MPA committee annual reports 2002/03

Report: 9
Date: 24 July 2003
By: Clerk

Summary

Annual reports of MPA committees are attached for information.

A. Recommendation

That the committee annual reports be noted.

B. Supporting information

1. In January, the Authority agreed to introduce a process of annual reports for its committees. This gives the committees the opportunity to look back over their activities during the year and to demonstrate how they have taken forward the work of the MPA, as well as providing a general indication of member performance through their work on those committees. The annual reports will also feed into the Authority’s Annual Report, which is due to be published later in the year.

2. Each committee has considered their annual report in the June/July cycle. The annual reports cover the period June 2002 to June 2003 (the year between the Authority’s annual meetings).

C. Equality and diversity implications

Any implications are addressed in the annual reports themselves.

D. Financial implications

None

E. Background papers

• Report to full Authority, 30 January 2003

F. Contact details

Report author: Simon Vile, MPA.

For more information contact:

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

Appendix 1

The following committee annual reports for 2002/03 are available below:

• Annual report of the Audit Panel
• Annual report of the Co-ordination and Policing Committee
• Annual report of the Finance Committee
• Annual report of the Human Resources Committee
• Annual report of the Planning, Performance and Review Committee
• Annual report of the Professional Standards and Complaints Committee
• Annual report of the Standards Committee
• Annual report of the Consultation Committee
• Annual report of the Equal Opportunities and Diversity Board

Annual report of the Audit Panel

Meetings and membership

2. The Audit Panel has met on four occasions during the year at appropriate points in the annual audit cycle.

3. The Panel comprises five members. Sir John Quinton has been Chair of the Panel for the year. Other members have been Eric Ollerenshaw (Deputy Chair), Jennette Arnold and Rachel Whittaker (from 6 September 2002) and there was one vacancy throughout the year. New members have been offered induction training with internal audit.

Responsibilities

4. The Panel fulfils the Authority’s duties in relation to internal and external audit. It has general oversight of the effectiveness of the control systems in operation. The Panel also reviews the Authority’s draft accounts before they are finally approved by the MPA.

Accounts

5. The Panel reviewed the draft final accounts for 2001/02 and agreed drafting amendments. The Panel recommended their approval by the full Authority.

External audit

6. The Panel received the external auditor’s annual audit letter on conclusion of the 2001/02 audit. The external auditor had again qualified the accounts for inadequate provisions for pension and third party liabilities but acknowledged that significant progress had been made in addressing this issue. The external auditor considered that the Authority’s financial position remained ‘fragile’ and that the systems of internal financial control required further improvement. The Panel subsequently received an action plan to address specific points made in the audit letter.

7. External audit reports on specific subjects are generally considered by the committee with the appropriate responsibility. Two reviews have been reported to the Audit Panel, the first on the MPS internal consultancy function, and the second on corporate governance including internal audit.

8. The Panel has agreed the external audit programme and fees for the two audit years 2002/04. In the view of the external auditor the MPA/MPS remains a high risk audit. This is reflected in the level of fee at £1.068 million for the two year period. However he has agreed to the retention of £50,000 of the fee subject to further discussion as to whether the risk level falls during the period.

9. The Panel has responded to consultation from the Audit Commission agreeing the extension of the current external audit arrangements, with the Audit Commission (formerly District Audit) supported by KPMG, until 2004 and has commented on potential arrangements thereafter.

Internal audit

10. The Panel has received progress reports on the internal audit programme for 2002/03 and has considered the Director of Internal Audit’s annual report. The annual report shows a marginal improvement in the overall control assessment but significant progress in areas which have previously been the subject of internal audit review.

11. The Panel has reviewed the internal audit strategy for the next three to five years, which demonstrates how internal audit supports the overall aims and objectives of the MPA and MPS while maintaining its professional standards. The Panel has also approved the internal audit plan for 2003/04.

12. The Panel has been concerned at the inadequate response to some internal audit reports and recommendations. It has focussed particularly on the acceptance and speed of implementation of high risk recommendations. The Chair has expressed the Panel’s concerns in correspondence with the Commissioner. Assurances of improvement have been given and the Director of Internal Audit now has better access to MPS senior management. MPS managers have been invited to attend the Panel to account for delays in taking forward internal audit recommendations.

Anti fraud and corruption strategy

13. The Panel has reviewed and endorsed an anti fraud and corruption strategy comprising a policy statement, code of practice and fraud response plan. On the Panel’s recommendation this was formally adopted by the Authority in January 2003.

Next year

14. In the forthcoming year the Panel will continue to oversee the internal and external audit programmes. Key developments which the Panel will be anticipating are:

• The potential removal of the qualification of the Authority’s accounts
• Evidence of improvement in financial management as assessed by the external auditor and a consequent reduction in his risk rating of the audit
• Continuing improvement in the Director of Internal Audit’s assessment of the adequacy of internal control
• Improved responsiveness to internal audit reports and recommendations.

Equality and diversity implications

The Panel addresses equalities aspects if and when they arise in relation to its business.

Financial implications

The cost of the Panel’s activities are met within the MPA’s directly managed budget.

Report author: Peter Martin, Treasurer, MPA.

Annual report of the Co-ordination and Policing Committee

Introduction

1. The Co-ordination and Policing Committee has three primary areas of responsibility: co-ordination of the work of the Authority; operational policing; and, urgent matters. Each is dealt with in turn.

Co-ordination

2. To ensure a co-ordinated approach to the work of the Authority as a whole, this committee has overseen the work of each of the other committees. The Co-ordination and Operational Policing Committee has achieved this by ensuring key issues are addressed by the relevant committee and by appointing specific members to lead on the oversight and development of both functional and geographic aspects of policing in the Metropolitan Police District. In addition, it has prioritised and directed MPA resources into areas of special interest to the Authority; in particular fatal incidents and suspensions, gun crime and MPS performance and practice in stop and search.

3. This co-ordination role extends beyond the Authority itself with the committee being actively involved in oversight of the MPS Corporate Projects List and the initiation of a major strategic review of the opportunities and implications of future expansion of the MPS.

Policing

4. Another primary function of this committee is to consider policy and other issues relating to operational policing and the criminal justice system, particularly where the topic is not the responsibility of a sole committee or it is an emerging issue. In this context the Committee has:

• Reviewed and monitored the MPS response to recommendations made with regard to Special Branch by HMIC and by Accenture in relation to efficiency and effectiveness plans on borough command units.
• Contributed to the concept of a Crime Detection Academy.
• Made arrangements to ensure the effective discharge of responsibility for the health and safe working of MPS staff for when the Home Secretary transfers that statutory duty to the police authority.
• Actively supported the delivery of business change benefits associated with the forthcoming introduction of C3i and Airwave, particularly in relation the MPS policing model and the Crime Management Best Value Review.
• Considered the Best Value Review of Bringing Offenders to Justice and its concluding recommendations, and drew particular attention in relation to the need to improve IT provision and the support given to witnesses after court attendance.
• Taken an active involvement in the Safer Streets initiative which produced a significant reduction in street crime.
• Reviewed and monitored particular crime and types of crime including the Adam Torso case, the Damilola Taylor Action Plan, jury protection issues and paedophilia.
• Authorised and overseen the formation and development of the Transport OCU with a view to reducing crime and improving traffic conditions for those using London buses.
• Supported and monitored the introduction to the MPS of the baton gun and TASER as a less lethal means of self defence, arrest and restraint.
• Reviewed the cost and monitored the MPS approach to major public order events such as Notting Hill Carnival and May Day.
• Supported and developed the introduction of Police Community Support Officers from the initial security PCSOs through to transport and borough based officers.
• Overseen the MPS response to the Policing Bureaucracy Task Force to ensure the removal of unnecessary burdens, the provision of adequate support and the adoption of best practice.
• Considered and supported, in principle, the implications and overall benefits to the people of London of a merger of the MPS with the Royal Parks Police.

Urgency

5. In addition to the overseeing policing issues and co-ordinating the work of the Authority, the committee has also considered as a matter of urgency the following issues:

• The approval, in principle, to enter into contracts for the construction works the new Command and Control centres at Bow, Hendon and Lambeth.
• The value of a more ‘bottom up’ approach to the way in which the Authority’s policing and performance plan was prepared, thus placing greater emphasis on, and support for, local crime and disorder strategies across London.
• Progress by the MPS in recruiting to Borough Workforce Targets.
• The scheme for members’ expenses.
• The MPA response to the Mayor’s Ambient Noise Strategy.
• The proposed scope, plan and organisation of the Best Value Review of Retention.
• An offer for the sale of Old Street Magistrates Court.
• The draft MPA budget for 2003/04
• The draft MPA/MPS Annual Report 2001/02
• The procurement of an Integrated Communications Platform.
• The payment of Special Priority Payments to police officers in specific posts.
• The development of a system to enable Activity Based costing and the Operational Policing Measure.
• The freehold disposal of Hounslow Public Order Training Centre.
• The projected outturn position of the MPA budget 2002/03.
• Various requests for financial assistance for police officers involved in legal proceedings.
• The revision of governance arrangements for the C3i programme.

Equality and diversity implications

This is a factual report only, the equality and diversity aspects of the work of this Committee are contained in the minutes and reports relating to the items mentioned above.

Financial implications

None.

Report author: Keith Dickinson, MPA.

Annual report of the Finance Committee

Introduction

1. The Authority has decided that each committee should produce an annual report on its activities. The reports are intended to give a general indication of member performance. They will also provide material for incorporation into the Authority’s published annual report.

Meetings and membership

2. The Committee has met ten times during the year. There are ten members of the Committee. Graham Tope has been Chair for the year and Nicholas Long Deputy Chair. Other members have been Reshard Auladin, Richard Barnes, John Biggs (to February 2003), Elizabeth Howlett, Diana Johnson (from April 2003), Eric Ollerenshaw, Sir John Quinton, Richard Sumray and Rachel Whittaker.

Responsibilities

3. The Finance Committee oversees the preparation and management of the revenue and capital forward plans and annual budget, making recommendations to the Authority as appropriate. The Committee also discharges the Authority’s responsibilities in relation to treasury management, insurances, the efficiency and effectiveness review programme and any other significant non-audit financial matters. In addition the Committee considers strategic issues in respect of the estate and other resource functions, financial and strategic issues relating to the provision of information systems and technology, and major contract matters as required by the Authority’s contract regulations.

Budgets

4. The Committee has considered financial plans, budgets, expenditure and outturn as appropriate in the annual cycle as follows:

• 2001/02. The final revenue and capital outturns were reviewed and final adjustments agreed.
• 2002/03. The Committee has received regular monitoring reports on both revenue and capital budgets and has considered provisional outturns. It is likely that further steps can be taken, building on the improvement already effected in 2001/02, to strengthen the Authority’s balance sheet so that the external auditor’s qualification of the accounts can be removed.
• 2003/04. The Committee has considered the draft budget, including at a special meeting in October, and made recommendations to the Authority with regard to the submission to the Mayor. Members have made decisions in relation to budget adjustments after approval by the Mayor and Assembly. Medium term financial projections to 2005/06 and a five year capital programme have been approved. The 2004/05 revenue budget was approved as submitted and allows for recruitment of a further 1,000 officers which will take total officer numbers close to 30,000. The budget also provides for recruitment of 1,000 police community support officers.
• 2004/05. Consideration of the 2004/05 budget has commenced with a report on the Mayor’s budget guidance.

Other financial matters

5. The Committee has dealt with a number of significant financial matters in addition to budgets, including:

• Efficiency and effectiveness review programme. Regular progress reports have been received.
• Treasury management. The Committee has received monitoring reports and a strategy report for 2003/04.
• Insurances. Insurance renewals have been agreed and also the appointment of insurance and risk advisers.
• Budget devolution. Progress reports on the continuing development of budget devolution have been received.
• Activity based costing. The Committee has considered and endorsed the approach being adopted to the requirement to implement activity based costing in 2003/04.
• Prudential code for capital finance. The Committee has considered the potential implications of the Prudential Code which is likely to be introduced from April 2004.
• Police pensions. The Committee has considered the results of an actuarial review of future police pensions costs and agreed a strategic response.
• Contract regulations. The Committee has approved a comprehensive revision of the Authority’s contracts regulations.
• Financial Management Strategic Programme. Two progress reports have been made against this programme demonstrating significant improvement in financial management in the MPA’s finances and MPS financial management.

Estate

6. The Committee has received regular update reports from the MPS Director of Property Services on a range of current estate issues. It has also considered reports relating to specific property transactions and proposals, approving action as appropriate. These have included the development of a centralised Traffic and Transport criminal justice unit at Sidcup and the implementation of a vehicle recovery and storage service at Charlton. The Committee has endorsed an estate strategy, Building Towards the Safest City 2003/08 and has agreed a central London property plan. The Committee has also endorsed an annual environmental report. The Committee has monitored the progress of Operation Cleansweep (driving forward improvement in working conditions of front-line officers in police stations), a response the Committee-sponsored ‘Changing Habits’ report.

IT/IS

7. The Committee has monitored the implementation of the MPS information strategy and has taken decisions to facilitate achievement of the ICT infrastructure strategy. Contract action in relation to the C3i project has also been approved.

Procurement

8. The Committee has considered and approved contract action in respect of major procurements. It has also received information on the routine forward contracts programme.

Next year

9. In the forthcoming year the Finance Committee will review the final outturn for 2002/03, monitor expenditure against budget in 2003/04 and develop the budget submission for 2004/05 together with the medium term financial plan. Revenue and capital plans will both need to take account of the implications of the Step Change programme looking at further expansion of the MPS.

10. The Committee will continue to monitor improvements in financial management through the financial management strategic programme. Specific areas of development in which the Committee will take an active interest include budget devolution and activity based costing.

11. Proposals relating to property will now be assessed in the context of the new estate strategy. The Committee will continue to monitor and facilitate the MPS information strategy. Major procurements will be considered in the framework set by the revised contract regulations. Decisions will have to be taken during the next year in relation to the renewal or replacement of current outsourced service contracts.

Equality and diversity implications

The Committee addresses equalities aspects if and when they arise in relation to its business.

Financial implications

The cost of the Committee’s activities is met within the MPA’s directly managed budget.

Report author: Peter Martin, Treasurer, MPA.

Annual report of the Human Resources Committee

Background

1. The Human Resources Committee (HRC) has continued to carry out its responsibilities in accordance with both its terms of reference, attached at Appendix 1, and incorporating its statutory responsibilities. The Committee met six times during the year and has overseen the work of both the Remuneration Sub-Committee (RSC) and the Police Pensions-Sub Committee.

Recruitment and retention

2. Members received reports at every meeting on ‘Recruitment and Retention’ within the Metropolitan Police Service (MPS), covering police officers, civil staff, traffic wardens and Police Community Support Officers (PCSOs). The report informed the Committee of:

• Progress against budgeted workforce targets for London and for boroughs
• Progress against targets for numbers of women and visible ethnic minorities
• National and MPS recruitment campaigns
• Police community support officer recruitment
• Activities to improve retention, including improvements to exit polling, better management and supervision and career development opportunities.

3. Police officer strength was at 28477 at the end of March 2003, achieving the target set for 2002/3 of 28412. Civil staff numbers continue to increase slowly and are now at 10959, still about 8.2% below budgeted workforce target (BWT). Traffic warden levels were 650 at the end of March 2003. This is some 24% below BWT, but bearing in mind the new role transport PCSOs, recruitment for traffic wardens has now stopped. 513 PCSOs were in place at the end of 2002/3, achieving the 500 target for the year.

4. Members were particularly concerned about application processing times. Assurances were received that delays in areas such as security vetting and medical reports would mean the average time to process an application would be reduced by the middle of the 2003/4 financial year.

5. At the end of March 2003, 17571 officers were based on boroughs, 1.8% under the target of 17904. For individual boroughs, the situation has improved substantially from when some boroughs were in excess of 10% below strength. All but two boroughs (Harrow and Enfield) were within 5% of their BWT. SO was also 8% below its BWT for the financial year. Most boroughs were also below their expected civil staff numbers, with an average of 5.3% below strength. Worst affected are Kensington and Chelsea (at –20%), Lewisham (-13%) and Redbridge (-12%). SO was also 15% below its expected civil staff numbers.

6. With increased recruitment, the number of less experienced officers on boroughs was a concern. There were 3549 probationers (officers with less than 2 years experience) on boroughs at the end of the financial year, which represent 29% of the total PC strength. This was increasing over time and is set to further increase as recruits are posted to boroughs. Probationer levels vary between boroughs from 21% to 37%. There were high levels of probationers in Hammersmith and Fulham (37%) and in Kensington and Chelsea (35%).

7. Because of the serious concerns about retention, members endorsed a proposal to conclude the Best Value Review of Retention and to re-formulate the retention strategy into an improvement plan. The improvement plan was due to be considered by HRC in June 2003.

8. Of particular concern was the number of resignations amongst police officers, with 67% of the overall number of resignations within the first 2 years of service. The figure for visible ethnic minorities was 88% of total resignations from this group. For women police officers, the figure was 49% of total resignations from this group. Within these figures was a significant level of wastage at Training School, with 15% from visible ethnic minorities. This figure represents 71% of overall resignations amongst visible ethnic minority police officers in the first two years of service.

Police Reform

9. Members were heavily involved in the implementation of the HR aspects of the police reform programme which aims to:

• provide police officers with better work-life balance with greater flexibility in working arrangements and shift patterns;
• rationalising the system of regulations and determinations;
• improving the management of ill health and providing incentives for officers to stay on after 30 years of service;
• providing incentives for better performance or particular roles

The authority was required to approve or consider a wide range of issues including bonus payments, special priority payments, threshold payments, special priority payments, managing overtime etc.

MPS HR Directorate allocation, spend and forecast 2002/3 and 2003/4

10. Members considered reports on the overall allocation, spend and forecasts for the MPS HR directorate budget. There was specific reporting on the HR selection and Occupational Health budgets that formed part of a rolling scrutiny programme for the Committee. This was felt to be a particularly valuable tool and one that other Committees could adopt.

Congestion Charging

11. The pilot arrangements to deal with the additional costs for some staff as a result of the introduction of the introduction of congestion charging were considered. Members endorsed the continuation of the current scheme to ensure that police officers and civil staff who were required to use their own transport were not “out of pocket”.

Analysis of sickness

12. Members regularly considered reports on sickness levels within the MPS. After a period of stable levels, encouragingly police sickness is now showing a falling trend. Up until February 2003, the average sickness was 9.8 days per officer, not meeting the 9-day target, but comparing favourably with other police forces. Civil staff sickness is at 11.2 days per year (to February 2003), not meeting the 10-day target. Traffic warden sickness is at 19.7 days, not meeting the 16 day target.

13. Fewer officers are on extended sick pay this year than last year and fewer officers are leaving due to medical retirement. In addition, less police officers were referred to the welfare service or to an Occupational Health Advisor that last year.

People Strategy

14. There were several reports throughout the year on the current developments within the various strands of the strategy, including timescales and a ‘forward look’ for the remaining two years and how the strategy would be developed alongside policing objectives and the APA framework for human resource plans. Members were particularly anxious that all strands and initiatives should incorporate equal opportunities and diversity.

Regulatory Responsibilities

15. The HRC:

1. Set up an appeals panel under regulation 10(3) of the Police Regulations 1995 to consider appeals by police officers against a decision by the Commissioners to refuse permission for a notified business interest;
2. Set up a Police Pensions Sub Committee to consider forfeiture cases. The Sub Committee met twice during the year to discuss and agree a revised process for dealing with these cases that became a template for the Association of Police Authorities and the Home Office. Decisions were made in four cases regarding the level of forfeiture, with a further 18 cases due to be considered; and
3. Considered reports from the Remuneration Sub Committee on:
   • ACPO appointments for the Assistant Commissioner, Deputy Assistant Commissioner and Commander. Tim Godwin was appointed Assistant Commissioner. Interviews for Deputy Assistant Commissioner and Commander are due in June 2003.
   • ACPO terms and conditions, including relocation/removal allowances, age criteria, intellectual property rights and taxation on car benefits and development of a car policy and as part of its terms of reference, though not as part of a regulatory responsibility.
   • Senior civil staff pay and personal development objectives.
   • Senior civil staff appointments.
   • Senior civil staff redundancies.

Training

16. Members considered a number of reports throughout the year on training both within the MPS and at a national level. The recommendations of the final report of the Best Value Review of training, the improvement plan and the financial implications were endorsed. In addition, the HMIC thematic inspection on probationer training’ Training Matters’, and the current work on reviewing probationer training were noted.

Employment Tribunal and Grievance Data

17. Regular reports were received providing management information on Employment Tribunals, including financial data. Members welcomed the new Fairness at Work Policy, which replaced the grievance procedure. They particularly welcomed the training to be provided for line managers in dealing with the new policy. Although small numbers are involved, it appears that there are less grievances recorded this year to date than last year, with an average of 6 grievances per month this year to date compared to 11 per month last year. The most common reason for a grievance remained the actions/ behaviour of line management. Employment tribunals also show a slight reducing trend, at an average of 8 per month this year compared to 9 per month in the previous year.

Work-Life balance and Diversity

18. The HRC received a number of reports throughout the year around these issues including the range of work-life balance opportunities currently available to MPS staff, the programme of work for the DOIT team and the implications of the Disability Discrimination Act 1995 for the police service. Members also supported the launch of the Gender Agenda and a number of the events around the issues of visible ethnic minority recruitment and disability.

MetPeople

19. The National Competency Framework (NCF) provides the basis for assessment of police officers and civil staff. It will mean that staff will be objectively judged against the care responsibilities of their role and will be able to understand and work towards the care responsibilities of another role when they wish to develop their career. Members were particularly pleased to note that the NCF will form the basis of future Personal Development Reviews (PDR) and inform the High Potential Development Scheme.

MetHR

20. Members continued to receive updates on the MetHR computer system, which provides an integrated HR Selection on a single database. As it was ‘rolled out’ the new system provides:

All personnel records on a single database;

• Improved management information;
• Standardised HR procedures; and
• Network access across the MPS

Consultation with staff associations, trade unions and support groups

21. The HRC reviewed and revised its programme of regular meetings in order to both regularise these opportunities to consult on current issues and seek views on forthcoming proposals or policies. Individual members of the committee have continued their ‘link’ role with specific groups of staff.

The way forward

22. The HRC would like to see the MPS working towards the safest capital city in the world by having a better paid, better trained, more diverse and flexible workforce, capable of providing the sort of career opportunities and challenges that will attract the best staff. The MPS is on the right road, but there is still a way to go, but jointly the MPA and the MPS will work towards a city and its many different communities that will benefit from an open, honest and professional police service second-to-none.

Equality and diversity implications

This is intended as a factual report on the work of the Human Resources Committee, although it does reflect some of the equality and diversity aspects of the work of this Committee.

Financial implications

None

Report author: Alan Johnson, HR, MPA

Annual report of the Planning, Performance and Review Committee

Introduction

1. The Planning, Performance and Review Committee (PPRC) was formed in July 2002 following the restructuring of MPA committees. The PPRC took the performance monitoring responsibilities from the previous Professional Standards and Performance Management Committee, and the planning and best value responsibilities from the previous Finance, Planning and Best Value Committee.

2. The responsibilities of PPRC include: monitoring performance against targets; overseeing the development of annual and corporate plans, including the setting of targets; advising the Authority on targets to be set in annual and corporate plans; scrutinising areas of performance; discharging the Authority’s responsibilities as a best value authority (including the overseeing of best value or service improvement projects) and monitoring MPS performance in the context of the criminal justice system as a whole.

3. In carrying out these duties the PPRC has due regard to equal opportunities and equalities legislation and positively promotes the Authority’s commitment to equalities and diversity.

4. Detailed below are the main achievements and areas of work for the PPRC from July 2002 to June 2003. These are detailed in four main sections: planning, performance, review and criminal justice issues.

Planning

National plan

5. The Home Office published the first National Policing Plan in November 2002. PPRC has considered the National Policing Plan and has ensured that the 2 year strategy and 2003/04 Policing and Performance Plan have been consistent with and have had due regard to the National Plan.

2003-2005 Strategy Plan

6. Following the publication of a strategic framework for the MPS, Towards the Safest City, and the National Policing Plan, the PPRC, through its sub-group the Planning Panel, oversaw the production of the 2 year strategy – Towards the Safest City – The Strategy. This was published at the end of March 2003 and sets out five goals for the MPS over the next few years:

• Developing safer communities
• Securing the capital against terrorism
• Revitalising the criminal justice system
• Developing a professional workforce
• Reforming the delivery of policing services

7. The strategy also includes plans of how these goals will be achieved, key initiatives for each goal, annual objectives and targets for each goal and links to the National Policing Plan. PPRC has been responsible for ensuring that the strategy meets the needs and statutory responsibilities of the Authority, before final agreement to the strategy by the Full Authority.

2003/4 Policing and Performance Plan

8. The Planning Panel sub-group of PPRC also had oversight of the 2003/4 Policing and Performance Plan. PPRC was responsible for ensuring the development of priorities, objectives and targets for the plan, balancing the needs of members, results of community consultation, requirements in the National Policing Plan and professional judgement from the MPS senior management team.

9. Four priorities for Londoners were agreed:

• In partnership, to promote safer communities for Londoners
• Securing the capital against terrorism
• To improve the quality of service to vulnerable victim groups
• In partnership, to revitalise the criminal justice system

These have 16 associated objectives, with measures and targets.

10. Four priorities for MPS internal excellence were also agreed:

• To expand our approach to include all aspects of diversity
• To manage the demands on the MPS more effectively
• To make best use of our staff and resources
• To develop a strategic analytical capability in the MPS

These have 11 associated objectives, with measures and targets.

11. PPRC members had detailed input in the priorities, objectives and targets as they were developed, before agreement at the Full Authority. The final draft plan was presented to and agreed by the Full Authority in February 2003, and published in March 2003. The plan can be viewed on the MPA website. A summary of the plan is also available.

Audit of the 2002/3 Policing and Performance Plan

12. Each year the District Audit carries out an audit of the Annual Policing and Performance Plan. PPRC received the audit report for the 2002/3 plan. This contained no statutory recommendations but a number of non-statutory recommendations were made. In May 2003, PPRC received an implementation plan from the MPS detailing how these recommendations will be actioned and will continue to monitor progress.

Performance

Monitoring of policing plan targets

13. PPRC is responsible for monitoring performance against annual policing plan targets. It has received a performance report at every meeting during the year and has asked for more detail and in-depth reports into any areas where performance has caused concern or where more information was required by members.

14. A 2002/3 summary performance report was received in May 2003, with a more detailed report to be presented in July 2003. Of the 22 targets set in 2002/3 by the MPA for the MPS to achieve, 13 were achieved, 8 were not achieved and one was not applicable for monitoring during the year. This represents a considerable improvement on the 2001/2 performance.

15. Those targets achieved included reductions in street crime, burglary and autocrime and an increase in judicial disposals for burglary. Judicial disposal rates were also achieved in all four targets set for vulnerable victims: racist crime, homophobic crime; domestic violence; and rape. Four of the five targets set aimed at tackling youth offending were also met.

16. However, it was not all good news. None of the targets measured though customer and public surveys were met, with fear of crime rising, satisfaction with patrol levels falling slightly and satisfaction of victims of racist crime falling. Judicial disposal rate targets for street crime and autocrime were not met, however, the street crime rate improved on the previous year.

In-depth reports performance reports

17. During the last year the PPRC has received a number of more in-depth reports on performance detailing areas such as differences in borough performance, reporting on success of initiatives, new initiatives planned and factors influencing performance. Subjects considered in performance reports included:

• Street crime
• Burglary
• Autocrime
• Human trafficking and immigration crime
• Rape – including implementation plans for a scrutiny carried out into rape investigation and victim care by the committee in 2001/2
• Drugs
• Customer satisfaction
• Child protection
• Domestic violence
• Gun crime

18. Considering performance in these areas helps members of PPRC understand the issues of performance in greater depth. It also helps concentrate MPS management focus on areas of concern and interest to the authority and helps the authority make judgements about future years’ targets. PPRC also identifies any areas of concerning performance through its overall view of policing plan targets and refers these on to other committees where appropriate.

19. Performance reports over the last year have prompted PPRC to carry out a scrutiny into Crime and Disorder Reduction Partnerships, discussed below, and have highlighted areas where members, on behalf of Londoners, have specifically requested targets to be set, for example human trafficking which members also ensured became a priority for the 2003/4 policing plan.

20. Additionally, PPRC has started to look in greater depth at specialist crime and specialist operations departments. It now receives a bi-monthly report on overall performance indicators and more in-depth reports on individual units.

21. A number of members of PPRC have become interested in areas covered by the in-depth reports and have carried out research and held meetings to understand the issues in greater depth. In particular, members have become Authority leads or have developed a key interest in areas such as child protection, customer satisfaction and access to services and criminal justice issues.

CDRP scrutiny

22. At its meeting in February 2002 the former PSPM committee decided that Crime and Disorder Reduction Partnerships (CDRPs) would be the topic of the next scrutiny. The scrutiny started in March 2002 and was completed in early 2003. A cross-committee panel of 8 members, co-chaired by Cindy Butts and Richard Sumray, lead the project, supported by the planning and performance unit. Members of the panel were required to put significant time and effort into the scrutiny.

23. The scrutiny focused on the MPS contribution to CDRPs, assessing its strengths and weaknesses and looking at examples of good practice. In addition, the Police Reform Act 2002 made police authorities in England and Wales statutory partner in CDRPs. Hence the scrutiny also looked at how best the MPA could usefully fulfil its new role, from April 2003 onward.

24. Oral and written evidence was collected from a wide range of people, MPS officers, CDRP partners, researchers, and other pan-London organisations involved in the field of CDRPs. Based on the evidence collected, 35 recommendations were made, which aimed to raise the standard of the MPS contribution to CDRPs and to set up the framework of the MPA engagement in CDRPs. These recommendations were agreed by the Full Authority in its January and February 2003 meetings.

25. PPRC is the lead committee to monitor the implementation of the recommendations made on planning and performance issues. As such, it requests MPS and MPA updates on the progress being made toward the implementation of these recommendations every six months.

26. An implementation plan detailing how the MPS is taking forward the recommendations made was presented to PPRC in May 2003. An update on the MPA current and future arrangements to implement its statutory role was also provided.

Review

27. In January 2003 PPRC approved the final report for the bringing offenders to justice best value review. This review proposed a number of significant changes to improve the handling and charging of prisoners, the quality of case files and the care given to victims and witnesses. The review also recommended setting up a central criminal justice command unit – this recommendation was implemented quickly and the unit is now responsible for implementing the review.

28. A best value review of managing demand was initiated and delivered between July 2002 and May 2003. The final report proposed improvements to the way the public interact with the police through front counters, the internet and by telephone, as well as exploring one stop shops and mobile stations in more depth. Changes to the management of response in terms of an effective crewing policy, improving standards of supervision, new call grading protocols and a review of shift patterns were also accepted by the committee.

29. PPRC has also monitored the progress of previous reviews, receiving regular implementation plans for the records and crime management reviews. Reviews of training and retention were overseen by Human Resources Committee during the relevant period.

30. In January PPRC chose to take advantage of the relaxation in the statutory requirement to carry out best value reviews of all services over a five year period by reassessing the review programme and process. As a result members decided that only two reviews a year would be carried out, and that subjects for review would be proposed by MPS Management Board on an annual basis. This process allows the MPA to respond to issues arising during the year and carry out focused reviews in areas where members wish to see improvement. In addition the review process has been redesigned to deliver shorter, less bureaucratic reviews led by MPS consultants to release police officers for other duties.

31. In order to signify the change ‘best value’ has been rebranded. The two subjects chosen for the new ‘service improvement review’ process in 2003/04 are operational support policing and staff deployment. The project initiation document for the first of these reviews is due to be presented to members in July 2003.

32. Building on changes to the process of best value review (see above) the committee has started a dialogue with the MPS plus external inspectors / auditors about the need to improve the overall regime of audit, inspection and review. There is some concern that, although the amount of activity concerned is substantial, independent decision-making leads to overlap and a risk that areas which ought to be looked at in detail are overlooked.

Criminal justice

33. The white paper on criminal justice – Justice for All was published in July 2002. PPRC members oversaw the MPA response to the white paper and co-ordinated with the MPS in providing their response. The white paper and subsequent bills have set out key changes required to the criminal justice system, many of which are being implemented in London and monitored by the committee.

34. During 2002 members of the committee oversaw a fundamental review of the way in which offenders were brought to justice by the MPS. This major exercise, undertaken on the MPA’s behalf by the MPS, led to twelve recommendations. These were approved in January 2003 and are now being implemented. They include:

• introducing dedicated teams to process prisoners quickly and effectively and help release police officers back to operational duty;
• introducing dedicated resources to improve the support and advice given to victims and witnesses of crime;
• introducing professional lawyers ‘at the point of charge’ to help ensure criminal cases are robust and less likely to fail on (e.g.) technicalities.

35. The committee believes these developments represent major steps forward and lead members are actively monitoring progress and delivery of benefits.

36. A national framework of ‘local criminal justice boards’ has been set up by the government to provide local opportunities for key organisations to coordinate work to improve performance (e.g. by delivering a 6% increase in the number of offenders brought to justice). Lead members of the committee have been actively engaged in this development and, via negotiation, ensured that recommendations from the MPA’s own review (see above) were reflected in the work of the London board.

Challenges for the coming year

37. The above report shows the work of the Planning, Performance and Review Committee over the past year. The committee faces many challenges for the coming year in each of these areas and in criminal justice.

38. The committee will need to oversee the development of the 2004/5 plan, ensuring it meets the strategy and addressing how it will be co-ordinated with local Crime and Disorder Reduction Partnerships. Early in 2004 the committee will also have to look towards the production of the next 3 year strategy.

39. Monitoring policing performance will be a challenging area over the next year. The Home Office is working on its Policing Performance Assessment Framework, some of which will be developed for 2004/5 and is due to publish a second set of Performance Monitors later this year. PPRC will need to monitor how the MPS performs compared with other large forces and also to see how these developments impact on the MPA’s policing plan and strategy.

40. The committee will also need to oversee the change to service improvement reviews and concentrate on the reviews of operations support policing and staff development to ensure the process meets the Authority’s requirements.

41. Finally, criminal justice issues will be a very challenging area for the committee to monitor and influence change. The new local criminal justice boards are in place and the committee will need to work with these to set targets and monitor MPS performance. Significant changes are also taking place in the MPS, as outlined.

Equality and diversity implications

The committee has ensured that all reports it has received during the year contain equalities and diversity implications. Some of these are significant, such as performance monitoring in areas of crimes against vulnerable victims, human trafficking, drugs and customer satisfaction. Criminal justice issues have also included a number of diversity implications, highlighting the need to provide equality of service for victims and offenders. Equality and diversity implications are detailed in individual reports.

The committee also ensured that it contributed to the accomplishment of the MPA duties under the Race Relations (Amendment) Act 2000. Any areas of concern identified with regard to race discrimination were reported to the Equal Opportunities and Diversity Board and followed up.

Financial implications

Similarly, each committee report gives details of the financial implications. In terms of planning and performance, the setting targets overseen by the committee will impact greatly on the budget submissions and spending by the MPS during the year to meet performance targets. Best value reviews all contain a number of recommendations aimed at improving efficiency and often providing savings. To improve the criminal justice system has required review and significant expenditure in areas such as joint relocation with the Crown Prosecution Service and the development of victim and witness focus desks.

Report author: Johanna Gillians, MPA.

Annual report of the Professional Standards and Complaints Committee

Background

1. The Professional Standards and Complaints Committee (PSCC) has continued to carry out its responsibilities in accordance with both its terms of reference, attached at Appendix 1, and incorporating its statutory responsibilities. The Committee met five times during the year and has overseen the work of both the Association of Chief Police Officer (ACPO) Conduct Sub-Committee and the Police Appeal Tribunal process.

Complaints management information

2. The PSCC considers a report at every meeting outlining the performance of the Directorate of Professional Standards (DPS) against an agreed set of performance measures including trends covering all areas of activity. Members have been pleased to note that the reduction in the number of internal investigations and complaints over 120 says old. There were also encouraging reductions in other areas, e.g. of officers suspended, the time taken for CPS/PCA decisions, the number of public complaints etc.

Timeliness of complaints

3. Linked to the issue of meeting the 120-day performance set by the Home Office, a regular report was considered by the Committee looking in detail at the time taken at each step of the procedure. There was a recognition that issues such as complexity and bureaucracy, and quality versus quantity would invariably have an impact on this

Oversight of police complaints and discipline

4. Members agreed a process for carrying out their statutory responsibility to monitor police complaints. This will involve the Clerk selecting up to 12 closed cases and providing the files for member’s consideration at least seven days before each meeting. Members would have the opportunity to ask questions at that meeting about the cases they had received and formal responses would be provided at the following meeting.

Compensation cases/employment tribunal grievances

5. PSCC received regular reports on the settlement of cases by the Commissioner, including details of cases where a decision may need to be made by the Authority to settle a claim for compensation. There were also reports on the current position with Employment Tribunals and grievance cases, high profile inquests and other significant/exceptional cases, including trends.

Reducing complaints and strengthening integrity

6. Members considered progress reports on plans to reduce complaints and strengthen integrity both through the actions of DPS and arising out of the best value review of complaints and Her Majesty’s Inspector of Constabulary recommendations (which were all implemented).

Reporting wrongdoing

7. PSCC considered a report on the operation of the reporting wrongdoing procedure, which was based on the Public Interest Disclosure Act. The report included the statutory framework, a brief explanation of the process in the MPS (including the support provided to staff invoking the procedure), management information and some proposals for change. A number of examples helped members put the process into context.

Learning lab

8. The PCA, CPS and MPS had formed a learning lab to review the process arising form complaints, identify and making recommendations on providing a better service to complainants and police officers and consulting on the recommendations. Members considered a report outlining what the review had identified, what had been explained and the future for the Learning Lab, including continued police authority involvement. Amongst the potions considered was the use of restrictive justice.

Anti-corruption activities

9. Members received a report on the anti-corruption activities of the Internal Investigation Branch (IIB). There was recognition that these cases needed sensitive handling both in terms of organisational learning and public confidence expectations. The media strategy in each case was very important.

Sanction guidelines

10. Members considered and commented upon the sanction guidelines to be used wherever an officer has been found to fail to meet the appropriate standard of conduct such that the matter has been found to be proven. It was recognised that where a given aspect of proved conduct could be viewed against the criteria, it remained a matter for members of the disciplinary hearing to decide upon the appropriate sanction in the light of any aggravating or mitigating circumstances.

Service confidence procedure

11. The service confidence procedure was used when, for example, source sensitive information indicated a police officer may be compromised in his or her current role but it was not possible to proceed with disciplinary or criminal proceedings. Members considered a report that provided the background, rationale and management information on the procedure. It was considered a very successful tool in dealing with a difficult issue.

Professional Standards Strategy

12. At each meeting members considered a report on a different strand of the Professional Standards Strategy, including the work plan and timescales. The work for the next five years will be organised under five new strands of activity:

• Leadership and supervision
• Security of information and intelligence
• Recognition of the diversity of our communities and staff
• Identifying and reacting to organisational and individual learning
• Maintaining the threat of detection, prevention and management of risk

13. Members were conscious that the overwhelming majority of staff were honest, professional and brave, but recognised that there are still a few police officers and support staff that are involved in corrupt, dishonest or unethical behaviour. There was also a continuing threat from those who seek to corrupt our colleagues.

Equality and diversity implications

This is intended as a factual report on the work of the PSCC, although it does reflect some of the equality and diversity aspects of the work of this Committee.

Financial implications

None

Report author: Alan Johnson, MPA.

Annual report of the Standards Committee

1. The Standards Committee is a statutory committee, being a requirement of the Local Government Act 2000. Standards committees are part of the Government’s ethical framework for local government which articulates the standards of conduct which members of public authorities are expected to meet in carrying out their public duties.

2. Up to now standards committees have had a fairly limited role, largely restricted to upholding the standards of members’ conduct and monitoring the operation of the Authority’s code of conduct. This is starting to change. Recent regulations enable Ethical Standards Officers (who are appointed by the Standards Board for England) to refer completed reports on allegations against members to standards committees for decision. Later in the year further regulations are expected to enable the local investigation of some allegations, on referral from the Standards Board for England.

3. In many ways, the Standards Committee is unlike other MPA committees. Arguably, the fewer times it meets the more successful it is (if this is a measure of the standards of members’ conduct in the Authority!). It is also different from other committees in that it has two members who are not Authority members – the legislation requires at least 25% of the committee’s membership to be persons independent of the Authority. Those two members are Stephanie Caplan and Ian Whitburn.

4. The Standards Committee held its first meeting in March 2002. Since then it has met in January and May of this year. For completeness, this report covers all three meetings. There were some membership changes during the year, but the committee ended the year with the following membership:

• Cecile Wright (Chair)
• Ian Whitburn (Deputy Chair)
• Jennette Arnold, Stephanie Caplan, Nicholas Long and Eric Ollerenshaw

The Committee is supported and advised by David Riddle, the Authority’s Deputy Clerk and Solicitor, who acts as the Authority’s Monitoring Officer.

5. The Committee’s initial responsibility was to consider and recommend to the Authority a Code of Members’ Conduct. The Authority adopted the Code in April 2002 and all members have signed an undertaking to abide by it.

6. The committee has considered and recommended to the Authority on changes to key elements of the Authority’s corporate governance framework, namely the Authority’s Standing Orders and the scheme for the payment of members’ expenses. The committee has also considered ‘job profiles’ setting out the role of and expectations on MPA members. In doing so, the committee recommended to the Authority that there should not be a process for reviewing the performance of individual members, but that each committee should produce an annual report to provide the opportunity to review its activities over the past year.

7. The committee will continue to monitor any issues related to member conduct, interests and remuneration as well as appropriate wider corporate governance issues. As mentioned above, it is also likely towards the end of the year that it will take on a significant new role in hearing and deciding upon allegations of member misconduct referred to it by the Standards Board for England.

Report author: Simon Vile

Annual report of the Consultation Committee

Foreword by the Chair of the Committee

I am pleased that the Metropolitan Police Authority Consultation Committee is able, in this its first annual report, to demonstrate to Londoners the successes that we have achieved in the first nine months since the Committee’s formation.

There is still a great deal to do, and aspects of the committee’s work, such as the way in which the Authority engages with and seek the views of people at local borough level, is likely to require a radical rethink.

‘Policing by consent’ is not new. This policy of engaging and seeking the view of Londoners on policing, crime and community safety issues has been promoted by the Metropolitan Police Service as one of its key principles. I am keen to see that the Authority enables the MPS to achieve this principle and that consensual policing becomes a reality.

Cindy Butts
Chair of the Consultation Committee

Introduction

The MPA Consultation Committee was established at the annual meeting of the Authority in June 2002 and held its first meeting in September 2002. The decision by the Authority to have a dedicated committee to progress its governance responsibility for consultation followed a fundamental review of the effectiveness of the previous committee structure, which was assessed as relatively ineffective in providing the level focus that was required on consultation and community engagement as a core function of the MPA.

Since its establishment, the Consultation Committee has been in a far stronger position to define, develop and progress the Authority’s consultation and community engagement responsibility.

This annual report highlights the following aspects of the committee’s work:

• Year one successes and achievements
• Progress on the Consultation Committee annual work programme 2002/03
• Developments and challenges
• Resource issues
• Areas for progressing 2004 – 06

Year one successes and achievements

The following are highlights of the successes that have been achieved in the last year:

• Progress towards the development of a clearer consultation framework and structures for MPA/MPS.
• Progress in the implementation of key recommendations arising from the first Best Value report on Metropolitan Police Authority (MPA)/Metropolitan Police Service (MPS) consultation
• Development and London wide consultation on first draft MPA/MPS consultation strategy
• Piloting the role of borough based community consultation coordinator to review borough consultation and community engagement structures and to pilot different structures that will improve effectiveness and efficiencies in the MPA role local consultation partnerships
• Influence over the improvements in the MPS internal consultation structures
• Establishment of a range of partnership relationships to progress consultation and community engagement on policing, crime and community safety issues;
• Four major consultation exercises organised on key policing and crime and community safety issues
• Review of the MPS annual Public Attitude Survey (PAS) to ensure improvements are achieved for the whole service and the Authority
• Excellent working relationship with key radio stations such as Kiss FM and Choice FM who have actively engaged with the Authority on promoting and raising the debate on key issues affecting the black minority and ethnic (BME) communities
• The MPA Link Member role in informing the Authority of emerging as well as outstanding local consultation matters, primarily linked with Community and Police Consultative Groups and Independent Custody Visiting Panels.
• Membership on the Government Office for London BME Cracking Crime Partnership Board looking into the BME community role and involvement in crime and community safety issues
• Review of the MPA statutory responsibility and relationships with Community and Police Consultative Groups (CPCGs)
• Improvements in move to improve accountability of CPCGs
• Internal MPA structures to be able to progress a range of improvements in MPA Independent Custody Visiting (ICV) scheme

1. Governance and strategic overview framework for MPA and MPS consultation and community engagement

One of the prime focuses of the Consultation Committee during its first term has been that of reviewing and developing a coherent and sustainable consultation framework for the MPA and MPS.

This has proved to be a most challenging task, bearing in mind that the MPS did not have a dedicated consultation structure nor well developed processes in place prior to the creation of the Authority. The appointment of a lead senior officer with responsibility for consultation has taken some time to achieve, however the appointment of a Consultation Manager for the Service has proved highly beneficial in progressing this area of work.

More recently the Committee have undertaken to work with the Office for Public Management to lend its expertise in this area to ensure that the framework that is developed is comprehensive, flexible and sustainable, taking into account the need for processes that will address the statutory and good practice as well as the corporate, pan-London and borough consultation coordinated and supported by the MPA.

2. MPA ‘Link Member’ Role’

The Authority took the decision very early in its formation to implement the role of ‘Link Member’, whereby each MPA member would have a specific link with a local borough they live in or represent politically. The purpose of this role was to ensure that the MPA, through the local member is:

• Consults with and is consulted with by the local community on crime and community safety issues
• Promotes inclusiveness and diversity in all aspects of the work of the Authority
• Makes sure that the specific concerns of the borough are raised with relevant officers and MPA committee.

Members have undertaken this role to varying degrees, however it has proved extremely useful in reporting back and making sure that local and Borough concerns, especially those of CPCGs.

2. MPA/MPS consultation

At its inception, the Committee was faced with a largely uncoordinated, and largely incoherent consultation and community engagement processes. Whilst this was emerging, it was evident that there was a great deal to be accomplished.

The MPS Consultation Manager and MPA officers have worked well together over the term of the committee to progress a number of areas to achieve the strategic consultation framework that is required. Although there has been good progress in some area, others have been slower in being achieved.

The achievements to date have been:

• Increased engagement and consultation with borough commanders on progressing aspects of the consultation framework and emerging consultation strategy
• Development of guidance to borough commanders concerning local consultation on the policing priorities, including the need to interface and seek the views of groups and communities that may have previously been disengaged on policing issues
• Increased internal monitoring on the consultation processes in place by different directorates
• Detailed review and consultation on the redrafting of the MPA/MPS draft consultation strategy
• Improvements in the use of electronic (E) consultation on the annual policing priorities and the evaluation of the outcome of other consultation methods that inform the annual priorities.

Further areas of improvements have already been identified for progressing the MPA/MPS strategic overview of consultation and much of the work in the next phase of the Committee’s work programme must be to build on and extend on the improvements that are already in place as part of its programme of continuous improvement in this important function for the Authority.

3. Consultation budget

In the financial year 2001/02, members approved the application for a total consultation budget of £462,000. This budget excludes that separately allocated to fund CPCGs and ICV Panels that totals £1,024,000. This budget represents a significant decision by the MPA to prioritise and enhance its governance for consultation and community engagement and reassurance.

4. Annual work programme

This is the first year that a clearly defined and achievable work programme was set out for the committee. The progress against each activity is outlined below:

4.1 Staffing and resourcing

A policy development officer took up post in September 2002, but this post became vacant after four months. After much delay in the recruitment process, a further appointment was made in June 2003. In effect, therefore, the committee has had the equivalent of 0.5 FTE staff to progress much of its work programme in the last financial year. This has significantly reduced the level of success that could have been achieved in the past nine months; however, the Committee has had some successes and has been able to make significant improvements in some aspects of its work.

4.2 Development and publication of the MPA/MPS consultation strategy

A draft consultation strategy has been in place for several months. For four months, between December 2002 and April 2003, pan-London consultation, including E electronic consultation was initiated to seek the views of Londoners on the draft strategy. Copies of the strategy were distributed to the key stakeholder organisations and internal consultation has been held in the MPS. Overall, the response to the draft strategy has been positive. Aspects of the strategy receiving positive comments from those that responded to the draft document include:

• clear definition of consultation
• equalities and diversity principles in consultation
• priority groups inclusion in MPA consultation
• principle of engaging with wide range of parties and stakeholders in the MPA consultation

Of the 32 CPCGs that were consulted on the document, five submitted written responses. The aspect of the strategy that received least positive response, almost exclusively by CPCGs, was the method for achieving a ‘quick time’ consultation whereby the MPA/MPS will be able to seek the views of specific groups, organisations and/or individuals on a ‘quick time’ basis, say within 36 hours. From the responses received from the CPCGs, it was evident that whilst CPCGs were willing to take part in this process, the frequency of their meetings made it unrealistic for them to do so within the timescale required.

There was also a high level of concern voiced in the response of CPCGs on the principle in the strategy for a minimum six-week timescale for consultation. The Groups overwhelmingly proposed a longer timescale of 8 – 12 weeks as being the preferred time frame in which they would be able to respond to the MPA and MPS requests for consultation on a given policing matter. This is an issue which this Committee will need to give due consideration in its planning where it wishes to continue to seek the views of CPCGs on key pan-London policing issues within a given minimum timescale.

The MPS also undertook a dedicated consultation on the draft strategy, and whilst there as overall support for various aspects and principles contained in the document, it was evident that further work was required in areas such as language and presentation in order to make the strategy equally applicable to the Authority and to the Service.

The consultation process has resulted in a range of improvements that will need to be made and the MPA/MPS consultation strategy is a ‘living document’ and as such will be subject to continuous revision and updating to reflect best practice as these emerge.

Following final amendments, the strategy will be published and launched in Autumn 2003.

4.3 Community engagement and consultation meetings and partnership support

The following events are highlighted to demonstrate the range and types of community engagement and consultation meetings and partnership initiatives that this committee has initiated,

• July 2002 - GLA Respect Festival – over 2000 in attendance
• February 2003 – Gun Crimes Public meeting - 150 in attendance
• March 2003 - Consultation and implementation of Recommendation 61 in Hackney Borough
• consultation with Race Equality Councils (REC) on the borough implementation of the MPA and MPS race equality schemes
• participation in the Home Office research into the Police Authority role in community engagement

In addition, the Committee has supported a range of community engagement and consultation initiatives including support for the Haringey Peace Alliance Peace Walk (2002) and the Choice FM Gun Summit (March 2003).

4.4 Partnership events/initiatives

4.4.1 Government Office for London (GOL)/ Greater London Authority (GLA) Black Minority Ethnic Community Cracking Crime Partnership Board

A major pan-London initiative to provide information and support to small BME crime and community projects to enable them to become more engaged in the local crime and disorder reduction partnerships and crime and community safety issues.

4.4.2 GLA Group Consultation Network

Consultation on developing processes, identifying and publicising best practice and providing opportunities for joint working for progressing the recommendations arising from the ‘Listening to London Review’ among members of the GLA Group and pan-London statutory and voluntary agencies.

4.4.3 Commission for Racial Equality

Race Equality Scheme Best Practice Network – working in partnership with the CRE and MPS to promote some of the best practice developed by the MPA and MPS on consulting and engaging the public on the Race Equality Scheme. This well-established network is now attended by police service and police authority representatives from London and the southeast.

4.4.5 Haringey Peace Alliance Annual Peace Walk

The MPA has contributed a small amount of funding to support the peace walk, which the MPA Chair, Lord Toby Harris and other members of the Authority have participated in. The MPA is continuing its well established partnership with the Peace Alliance and will be working closely to organise the first major MPA event to engage faith leaders on policing, crime and community safety issues and to consult with them on the annual policing priorities. There will be a report of the outcome of this event. It is worthwhile highlighting that because of the lead that the MPA has taken in purposefully seeking to engage with faith leaders, the other major crime and community statutory agencies (GOL, GLA, ALG and MPS) are now working in partnership with the MPA to engage with this group also.

4.4.6 London Civic Forum

The MPA Consultation Committee has continued to develop a good working relationship with the London Civic Forum (LCF). The forum has a well-organised structure for engaging and seeking the views of Londoners through the different ‘chapters’ that make up its membership. This arrangement has served the MPA’s consultation responsibility well. This year, the MPA and London Civic Forum will be continuing that partnership in facilitating a series of focus groups to seek views on the 2004/05 policing priorities. The results of this initiative will culminate in a report to be published in November 2003.

4.4.7 Black Londoners Forum

Like that of the LCF, the MPA has continued to work with the BLF to coordinate key consultation with the BME community. Additionally, the BLF has an established network of younger people that could be consulted on a range of issues.

4.4.8 MPA Review of the MPS Diversity (Community and Race Relations (CRR)) training

As part of its evaluation into the MPA CRR training, the Committee has worked in partnership with the Association for London Government taking part in the annual survey that is conducted by local authorities. This year, the MPA were able to place two questions on this survey, which was completed by residents in eleven London boroughs. Additionally, a number of focus groups of residents, local community representatives have been carried out in four London boroughs.

5. Other partnership arrangements

This committee has been keen to engage with the range of groups and communities. The GLA Group ’Listening to London’ Best Value review (2001) identified eight equality target groups, which it was felt would be good practice to engage in all major pan-London or local borough consultation exercises. The committee agreed with this proposal and has taken steps to ensure that it establishes partnerships with groups and organisations working on behalf or representing the views of the following:

• women
• black and minority ethnic people
• disabled people
• groups identified by sexuality (i.e. lesbians, gay men, bisexuals and transgendered people)
• age groupings (i.e. older people, young people, children)
• faith groups and communities

In addition to these, the Committee has tried, with measured success to see that it actively engages with a range of social inclusion target groups. This is an area requiring further development in the coming year.

6. The establishment and maintenance of an MPA/MPS Citizens Panel, to include a youth panel

The MPA/MPS should see the establishment of their first citizens’ panel by the end of 2003. Progress towards establishing a citizens’ panel has been slower than expected. However, final proposals have now been put before members of the Consultation Committee and should these get approval, steps will be progressed to establish a 1,000 strong panel, with a specific youth ‘boost’. The establishment of a citizens’ panel will add significant benefits to the MPA’s ability to actively engage and seek the views of a range of Londoners on the full range of policing issues. Significantly, the panel will have the capability for getting ‘quick time’ responses to emerging policing policies and initiatives on which the Authority may wish to seek views. Subject to final approval, the Panel will be established in November 2003.

7. Development and maintenance of E-consultation networks to seek views from MPA/MPS priority groups and communities

The MPA has held E consultation on a number of work areas in the current year, these include:

• consultation on the MPA Crime and Disorder Reduction partnership Scrutiny
• consultation on the Draft Consultation Strategy
• consultation ion the MPA role in assessing Gun Crimes
• fatal incident and police suspensions project, and
• annual policing priorities

The level of response to each of these areas have varied, however, it is encouraging that members of the public continue to represent their views by means of internet on a range of MPA and MPS issues.

This year significant progress has been by the MPA and MPS to work with an external provider to implement an extensive London wide e-consultation on the 2004/05 policing priorities. Invitations to take part in the consultation will be sent out to well over 200 organisations already on the MPA and MPS consultation databases. It is hoped that this will result in a far greater level of people actively taking part in the consultation than in previous years.

8. Greater London Authority/Government Office for London Cracking Crime Project and partnership board

The MPA has been a key partner and contributor to this initiative since it was initiated in March 2002 following the BME cracking crime conference. A multi agency steering group was established to progress the outcomes of the conference and it was agreed that a discussion paper focusing on the concept of a BME crime reduction network be produced and considered by the steering group. A paper was produced for consideration in October and a number of actions were highlighted for progressing by the key agencies involved. It was also proposed and agreed that a consortium bid needed to be developed outlining the further work that was required to meet the identified gap in the level of involvement in the BME communities and groups in the local crime and disorder reduction partnerships framework.

Detailed research was carried out in two London boroughs to identify the level of BME communities and organisations in crime and community safety issues and the issues the faced relating to accessing funding for their work. This report has informed the work that is currently underway. This work is now well developed and the BLF and London Action Trust have been funded by the GOL to appoint staff to develop a clear fundraising strategy for the project. The MPA is represented on the partnership board that is over viewing this work and will be contributing to the ongoing development of this important project.

9. Developments and challenges

9.1 Community and Police Consultative Groups (CPCGs)

There are currently 32 CPCG in London. These groups were inherited by the MPA and have their origins in the Lord Scarman report following the 1981 riots. CPCGs form part of the framework of consultation processes available to the Authority to seek the views of the public at local borough levels.

The CPCGs have had a significant leadership role in establishing and strengthening local police-community interaction over the last 20 years. However recent statutory and legislative changes (such as the Crime and Disorder Act 1998 and the GLA Act 1999, which transferred the statutory responsibility for consultation from the Commissioner to the Police Authority), as well as the arrangements that have been developed by other organisations, such as local authorities, who now have a key responsibility addressing local crime and community safety issues, have meant that there are now a range of local structures that presents challenges to the historical role of CPCGs.

The MPA Best Value Review (2001) and subsequent reviews by the Home Office, Association of Police Authorities among others, have identified a range of challenges regarding the effectiveness of CPCGs, including their representativeness and their ability to purposefully engage with the diverse groups and communities whose views need to be sought at local borough level on crime, community safety and policing matters. The Committee has had to carefully weight up this information and take action where necessary within the knowledge of the well-established historical role of CPCGs that is valued by certain sections of the community, and particularly by the Group’s membership. This has not always been handled with the sensitivity that has been required and some CPCGs have found it extremely difficult to accept the governance role of the Authority.

The Committee has been continuously looking into ways in which it can work with CPCGs to enhance their accountability for the funding that they receive annually. One of the requirements that were placed on CPCGs in 2002 was that of producing an annual work plan, linked to their budget requirement. The 2003/04 funding process saw significant improvements in the number of groups that submitted supporting work programmes as a basis for their annual funding.

A major initiative was initiated to review the constitutions of the CPCGs groups, based on the early legal advice received; since then, further legal advice is being sought in order to fully clarify the relationship between CPCGs and the MPA. The Committee will continue to consider what improvements the MPA will pursue; this will be informed by the views of CPCGs, the public and expert advice. These will form part of its progress towards achieving a broard consultation strategic framework for the Authority within the next 12 – 18 months.

There have been particular difficulties with the MPA administration arrangements which have resulted in inefficiencies in the working relationships with some CPCGs. There have also been difficulties with financial administration of the Groups resulting in strained relationships between CPCGs and the Consultation and Diversity Unit, which have the overview responsibility for this area of work. Steps have already been taken to address commitment has already been given to achieve continuous improvements in this area the coming year.

The Committee will see to it that this work is performance driven and that the Groups receive a marked improvement in the level of service that it has, to date, received from the MPA officers. It is accepted that the changes that have been progressed have been difficult both for the MPA and for the CPCGs. Clearly the Authority is obligated to continuously review and propose changes where these are identified as needed. Many Groups accept this and are keen to work enable the Authority to achieve this. The Committee will want to work closely with these groups while it continue to explore ways of engaging those that see less of a requirement for the changes and improvements that are inevitable.

9.2 Independent Custody Visiting (ICV) Panels

Independent Custody Visiting Panels became a statutory responsibility for the MPA on 1 April 2003. Before that date, a number of initiatives were underway to make improvements to the scheme that had been in operation in London since 1981. Each of the 32 Panels operated differently, with different procedures and practices. The drive to harmonise many of the practices in place was initially met with a high level of resistance. However progress has been made in this area, and some of the achievements to date are:

• the development of a draft MPA Handbook for ICVs
• progress towards common ICV identity cards
• the development and use of a common IC visiting report form
• MPA insurance cover for all ICVs in London
• a regular programme of training and development for ICVs
• the recruitment of experienced ICV trainers to deliver training

There are, of course and number of challenges to be addressed in the coming year, these include:

• adequate administrative resourcing of ICV panels
• development of common codes of practices
• the collection of ICV data to inform the MPA overview and statutory responsibility in this area.

9.3 Community Consultation Coordinators

In September 2002, the MPA appointed three Community Consultation Coordinators (CCCs) to pilot and test different models for local borough community consultation and engagement in the boroughs of Hackney, Kensington and Chelsea and Greenwich. In each case, the CCCs identified and evaluated the effectiveness of the local community-police consultative arrangements and proposed ways in which these can be further strengthened and the most appropriate means by which the MPA can best fulfil its statutory duty to ‘seek the views of the public’ at borough level, on policing matters. These models are being further refined and will inform the overall strategic decision making of the Authority’s governance for consultation.

As a pilot initiative, the CCC role has been very successful in enabling the MPA to carry out detailed action research and analysis of the community-police consultation processes and the effectiveness of borough local frameworks. The next phase of the work must be to pilot the models proposed by the CCCs and to evaluate how they strengthen community-police partnerships and the capacity of the community to participate in and influence the nature of policing in the boroughs.

10. Areas for progressing in 2004/05

One of the significant areas for the committee must be that of developing a clearer framework for consultation and a clearer definition of the strategic consultation responsibilities. Although the MPA and MPS has worked collaboratively in all aspects of the developments highlighted, the committee may wish to have a much closer focus on the MPS internal processes for consultation.

11. Areas for development

The following are areas that require development in the coming year:

• development of a clear strategic framework and structures for MPA and MPS consultation.
• publication of the first MPA/MPS consultation strategy
• clear definition and policy decisions concerning the role and relationship between the MPA and CPCGs
• ongoing internal improvements in the administration, communication and financial service provided to CPCGs and ICVPs
• further improvements in the structures required supporting and progress developments required for the MPA ICV scheme.

Annual report of the Equal Opportunities and Diversity Board

Foreword by the Chair

This first year of the Equal Opportunities and Diversity Board has been highly rewarding and at the same time challenging.

The Board has influenced and progressed some significant areas of work that are central to the equalities and diversity governance responsibilities of the Authority.

One of the key functions of the MPA is that of engendering public trust and confidence in the police service in London. For many who are members of London’s rich and diverse communities, their experience of policing has, historically, been marred by a perceived lack of tolerance and a profound lack of understanding of the need to deliver a policing service that is complaint with good race and equal opportunities legislation as well as one that reflects and continuously tries to deliver a policing service that respects and values the diversity of the people that it serves.

I am proud of the accomplishments that the Metropolitan Police Service (MPS) has achieved in the area of diversity over many years. To many looking on, the MPS is considered to be a ‘world leader’ in the field of policing diversity. It has demonstrated this commitment by investing significant resources in all aspects of its diversity agenda. It is continuously striving to achieve excellence in this work. The MPS is to be congratulated for engaging some of the most acclaimed academics and diversity leaders to inform and guide it. It is therefore little wonder that it has achieved the measure of success and acclaim that it has.

Such high acclaim makes the work of the Equal Opportunities and Diversity Board one of the most challenging as it seeks to ensure that the MPS maintains continuous improvements in the areas in which it has already made significant advances. The challenge of the board is to ensure that the MPS improves significantly in those areas that continue to present challenges to itself and to the communities that it seeks to ‘police by consent’.

The EODB, and the Authority - having had the opportunity to look more closely at key aspects of the MPS race, equal opportunities and diversity performance - have been made acutely aware that there are indeed a number of areas in which significant and urgent improvements are needed in order to gain the trust and confidence of staff as well as the public. The Board have already begun to influence some of these areas.

Although I remain pleased with the achievements of the EODB during my first year as Chair, I am acutely aware that there remains a great deal to achieve in the coming years. In order to achieve these, many of which the Authority has already signed up to, such as the progression and implementation of the MPA Race Equality Scheme and the recommendations arising from the GLA Group Equalities for All review, decisions will need that will ensure that the staffing resource is available.

It is my vision that the MPA will assert its leadership in ensuring that it achieves excellence in its race, equal opportunities and diversity performance and practice as well as excel in its overview of the MPS to achieve the level of public trust and confidence in policing in London, which is a vision for all communities.

There are a number of individuals who have contributed to the success of the EODB in its first year and I want to take the opportunity to thank them. Within the MPS, the Deputy Commissioner, Ian Blair has lent his personal support to the work of the Board, as has Cressida Dick, the former Head of the Diversity Directorate. Lee Jasper and colleagues of the GLA have provided assistance and challenge where this was needed.

I also want to thank the following MPA staff for enabling me to achieve the standard of performance that I have set for the EODB, Catherine Crawford, the clerk to the Authority, Julia Smith, Head of Consultation and Diversity, John Crompton who has been an excellent and most reliable committee officer. Thanks also to Jude Sequeira, Johanna Gillians, (who has since left the Authority), and Tim Rees for his expertise in setting up the scrutiny on Stop and Search.

Cecile Wright
Chair of the MPA Equal Opportunities and Diversity Board
July 2003

Introduction

The Equal Opportunities and Diversity Board was formed out of the Consultation, Diversity and Outreach Committee in 2002. This was undertaken to address the need to provide more focussed consideration and direction on the MPA’s race and equal opportunities statutory and governance responsibilities as well as in the business processes of the Authority. More specifically, the EODB was established to enable the MPA to give greater scrutiny and guidance to its own responsibilities under the Race Relations (Amendment) Act 2000, as well as provide a monitoring and appraisal role of the diversity initiatives of the MPS.

Section 404 of the Greater London Authority Act 1999 requires the MPA to promote equality of opportunity for all persons, irrespective of race, sex, disability, age, sexual orientation or religion.

• To eliminate unlawful discrimination; and
• To promote good relations between persons of different groups, religions, beliefs and sexual orientation.

These duties are specific to the MPA and do not currently apply to any other police authority in England and Wales and preceded the specific requirements of the General Duty of the Race Relations (Amendment) Act 2000.

The are other legal requirements that the Board has to also comply with, including the:

• Race Relations Act, 1976
• Sex Discrimination Act
• Disability Discrimination Act

Additionally, there is a range of employment duties and European directives that the Board will need to ensure that the MPA is implementing.

The Terms of Reference of the Board gives it a prime function to provide direction and guidance to other MPA Committees on the way in which they mainstream race and equal opportunities into their deliberations and activities. The Authority’s own internal structures and processes is an area that requires further development and which the EODB will be making a priority in the coming year.

The remainder of this report documents the achievements of the Board in its first year, and highlights some of the challenges that the Board have yet to achieve.

Year One Achievements

In its first year the Board has progressed the following notable achievements:

Projects and initiatives

• Development and approval of an annual work programme with key targets and outputs.
• Initiated the first scrutiny into the Metropolitan Police Service policy and practice on stop and search.
• Overviewed key aspects of the implementation of the MPA Race Equality Scheme including the establishment of an external reference group to give objective and independent consideration to the Authority’s and the MPS progress on key aspects of its schemes.
• Contributed to and participated in the first GLA Group Best Value Review of Equalities resulting in the public ‘signing up’ to the recommendations arising from the ‘Equalities for All’ report which was launched in September 2002.
• launched the London Hate Crimes Forum, a forum that will bring together the key criminal justice, statutory, voluntary and community organisations to coordinate approaches and protocols for dealing with race hate crimes across London.
• Regularly monitored and reviewed the performance of the MPS on key policing policies and operations especially where these impacted on the key equality targets of the MPA.
• Established processes for receiving regular reports and briefings on the work of the MPS Diversity Directorate, the Development and Organisational Implementation Team, Diversity Training Directorate and other directorates that have the lead responsibility for progressing equal opportunities and diversity matters in the MPS.
• Progressed the independent evaluation of the MPS Community and Race Relations (CRR) Training in order to assess the effectiveness of the training and influence that it has had on the delivery of fair and equitable police services to London diverse communities.
• Successfully engaged with key organisations and communities to ensure that the decision-making and governance of the MPA’s race, equal opportunities and diversity is influenced by their active involvement.

Influencing the MPS

• Successfully negotiated with the MPS to transfer a proportion of the overall MPS Diversity budget to enable the Authority to progress its legitimate work of over-viewing and scrutinising key aspects of the performance and practice of the police service.
• Influenced the development of the policy and framework for the implementation of Recommendation 61 in the borough in Hackney and has influenced the most senior level of the MPS to secure an agreement for the implementation of a second Borough to trial an Information Technology solution to the recording of ‘police stops’.
• In collaboration with the MPA Human Resource Committee initiated the establishment of the Recruitment Task Force with membership from the MPS, GLA, CRE and other stakeholder organisations to look into ways in which the MPS recruitment of Black and Minority ethnic recruits can be improved in order that the MPS can achieve the Dismantling Barriers target set by the Home Office.
• Established regular meetings with the Deputy Commissioner and DCC4 to over view the strategic direction of the MPS diversity policy.
• Actively supported and contributed to the MPS launch and development of its Gender Agenda policy which was jointly signed by the Chair of the Authority, Toby Harris, the Deputy Commissioner, Ian Blair and the Mayor of London.

Partnerships and Stakeholders

• Appointed representatives of diverse organisations to become co-opted members of the Board so that its deliberations and decisions take account of the broad range of diversity matters that it has responsibility for directing and guiding.
• Worked collaboratively with the Commission for Racial Equality in progressing and influencing the implementation of key action points in the MPA Race Equality Scheme such as working with and through local race equality councils and other partners to develop performance measures for monitoring the local police implementation of the scheme at borough level.
• Established valuable working relationships with the GLA in developing and promoting equalities in the work undertaken together.
• Contributed to a range of conferences, seminars and working groups at national, London wide and local community levels in order to progress the MPA equal opportunities agenda to engender community trust and confidence of police services.

Internal influences

• Initiated and provided overview to the mainstreaming of equalities in all committee reports by the MPA and the MPS.
• Considered a wide range of committee reports including an excellent presentation on HIV and Aids in the MPS by Reverend Stephen Penrose and PC Andy Hewlett, community liaison officer, North Lambeth. This presentation reflects the diverse and challenging issues which this board will continue to address.

Challenges to be achieved in 2003/04

There are a number of important decisions and actions that the Board need to consider for the next phase of its work. Some of these will require increases in resources if they are to be progressed and achieved. These include:

• Progress against the year one actions published in the MPA race equality scheme.
• MPA Internal Equal Opportunities and Diversity Performance.
• The Development of a comprehensive Equal Opportunities and Diversity Strategy for the MPA.
• Achievement of Level 5 of the Local Government Equality Standard by 2005. In 2002.
• Scrutiny of the MPS Budget expenditure.
• Implementation of the recommendations arising from Scrutiny Panel on Stop and Search Recommendations.
• Stephen Lawrence Inquiry Report recommendations.
• Relationship with Home Office.
• Ongoing and monitoring to ensure that the action plan to achieve the recommendations contained in the Gender Agenda are implemented and achieved.

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