PCSO update

Report: 9
Date: 8 June 2009
By: T/AC Territorial Operations on behalf of the Commissioner

Summary

This report provides an update on work carried out by the MPS in response to issues raised primarily as a result of the police staff disciplinary report presented to the Committee on 5 February 2009.

A. Recommendation

That members note the report.

B. Supporting information

Deployment and powers of PCSOs in the MPS

1. PSCOs provide an enhanced uniformed presence across London, dedicated to community reassurance. They are a key part to the delivery of Safer Neighbourhoods in the way they provide visible, accessible and familiar community engagement; yet also support front line policing and form the backbone to the extended Safer Policing Family where their introduction has seen a step change in the growth in ‘confidence in local policing’.

2. The Metropolitan Police Service (MPS) deploys PCSOs in the following roles:

• Safer neighbourhoods
• Safer transport
• Safer parks
• Safer airports
• Safer schools
• Security
• Transport
• Station
• Victim

3. The MPS is currently completing the roll out of enhanced safer transport teams (STT) and transport hub teams under Operation Tyrol. By June 2009 all 21 STTs will have increased in size to teams of 21 PCSOs, and those 32 transport hubs across London that have been identified as priority sites will have hub teams deployed consisting of 7 PCSOs.

4. To date, the MPS has not had to change or amend the role or duties of any of their PCSOs, which are constantly evolving to meet the needs of London’s communities.

5. In the Government’s green paper - ‘From Neighbourhood to the National: Policing our communities together’ reference is made to a review of PCSO powers by the Home Office who are currently in the process of evaluating the PCSO powers to establish which powers are actually being used. As of December 2007 all PCSOs have been designated a set of 20 standard powers, with a further 22 powers available to them at the discretion of the Chief Constable. Louise Casey’s review outlined that for some members of the public there remains a degree of confusion about what powers PCSOs have available to them and recommended an increase in standardised PCSO powers in England And Wales. Namely, her report makes the proposal that the following powers are added to the standard set of PCSO powers.

• Power to detain
• Power to issue a penalty notice for disorder

6. The MPS designated these powers to PCSOs when they were first introduced in 2002. All MPS PCSOs receive training in the use of these powers during their initial foundation training.

7. These specific powers are at the cusp of what the MPS can expect from PCSOs without introducing further control measures such as enhanced personal protective equipment. They are also qualified by policy.

8. The Commissioner has designated MPS PCSOs with additional powers over and above the agreed standard set which not only reflect the policing needs of the capital but also maintains the community engagement principles that underpin PCSO deployment: visibility, accessibility and familiarity. The Commissioner would not extend fresh powers to PCSOs without the specific consent of the MPA.

9. The chairs of ACPO and the APA wrote a joint letter to the Home Secretary in December 2008 arguing that the responsibility for any increase in PCSO powers should be left to local forces, to retain flexibility and take into account the views of the communities they serve.

10. These sentiments are echoed by the MPS who currently have no desire to increase the use of any powers for the following reasons:

• PCSOs core role is one of engagement over enforcement
• Any increase in powers could lead to further confusion of the public and the blurring of roles between PCSOs and fully sworn officers
• Further powers would increase admin burden and lead to increased abstractions from patrol
• Likelihood of enhanced personal protective equipment

11. For those reasons the MPS is currently satisfied that the powers, which include a number targeting low-level anti-social behaviour, are commensurate with the role of an MPS PCSO.

12. All MPS PCSOs are required to undertake officer safety training followed by regular refresher training. An important part of this training is the conflict management module designed around the powers that PCSOs are currently able to utilise.

13. On the introduction of PCSOs in 2002 one of the first roles they were employed in was to provide a highly visible and uniformed presence within the Government Security Zone (GSZ), thus enabling police officers to be redeployed from this task.

14. The GSZ contains a number of fixed beats and PCSOs have been primarily used to patrol these beats. This has led to little variation in their role and a feeling by some that the role is repetitive with little scope for variation.

15. A local Gold Group is currently reviewing the GSZ PCSO role within Westminster. Specialist Operations (SO) are the lead agency for the GSZ and are currently reviewing the boundaries and staffing levels in conjunction with the Cabinet Office. A report of their findings and recommendations is due on 16 June to the Gold Group.

16. The MPS is currently working on several initiatives to improve the professional development of PCSOs. Reference is made later in this report to a new training scheme for new PCSOs which will see PCSOs on every BOCU selected to perform a tutoring role for new arrivals on their BOCU. All such tutors will receive corporate training to enable them to fulfil this new important role.

17. Crime prevention training for PCSOs has been approved and will be delivered in 2009 to all those PCSOs employed within Safer Neighbourhoods teams. During the financial year 2008/09 these teams were responsible for 112,323 crime reassurance visits to victims of crime and this training will enhance the support and confidence in local policing that PCSOs can deliver.

18. The MPS is also developing training for the safer schools partnership PCSOs and this will also be delivered during 2009. These PCSOs will work towards reducing crime, anti-social behaviour and victimisation amongst young people by engaging with them, challenging unacceptable behaviour and adopting a long-term problem solving approach to address these issues. It is envisaged this training will be delivered towards the end of 2009.

19. A corporate Gold Group for PCSO issues was set up in February 2009 to help ensure that the MPS is better co-ordinated in the capturing, understanding and dissemination of information and data.

Sickness and discipline

20. In February 2009 7.1 days per police officer were lost due to sickness, 9.5 days per police staff member, and 8.6 days per PCSO. PCSO sickness levels peaked in January 2005 at 12.3 days per PCSO but have been improving since then to the current 8.6 days figure.

21. The most common reason for sickness for police officers and PCSOs is muscular-skeletal, accounting for 34% of police officer days, and 27.5% of PCSO days, while only accounting for 21.3% of Police Staff days. The higher levels amongst patrolling staff are to be expected.

22. In late 2008 the Human Resources Practice Support Team conducted a research project into the causal factors for the higher levels of PCSO discipline in comparison to the wider MPS police-staff family. This was presented to the MPA SOP Committee on 5 February 2009.

23. The report highlighted the following data:

During the financial year 2007-2008, out of 64 recorded cases of gross misconduct for police staff, 35 PCSOs were found to have committed acts of gross misconduct. During the same 12-month period, out of a total of 57 misconduct cases against police staff, 20 cases of misconduct were committed by PCSOs.

24. The data highlighted the fact that despite PCSOs accounting for 22% of the totals police staff workforce, they accounted for 55% and 35% of the total number of gross misconduct and misconduct cases.

25. Since the report was presented several new initiatives have been put into place.

Changes to PCSO training

26. The HR practice support team conducted a review of the six-week PCSO foundation training. The review focussed on the professional standards inputs delivered throughout the course.

27. The existing ‘standards’ lesson has been thoroughly revised and updated to include the Commissioner’s five Ps, and how they relate to values and behaviours. Other lessons have also been amended to ensure that these principles are embedded throughout the six-week course.

28. The diversity package delivered as part of the PCSO foundation course has also been reviewed and updated, in consultation with the Diversity & Citizen Focus Directorate (DCFD). Corporate material has now been incorporated into the package, such as customer focus and the Commissioner’s 5 Ps.

29. On the final day of the programme the HR practice support team have introduced a session focussed entirely on professional standards. It was piloted for the first time on 6 May to capture the first cohort of PCSOs graduating since publication of the report.

30. The session is delivered by the practice support team and uses previous case data. The session sends a strong message to the PCSOs and it complements and reinforces their earlier training.

31. The HR practice support team are working with the Leadership Academy in their revision of the training programmes for first and second line managers. It is anticipated that a greater emphasis of the future training developed, will have a procedural focus as well as the current focus upon on behavioural-based learning. These changes have been designed to address some of the supervisory skills gaps identified in the management of police staff misconduct and inefficiency through the PCSO report.

32. The review of the PCSO foundation course also found that PCSO and operational manager respondents were of the view that more radio training is needed. This is being progressed by the extended police family school (EPFS) on a project basis.

33. The review also identified a lack of confidence among PCSOs in potential conflict situations. EPFS is trying to secure specific upskilling for all trainers in conflict management resolution and approximately half of them have received this in 2008-2009. Increased time for practical sessions in order to develop these skill areas is desirable and EPFS is working with TP to see how this might be achieved.

34. The review of the GSZ referred to earlier in this report has highlighted the fact that staff performing this role receives minimal role specific training prior to being posted.

35. A training proposal is currently being prepared and, if sponsored, will be presented to the MPS training board at the earliest opportunity.

36. The MPS is currently developing a new PCSO tutor scheme and is aiming to introduce the scheme towards the end of 2009. All new PCSOs will receive a corporate induction to their role where they will be tutored for three weeks by an experienced PCSO on their new BOCU prior to joining their team. The HR practice support team have worked with the TP project leads to provide guidance and support in the training input for the designated tutors paying particular attention to the professional standards input.

Vetting of PCSOs

37. Vetting of PCSOs has been highlighted as an issue in several discipline cases investigated against PCSOs.

38. Vetting procedures have been improved considerably since when PCSOs were first introduced to the MPS with national SOPS now being utilised. Documents are examined via a new electronic process, which has improved standards. There are several current projects aimed at improving the systems even more such as a pilot scheme for checking for tampered or forged documents. Work is also being progressed to examine the feasibility of taking the fingerprints of all new PCSO applicants in future.

39. The MPS vetting unit follow Home Office guidelines on vetting and have a system in place that allows staff to seek advice of supervisors for those cases that cause concern even though apparently acceptable within the guidelines published.

PCSO job satisfaction & morale

40. 100% of students report being satisfied or very satisfied at the conclusion of their foundation training.

41. It is not possible to evaluate the proposed changes in PCSO training, which have been previously highlighted in this report as many of the initiatives are still in the development stage or have only just been implemented. However, the practice support team were well received by new PCSOs at their initial session to new PCSOs on standards.

42. The Tutoring scheme was initially piloted on three Boroughs. Overall, the scheme was welcomed by those who took part in the pilot. It is seen to bring much needed structure and support to a new PCSO’s first weeks on Borough, conveying the message of a disciplined organisation which sets minimum operating standards.

43. This scheme, together with other new training packages can only bring a more professional workforce, whilst providing lateral development for existing PCSOs.

44. The corporate gold group and the Westminster gold group along with HR practice support group have initiated a series of activities, referred to throughout this report, all aimed at improving the satisfaction and morale of PCSOs across the whole MPS as well as identifying the need to recognise and promote the good work of PCSOs both internally and externally.

Further information

45. PCSOs are the key to the delivery of safer neighbourhoods in the way they provide visible, accessible and familiar community engagement, yet also support front line policing roles. The vast majority of PCSOs are deployed within small mixed community teams with police officers.

46. Between April 2008 and March 2009, these teams have been engaged in a variety of activities, such as:

• 112,278 victims of crime reassurance visits
• 1,702 community payback projects
• 10,420 contact points/surgeries meeting some 131,041 people
• 42,322 leaflet/newsletter drops
• 12,295 pre-planned public meetings at which about 169,000 people attended
• 8,168 questionnaires to establish local issues
• 6,765 street briefings
• 10,103 anti social behaviour contract (ABC) home visits
• 93,701 non-prolific priority offender (PPO) intelligence entries
• 12,602 PPO related intelligence entries
• 6,750 environmental visual audits

47. As PCSOs generally make up at least half of the strength of these teams, then although these activities can only be calculated for the team as a whole, PCSOs would be responsible for a significant part of these statistics. The role of PCSOs and Police officers deployed within these teams is different, yet they all work towards the same objective. For example, whilst Police officers will have responsibility for investigating a crime, the PCSOs whose role is one of engagement, will contact the victims to reassure them, conduct local enquiries and provide general crime prevention advice thus enabling a holistic response from the entire team.

C. Legal implications

There are no legal implications arising from this report.

D. Race and equality impact

A number of race and equality issues have been raised by this and other papers these are being managed through the PCSO and Westminster Gold Groups mentioned within this report. A full EIA was completed in July 2008 and is currently subject to formal review taking account of the contents of this and previous reports to the Authority and the outcome from the Gold Groups.

E. Financial implications

There are no financial implications arising from this report at the moment. Several current actions or proposals are likely to have finance and resource implications if implemented. These will be considered as part of the normal business planning process.

F. Background papers

None

G. Contact details

Report author: Chief Inspector Gareth Morgan TPHQ, MPS

For information contact:

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

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