HMIC Going Local Inspection Programme 2003-2004

Report: 8
Date: 19 January 2005
By: Commissioner

Summary

In April 2001, Her Majesty’s Inspectorate of Constabulary (HMIC) embarked on a nationwide, five-year programme to inspect every BCU in England and Wales. The programme focuses on the local aspect of policing and is aimed at improving performance by encouraging forces to concentrate on delivery. This report identifies common themes and highlights the key issues raised during these inspections. It also provides an update on the status of the action plans and identifies any barriers to the implementation of recommendations.

A. Recommendations

That

1. the report be noted; and
2. members approve the amended timetable for future submission of papers.

B. Supporting information

1. Between May 2003 and March 2004, six MPS BOCUs were inspected as part of the HMIC Going Local Programme; Harrow, Newham, Kensington & Chelsea, Wandsworth, Hillingdon, and City of Westminster. The reports, published on the HMIC Internet site, set out inspection findings, highlighted areas of good practice and made recommendations for improvement where appropriate. A brief synopsis of the recommendations, actions taken and good practice is attached at Appendix 1.

2. Action plans from the six BOCUs have been sent to HMIC within the agreed timescales. Revisits are undertaken by HMIC at six months and twelve months after the original inspection date. However, this work is still being undertaken by HMIC and, at this stage, only revisit reports for Harrow, Newham & Hillingdon have been finalised and published. Comments from these reports are included in Appendix 1.

Corporate issues

3. A number of common themes have been identified from these reports.

Performance management

HMIC emphasised that a key feature of a successful BOCU is a robust performance management system with clear roles and expectations and an awareness that individuals will be held to account for their contribution to the achievements of goals and targets. All six Going Local reports referred to the need for BOCUs to review and/or develop their performance management systems and review processes.

Although HMIC was encouraged to see emerging performance cultures and Senior Management Teams committed to improving performance, this was not consistently applied across all levels on all of the BOCUs inspected. HMIC felt that greater emphasis could be given to performance results as, in some cases, there was little meaningful analysis and the benefits of information analysis was not fully realised.

Subsequent reports, however, have noted that BOCUs are working hard to develop strong performance management cultures, where staff are being held to account for performance through more robust systems and structures.

Demand management

Four out of the six BOCUs inspected had a recommendation linked to demand management. Although HMIC found some creditable work around this issue, it was often undertaken in a piecemeal approach. There is an ongoing need for BOCUs to analyse demand and develop and/or review their demand management and deployment strategies. However, HMIC revisits this year have noted substantial improvements since the original inspections.

HMIC has suggested that MPS BOCUs will be assisted in this task by referring to the MPS Demand Resolution Strategy and the guidance issued as a result of the MPS Demand Management Best Value Review.

National Crime Reporting Standards (NCRS)

The NCRS introduced in April 2002 makes year-on-year recorded crime comparison difficult. BOCUs visited by HMIC received an amber grading following their inspection of NCRS compliance. If the crime figures are to have any real integrity, it is important that the boroughs comply with the NCRS to make comparisons valid and reliable.

Partnerships

HMIC was again impressed with the effectiveness of well-developed partnerships within the community and the commitment of both staff and partners in developing these relationships.

Leadership

The standard of leadership was again commended. Staff on a number of the BOCUs described the Senior Management Team as accessible and visible and highly active in positively encouraging the drive for improved performance.

BOCU commanders were seen to be demonstrating strong leadership principles and providing the right focus and direction needed for their workforce. Both the Hillingdon and the Newham revisit reports praised the leadership qualities of the BOCU commanders in the successful implementation of the Going Local inspection recommendations. There was also clear evidence during the revisits that the HMIC inspection process had provided a catalyst for this change.

4. It has been noted through a dip sample of a number of past Going Local reports that the few recommendations being made are fairly generic in nature. This is an issue that tends to be replicated throughout other forces.

Timetable for future reports

5. Summary papers for the remainder of the MPS programme will be presented in an identical format as follows:

• HMIC Going Local Inspection Programme 2003 – 2004. HMIC revisits for 2003/04 will conclude in March 2005. It is suggested that a further paper be presented to the PPRC – after March 2005 - updating the comments made in relation to Kensington & Chelsea, Wandsworth and City Of Westminster.
• HMIC Going Local Inspection Programme 2004 - 2005. BOCUs already inspected are Bromley, Hackney, Richmond, Barking & Dagenham and Barnet. Other inspections arranged for this financial year are Enfield in January 2005, and Islington in February 2005. HMIC revisit reports will not be available until June 2005 at the earliest.
• HMIC Going Local Inspection Programme 2005 – 2006. BOCUs to be inspected during this financial year will be Bexley, Merton, Sutton, Croydon, Hounslow, Hammersmith & Fulham, Waltham Forest, and Kingston-upon-Thames.

C. Race and equality impact

Any diversity and equality implications are part of HMIC’s inspection reports.

D. Financial implications

Any financial implications are part of HMIC’s inspection reports.

E. Background papers

None

F. Contact details

Report authors: Melanie Homer, MPS Inspection, Liaison & Analysis Unit, DCC9 Operational Learning.

For more information contact:

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

Appendix 1: HMIC Going Local Inspections in the MPS 2003 - 2004

Harrow BOCU

• Date of inspection: 12–16 May 2003
• Report published: 28 July 2003
• Revisit report published: 23 August 2004

The inspection team made the following recommendations:

1. That the BOCU engages with partners to ensure that there is clarity regarding the delivery of and accountability for long-term and sustainable crime and disorder plans.

• Harrow now has in place the ‘Safer Harrow Management Group’ comprising senior members of the key Crime and Disorder Reduction Partnership stakeholders and the BOCU commander. However, at the time of the HMIC revisit in July, published documentation from the strategic partnership did not make it explicit as to how the partners fulfilled their obligations under the Crime and Disorder Act with regard to the roles and functions of the responsible authorities. This should be clarified to ensure appropriate accountability.

2. That the BOCU reviews and refines the performance management system to ensure this holds senior/middle managers and supervisors accountable for delivery of the BOCU policing priorities.

• As a result of this recommendation, Harrow undertook a number of actions as part of a full review in this area of activity. It was evident from the interviews conducted by HMIC during their revisit that staff within the BOCU are more conscious of performance management and that briefing styles have changed to create a better performance focus. In April 2004, Harrow achieved a 91% compliance rate for PDR submissions.

3. That the BOCU ensures compliance with the NIM, particularly in relation to the preparation of a strategic assessment and a tactical assessment. This will benefit the BOCU in assessing and providing the context for crime and disorder hotspots and performance.

• HMIC’s revisit confirmed that a substantial amount of work was carried out by the BOCU in response to this recommendation and that Harrow is now NIM compliant.

4. That the BOCU undertakes a review of demand management and deployment with regard to its stated aims and implements a unified demand/deployment strategy.

• A considerable amount of work has been undertaken by the BOCU, which was evidenced during the HMIC revisit. There are systems in place to monitor the implementation and compliance of the Working Time Directive.

The inspection team acknowledged the following as good practice:

1. The ‘Sanctuary Project’ for victims of domestic violence and hate crime aimed at providing a secure room in their own home to ensure the victim has the option of remaining in their own home rather than relocating to alternative premises.
2. The deployment of tri-signs through the BTCG in order to ensure effective crime prevention in crime hotspots.
3. The management and focus of the CSU within the BOCU.
4. The initiative within the BOCU to allocate projects to probationer officers to conduct practical research into aspects of a particular community in order to aid their broader understanding of the policing environment.

Conclusion: HMIC is satisfied that all of the recommendations made during the inspection of Harrow BOCU have been accepted and acted upon. Action has led to demonstrable improvements and no problems have arisen that are likely to affect performance or merit further scrutiny by HMIC’s inspection team.

Newham BOCU

• Date of inspection: 23-25 June & 30 June-1 July 2003
• Report published: 23 September 2003
• Revisit report: 3 December 2004

The inspection team made the following recommendations:

1. That the BOCU views and develops the performance management framework and ensures that staff are held to account for delivering performance improvement.

• A review of the framework and the appointment of a Superintendent (operations) will oversee a sharper performance management regime that will be able to identify team and individual performance. Interviews with staff during the revisit highlighted that a stronger performance culture has been developed.

2. That the BOCU ensures that the vision in relation to community policing is clarified by the introduction of a strategic plan.

• A review has been undertaken of the skills base and numbers of community officers working at Newham. Numbers have been rationalised to balance the overall policing needs within the BOCU and a protocol is now in place containing abstraction criteria for community officers. Newham BOCU is now complaint with MPS policy for the Safer Neighbourhoods’ initiative.

3. That the BOCU fully implements the National Intelligence Model (NIM) by the introduction of a strategic assessment, control strategy and effective tactical assessments.

• Newham BOCU is now compliant with the NIM.

4. That the BOCU undertakes an analysis of demand and develops a demand management strategy.

• A considerable amount of work has been undertaken establishing minimum strengths as well as reviewing the budgeted workforce targets (BWT) deployed in each portfolio to match demand. However, the BOCU has yet to produce a demand management strategy. It will be assisted in this task by reference to the service improvement review conducted by the MPS, which led to guidance being issued in this area.

5. That the BOCU establishes a clear strategy in relation to diversity and ensures that the SMT has effective systems in place to monitor progress.

• A five-strand diversity strategy has been developed in accordance with Force policy. An accompanying action plan is also in place.

Conclusion: HMIC is satisfied that all of the recommendations made during the inspection of Newham BOCU have been accepted and acted upon. Action has led to demonstrable improvements and no problems have arisen that are likely to affect performance or merit further scrutiny by HMIC’s inspection team.

Kensington & Chelsea BOCU

• Date of inspection: 13–18 July 2003
• Report published: 30 January 2004
• Revisit report: Awaited

The inspection team made the following recommendations:

1. That the BOCU develops its performance review process to support and complement the ‘Enhanced Performance in the Community’ (EPIC) meeting, ensuring that it is embedded across the management chain and cascaded to frontline supervisors.

• EPIC data is now published on the MPS intranet site, which provides access to management information for all team supervisors and front line officers on the BOCU. The publication of the ‘Management Information Power Point’ allows team inspectors the opportunity to display the scrutiny process at team meetings and use this data to improve performance across a wide range of measures. Departmental meetings also take place across the BOCU as a component of the EPIC process to provide a fast time response across the management chain.
• The recruitment of dedicated media and communications officer and the commissioning of an external consultant to report on communication across the BOCU are expected to improved staff awareness of borough and performance issues. A number of other matters are still being addressed and an update is expected as part of HMIC’s revisit report.

2. That the BOCU ensures quality of life issues become an integral part of the analytical product and reviews the tasking and co-ordinating structure to ensure it is an integrated process, which causes BOCU resources to be tasked in the most effective way.

• A number of initiatives have been introduced as a result of this recommendation. These include:
  • the introduction of a Partnership Focus Desk within the Borough Intelligence Unit in June 2004;
  • the production of analytical products for Safer Neighbourhoods intelligence, and analysis of quality of life issues and Hate Crime issues;
  • the introduction of a NIM compliant product into the Borough Co-ordination and Tasking Group (BCTG);
  • the Royal Borough of Kensington and Chelsea has also recruited an experienced analyst into the Community Safety Team. There has already been joint working over the analytical products required by the BCTG and the Crime & Disorder Reduction Partnership. In the longer term, there will be a wider scope to share access to databases and to produce a broader product dealing with quality of life issues.
  • A number of other matters are being addressed and an update is expected as part of HMIC’s revisit report.

The inspection team acknowledged the following as good practice:

1. The team found evidence of effective data sharing between the BOCU and the Royal Borough of Kensington & Chelsea in the area of anti-social behaviour orders, and in particular the development of the crack house protocol aimed at achieving a multi-agency approach to the gathering of evidence to convict dealers and the disruption of their nefarious trade.
2. The team had the opportunity to meet with two officers from the Special Constabulary and found them to be highly motivated and committed to policing. Using their extensive local knowledge they had prepared a ‘Beat Book’ for the Notting Hill sector. The book provides patrolling officers with intimate knowledge of the wards, identifying locations and describing the various routes that can be taken to reach them in the event of an emergency. They have also used the skills learnt from their working environments to assist the BOCU develop bomb threat planning procedures and proforma statements for road traffic offences.
3. Officers still within their probationary period are attached to the CMU to gain experience in this important area of policing.
4. To provide an improved quality of service to the victims of dwelling burglary, the BOCU deploys a burglary car staffed by constables and scenes of crime officers. The unit is the primary response to dwelling burglary and provides a one-stop approach to scene investigation. It was encouraging to note the efforts being made by the BOCU to maximise the full potential of this initiative; evidence presented to the Inspection team showed at times of low demand the team responds to street and vehicle crime.
5. Of particular note was a scheme at Notting Hill where probationary constables are introduced to their beats by members of the local community who accompany the officers on foot patrol.

Conclusion: Kensington & Chelsea BOCU has accepted the recommendations contained within the inspection report and forwarded their action plan to HMIC. HMIC undertook their follow-up visit to Kensington & Chelsea on 22 November 2004. Their comments on the progress made are still outstanding.

Wandsworth BOCU

• Date of inspection: 22–26 September 2003
• Report published: 8 April 2004
• Revisit: To take place on 7 December 2004

The inspection team made the following recommendations:

1. That the BOCU further develops its performance review process to ensure it holds middle managers and first-line supervisors accountable for the delivery of the BOCU policing priorities.

• The BOCU now has a structured and timely process in place with Performance Review meetings being held every three months, providing all uniformed team inspectors the opportunity to discuss a number of performance issues with the Chief Inspector Operations. This process contributes to the overall personal development of team inspectors and their yearly Personal Development Reviews. The Detective Chief Inspector holds similar monthly meetings with the Detective Inspectors.
• Information produced by the Performance Unit enables the Senior Management Team to look at units’ and individual officers’ performance. Areas of good practice are also highlighted and areas for improvement are identified.

2. That the intended review of the BIU examines the structures, systems and processes and provides for extensive consultation with Borough Intelligence Unit (BIU) staff and recipients of the service.

• This review has been superseded by the MPS corporately adopting the National Intelligence Model (NIM). The BIU, its structures, systems and processes have now been enhanced to meet the prescriptive MPS NIM standards. The daily and weekly intelligence meetings and the Borough Tasking & Co-ordinating meeting ensure the effective deployment of all available BOCU resources to ‘hotspot’ patrols and the targeting of offenders. A further Core Desk is being established to meet the intelligence demand with regard to Anti Social Behaviour and Safer Neighbourhoods, partnership issues and domestic violence.

The inspection team acknowledged the following as good practice:

1. The team was impressed with the robust performance review regime operating in the CID portfolio. There, managers have a ’roles and accountabilities’ document, which details managers’ terms of reference, investigative, operational, criminal justice and personnel aims. Included within the document are bespoke targets. Their performance is reviewed formally every month.
2. The work produced by the analysts was of a good standard; in particular the inspection team was impressed by the ‘WASP’ project. This is a detailed problem profile for each of the burglary hotspots in the BOCU and is a joint initiative between the BOCU and the London Borough of Wandsworth.
3. The operations office has developed a protocol with local psychiatric hospitals to aid medical staff in the execution of warrants under mental health legislation. It was clear that the protocol had a positive impact on demands for police assistance to execute these warrants.

Conclusion: Wandsworth has accepted the recommendations contained within the inspection report and forwarded their action plan to HMIC. Their revisit is still outstanding and is due to take place on 7 December 2004.

Hillingdon BOCU

• Date of inspection: 17–21 November 2003
• Report published: 5 February 2004
• Revisit report published: 3 December 2004

The inspection team made the following recommendations:

1. That the BOCU reviews and develops the performance management framework, ensuring this is consistently applied across the BOCU and that staff are held to account for delivering performance.

• Hillingdon undertook a number of actions as part of a full review in this area of activity. Quarterly performance reviews automatically include an update of roles and responsibilities within the process. HMIC found evidence of a strong performance culture, where all staff are held to account for performance through more robust systems and structures. The introduction of a Borough Improvement Team will ensure a continued focus on improving performance.

2. That the BOCU reviews progress on the implementation of the NIM to ensure the model is mainstreamed and driving activity.

• In December 2003 the MPS NIM inspection gave Hillingdon BOCU a very high compliance score. Changes have now bee implemented to achieve 100% compliance. Quarterly strategic and weekly tactical assessments are now completed to a high standard. The BOCU is now NIM compliant.

3. That the BOCU further develops the BOCU demand management strategy setting out clear accountabilities and action plans.

• It was evident from the interviews conducted with staff during the HMIC revisit that the demand management strategy now incorporates the areas highlighted within the original inspection report. Crime within the Safer Neighbourhoods teams has been significantly reduced and overall the borough has increased its public satisfaction rates. Better use of resources has improved BOCU efficiency.

4. That the BOCU reviews the future requirements for the workforce and publishes a workforce deployment plan setting out clear accountabilities and action plans.

• Workforce deployment processes are now integrated and driven via the monthly posting panel where all available data on future requirements is considered. Outstanding vacancies are now filled by reference to the people and skills matrix.

The inspection team acknowledged the following areas of potential good practice:

1. The BOCU progress regarding health and safety issues.
2. The BOCU progress regarding utilisation of volunteers and the appointment of a volunteer co-ordinator.

Conclusion: HMIC is satisfied that all of the recommendations made during the inspection of Harrow BOCU have been accepted and acted upon. Action has led to demonstrable improvements and no problems have arisen that are likely to affect performance or merit further scrutiny by HMIC’s inspection team.

City of Westminster BOCU

• Date of inspection: 15 March 2004
• Report published: 26 August 2004
• Revisit: Due in March 2005

The inspection team made the following recommendations:

1. That the BOCU reviews its performance management framework from inspector level downwards and applies the framework that exists for senior managers consistently for all junior ranks across all six divisions, particularly emphasising management/leadership responsibilities for performance management for police staff as well as police officers. This should be linked to the production of quality management information that is of a consistent content and standard across the BOCU.

• The BOCU has developed a framework in line with the corporate Demand Resolution Strategy. Activity strands have been identified and responsibilities have been assigned. A governance process will be implemented to monitor and review progress.

2. That the BOCU further develops an integrated demand management strategy setting out clear accountabilities and action plans.

• A number of actions have been undertaken as a result of this recommendation. A borough template is being designed based on the MPS Demand Resolution Strategy. Each OCU on the borough will identify their local responsibilities and action plans and this information will be amalgamated into a corporate borough-wide policy.

The inspection team acknowledged eighteen areas of potential good practice including:

1. Civic Watch, the partnership accountability and service delivery mechanism.
2. The use of ABSOs to deal with public nuisance and aggressive begging.
3. Both Westminster County Council enforcement and environmental staff wear the corporate badge of the council and the Metropolitan Police on yellow fluorescent jackets.
4. The use of custody nurses at Charing Cross.
5. The practice of recouping costs for providing policing resources to external agencies or for policing private events.

Conclusion: City of Westminster BOCU has accepted the recommendations contained within the inspection report and forwarded their action plan to HMIC. Their revisit is not due to take place until March 2005.

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