MPS progress on the implementation of the Police Race and Diversity Learning and Development Programme

Report: 15
Date: 5 June 2008
By: Director of Human Resources on behalf of the Commissioner

Summary

This report details progress on MPS implementation of the Police Race and Diversity Learning and Development Programme produced by the Home Office, the Association of Chief Police Officers and the Association of Police Authorities in November 2004.

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 police community support officers and special constables.

2. The Police Race and Diversity Learning and Development Programme (RDLDP) seeks to fulfil the aim of the Government’s Police Reform Programme:

“to provide a citizen-focused service that responds to the needs of individuals and communities and inspires confidence in the police.”

3. National implementation of the PRDLDP is governed by an executive group comprised of the Home Office, the Association of Chief Police Officers (ACPO), the Association of Police Authorities (APA), Her Majesty’s Inspectorate of Constabulary (HMIC) and the National Police Improvement Agency (NPIA) and a Programme Board chaired by R. David Muir, with representation from the National Black Police Association (NBPA) the Gay Police Association (GPA), the British Association of Women Police (BAWP) the Police Federation, the Superintendents Association, Unison, Skills for Justice and independent community members (including former Lawrence Steering Group members).

4. This is a major programme aimed at improving police performance in race and diversity (across the six primary diversity strands of age, disability, gender, race, religion and belief and sexual orientation), with an emphasis on making race and diversity learning and development relevant to the role performed, leading to improved performance at an individual, team, force and service-wide level.

5. One of the key aims of the programme within the MPS is that by the end of 2011 every member of staff is assessed as competent against the Race and Diversity National Occupational Standards (NOS) [1] AA1 “Promote equality and value diversity” (see Appendix 1) and that the standards are maintained thereafter through the Professional Development Review (PDR) process.

6. There is a requirement to submit a return of personnel assessed against NOS AA1 as part of the Home Office Annual Data Return (ADR), and PRDLDP progress is also part of the HMIC Baseline Assessment.

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

7. Implementation of the MPS Race and Diversity Learning and Development Programme is co-ordinated by a Strategic Programme Board currently chaired by the Director of the Diversity and Citizen Focus Directorate. The Board is supported by a Working Group (which includes representation from Business Group Senior Training Managers) and a Challenge Panel (with representation from MPS Staff Support Associations and MPS Independent Advisory Groups).

8. During 2007-08, the Programme Board has met on three occasions and has been primarily concerned with the development and implementation of the Race and Diversity National Occupational Standard Assessment Programme. The Programme Working Group is convened on an as-required basis to progress work commissioned by the Programme Board.

Challenge Panel

9. The early incarnation of the Challenge Panel was instrumental in agreeing the Programme Board / Working Group structure to support the MPS implementation of the PRDLDP. This was prior to the DCFD Independent Advisory Group Review which resulted in a comprehensive range of recommendations intended to influence the conduct of all MPS advisory group processes and the RDLDP Challenge Panel processes will be subject to review and change as a result. This review process will be completed by the end of September 2008.

Day-to-day co-ordination and implementation:

Key programmes of work

10. The HR: Diversity Learning and Development Unit (DLDB) is responsible for co-ordinating the implementation of the Strategy and Programme. The Unit transferred into HR Directorate on 1 April 2008. The future role and responsibilities of the Unit are currently under review and will be agreed by HR Directorate Senior Management Team by the end of May 2008.

11. Key programmes of work for 2008-09 include:

• Equality and Diversity Assessment Briefings for MPS Priority Group staff
• 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
• the delivery of the MPS Diversity and Equality E-Learning Module to help meet the legal duty to provide training to all staff (on the Race Relations Amendment Act (2000) and the Disability Discrimination Act (1995) and Disability Equality Duty Codes of Practice 2006 for the public sector, and other equalities legislation)
• the development and delivery of the Quality of Service Principles/Key Encounter programme
• ongoing development of the Policing Diversity Online Intranet Resource.

National Race and Diversity Occupational Standard Assessment

12. A key objective of the National Race and Diversity Learning and Development Programme is that all police officers and staff are assessed as competent against National Occupational Standard AA1 (fostering respect for equality and human rights - see Appendix 1). This will eventually require the assessment of approximately 50,000 MPS personnel via the Professional Development (PDR) process.

13. The MPS is committed to completing the initial assessment of all staff by 31 March 2011. The first phase of assessment will be for all MPS Priority Group staff. MPS Priority Group members will be required to provide evidence of their race and diversity performance for the 2008-09 PDR reporting period (with full assessment being completed by 31 March 2009).

14. The Priority Group is defined using criteria set by the national programme. MPS staff within the Priority Group include: Chief Officers, Director Level Police Staff, OCU Commanders, Unit Heads, Senior Investigating Officers, Family Liaison Officers, Full-time Training Staff and Tutor Constables.

15. Priority Group Supervisor awareness and understanding of the assessment process is being supported via a range of activities, including the provision of a 1 day Equality and Diversity Assessor Workshop, 1-to-1 briefings and written briefings. This process will be completed by the 31 March 2009.

Monitoring and Quality Assurance

16. Monitoring and quality assurance of MPS Race and Diversity National Occupational Standard assessment will be undertaken by the Diversity and Citizen Focus Advisors as part of their role, where they will dip sample PDR to examine whether the race and diversity evidence provided:

• meets the required standard of the performance criteria of NOS AA1 “Promote equality and value diversity”
• meets the required standard of the performance criteria of NOS A1 “Assessing candidates using a range of methods”.

17. The DCFD advisors will be supported as required, in their development by the HR: Diversity Learning and Development Unit.

18. The existing HR quality assurance processes for PDR apply equally to police officers and police staff. If there is insufficient evidence to support a rating or if the PDR has been incorrectly completed it will be returned to the countersigning manager and additional evidence will need to be provided by the assessee.

The National Learning Requirement:

Integration of Race and Diversity Learning Resources into MPS Training

19. 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 HR Directorate: Diversity Learning and Development Unit.

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

21. The first part of the requirement (Strand 1) addresses the 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.

22. 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.

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

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

Race and Diversity Learning and Development Resources

25. The National Learning Requirement is supported through the delivery of learning resources developed by 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.

26. 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.

Integrating Race and Diversity into MPS training

27. HR Directorate: Diversity Learning and Development Unit is currently working with the Extended Police Family School, Recruit School, the Leadership Academy and the Learning Development Unit (responsible for Trainer Development) to embed national race and diversity learning and development resources into their respective programmes and courses. This process includes:

• an introduction to Strand 1 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)
• consolidation of the generic race and diversity understanding, through facilitated discussion with community participants from the relevant perspectives
• contextualisation 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
• 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 communities.

28. The next phase of work with the Initial Police Learning and Development Programme will build on existing activity and include:

• the development and preparation of Trainer Resource Packs (TRPs) to assist IPLDP trainers with the delivery of the race and diversity elements
• the development and inclusion where appropriate, of the Race and Diversity National Learning Requirement through specific race and diversity themed learning objectives throughout the 104 week IPLDP course, and the development of race and diversity support material for the relevant TRP
• supporting the development of IPLDP trainers in understanding and communicating key race and diversity and Citizen Focus messages as relevant
• supporting the development of IPLDP trainers in the inclusion and direct management of community involvement within the programme.

29. Similar work will be undertaken with the Extended Police Family School during 2008-09.

Leadership Academy – Integration of the Race and Diversity National Learning Requirement

30. HR: Diversity Learning and Development Unit is also supporting the MPS Leadership Academy with the integration of the Race and Diversity National Learning Requirement into their programmes. This includes:

• support in integrating issues of race and diversity and Citizen Focus in the design and ongoing development of Leadership Academy products
• supporting the development of Leadership Academy trainers in understanding and communicating key race and diversity and Citizen Focus messages as relevant
• supporting the identification and delivery of citizen focus and diversity issues within ongoing development of Leadership Academy products
• supporting the development and delivery of local Leadership Academy learning and development projects as necessary.

Diversity Learning and Development for Officers and Staff Transferring to a different location or performing a different role

31. Where officers are performing the same role (i.e. patrol constable) and posted to a different geographical location understanding of local differences i.e. around BME groups, religious groups and cultural considerations should form part of an officer’s induction to a new area and be part of their ongoing professional development. Where officers are posted to a different geographical location and are performing a different role, specific activity will need be tailored to take account of their new responsibilities.

MPS E-Learning

32. The use of E-Learning in the MPS is currently under review by MPS 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.

33. 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.

MPS Diversity and Equality E-Learning Module

34. The MPS Equalities Scheme 2006-2010 provides a framework through which policies and procedures are assessed, reviewed and consulted on to promote the positive aspects of the duties set out in law ensuring we do not discriminate on the basis of age, disability, gender, race, religious belief or faith or sexual orientation.

35. It is important that every member of the MPS understands the Scheme, because each individual has a personal legal responsibility to pay due regard to the:

• elimination of unlawful discrimination
• promotion of equality of opportunity for all
• promotion of good relations between peoples of different groups
• promotion of participation in public life
• promotion of positive attitudes towards others.

36. A key element of the scheme is the consolidation of a range of training programmes to equip staff to deliver equality in policing services and employment practices. This training will include the delivery of the MPS Equality and Diversity E-Learning Module (produced by the National Police Improvement Agency).

37. At the beginning of 2008, NPIA (in conjunction with NCALT) commenced the final phase of consultation on a new Equality and Diversity E-Learning Module. The module has been designed to demonstrate the police service’s commitment to equality and to applying the duty placed on everyone by the equality legislation. The module helps clarify complex legislation and sets out personal and corporate responsibilities. The learning is presented in seven chapters; an introduction to equality and diversity and a chapter on each of the six strands of diversity covered by legislation. Each chapter ends with Knowledge Check questions. The module will take up to 2 hours to complete.

38. The Equality and Diversity module does not replace the other Race and Diversity Learning and Development Resources produced by NPIA to support the National Race and Diversity Learning and Development Programme. The module is designed to meet the minimum requirement only and the other NPIA resources (across the 6 primary diversity strands) will still need to be completed where relevant, for example within IPLDP and the PCSO Foundation Course.

39. The MPS-version of the module will be delivered from the end of May 2008.

Quality of Service: Key Encounter Programme

40. HR Directorate Diversity Learning and Development Branch is currently developing a training package building on themes from the Quality of Service “Being There” DVD for use across a range of courses and programmes, both centrally and locally. The programme which will initially be developed in Westminster Borough (prior to MPS-wide delivery) will be designed to:

• explain what a key encounter is and how they can impact upon the user experience
• explain how better key encounters can improve the user experience and public confidence, leading to reduced crime and disorder
• explain how an understanding of diversity is essential to delivering quality policing
• define how staff can deliver quality policing through the Quality of Service principles and improve their key encounters.

Policing Diversity Online

41. The Policing Diversity Intranet Resource for staff with key information about London’s diverse communities went live at the end of January 2007. 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 is being regularly updated and replaces the MPS Policing Diversity Handbook which was last issued in 2002.

Abbreviations

ACPO

Association of Chief Police Officers

ADR

Annual Data Return

APA

Association of Police Authorities

BAWP

British Association of Women Police Officers

DCFD

Diversity and Citizen Focus Directorate

DLDB

Diversity Learning and Development Branch

GPA

Gay Police Association

HMIC

Her Majesty’s Inspectorate of Constabulary

IAG

Independent Advisory Group

ICF

Integrated Competency Framework

IPLDP

Initial Police Learning and Development Programme

MPS

Metropolitan Police Service

NLR

National Learning Requirement

NOS

National Occupational Standard

NBPA

National Black Police Association

NPIA

National Police Improvement Agency

PCSO

Police Community Support Officer

PDR

Professional Development Review

SOP

Standard Operating Procedure

RDLDP

Race and Diversity Learning and Development Programme

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 six primary 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 2011 has the potential to make a real impact on improving race and diversity performance across the MPS.

D. Financial implications

The initial costs associated with the Race and Diversity National Occupational Standard Assessment Programme will be met from within existing Diversity Learning and Development Unit budgets.

E. Background papers

None

F. Contact details

Report author(s): Shaun Kennedy, Head of Diversity Learning and Development, HR Directorate

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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