Statutory planning regime

Report: 9
Date: 5 December 2002
By: Clerk

Summary

This reports sets out the new statutory planning regime for police authorities and forces. It includes a summary of the National Policing Plan and describes the implications for consultation.

A. Recommendations

Members note the report and the implications for consultation.

B. Supporting information

1. Members will be aware that the Police Reform Act 2002 requires the Home Secretary to issue a ‘national policing plan’ (NPP) and requires each police authority to issue a three-year ‘strategy plan’ (drafted by the chief officer) which must ‘have regard to’ the national policing plan. In turn, an authority’s annual policing and performance plan must be issued which is consistent with the authority’s three-year strategy plan. An overview of the relationship between plans is attached at Appendix 1.

2. Each police authority, before issuing its own strategy plan, must submit a draft of that plan to the Home Secretary. The Home Secretary will assess if the authority’s plan is consistent with the NPP and must consult the authority (and others) before concluding that the strategy plan is not consistent. A police authority will need to decide if it will make any changes to its strategy plan in light of any feedback from the Home Secretary.

3. The first NPP was published on 20 November 2002 and MPA / MPS officers are working to assess the implications for London. A summary of the NPP is attached at Appendix 2 and a copy of the full plan can be obtained via the Home Office website: www.policereform.co.uk.

4. The NPP was to have been supplemented by revised statutory guidelines but formal publication of these guidelines by the Home Office has been delayed. On the assumption that statutory guidelines will be published in line with the draft circulated by the Association of Police Authorities the MPA will need to:

• submit its draft strategy plan to the Home Secretary by 28 February 2003;
• approve the draft strategy plan for submission to the Home Secretary on or before the full Authority meeting on 27 February 2003;
• issue (i.e. formally agree) its strategy plan on or before 31 March 2003 (e.g. at the full MPA meeting on 27 March 2003);
• issue (i.e. formally agree) its policing and performance plan 2003/04 on or before 31 March 2003 (e.g. at the full MPA meeting on 27 March 2003);
• publish the strategy plan after 31 March and publish the annual policing and performance plan after 31 March but before 30 June 2003.

5. Members will appreciate that a draft strategy plan will need to be available by mid-February 2003 at the latest for circulation with the agenda for the full MPA meeting on 27 February. This timescale imposes significant drafting constraints since the format and content of the plan needs to:

• have regard to the national policing plan;
• reflect MPA/MPS views as previously set out in ‘Towards the Safest City’ (the agreed strategic framework); and
• reflect MPS thinking and MPA decisions related to specific priorities, objectives and targets for 2003/04;
• meet statutory guidelines (which have yet to be agreed and published).

6. It is considered this work will not be completed before mid-January at the earliest and so the opportunities for further consultation with respect to either the national policing plan or the MPA’s strategy plan are extremely limited. However, members are reminded that the Home Secretary developed the NPP following consultation with the National Policing Forum and that the MPA/MPS used feedback from consultation in developing ‘Towards the Safest City’.

7. The lack of any real opportunity for further consultation is not ideal but is a result of the changed planning regime. The APA has reflected the views of police authorities in feedback to the Home Office stating that ‘more realistic timescales for consultation [would achieve] a better document.’ MPA and MPS officers are developing a consultation strategy to reflect the new planning regime from 2003/04 onwards.

C. Equality and diversity implications

The lack of further opportunity to consult reduces the scope to consider views from the public at large, specific communities, representative groups and/or individuals.

D. Financial implications

There are no direct financial implications. MPA and MPS officers are seeking to reconcile the deadlines imposed by the respective statutory budget and planning cycles.

E. Background papers

None

F. Contact details

Report author: Derrick Norton

For more information contact:

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

Appendix 1: Planning in the police service: the MPA perspective

Links with medium-term financial plan, annual budget, Mayoral strategies plus local PSAs/strategic partnerships not show for clarity

This figure is also available as a PDF document (see Supporting material below)

The planning regime for police authorities and forces is directed by legislation and statutory guidelines set by the Home Office. The regime has undergone major changes recently and revised guidelines are being developed.

In summary, the components are:

• Public Service Agreements (PSA) agreed between the Home Office and Treasury. Delivery of each PSA is measured by one or more Best Value Performance Indicators (BVPI) and associated target. For example: PSA 1 includes a commitment to reduce crime and has, as one of its measure and targets, a requirements to reduce vehicle crime by 30% from 1998/99 to 2003/04.
• The National Policing Plan (NPP) set by the Home Secretary to cover a three-year period (updated annually). The NPP includes all PSAs and sets other priorities, objectives, measures and targets for police authorities and forces.
  see Police Reform Act 2002 (section 1)
• A Strategy Plan (SP) drafted by the chief officer for approval by each police authority to cover a three-year period (updated annually). Each SP must have regard to the NPP and take account of any guidance on the form or content issued by the Home Secretary. A Strategy Plan may inform, or be informed by, the police authority’s medium-term financial plan.
  see Police Reform Act 2002 (section 92)
• An Annual Policing Plan (APP) drafted by the chief officer for approval by each police authority to cover a one-year period. Each APP must be consistent with the SP issued by the authority and have regard to any guidance issued by the Home Secretary. An APP must include any priorities and performance targets set by the Home Secretary plus any objectives and performance targets set by the authority. The APP must also include the financial resources available and the allocation of those resources. Finally, the APP must incorporate the requirement to issue a Best Value Performance Plan.
  see Police Act 1996 (section 8) and Local Government Act 1999 (section 6)
• Local Crime and Disorder Reduction Strategies (32 in London) as agreed by statutory partnerships to cover a three-year period. Each Strategy must set out objectives to be pursued plus long-term and short-term performance targets.
  see Crime and Disorder Act 1998 (section 6)
• Before issuing either the Strategy Plan or Annual Policing Plan the police authority must take account of views obtained through the consultation arrangements, put in place. In deciding the content of either document there will be a need to balance the competing needs of different parties with any directions set by the Home Secretary, the performance of the force and availability of resources / finance.
  see Police Act 1996 (sections 7 and 96)

Appendix 2: Summary of the National Policing Plan

The National Policing Plan sets out the Government’s four key national policing priorities:

1. tackling anti-social behaviour and disorder;
2. reducing volume crime, street crime, drug-related crime, violent crime and gun crime (in line with local and national targets);
3. combating serious and organised crime operating across force boundaries;
4. increasing the number of offences brought to justice.

The NPP also sets out other actions that chief officers and police authorities should take account of in local policing plans.

Tackling crime effectively

1. Chief officers and police authorities should include in their local plans a strategy for tackling youth nuisance and anti-social behaviour taking account of the forthcoming white paper and legislation. In formulating and implementing the strategy, forces should work closely with Crime and Disorder Reduction Partnerships (CDRPs). Plans should cover all aspects of the problem from responding to reports of anti-social behaviour incidents to fundamental problem solving.

2. Chief officers should make full use of officers, special constables, CSOs and other members of the extended police family as part of the force’s response to anti-social behaviour.

3. Forces should make best use of all the available tools for tackling anti-social behaviour, including Anti-Social Behaviour Orders (ASBOs), Anti-Social Behaviour Contracts, fixed-penalty notices, the powers to seize vehicles being used in a manner causing alarm and the powers to take action against badly run pubs and clubs.

4. Local plans should identify how forces and authorities will contribute to crime reduction, both through their own efforts and by working in partnership with other agencies, and set appropriate local targets.

5. Local plans must include three-year targets for reducing vehicle crime, burglary and robbery against which the contribution of each force to meeting the national targets in these areas can be measured. Local targets will need to be particularly challenging where force (or individual BCU) performance is demonstrably below that of comparable forces or BCUs.

6. Forces should develop policies to deal with repeat victimisation, in conjunction with local partners.

7. In formulating their strategies for reducing crime, all forces and authorities should apply the best practice emanating from the Street Crime Initiative. The 10 forces taking part in the Initiative should maintain momentum to achieve the target of a 14% reduction in robbery from 1999-2000 to 2005.

8. Chief officers and police authorities should develop effective programmes to identify and manage drug involved offenders (for example through arrest referral or drug testing at charge) and to tackle drug related crime, including the supply of drugs and in particular Class A drugs.

9. Forces should develop accurate information and intelligence systems to identify trends in relation to illegally held firearms and consider running specific initiatives in partnership with community leaders and local service providers to tackle firearms-related crime.

10. Chief officers and police authorities should have effective strategies and procedures in place to respond quickly and effectively to domestic violence incidents, including incorporating in their violent crime strategies and adopting best practice.

11. Local policing plans should reflect the importance of disrupting organised criminal groups. Local targets, set with guidance from NCIS, should contribute to the national targets on the supply of Class A drugs and on disrupting organised criminal enterprises.

12. Chief Officers and police authorities should make clear in their plans how they will make maximum use of the new powers available in the Proceeds of Crime Act to attack the assets of local criminals – including those involved in drug dealing and supply.

13. NIM should be implemented in all forces to commonly accepted minimum standards by April 2004 at the latest; the arrangements for implementation should be set out in local policing plans.

14. Forces and authorities should ensure in their local plans that the maximum efficiency gains are being derived from the implementation of the Bureaucracy Taskforce’s recommendations.

15. Forces should develop existing officers and new recruits to achieve the necessary competencies, and employ support staff with appropriate skills and experience, to ensure that they have the capacity to tackle all crimes effectively.

16. Forces should ensure sufficient resources are invested to deliver and optimise the use of key technologies.

17. The service must develop a closer working relationship with the CPS and the courts to improve case preparation and case management. Police and CPS staff should be brought together in single administrative units where this is not already happening.

18. For 2003-04, every police force must contribute effectively to their LCJB target of increasing the number of offences brought to justice by 5%.

19. By 31 January 2003 police and other local CJS services, working through the emerging criminal justice boards, should develop a local inter-agency “Narrowing the Justice Gap” plan which identifies three or four priority areas for action to improve the number of offences brought to justice, one of which must be implementation of the Persistent Offender Scheme.

20. As part of their involvement in the Persistent Offender Scheme, chief officers and police authorities should include clear strategies in their own policing plans for combating persistent offenders at local level.

21. In developing measures to deal with persistent offenders, forces and police authorities should consult and work closely with local partners particularly CDRPs and Victim Support.

22. Local policing strategies should address the needs of victims particularly, but not exclusively, in their capacity as witnesses.

23. Local contingency plans to deal with terrorist incidents should be regularly reviewed and close contact maintained with the Metropolitan Police and national agencies.

24. Forces should also strengthen their arrangements for information sharing and partnership working with other agencies dealing with child protection, including the relationship between Multi-Agency Public Protection Panels and Area Child Protection Committees.

25. Chief officers and police authorities should ensure that their policing plans include child protection strategies.

26. Chief officers should ensure that police officers and other staff working in this area are carefully selected and trained in the very special problems posed by investigating crimes of this nature.

27. Forces and authorities should include in their local policing plans targeted and intelligence led strategies for reducing deaths and injuries on the roads and achieving a safe environment for all road users.

28. Chief officers should work closely with local partners to tackle alcohol-related crime effectively.

29. Chief officers should ensure that relevant points from the July 2002 action plan on rape are being implemented.

Partnership to build a civil society

30. All local agencies – particularly those involved in CDRPs – should engage more effectively in partnership working.

31. Local plans should identify how forces and authorities will contribute to crime reduction, both through their own efforts and by working in partnership with other agencies, and set appropriate local targets.

32. With the integration of, or close working between, CDRPs and Drug Action Teams local strategies and plans should now incorporate a clear strategy for combating drug misuse. Local public service agreements should support and enhance this process through links with local authorities and their partnerships with other agencies.

33. Forces and police authorities gaining resources from the BCU Fund should set out priorities agreed with their local CDRPs, for the use of these monies.

34. Forces and police authorities should be ready to implement the new national standards for responding to non-emergency calls as they are developed.

35. Forces and authorities should consider how the introduction of CSOs and ACSOs could contribute to public reassurance and reflect any proposed arrangements in their annual policing plan.

36. Forces should look to embed good practice for promoting community cohesion into all aspects of their work.

37. Forces are strongly encouraged to take part in initiatives to empower communities to contribute directly to crime reduction.

Making the most of police officers and support staff

38. Chief officers and police authorities should set their own local targets for recruitment in their policing plans to ensure that the police officer strength increases achieved with the help of the CFF are maintained and that authorities qualify for all the continuation funding available from the CFF.

39. Senior officers should show the necessary leadership to drive forward the reforms of police pay and conditions.

40. Forces and police authorities should draw up local targets for managing overtime in consultation with HMIC and include these in their local plans.

41. Chief officers and police authorities should examine the balance between police officers and custody support staff, escort staff and civilian investigators and set clear targets in their local plans for significantly increasing the proportion of officer time spent on frontline duties. In undertaking such an examination, chief officers should consider whether to confer on custody support staff the new powers introduced by the Police Reform Act.

42. Forces and authorities should examine the opportunities for making increased use of local volunteers.

43. Local policing plans should include targets for reducing sickness absence that will contribute to the national target.

44. Local policing plans should take due account of the target set for forces in the better management of ill-health retirement.

45. Where losses through transfer or resignation are a problem, local policing plans should identify measures to be taken to reduce them and the process for assessing the effectiveness of those measures.

46. Local policing plans should include appropriate targets for minority ethnic officers to contribute to overall national targets.

47. Forces and authorities should take full account of the aims of the Gender Agenda in their force HR plans.

48. Chief constables and police authorities should ensure that these measures to improve leadership are fully integrated within their HR strategies.

49. Forces and authorities should set out in local policing plans their proposed arrangements for implementing integrated systems to a common standard in their policing area.

50. Forces and authorities should review their procedures and ensure that their staff are properly trained to prepare for the IPCC’s introduction in 2004.

51. Chief officers and police authorities should plan for the delivery of priorities for 2003–04 against the resources set out in the local government funding plans published in December 2002, and finalised after consultation in the New Year; and plan for 2004–04 and 2005–06 on the basis of the indicative levels of funding set out in this Plan – while taking into account relevant determinations on Council Tax precepts.

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