Update on the proposed new model of recruitment and training for police officers

Report: 4
Date: 24 June 2010
By: Director of Human Resources on behalf of The Commissioner

Summary

This report sets out the proposal for utilising the Metropolitan Special Constabulary (MSC) as the principal point of recruitment for new police officer recruits. Officers appointed through this route will be trained within the community, be patrol-ready upon appointment and generate financial savings.

A. Recommendations

That members note the contents of this report.

B. Supporting information

1. The new model represents a significant shift from the traditional approach to recruiting and training police officers who until now have undertaken training for 25 weeks upon appointment. It utilises the academic and experiential learning acquired from the newly developed Metropolitan Special Constabulary (MSC) training programme, all of which will be delivered and tested prior to application and appointment as a police constable. In essence the primary entry route into the MPS as a police constable will be via the Special Constabulary. In order to comply with the new eligibility criteria future applicants must successfully complete an accredited learning qualification in law and policing whilst performing a level of operational duty that will ultimately allow independent patrol status.

2. Subject to securing the required amendment to Police Regulations, this new model will draw police officer recruits from three routes.

• MSC
• PCSO
• Other target groups (graduates, excluded professions, carers etc)

3. All recruitment activity will be limited to discrete, time-limited processes and will be based upon the budgeted deployment plan i.e. a waiting list will not be maintained.

4. Any individual satisfying the new eligibility criteria may apply only when there is an active recruitment campaign and will be required to meet the National Recruiting Standards. Appendices A-C refer to a diagrammatic representation of the new model.

5. The MSC provides a pivotal role in delivering the policing pledge in London. The strength of the MSC is to be increased from its current level of 3,352 to meet anticipated operational demands. The operating environment of the MSC provides ideal opportunities to develop necessary skills and knowledge within London’s communities for new police officer recruits. The proposal contained within this report provides a new way to professionalise and enhance the status of the MSC, whilst providing a diverse pool of recruits capable, upon appointment, of independent patrol. Additionally, this proposal will deliver substantial cost savings.

MSC Diversity

6. The officers within the MSC are the most diverse group within the MPS workforce, including members from Bangladeshi, Pakistani, Turkish-Kurdish and Somali communities. Table 1 presents a summary of the representation levels of different diversity groups within the MSC.

Table 1 gender and broad ethnic identity of MSC (end December 09)

Source: MPS Workforce Information (2010)

7. Table 1 reveals that the representation of the Asian communities (16.3%) within the MSC is greater than the London level (c.14.1%). The MSC role has traditionally been good at attracting BME females, particularly Indian (7.5%) and Pakistani (2.4%) females, whose representation levels are equal to the London population. Similarly, the Chinese and other communities (4.9%) exceed the London level (c.4.2%). The representation of Black communities (7.9%) currently falls short of the London level (10.5%), highlighting the need for enhanced community engagement and local positive action; however, within the MPS in other roles the black communities are very well represented, particularly Traffic Wardens (12.9%), police staff (11.8%) and PCSO (10.3%). The interactive nature of the MSC role means that MSC officers provide a local service that meets the needs of London’s diverse communities, building trust and confidence. The diverse qualities of the MSC will become critical in helping to meet the operational needs of the 2012 Games.

MSC Attraction

8. To increase the numbers of MSC officers, a new, unified recruitment strategy has been developed to meet the operational requirements of the MPS through the MSC growth step-change project... Consequently, HR and TP have developed a joint strategy that combines the local knowledge of Safer Neighbourhood Teams with the proven success of the HR Recruitment community engagement model, HR Advertising and Marketing together with the expertise of the processing capability of the recruitment department at Hendon, all managed by the Workforce Planning Team.

9. Since January 2010, the partnership between TP and HR has started to yield considerable success. Table 2 provides a summary of these applications.

Table 2 MSC applications

Source: Metropolitan Police Service, Workforce Planning (2010)

10. Table 2 shows that the HR/TP partnership has resulted in substantial numbers of MSC applications being received; the excellent diversity amongst the applications has been sustained during the campaign, with around 37% BME and 31% female. There is an expectation that the rich diversity amongst applicants (ethnicity, gender, age, skills such as additional languages and knowledge of London’s communities) will be sustained during the MSC step-change programme, ensuring trust and confidence within local communities is maintained. The operational requirement developed for the HR Recruitment community engagement model is being extended to the MSC, with the aim of matching the skills and experience of our workforce to the operational demands necessary to effectively police the capital city.

11. Current research being undertaken by Recruitment suggests that the motivators for joining the MSC, though complex, include the following factors:

• Making a direct and hands-on difference in the community
• Becoming a Police Officer and getting experience
• Learning new skills
• Unique and exciting experiences/getting beyond the 9-5
• Personal development
• Like to challenge self

12. Applications are being channelled through the following routes:

• The general public in response to our marketing and advertising strategy (“Last night a DJ saved my life” campaign);
• The general public in response to Borough attraction activity and events.
• London Employers’ Employer Supported Programme - ESP (Currently 142); and
• MPS ESP (Currently 438).

The ESP programme involves the release of an employee for 16 hrs per month to undertake MSC duty. London employers actively engage with this programme as part of their corporate social responsibility, both to support staff development initiatives and to uplift the general workforce skill set.

Proposed New Model of Police Officer Recruitment and Selection

13. The proposed model recognises the professionalism of the MSC and utilises the academic and experiential learning acquired prior to appointment as a regular officer. In addition to working as an MSC officer the regular applicant would have to complete an accredited learning qualification in policing and law. Currently, there is an aspiration that the MSC will become the principle pathway to becoming a police officer with a smaller number entering through the PCSO and other target groups routes, though operational and budgetary factors may influence the scope of the proposed change

14. The benefits of the new model will include no or reduced training lead-in time or associated salary cost for new recruits. Recruits will have been tested in the workplace and it will assist in the delivery of the Mayoral and service objective of increased MSC numbers. It is felt that this new model is appropriate for the circumstances that currently prevail but we will retain the ability to flex and respond in terms of estate and trainers should the operational environment change.

New entry routes to become a regular police constable

15. These new entry routes place additional eligibility criteria on future prospective police officer applicants compared to that set out in Regulation 10 of Police Regulations. Police Regulations may need to be amended to accommodate this model. This has been referred to the NPIA to secure the necessary mandate.

16. In the response received, it states “I am aware that previous advice to forces on additional appointment criteria (issued by the Home Office to Chief Officers in 2006) was determined to be lawful by Home Office lawyers, providing that the application of any such criteria is justifiable in terms of operational need”. Given the fiscal pressures that prevail and our duty to protect front line services, this case is made. Officials from NPIA are currently discussing this issue with The Home Office and The Commissioner has drawn the Home Secretary’s attention to the matter in recent correspondence.

17. Subject to securing the required amendment to Police Regulations or mandate from the NPIA that this model is within the provision of the current regulations, this new model will draw police officer recruits from three routes - MSC, PCSO and other target groups (e.g. graduates, excluded professions and carers).

18. All recruitment activity will be limited to discrete, time-limited processes and will be based upon the budgeted deployment plan for the financial year and as a result a waiting list will not be maintained.

19. Any individual satisfying the new eligibility criteria may apply only when there is an active recruitment campaign and will be required to meet the National Recruiting Standards.

Training and recruitment infrastructure

20. This new model of police officer training will be delivered by the re-alignment of existing resources. This approach will afford the organization the flexibility to respond to any significant fluctuations changes to the operating environment which require us to adjust our training model to respond to future recruitment profiles in support of the Business Plan.

21. Savings may be identified in these areas in due course, particularly when the proposed new model of recruitment and training for police officers is embedded. In the 2010/11 financial year HR Recruitment will process circa 10,000 MSC applications and subsequent selection assessment, whilst training school will train circa 2,840 MSC officers.

Ownership and governance of the new model of police officer recruitment and training

22. The governance of this programme will sit with The Director of Human Resources, although there remain many inter-dependencies with the Strategic MSC Programme Board which will be managed. This programme will be supported by a robust performance management framework through the fortnightly Recruitment Performance Board allowing careful monitoring and risk management particularly in relation to equalities issues.

Transition from old model to new

23. It is proposed that future entrants will come from one of three routes: MSC, PCSOs or other target groups. The latter will include graduates, members of excluded professions and others excluded by virtue of their personal circumstances (e.g. carers). The allocation between the three routes will be determined according to the MPS Business Plan.

24. Recruits coming through the MSC route will generate circa £20k savings per appointment whilst those coming from PCSO and Target Groups generate savings of circa £12k per appointment. This recognises the fact that the MSC entry route requires no additional training upon appointment whilst 10 weeks training is required for PCSO/Target Group appointments. In the interim it is proposed that during the financial year 2010/11 recruitment and training continues as planned, during which time the Equalities Impact Assessment (EIA) will be completed and advice received from the NPIA on regulation issues. This will mean that the training school will, for the moment, deliver the current IPLDP training and the new model of MSC training alongside each other.

25. This proposed new model of recruitment and training will deliver the first new style recruits ready for appointment in the latter part 2011/12, subject to vacancies

Managing the Current Police Officer Pool

26. HR attracted police officer applications in line with the previous funded three-year deployment plan which reflects the Policing Plan 2010-2013. At the end of the 2009/10 financial year there were circa 1,200 external applicants in the system mostly having concluded the selection stages though not yet offered formal employment and a training place and a further circa 600 applications from internal staff who had not undertaken any part of the assessment process. Further applications have not been accepted for some months.

27. Reduced attrition and a cessation of police officer growth means there is no realistic prospect of appointing in the foreseeable future. During the week commencing 7th June 2010, HR Recruitment made personal telephone contact with current candidates and advised them that, regrettably, their Police Officer applications were being closed. Where appropriate the candidates have been offered opportunity for their application to be transferred to the MSC. A letter confirming this position has now been sent to all candidates and a dedicated handling team and help desk created to deal with individual enquiries and concerns

Benefits and Risks

28. The benefits of adopting this proposed new model of recruitment and training are:

• Our MSC is a diverse workforce with additional skills including languages and knowledge of London’s communities. Increasing its strength will bring with it a talented workforce which better matches our operational requirement for policing London. Using this pool for future police officer appointments will help develop a MPS that Londoners are proud of e.g. the average age of MSC is 32 years as compared to 28 years being the average age of last year’s police officer appointments; 31% are from BME backgrounds compared to 17% of last year’s police officer appointments.
• Currently 2% of our recruits leave before completing their initial training and a further 2% before completing their 2 year probation. Their salary cost in initial training is around £20k. This attrition would reduce substantially where an individual is exposed to the role of a police officer over an extended period as an MSC officer prior to appointment.
• Deployable officer strength during the transition to the new model is maintained broadly in line with the Business Plan
• There is limited impact upon funded posts and associated budgets
• Internal applicants (MSC and PCSOs) supported and their commitment rewarded
• Retention of the recruitment and training infrastructure allowing us to respond to increased attrition or should the new model prove unattractive
• Most of our new police officer recruits will be capable of independent single patrol on his/her starting date - modeling has been based on 2/3rds coming through MSC route and 1/3rd the rest.
• Model represents a positive opportunity for the MPS to lead the way setting a national agenda for modernisation.
• Salary cost savings through training are realised (circa £20k per MSC recruit and circa £12k all others) with no diminution in standards or competence levels of our recruits. In fact, given that selection will become a competitive process, we will select the best applicants rather than all those who achieve/exceed our minimum standard as is currently the case. Additionally they will have developed their patrol-craft over an extended period.

29. The risks are:

• The pressure on Training School and TP of running the two schemes concurrently
• The time needed to obtain changes to Regulation 10 of Police regulations or NPIA mandate to proceed.
• The potential adverse impact of this proposed new model on under-represented groups as identified in the EIA.
• The pressure on TP in relation to coached patrol and administering Independent Single Patrol Status under the supervision of Training School.

C. Race and equality impact

30. An extensive equalities impact assessment (EIA) has been undertaken in partnership with DCFD and will be completed by the end of June. This assessment has revealed potential risks to diversity and equality within the following areas:

• access and participation within the MSC – risk of differential impacts upon different groups, particularly women and other people with caring responsibilities, some BME communities and poor communities
• access to pre-employment accredited learning – risk of differential impacts upon different groups, particularly women, other people with caring responsibilities, BME and other communities with limited economic capital
• MSC and pre-employment accredited learning as an employment prerequisite resulting in access and participation issues – risk of differential impacts upon different groups, particularly women, other people with caring responsibilities, BME and other communities with limited economic capital
• SEARCH assessment centre (i.e. NRS) used as a screening tool once MSC applicants have successfully completed the academic and vocational training – risk of differential impacts upon diversity, particularly BME communities and speakers of English as an additional language

31. The internal consultation commenced on 31 March 2010 and involved a wide range of participants, including; staff associations, Police Federation, Superintendents Association and trade unions, MSC (serving/prospective), borough/OCU commanders and NPIA. The results of the consultation are being evaluated and will be included within the EIA (a working copy is lodged within the members’ library). An external consultation commenced following the general elections in May 2010. The EIA will be completed by 30th June 2010 and will be circulated to members.

32. The EIA has so far been a very valuable process and has enabled mitigation activities to be incorporated within the proposed model (e.g. risks around access to pre-employment accredited learning will be mitigated by the introduction of a bursary scheme). The EIA process has helped balance the legal duty to promote diversity and equality with financial planning and efficiency prerequisites.

33. It is anticipated that the rich historical diversity within the MSC will map itself across to police officers. The applications received during the last quarter are very promising in terms of diversity and this will continue to be monitored. The EIA has identified several risks to diversity and equality. Therefore, effective and proven management information systems will be used to rigorously monitor application and attrition rates for MSC applicants across all diversity groups. The risk management process will also provide an effective mechanism to help mitigate the risks (e.g. through positive action, management interventions, etc.). The HR Recruitment Performance Board will regularly report to the Director of Human Resources and the MSC Programme Board.

D. Financial implications

34. In recent years, the MPS has recruited police officers in much greater numbers than is provided for in the current Business Plan. Recruitment has varied between 950 in 2007/08 and 2,000 in 2009/10 and reflected significant growth particularly in respect of CT, Safer Neighbourhoods and TOCU/Safer Transport growth.

35. The period of growth is now completed and the 2010-13 Budget and Business Plan reflects a significantly lower level of recruitment activity (i.e. circa 600 new students each year for 26 weeks each). Their salary cost during training is approximately £20k per officer. Moving to the new proposal will save up to a maximum of £20k per appointment (£12k per PCSO/Target Group appointments) provided they are appointed in line with their original IPLDP graduation date. In summary, their appointment must be synchronised to match what would have been their IPLDP graduation date thereby maximising the cost saving from reduced post-appointment training time. Each 100 appointments through the new model (67 MSC and 33 others) realises circa £1.7m cash savings from salary costs.

36. Additional savings will accrue should attrition increase to previous levels. Savings would equally reduce if attrition rates continue to reduce.

37. The financial benefits of the proposals outlined in this paper are as follows:

• Any subsequent police officer appointments delivered through the new model (taking into account the fact that this is a 12 to 18 month programme) will represent a future saving in salary costs of circa £20k for each recruit who completes their training whilst an MSC officer and circa £12k for PCSOs/Target Group appointments with the provision that the appointment is in line with when an individual would have completed training and been deployed through the current IPLDP deployment plan.
• Proposed New model of training - this could generate further savings in the long term when introduced e.g. the training school will not be required in its current format. This could generate significant capital and revenue savings by alternative use of some of the site. This would be subject to a separate review and assessment as part of the corporate real estate SIP programme.
• This proposal redirects all existing HR resources, which would have otherwise been focused on police officer recruitment to MSC training and recruitment. As a result, the cost of delivering the Mayoral and service priority to increase the MSC numbers will be reduced as a result of this new approach. A new business case is being prepared which reflects the redirection of HR resources.
• The savings set out within this paper are over and above existing THR savings.

38. The financial uncertainties / risks that remain unresolved require consideration before control measures can be developed and implemented to mitigate the risk are:

• impact on other SIP programmes, including MSC Growth programme, training, recruitment and corporate real estate
• need for a change to Regulation 10 of the Police Regulations and impact upon timescales.

E. Legal implications

35. Legal advice, including advice from Counsel, indicates that an amendment to Regulation 10 of Police Regulations 2003 is required to lawfully enact the new model restricting eligibility for recruitment as a regular constable to candidates who are either MSC, PCSO’s or DDO’s or graduates. This is because it introduces additional entry requirements for the appointment as a regular constable.

36. The eligibility to become a special constable is restricted by the provisions of NPIA Circular 07/1. This sets out a number of occupations which make a candidate ineligible to become a special constable, for instance where there is potentially a conflict between their main occupation and the role of a special e.g. Members of the armed forces, traffic wardens, School crossing patrols and parking attendants, neighbourhood street wardens, and other uniformed patrol wardens, Highways Agency traffic officers, those involved in the administration of the law, members of police authorities, clerks to justices, court clerks etc. As a consequence these categories of candidates cannot be appointed as MSC and this therefore further reduces the potential pool of candidates eligible to apply as regular constables. (Potentially address through the Other Target Groups entry route).

37. Regulation 12 of the Police Regulations 2003, which provides that a police officer shall be on probation for the first two years of their service, does not allow any reduction to this to take account of service as a special constable.

38. There may be further consequential amendments required to the Police Regulations due to the incompatibility of this proposal with the existing provisions. For instance officers recruited by other forces will not be restricted to the above three categories of candidates, hence on an application to transfer to the MPS, they will essentially be in a distinct and more favourable position than candidates recruited direct by the MPS.

39. Equality issues may arise giving rise to a risk of indirect discrimination claims if some groups of candidates are less able to comply with the ‘provision, criterion or practice’ of the new additional eligibility criteria. For example, females with child care commitments may experience difficulty in undertaking the study course and achieving the minimum patrol hours as a special constable, particularly as they will be pursuing these activities as a volunteer and potentially in addition to any regular employment.

40. An Equalities Impact Assessment will be required in order to establish the potential impact this approach may have on all groups and what positive action initiatives may be adopted to mitigate any adverse impact.

41. The Working Time Regulations 1998 ‘WTR’ will apply to the time occupied by the special constable whilst on patrol and attending various training courses. If as a consequence of combining this with the hours spent in any regular employment, the MSC’s total average weekly working hours exceed 48 hours over a reference period of 17 weeks, the MPS will need to ensure that the special constable signs the opt out which is provided for via Regulation 5 of the WTR.

42. The MPS is unlikely to be susceptible to any successful legal challenge of misrepresentation, negligence or breach of contract, from members of the current pool for recruitment as police officers as a consequence of the new procedures. This is on the premise that no legally binding offer of appointment or the commencement of training has been made.

F. Background papers

• None

G. Contact details

Report author(s):

• Martin Tiplady, Director of Human Resources
• Chief Superintendent George Clarke (HR)

For more information contact:

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

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