Contents

Report 6 of the 3 September 2009 meeting of the Strategic and Operational Policing Committee, with details of accuracy and risk management of crime data.

TP Thematic Performance Report (Crime Data Accuracy)

Warning: This is archived material and may be out of date. The Metropolitan Police Authority has been replaced by the Mayor's Office for Policing and Crime (MOPC).

See the MOPC website for further information.

TP Thematic Performance Report (Crime Data Accuracy)

Report: 6
Date: 3 September 2009
By: DAC Territorial Policing on behalf of the Commissioner

Summary

This report:

details the existing oversight arrangements in relation to crime data accuracy,
describes existing risk management of crime data,
updates progress against the recommendations made in the MPA Crime Data Recording Scrutiny, and
considers relevant finance and resource implications and value for money.

A. Recommendation

That

members note the existing arrangements for assuring the accuracy of MPS crime data and the oversight provided for those arrangements; and
the existing arrangements for managing the risks associated with crime data.

B. Supporting information

Crime Data Accuracy

1. The first opportunity to assure crime data quality rests with front-line supervisors and supervisors on BOCUs and within the three CCC sites. In 2006 the MPS delivered presentations to 2000 BOCU supervisors advocating the benefits of data quality. Currently, CCC are undertaking an internal training programme encouraging intrusive supervision of incidents - with particular emphasis on those that may result in the recording of a crime.

2. The next opportunity to examine the quality of recorded crime rests with staff in BOCU Integrated Borough Operations (IBOs) and Crime Management Units (CMUs). These units are responsible for the correct closing of incidents, final classification and confirmation of crimes, and making requests to the TPHQ CMU for crimes to be reclassified and for making decisions to No Crime existing crimes.

3. The Data Accuracy Team (DAT - formerly known as the Crime Integrity Team) was formed in April 2003. Its agreed objective was “To achieve comprehensive, consistent and accurate recording of crime, in line with the National Crime Recording Standard and Home Office Counting Rules.”

4. In order to provide demonstrable objectivity and independence DAT were part of the Strategic Modernisation and Performance Directorate (SM&PD) prior to transferring into Territorial Policing (TP) in April 2008.

5. The current Force Crime Registrar (FCR) is a senior member of Police Staff (Band B), the role previously being fulfilled by Detective Chief Superintendents. The FCR has a team of six PS/Band D Assistant Force Crime Registrars to review all MPS crime. The MPS also has a separate incident audit team comprising of two members of staff.

6. DAT have a published audit programme (Appendix 1) however, due to the activity in relation to Most Serious Violence (MSV) it has only been possible to undertake very limited audit work in relation to other areas of identified risk.

7. The Directorate of Information (DoI) Data Quality Team also play a role in assuring crime data quality on CRIS and other systems, however, this focuses on ensuring that the correct format and alphanumeric character is entered in given fields rather than ensuring that the data itself is fit-for-purpose.

8. Oversight arrangements in relation to crime data quality are;

In relation to tactical issues - via the monthly Crime and Incident Recording Oversight Group (CIROG) chaired by Ch. Supt. (Emerald)
In relation to strategic issues via the quarterly Strategic Crime and Incident Recording Group (SCIRG) chaired by Cmdr (Organisational Capability and Criminal Justice Reform).

Both of these meetings are minuted with agreed Terms of Reference (Appendix 2).

9. The TP Strategic Tasking Meeting Chaired by DAC Owens takes a risk-based approach to crime performance, including the issue of data quality. This meeting is attended by all TP ACPO officers and the Senior Management Team of the TP Performance Unit.

10. The Crime and Incident Data Quality Improvement Programme (CIDQIP) is the single document which acts as a vehicle for driving continuous improvement across the various Business groups (Appendix 3). A review of this document and progress against objectives is a standing agenda item at SCIRG.

Risk management of crime data

11. The Risk Register expressed as a ‘Bow Tie’ device ‘ Inaccurate Incident and crime recording’ (Appendix 4) is also a standing agenda item at SCIRG and regular updates are required from contributors. In addition to this strategic view, the FCR advises the ACPO lead for Crime Recording of those issues presenting particular risks.

Progress against recommendations made in MPA Crime Data Recording Scrutiny.

12. A copy of the MPA Crime Data Recording Scrutiny Update Report -June 2008 is at Appendix 5, and a further update in relation to progress is at Appendix 6.

C. Race and equality impact

1. Unless incidents and crimes are consistently and accurately recorded, a disparate service will be provided to callers and victims of crime.

2. The National Crime Recording Standard (NCRS) is victim focused, and as such relies upon all contact with victims identifying potential crimes that must be recorded. The DAT audit programme takes a risk-based approach to examining the cradle-to-grave process concentrating on those areas where NCRS and the Home Office Counting Rules (HOCR) may not have been complied with.

3. Performance Information Bureau (DoI) carries out a monthly audit of Domestic Violence CRIS reports, identifying where ‘flags’ are missing from reports of Domestic Violence and where victims details are not recorded. Other examinations look at those crimes where referral to the Victim Support Scheme (VSS) is not required without a supporting rationale.

4. Future examinations will look at the accuracy of Hate Crime flagging-similar to the procedure carried out in relation to crimes of Domestic Violence.

5. The results of these examinations are contained within the TP Scorecard, or are reported back through SCIRG.

D. Financial implications

1. The centralisation of certain functions currently undertaken by CMUs will not only provide immediate improvements in relation to both consistency and accuracy, but may also lead to budget savings. A review of CMU’s is currently being undertaken as part of the service Improvement Program and any identified savings would be included in the business planning process.

2. Any changes in the resource requirements for the DAT team will be managed within existing MPS budget resources.

E. Legal implications

Not applicable.

F. Background papers

MPS Crime Data Recording Scrutiny 2008.

G. Contact details

Report author: DCS Peter Barron

For information contact:

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

List of appendices

Appendix 1 DAT Audit Programme
Appendix 2 Terms of Reference for CIROG and SCIRG
Appendix 3 Crime & incident Data Quality Improvement Programme
Appendix 4 Risk Register - Inaccurate incident and crime recording [PDF document]
Appendix 5 MPA Crime Data Recording Scrutiny - initial update report
Appendix 6 MPA Crime Data Recording Scrutiny - latest update report

Appendix 1: DAT Audit Plan 2008/09

In support of the NSIR audit already in place there needs to be a regular crime data audit. Any such audit must ensure that the areas reviewed are those that support and enhance the data being used to measure performance.

The Home Office have set Performance Targets under Policing and Community Assessments (APAC) that are based upon the Public Service Agreements (PSA) 23 & 24. They have listed crime into Tiers. Annex A.

The MPS has created a performance framework with targets as part of its Corporate Plan 2008-11 to enable it to achieve the HO Targets. Annex B.

TP have created a scorecard of individual areas of performance that will support the MPS Targets. BOCUs will be held to account for their performance against the scorecard via CCSMs. Annex C.

It is important therefore that the data that contributes to BOCUs achieving their performance areas are subject to audit.

There are also a number of pinch points within the crime recording process where the decisions made are crucial to the accuracy of the data.

They are

The decision to record an incident as a crime made on a CAD.
The type of crime an incident should be recorded as.
When taken, the decision not to record a CRIS as a crime but to confirm it as a CRI.
A decision taken to no crime.
A decision taken to show a crime as being detected.

The crime side of the audit will initially concentrate on the crimes falling within Tier 1 & 2 and will cover all 5 areas shown above. It will also initially be a force audit until the resources required to complete the audit have been assessed. As far as possible the sample size for each of the 5 parts will be 400 records and, if possible, proportional representative of a month’s data set. It is intended that the audit will be undertaken monthly, but if necessary can be extended.

1, CAD to CRIS

This will focus on those CADs opened as a Violent Crime and Sexual Offences (Tier 1) and Burglary Dwelling, Robbery and Vehicle Crime (Tier 2) to assess whether they have been closed correctly, either as a crime or a CRI.

2, Crime Classification

When the performance measure is a reduction the incentive is to record incidents as something other than the item being measured, therefore this section will look at those areas where crimes with Tiers 1 & 2 could be misclassified.

3, CRIs

Showing an incident incorrectly as a CRI (on CRIS) is another method to remove crimes from the count and thereby improve crime reduction performance. Therefore this section will examine those CRIS records where the initial classification is a crime within Tiers 1 & 2 but is subsequently confirmed as a CRI.

4, No Crimes

Having recorded an incident as a crime, crime reduction targets can be unethically supported by removing the crimes from the count by no-criming them. This section will audit crimes with Tier 1 & 2 crimes that have been subsequently no crimed.

5, Detections

Whilst the HO have shown a movement away from an overall sanction detection rate there are still some detection measures within the MPS plan. This section will look at crimes with Tiers 1 & 2 that have been shown as detected. The detection types will be on a risk based approach where there is more likelihood of inaccuracies occurring.

Tier 3 crime

As the emphasis is on performance in relation to Tiers 1 & 2 crime auditing of Tier 3 crime will initially not be the norm. It will, however, be undertaken if an area is seen to be problematic or it is clear that resources are such that the above audit can be expanded to incorporate the extra work on regular basis.

Auditors

Initially the crime side of the audit will be undertaken by the crime side of the DAT. When the audit process has been underway for a period of time joint working will be undertaken with the incident side to increase the skills of all DAT. The final outcome will be that all DAT members will be able to conduct audits into the whole incident/crime process.

Audit sample

Audit samples will be arranged into spreadsheets that will show data reproduced from DARIS and CRIS together with an area to be completed by the auditor that reports on the compliance of the sample being reviewed.

Reports

Reports will be created based on the findings of the audit. The final audience is to be decided, but will go to at least the MPS ACPO responsible for crime recording.

Appendix 2: Draft Terms of Reference for sub-committees

Strategic Crime & Incident Recording Group (SCIRG)

Chair: Commander Minton

Frequency of meetings: Monthly.

To provide support and oversight of CIROG and NSIRIG.
To coordinate activity in support of the MPS Data Quality Improvement Programme (DQIP)
To provide support and oversight to the MPS Performance Management Framework as it relates to crime and incident recording.
To provide support to MPS Management Board in relation to crime and incident recording issues.
To provide oversight of the implementation of NSIR by the MPS.
To provide oversight of Risk Registers relating to crime and incident recording.
To coordinate external audit and inspection of the MPS as it relates to crime & incident recording.
To remit actions to CIROG and NSIRIG.
To resolve those issues unable to be reconciled by CIROG or the NSIRIG.
To coordinate updates regarding DQIP, internal and external audit to the MPA.

Crime & Incident Recording Oversight Group

Chair: Chief Superintendent Young

Frequency of meetings: Monthly.

To report current and emerging issues on NCRS/NSIR/HOCR to SCIRG.
To drive activity to improve the coordination of NCRS/NSIR/HOCR.
To monitor and where possible to coordinate internal inspection across the MPS of NCRS/NSIR/HOCR audits.
To provide support to Business Groups in relation to NCRS/NSIR/HOCR
To identify threats to NCRS, NSIR & HOCR and take preventative action.
To act as a consultation forum for NCRS and HOCR changes and act as the link between SCIRG and NSIR Strategic Working Group.
To identify and disseminate best practice across all Business Groups.
To support the Force Crime Registrar regarding NCRS, NSIR & HOCR issues.
To remit irreconcilable issues to SCIRG
To provide direction and support to the NSIR Strategic Working Group and the CMU/TIB sub Groups

Appendix 3: Crime & Incident Data Quality Improvement Programme (CIDQIP)

Overt ACPO support for data quality.

Business Need

The MPS has the potential to lead the UK in the way in which it understands the problems experienced by communities and how it uses information for action. This should not be limited to solving immediate problems, but to create an environment where we see change in response to the needs of the public we serve as a means of improving the service we provide. Data quality is essential to achieving this cultural shift.

Outcome

A workforce that considers data quality essential in delivering improvements to the service we provide.
Qualitative performance indicators that carry equal weight to those measuring quantity.
Inclusion of data quality in all performance meeting agendas.

Lead

Commissioner.

Timescale

Upon appointment.

Update

Sir Paul Stephenson appointed as new Commissioner.

Mtg of NPIA & forces on 12 .6. 9 re possible review of NSIR. ACC Ian Dyson (Surrey) will direct as ACPO lead. Awaiting further information.

Governance of CIDQIP via SCIRG

Business Need

Appropriate control direction and accountability of major MPS change programme involving various Business Groups.

Outcome

Minuted SCIRG meetings demonstrating control direction and accountability of a major MPS change programme.

Lead

Cdr Eastaugh

Timescale

On-going.

Update

Last meeting 1.4.2009

Risk Management Strategy.

Business Need

Identification of risks resulting from existing crime and incident recording practices, internal and external audit and reviews require controls and solutions to mitigate the risks.

Outcome

Risk Management ‘bow-tie’ illustrating causes, consequences and controls of existing risks.

Lead

DCS Barron

Timescale

5.1.2009

Update

Risk Register re circulated 1.7.9 for refresh by contributors.

CHS-CAD-CRIS attrition.

Business Need

The totality and nature of demand must be accurately mapped to ensure officer and public safety, public confidence, the accurate recording of crime, the appropriate deployment of resources, improved data quality and performance improvement.

Outcome

Review of incidents from CHS-CAD-CRIS and identification of those points at which incorrect decisions are made. This will enable improvement activity to improve these
Identification and resolution of ‘quick-wins’ in relation to NSIR/NCRS ‘failures.
Production of guidance for CCC/IBO operators and supervisors in relation to high volume and high-risk incidents.

Lead

DCS Barron

Timescale

1.3.2009

Update

Risk-based samples via TP St. Tasking illustrate wide variation in CAD-CRIS compliance re priority crimes. DAT examining HT & QK re Burglary CAD to CRIS.
Draft Aide Memoir by DAT & CCC published and circulated
Risk-based IBO/CCC Supervisors Guide published and circulated.

Understanding the totality and nature of demand.

Business Need

The MPS must understand the various means used by the public, other agencies and officers to inform us of an incident and/or a crime. That understanding directly impacts upon public and officer safety, using information for action and deployment profiles.

Outcome

Process map of all means of public-other agency-police contact and identification of areas of risk.

Lead

Ch. Supt. Harrington

Timescale

First pass paper 1.4.09

Update

Forms part of the CCC / IBO review being conducted through Patrol OCU. – this is still ongoing and due to report April/May 09

Front counters project also looking at public access models and other means of improving front counter services to the public.

Developments now linked to the Presence approach and the new approach to Town Centre policing.

Implementation of National Incident Category List (NICL)

Business Need

The full adoption of NICL, with its four strands Transport, Anti Social Behaviour, Public Safety & Welfare will allow the MPS to move away from the concept of miscellaneous demand. As NICL sits within the heart of NSIR its success is entirely dependent on the implementation of NSIR.

Outcome

Fully functional NICL will compliment the aspirations/requirements concerning the inclusion of Anti Social Behaviour within local crime mapping released into the public domain.
NICL with its nationally agreed content and definitions with (NSIR) will allow consistency, accuracy and comparability between forces, and other data sharing partners regarding the bulk of our core business.

Lead

Supt. Wightman.

Timescale

August 2009

Update

MPS is fully committed to implementing NSIR, incorporating the NICL codes. Implementation is projected for March 2010. Whilst this is later than originally anticipated, due to technological requirements and changes, the Project Board are developing interim activities which will introduce some aspects of NSIR and NICL prior to full “go live” next year.

Implementation of National Standard of Incident Recording (NSIR)

Business Need

NSIR provides a framework for accurately and consistently recording all policing demand. Data produced through effective implementation of NSIR delivers a complete picture of demand, intelligence at a local level as well as essential management and performance information for use across the organisation. The MPS is required to share data recorded under NSIR with Crime and Disorder Reduction Partnership (CDRP) partners through Statutory Instrument (2007) 1831.

Outcome

Superior data about totality of demand, to inform strategic decision making around local area agreements / public service agreements with key service partners.
Better quality data / information are key in minimising risk of service failure in aspects such as analytical research, operational service delivery.
Better understanding of the scales and productivity of Safer Neighbourhood Policing & Citizen Focused policing initiatives.
Compliance with National Contact Management Programme, which compliments MPS’s new corporate objectives of striving to “improve people’s experience of their contact with us, especially victims and witnesses.”

Lead

Supt. Wightman.

Timescale

August 2009

Update

Centralised Crime Management Unit and Crime Recording and Investigation Bureau.

Business Need

TIB Remedial projects:

Inconsistent application of TIB SOPs
Two TIB SOPs in use across the MPS
Victim/User satisfaction with TIB lower than non-TIB
Non-use of TIB Portal means MPS still requires long-winded unsatisfactory call-back system for TIB crimes

Centralised CMU:

MPA Crime Data Scrutiny Report (Feb 2008)
DAT audit (September 2007)
Inconsistent application of NCRS and HOCR on 32 BOCU CMUs

Outcome

TIB Remedial projects:

TIB Portal in use. Replaces call-back system; higher level of service to victims of crime
Revised TIB SOP

Centralised CMU:

Consistent approach to NCRS and HOCR
Improved data quality
Improved public confidence in police data (longer term)
Perverse incentives removed from BOCU CMUs and SMTs

Lead

Ch. Insp. Bryars.

Timescale

TPCT approved 6-month pilot on XH and QK. Pilot to start 15 June 2009

TIB Review: Dec 2009

TIB Portal:

Live Dec 2009

Update

Pilot commenced on schedule on 15 June. Project team now planning for stages 2 and 3 (rollout to West link from January 2010, and full MPS rollout from April 2009)

CRIB team involvement with MSV issue has delayed this activity. Now planned to commence in the final quarter of 2009, subject to capacity on project team.

Peer Reviews

Business Need

To test NCRS & HOCR compliance at Borough level. This not only impacts on whether or not crime data is fit-for-purpose re deployment in operational policing but also contributes towards overall assessment of data quality.

Outcome

Greater understanding of NCRS & HOCR issues at BOCU level.
Improved ability of BOCU Cdrs to identify underlying reasons for NCRS/HOCR failures.
Opportunity to rectify errors that are discovered to be non-compliant.
Improved means of Link Commanders to hold BOCU Cdrs to account.

Lead

DCI Arnold.

Timescale

Next Peer Review in April 2009

Update

First Peer Review completed in 2008. Briefing and training for BOCUS delivered in March 09.

DAT unable to quality assure 09 results due to MSV review and no other resources available.

Crime Recording Audit Programme

Business Need

All crime data supplied to the Home Office needs to be compliant with the rules provided. This will ensure the MPS is correctly judged against other forces, has the confidence of the public and when challenged on performance is able to provide the supporting evidence.

Outcome

Annual rolling audit of crimes covered by Public Service Agreement 23, including:

Classification of Crimes.
Mis-classification of Crimes.
Crimes that have been no-crimed.
Allegations of crimes that have been resulted as Crime Related Incidents.
Crimes that have been resulted as detections.

Lead

Colin Duncan.

Timescale

Ongoing

Update

1/7 - Rolling audit, Batch sampling and CAD Investigation 1 audit interrupted due to requirement to prioritise the 1st qtr 2008/9 MSV baseline review. Latest CAD investigation 1 report for April 09 published along with an amalgamated report for PY 2008/9.

Incident Recording Audit Programme

Business Need

The principal aim of the National Standard for Incident Recording (NSIR) is to ensure that all incidents, whether crime or non-crime, are recorded by police in a consistent and accurate manner, so as to allow resulting data to be used at a local and national level to meet the management and performance information needs of all stakeholders. By understanding the nature and totality of demand we should be better placed to use information for action and deliver against the Policing Pledge.

Outcome

Automated monthly audit programme.
Tests will include whether incidents are opened and closed correctly under NICL (currently ASB Categories only) and all other Type and Class Codes in use by the MPS.
Where incidents are opened in one category and closed in another, ensure there is sufficient information on the log to show the journey is justified and meets compliance.
If the incident is Minimum Data Standard (MDS) compliant as set out in the NSIR counting rules document.
As the remaining NICL themes are introduced ensure the scope of the audit is expanded accordingly to meet the recommended minimum levels of data auditing for NSIR.

Lead

Nigel Tonge

Timescale

Ongoing

Update

DAT NSIR Audit Programme 2009 agreed.

As of July 2009, the quarterly audit records & reports to BOCU & CCC Cdrs instances where the 5Ps have not been met.

Integrated Scorecard including crime and incident recording.

Business Need

A scorecard combining the benefits of the NCRS/NSIR data audits and the DoI Data Quality Improvement Programme. The resulting product will allow an at-a-glance update in relation to performance improvement re Poor/Fair/Good/Excellent.

Outcome

Data Quality Scorecard incorporating NCRS, NSIR and DoI Data Quality Audit results.

Lead

Nick Crouch

DCS Barron

Timescale

Draft circulated at TP Strategic Tasking and SCIRG.

Update

Draft circulated.

TP Scorecard now contains specific data quality measures.

Action Plan re NPIA Baseline Review of NSIR.

Business Need

The NPIA Baseline Review identified an under recording of crime and Anti-Social Behaviour together with a failure to understand the nature and totality of demand. An accurate understanding of all of these issues is vital if the MPS are to effectively use information for action, respond to evidenced demand profile, and deliver the Policing Pledge.

Outcome

CCC NPIA Action Plan.
Priority Quality assurance Process at CCC.
DARIS-driven supervision protocol.
Identification of Core Team Champions to drive further improvement on CCC teams.

Lead

Supt. Hanson-Coles

Timescale

Complete.

Bow & Hendon by March 2009.

In place now.

Selection complete by March 2009.

Update

CCC NPIA Action Plan published.
PQA in place at Lambeth CCC – to be rolled out to Bow & Hendon ASAP.
DARIS protocol targeting Blunt 2/Spotlight/DV incidents.
Awaits selection of sufficient team champions

DoI Data Quality Programme

Business Need

The DoI Data Quality Improvement Programme is focused on the Met’s most valued operational data. It is intended to improve the quality of information for action held in policing systems.

Outcome

Data quality monitoring environment producing daily exceptions for local action and monthly management reports
Improvement to front end validations on CRIS to prevent input of invalid data
Business change programme to promote good practice

Lead

Nick Crouch.

Timescale

Ongoing programme of work

Update

2008/9 targets exceeded with all but one borough Good or Excellent and overall Excellent marking on Corporate Health Indicator
Targets re-baselined in April to support continuous improvement. Corporate Health Indicator Poor but showing month on month improvement.
Text and data mining implemented to improve alcohol flags on CRIS through Borough exception reports. PIB supplied with specific Knife and Gun Crime exception reports.
Second tranche of Borough visits by Business Change team in planning stage. All follow-ups now complete from the first tranche.

Communication Strategy.

Business Need

The issue of crime recording regularly features in local and national media articles. This has an impact on public confidence. In order to correctly describe any change in performance the context of that change must be appropriately explained.

Outcome

Briefing to media on the complexities of crime recording, with timely and updated media lines to be shared corporately and local to Boroughs.

Lead

Bernie Ford

Timescale

On-going.

Update

Media briefing held.

Appendix 5: Crime Data Recording Scrutiny Report Update

Report: 12
Date: 12 June 2008
By: Assistant Commissioner Territorial Policing on behalf of the Commissioner

Summary

This report contains an update on progress towards the 11 recommendations of the MPA Crime Data Recording Scrutiny.

A. Recommendation

That

members note the report; and
support be given to continued work on the implementation and embedding of recommendations of the MPA Scrutiny.

B. Supporting information

1. This report sets out the current position with regard to the recommendations from the MPA Crime Data Recording Scrutiny. Full details of activity are shown in the attached Appendix 1.

2. Changes to the structure of the Metropolitan Police Service on 7 April have impacted upon the recommendations contained in the Scrutiny. The Data Accuracy Team has been absorbed into Territorial Policing (TP). Within the Capability and Reform area of TP, a single commander has responsibility for the Organisational Capability and Criminal Justice Reform portfolio (OC & CJR), which draws together key aspects of performance management with responsibility for data quality relating to crime incidents and criminal justice processes. The OC & CJR portfolio has been reconfigured to two commands, Emerald and Performance. This new structure, with accountability through the DAC Capability & Reform, provides the level of independence sought by the scrutiny.

3. The Scrutiny has common themes with the Audit Commission, Police Data Quality Review: to work currently being undertaken in relation to the TP Emerald - National Crime Reporting Standard and the Home Office Crime Recording Compliance Plan and to the MPS Sanctioned Detections Action Plan. In recognition of these interdependencies the Commander OC & CJR has commissioned a project to look at this work in a holistic manner. The strategic basis of this project, together with the major deliverables, has been defined and a multi-disciplinary project board is to be convened. The existing Crime Recording Oversight Group (CROG) will be adapted to provide strategic oversight of the work.

Abbreviations and Acronyms:

BCU - Borough Command Unit
CMU - Crime Management Unit
CRIB - Crime Recording and Investigation Bureau
CROG - Crime Recording Oversight Group
EIA - Equality Impact Assessment
HOCR - Home Office Counting Rules
NICL - National Incident Classification List
NSIR - National Standard for Incident Recording
OC & CJR - Organisational Capability and Criminal Justice Reform
TIB - Telephone Investigation Bureau
TNA - Training Needs Analysis

C. Race and equality impact

All aspects of policy and guidance produced by the MPS are automatically subject to equality impact assessment (EIA) processes where these issues are picked up and recorded. This ensures the final outcomes are responsive to identified equality issues. A full EIA will be carried out on all SOPs arising from this project.

D. Financial implications

Financial implications within this report are specifically the ongoing costs to the MPS of the project team and the costs in terms of training arising out the proposed training needs analysis. It is anticipated that the vast majority of work will be conducted by staff within the OC & CJR portfolio. The abstraction of staff to deliver this project has not yet been costed.

E. Legal implications

Currently these appear only in the case of reports concerning procurement or property acquisitions or disposals.

F. Background papers

MPA - Crime Data Recording Scrutiny
Audit Commission Police Data Quality Review 2006/7
TP – Emerald NCRS & HOCR Compliance Plan
MPS Sanctioned Detections – Action Plan

F. Contact details

Report author(s): Commander P Minton, MPS

For more information contact:

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

Appendix 1: Progress on recommendations from the MPA Crime Data Recording Scrutiny

This appendix contains information about progress within each recommendation.

Recommendation 1

The MPA and MPS need to prioritise their focus on the improvement of basic data quality and ensure that officer and staff training adequately addresses the needs of the system. The need for data accuracy should not focus solely on compliance with external standards.

1. TP Emerald, within the Organisational Capability and Criminal Justice Reform portfolio of Territorial Policing are mapping crime/incident reporting/recording processes end to end. This will form the basis of a training needs analysis (TNA).

2. Research is being conducted into the practicality of delivering a performance with integrity course aimed at various levels of practitioners with the relevant processes. This will lay the foundations to a changed approach, whereby crime-recording focuses on accuracy and the benefits derived from this approach, rather than compliance and external inspections.

3. A successful CRIS training pilot has been completed at Sunbury Training Centre that incorporated CRIS investigations into the foundation IPLDP course. A report has been submitted to Commander Minton for TP Command Team for support to include this as an element within all MPS IPLDP training.

4. The TNA will analyse how the differential knowledge base between officers and police staff working in CCC and CMUs can be addressed.

5. The process maps, alluded to in paragraph 1, will aid the production of standard operating procedures, accompanied by a clear set of instructions (how to / why to) for practitioners. These process maps will act as a diagnostic tool to identify the most common pitfalls enabling toolkits to be designed.

Recommendation 2

The DAT and the FCR’s lines of accountability should be changed to ensure both greater independence and higher-level management input. CMU line management should be made independent of BOCU line management.

1. DAC Hitchcock was appointed as the DAC (TP) Capability and Reform on 1 April 2008 with overall responsibility for crime recording and data accuracy. Reporting will be to the MPS Performance Board and quarterly, or otherwise as required, to the PPRC.

2. Commander Minton was appointed to head the Organisational Capability & Criminal Justice Reform portfolio on 7 April 2008. The portfolio has been organised into two Commands, Emerald and Performance. Performance encompasses chief officer responsibility for the Force Incident Register (FIR) and the Force Crime Registrar (FCR) roles. The line of accountability, through DAC Hitchcock, provides the level of independence recommended.

3. The concept of independent line management for Crime Management Units (CMUs) is planned to be trialed within two Boroughs. It is intended that this project will take the concept one step further by combining the roles of CMUs and the Telephone Investigation Bureaux (TIBs) to form Crime Recording and Investigation Bureaux (CRIB). Planning for this is at an early stage, however it is intended that the pilot is started during this financial year. (See Recommendation 9).

Recommendation 3

The MPS should fully implement the NSIR and the NICL codes.

1. The MPS will implement the National Standard for Incident Recording (NSIR) and the National Incident Classification List (NICL) in full. The newly reconfigured Emerald Command will take the lead role in implementing this project.

2. Technical updates to IT systems to facilitate implementation of this project are currently being researched and are expected to be completed by April 2009

Recommendation 4

The MPA and MPS should work with the Home Office to facilitate a full review of the Notifiable Offences List (NOL) and NCRS.

1. The MPS has already discussed potential changes with ACPO and Home Office colleagues, including the Flanagan Review Team. As a result, national pilots are currently underway in four separate police force areas to assess potential new methods of recording crime. The long-term outcome of these discussions is awaited. It is suggested that the MPS and MPA consider how to respond to the forthcoming green paper in respect of any opportunity to review the NOL.

Recommendation 5

The supervision of crime recording processes should be strengthened and the CROG should be either independently chaired or report regularly to the MPA lead member for data quality.

1. The MPS Performance Board has oversight of performance and progress in relation to crime/incident recording and related data quality issues. The MPS will report quarterly to PPRC, recognising the MPA is itself held to account for data quality.

2. The constitution of CROG is currently being reviewed as part of a holistic review of crime data accuracy. Commander Minton will now chair this body and it will revert to a strategic role with executive tactical decisions being taken at the appropriate level. Independence is achieved by the line of accountability passing through DAC Hitchcock.

3. The Performance Command will work with Performance Information Bureau to redesign the presentation of performance data with the intention of quantitative data sitting alongside qualitative data within the same document. In the medium term, it is intended that performance data and its quality are integral in their presentation. The quality of supervision of crime recording processes will therefore increasingly become part of the performance management framework for TP.

Recommendation 6

A robust, risk-based crime recording audit system should be developed and maintained with appropriate resource support.

1. The first round of peer review audits have been completed and are currently being evaluated. The baseline performance, arising out of the reviews, is being fed to Borough Commanders.

2. The reconfigured Performance Command will own the performance and review function. They will be accountable through to Commander Minton to DAC Hitchcock within the Capability and Reform Portfolio. The command will provide service level audit functions and will carry out risk based inspections and audits as required.

3. Peer reviews will be undertaken by existing borough staff. Central support for the audit process will be provided by the Performance Command, with development work being undertaken by TP Emerald.

Recommendation 7

CCC targets and resource allocation should be reviewed to focus on quality of service provision.

1. Qualitative performance data for CCC is being developed. Training and development material for CCC focuses heavily on the quality of interactions and the data arising from them. Staff continue to work through the NCALT packages.

Recommendation 8

The MPS should expedite the pilots into the centralisation of crime recording.

1. As rehearsed at Recommendation 2 para 3, a project, combining the roles of CMUs and TIBs, is to be piloted in the West link to test this concept. Analysis of this pilot will inform progression of this recommendation. The timescales of the evaluation will be dependent on the date of the initial project rollout of existing functions into the new location.

Recommendation 9

The MPS SMT should ensure that boroughs systematically inform the FCR of local policies before implementing them.

1. The TP Emerald Policy Unit has collated all local crime recording instructions and ensured their NCRS compliance. It has been agreed, via CROG, that the TP Emerald Policy Unit will collate and review all future local crime recording instructions. These will then be passed to the FCR for approval before being certified as fit for purpose.

2. Where, in exceptional circumstances, BOCUs need to develop local crime recording instructions to meet local needs the TP Emerald Policy Unit will act as a clearing house ensuring there is no conflict with, and that they complement and enhance, corporate policy.

3. Although this will require ongoing monitoring by TP Emerald and Performance Command, it is suggested that this recommendation is complete.

Recommendation 10

The MPS should conduct a review of Merlin to ensure there are no offences on the system that should be recorded as a crime on the Crime Report Information System.

1. When raised, this issue was researched by the Data Accuracy Team and SCD5. A non-compliance rate of less than 1% was identified and these deficiencies were corrected.

2. Training and inspection processes have been put in place to prevent further crimes being recorded on Merlin without being recorded on CRIS. These processes are being monitored by TP Performance Command to ensure efficacy and compliance.

3. It is suggested that this recommendation is complete.

Recommendation 11

IT provision should be subject to further scrutiny. The MPS should ensure that its systems are allocated sufficient resources to meet both current needs and to ensure future needs.

1. The development of a new Crime Recording System will have considerable cost and resource implications for the MPS, which, in the current financial climate, will make its introduction prohibitive. In response to this DOI are in the very early stages of assessing the feasibility of introducing a Scalable Investigative Case Management IT system which will integrate with CRIS and enhance the capability to better manage lines of enquiry, actions and decisions, and with structured checklists to manage compliance. A preliminary meeting will take place in mid June between TP Emerald and DOI to discuss the processes, organisational structure, technology and information requirements of the desired future system. This will enable the production of a business case describing the costs, business benefits and optimum delivery approach.

Appendix 6: MPA Crime Data Recording Scrutiny - Update July 2009.

Recommendation 1

Update

TP Scorecard now includes qualitative performance indicators. TP Strategic Tasking Meeting Chaired by DAC Owens actively investigating the quality of data that underpins performance.

An end to end review of all TP Emerald crime reporting, recording, investigative policies and SOPs is nearing completion. The TP Emerald Policy Team will be scoping the need for a Training Needs Analysis subsequently.

The Borough Commander Development Programme contains a module which deals with issues of data integrity and accuracy. These issues are also part of the DI and DS courses delivered at the Crime Academy, with input from the Territorial Policing Crime Management Unit (CMU). The Evidential Review Officer, Designated Decision Maker and CMU Supervisors courses all have data accuracy elements to them.

Recommendation 2

Update

No change re FCR. See below re CMU line management.

Recommendation 3

The MPS should fully implement the NSIR and the NICL codes.

Update

In February 2009 Management Board approved full implementation of NSIR. An estimated “go live” date was proposed as August 2009, with caveats that contracted out technological changes may impact on the timescale. The implementation date now set for March 2010. Funding from TP and DoI has been secured and a Project Board set up to drive delivery, working to the Senior Responsible Owner, Commander Organisational Capability and Criminal Justice Reform.

Recommendation 4

The MPA and MPS should work with the Home Office to facilitate a full review of the Notifiable Offences List (NOL) and NCRS.

Update

The MPS has made numerous representations to the Home Office to review the NOL. At present the Home Office have no plans to do so.

Recommendation 5

The supervision of crime recording processes should be strengthened and the CROG (SCIRG) should be either independently chaired or report regularly to the MPA lead member for data quality.

Update

No change.

Recommendation 6

A robust, risk-based crime recording audit system should be developed and maintained with appropriate resource support.

Update

Although DAT have an audit programme, it has been impossible to carry out regular audits due to the review of Most Serious Violence.

Two full peer reviews have now taken place and the latest one (April 2009) is being evaluated. Boroughs have prepared and submitted action plans and along with the most recent results will be measured against the action plans of the previous audit conducted in Sept 2008. Boroughs will be supported in implementing their action plans by TP Emerald.

A paper will be submitted to TP Command Team proposing that the peer review process only takes place once a year and that the timing of this will be June of each year to examine April and May data of that performance year. Rationale for this proposal is that the process is becoming too resource intensive both at Borough and TP Emerald level in addition to the remit of the review increasing. The main emphasis of the review should be the subsequent work carried out within the borough action plans which result.

Recommendation 7

CCC targets and resource allocation should be reviewed to focus on quality of service provision.

Update

Resources already closely managed to meet Policing Pledge commitments and deliver level of service to public against defined standards of timeliness.

Daily examination of performance expanded to “Quality” of service in terms of Policing Pledge through examination of levels of appointments, I and S grade attendance.

Implementation of a “Confidence and Satisfaction Team” at each centre to support Policing Pledge, manage the changes to I, S and E Grades and management of appointments to ensure we “keep our promises” and maintain a quality” service to the public.

Imminent implementation of industry standard resource management package to ensure optimum use of resources.

Three borough pilot commenced 3 August at Harrow, Brent and Barnet to test full implementation of Pledge and develop optimum use of existing systems whilst taking full account of quality of service issues.

Full review of PDR targets for Managers and staff to align them to Pledge, Data Quality and Customer Service priorities.

NSIR Implementation project established to embed “Quality” in supervisors daily activity and not something seen as done by someone else. This will deliver results before IT changes due in March 2010 and begin the necessary “culture change”

NCALT/NCIR version 4.0 compliance being driven across all three centres.

NSIR champions to each centre to brief/train supervisors and provide reference source for “Quality” issues.

DAT assisting us with a series of audits and briefings for supervisors and staff.

Supervisor (Band D) BWT has been increased by 18, and Communications Officers (Band E) have been reduced by 20 thus enhancing opportunities for improved supervision.

Recommendation 8

The MPS should expedite the pilots into the centralisation of crime recording.

Update

The Enhanced TP CMU project will transfer responsibility for two core CMU functions, screening and classification of crime, away from borough CMUs and to a new central unit with no affiliation or allegiance to borough line managers and with an independent and dispassionate view of HOCR and NCRS. On 11 March 2009 TPCT agreed to sponsor stage 1 of the project, a 6-month proof of concept pilot involving the Crime Management Units from Brent and Hillingdon BOCUs. The pilot commenced on 15 June 2009 and is scheduled to end on 11 December 2009. The new TP Confirmation Unit (TPCU) is an enhanced capability within TP Crime Management Unit with specific responsibility for managing crime screening and classification. If the pilot is successful then, after a short period of review, the project will move to rollout, with completion across London scheduled by November 2010. When the project ends the TPCU will comprise approximately 80 staff drawn from BOCUs.

In terms of benefits, the early signs from the pilot are very encouraging. 'Classifying crime within 72hrs of reporting to police' has significantly improved on both boroughs. In the first five weeks (15th June to 19th July inclusive) not a single 72hr failure was attributable to the actions of the TPCU; most were the result of late recording by borough officers. Extrapolated MPS wide, a similar 72hr rule performance pan-London would move the MPS from 'Poor' to 'Excellent' for this measure. Other benefits include improved data accuracy and timeliness for tasking and intelligence, and more opportunities locally to engage with victims of crime. There are no obvious disbenefits at this time.

Recommendation 9

The MPS SMT should ensure that boroughs systematically inform the FCR of local policies before implementing them.

Update

All identified local policies are now challenged or ratified by the FCR.

Recommendation 10

The MPS should conduct a review of Merlin to ensure there are no offences on the system that should be recorded as a crime on the Crime Report Information System.

Update

Action complete.

Recommendation 11

IT provision should be subject to further scrutiny. The MPS should ensure that its systems are allocated sufficient resources to meet both current needs and to ensure future needs.

Update

The development of a new Crime Recording System will have considerable cost and resource implications for the MPS, which, in the current financial climate, will make its introduction prohibitive. In response to this DOI are in the very early stages of assessing the feasibility of introducing a Scalable Investigative Case Management IT system which will integrate with CRIS and enhance the capability to better manage lines of enquiry, actions and decisions, and with structured checklists to manage compliance. A preliminary meeting was held in June between TP Emerald and DOI to discuss the processes, organisational structure, technology and information requirements of the desired future system. As a result the DoI agreed to prepare a scoping paper to assess the opportunities this initiative may offer.

Supporting material

Appendix 4 [PDF]

Send an e-mail linking to this page

Feedback