MPS progress report on the implementation of the police race and diversity learning and development programme

Report: 14
Date: 24 May 2007
By: Deputy Assistant Commissioner Diversity and Citizen Focus Directorate on behalf of the Commissioner

Summary

This report details progress on MPS implementation of the Police Race and Diversity Learning and Development Programme published by the Home Office, ACPO, and the APA in November 2004. The report also includes an update on MPS progress on the delivery of training on the Race Relations Amendment Act (2000).

A. Recommendations

That members note the report and the work in progress.

B. Supporting information

Strategy for improving police performance in Race and Diversity

1. The strategy for improving police performance in race and diversity covers the race and diversity learning and development needs of the police service in England and Wales. As well as officers at all ranks, it applies to all police staff and the wider police family, including Special Constables and Police Community Support Officers.

2. The Strategy, published in November 2004, sets out the priorities for the tripartite partners (the Home Office, the Association of Police Authorities (APA) and the Association of Chief Police Officers (ACPO)) and is aimed primarily at Police Authorities, Chief Officers and other senior managers, HR Directors, Force Training Managers and CENTREX (now part of the National Police Improvement Agency (NPIA)). It applies to all diversity areas, in particular, race, gender, sexual orientation, disability, age, religion and belief.

3. A key element of the national strategy is the provision of race and diversity learning and development based on individual need (and the assessment of competence against the Race and Diversity National Occupational Standards).

4. In addition to the provision of generic race and diversity learning and development for staff, race and diversity issues will be ‘contextualised’ so they are relevant to individual circumstances, such as the learner’s role, rank or grade and their local policing environment. This represents a significant move away from the ‘one-size-fits-all’ approach to race and diversity learning and development, to one that meets the specific needs of the individual.

Governance: MPS Race and Diversity Learning and Development Programme Board, Working Group and Challenge Panel

5. Implementation of the MPS Race and Diversity Learning and Development Programme is co-ordinated by a Strategic Programme Board chaired by the Director of the Diversity and Citizen Focus Directorate. The Board includes representation from every MPS Business Group and the Police Authority and will next meet at the beginning of July 2007 to consider the findings and recommendations of the Race and Diversity National Occupational Standard Assessment Trial (see paras 8-13 below). The Programme Challenge Panel (which includes representation from MPS Staff Support Associations and MPS Independent Advisory Groups) will also be convened at the beginning of July. The Programme Working Group (which includes representation from Business Area Senior Training Managers) meets monthly and is currently supporting the development of the assessment trial.

6. The Diversity and Citizen Focus Directorate: Diversity Learning and Development Branch is responsible for co-ordinating the implementation of the Strategy and Programme.

7. Key activities for 2007-08 include the Race and Diversity Occupational Standard Assessment trial; integration of race and diversity learning resources into the PCSO Foundation Course and the Initial Police Learning and Development Programme and other key MPS training programmes; co-ordinating the delivery of the RRAA (2000) E-Learning programme; ongoing development of the Policing Diversity Online Intranet Resource and the delivery of the Equality Impact Assessment programme for policy developers and writers.

National Race and Diversity Occupational Standard Assessment Trial

8. A key objective of the National Race and Diversity Learning and Development Programme is that by 2009 all police officers and staff are assessed as competent against National Occupational Standard AA1 (foster respect for equality and human rights-See Appendix 1) and by 2007/08, supervisors and others in leadership and critical roles are able to demonstrate competence in AA1 and where relevant National Occupational Standard AA2 (promote respect for equality and human rights. This will eventually require the assessment of approximately 50,000 MPS personnel.

9. At the beginning of May 2007 an Assessment Trial commenced to identify options to assist MPS-wide compliance. The Assessment Trial (using a sample of 100 staff) will focus on MPS Priority Groups to meet the requirement that these staff are assessed as competent first. The Priority Group includes Chief Officers, Directors, Unit Heads, trainers, family liaison officers and senior investigating officers (approximately 2,800 staff in total).

10. Interviews have already been conducted with a sample of Priority Group members to identify the likely response and reaction to the Assessment Trial and to evaluate the level of evidence staff will be able to provide to demonstrate their competence against the Standards.

11. The Assessment Trial will last 6 weeks and will conclude at the end of June 2007. It is anticipated that the main method of assessment in the MPS will be to use the existing Professional Development Review (PDR) process with assessment against 9 performance criteria (see Appendix 1).

12. One of the outcomes of the Assessment Trial will be to provide guidance (in the form of an intranet resource) for Assessors [1] with case studies and examples of race and diversity occupational competence based on the role an individual performs in the organisation. The intranet guide will also include information about the race and diversity learning and development opportunities available to staff when a further development need has been identified. This will link in with the 2007-08 PDR reporting period and help ensure that staff in the Priority Group can evidence (and be assessed as occupationally competent) by 31 March 08. From April 2008, it is proposed that all MPS supervisors (approximately 12,000) are assessed and; from April 2009, service-wide assessment will commence involving ‘occupationally competent assessors’ (those supervisors who have been assessed as ‘competent’ the previous year).

13. At present the Home Office Police Race and Diversity Learning and Development Programme Board is undertaking a review to re-examine the aims, objectives and delivery timescales of the national assessment strategy and make recommendations to achieve the objectives in the most effective manner. The review will report by early summer 2007.

The National Learning Requirement: Integration of Race and Diversity Learning Resources into MPS Training

14. A key element of the National Race and Diversity Learning and Development Strategy is the implementation of the National Learning Requirement (NLR). Implementation of the NLR is being co-ordinated by the Diversity and Citizen Focus Directorate: Diversity Learning and Development Branch.

15. At the heart of the learning requirement are two distinct strands, which are to be incorporated into all police service race and diversity learning and development.

16. The first part of the requirement is:

STRAND 1: Generic Race and Diversity Learning and Development

Needs for the service based on the following areas:

• Race (primary focus)
• Gender
• Disability
• Age
• Sexual orientation
• Religion and beliefs

This first strand seeks to address: "What a police officer / police staff member / police volunteer needs, to satisfy the basic requirements of the role in 21st century Britain".

17. Knowledge and understanding in each of these six areas will incorporate the service's responsibilities under various strands of equality legislation awareness for example the Race Relations (Amendment) Act RR(A)A) and Disability Discrimination Act (DDA). This is not to underplay the significance of any other diversity issue, the local context (based on an individual’s role or working environment) and the need to support any knowledge with practical workplace application.

18. The local context is addressed through the second strand of the learning requirement.

STRAND 2: Contextual Race and Diversity Learning and Development

19. For this strand the generic curriculum is embedded in an understanding of the context of the individual's role and work environment.

National Learning Requirement: Race and Diversity Learning and Development Resources

20 The National Learning Requirement is supported through the delivery of learning resources developed by CENTREX (now part of the National Police Improvement Agency). The resources have been designed to provide the ‘under-pinning’ knowledge required to support the assessment of competence against the Race and Diversity Occupational Standards and can be used as part of a blended learning programme in the form of text-based and E-Learning modules. See Appendix 2 for an example of the learning objectives contained in the Race and the Police Module.

21. The modules are blended in that they are interlinked and mutually supporting or can be used as stand alone products. The programme builds upon a generic diversity module, with additional modules across the 6 primary diversity areas of age, disability, gender, faith/religion race and sexual orientation. The Disability and Sexual Orientation modules were developed with significant input from the MPS. The MPS is also responsible for the annual revision of the Race and the Police and Sexual Orientation and the Police learning resources.

Integration of the Race and Diversity Learning and Development Resources into MPS Training Programmes

22. The Diversity and Citizen Focus Directorate: Diversity Learning and Development Branch is currently working with the Extended Police Family School, Recruit School, the Leadership Development Academy and the Learning Development Unit (responsible for Trainer Development) to embed these resources into their respective programmes and courses. This process includes:

• An introduction to Strand 1 (see para 16 above) of the Race and Diversity National Learning Requirement (through a generic understanding of the 6 primary race and diversity strands either as E-Learning or through the completion of a workbook)
• A consolidation of the generic race and diversity understanding, through facilitated discussion with community participants from the relevant perspectives.
• Contextualisation (see para 19 above) within specific lessons. For example in the Initial Police Learning and Development Programme the Domestic Violence lesson learning objective reads - "What issues would you consider if you were investigating a same-sex domestic violence incident involving a same-sex couple?" This module may also involve community participants from the relevant perspective.

23. Course familiarisation workshops (to ‘road test’ the new resources) are currently being provided to trainers and instructors.

24. This work is supported by around 200 community contributors representing a diverse range of communities and groups and work is currently underway to supplement this resource with increased representation from members of the disabled and LGBT community.

Other MPS training programmes

25. Although the main focus of recent work has been to integrate race and diversity issues into programmes for new joiners to the MPS (principally Trainee PCSOs and Student Officers) a number of other MPS programmes will be prioritised for review during 2007-08.

26. These include: Detective Training, Training for newly promoted Sergeants and Inspectors, Custody Officer and Custody Sergeant Training, Training for Special Constables, Operational Firearms Training, Investigative Skills Training (including surveillance, informant handling and family liaison), Public Access Training (Control Room, Enquiry Centre and Front Desk) and the Police Staff Induction Programme.

27. The review will examine current course content and the Diversity and Citizen Focus Directorate will be working closely with the Directorate of Training and Development to ensure that these programmes reflect the key diversity issues and that activities are included to contextualise the race and diversity learning resources. In most cases it is envisaged that learners will have familiarised themselves with the relevant race and diversity learning resources prior to participating in a particular programme or course (for example by completing the relevant E-Learning module via the MPS Managed Learning Environment).

28. All new MPS Training is commissioned via the MPS Training Management Board and the Diversity and Citizen Focus Directorate:Diversity Learning and Development Branch is automatically included at the Performance Needs Analysis stage to ensure that the relevant race and diversity issues are incorporated into the training design process.

Race Relations Amendment Act (2000) E-Learning Module

29. In January 06 it was agreed by the MPS Race Relations Amendment Act Steering Group that the National Police Improvement Agency (formerly CENTREX) Race and the Police E-Learning module (see Appendix 2) should be used to meet the requirement to provide training on the RRAA (2000). This was felt to be the most cost-effective option given that quotes from external diversity E-Learning developers/providers had been in excess of £120K. A bid was subsequently made to MPS Training Management Board to include the delivery of this programme in the 06-07 Annual Training Plan together with the delivery of the Police and Disability E-Learning module.

30. In May 06 the Commission for Racial Equality reviewed the CENTREX Race and the Police E-Learning module (prior to MPS-wide delivery) and although in general the CRE was positive about the content it felt additional material and case studies needed to be included if the MPS used the programme as its main training response on the RRAA (2000).

31. In November 06 CENTREX announced that it would be updating all of the Race and Diversity Learning Resources as part of an annual maintenance process and as a result of feedback from forces including the MPS. This has been ongoing since November 06 and the new resources will be available for delivery at the end of May 2007. The MPS (on behalf of CENTREX) has the national lead for the maintenance and revision of the Race and the Police and Sexual Orientation and the Police Learning Resources. This work has been co-ordinated by Diversity and Citizen Focus Directorate: Diversity Learning and Development Branch and has involved extensive consultation with key stakeholders including facilitated workshops with community groups in London.

32. The revised Race and the Police E-Learning Module –see Appendix 2 -together with the Disability and the Police E-Learning Programme - will be available to staff via the MPS Managed Learning Environment from the end of May 07 and an implementation Plan will be submitted to Training Management Board to ensure MPS-wide delivery.

33. Modules which directly support the RRAA (2000) have already been incorporated into the revised PCSO Programme and the Initial Police Learning and Development Programme.

MPS E-Learning

34. The use of E-Learning in the MPS is currently under review by Training Management Board. The MPS Modernising Learning Programme Board has responsibility for the strategic implementation of learning technology on behalf of TMB and commissioned the MPS Managed Learning Unit to undertake a usability project to assess the issues affecting the implementation of E-learning across the MPS. Initial findings indicate that there are many benefits to E-learning. It is flexible, produces cost reductions in training accommodation and travelling time and enables standardised learning to be delivered quickly to large groups. From an equality and diversity perspective E-learning has created greater opportunity for staff to access training and the ability to undertake corporate training at the workplace, or away from the workplace, has enabled access to those that are often unable to attend training for example part-time staff, those with mobility difficulties, those on secondment, those on maternity/paternity leave, those with caring responsibilities or on a career break. E-learning has also been shown to provide greater flexibility for learners to progress at their own speed, thus enabling learning for those with different levels of ability.

35. However, it is acknowledged that there has been cultural resistance within the MPS based on previous experience and these barriers will need to be addressed (following the review) to develop E-learning as a viable learning solution. The review once complete will be presented to Training Management Board together with an E-Learning Improvement Plan.

Other Programmes of Work:

Stop and Search/Key Encounter Programme

36. The Stop and Search/Key Encounter pilots in Hounslow Borough and Transport OCU focused on the issues that impact on the effectiveness of stop and search. The half-day sessions involved officers and members of the community working together to identify – from a service user perspective – the behaviours they expect to see from officers conducting stop and search/stop and account and the behaviours they do not expect to see. End of course feedback from the pilot workshops indicates a pattern of very positive reactions from both police / Transport for London and community participants.

37. Discussions are currently underway with Territorial Policing (TP) to extend the Stop and Search Key Encounter Workshops out to Borough as part of a programme of work linked to the TP initiative Operation Pennant.

Policing Diversity Online

38. A new Intranet Resource for staff with key information about London’s diverse communities went live at the end of January 07. The resource includes information representing the 6 primary strands of diversity and includes links to relevant external websites; government reports and other policy reports and key legislation. The site will be regularly updated and replaces the MPS Policing Diversity Handbook, which was last issued in 2002.

Equality Impact Assessment Workshops

39. Equality Impact Assessment workshops are currently being delivered by Diversity and Citizen Focus Directorate: Diversity Learning and Development Branch. The 1-day workshops commenced in February 07 and are aimed at members of the Diversity and Citizen Focus Directorate; members of the MPS Strategy Unit; those engaged in writing proposals and anyone responsible for writing policy for example: operational planners, quality assurance managers and all those involved in the commissioning, formulation, approval, publication, implementation or review of policy. The workshops provide participants with an understanding of the MPS Equality Impact Assessment Policy (which ensures compliance with the Race Relations (Amendment) Act 2000, Disability Discrimination Act 1995 and Equality Act 2006).

40. The MPS Policy helps to establish clear accountability and corporate standards for the development of policies and proposals and provides a framework for measuring the adverse and positive impact of policing proposals on communities through a structured and transparent process. Proposals include corporate and local policies, corporate change, projects, procedures, functions, strategies, strategic decisions, pre-planned operations, policing plans and schemes. Impact assessment is an ongoing engagement, decision-making and risk assessment process, to be started early and continued throughout the development of proposals.

Abbreviations

ACPO

Association of Chief Police Officers

APA

Association of Police Authorities

CENTREX

Centre for Excellence (now part of the National Police Improvement Agency

IPLDP

Initial Police Learning and Development Programme

NPIA

National Police Improvement Agency

PDR

Professional Development Review

RDLDP

Race and Diversity Learning and Development Programme

RDNOS

Race and Diversity National Occupational Standards

C. Race and equality impact

Implementation of the Strategy for Improving Police Performance in Race and Diversity will have major implications for all future MPS learning and development programmes across each of the main diversity strands. The new diversity learning and development resources are currently being integrated into a number of key MPS training programmes, including the PCSO foundation course and Recruit Programme and the requirement that all MPS staff are assessed as competent against the Race and Diversity National Occupational Standards by the end of 2009 has the potential to make a real impact on improving diversity performance across the MPS.

D. Financial implications

All costs associated with the Race and Diversity National Occupational standard Assessment trial will be met from within existing Diversity and Citizen Directorate budgets.

E. Background papers

None.

F. Contact details

Report author: Shaun Kennedy, Head of Diversity Learning and Development, Diversity and Citizen Focus Directorate, MPS

For more information contact:

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

Appendix 1

Element: AA1.1 Promote equality and value diversity

Performance criteria

To meet the standard, you

1. Act in accordance with relevant legislation, employment regulations and policies, and codes of practice related to promoting equality and valuing diversity.
2. Act in ways that:
   • acknowledge and recognise individuals’ background and beliefs
   • respect diversity
   • value people as individuals
   • do not discriminate against people
3. Provide individuals with the information they need to make informed decisions about exercising their rights
4. Provide information in a format appropriate to the individual
5. Take account of how your behaviour affects individuals and their experience of your organisation’s culture and approach
6. Seek feedback from individuals on your behaviour and use this to improve what you do in the future
7. Challenge people when they are not promoting equality and valuing diversity
8. Actively help others to promote equality and value diversity
9. Seek support from appropriate sources when you are having difficulty understanding how to promote equality and value diversity.

Appendix 2

Race and the Police: Learning Module: Objectives

1. Explain the legal definition of racial grounds
2. Explain the term ‘institutional racism’ as outlined in the Stephen Lawrence Inquiry Report
3. Explain the main provisions of the Race Relations (Amendment) Act 2000
4. Explain the role of the CRE in promoting racial equality
5. Describe the development of multicultural and multiracial Britain.
6. Describe what is meant by the terms ‘racist incident’ and ‘racially aggravated’ offences
7. Describe actions they can take to proactively reduce racist incidents
8. Outline the procedures for responding to a racist incident
9. Describe sources of support for victims of a racially motivated incident and their families both within and outside the force
10. Describe best practice in protecting and supporting victims of repeated attacks and harassment
11. Explain the reasons why building partnerships with communities will help the police to tackle racist crime
12. Explain what is meant by disproportional treatment and give examples of how the term might be used
13. Describe how personal prejudice may lead to unfair treatment taking place
14. Explain the main operational issues surrounding the treatment of transient and disenfranchised groups such as Asylum Seekers and Gypsies
15. Suggest ways to build relationships with these groups
16. Outline some of the issues associated with providing proportional treatment to minority groups whose language and culture present a challenge
17. Describe the background to and the principal conclusions made in the Stephen Lawrence Inquiry Report 1999
18. Outline how ‘institutional racism’ impacts upon police service delivery
19. Identify ways in which the individual should respond to incidences of ‘institutional racism’
20. Give three examples of good practice in promoting racial equality
21. Describe the present barriers to the recruitment and retention of Black and Minority Ethnic staff
22. Give examples of good practice in the recruitment and retention of Black and Minority Ethnic staff
23. Apply best practice in the recruitment and retention of Black and Minority Ethnic employees within the context of your role
24. Explain the importance of building partnerships with all Black and Minority Ethnic groups in tackling racist crime
25. Outline three significant ways to build effective relationships with transient and disenfranchised communities

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