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

Report: 7
Date: 30 September 2010
By: Director of Human Resources on behalf of The Commissioner

Summary

This report provides an update on the proposed new model of recruitment and training for police officers. It details the routes to joining the regular service and provides indication of how foundation training changes under the new proposals. The update takes into account views expressed by members at the Authority on 24 June 2010 and during subsequent discussions with individual members, along with findings from the equalities impact assessment.

A. Recommendations

That members endorse the proposed way forward.

1. members

B. Supporting information

 Background

1. The proposal for the new model of recruitment and training of police officers represents an innovative and significant shift in traditional recruitment, development and training. Currently, police officers are recruited through generic, lengthy ongoing campaigns and receive 25 weeks of foundation training upon appointment; the development and training does not take into account previous experience or prior relevant learning and qualifications.

2. Under the proposal, there will be discrete, time-limited recruitment campaigns using a range of methods, including MetCareers website, MPS Intranet and local advertising, based upon the budgeted deployment plan with a range of alternative training options. The majority of applicants (including police staff) will come from the Metropolitan Special Constabulary (MSC), where participants will receive development and training opportunities to gain independent patrol status (IPS), together with a qualification in relevant law and policing equivalent to that currently delivered through the Initial Police Learning and Development Programme (IPLDP), and be ready for immediate deployment upon appointment as regular police officers.

3. Applicants will also come from serving Police Community Support Officers (PCSO) and others excluded from membership of the MSC by either statute or personal circumstances. Participants from these groups will be required to undertake a recognised qualification in law and policing before being eligible to apply as regular police officers. A bursary scheme is being considered for those ineligible to receive the internally delivered course. The initial training will then focus upon the skills and knowledge required to gain IPS (approximately 10 weeks).

4. The proposal will result in significant cash savings, improve local service provision and provide participants with a range of transferable skills. The Communities, Equalities and People (CEP) committee on 17 May 2010 briefly considered the proposal before referring the matter to the Authority on 24 June 2010, where members requested further opportunity to comment before resubmission on 30 September 2010.

Benefits

5. The proposal has a range of benefits – for participants, benefits are likely to include the following:

• MSC participants will develop a wide range of transferable skills e.g. personal responsibility, communication skills, conflict management and self awareness/confidence. This improves their employability in an increasingly competitive employment market as it greatly enhances their CV.
• MSC participants will have the opportunity to develop the knowledge and skills of regular police officers at their own pace, dependent upon personal circumstances.
• MSC participants will have the opportunity to gain experience within supervisory and management roles
• MSC participants will have free travel on London Underground, London Buses, DLR, Croydon Tramlink and selected Overground routes, both on and off duty.
• MSC pathway recruits will be deployable with no further training upon appointment as regular police officers.
• Non-MSC pathway recruits will have substantially shorter training upon appointment.
• Accredited prior learning will be available through a wide range of flexible training options, and will be free for police community support officers and other internal personnel.

6. For Londoners and public, the proposal is likely to have the following benefits:

• Improvement in the quality of service provision due to development and training programme of MSC.
• Increased active participation by Londoners in policing, enriching local communities and police visibility.
• Salary cost savings through training will be realised at around £20k per MSC recruit and £12k for others – resulting in a minimum saving of around £1.2m for each 100 police recruits. The savings realised are dependent upon the numbers to be recruited within the deployment plan.
• New recruits either instantly deployable or deployable after a short period.
• Reduced costs associated due to changes within the recruitment process.
• Anticipated rich diversity of MSC and PCSO mapping across to regular police.
• MSC likely to be drawn from a wide range of occupational backgrounds and likely to enrich service provision.
• Quality enhanced through competitive process where the best candidates are selected to become London’s police officers.

7. The proposal will also provide the MPS with benefits, including the following:

• Model represents a positive opportunity for the MPS to lead the way setting a national agenda for modernisation.
• Motivating factor for step change in MSC growth.
• Reduced salary costs during training.
• Facilitate reduction in training school headcount.
• Improved operational capability and capacity.
• Potential for income generation through the provision of selection centre facilities and a law and policing course to other forces.
• Reduced turnover potential amongst regular police recruits and probationary officers due to personal investment, cultural immersion and proven commitment.

Programme features

MSC step change

8. Whilst the implementation of this model of police officer recruitment and training is dependent upon the success of the MSC step change programme, it is a separate strand of work. Under the step change programme, the MSC strength is expected to increase to 6,667 by March 2012. The funding for the MSC growth incorporates funding from within the MPS, as well as both Transport for London (£2.9m) and Home Office Olympic Grant (£6.1m). The Olympic Grant is now under further review. The user requirement for MSC accommodation has been agreed and work is underway to identify appropriate local resources. In terms of delivery, Human Resources and Territorial Police have implemented a joint recruitment strategy, utilising resources within each OCU, including two members of staff on each borough, HR community engagement and advertising/marketing. The application rates to date have been very good, well within the target range of around 900 applications per month. The diversity of applicants is excellent with around one-third of applicants being of black and minority ethnic (BME) origin and female.

Recruitment

9. As part of the new model, all regular police applicants will be required to pass the Home Office National Recruitment Standards, including all eligibility criteria, their assessment centre and health and fitness standards. MSC applicants will be required to have attained independent patrol status and completed their development and training. Non-MSC applicants will be required to have successfully completed a recognised qualification in law and policing for external applicants, or the MPS course for internal groups. MPS legal advice suggests that these changes amount to an increase in minimum standards for appointment under Regulation 10 (The Home Office has confirmed that they are supportive of these proposals and a consultation exercise through The Police Advisory Board for England and Wales - PABEW, which includes an MPA representative, is now taking place. Following this, changes to Regulation 10 will be made that remove any ambiguity that might currently exist and which mandates our proposals). The numbers coming through the respective routes will be dependent upon the recruiting requirement, the deployment plan and the performance of the individual in what will be a competitive process which will select only the best candidates.

10. Applicants who had received an unconditional offer of appointment all joined recruit intakes in May and June 2010. All other applicants were personally contacted by Recruitment staff and informed of the lower than expected number of police vacancies and that the opportunities for appointment in the near future would be very remote. Reluctantly these applications were ended. During the conversation, between applicants and Recruitment staff, applicants were informed of the benefits of joining the MSC in terms of developing transferable skills and improving their odds of success when police vacancies arose in the future.

MSC pathway

11. Under the proposal all MSC will receive foundation training lasting 23 days, followed by coached patrols, where MSC officers are required to maintain a record of work illustrating a wide range of situations covered whilst on duty. There is an expectation that the average MSC officer will attain independent patrol status after around 18 months of coached patrol, assuming 200 hours service per annum. At this point, the training routes diverge.

12. MSC officers who do not intend becoming regular police officers will receive continuing professional development, some being able to work within specialist areas or apply for promotion.

13. When vacancies arise in the regular service, MSC officers wishing to become police officers need to have attained independent patrol status in order to apply. Successful MSC applicants will receive additional training, including an internally delivered course covering law and policing, to bridge the gap between MSC knowledge and skills and those of our current regular police recruits who have completed IPLDP (MSC must pass this stage to be qualified for appointment to the regular service).

14. Timescales are likely to be strongly influenced by participants’ personal circumstances and their time available for voluntary service. Upon appointment officers will continue to be required to undertake a two-year probationary period upon appointment to the regular service. The MSC training is based at local regional learning centres, including Hendon, Beal Street, Bethnal Green and Havering. Training school has the resources, resilience and flexibility to meet the training requirements of the MSC step change programme together with this new model of recruitment and training. Appendices 1 and 2 provide flowcharts of the process.

Non-MSC pathway and graduates

5. People who intend applying for the regular police service, but are unable to become MSC officers due to personal circumstances (e.g. primary carers) or excluded occupations (e.g. PCSO, Designated Detention Officers, members of the armed forces, etc.) will follow a different route. Under the proposal, this group will need to gain a recognised qualification in law and policing before being eligible for application. Upon appointment, officers will receive a 10-week conversion/foundation course covering key skills, before joining a borough. Upon joining a borough, the officers will receive an induction. Officers will need to maintain a record of a wide range of situations covered on duty as part of their probationer continuation training; the probationary period will remain two years. MPS personnel, including PCSO, will be eligible for the internally delivered law and policing course. External applicants will need to finance the course themselves, though local colleges are likely to offer concessions to many groups (e.g. unemployed) to help cover course fees. A bursary scheme will be developed as part of the positive action activity if it proves necessary. Appendices 2 and 3 provide flowcharts for the process.

Deployment

16. MSC officers are generally deployed in roles that require police powers and where they can make an effective contribution to local policing, providing additional visible patrols and facilitating local independent patrols. The majority of MSC are integrated within Territorial Police, there being limited suitable openings in other business areas (e.g. Central Operations or Specialist Operations). However, within Territorial Police, specials are involved in the delivery of a wide range of service provision, including Safer Neighbourhood, Safer Town Centre, Safer Transport and response teams. Due to the differing needs of this service provision, MSC are often required at times other than the traditional Friday and Saturday nights, enabling people from some communities to participate without compromising their cultural beliefs (e.g. Jewish community). Moreover, it is anticipated that as the number of specials increases, particularly in light of the 2012 Games, the range of duties will widen – for instance, MSC officers are being trained in public order and used in large public events (e.g. Notting Hill Carnival, London Marathon and Trooping the Colour). Employer supported MSC are also often on duty during their working day. The range of opportunities available to specials will continue to be a central feature of marketing.

Development and supervision

17. As noted earlier, whilst the MSC offers considerable opportunities for personal development and lateral progression, particularly in light of the importance of the MSC upon service provision, opportunities arise to develop supervisory and management skills. The MSC has its own rank structure with special sergeants and special inspectors in place to manage the welfare and management needs of the MSC locally. Funding has enabled the appointment of two additional regular sergeant posts on each borough to support the MSC by co-ordinating operational deployment and their management. As MSC officers gain experience there will be opportunities for some of them to take up supervisory and management positions (MSC wishing to participate receive ongoing development and training to nurture their skills and abilities, and pass a rigorous selection process). There is an aspiration to enhance the MSC supervision model and have full integration within the MPS together with optimum deployment and management.

MSC retention

18. There is expectation that increased managerial resilience and support, coupled with many development opportunities, will contribute towards overall satisfaction and impact positively upon retention. In terms of resignation rates amongst specials, the MPS had an overall resignation rate of 16.8% for the 12-month period July 09 – June 10. However, resignation rates vary considerably across the MPS. The highest rates are around 25% whilst the lowest rates are around 5%. The resignation data reveals that the highest resignation rates are associated with boroughs with the highest number of MSC. Conversely, the lowest rates appeared to be associated with boroughs with the lowest MSC population. Whilst resignation rates provide a useful measurement of corporate health, there are clear differences between resigning from voluntary work and paid employment where the motivation for joining and participation are different. In the absence of reliable research and comparators, it is unclear whether MSC resignation rates are normal for the field of voluntary work. Nevertheless, in order to help identify local retention issues, a new monitoring process has been implemented. Additionally, an MSC survey is being developed to asks specials if they feel valued and deployed effectively, though it does not specifically cover culture; this area has been addressed through recent focus groups.

C. Other organisational and community implications

Equality and Diversity Impact

19. The equality impact assessment (EIA) was undertaken in partnership with Diversity and Citizen Focus Directorate. The consultation included MPS staff support associations (through SAMURAI), staff associations (including trade unions and Police Federation) and special constables. Specific comments were received from Association of Muslim Police, Jewish Police Association, Chinese and South East Asian Staff Association and Police Federation. The Greater London Authority was also involved, though no feedback was received. Several focus groups were held with a range of internal and external participants. The assessment l was discussed with MPA officers. The draft assessment was submitted to the MPA in May 2010, and Authority Members have had subsequent opportunity to comment. The findings from the process have been incorporated into the EIA.

20. The EIA highlighted that the proposal might impact upon the following groups:

• Older people, particularly those with families, may be excluded from police opportunities as they are less likely to have the time available for MSC duties and study commitment than younger people.
• People from Muslim and Jewish communities may be excluded from police opportunities due to MSC duty clashing with cultural aspects of these communities.
• Women and other primary carers may be excluded from police opportunities due to time commitment for MSC duties and study.
• People with low disposable income may be excluded from police opportunities due to the cost of the law and policing course and/or financial freedom to undertake voluntary work.
• BME communities may be excluded from police opportunities due to the overrepresentation within the poorest communities.

21. In order to help mitigate any adverse impact, a range of measures were put forward including:

• Provide access to Police Federation or other formal staff association.
• Introduce positive action support for MSC.
• Provide the law and policing course to MSC, PCSO and other internal groups.
• Ensure that the law and policing courses are delivered in a flexible way, meeting the needs of participants wherever practicable.
• Operate flexible working for MSC with negotiated time commitment, enabling participants to readily combine MSC duties and personal circumstances.
• Consider the introduction of a bursary scheme to provide assistance for external groups undertaking a law and policing qualification.
• Lobby external providers to extend the lifespan of the law and policing qualification, and consider the introduction of low cost/free refresher courses.
• Consider reducing the current two-year probationary period to reflect previous relevant service.
• Management information to monitor a range of factors, including application, joiner and retention rates, with a range of critical success factors to measure performance and identify/mitigate risk.

22. During the EIA process, a number of positive contributions to the development of the proposal have occurred including:

• Reassessment of the time commitment to the MSC (originally this was 300 hours per annum, but has been reduced and made flexible).
• Free, flexible and internally delivered law and policing course for MSC, PCSO and other internal groups.
• Police Federation voting in favour of MSC becoming members and given the same legal protection as regular police officers.
• Introduction of management information system to evaluate application, joiner and wastage rates by gender and ethnicity relative to local populations (BME application rates during the last six months continue to exceed the London population).
• Territorial Police driving the MSC step change programme through ACPO led programme board.

Consideration of MET Forward

23. The proposal mainly supports the Met Forward theme of representative workforce. The MSC step-change is proceeding and very challenging application and recruitment targets are in place. During the last seven months, MSC application data reveals that not only has the monthly target of 900 been achieved, but BME and female representation has remained consistently high at an average 37.4% BME and 32% female. Nevertheless, the application data has revealed that Asian applicants exceeded the London working population (i.e. 19.7 percent against a working population of 14.1 percent), whilst the Black applicants fell below the local population (i.e. 7.6 percent compared to 10.5 percent). In order to help address this issue, an action plan is being developed with the Metropolitan Black Police Association to introduce targeted campaigns, where there is expectation that the representation level of Black applicants will increase. Consequently, in light of the emerging data relating to the MSC application base and existing high-level of BME representation amongst the MSC, there is expectation that the current proposal will make a positive contribution towards workforce diversity.

Financial implications

24. In recent years, MPS recruitment has varied between 950 in 2007/08 and 2,000 in 2009/10 and reflected significant growth particularly in respect of Counter Terrorism, Safer Neighbourhoods and Safer Transport growth.

25. The period of growth is now completed and we await the outcome of the comprehensive spending review in the autumn when the MPS deployment plan for future years will be revised. In the interim and as noted previously by the MPA, the recruitment of police officers is paused and is unlikely to resume for the foreseeable future. This affords us time to implement and bed in this new model of recruitment and training for when we are next recruiting. Under the current model, the salary cost of an officer during training is approximately £20k per officer. Moving to the new proposed model will save up to a maximum of £20k per appointment and £12k per PCSO and other appointments. Each 100 appointments through the new model releases between £1.2m and £2m cash savings from salary costs, depending upon the mix of MSC and others (the mix will be set as part of the deployment plan’s development and will vary according to the circumstances that then prevail). Savings accrue subject to the numbers to be appointed.

26. The financial benefits of the proposals outlined in this report 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 PCSO and other appointments.
• Recruit training would be delivered by our revised training infrastructure in accordance with the corporate training service improvement project (SIP) programme (see below).
• This proposal redirects existing HR resources, which would have otherwise been focused on police officer recruitment and training, to MSC recruitment and training. As a result, the cost of delivering the MSC step change numbers will be reduced. A new business case has been prepared which reflects the redirection of HR resources.
• Savings are over and above existing THR savings.

27. There are a number of related but separate corporate programmes that are running simultaneously, including:

• MSC Step Change Programme
• Training SIP.
• Real Estate SIP.

This report does not cover these but instead focuses upon the adoption of this new model of recruiting and training police officers.

28. Clearly, this is a busy corporate landscape and one requiring co-ordination, which will be achieved through governance at ACPO led programme boards.

Legal implications

29. As indicated earlier in this report, 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. The Home Office is supportive of these proposals and amendment of Regulation 10 following the current consultation exercise through the Police Advisory Board for England and Wales.

30. 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. (This is addressed via the Non- MSC pathway recruitment ).

31. Further consequential amendments may be required to the Police Regulations, following any amendment to Regulation 10. Officers will still be on probation for the first two years of their service, as Regulation 12 does not allow any reduction to this to take account of service as a special constable.

32. 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 childcare commitments may have trouble 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.

33. The Equalities Impact Assessment will be regularly reviewed and a monitoring process will be implemented in order to assess the impact this approach may have on all groups and to help develop positive action initiatives that may be required to mitigate any adverse impact.

34. 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.

35. 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.

36. The Commissioner has both a statutory obligation under Health and Safety and the common law to ensure the provision of such information, instruction, training and supervision to ensure as far as is reasonably practicable the health and safety at work of his officers and employees, and that there is a safe system of work. The skills, training and experience of a MSC upon appointment as a regular constable will need to be assessed to ascertain vulnerabilities in terms of any shortfall and to ensure necessary risk assessment. In accordance with the Police Regulations 2003, the officers will be on probation for the first two years of their probation and any underperformance will need to be addressed.

Environmental implications

37. There are no apparent environmental implications arising from the proposal.

Risk implications

38. The risks are as follows:

• The time needed by the Home Office to change Regulation 10 of Police Regulations.
• 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.

D. Background papers

None

E. Contact details

Report author(s): Chief Superintendent George Clarke, Head of HR Community Engagement; Duncan Arnold, Strategic Researcher, MPS

For more information contact:

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

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