for advancement.
• The ability to undertake a role should be based on clear assessment of capability against defined standards so to ensure occupational competence. (This is increasingly the case for critical roles for existing police officers e.g. firearms and public order.)
• Multi-point entry must ensure a balance between the iterative development of the single entry model with recognition of the skills, experience and other abilities a candidate may bring into the organisation.
• Multi-point entry should provide opportunities to facilitate the advancement of staff with prior experience, life skills and other relevant attributes e.g. community knowledge, be open to a wider cohort of staff and complement other schemes such as HPDS.
• Multi-point entry should have broad support and in particular contribute to the confidence of communities in delivering effective policing.
• Any proposal should also consider multi-point exit, allowing officers to leave the service to gain different experiences and skills, which could then be reapplied to policing.

Risks

59. Firstly it is important to recognise the importance of the Office of Constable. .A police constable is not an employee of the police authority or of central government but an independent holder of public office, with terms and conditions of employment set out in Police Regulations, Home Secretary’s determinations and other legislation. This special employment status stems from particular responsibilities, including being on call 24/7, being forbidden to strike, having certain restrictions on their private lives and extensive powers of arrest.

60. However, a major risk is that whilst policing as a career has been seen as a vocational occupation of skill, knowledge and public duty, and the image of the uniformed constable patrolling the streets has become an iconic and enduring image for the public, it does not make it a career of choice for the very brightest candidates. What has evolved is a policing profession without the formal structures of other professional groups of workers, e.g. teachers, health workers, where staff are required to undergo specific training across a wide range of disciplines before being able to use those skills in an operational setting.

61. As mentioned, HMIC have identified that increasing specialisation provides significantly greater opportunity to identify individuals with the right combinations of skills from outside the police service. And yet, despite various fast-tracking initiatives and graduate entry schemes aimed at moving talented staff into specialist or managerial roles at the earliest opportunity, there has remained just one entry point for all police officers. Direct recruitment into more senior roles, particularly in some specialisms and managerial roles, could tap into a wealth of diverse experience and talent outside the policing environment.

62. As things stand, police constable recruitment focuses primarily on those with potential rather than attracting a significant proportion with pre-existing skills, knowledge and experience. Consequently, the Service currently recruits, trains and rewards all recruits alike, whether they are, for example mature, highly paid, skilled and experienced fraud investigators or school leavers. Other public organisations, e.g. armed services, prison service, benefit greatly from people coming into the public sector at more senior levels.

63. Having said that, in terms of entry level recruitment, the Authority has endorsed discrete, time-limited recruitment campaigns, based upon a budgeted deployment plan with a range of alternative training options. The majority of applicants (including police staff) will come from the Metropolitan Special Constabulary (MSC - Specials), where participants will receive development and training opportunities to gain independent patrol status (IPS), together with a qualification in relevant law and policing equivalent to that currently delivered through the standard Initial Police Learning and Development Programme (IPLDP), and be ready for immediate deployment upon appointment as regular police officers.

64. Applicants will also come from serving Police Community Support Officers (PCSO) and others excluded from membership of the MSC by either statute or personal circumstances. Participants from these groups will be required to undertake a recognised qualification in law and policing before being eligible to apply as regular police officers. The initial training will then focus upon the skills and knowledge required to gain IPS (approximately 10 weeks).

65. The new arrangements will deliver significant financial and diversity benefits. In terms of financial savings, salary cost savings through training will be realised at around £20k per MSC recruit and £12k for others. In terms of diversity, 30% of specials and PCSOs in London are from Black and Minority Ethnic (BME) groups and are liable to deliver highly representative recruitment numbers over the next few years.

66. This provides one option for a differential entry point scheme; the service needs to look at issues like pre-qualification and start to pay according to levels of expertise or qualification and not just rank. This would get away from the assumption of skills because of rank. This should no longer be the case as these skills and experiences should be tested and accredited.

67. Looking at the experience in the armed services, there is a clear differentiation between three formal levels of leadership (strategic, operational and tactical), with individuals able to join at basic entry level or at a single higher, operational level. At the higher level, candidates are ‘taught’ to understand their leadership role rather than taught leadership. The armed services are quite clear that there is no issue around credibility or the need for entry level ‘experience.’ The analogy given is the difference between understanding how to drive a car and understanding how a car engine works – you do not need to know one to do the other.

The Way Forward

68. There would clearly be cultural and confidence issues within the police service when introducing any multi-point entry scheme, but the issues are not seen as insuperable and could include, for example, the aggressive targeting of high quality BME graduates. In terms of ensuring diversity, the opportunity for subsequently appointing or ‘fast tracking’ under-represented groups could be the subject of some specific positive action initiatives. In addition, within the MPS, the Leadership Academy’s Hydra Suite has been used over many years to provide scenario based training on all aspects of policing, including critical incidents, and would be ideally suited for multi-point entry programmes to provide experiential learning.

Different approaches

69. There are three possible models which could be considered, none of which are mutually exclusive. In all three options the expectation is that there would be a rigorous external assessment process both for entry to the scheme and as part of the continuing assessment process:

1. An ‘in house’ version based upon existing programmes with access to the other two models;
2. A ‘direct entry’ version based upon specialist skills with entry at superintending rank; and
3. A ‘rank’ skipping option designed to provide intensive learning and experience at three critical levels – constable, Inspector and Borough Commander – the first two within the first two years of service.

An ‘in house’ version based upon the existing programmes

70. The MPS Talent Questionnaire has been designed in collaboration with an external consultant to look for indicators of leadership potential, specifically it looks to see if respondents have the capacity to develop leadership competences. The consultant’s research looked at many different roles in organisations across a range of industries and countries. What they found was that although roles clearly differ according to the aims and purpose of the organisation, there are certain key behaviours which are common to all roles at particular levels. What is more, the presence of these behaviours can be detected before the skills they lead to are developed. The questionnaire is therefore looking for potential to deal with management challenges, rather than the actual competences required.

71. Respondents to the questionnaire will be shown a paragraph of information about an item of general interest (there are several different scenarios that respondents could be presented with.) Under the paragraph are three different questions which prompt respondents to explore different facets of the situation. Respondents are not expected to provide a complete response to the questions – what is being assessed is their attention to different parts of the problem, and the way they tackled it.

72. After respondents have submitted their questionnaire, an experienced consultant will assess the answers, looking for indicators of leadership potential. A report will be produced which will tell the respondent how they did, and will give some pointers to help them to develop their potential more fully. The report will also recommend appropriate development opportunities for the respondent; such development could include lateral development, signposting to the Promoting Difference Programme, coaching and mentoring or the high potential schemes, contingent on the content of the respondent’s feedback.

73. Currently the Talent Management team will be passed details of those showing clear leadership potential, so that they can encourage them to apply for the Equip to Achieve Programme, HPDS or Emerging Leaders Programme. This should also encourage a more diverse group of applicants to come forward, who either may not have considered the high potential schemes previously or may have lacked the confidence to put themselves forward.

A ‘direct entry’ version based upon specialist skills with entry at superintending rank

74. Workforce Modernisation provides a template to identify areas of business which would be suitable for bringing more specialist skills into the service at a senior level. This would not involve disaggregating ‘operational’ from ‘non operational’ tasks as happens in ‘pure’ Workforce Modernisation, but it would involve employing a different staff mix in highly technical or specialist areas. These could include financial investigation, asset recovery / confiscation, kidnap and specialist investigation, major investigation, professional standards, intelligence, child abuse, computer crime, major investigation etc. Officers within these senior roles would remain within a single specialist career pathway throughout their service.

75. With a new flexibility of staff mix, individuals perform work appropriate to their skills and abilities with highly skilled officers concentrating their efforts on high skill and high expertise tasks. This could include the searching and seizure of evidence and the swearing of specific search warrants.

A ‘rank’ skipping option designed to provide intensive learning and experience at three critical levels – constable, Inspector and Borough Commander/Chief Superintendent.

76. On the basis of the ‘army’ model of tactical, operational and strategic and following a rigorous assessment process, a pilot scheme could adopt an approach of entry at police constable level, but perhaps with a different level of payment to reflect skills and experience. There would be an accelerated promotion model with candidates performing the role of a constable, experiencing the use of discretion and the exercise of police powers in recognition of this as a fundamental component of policing.

77. As preparation for the role of constable candidates would complete the 23 day MSC training course (see Appendix 2 – this is already funded) and in 12 months be subject to intensive experiential learning, Hydra exercises and intrusive supervision and continuous assessment both internally and externally. Failure at any stage would result in removal from the programme.

78. Subject to satisfactory performance and assessments, successful candidates would ‘skip’ the sergeant role and be promoted to Inspector where the skills of tactical delivery, responding to needs of communities, the initial management of critical and major incidents and operational decision making are developed. As preparation for this, candidates would, as a minimum, complete the Met’s development programmes for inspectors (see Appendix 3 – this is already funded). In 12 months candidates would be subject to intensive experiential learning, Hydra exercises and intrusive supervision and continuous assessment both internally and externally. Failure at any stage would result in removal from the programme.

79. Subject to satisfactory assessment, candidates would then ‘skip’ to Borough Commander / Chief Superintendent, a role characterised by solo command of a geographical or operational area, performing the role of senior investigating officer or other equivalent positions as a key strategic platform for the both the delivery of effective policing and the development to senior ranks. As preparation for this, candidates would, as a minimum, complete the Met’s Borough Commander Development programme (see Appendix 4 – this is already funded). In 12 months candidates would be subject to intensive experiential learning, Hydra exercises and intrusive supervision and continuous assessment both internally and externally.

80. The expectation is that up to 20 candidates would be accepted onto the pilot scheme following a series of internal and external activities, as part of a bespoke assessment centre and programme (see Appendix 5 – this could be used as a specification for tendering the work to external consultants with the necessary skills and expertise in this area). This would include:

• Executive search
• Psychometric assessment
• Competency based selection
• Structured interviews
• Career coaching and mentoring

81. Successful candidates would be given a Fixed Term Appointment (FTA) with failure at any stage resulting in the immediate removal from the programme. These candidates would have the option of continuing as a police constable or leaving the police service. There is an expectation that not all those accepted onto the programme would succeed.

82. In terms of timing it should be possible, subject to Authority agreement, to implement option 1 within existing funding in 2011-12. For options 2 and 3 the preparation time and competing demands of the Olympic and Paralympics suggest that 2012-13 would be the earliest this could be implemented. With all three options there are identified organisational and cultural issues to address.

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