MPS language programme

Report: 6
Date: 10 February 2011
By: A/Director of Logistical Services on behalf of the Commissioner

Summary

On 18 June 2009, the Finance and Resources Committee noted the decision of the Metropolitan Police Service to put in place an integrated Language Programme solution and agreed £5.6m capital investments to support the Programme.

This report provides members with an update from the EDSC which sat on 22 April 2010, specifically covering the implementation of the programme and on the following equality and diversity actions raised at the meeting:

• What community engagement will the MPS Languages Programme undertake to ensure the services it provides are informed by those that will use them? (refer to section B18-20)
• What further information can be provided on how staff will be used as interpreters? How will the concerns around impartiality be addressed if internal staff are enlisted in this way? If staff are providing interpretation services in addition to their normal responsibilities what structures are in place to compensate them for their time? (refer to section B15-16)
• The Languages Programme is requested to provide a written update on the progress of its Equality Impact Assessment (EIA) to the next meeting of the Equality Diversity Sub-Committee. (refer to section C1 and appendices)

A. Recommendation

That

1. Members are requested to note the progress made to date on the MPS Language Programme.

B. Supporting information

The description and scope of the programme.

1. It is anticipated that the population of London will have grown by 750,000 people to a figure of 8.1m by 2016. This continuous growth in population along with the growth of distinct communities in London and the requirement for an ever-increasing number of languages has produced pressure on operational policing effectiveness.

2. London now has over 300 languages spoken within the capital with at least 50 distinct communities of over 10,000 people. Provision of Languages for the MPS is effected mainly by using 413 individual Contractors covering around 100 different languages on the MPS own call out list and by accessing in times of demand, the National Register of Public Service Interpreters.

3. Research conducted since 2005 has shown that even with these resources, there is a gap in service provision with considerable delays experienced and in some cases, significant risk as a direct result. In short, the system of language provision in the MPS was no longer fit for purpose.

4. As a result the Language Programme integrated solution was created to overhaul and introduce changes to existing linguistic support Services. These changes are aimed at improving efficiency and will make use of technology to support the system. The integrated solution has a number of distinct elements which are aimed at providing speedier access to interpreters and making more efficient use of MPS resources.

5. Specifically the core strands of the MPS Language Programme are:

• The introduction of an Interpreter Deployment Team to manage demand.
• The installation of a video conferencing platform to ensure greater access to linguists.
• The creation of a scheduling CRM software application
• The creation of language skills training programme to enhance skills of our own staff and to accredit those skills.
• The development of initial contact software to assist in language identification.

6. Demand will be properly monitored on a 24/7 basis and resources allocated to each task according to its complexity. The MPS will make better use of its own resources giving staff with linguistic skill appropriate tasks to perform. Software will be used to schedule resources thereby enabling the MPS to understand what resources are actually available.

7. The MPS language programme has been in place for the past 18 months and is some way down the path of implementation. Changes already undertaken are bearing fruit in terms of both efficiency and cost savings. Specific updates are as follows:

Interpreter Deployment Team

8. Language and Cultural Services has successfully delivered all four phases of the implementation to what is now entitled the Interpreter Deployment Team (IDT). This service has been introduced to replace the old list system which was in place for the previous 40+ years. The service intervenes directly in the calling of interpreters selecting those most appropriate for the task in terms of skills and geographic location. Instead of officers calling interpreters from the list, they are now deployed directly from the IDT from all 33 boroughs and specialist units. The IDT is open 24/7 365 days a year.

9. Accessibility to linguistic support has been significantly enhanced. Front line policing staff will be informed of the identity and time of arrival of an interpreter to an assignment within an hour 93% of the time and more significantly 85% of cases within half an hour, their only requirement is to make one single call to the IDT.

Video Conferencing Platform

10. Video conferencing is being introduced in order to speed access to linguistic support for front line policing and for the benefit of the citizens of London. At this moment the MPS currently spends 33% of its total interpreter spend to enable interpreters to travel to and from assignments. On today’s spend figures we spend circa £2m pa on travel. In line with the business case it is envisaged that travelling will be reduced to 13% of the total spend by the introduction of the video conferencing platform.

11. The pilot stage of the video conferencing rollout which is intended to test both the benefits from a reduction in travel requirement for interpreters and the special requirements which will be necessary in order for interpreters to use the medium of video conferencing has been delayed. This delay has been caused by technical infrastructure difficulties and the capacity of the equipment to conform to the MPS security code. These difficulties will not adversely effect the full implementation.

12. It is intended that the majority of MPS sites will be will be video conferencing enabled by the original date of April 2011. Some more complex installations will be delayed until June 2011 to enable the programme to take advantage of the Real Time Communications project inline with DOI strategy.

13. Locations for interpreter Hub sites are still being finalised with Hammersmith, Holborn, Sydenham and the Isle of Dogs under consideration.

14. Interpreters are being trained in a rolling programme on the use of the video conferencing equipment. This training is being conducted by a recognised authority in the field of interpreting via video conferencing from Surrey University. The training involves not only technical understanding in the use of the equipment but also cultural and behavioural aspects.

Specialist Deployments (CCRU)

15. The MPS has no plans to use staff as interpreters. Interpreters will continue to be used for tasks within the Criminal Justice system such as interviewing detainees, witnesses and victims.

16. It is the intention of the programme to create a two tier system for the more effective use of MPS ‘own staff’. Currently there is a centrally held database of officers and staff who deal with serious crime, terrorism and other critical incidents. The enhanced system will assist boroughs to create their own databases of staff with linguistic skills in order that they may perform more routine but equally important tasks locally.

17. Camden, Harrow and Brent boroughs have already created databases and Specialist Deployments staff are providing them with spreadsheets on which to do so. This interim measure is necessary whilst software is procured and developed to support the programme.

18. During 2010 ‘own staff’ were used to assist with linguistic operational tasks on 508 occasions as represented in figure 1 below. The deployments were related to Community Engagement, Cultural Awareness, crime investigation, Covert assignments, Witness and Victim support.

Figure 1: Own staff operational tasks

19. The programme is improving linguistic support services for all communities. A suite of services provided through the interpreter deployment team and specialist deployments team provide enhanced support for citizens of London, performance levels of this service are detailed in section C6. The specialist deployments team which aims to introduce specialisms into non criminal justice tasks has performed far more effectively over recent months and as a result deployment rates have doubled, recent examples of own staff usage include:

Unidentified body - Brent Community

19.1 In August 2010 an unidentified male was found with a head injury. He was taken to Royal Free Hospital and died 4 days later. A media appeal was undertaken because he had no identification on him. There was no response until 10 days later when a female from the US contacted police suggesting it could be her brother.

The victim was a Philipino illegal immigrant and there was a reluctance to talk to police within the community. The OIC contacted the Specialist Deployments team. Assistance was requested for an appropriate volunteer to liaise with family members and friends of the deceased, and to plan a community event. Our PCSO volunteer was contacted, made himself available and was deployed

On completion of the deployment the following email was received:

Hello

I just wanted to express thanks on behalf of QK ('m sure it will come from elsewhere as well) for R's deployment and give some feedback having never used specialist deployments before.
The deployment was extremely easy to arrange - I was offered various people and the team were able to answer any questions that I had quickly and accurately. It was arranged in a very short space of time and they matched the right person to the job.

In relation to R, although it was a short lived attachment, he was instrumental in gaining the trust of a key witness before an interview. I genuinely don’t think that we would have had the success we did without R being there. The information from this interview has led to the case being taken over by SCD1 and a positive arrest and charge for murder. From the moment we met him on the Thursday morning, he was enthusiastic and eager to assist. He had to work an extended shift and never once complained. He understood his role and was a great source of information throughout the day.
This case really demonstrates how valuable it is to be able to utilise staff with specialist knowledge and skills.

Thanks again

Barking and Dagenham - Request for BSL

19.2 The Crime Squad intended to execute a search warrant, following intelligence that drug dealing was being conducted from the premises. The subject lived with both his parents and intelligence suggested they were both deaf.

On receipt of the request a volunteer, fluent in British Sign Language (BSL), was identified and able to assist. He liaised with the requestor and was present when the warrant was executed. Following the deployment an email of thanks was received which stated that our volunteers’ presence was essential to effective communication and enabled the search to be conducted efficiently and effectively.

Joint MPS / West Midlands - CT operation

19.3 Initial contact was received out of hours from West Midlands CTU on 2nd December 2010. The request was for a Sylheti speaking officer to attend West Midland CTU first thing the next morning in relation to an ongoing covert operation. The officer would required to be in a covert monitoring post to provide the investigating team with live interpretation of material and, due to the sensitivity of the operation, a specific level of vetting was required. A suitable volunteer was identified, briefed and deployed.

Further to the initial deployment, a request was received on 14th December 2010 to deploy a Sylheti speaking officer to assist with the arrest phase of the same operation.
On 7th January 2011 another request was received from West Midland CTU to assist by providing 2 Sylheti speaking officers to assess documentation seized during the operation. This deployment is on-going.

Serious Assault Enquiry - Faith / Cultural

19.4 On 11th January 2011 a request was received for a volunteer of Bengali origin, who was Muslim with knowledge of religious exorcism within that faith. The requesting officer was investigating an allegation where the victim has been seriously injured during a Bangladeshi Exorcism. The victim has been repeatedly beaten with a stick over a period of approximately 9 hours by family members and an Imam (priest). The family have indicated that they believed the victim to be possessed by the devil and the exorcism was an attempt to rid the victim of evil spirits. It is believed the victim may be suffering from some form of mental illness, which is probably why the family believed she was possessed. As the families beliefs are deeply ingrained and a Muslim Imam will be arrested when identified, a Muslim officer with some knowledge of Bangladeshi exorcism was requested.

Due to the extremely sensitive nature of this task an officer, who had assisted with numerous other cases, was identified and deployed to assist.

20. Whilst the programme is working in conjunction with the Diversity and Citizen Focus Directorate to utilise the corporate MPS diversity strategy which runs to 2013 it is recognised that proper measurement is required, therefore, the programme intends to adopt a "quality call back" process, that will seek direct comment from those Community members who have been engaged with members of Own staff through the Specialist Deployments team".

Language Training

21. Since the previous report Language and Cultural Services (LCS) has rolled out a level one programme of training in 17 different operationally based languages.

22. The course is based upon a Rosetta Stone online learning programme which is supplemented by tutorials and a short course on conclusion. Candidates are assessed on an ongoing basis and receive accreditation.

23. LCS has provided 350 courses to date, the courses - which are only provided for officers and staff with operational requirements, mainly Safer Neighbourhood Teams - consist of 150 hours self study; therefore, there is no abstraction to the officer’s time. The qualifications obtained are seen as career based development and it is not planned to provide any remuneration. There has been an exceptional response to the offer of courses from the MPS work force.

24. LCS are still in discussions with the Institute of Linguists regarding the creation of Levels two and three bespoke language training packages and procurement will commence shortly.

25. MPS ‘own staff’ will only be used for tasks which do not require skilled criminal justice based interpreters. LCS will comply fully with the requirements of both the European Convention on Human Rights (ECHR) and the Police and Criminal Evidence Act (PACE).

Liaison

26. Following extensive discussions with the Law Society, a vulnerability criteria has been drawn up on the use of video conferencing. A business case has been prepared for the Ministry of Justice in order that emendations can be made to the codes of practice to facilitate interpreter enabled interviews through the medium video conferencing. Until such time as this secondary legislation is changed consent will be gained from detainees, witnesses and victims.

How the programme is delivering against the aims outlined above to meet the needs of communities across London

27. The programme is built on the premise that an appropriate and professional interpreting service upholds both the defendant and the victim's ECHR rights. By speeding up access to linguistic support the programme is benefiting the communities of London who are receiving an improved service. Speedier access also means custody waiting times are reduced.

28. By ensuring that interpreters are only used for tasks which befits their level of qualification and that they spend less amount of time on each assignment, availability of interpreters is enhanced.

29. An improved mechanism for delivering effective linguistic support provides early intervention for victim’s enabling speedier access to the Criminal Justice System, whilst maximising the potential for successful conviction of the perpetrator.

C. Other organisational & community implications

Equality and Diversity Impact

1. The Language Programme will have significant impact upon the citizens of London. It will increase productivity in language delivery and enable front line officers to built trust in communities by enhancing lines of communication. The changes that have been / will be implemented have and will produce a more professional and effective delivery of linguistic support. Individual Equality Impact Assessments (EIA’S) have been completed for each of the following areas of business, Specialist Deployments (Own Staff, Interpreters Deployment Team (IDT) and Video Conferencing). The purpose of such a detailed study is to recognise the potential for, and mitigate against any adverse impact, and conversely where relevant highlight the positive impact on equality. Each of the following areas has been assessed using these criteria, Race, Faith, Gender, Age, Sexual Orientation and Disability. Please see appendix 1 for the detailed EIA’s.

British Sign Language (BSL)

2. The Language Programme has reviewed in particular the arrangements for supporting the deaf community through the use of BSL. This language appears within the top four most difficult to service across the MPS on a weekly basis.

3. Language and Cultural Services has created a working group specifically to plan changes to the way the BSL community are supported. The changes will be as follows:

• Advertisements are being prepared to increase the number of BSL interpreters on the internal Met list, including other variations of sign language such as “Lip speakers”.
• The review and refresh of the Specialist Deployments database, coupled with an internal marketing and development campaign has realised a 37% increase in the number of staff with BSL skills registered.
• The creation of a strategy for the better utilisation of MPS staff with BSL skills is underway. This has involved consultation and briefing of the Deaf staff association on technological developments with Video Conferencing (VC). This advance will allow Deaf staff members to utilise their BSL skills across the MPS VC network to assist hearing and Deaf colleagues, and provide effective support and reassurance for Deaf victims and witnesses.
• Research has been conducted into a variety of options available to LCS to provide courses in BSL skills.
• An initial contact solution which is being procured as the final strand of the programme will be developed to incorporate BSL.

4. In order to ensure that the changes are effectively communicated to the deaf community Language and Cultural Services is conducting a consultation programme within the deaf community and with existing BSL interpreters. - Consultation is ongoing with key stakeholders and any issues relating to adverse impact are being addressed by modifying the service provided. However we are not complacent and understand that the service needs to be responsive to ever changing communities of London. Further consultation is planned with community groups and stakeholders as the initiative gains momentum. (Deaf staff Association, Acton Deaf Group, National Safeguarding Deaf Children, NSPCC and Deaf safe).

5. The programme will seek own staff that may be skilled in international sign language variations. However, it is unlikely that within the MPS staffing pool there are a significant number of individuals that possess these rare skills. In these circumstances we would default to our official list to service “rare language” requests, with an option to out source if required.

Consideration of MET Forward

6 The Language Programme Met Forward implications are as follows:

• In regard to fighting crime and reduce criminality the Language Programme is delivering a faster response to the demand for the provision of linguistic support which is enabling a better service for witnesses and victims of crime.
• The Language Programme is increasing public confidence by introducing language skills to front line operational staff which assists them to communicate more effectively with the communities they police. The language skills training programme is aimed at all front line staff from the basic unit of policing in safer neighbourhood teams through to complex investigations in serious crime and terrorism.
• The Language Programme is about increasing levels of effectiveness in the supply of linguistic support. More effective management of the services has reduced overall spend additionally performance has increased with 85% of all assignments being allocated to an interpreter within 30mins and 93% within 60mins. By way of demonstration a recent customer satisfaction survey for the period October 2010 - December 2010 produced a 98% satisfaction rate from users of the service.

Financial Implications

7. This is a Service Improvement Plan project and is supported by £5.6m investment from the Service Improvement Fund as a revenue contribution to outlay.

8. As set out in the original Business Case a capital budget of £5.6m was agreed for this programme at the Finance and Resources Committee on 18th June 2009. This investment will avoid additional future volume/demand driven costs of £17.5m between 2009/10 and 2012/13.

9. The Language Programme has delivered language and cultural services within the £10m budget allocated for the 2009/10 financial year. This is the first year that the budget has remained within the allocated budget and not overspent since 2003. It is anticipated for the financial year 2011/12 and going forward through 2010/13 the £17.5m savings as detailed in the business case will be achieved.

10. It is anticipated that of the £5.6m capital expenditure, £2.0m will be spent in 2010/11 and the remaining £3.6m in 2011/12.

Legal Implications

11. There are no direct legal implications arising from this report, as the report is for information only.

12. The purchase of CRM software, Initial Contact software and Language Training Levels two and three will need to be conduced in accordance with the Public Contract Regulations 2006 and the MPA Standing Orders (Contract Regulations).

Environmental Implications

13. Language Programme environmental implications are as follows:

• Higher: Level of energy use and associated carbon dioxide emissions.

The project will require a significant amount of video conferencing equipment that will require electricity for direct power and additional communication architecture. The energy demand will be quantified during design/ planning stage and the most energy efficient, cost effective equipment will be specified.

• Higher: Level of waste generation/waste requiring disposal.

Equipment will require disposal once it becomes obsolete. The contract will include clauses for reuse, recycling and disposal in line with WEEE directive requirements

• Lower: Level of travel and transport and associated emissions

There will be a significant reduction in business travel requirements for all users of the video conferencing platform. The reduction in travel time is the key driver behind this project.

• No Impact: Level of water consumption
• No Impact: Raw material use and finite resources (use of recycled materials and sustainable alternatives)

Risk Implications

14 As a result of the implementation of the Interpreter Deployment Team, Language and Cultural Services has become much better informed regarding both the deployment and performance of interpreters acting on behalf of the MPS. A number of weaknesses have been identified and 14 point plan to address them put in place. Language and Cultural Services is working with the MPA internal audit team to mitigate any issues relating to standards and finance.

D. Background papers

Appendix 1-3 - Equalities Impact Assessment Forms (Form 6119A)

• EIA - Interpreters Deployment Team
• EIA - Own Staff
• EIA - Video Conferencing

E. Contact details

Report author: Michael Brooker, Director of Language and Cultural Services and John Carey, Deputy Director of Language and Cultural Services, MPS

For information contact:

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

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