Crime management best value review implementation plan

Report: 15
Date: 13 March 2003
By: Commissioner

Summary

The Crime Management Best Value Review (CMBVR) was approved by the Finance Planning and Best Value Committee on 18 April 2002. The Planning, Performance and Review Committee approved an implementation plan on 19 September 2002 where it was also agreed that formal updates would be provided twice a year, identifying costs incurred and benefits delivered.

This report provides such an update for members and allows them to note progress made against the implementation plan as well as areas where delays are being experienced and changes considered.

A. Recommendations

That the Committee

1. notes the progress made against the implementation plan; and
2. note the changes to the implementation plan and approve those changes for the reasons outlined.

B. Supporting information

1. The improvement plan and an associated implementation plan was submitted to members at their meeting of 19 September 2002. This was designed to update them on the progress made towards delivering the recommendations.

Implementation management arrangements

2. Implementation is managed by a project board, chaired by Cmdr John Yates (Commander (Crime) TPHQ). Responsibility for implementation of each recommendation has been designated to leads of the MPS Operational Policing Model (OPM). The role of co-ordination for the whole CMBVR, as well as team leader for the implementation of the Central Telephone Investigation Bureau (CTIB), is Chief Inspector Steve Kyte (TPHQ)

3. The Project Board includes a member of the TP Command Team (Cmdr Bob Broadhurst), a BOCU commander and representative of SO departments as well as a member of the MPS Internal Consultancy Group. It meets on a bi-monthly basis.

Progress against recommendations

4. The CMBVR made forty-nine recommendations. Those relating to the processes of ‘crime investigation and detection’ and ‘intelligence’ have been collated, according to any interdependence, into sixteen ‘headline’ recommendations. Most have been allocated to lead members of the MPS OPM, though some, e.g. CTIB, has its own allocated staff. Those recommendations relating to management issues and not specific to the CMBVR, are the subject of an update from the Best Value Programme Manager in Appendix 1. Members are asked to approve no further action on management issues 1 to 15 inclusive, for the reasons outlined in the appendix.

5. Appendix 2 provides members with a brief update on each of the sixteen headline recommendations. The progress of each recommendation is shown in tabular form in Appendix 3 (the implementation plan), which is colour coded to indicate whether or not implementation is going according to the original plan, submitted to members in September 2002. Members are requested to approve as complete, recommendations 9, 11, 14 and 16 for the reasons outlined in appendix 2.

6. Appendix 4 is the standard cost/benefits reporting table. This identifies what benefits in terms of cashable, non-cashable savings and financial benefits have been delivered. It also shows updated costing estimates that, for example, take into account the effect of the Hay Review. Appendix 5 maps the passage of the final CMBVR recommendations to recommendations on the implementation plan.

Issues affecting progress

7. The prioritisation of staff to fulfil the budgeted workforce target of borough command units and the resultant inability of TP to recruit staff has resulted in some difficulties in implementation. Whilst progress has been made is has not been as extensive as originally estimated, neither have some of the cost and benefits analysis been conducted. However, the early involvement and consultation conducted as part of the review process has helped to ensure that the implementation of certain recommendations has been progressed without the need for involvement of the implementation team e.g. the transfer of ‘Crimestoppers’ information over the CRIMINT system rather than by paper docket.

8. Thus far all recommendations have been conducted out of existing budgets and resources. However, grant funding and the budget for 2003/04 has now been confirmed, with £1.355m allocated for CMBVR implementation. Full implementation is dependent on continued funding, especially as progress on major recommendations, most notably the CTIB, progresses.

9. Those recommendations pertaining to Information Technology have been passed to the Department of Information (DoI), to be delivered as part of the information management strategy. The Project Board considers its role complete, and sees merit in feeding the CMBVR recommendations into what are large and independently funded and managed projects where their implementation is better placed. The Project Board will, however, continue to raise new recommendations with DoI if these arise from the continuing implementation of the CMBVR. Where it is not currently technically feasible to address some requirements, the Project Board will keep the situation under periodic review.

Action plan to resolve outstanding issues

10. The Project Board receives regular updates on the progress of each recommendation. Where there is currently slippage on implementation the board will actively manage the risks involved and escalate relevant issues to Management Board or other strategic committees.

C. Equality and diversity implications

1. The adoption of a language line facility within ‘Crimestoppers’, (recommendation 11) already allows those who do not have English as their first language to contact police and provide information on criminal activity. Enhanced facilities to report crime over the telephone, including textphone and SMS messaging within the CTIB (recommendation 1) will help facilitate access to these services to people with sensory disabilities.

2. The under recording of crime throughout London, but in particularly from the minority ethnic communities and other vulnerable groups, has already been identified. The development of third party reporting, as part of CTIB development (recommendation 1) and the utilisation of a language line facility with in the crime reporting process (recommendation 3), will directly support the MPS diversity strategy by supporting the principles of providing a positive and responsive police service, treating individuals and groups according to their needs.

3. Equalities and race relations implications for each CMBVR recommendation will be addressed directly at the ‘sign off’ stage by the Project Board.

D. Financial implications

1. As noted above, the 2003/04 grant funding and budget have been confirmed, with £1.355m allocated for CMBVR implementation.

2. The cost of implementation is registered as a requirement in the MPS medium term financial projection, with anticipate bids of £5.4m for the financial year 2004/05 and £3.5m for 2005/06.

3. The implementation of the CMBVR recommendations commenced in April 2002. Costs so far, based on two chief inspectors and latterly additional staff to support CTIB development, are approximately £ 123,600.

E. Background papers

None.

F. Contact details

Report author: John Yates, Commander (Crime) TP HQ, MPS.

For more information contact:

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

Appendix 1

Crime Management Best Value Review - Update on Management Recommendations

Appendix 2

Crime Management Best Value Review – Update on Headline Recommendations

The CMBVR made a number of recommendations, which, for the purposes of implementation, have been grouped into sixteen ‘headline’ recommendations, each having a lead officer responsible for its development.

Recommendation 1: A 24-hour central telephone investigation bureau (CTIB) be established, staffed by dedicated civilian operators.

The creation of an MPS CTIB is being progressed by staff at Territorial Policing Headquarters (TPHQ). Due to its close relationship to the C3i Programme, Cmdr Bob Broadhurst (the C3i Senior User) has been tasked with implementation by the Deputy Commissioner.

A study analysing workload and demand has been completed by MPS Internal Consultancy Group, and further work is underway to more accurately scope the requirements of the CTIB.

An options paper, outlining the possible functionality of the CTIB has been completed, and was considered at the Territorial Policing Command Team meeting of 17th February 2003. As a result, further work is underway to ensure that the CTIB meets the requirements set and will be considered by the MPS Management Board in due course.

Recommendation 2: A victim focus desk should be established on each borough. A review is undertaken for a central victim focus desk with the establishment of the CTIB.

The original CMBVR recommendation has been extended by the more recent Bringing Offenders to Justice (BOTJ) Best Value Review and the work commissioned on behalf of the MPS by Atos KPMG. The process owner for victim care within the MPS is now Cmdr Alan Given, and the lead officer for this CMBVR recommendation is transferring to the Department of Criminal Justice with the aim of drawing the three reviews together and implementing the common themes.

A plan to incorporate the CMBVR recommendations into these other reviews will be produced and approved by the CMBVR Project Board to ensure compatibility and that the benefits envisaged are realised.

Recommendation 3: Improve communication.

The CMBVR identified that the public were uncertain on how best to contact the MPS, specifically when requiring to report a crime, and that information produced by the MPS to clarify this issue should be more comprehensive.

Whilst the CMBVR was aware of the impending changes that the C3i project would have on communication between Londoners and the MPS, the imminence of C3i with the changes that it will bring negates any widespread publication of details on how to contact the MPS when in the latter part of 2004 these details may require emendation.

This is still part of the overall aim to enhance the service provided to the victims of crime in particular, and will also be developed within the Department of Criminal Justice. The benefits outlined by the CMBVR still stand and it is anticipated that costs would be met from existing budgets.

As C3i will soon provide the primary means of contacting the MPS, it is considering the feasibility of a language line facility and this in due course could be linked into the CTIB. Aids to allow those with hearing impairment were introduced into the MPS in February 2003 with the installation of textphones within the existing BOCU control rooms.

Recommendation 4: A Crime Management System (CMS) is adopted with SOPs throughout the process from initial reporting and investigation to the point where a crime is ‘put away’.

The development of a CMS is the direct result of the creation of the CTIB and the requirement on the part of BOCU to manage the investigation of crime, where required, after initial enquiries made by the CTIB.

Whilst this recommendation is dependant on the full functionality of the CTIB, some work has already been progressed in order to ensure that a more corporate approach is taken to criminal investigation, for example the new MPS Crime Screening Policy.

The original benefits identified in the CMBVR are still anticipated and this recommendation is being developed by the ACPO leads on investigation and CTIB/modernising operations within TPHQ,

Recommendation 5: Civilian investigators be employed in suitable roles within the CMS.

In the light of the work under way by the Department of Criminal Justice to further professionalise the way in which the MPS deals with the prosecution of offenders, case files and liaison with the CPS, there has been no development of the CMBVR recommendation to ‘outsource’ certain functions to neighbourhood watches. However, technology has allowed the further integration of neighbourhood watches into appeals for assistance such as the growing use of ‘Ringmaster’ on BOCU.

The enhanced use of civil staff has been delayed due to the demands on the MPS to increase its police establishment. However, the increased deployment of Crime Scene Examiners as through ‘Burglary Sole Response’ as opposed to police officers, is being progressed with the potential for better forensic retrieval.

The employment of civilian investigators is currently the subject of a bid for funding to the Home Office. Accordingly, action to progress their training and subsequent deployment is awaiting the result of this request.

Recommendation 6: Pre-charge prisoner reception (custody teams) are established with suitably trained staff, operating to appropriate SOPs and supervised from within the CMS.

The creation of Prisoner Processing Teams (PPT) has been progressed by the Investigation strand of the MPS Operational Policing Model (OPM). There is guidance for BOCU to assist in the introduction of PPT to ensure a corporate approach and the realisation of benefits.

Whilst the introduction of BOCU based PPT is not prescriptive at this stage, the PPT on Southwark BOCU will shortly be evaluated by MPS Internal Consultancy Group and this will allow for a re-assessment of the guidelines given to boroughs by the TP command team and consider the validity of the cost and benefits outlined in the CMBVR.

The introduction of PPT is also the subject of further consideration and development by the Department of Criminal Justice as a result of similar recommendations by the Bringing Offenders to Justice Best Value Review and the work commissioned by Atos KPMG.

Recommendation 7: A training needs analysis (TNA) be undertaken to establish the new level of training required as recommendations are adopted.

There has been a complete overhaul of training for officers employed in investigative roles within the MPS.

All officers in an investigative role are required to attend an Investigative Foundation Course. In addition there is extra training for officers applying to become Detective Constables.

A Performance Needs Analysis (PNA) has been completed for the ranks of Detective Sergeant and Detective Inspector, and training in managing the intelligence function has been provided for Detective Inspectors by TPHQ.

Initial development of a PNA for staff within the CTIB is underway. However, as recommendations are progressed, further research will be required as role and functions are identified. An exchange programme with outside agencies has yet to be researched.

Recommendation 8: The CRIS refresh project considers improvements to CRIS functionality

A number of recommendations were made by the CMBVR in relation to improvements to the CRIS system. The latest version of CRIS, release 10 (R10), is due to ‘go live’ in May 2003.

The CRIS R10 Project Board has responsibility overseeing improvements to the system. It is aware of the recommendations of the CMBVR. Some have already been achieved (e.g. DNA and fingerprint evidence is sent via the CRIS system) some are under consideration and some pose problems due to the functionality of the CRIS system. In this last category is the recommendation on the automatic identification of repeat victims.

The CMBVR Project Board is considering its further involvement in progressing this recommendation, due to the existence and role of the CRIS Project Board. However, there are concerns that, notwithstanding technical difficulties, repeat victims cannot be identified by the CRIS system automatically considering the importance of victim care to the MPS, MPA and national policy.

This issue will be addressed by the ACPO lead on the respective project boards.

Recommendation 9: Improvements to management and auditing practices.

The Project Board has accepted that this recommendation is complete.

Both posts identified by the CMBVR have been identified and appointed.

Recommendation 10: Strategies be developed, following consultation, that identify the appropriate response to all crimes taking into consideration the nature of the crime and history of offender.

The investigative strand of the Operational Policing Model is providing an MPS input into the national knowledge mapping of criminal investigation by Centrex at the National Police Training Centre, Bramshill. This will allow for an appropriate response to crime based on experience and good practice, and should in due course assist in the methodical investigation of crime in the CTIB. The new MPS screening policy is also designed to maximise success and concentrate resources to priority crimes.

Within the Department of Criminal Justice management information is being developed that identifies areas of good practice to disseminate across the MPS and maximise judicial success.

Recommendation 11: Improvements are made to Crimestoppers

The Project Board has accepted that this recommendation is complete.

Information is now transferred electronically to BOCU via the CRIMIT system, and a language line facility was introduced in December 2001.

In addition to this, ACPO and PITO are responsible for increasing security and facilitating anonymity to allow contact to be made by e-mail and the ability to contact Crimestoppers by text message is being scoped for the future.

Recommendation 12: The means of paying CHIS (Covert Human Intelligence Sources previously known as informants) be made more efficient and auditable.

The introduction of a credit transfer system from the central funds to BOCU is on hold due to the relocation of resources from the source units responsible for CHIS from BOCU to Territorial Policing. It is anticipated that this issue will be resolved in the spring of 2003. This also impacts on the number and location of authorising officers.

The issue of increasing the resilience of the rewards payment procedure is currently under review nationally. Should a national solution not be forthcoming, it is anticipated that the MPS will progress this issue alone.

Whilst the issue of utilising the clearing banks as a means of allowing direct payment to CHIS, further meetings have been held with the banks and it may be possible to sanitise the origin of payment in order to protect the CHIS from inadvertent disclosure. This matter is the subject of further evaluation.

Recommendation 13: Improved IT systems, access and partnership for intelligence

This recommendation is being progressed by the Directorate of Information as part of the broader IT strategy of the MPS. Other significant programmes, such as the implementation the National Intelligence Model, has a significant impact on the intelligence processes of the MPS.

In the light of the involvement of substantial parts of the MPS, not under the direction of the CMBVR Project Board, the board is considering its further involvement in progressing this recommendation.

Recommendation 14: Proactive and Tasking Proformas (PATPs) to be redesigned to ensure minimum standards of completion and to include costings and results.

The Project Board has accepted that this recommendation is complete.

In July 2002 a Police Notice was issued redesigning the PATP process, setting standards for completion and clarifying processes for obtain approval for properly coasted operations and resources.

As part of the BOCU inspection process, the TP Performance Unit, as part of the Borough Intelligence Unit inspection process, reviews the PAT process from the means of instigation through to post operation evaluation.

The work and improving the PAT system has been jointly conducted by TPHQ and SO11 as part of both departments core business, and accordingly is out of existing budgets.

Recommendation 15: A 24-hour BOCU intelligence service is provided either by the Borough Intelligence Unit (BIU) or by the adoption of IT within control rooms.

This recommendation is made more complex due to the transfer of the control room function from BOCU to C3i, commencing in the latter part of 2004.

It has been identified that the development of C3i will lead to the loss of the intelligence provision currently provided by BOCU control rooms. The provision of intelligence, the availability BOCU police resources and how this is best linked into C3i is now the subject of scrutiny by Cmdr Bob Broadhurst and his project team on ‘Modernising Operations’.

The provision of 24-hour intelligence is a key factor in this project and will be developed in anticipation of C3i ‘go live’.

Recommendation 16: Implementation of the CMBVR findings is progressed by an implementation team, adhering to recognised project management principles and reporting to a specific project board.

The Project Board has accepted that this recommendation is complete.

Whilst the means of implementation of the CMBVR has not been by the establishment of a team of the size anticipated, mainly due to the MPA and MPS prioritising the police establishment on BOCU, implementation has progressed using existing resources.

Staff responsible for the Operational Policing Model will retain responsibility for progressing their areas of responsibility and a co-ordination function will be retained at TPHQ. Evaluation will be provided by the MPS Internal Consultancy Group.

Whilst it is still unlikely that significant numbers of staff will be obtained in the near future, staff have been acquired for CTIB development and resources allocated to ‘Modernising Operations’ under the command of Cmdr Bob Broadhurst will further support this work.

Appendix 5

Mapping of CMBVR final report recommendations to implementation plan recommendations

1. The Crime Management Best Value Review contained 49 recommendations. 1-15 of these were designated as management actions and are dealt with separately in this report. The remaining recommendations (16-49) were grouped under sixteen new headings under the crime management best value review implementation plan. The table below shows which original CMBVR final report recommendations are incorporated in which of the implementation plan headings.

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