Annual APA Conference 2002

Report: 07
Date: 28 November 2002
By: Clerk

Summary

The Association of Police Authorities (APA) held its annual conference in Harrogate on 20th and 21st November 2002. This paper reports back on the conference proceedings and identifies areas of future work for the Authority.

A. Recommendation

1. That members note the Authority’s position in relation to each of the issues raised at the Conference.
2. That members agree the action points in respect of
   1. citizen focus (paragraph 4)
   2. National Intelligence Model (paragraph 12)

B. Supporting information

1. The Association of Police Authorities held their sixth annual conference in Harrogate on 20th and 21st November 2002. The Authority was represented by Richard Barnes, Toby Harris, Jenny Jones, Richard Sumray and Rachel Whittaker. Officers attending were Catherine Crawford and Keith Dickinson. The subjects addressed included Key Issues for Authorities, Community Matters, Partnership, Criminal Justice, Intelligence, People Matters and Performance.

Two key issues: performance and consultation

2.  Police authorities should drive performance to a higher level by developing, piloting and then evaluating concepts around minimum standards and ‘what works’ in policing. Particular areas for work include police performance analysis frameworks (PPAF), HR and people development programmes. A second key role for authorities is to be the bridge between the police and the public that leads to more effective community engagement and improved police accessibility.

MPA position

3. The Authority has been fully involved at officer and member level, in the development of PPAF; for example we have been engaged in the initial designation of the domains and in the development of candidate measures. A full consultation document will be presented to the Planning Panel before the end of the year. In December, the Human Resource Committee will consider the development of the HR plan for 2003/4 which takes account of the Police Reform Act, Home Office Guidance and the APA framework. In relation to community engagement, a consultation strategy has been developed with a central focus on promoting greater community confidence. Alert to the sensitivity of police and community relations, the Authority has exerted considerable influence in areas such as ‘stop and search’ and the sub group examining the issue of deaths in police custody will continue its work. The Authority is also working closely with the Home Office on research that is currently being carried out on community engagement and the Community Consultation Co-ordinator posts will inform aspects of learning for the Home Office as well as the Authority.

Community matters: Citizen Focus

4. The Deputy Prime Minister oversees the Office for Public Service Reform (OPSR) which is responsible for Public Service Agreement 5 (improving public services by redesigning services around the needs of the customer). The principles of Citizen Focus are

• A national framework for standards and accountability
• Devolution to the front line to allow greater freedom and room for innovation
• Flexibility so that organisations are able to provide a modern service
• More choice for the public and the ability, if provision is poor, to have an alternative provider.

This will be achieved by OPSR

• Increasing customer focus (being clear about different groups and their needs, then aligning organisational objectives around them)
• Supporting delivery of PSA targets (measuring performance against customer focussed PSAs)
• Developing satisfaction (researching the ideal framework for services but particularly local, comparable feedback).

For the police service this means ‘new citizen focussed policing’ with an emphasis on reducing crime, investigating crime, promoting safety and security, and helping the public.

Action point

5. The Authority should seek from the MPS an update on what it is doing to promote citizen focus.

Being seen

6. This session gave an overview of police community support officers from a London and a rural perspective. The Deputy Commissioner acknowledged the courageous support of the MPA in promoting he introduction of PCSOs.

MPA position

7. The Authority has been closely involved in the development of PCSOs and members are currently being consulted on proposals for the PCSO accreditation scheme in London. Regular progress reports are planned.

Partnership matters

8. The future of successful policing depends on a cooperative approach with local authorities that will ensure successful intervention. Crime and Disorder Reduction Partnerships are a comparatively new concept and though much progress has been made, the Audit Commission have pointed to a route for improvement. In seeking to build effective partnerships they recommend an eight – C checklist.

• Control v creativity
  (Does it seek to achieve order by control or through creative approaches?)
• Concern v consistency
  (Does it react to immediate concerns or commit to long term goals?)
• Community v criminality
  (Is the focus on building a safe community or catching criminals?)
• Compliance v challenge
  (Does it simply seek to improve existing processes or see the broader picture and challenge assumptions?)

What approach will police authorities take?

MPA position

9. The Authority is presently conducting a scrutiny on the MPS performance and MPA contribution to CDRPs across London. A report is expected in January 2003 and this will inform member discussion and decisions on how best the MPA can fulfil its forthcoming statutory role of responsible partner in CDRPs.

Criminal justice matters

10. With nineteen Bills in the Queen’s Speech, reforms to the criminal justice system are at the heart of government policy. Key areas include changes to: sentencing; CJ S procedures; anti social behaviour; sex offences; abolition of opening hours; and, international co-operation. The overall aim is to increase public confidence by rebalancing the system in favour of victims and witnesses without detracting from the rights of defendants. Published in October 2002, the ‘Narrowing the Justice Gap’ report promotes a framework designed to improve detections, convictions and rehabilitation. The difference between the levels of recorded crime and prosecutions is seen as a key indicator of effectiveness in the criminal justice system. The mechanism for improving the processes in the system is the National Criminal Justice Board which will be the ‘engine room’ for 42 Local Criminal Justice Boards. A three pronged approach has been adopted. Firstly, targeting weaknesses in the system; secondly, creating of a Persistent Offender Scheme; and, finally, improving public confidence by developing and acting on feedback, and through a coherent and professional approach to public relations. The National Board will provide strategic direction and support, remove barriers and promulgate good practice. Local Boards will collaborate on a draft delivery plan, agree practical actions and identify obstacles. From the viewpoint of police authorities, however, a significant failing has been the omission of the APA from the National Board and authorities themselves from the local boards.

MPA position

11. The MPA has nominated lead officers and members in relation to criminal justice and has been fully involved in discussions on the White Paper and Narrowing the Gap Report. Criminal justice is one of four priorities agreed by the Authority for 2003/4 and it is actively seeking membership of the local criminal justice board.

National intelligence model

12. The National Intelligence Model should not simply be a mechanism for dealing with information but a golden thread that is woven into the fabric of operations and policing management. It should

• Deliver efficiency and effectiveness
• Assist authorities to understand policing
• Aid scrutiny and oversight
• Deliver measurable outcomes
• Meet local needs

For true adoption of the model, police authorities must help develop an overarching strategy, balance resource allocation and specify service delivery as between visible and invisible policing. To do this we must understand the implications for the organisation, support the chaos of change, explain to the public and support the effects of change in the partnerships.

Action point

13. The MPS has already adopted the National Intelligence Model but the Authority should request a briefing to the Co-ordination and Policing Committee to review progress against the checklist outlined at the conference..

People matters

14. Seminar groups covered a wide range of topics including complaints and discipline, HR, equality issues and staff representation.

The Police Complaints Authority expressed a particular interest in deaths in police custody, firearms incidents and police pursuits.

MPA position

15. The Authority has a working group that is currently addressing the first two issues and is awaiting a formal report on MPS pursuit policy following a recent presentation.

Police Complaints Commission

Also worthy of particular note are the forthcoming changes to the complaints procedures that will be adopted when the Independent Police Complaints Commission succeeds the Police Complaints Authority; more than twenty consultation papers are expected in the coming months and the Authority will have to respond and review its oversight arrangements.

MPA position

16 The Authority is represented on the PCA Pilots Sub Group that is examining the changes and so will be in a position to submit informed comment as part of the national consultation exercise. The Professional Standards and Complaints Committee is already reviewing its arrangements for oversight of complaints and will consider the new arrangements when the Home Office finalises the procedural details.

The seminars hoisted by the Black Police Association and the Gay Police Association highlighted the need for

• Internal policies to deal with ‘hate crime’
• Diversity v race training
• Institutionalised phobias
• Forthcoming changes to employment legislation relating to faith and sexual orientation

National Policing Plan

17. The Home Secretary launched the National Policing Plan as the keynote event of the conference. A summary of the plan is attached at Appendix A. An initial examination suggests that the provisions of the plan are by and large expressed in a sufficiently general way as to allow the Authority properly to reflect local priorities when producing the MPA policing plan. The role of police authorities is firmly and positively acknowledged throughout the plan. This unequivocal message about the importance of the balance in the tripartite governance arrangements for policing was reinforced by the Prime Minister’s message to the conference in the opening video. A printed copy of his message is tabled separately.

MPA position

18. The strategic and annual plans for the MPA will be developed through the Planning, Performance and Review Committee in the light of the National Policing Plan, before being presented to a meeting of the Authority.

C. Equality and diversity implications

Equality and diversity issues were dealt with as discrete subjects within seminars at the Conference. These were attended by members who identified the issues listed above. All equality and diversity implications will be dealt with as substantive matters in the actions arising from this paper.

D. Financial implications

There are no costs associated with this paper.

E. Background papers

• Appendix A – Summary of the National Policing Plan

F. Contact details

Report author: Keith Dickinson 020 7202 0215

For more information contact:

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

Appendix A: Summary of the National Policing Plan

The National Policing Plan sets out the Government’s four key national policing priorities:

1. tackling anti-social behaviour and disorder;
2. reducing volume crime, street crime, drug-related crime, violent crime and gun crime (in line with local and national targets);
3. combating serious and organised crime operating across force boundaries;
4. increasing the number of offences brought to justice.

The NPP also sets out other actions that chief officers and police authorities should take account of in local policing plans.

Tackling crime effectively

1. Chief officers and police authorities should include in their local plans a strategy for tackling youth nuisance and anti-social behaviour taking account of the forthcoming white paper and legislation. In formulating and implementing the strategy forces should work closely with Crime and Disorder Reduction Partnerships (CDRPs). Plans should cover all aspects of the problem from responding to reports of anti-social behaviour incidents to fundamental problem solving.

2. Chief officers should make full use of officers, special constables, CSOs and other members of the extended police family as part of the force’s response to anti-social behaviour.

3. Forces should make best use of all the available tools for tackling anti-social behaviour, including Anti-Social Behaviour Orders (ASBOs), Anti-Social Behaviour Contracts, fixed-penalty notices, the powers to seize vehicles being used in a manner causing alarm and the powers to take action against badly run pubs and clubs.

4. Local plans should identify how forces and authorities will contribute to crime reduction, both through their own efforts and by working in partnership with other agencies, and set appropriate local targets.

5. Local plans must include three-year targets for reducing vehicle crime, burglary and robbery against which the contribution of each force to meeting the national targets in these areas can be measured. Local targets will need to be particularly challenging where force (or individual BCU) performance is demonstrably below that of comparable forces or BCUs.

6. Forces should develop policies to deal with repeat victimisation, in conjunction with local partners.

7. In formulating their strategies for reducing crime, all forces and authorities should apply the best practice emanating from the Street Crime Initiative. The 10 forces taking part in the Initiative should maintain momentum to achieve the target of a 14% reduction in robbery from 1999-2000 to 2005.

8. Chief officers and police authorities should develop effective programmes to identify and manage drug involved offenders (for example through arrest referral or drug testing at charge) and to tackle drug related crime, including the supply of drugs and in particular Class A drugs.

9. Forces should develop accurate information and intelligence systems to identify trends in relation to illegally held firearms and consider running specific initiatives in partnership with community leaders and local service providers to tackle firearms-related crime.

10. Chief officers and police authorities should have effective strategies and procedures in place to respond quickly and effectively to domestic violence incidents, including incorporating in their violent crime strategies and adopting best practice.

11. Local policing plans should reflect the importance of disrupting organised criminal groups. Local targets, set with guidance from NCIS, should contribute to the national targets on the supply of Class A drugs and on disrupting organised criminal enterprises.

12. Chief Officers and police authorities should make clear in their plans how they will make maximum use of the new powers available in the Proceeds of Crime Act to attack the assets of local criminals – including those involved in drug dealing and supply.

13. NIM should be implemented in all forces to commonly accepted minimum standards by April 2004 at the latest; the arrangements for implementation should be set out in local policing plans.

14. Forces and authorities should ensure in their local plans that the maximum efficiency gains are being derived from the implementation of the Bureaucracy Taskforce’s recommendations.

15. Forces should develop existing officers and new recruits to achieve the necessary competencies, and employ support staff with appropriate skills and experience, to ensure that they have the capacity to tackle all crimes effectively.

16. Forces should ensure sufficient resources are invested to deliver and optimise the use of key technologies.

17. The service must develop a closer working relationship with the CPS and the courts to improve case preparation and case management. Police and CPS staff should be brought together in single administrative units where this is not already happening.

18. For 2003-04, every police force must contribute effectively to their LCJB target of increasing the number of offences brought to justice by 5%.

19. By 31 January 2003 police and other local CJS services, working through the emerging criminal justice boards, should develop a local inter-agency “Narrowing the Justice Gap” plan which identifies three or four priority areas for action to improve the number of offences brought to justice, one of which must be implementation of the Persistent Offender Scheme.

20. As part of their involvement in the Persistent Offender Scheme, chief officers and police authorities should include clear strategies in their own policing plans for combating persistent offenders at local level.

21. In developing measures to deal with persistent offenders, forces and police authorities should consult and work closely with local partners particularly CDRPs and Victim Support.

22. Local policing strategies should address the needs of victims particularly, but not exclusively, in their capacity as witnesses.

23. Local contingency plans to deal with terrorist incidents should be regularly reviewed and close contact maintained with the Metropolitan Police and national agencies.

24. Forces should also strengthen their arrangements for information sharing and partnership working with other agencies dealing with child protection, including the relationship between Multi-Agency Public Protection Panels and Area Child Protection Committees.

25. Chief officers and police authorities should ensure that their policing plans include child protection strategies.

26. Chief officers should ensure that police officers and other staff working in this area are carefully selected and trained in the very special problems posed by investigating crimes of this nature.

27. Forces and authorities should include in their local policing plans targeted and intelligence led strategies for reducing deaths and injuries on the roads and achieving a safe environment for all road users.

28. Chief officers should work closely with local partners to tackle alcohol-related crime effectively.

29. Chief officers should ensure that relevant points from the July 2002 action plan on rape are being implemented.

Partnership to build a civil society

30. All local agencies – particularly those involved in CDRPs – should engage more effectively in partnership working.

31. Local plans should identify how forces and authorities will contribute to crime reduction, both through their own efforts and by working in partnership with other agencies, and set appropriate local targets.

32. With the integration of, or close working between, CDRPs and Drug Action Teams local strategies and plans should now incorporate a clear strategy for combating drug misuse. Local public service agreements should support and enhance this process through links with local authorities and their partnerships with other agencies.

33. Forces and police authorities gaining resources from the BCU Fund should set out priorities agreed with their local CDRPs, for the use of these monies.

34. Forces and police authorities should be ready to implement the new national standards for responding to non-emergency calls as they are developed.

35. Forces and authorities should consider how the introduction of CSOs and ACSOs could contribute to public reassurance and reflect any proposed arrangements in their annual policing plan.

36. Forces should look to embed good practice for promoting community cohesion into all aspects of their work.

37. Forces are strongly encouraged to take part in initiatives to empower communities to contribute directly to crime reduction.

Making the most of police officers and support staff

38. Chief officers and police authorities should set their own local targets for recruitment in their policing plans to ensure that the police officer strength increases achieved with the help of the CFF are maintained and that authorities qualify for all the continuation funding available from the CFF.

39. Senior officers should show the necessary leadership to drive forward the reforms of police pay and conditions.

40. Forces and police authorities should draw up local targets for managing overtime in consultation with HMIC and include these in their local plans.

41. Chief officers and police authorities should examine the balance between police officers and custody support staff, escort staff and civilian investigators and set clear targets in their local plans for significantly increasing the proportion of officer time spent on frontline duties. In undertaking such an examination, chief officers should consider whether to confer on custody support staff the new powers introduced by the Police Reform Act.

42. Forces and authorities should examine the opportunities for making increased use of local volunteers.

43. Local policing plans should include targets for reducing sickness absence which will contribute to the national target.

44. Local policing plans should take due account of the target set for forces in the better management of ill-health retirement.

45. Where losses through transfer or resignation are a problem, local policing plans should identify measures to be taken to reduce them and the process for assessing the effectiveness of those measures.

46. Local policing plans should include appropriate targets for minority ethnic officers to contribute to overall national targets.

47. Forces and authorities should take full account of the aims of the Gender Agenda in their force HR plans.

48. Chief constables and police authorities should ensure that these measures to improve leadership are fully integrated within their HR strategies.

49. Forces and authorities should set out in local policing plans their proposed arrangements for implementing integrated systems to a common standard in their policing area.

50. Forces and authorities should review their procedures and ensure that their staff are properly trained to prepare for the IPCC’s introduction in 2004.

51. Chief officers and police authorities should plan for the delivery of priorities for 2003–04 against the resources set out in the local government funding plans published in December 2002, and finalised after consultation in the New Year; and plan for 2004–04 and 2005–06 on the basis of the indicative levels of funding set out in this Plan – while taking into account relevant determinations on Council Tax precepts.

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