Community Support Officers

Report: 09b
Date: 25 April 2002
By: Commissioner

Summary

This report has been prepared following discussion at the last Metropolitan Police Authority meeting. It seeks to set out details of how the proposal to introduce a scheme in London to recruit and deploy a direct labour force of community support officers might be achieved.

A. Recommendations

Members are asked to note the contents of this report and endorse the proposed introduction of Community Support Officers.

B. Supporting information

Introduction

1. The purpose of this paper is to outline proposals for the introduction of Community Support Officers (CSOs) into the Metropolitan Police Service. [1] The paper is divided into two sections. The first outlines our interpretation of a concept that is still in the process of development. The second articulates the strategy that will guide the process of implementation commencing with the deployment of CSOs in a security role in central London.

2. It is important to emphasise that this programme of work does not imply substantial direct costs to the authority. The funding of CSOs for security duties should emerge from central government funding for counter-terrorism; for the Transport OCU from Transport for London; for community CSOs from Local Strategic Partnerships and other centrally provided funds.

3. This paper has been particularly difficult to write because the kind of detail that members wish to see is affected both by the ongoing parliamentary debate and from the detailed negotiations and discussions that accompany such an innovation as this.

4. Members should note that the Authority meeting coincides with the 3rd reading in the House of Lords of the Police Reform Bill (delayed as a result of the cessation of Parliamentary business because of the funeral of H.M. The Queen Mother). It is extremely likely that there will be media coverage of the CSO issue in the run up to and on the day of the Authority Meeting.

Community Support Officers for London

5. The Metropolitan Police Service intends to introduce Community Support Officers in London as proposed in the Government White Paper, 'Policing a New Century.' This enables chief officers to appoint support staff to provide a presence in the community with sufficient powers to deal with minor issues.

6. The introduction of empowered Community Support Officers that are both employed and directed by the Metropolitan Police Service brings with it distinct benefits.

• Benefits to the Community CSOs are central to the mission of the Metropolitan Police Service. They will enhance the street visibility necessary to make London safer and to deliver the reassurance necessary to reduce the fear of crime. Combined with the police patrol strength they will provide the critical mass necessary to prevent street crime and tackle the quality of life issues that are so important to our communities' well being.
  • Responsive to local need and reflecting the diversity of the local community, CSOs will provide a recognisable and knowledgeable local presence capable of building public confidence.
  • Being controlled by the police, standards will be assured and accountability clear.
• Benefits to the police service Police control will mean that CSOs will be directed and led by intelligence. This will target deployment and release officers to engage in those activities where their full range of powers, experience and capability can be most effectively deployed.
  • CSOs will become a resource available to police officers who can use them to solve problems and retain visibility. This will provide a mechanism with which to break out of the reactive spiral of demand that emasculates the effectiveness of our service. In short, Community Support Officers will both enhance the status of our constables and improve our service.
  • CSOs will be deployed in way that makes them flexible and responsive to needs – important components in delivering best value. Employment as a CSO will also provide a gateway to a career as a police officer and therefore act as a valuable method of building diversity within our workforce.

7. These benefits differentiate CSOs from community wardens, street wardens and the increasingly complex array of providers that make up the 'extended police family.' One over-riding benefit of the proposed CSOs is to bring some conformity to a situation that is beginning to emerge where the jurisdictions of wardens overlap and powers and roles vary. This confuses many - especially the public – and potentially undermines the benefits of an overall increase in capability. Having a community support infrastructure quality assured by police means that communities wishing to 'purchase' additional patrols have an underwritten source of supply. Whilst some may question the ethics of some communities being able to purchase additional services in this way, a potent free market now exists that will be serviced from private sources if the police do not meet this need.

8. CSOs will be deployed in three roles:

• Central London security patrols – detailed in Appendix 3
• On London's bus routes working alongside Transport for London
• In specific community roles.

In time these roles may expand. However, they will exhibit common elements in each case. They are:

• Visible
• Community focussed – preventing crime and fear of crime
• Part of the police team; and
• Underpinned by a need to exercise some form of powers.

Schedule 4 to the Police Reform Bill if enacted as currently drafted would enable the Commissioner to designate powers up to and including a power of detention pending the arrival of a police officer. The ability to enforce their role in the community denotes a vital distinction between a community support officer and other forms of warden.

9. Details of how the CSO role will develop as a fully specified job are still being worked out but some principles have been established:

• Appearance will provide a close visual association with the police service.
• Competencies – these are set out in Appendix 2 – and reflect current role requirements.
• Supervision – it is intended to introduce a supervisory level into the auxiliary structure but no additional layers of management – CSOs will be integrated into police structures with the recognition that the support infrastructure may have to be enhanced as a consequence – in particular the provision of personnel support.
• Supervision – it is intended to introduce a supervisory level into the auxiliary structure but no additional layers of management – CSOs will be integrated into police structures with the recognition that the support infrastructure may have to be enhanced as a consequence – in particular the provision of personnel support.
• Training – will be modular, comprising a core and role-specific elements. Capacity at Peel Centre is such that an alternative vehicle for the delivery of training is being sought. Keeping training role-specific is vital in maintaining a control over cost; workplace provision will also be essential in doing so. The training and design team is also working on proposals to accredit the course enabling CSOs to work towards achieving a professional qualification i.e. NVQ2.
• Career pathways and development – in order to retain and develop staff CSOs will be able to transfer between roles, apply for civil staff posts and to become a police officer with a fast-track means of access.

10. The salary for a CSO will vary according to role. It is likely that the security and transport CSO will be placed in the same band as traffic wardens:-

• £14,593 - £17,110
• £2,556 Inner London weighting allowance
• £1,359 Outer London weighting allowance
• 12.5%; 15.5% or 20% shift disturbance allowance

For auxiliaries performing a security role in central London they will be required to work a 24/7 roster which would attract premium rates of pay at the weekends. A CSO at Westminster could be earning in the region of £20,067.

11. An estimate of the comparative unit-costs of employing a police officer as opposed to a Community Support Officer are set out in the table below

Estimate based on Ready Reckoner average costs

The salaries for community and neighbourhood wardens vary nationally between £14,000 - £28,000.

12. The cost saving that arises from employing CSOs arises through reduced on-costs – training, pension provision etc- however, the overall costs of a CSO is will be dependent on turnover and retention.

13. This financial advantage provides the possibility that Community Support Officers can be deployed in sufficient numbers as to provide a critical mass in specified areas, they will make a tangible difference to the visible presence of the police on the streets and the sense of safety amongst our communities.

Implementation strategy

14. CSOs will be an additional resource to the police establishment. Dedicated funding streams will be sought that will meet the full cost of introducing CSOs.

15. It is anticipated that central government anti-terrorist funding will provide for the recruitment of up to 300 CSOs and all associated expenditure for a period of three years – a detailed cost profile is set out in Appendix 1 (see Supporting material). Similarly, negotiations with Transport for London provide discrete funding for the introduction of CSOs into the transport OCU. At present no funding has been identified for CSOs in a community role however local Strategic Partnerships have expressed some interest in funding CSOs recruited and trained by the MPS. Such an arrangement would bring with it the added advantage of creating some conformity to the provision of street patrol.

16. September 11th has been selected as a target date for introduction CSOs. The date is a reminder of the profound changes in the demand placed upon the police service and recognition of the need to respond differently. CSOs are a resource that will equip the Met to meet the needs of the 21st century.

17. A timetable leading to the introduction of transport and security CSOs is set out below.

This timescale is ambitious and runs in advance of the enabling legislation – this reflects our confidence in the operational and business case for CSOs and the imperative to provide an effective security infrastructure whilst releasing some police officers to tackle street crime.

18. The environment surrounding the introduction of CSOs is constantly changing – not least because of uncertainty over the enabling legislation. It is also complex to integrate CSOs effectively into the working of the MPS. Managing such change demands the rigour of programme management. The proposed structure is set out below.

19. Consultation is a key part of this process. The Authority is represented on both the Programme Board and the Security Project Board. A number of workshops have already taken place so that members can shape the development of the programme. Engaging the support of both the police staff associations and civil staff trades unions is recognised as being central to the success of this work.

Conclusion

20. The introduction of Community Support Officers provides an opportunity for the Metropolitan Police Service to make London the safest capital city in the world. It provides a mechanism to deliver reassurance through a visible street presence and to tackle the quality of life issues that influence public perceptions and well being.

C. Financial implications

The financial implications are attached at Appendix 1 (see Supporting material).

D. Background papers

None.

E. Contact details

Report author: Richard Bryan, Commander, MPS.

For information contact:

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

Appendix 2: Role profile - Community Support Officer (security role)

Activities

The role holder should effectively deliver these key requirements:

Core responsibility: Patrol

• Conducts patrol
  Conduct high visibility uniformed patrol responding to calls and requests for assistance, countering terrorist activity, criminal activity, public disorder and minimising risks to public safety.

Core responsibility: Incident Management

• Provides initial response to incidents
  Respond promptly and assist police to take control of the incident by providing appropriate support.

Core responsibility: Investigation

• Provides care for victims and witnesses
  Ensure that the necessary care for victims and witnesses is provided, in an ethical and empathic manner and in accordance with the legislation, policies and procedures.
• Manages initial scene preservation
  Supports police officers at the scene and act promptly to preserve it.
• Searches persons
  Search person(s) in accordance with the relevant legislation, policy, procedures, whilst respecting the dignity of the individual and being aware of the possible impact on the community.
• Searches premises, vehicles and land
  Conduct search procedures, using the best practice techniques in accordance with the relevant legislation and policy, whilst having regard for the health, safety and Human Rights.

Core responsibility: Custody and Prosecution

• Gives evidence in court
  Attend court and give evidence in accordance with legislation.

Core responsibility: Community Safety

• Provides a Service response recognising the needs of all communities
  Support police officers in building and maintaining community relations by providing a service that is responsive to the needs of all communities, and by ensuring that those affected by crime receive a fair and anti-discriminatory service.
• Participates in operations
  Participate in police and agency - led operations, working within appropriate authority limits and carrying out tasks necessary for the successful implementation of the operation whilst acting in accordance with legislation and procedure.

Core responsibility: Intelligence

• Makes use of information and intelligence
  Ensure that information and intelligence is used ethically and in accordance with the relevant legislation, policy, protocols and codes and practice.

Core responsibility: People

• Maintains standards of professional practice
  Ensure your behaviour complies with Service values and organise your own work effectively to meet the demands of your role. Identify, implement and monitor development activities to enhance your own performance.
• Promotes equality, diversity and Human Rights in working practices
  Promote equality, diversity and Human Rights in working practices by developing and maintaining positive working relationships, ensuring that colleagues are treated fairly and contributing to developing equality of opportunity in working practices.
• Complies with Health and Safety legislation
  Ensure that you show a duty of care and take appropriate action to comply with health and safety requirements at all times.
• Works as part of a team
  Work co-operatively with team members and colleagues, contributing positively and constructively to the achievement of team and Service goals.
• Provides first aid
  Identify the nature of illness or injury and provide the necessary first aid treatment in accordance with approved procedures.

Core responsibility: Resources

• Makes best use of technology
  Make best use of technology in support of your role, ensuring correct operation and compliance with Service and legal requirements.

Core responsibility: Processes

• Completes administration procedures
  Ensure that all matters relating to the process of information are carried out in a prompt, efficient manner and in accordance with legislation, policy and procedure.
• Drives police vehicles Drive a police vehicle safely with consideration for others in accordance with Service policy and in line with the system of car control.

Behavioural Competencies

Teamworking (C) (Essential)

Develops strong working relationships inside and outside the team to achieve common goals. Breaks down barriers between groups and involves others in discussions and decisions.

Works effectively as a team member and helps build relationships within it. Actively helps and supports others to achieve team goals.

• Understands own role in a team.
• Actively takes part in team tasks in the workplace.
• Is open and approachable.
• Makes time to get to know people.
• Co-operates with and supports others.
• Offers to help other people.
• Asks for and accepts help when needed.
• Develops mutual trust and confidence in others.
• Willingly takes on unpopular or routine tasks.
• Contributes to team objectives no matter what the direct personal benefit may be.
• Acknowledges that there is often a need to be a member of more than one team.

Negative indicators

• Does not volunteer to help other team members.
• Is only interested in taking part in high-profile and interesting activities.
• Takes credit for successes without recognising the contribution of others.
• Works to own agenda rather than contributing to team performance.
• Allows small exclusive groups of people to develop.
• Plays one person off against another.
• Restricts and controls what information is shared.
• Does not let people say what they think.
• Does not offer advice or get advice from others.
• Does not discourage conflict within the organisation.

Community and customer focus (C) (Essential)

Focuses on the customer and provides a high-quality service that is tailored to meet their individual needs. Understands the community that is served and shows an active commitment to policing a diverse society.

Provides a high level of service to customers. Maintains contact with customers, works out what they need and responds to them. Is aware of issues of diversity, and understands and is sensitive to cultural and racial differences.

•  Presents an appropriate image to the public and other organisations.
• Acknowledges and understands a broad range of social and cultural customs and beliefs.
• Supports strategies that aim to build an organisation that reflects the community it serves.
• Understands what offends people and changes actions appropriately.
• Focuses on the customer in all activities.
• Tries to sort out customers' problems as quickly as possible.
• Apologises for mistakes and sorts them out as quickly as possible.
• Responds quickly to customer requests.
• Makes sure that customers are satisfied with the service they receive.
• Manages customer expectations.
• Keeps customers updated on progress.
• Balances customer needs with organisational needs.

Negative indicators

• Is not customer-focused - does not consider individual needs.
• Does not tell customers what is going on.
• Presents an unprofessional image to customers.
• Only sees a situation from their own view, not from the customer's view.
• Shows little interest in the customer – only deals with their immediate problem.
• Does not respond to the needs of the local community.
• Focuses on organisational issues rather than customer needs.
• Does not make the most of opportunities to talk to people in the community.
• Has little understanding of the cultural or religious beliefs of different cultures.
• Is unsympathetic to the differences in social and cultural customs and beliefs.
• Shows little consideration for diversity issues.

Effective communication (C) (Very important)

Communicates effectively, both verbally and in writing. Uses listening and questioning techniques to make sure that they and others understand what is going on and can effectively transfer ideas and information.

Speaks clearly and concisely, and does not use jargon. Writes in plain English and uses correct grammar. Listens carefully to understand.

• Makes sure all written and spoken communication is concise and well structured.
• Communicates information in a friendly and approachable style.
• Uses appropriate language and does not use jargon.
• Makes sure communication has a clear purpose.
• Makes sure communication is factual and accurate, and provided at the right time.
• Communicates information in an interesting way.
• Pays attention and shows interest in what others are saying.
• Uses correct spelling, punctuation and grammar.
• Listens carefully to understand.
• Asks questions to clarify issues.

Negative indicators

• Is hesitant, nervous and uncertain when speaking.
• Speaks without first thinking through what to say.
• Uses inappropriate language or jargon.
• Speaks in a rambling way.
• Does not consider the target audience.
• Avoids answering difficult questions.
• Does not give full information without being questioned.
• Writes in an unstructured way.
• Uses poor spelling, punctuation and grammar.
• Assumes others understand what has been said without actually checking.
• Does not listen, and interrupts at inappropriate times.

Respect for diversity (B) (Very important)

Considers and shows respect for the opinions, circumstances and feelings of colleagues and members of the public, no matter what their position, background, circumstances, status or appearance.

Understands other people's views and takes them into account. Is tactful and diplomatic when dealing with people. Treats people with dignity and respect at all times, no matter what their background, status, circumstances or appearance.

• Sees issues from other people's viewpoints.
• Treats everyone with respect and dignity.
• Is polite, tolerant and patient when dealing with people.
• Respects the needs of everyone involved when sorting out disagreements.
• Shows understanding and sensitivity to people's problems, vulnerabilities and needs.
• Makes people feel valued by listening to and supporting their needs and interests.
• Uses language in an appropriate way and is sensitive to the way it may affect people.
• Identifies and respects other people's values within the law.
• Understands what offends others and takes this into account.
• Respects confidentiality, wherever appropriate.
• Delivers difficult messages honestly and sensitively.
• Is open and honest with people.

Negative indicators

• Does not consider other people's feelings.
• Does not encourage people to talk about personal issues.
• Criticises people without considering their feelings and motivation.
• Makes situations worse with inappropriate remarks, language or behaviour.
• Is thoughtless and tactless when dealing with people.
• Is dismissive and impatient with people.
• Does not respect confidentiality.
• Unnecessarily emphasises power and control in situations where this is not appropriate.
• Intimidates others in an aggressive and overpowering way.
• Uses humour inappropriately.
• Shows bias and prejudice when dealing with people.

Personal responsibility (B) (important)

Takes personal responsibility for making things happen and achieving results. Displays motivation, commitment, perseverance and conscientiousness. Acts with a high degree of integrity.

Takes personal responsibility for own actions and for sorting out issues or problems that arise. Is focused on achieving results to required standards and developing skills and knowledge.

• Takes personal responsibility for own actions.
• Takes on tasks without having to be asked.
• Uses initiative.
• Takes responsibility for problems and responsibilities.
• Keeps promises and does not let colleagues down.
• Takes pride in own work.
• Is conscientious in completing work on time.
• Follows things through to a satisfactory conclusion.
• Shows enthusiasm about own role.
• Focuses on a task even if it is routine.
• Tries to improve own knowledge and keep it up to date.
• Is open, honest and genuine, standing up for what is right.

Negative indicators

• Passes responsibility upwards inappropriately.
• Is not concerned about letting others down.
• Will not deal with issues, just hopes that they will go away.
• Blames others rather than admitting to mistakes or looking for help.
• Is unwilling to take on responsibility.
• Puts in the minimum effort that is needed to get by.
• Shows a negative and disruptive attitude.
• Shows little energy or enthusiasm for work.
• Expresses a cynical attitude to the organisation and their job.
• Gives up easily when faced with problems.
• Fails to recognise personal weaknesses and development needs.
• Makes little or no attempt to develop self or keep up to date.

Resilience (B) (important)

Shows resilience, even in difficult circumstances. Prepared to make difficult decisions and has the confidence to see them through.

Shows confidence to perform own role without unnecessary support in normal circumstances. Acts in an appropriate way and controls emotions.

• Deals confidently with members of the public, drawing on own skills and experience.
• Is comfortable working alone with an appropriate level of supervision and guidance.
• Puts a positive view on situations and concentrates on what can be achieved.
• Is aware of and manages personal stress.
• Accepts criticism and praise.
• Controls emotions and does not get emotionally involved in disputes.
• Is patient when dealing with people who make complaints.
• Acts in a confident way when challenged.
• Is confident in own beliefs and values.
• Says 'no' when necessary.

Negative indicators

• Gets easily upset, frustrated and annoyed.
• Panics and becomes agitated when problems arise.
• Walks away from confrontation when it would be more appropriate to get involved.
• Needs constant reassurance, support and supervision.
• Uses inappropriate physical force.
• Gets too emotionally involved in situations.
• Reacts inappropriately when faced with rude or abusive people.
• Deals with situations aggressively.
• Complains and whinges about problems rather than dealing with them.
• Gives in inappropriately when under pressure.
• Worries about making mistakes and avoids difficult situations wherever possible.

Appendix 3: Security CSOs for London

Security CSOs will be the first CSO role to be introduced into the MPS. It is therefore possible to provide far greater details concerning their specific role, recruitment, conditions of service etc. It must be emphasised that the details are still being developed and are likely to change.

The role of a security CSO will be to provide:

• Reassurance of all communities within London;
• Protection of life;
• Protection of the critical infrastructure;
• A resilient response to major incidents and security alerts; and
• Support to police officers at ceremonial and special events.

Security CSOs would be capable of fulfilling a significant part of their role even if no additional powers were available. However, it is hoped that the Police Reform Bill will enable the following powers to be granted:

• Entry to save life or limb (schedule 4 part 1(10))
• Power to assist police in carrying out road checks (schedule 4 part1(11))
• Powers to assist in cordoned areas (schedule 4 part 1(12))
• Powers to stop and search vehicles and items carried by pedestrians in an authorised area (schedule 4 part 1(13))
• Power to detain pending the arrival of a constable and in any event CSOs will retain a citizen's power of arrest

Selection for the role will be based on the competencies laid out in appendix 2. Specific criteria – literacy skills, age, health and fitness, convictions, citizenship and physical appearance – will balance the need to widen the recruitment pool and maintain standards. The process will be simple and supported by new technology.

Training for a security CSO will contain a core element common to all CSOs together with a role specific element. Preliminary research shows that this could be delivered in three weeks; two weeks could be delivered centrally with one week delivered on the borough to which they will be attached. The course will be delivered in a modular form, which would enable us to run part time courses in the evening or at weekends, making it attractive to people with caring responsibilities. A full time training team will be recruited to deliver the training and provide support to the boroughs where the CSOs will be based.

Our recruitment campaign will be targeted to people living in the London area. Ideally training will be delivered in central London location - Peel Centre cannot be used due to the current demands placed on it by police officer training.

It is proposed that security CSOs are placed on a fixed short-term contract as this will provide flexibility and an exit strategy in the event that the need for security CSOs diminishes. The salary for this role is currently subject to Hay Review but it is envisaged that it will fall within band T:-

• £14,593 - £17,110
• £2,556 inner London weighting allowance
• £1,359 outer London weighting allowance
• 12.5%, 15.5% or 20% shift disturbance allowance

A security CSO working in Westminster could be earning in the region of £20,607, which compares to a police officers salary, upon completion of training, of £25,953.

All CSOs will wear a similar uniform irrespective of their role. This will associate them with the corporate identity of the MPS. Three uniform options based on an adaptation of that currently worn by traffic wardens. Identification will be by number. This provision is to be reviewed to create an image more in keeping with the role.

Security CSOs will come under the overall control of Territorial Policing and the local borough commander. Integrating them into the local borough support structure may require additional support staff. It is estimated that for every one hundred CSOs an additional administrative officer will be required for the personnel unit. To remove any administrative burden from police officers it is proposed to introduce one tier of supervision. A senior security CSO would be responsible for dealing with welfare, sickness, appraisals and act as a single point of contact.

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