Update on Safer Neighbourhoods rollout including the impact on crime and fear of crime

Report: 7
Date: 28 September 2006
By: Commissioner

Summary

In response to resolutions made at the Metropolitan Police Authority meeting on 26 January 2006, this report provides an overview of performance by Safer Neighbourhoods Teams (SNTs) and the progress of the Safer Neighbourhoods (SN) roll-out. In addition, this report provides information relating to other issues highlighted at the January meeting, namely: the training of SN sergeants; the impact of the roll-out upon existing SN teams; PCSO recruitment; the impact of SN on Traffic OCU; the flexibility of neighbourhood/ward boundaries for SN teams; sharing good practice in neighbourhood policing; the evaluation of Safer Neighbourhoods by Professor Stanko; and compliance with the SN abstraction policy. Five SN newsletters have been placed in the members’ room and provide further details on these topics.

A. Recommendation

That the report be received.

B. Supporting information

Performance

1. Development of Safer Neighbourhoods Performance Management Framework: In July 2006 MPS Performance Board approved a performance framework for the Safer Neighbourhood Programme. The key outcome measures within this performance framework are:

• Satisfaction with local policing.
• Confidence that police are identifying the issues that matter to local people.
• Confidence that police are dealing with the issues that matter to local people.
• Level of concern about ASB.
• Perceptions of safety in local area by day and night.

2 These key performance indicators will be monitored on a quarterly basis and the framework is being developed to enable performance to be tracked at this frequency at both MPS and BCU level. In addition to the above, key diagnostic indicators (KDIs) are being developed that will enable performance to be tracked on a monthly basis. Work to finalise the KDIs is being undertaken in conjunction with research being conducted by the Met Modernisation Programme to develop a full benefit profile of the Safer Neighbourhood programme. The final suite of KDIs will include consideration of crime and disorder increase/ reduction along with performance within EPIC (a performance system focusing on SN team activity). Future reporting on the performance of the programme across London will be based on this framework.

3. Research and evaluation of Safer Neighbourhoods: recent figures for recorded crime indicate that the total notifiable offence figures are down by 6.8% for the period April – July 2006 compared with the same period in the previous year. While it is not claimed that SN teams are alone responsible, it is believed that they have made an important contribution.

4. A common first response to evidence of crime reduction in areas that are subject to a specific intervention is to look for indications that criminal activity has merely been displaced. This particular notion was the subject of a robust piece of research conducted by the MPS Performance Directorate in January 2005. The title of the research paper was “Crime Displacement on Safer Neighbourhoods Wards”. The conclusion was unambiguous and showed that there was no significant indication of displacement occurring in crime generally or for individual major crime types.

5. Further to the above, the received wisdom, regarding crime reduction activity, is that the major effects would be experienced in the early stages of an initiative with displacement occurring at this time. Yet not only did the various analyses of the operation of Safer Neighbourhoods (as referred to in paragraph 4) not show any significant evidence of displacement, but also they even suggest that reduction on the SN ward encouraged reductions on adjoining wards.

6. Of no less importance has been the apparent impact of the teams on public perceptions. The key findings of the major survey carried out by Professor Stanko, indicated that irrespective of demographic differences (age, gender, ethnicity), victimisation and area effects (social cohesion, level of ethnic segregation and level of deprivation) respondents living in Safer Neighbourhood wards are:

• More satisfied with the way their neighbourhood is policed than those living in non-Safer Neighbourhood areas: 63% (05/06) expressed satisfaction with the way their neighbourhood was policed, a rise from a figure of 54% for the previous year.
• More likely to feel that anti-social behaviour had improved or stayed the same over the past 2 years compared to residents in non-SN wards (61% against 51%).
• More likely to feel that crime levels had remained the same or gone down in the last 2 years (65% against 56%).
• More likely to feel informed about local police activities and expect to see improvements in the way their neighbourhood is policed over the next year (43% SN residents against 39% non SN residents).
• More likely to see a visible policing presence more often than non-SN residents (SN residents 39% against 35% for non SN residents).

7. Activity by SN teams (EPIC): the EPIC performance management system enables activity by SN teams to be tracked on a monthly basis. Between April and July 4223 pre-planned public meetings were held to engage with local people. These meetings were attended by 64,124 people. During this period 768 neighbourhood panel meetings were held, along with 474 Chicago-style street briefings. Officers have generated nearly 78,000 intelligence reports and have made 5657 arrests. They have tackled ASB by making 2210 home visits and have initiated 890 ABCs and 224 ASBOs. Nearly 10,000 victims of crime have been visited and provided with additional support, advice and guidance.

8. Anti-social behaviour: Despite some of the more positive results highlighted above, research suggests that anti-social behaviour remains a serious concern for a significant proportion of Londoners. Recent EPIC returns indicate that ASB by young people has been identified as a priority in 60% of neighbourhoods and that every ward is dealing with a priority that revolves around some form of ASB. This level of community concern poses a significant challenge to the service. In response, the MPS, and in particular territorial policing under the leadership of AC Godwin, are prioritising ASB and have initiated an operational Safer Neighbourhoods strategy that will co-ordinate, drive and support local activity to deal with challenging neighbourhoods (particularly residential estates). A second key theme in this strategy focuses on proactively tackling gangs and ‘yobs’ across London. This strategy will be delivered whilst maintaining an emphasis on ensuring the development of medium and long term problem solving by SN Teams to ensure that the programme delivers sustainable results for local people.

Leadership

9. Safer Neighbourhoods ‘Get Togethers’: In April 2006, the Commissioner and AC Godwin met with all SN Sergeants at a central London venue in order to provide a clear message regarding the importance of this initiative to Londoners and the importance of their role in delivering results for local communities across the Capital. In order to ensure that SNTs were supported by appropriate and effective processes at BCU level, this initial ‘get-together’ was supplemented by a series of additional meetings between AC Godwin and all BCU senior managers at which the same messages were given.

10. Problem Solving and Safer Neighbourhoods Policing: In February 2006, the first Safer London Problem Solving Awards were held. The winning entry, from a Safer Neighbourhood Team based in Southwark, was subsequently placed third in the National Problem solving awards and the team have been invited to speak at a conference in the USA. The awards will be held again in February 2007. In addition to the recognition of high quality problem solving within SN Teams, AC Godwin has initiated an award for the highest performing SN teams – as measured by EPIC activity. These awards provide a clear message to SNTs about the level and quality of performance expected by the MPS.

People

11. The Rollout of Safer Neighbourhoods Teams across London: The first milestone was the establishment of full coverage with a SN team in every ward by April 2006. This has been achieved. The original 285 teams, based on the 1:2:3 model, have been maintained at that level. The remaining 345 teams have been introduced using a 1:1:2 team model. None of the staff on the original SN teams were redeployed to create the new teams.

12. Current figures for PCSOs entering training by the end of August indicate that all of the new (April 2006 onwards) SN teams will conform to the 1:1:2 model by the end of September 2006.

13. The second milestone in the rollout process is to bring all teams up to a team strength of 1:2:3 model by the end of December 2006. At present, the number of PCSOs scheduled to enter training in September (150 recruits), together with projected figures for courses being run in October and November indicate that the December target will be met.

14. The third milestone in the roll-out is to increase the size of teams on the most populous wards (> 14, 000 population) to 1:2:6 by April 2007. The necessary recruitment target to meet this commitment provides a significant challenge to the Service. However, given the scale of activity in terms of advertising and targeted recruitment events, currently being conducted it is felt that the target remains within our grasp.

15. The MPS response to this challenge has been to use a wide range of media campaigns, together with new ideas such as the Refer-a-Friend initiative (which carries a £200 incentive per referral) in order to increase PCSO applications. This work has been overseen by a central team working closely with Met HR Recruitment Team. All this effort resulted in a thousand applications being received during July – a considerable achievement for the Service, reflecting the hard work that had been put in during the preceding months. The conversion of initial application into employment has improved from 18% earlier in the year to approximately 25% currently.

16. In order to process these applications to ensure that the relevant milestones are met, additional staff have been deployed into this area from elsewhere in recruitment services. In addition, we have increased capacity for conducting both 1-day and 2-day assessments, which are the first stages in the recruitment process.

17. Central coordination of PCSO recruitment: As stated above, during the summer 2006, a central MPS task force, working alongside the MPS Recruitment Team, co-ordinated PCSO recruitment. The latter, having a wider remit, directs broader programmes covering all aspects of the Service. The particular needs in respect of PCSO recruitment over recent months called for a specific, concerted and tailored approach achieved through the task force.

18. The central PCSO recruitment task force was able to organise a series of major promotional events at Southwark, Twickenham, Battersea and Enfield. In doing so, the team was able to target areas with greater recruitment needs, ensure that a consistent corporate message went out and take a pan-London view in respect of diversity, posting and other issues. The team was also able to utilise the expertise to be found within the Met’s HR directorate. The value of these events can be seen from the fact that on 9 and 10 July over 800 people attended the event in Southwark.

19. An alternative to the centralised recruitment process is to devolve the function to boroughs. However, this carries with it a range of potential difficulties not least in the fact that boroughs are not resourced for intensive recruitment activity. In addition, it would be difficult to maintain a corporate approach across 32 boroughs (affecting the ability to control postings appropriately) and there would potentially be a series of separate publicity campaigns running simultaneously. Given the need to access a range of media outlets to stimulate recruitment, such an approach would also be less cost-effective. Through the approach adopted it has been possible, through central coordination, to target activity in areas of greatest need.

20. Recruitment and Training of SN Sergeants (Sgts): In January 2006, the MPS faced a significant challenge to recruit the number of sergeants required to fulfil the crucial responsibility of leading a SN team. This challenge was met through the further development of the Sgts promotion process and the bringing forward of the ‘tow-bar’ initiative. In addition, a five-day bespoke SN Sgts course has been developed to provide all SN Sgts with a grounding in the essential requirements of their role. At this time a total of 535 sergeants have attended the course. In addition to attendance at this course, all Sgts have been provided with a DVD providing a comprehensive guide to delivering all aspects of their work. This is supplemented by access to the Safer Neighbourhoods website, on Aware, which provides toolkits, templates and details of existing best practice in all areas of community engagement and problem solving.

Processes

21. SN Programme Board: the SN Programme Board, chaired by A/DAC Hitchcock, has been developed to provide a greater emphasis on monitoring performance and delivery by SNTs as well as continuing to ensure that the programme completes the roll out successfully. This meeting provides governance and leadership to the programme as a whole. The Board will monitor and drive performance across the programme on a monthly basis. As well as representation from a range of MPS directorates, the Board has a membership drawn from the MPA, GLA, Safer London Foundation, in addition to community representation.

Policy and strategy

22. Abstraction Policy: In January the Commissioner confirmed that tight restrictions were being placed on the abstraction of officers from Safer Neighbourhoods Teams and that abstraction was only permitted in certain, limited circumstances: a ‘7/7’ emergency; for the three annual major public order events – Notting Hill Carnival, May Day and New Year’s Eve; and for public order (and other essential) training. Adherence to this policy is closely monitored and at present the abstraction rate is running at 3% (as measured by EPIC). In addition, advisory visits by the central SN team monitor BCU policies to ensure compliance.

23. Neighbourhood Boundaries: In order to provide a practical framework for the roll-out of SN to all neighbourhoods in London, the standard model of SN team deployment is based upon wards and ward boundaries. Nevertheless certain teams have been created to reflect particular local needs (such as a team in Crystal Palace that works across three borough boundaries to ensure the delivery of effective neighbourhood policing in that area).

24. Once the roll-out of SN is complete and the MPS and partners have put in place systems to mainstream and provide support for neighbourhood policing, there will be an opportunity to review existing arrangements and to identify options for boundary/ team re-alignment that will further improve the service provided to neighbourhoods. This review is currently scheduled to take place during 2007/8.

Resources

25. 341 Safer Neighbourhood teams are now accommodated in their own bases on or very close to their wards. 70 further bases are nearing completion at the present time and it is anticipated that by March 2007, 475 of the 630 teams will be suitably accommodated. Most of the premises have either a public meeting room or a meeting point that can be used but some accommodation is in business premises that are not suitable for public access.

26. One concern raised in January was that a significant number of neighbourhoods may identify traffic related problems as priorities and that this may have an impact upon the Traffic OCU. Whilst in July 2006, SN wards identified 142 traffic priorities (examples include cycling on the pavement, pavement parking and scootering). The experience to date has been that these issues have not placed undue additional pressure on Traffic OCU as they are dealt with by the SN teams. However this issue will continue to be monitored.

Learning

27. Learning from experience is recognised as an essential part of the continued development of Safer Neighbourhoods in London. As a consequence, in February 2006 a major, international Neighbourhood Policing conference was hosted in London. This event was designed to encourage the sharing of good practice in neighbourhood policing and problem solving on a wide scale. A similar event, focussed on providing practitioners with an insight into current best practice across London and the UK will be held in February 2007.

28. In addition to the above annual events, meetings for all SN sergeants and for the Senior Management Team SN lead officers are held on a quarterly basis. These meetings provide a forum for ongoing training and sharing good practice as well as identifying any potential barriers as they emerge. In addition, the Territorial Policing SN Unit, which oversees the programme makes full use of the MPS Intranet site and produces a regular newsletter for all SN staff. Please refer to the Information Update leaflets produced monthly, copies placed in the members’ room. The central Unit also operates a help line through which SN officers can obtain advice on any area of activity.

29. Further to the above, the central SN team are also engaged in an ongoing programme of visits to every BCU. Key elements of these visits are the identification and promulgation of best practice across London.

Challenges

30. Skills and Development of staff: meeting the demands of neighbourhood policing requires officers who have high levels of skills in both operational policing, problem solving and community engagement. Developing these skills across the programme will take time and will require a strong coaching/ mentoring element as well as bespoke training courses.

31. Succession Planning: As the programme continues, the challenges of ensuring both a skilled workforce and a workforce that is familiar with local communities will be exacerbated by the movement of existing officers away from Safer Neighbourhoods into other roles within the MPS. This is a natural process within a programme that currently employs 3386 staff (end of August figures). Succession planning will become increasingly important if Safer Neighbourhoods is to continue to develop in a structured and effective way. Whilst succession planning is always a significant organisational challenge, when attempting to ensure continuity for the community this will become a critical feature of the ongoing rollout.

32. Measurement of Neighbourhood Policing: whilst substantial progress has been made in developing a performance management framework for Safer Neighbourhoods, significant challenges remain in developing a robust, monthly suite of key diagnostic indicators that can underpin the survey-based primary outcome measures.

33. Internal Communication, Internal Culture and Integration: the development and mainstreaming of Safer Neighbourhoods policing requires a significant cultural shift by the Metropolitan Police. Ensuring that the organisation as a whole understands the role and importance of this programme and, additionally, that the whole organisation understands how Safer Neighbourhoods, in delivering its distinctive mission, supports other business groups will take time. To maintain and deliver the necessary cultural change will require strong and consistent leadership, communication and energy at all levels of the organisation for some time to come.

34. Building and Managing Community Expectations: many BCUs are reporting that their local communities have very high expectations of the Safer Neighbourhoods programme. Given the difficulties of ensuring that teams are fully resourced, skilled and supported, meeting these expectations will be a challenge in itself. Should expectations be built too high then the lack of perceived delivery may prove a risk to the programme. This particular challenge is being met by the implementation of an Operational Control Strategy to drive and co-ordinate operational activity to target critical pan-London community issues.

35. Work Deployment (role drift): linked to the challenge of priority crime is that of role drift. The pressures on BCUs for performance in a wide range of areas has lead to pressure on SNTs to support other areas of BCU business by taking on specific tasks or roles that will assist other BCU portfolios. In many instances, the individual tasks and requests are often small (collection of CCTV tapes/mental health assessments) but collectively they are capable of generating a significant workload for SNTs and therefore pose a challenge to their ability to deliver against their primary objectives.

36. Single non-emergency number (SNEN): Work is underway to develop SNEN, the basis of which is the ability to receive calls in the following categories: vandalism, graffiti and other damage; noisy neighbour; intimidation and harassment; abandoned vehicles; rubbish and litter (including fly tipping); people being drunk and rowdy in a public place; drug related ASB; and street lighting faults. A key feature of SNEN will be the requirement to respond within a specified time. The challenge for the MPS and Safer Neighbourhoods is to balance the demands created by this system with the commitment to tackle community priorities identified through the neighbourhood panels. There is a clear need to ensure that SNEN is fully compatible with the Met’s communications programme (C3i) and that effective protocols exist to ensure that calls received by this system are properly processed and logged. It will be possible to report in more detail on this in the future.

The way ahead

37. In order to ensure that the challenges identified above are met and that opportunities for the programme are seized, the role, function and composition of the Safer Neighbourhoods Programme Board has been reviewed. In particular, increased emphasis has been placed on monitoring performance and delivery. Operational and organisational control strategies have been developed to ensure that the programme rolls-out effectively and delivers against its primary objectives. The Programme Board will monitor both control strategies.

38. Safer Neighbourhoods Operational Control Strategy: as mentioned above, October 2006 will see the first Safer Neighbourhood Operational Control Strategy being put in place. This strategy has four themes: tackling priority neighbourhoods, tackling gangs and yobs, along with ensuring that the programme both cracks down on anti-social behaviour but then consolidates progress through medium/long term problem solving. The final theme is that of ensuring that the MPS and partners get the message across regarding their work and progress in tackling anti-social behaviour. The development of this strategy represents a move to both upgrade the operational capability of the Safer Neighbourhoods programme and to ensure in pan-London action to tackle the pre-eminent community concern in the capital – anti-social behaviour.

C. Race and equality impact

1. Delivery of Safer Neighbourhood Policing: SN teams work to a seven stage policing model which requires them to develop ward profiles to guide their decisions about the engagement mechanisms required in order to gather the views and priorities of all sections of their community. This is an area of rapid learning and development and is highlighted within quarterly SN forums.

2. Diversity within Safer Neighbourhoods (Ethnicity): across the MPS as a whole, 9.6 % of Police officers and PCSOs are from minority ethnic communities. However, within SN teams, 20.3% of police officers and PCSOs are from minority ethnic communities. In terms purely of PCSOs within SN teams, this figure rises still further to 32%. In terms of officers on the street interacting with local communities, SN provides a workforce that increasingly reflects the communities it serves.

3. Diversity within Safer Neighbourhoods (gender): across the MPS as a whole, 79% of police officers and PCSOs are male and 21% female. Within SN teams, 74% are male and 26% female. PCSOs within SN teams are 64% male and 36% female.

D. Financial implications

Funding for Programme: the full rollout of the SN Programme will cost approximately £220 million pa.

E. Background papers

None

F. Contact details

Report author: Chief Superintendent Stephen Bloomfield, MPA

For more information contact:

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

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