Update on the Metropolitan Special Constabulary and proposed new model of recruitment and training for police officers

Report: 4
Date: 17 May 2010
By: Director of Human Resources on behalf of the Commissioner

Summary

This report outlines the strategy to deliver the new recruitment targets of Metropolitan Special Constabulary (MSC) officers. It also sets out a proposal, under consideration, of utilising the MSC as the principal point of recruitment for new police officer recruits. Appointments through this route will be trained within the community, be patrol ready upon appointment and generate financial savings.

A. Recommendation

That members note the contents of this report.

B. Supporting information

1. The MSC provide a pivotal role in delivering the policing pledge in London. The strength of the MSC is to be increased to meet the anticipated operational demands. The operating environment of the MSC also provides ideal opportunity to develop the skills and knowledge within London’s communities for the new police officer recruits. The proposal in this report provides a new and exciting way to professionalise and enhance the status of the MSC, whilst providing a diverse pool of recruits capable, upon appointment, to patrol independently. The proposal enables substantial cost savings.

MSC Step-change

2. There is an operational requirement that the MSC provide around two million hours of visible policing activity by end-March 2012. Previously, each special was expected to perform a minimum 200 hours duty per year. That expectation increased to 300 hours per year for all specials attested after 31 March 2010. Nevertheless, a considerable increase in the MSC strength will be required to meet the policing requirement (i.e. an increase from 3,125 to 6,667 officers).

3. Table 1 provides details of the step-change in MSC strength increase, highlighting the anticipated wastage and recruitment targets to reach a funded strength of 6,667 by end-March 2012.

Table 1: MSC step-change - targets

Source: Metropolitan Police Service, Workforce Planning (2010)

4. Table 1 shows that in 2010/11 the MSC recruitment target will be 2,840 taking into account normal wastage [1] (i.e. death, dismissals, resignations etc.) and the growth in the number of funded posts in the organisation, to increase the year-end strength to 5,137. The following year, the recruitment target will remain equally challenging at 2,837 to increase the MSC strength to 6,667 by end-March 2012 in time for the 2012 Games. During this year it is anticipated, subject to the approval of the new recruitment proposal (discussed later), that the first wave of MSC officers will leave to take up appointment within the regular police. Thereafter, the recruitment level will be sustained at around 1,400 to offset turnover, though the target will also be determined by anticipated operational demand and budgetary factors, so may rise or fall dependent upon need.

MSC Diversity

5. The officers within the MSC amount to the most diverse group within the MPS workforce, including members from Bangladeshi, Pakistani, Turkish-Kurdish and Somali communities. Table 1 presents a summary of the representation levels of different diversity groups within the MSC.

Table 2: gender and broad ethnic identity of MSC (end December 09)

Source: MPS Workforce Information (2010)

6. Table 2 reveals that the representation of the Asian communities (16.3%) within the MSC is greater than the London level (c.14.1%). The MSC role has been good at attracting BME females, particularly Indian (7.5%) and Pakistani (2.4%) females, whose representation levels are equal to the London population. Similarly, the Chinese and other communities (4.9%) exceed the London level (c.4.2%). The representation of Black communities (7.9%) currently falls short of the London level (10.5%), highlighting communities for enhanced community engagement and local positive action; however, within the MPS in other roles the Black communities are very well represented, particularly Traffic Wardens (12.9%), police staff (11.8%) and PCSO (10.3%). The interactive nature of the MSC role means that MSC officers provide a local service that meets the needs of London’s diverse communities, helping to build trust and confidence. The diverse qualities of the MSC will become critical to help meet the operational needs of the 2012 Games.

MSC Attraction

7. Table 1 (above) highlights the recruitment challenge facing the MPS. Whilst the methods used previously have resulted in a substantial increase in the number of special constables, a new, unified recruitment strategy will be necessary to meet the requirements of the MSC step-change. Consequently, HR and TP have developed a strategy that combines the local knowledge of safer neighbourhood teams with the proven success of HR community engagement, HR advertising and marketing and the bulk processing capability of the recruitment expert services, all carefully managed by the workforce planning team.

8. Since January 2010, the partnership between TP and HR has already started to yield considerable success. Table 3 provides a summary of these applications.

Table 3 MSC applications

Source: Metropolitan Police Service, Workforce Planning (2010)

9. Table 3 shows that the HR/TP partnership has resulted in substantial numbers of MSC applications being received (i.e. 870 January, 917 February and 947 March), meeting the planned requirement of around 800 per month. The excellent diversity amongst the applications has been sustained during the campaign, with around 37% BME and 31% female. There is an expectation that the rich diversity amongst applicants will be sustained during the MSC step-change programme provided trust and confidence within local communities is maintained. It should be noted these unprecedented application rates with a healthy diversity mix are in direct response to advertising the role of MSC with an expectation that all individuals will complete 25 hours per month/300 hours per year.

10. Current research being undertaken by Recruitment suggests that the motivators for joining the MSC are complex and include the following factors:

• Making a direct and hands on difference in the community
• Becoming a Police Officer and getting experience
• Learning new skills
• Unique and exciting experiences/getting beyond the 9-5
• Personal development
• Like to challenge self

11. Applications are being channelled through the following routes:

• The general public in response to our marketing and advertising strategy (Last night a DJ saved my life campaign);
• The general public in response to Borough attraction activity and events.
• London Employer’s Employer Supported Programme - ESP (Currently 142); and
• MPS ESP (Currently 438).

12. The ESP programme involves the release of an employee for 16 hrs per month to undertake MSC duty. Employers engage with this programme as part of their corporate social responsibility, to uplift their workforces skill set and for staff development.

Assessment Process for MSC Officers

13. In order to meet the challenge associated with the MSC Growth Programme, TP in partnership with HR has developed a target strength for each borough and will seek to attract applications locally from London's communities. There will be robust monitoring of application rates and the standard of applicants which must be maintained at its current high level.

14. The assessment for all MSC applicants will be a competency based interview and written test conducted at Hendon. This will meet the requirements set out in the MSC regulations. The feasibility of combining all elements of the selection assessment into one day is being considered.

15. In July 2010, the MPS will look to adopt the NPIA model which comprises of an optional competency based questionnaire to test written skills and will form part of the application, a competency based interview, written exercise and a situational judgment questionnaire. This model has been operated by Hampshire. The MPS are exploring the NPIA’s EIA in relation to the situational judgment questionnaire as the demographic make up of Hampshire differs from London.

Deployment

16. All applicants are asked to nominate three BOCUs on which they would like to serve. On completion of their training and attestation individuals are then posted to one of their borough choices and deployed in line with local and individual needs. The majority will be posted on Safer Neighbourhood, town centres and response teams, working alongside uniform colleagues and deployed in response to the intelligence led decisions taken at the fortnightly tasking and coordination meeting. Opportunities exist for individuals to work on the Operational Support unit base in 3 geographical locations (Hendon, Havering and Sydenham) affording them the opportunity to develop their skills and policing experience, thereby enhancing retention rates.

MSC Retention/Morale

17. The MPS recognises that reducing the attrition rate for MSC officers is a challenge and key to the success of this step change growth programme. In order to support individual officers on boroughs, TP have dedicated two sergeants on each borough who have responsibility for the management and co-ordination of their MSC units. This provides individual MSC Officers with the feeling of value, ownership, and belonging. There is also a small retention team within the MSC OCU (TP) who work with boroughs and individuals to address ongoing and service wide issues as they are identified. This has lead to a reduction in wastage in the second half of 2009/10.

18. In June 2010, the MSC OCU will formally survey all MSC officers to seek views on the following issues: recruitment, training and deployment together with suggestions on how to improve the support offered to the MSC centrally and locally. This work is supported by the NPIA.

Estates and Accommodation

19. A challenging aspect of MSC growth is accommodation. Much of the MPS estate is at capacity and the additional locker space for new officers requires close work between TP and DoR. This process has begun with the identification of current accommodation shortfalls and requirements for the number of officers on each borough by 2012. A sub- group of the Strategic Programme Board has been established to develop an accommodation model which meets the needs of the MSC, the boroughs and the MPS taking account of the ongoing work within the TP Development Programme.

Governance of the MSC Step Change Project

20. The MSC Step Change project is managed through a Strategic Programme Board chaired by the ACPO lead for Neighbourhood Policing. The Board includes members of relevant MPS Business Groups, NPIA and the MPA. The Director of Human Resources leads on recruitment and training issues.

Proposed New Model of Police Officer Recruitment and Selection

21. The proposed model recognises the professionalism of the MSC and utilises the academic and experiential learning acquired prior to appointment as a regular officer. In addition to working as an MSC officer the regular applicant would have to successfully complete an accredited learning qualification in policing and law. Currently, there is an aspiration that the MSC will become the principle pathway to becoming a police officer with a smaller number entering through the PCSO and other target groups routes though operational and budgetary factors may influence the scope of the proposed change over time.

22. The benefits of the new model will include no or reduced training lead-in time and associated salary cost for new recruits. Recruits will have been tested in the workplace and it will assist in the delivery of the Mayoral and service objective of increased MSC numbers.

New entry routes to become a regular police constable

23. These new entry routes place additional eligibility criteria on future prospective police officer applicants compared to that set out in Regulation 10 of Police Regulations. Police Regulations may need to be amended to accommodate this model. This has been referred to Peter Neyroud, Chief Executive NPIA to secure the necessary mandate.

24. Subject to securing the required amendment to Police Regulations that may fall due or mandate from the NPIA that this model is within the provision of the current regulations, this new model will draw police officer recruits from three routes - MSC, PCSO and other target groups (e.g. graduates, excluded professions and carers).

25. All recruitment activity will be limited to discrete, time-limited processes and will be based upon the budgeted deployment plan for the financial year and as a result a waiting list will not be maintained.

26. Any individual satisfying the new eligibility criteria may apply only when there is an active recruitment campaign and will be required to meet the National Recruiting Standards.

Training and recruitment infrastructure

27. The current HR recruitment and training resources will be realigned to deliver the new model of MSC recruitment and training whilst maintaining flexibility. This approach will ensure that the programme will respond to any significant fluctuations in wastage rates, the offer proving less attractive than anticipated or overall programme slippage.

28. Savings may be identified in these areas in due course, particularly when the proposed new model of recruitment and training for police officers is embedded. In the 2010/11 financial year HR Recruitment will process circa 12000 MSC applications and subsequent selection assessment, whilst training school will train circa 2,800 MSC officers.

Ownership and governance of the new model of police officer recruitment and training

29. The governance of this programme will sit with The Director of Human Resources. There are many inter-dependencies with the Strategic MSC Programme Board which need to be synchronised.

Transition from old model to new

30. It is proposed that future entrants will come from one of three routes, those being MSC, PCSOs or other target groups. The latter will include graduates, members of excluded professions and others excluded by virtue of their personal circumstances (e.g. carers). The numbers of each will be set according to our business plan and the numbers eligible to apply through each route.

31. Recruits coming through the MSC route will generate circa £20k savings per appointment whilst those coming from PCSO and Target Groups generate savings of circa £12k per appointment. This recognises that under the MSC entry route no training is required upon appointment and 10 weeks training is required for PCSO/Target group appointments. In the interim it is proposed that during the financial year 2010/11 recruitment and training continues as planned, during which time the EIA will be completed and advice received from the NPIA on Regulation issues. This will mean that training will deliver the current IPLDP training and the new model of MSC training alongside each other.

32. If adopted, this new model of recruitment and training will be delivering the first new style recruits from 1 October 2011.

Managing the Current Police Officer Pool

33. HR has attracted police officers in line with the previous funded three-year deployment plan. At the end of the 2009/10 financial year there were around 2,000 applicants in the system mostly having concluded the selection stages though not yet offered a training place. Whilst new police officers continue to be recruited during the 2010/11 financial year, no further applications are presently being accepted.

34. HR Recruitment has written to all applicants in the pool and advised that the MPS is undertaking a review of the number of appointments in light of reduced attrition and the economic environment. Additionally, a dedicated handling team and help desk has been created to deal with individual enquiries and concerns.

35. If the proposed model is adopted, a handling strategy will be implemented to manage the expectations of all applicants in the current pool.

Benefits and Risks

36. The benefits of adopting this proposed new model of recruitment and training are as follows:

• Deployable officer strength during the transition to the new model is maintained broadly in line with the draft business plan
• There is limited impact upon funded posts and associated budgets
• Internal applicants supported
• Retention of the recruitment and training infrastructure allowing us to respond to increased attrition or should the new model prove unattractive
• Many of our new police officer recruits will be capable of independent single patrol on his/her starting date
• Salary cost savings through training are realised (circa £20k per MSC recruit and circa £12k all others)
• Model represents a positive opportunity for the MPS to lead the way setting a national agenda for modernisation.

37. The risks are:

• The pressure on Training School and TP of running the two schemes in tandem.
• The time needed to obtain changes to Regulation 10 of Police regulations or NPIA mandate to proceed.
• The potential adverse impact of this proposed new model on under-represented groups as identified in the EIA.
• The pressure on TP in relation to coached patrol and administering Independent Single Patrol Status under the supervision of Training School.

C. Race and equality impact

38. An extensive equalities impact assessment (EIA) is being undertaken in partnership with DCFD in regard to the new model of recruitment and training that is under consideration. A preliminary assessment revealed potential risks to diversity and equality within the following areas:

• access and participation within the MSC – risk of differential impacts upon different groups, particularly women and other people with caring responsibilities, some BME communities and poor communities
• access to pre-employment accredited learning – risk of differential impacts upon different groups, particularly women, other people with caring responsibilities, BME and other communities with limited economic capital
• MSC and pre-employment accredited learning as an employment prerequisite resulting in access and participation issues – risk of differential impacts upon different groups, particularly women, other people with caring responsibilities, BME and other communities with limited economic capital
• SEARCH assessment centre (i.e. NRS) used as a screening tool once MSC applicants have successfully completed the academic and vocational training – risk of differential impacts upon diversity, particularly BME communities and speakers of English as an additional language

39. The internal consultation commenced on 31 March 2010 and involved a wide range of participants, including staff associations and trade unions, MSC, borough/OCU commanders and NPIA. The results of the consultation are being evaluated and will be included within the EIA (a working copy is lodged within the members’ library). An external consultation is likely to commence following the general elections in May 2010.

40. The EIA has so far been a very valuable process and has enabled mitigation activities to be incorporated within the proposed model (e.g. risks around access to pre-employment accredited learning will be mitigated by the introduction of a bursary scheme). The EIA process has helped balance the legal duty to promote diversity and equality with financial planning and efficiency prerequisites.

41. It is anticipated that the excellent historical diversity within the MSC will map itself across to the regular police (, the applications received during the last quarter are very promising in terms of diversity and this will continue to be monitored). The EIA has identified several risks to diversity and equality. Therefore, effective and proven management information systems will be used to rigorously monitor application and attrition rates for MSC applicants across all diversity groups. The risk management process will also provide an effective mechanism to help mitigate the risks (e.g. through positive action, management interventions, etc.). The HR Recruitment Performance Board will regularly report to the Director of People Services and the MSC Programme Board.

D. Financial implications

42. In recent years, the MPS has recruited police officers in much greater numbers than is provided for in the current Business Plan. Recruitment has varied between 950 in 2007/08 and 2,000 in 2009/10 and reflected significant growth particularly in respect of CT, Safer Neighbourhoods and TOCU/Safer Transport growth.

43. The period of growth is now completed and the 2010-13 Budget and Business Plan reflects a significantly lower level of recruitment activity (i.e. circa 600 new students each year for 26 weeks each). Their salary cost during training is approximately £20k per officer. Moving to the new proposal will save up to a maximum of £20k per appointment (£12k per PCSO/Target Group appointments) provided they are appointed in line with their original IPLDP graduation date. In summary, their appointment must be synchronised to match what would have been their IPLDP graduation date thereby maximising the cost saving from reduced post-appointment training time.

44. Additional savings will accrue should attrition increase to previous levels. Savings would equally reduce if attrition rates continue to reduce.

45. The financial benefits of the proposals outlined in this paper are as follows:

• Any subsequent police officer appointments delivered through the new model (taking into account the fact that this is a 12 to 18 month programme) will represent a future saving in salary costs of circa £20k for each recruit who completes their training whilst an MSC officer and circa £12k for PCSOs/Target Group appointments with the provision that the appointment is in line with when an individual would have completed training and been deployed through the current IPLDP deployment plan. These savings are estimated at some £8.9m in 2011/12 and £12.1m in 2012/13 and will be built into the 2011-14 budget proposals.
• Proposed New model of training - this could generate further savings in the long term when introduced e.g. the training school will not be required in it’s current format. This could generate significant capital and revenue savings by alternative use (or sale) of some of the site. This would be subject to a separate review and assessment as part of the corporate real estate SIP programme.
• This proposal redirects all existing HR resources, which would have otherwise been focused on police officer recruitment to MSC training and recruitment. As a result, the cost of delivering the Mayoral and service priority to increase the MSC numbers will be reduced as a result of this new approach. A new business case is being prepared which reflects the redirection of HR resources and will be assessed against the growth approved as part of the 2010-13 budget process (2010/11 £3.006m; 2011/12 £8.433m; 2012/13 £6.827m).
• The savings set out within this paper are over and above existing THR savings.

46. The financial uncertainties / risks that remain unresolved require consideration before control measures can be developed and implemented to mitigate the risk are:

• impact on other SIP programmes, including MSC Growth programme, training, recruitment and corporate real estate
• need for a change to Regulation 10 of the Police Regulations and impact upon timescales.

E. Legal implications

47. Legal advice, including advice from Counsel, indicates that an amendment to Regulation 10 of Police Regulations 2003 is required to lawfully enact the new model restricting eligibility for recruitment as a regular constable to candidates who are either MSC, PCSO’s or DDO’s or graduates. This is because it introduces additional entry requirements for the appointment as a regular constable.

48. The eligibility to become a special constable is restricted by the provisions of NPIA Circular 07/1. This sets out a number of occupations which make a candidate ineligible to become a special constable, for instance where there is potentially a conflict between their main occupation and the role of a special e.g. Members of the armed forces, traffic wardens, School crossing patrols and parking attendants, neighbourhood, street wardens, and other uniformed patrol wardens, Highways Agency traffic officers, those involved in the administration of the law, members of police authorities, clerks to justices, court clerks etc. As a consequence these categories of candidates cannot be appointed as MSC and this therefore further reduces the potential pool of candidates eligible to apply as regular constables. (Potentially address through the Other Target Groups entry route)

49. Regulation 12 of the Police Regulations 2003, which provides that a police officer shall be on probation for the first two years of their service, does not allow any reduction to this to take account of service as a special constable.

50. There may be further consequential amendments required to the Police Regulations due to the incompatibility of this proposal with the existing provisions. For instance officers recruited by other forces will not be restricted to the above three categories of candidates, hence on an application to transfer to the MPS, they will essentially be in a distinct and more favourable position than candidates recruited direct by the MPS.

51. Equality issues may arise giving rise to a risk of indirect discrimination claims if some groups of candidates are less able to comply with the ‘provision, criterion or practice’ of the new additional eligibility criteria. For example, females with child care commitments may experience difficulty in undertaking the study course and achieving the minimum patrol hours as a special constable, particularly as they will be pursuing these activities as a volunteer and potentially in addition to any regular employment.

52. An Equalities Impact Assessment will be required in order to establish the potential impact this approach may have on all groups and what positive action initiatives may be adopted to mitigate any adverse impact.

53. The Working Time Regulations 1998 ‘WTR’ will apply to the time occupied by the special constable whilst on patrol and attending various training courses. If as a consequence of combining this with the hours spent in any regular employment, the MSC’s total average weekly working hours exceed 48 hours over a reference period of 17 weeks, the MPS will need to ensure that the special constable signs the opt out which is provided for via Regulation 5 of the WTR.

54. The MPS is unlikely to be susceptible to any successful legal challenge of misrepresentation, negligence or breach of contract, from members of the current pool for recruitment as police officers as a consequence of the new procedures. This is on the premise that no legally binding offer of appointment or the commencement of training has been made.

F. Background papers

None

G. Contact details

Report authors: Chief Superintendent George Clarke (HR), MPS

For information contact:

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

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