The extended police family

Report: 09
Date: 25 July 2002
By: Commissioner

Summary

This report follows up on the paper presented to the Metropolitan Police Authority meeting on 25 April 2002. It seeks to set out details of the proposal to introduce Police Community Support Officers in a community role and to consider some of the implications of the Police Reform Bill.

A. Recommendations

Members are asked to note the contents of this report and endorse the proposed developments.

B. Supporting information

Introduction

1. The purpose of this paper is to update the Authority on progress with the introduction of Police Community Support Officers (PCSOs) into the Metropolitan Police Service, on the development of their role within the newly formed Transport Operational Command Unit (OCU) and plans for extending their sphere of operation into community schemes.

2. The paper also provides an update on accreditation and the future development of the 'extended police family' as outlined in the Police Reform Bill as this may have an impact on releasing police officers from certain roles.

3. The preparation of this paper has been complicated by the fact that the Police Reform Bill is still in the process of amendment and there has yet to be confirmation of the future funding arrangements for PCSOs arising out of the government's comprehensive spending review.

4. As such this paper is bound to raise as many questions as answers and members are really being asked to endorse firstly the principle of community PCSOs and secondly the current approach to development in this policy area rather than final details.

Community Support Officers for London - update

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 MPA have considered and endorsed the role of a security PCSO. The MPS is currently recruiting 300 security PCSOs for deployment in:

• Central London
• Tower Hamlets
• Heathrow and
• Newham

The MPS received over 4000 expressions of interest as a result of the advertising campaign for central London security PCSOs, with 760 application packs being completed and 450 people being called for interview. A significant proportion of enquirers, applicants and interviewees are from minority backgrounds. The first training course will commence on 2 September 2002, with the first PCSOs being deployed in Central London on 23 September 2002.

7. One change in the management of PCSOs to arise out of recent consultation has been the clear need to introduce the role of a team leader. This individual would be responsible for assisting police officers with the supervision and administration of PCSO staff. A team leader would still perform their ordinary duties but would assist the sergeant in carrying out such tasks as absence monitoring, gathering performance evidence to assist in appraisals and acting as a focal point of contact. There is no intention to build any additional PCSO rank structure as this would militate against the desire for a service fully integrated with police colleagues.

8. There is strong support for the role of team leader from the Police Federation, who have expressed their concerns over the additional burden that would otherwise be placed on supervising police officers, particularly with the current increase in police recruits. In Westminster the ratio between team leaders and PCSOs is likely to be 1:8 with an allowance payable for the duties. A similar practice is adopted by the Palace of Westminster who have MPS employed security officers.

9. The financial implications of this change have been absorbed within the projected budget. An evaluation of the security PCSO project is being undertaken by Portsmouth University.

Transport OCU

10. The Transport Operational Command Unit (OCU) was created by a Special Services Agreement between the MPA and Transport for London (TfL). The staffing levels were set at 207 police officers, 276 traffic wardens and 48 civil staff. In the paper the use of PCSOs in lieu of traffic wardens was considered as a possibility, dependent on the enforcement powers provided by the Police Reform Bill.

11. The Transport OCU requirement is for staff members who have both traffic warden and PCSO powers. The Home Office has indicated that, in principle, they are prepared to change the current uniform determinations for traffic wardens which would mean that PCSOs could have traffic warden powers providing they receive the appropriate training and that their uniform provides some indication that they have traffic warden powers. This would mean that PCSOs and PCSOs trained to use traffic warden powers would look the same to the public. It is now envisaged that the Transport OCU will meet its needs by seeking volunteers from current traffic wardens to take on PCSO powers in addition to their current powers. The OCU will also seek to have the newly recruited traffic wardens trained in both roles so that the majority of its 276 traffic wardens can exercise both sets of powers. Further consultation will take place with both staff and the trade unions. A further paper will be presented to the MPA later this year providing details on its future plans.

Community PCSOs

12. The recent funding provided by the Home Office supports the creation of 500 PCSO roles to be used in an

• anti-terrorism role OR,
• to combat street crime

It is proposed to recruit 300 PCSOs in the security role with the remaining 200 used in a community role.

13. Plans to extend PCSOs into the community role bring distinct benefits to both the communities of London and the MPS. They will enhance the street visibility necessary to make London feel safer and provide support to boroughs that are affected by the demands of Operation Safer Streets. The introduction of PCSOs beyond boroughs facing an identified security threat will facilitate change by spreading the burden imposed by the limitations of the current MPS infrastructure (especially those related to accommodation and radios) whilst providing an opportunity to experiment with different methods and in different operating environments.

14. It is planned that Community PCSOs will be recruited from within local communities, reflecting their diversity and so as to be responsive to local needs. They will provide a recognisable and accountable local presence capable of building public confidence. Schemes will be subject to local consultation within the established crime and disorder framework.

15. Community PCSOs will be provided as an additional resource to police officers. Consideration has been given to the impact that the provision of PCSOs may have on the equitable allocation of resources across boroughs. This debate is complex. It is also misleading as it implies that the MPS has control over 'policing' provision: the 'mixed economy of policing' is now a reality rather than a theoretical proposition and local authorities and residents association can readily 'purchase' wardens or security patrols to meet their needs. Given this fact it may be necessary to shift the debate away from its current focus on inputs to one that is concerned with outcomes: providing an equitable degree of safety and standard of service provision. For the moment it is proposed to address concerns about equity by re-emphasising that the resource allocation formulae only applies to police officers – the introduction of PCSOs is for the moment experimental - and by restricting the allocation of PCSOs to local authorities, residents associations, established business groups and other such representative organisations.

16. Given that it is not possible to address the problem of equity in allocating the next 200 PCSOs, alternative options were explored. It is intended that all borough command units will have the opportunity to submit a bid for the allocation of PCSOs against set criteria as follows:-

• impact of proposed role
• minimum requirements of the MPS Policing Model implemented
• support of the local authority
• identified community beat managers
• problem solving approach adopted by borough
• identified community teams
• suitable accommodation
• integrated support structure for PCSOs provided by existing borough resources
• environment
• integration with established warden scheme or partnership arrangements
• established community consultation process

The bids will be submitted to the PCSO Programme Board for a decision.

17. It is intended to locate PCSOs in different roles and environments to assist in the development of the role and evaluation. A minimum number of PCSOs will be prescribed to ensure their effectiveness.

18. It will be made clear that the funding of the 200 staff to particular locations, while not being short term, will not be permanent. When the funding streams available from the Comprehensive Spending Review become clear, the MPS will wish to move to a position whereby it equably uses the totality of its funds to provide only a proportion of the cost of each community scheme, with other agencies providing the remainder of funding.

Future Developments of Community PCSOs

19. There is an increasingly complex array of warden type schemes being established across London. Neighbourhoods and local authorities are looking to enhance existing police provision through the introduction of their own security warden schemes presenting a confusing mosaic of policing. The introduction of PCSOs, funded by external sources, will provide conformity and increased capability to the MPS.

20. It is proposed to allow appropriate bodies wishing to 'purchase' additional patrolling services to approach the MPS to provide and meet this need. A potent free market exists and the MPS is being approached by a number of bodies requesting such a service. It is likely that this will be provided from private sources if the police do not meet this need. The provision will only extend to recognised accountable organisations such as local authorities and housing associations.

21. The MPS would be responsible for the recruiting, training and deployment of the PCSOs and they would be an additional resource for police officers, clearly accountable to the chief officer. An undertaking would be agreed with the body providing the funding that the PCSOs would only be deployed within a specified area.

22. All communities could have access to this service and funding could be supported by utilising money currently being made available by the Neighbourhood and Street Wardens Programme in the Office of the Deputy Prime Minister and funding from Local Strategic Partnerships.

Legislation

23. Schedule 4 to the Police Reform Bill sets out the powers that may be given to PCSOs. The legislation is enabling rather than prescriptive and provides the chief officer with the discretion to determine which, if any, powers should be made available to PCSOs. The intention in the MPS is for PCSOs to be trained and issued with all of the proposed powers. This would alleviate any confusion amongst the public as they would know what powers PCSOs would have available to them. It would also allow the movement of PCSOs between the various proposed roles without any additional training requirement.

24. The legislation is currently being considered by Parliament and is likely to receive Royal Assent at the end of the summer. The Government has indicated that the power for a PCSO to detain a person with reasonable force will only be issued to six forces, including the MPS, for the first two years. This will enable Her Majesty's Chief Inspector of Constabulary to monitor and evaluate the power in practice before it is made available to all police forces in England and Wales. Accredited officers will not be given the power to detain a person.

Accreditation

25. The Police Reform Bill proposes powers for chief officers to establish and maintain a community safety accreditation scheme. The bill provides a dual key mechanism to enable schemes, contributing to community safety, to apply for accreditation and the grant of powers, if appropriate. Accreditation is a method of ensuring clear standards and expectations on both sides. Before the police set up an accreditation scheme there must be consultation with the police authority, local authorities and, in London, the Mayor.

26. Accreditation is designed to avoid an over-bureaucratic regulation but will ensure that staff from other organisations have the character and training necessary for the proposed role. The process is open to organisations in both the public and private sectors.

27. Plans for accreditation are at an early stage of development within the Home Office. The MPS is currently working with officials to develop protocols and standards. Plans are also in place to run a simulation exercise to identify and address the issues raised by accredited schemes working alongside PCSOs and private security firms. Details will be forwarded to members in due course.

28. Whilst it is proposed that all MPS accreditation should be dealt with centrally to ensure a consistency of approach, more detailed plans will be submitted as the requirements being made are clarified.

Future Roles for Support Staff

29. The white paper on police reform, 'Policing a New Century', proposed further roles for support staff, releasing police officers from existing roles that do not require the full training, skills and powers of a police officer. The MPS proposes to introduce the roles pending the granting of the relevant powers contained in the Police Reform Bill and the obtaining of funding. At present no funding has been made available.

Detention Staff: will provide assistance in custody suites and have the legislative powers to:

• search detained persons;
• use reasonable force where necessary to take fingerprints and non-intimate samples; and
• escort detainees and prevent their escape.

Case Managers: would be trained to deal with routine arrests, interviewing suspects and carrying out interviews. The Police Reform Bill proposes specific legal powers to enable them to carry out a range of functions relating to the processing of suspects arrested for an offence. Police officers would still carry out complex investigations but it is estimated that nationally this could result in almost 2,000 additional officers per year.

30. The MPS is proposing to consider the implementation of each of these roles. The principle will remain that these roles are an addition to the police establishment. Dedicated funding streams will therefore be sought that will meet the full cost of implementation.

31. The management of the proposed changes will fall within the programme management structure outlined to deal with PCSOs Consultation remains a key part of the process and the MPA is represented on both the Programme Board and Project Board by Nicholas Long and Rachel Whittaker.

Conclusion

32. At a time when demand threatens to outstrip the ability of the MPS to meet the needs of its communities, the development of Police Community Support Officers provides an additional resource that makes it possible to make London the safest capital city in the world. The Police Reform Bill enables us to free officers from existing roles and make greater use of their skills and training, providing an increased visible presence.

33. The MPS and MPA need to develop a statement of philosophy of service provision across the whole of the extended police family. One borough, for instance, wants to purchase additional police officers from Local Strategic Partnership funds. The MPS will work with MPA officers to this end.

C. Financial implications

34. The financial implications concerning the introduction of PCSOs were outlined in the MPA paper on 25 April 2002. A further paper relating to the costing of accreditation, detention officers and case managers will be presented in due course. However, as outlined in this paper, there is no implication for MPA funds, other than those provided directly by the Home Office.

D. Background papers

Consultation Document on Grant Formula Review.

E. Contact details

Report author: Richard Bryan, Commander, MPS.

For information contact:

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

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