Best value review of managing demand

Report: 5
Date: 8 December 2005
By: Commissioner

Summary

This report provides an update on the Demand Management Best Value Review (DMBVR) implementation plan, detailing the progress that has been made and the ongoing work still required to complete the recommendations, and seeks the approval of the Planning Performance and Review Committee (PPRC) to make amendments to selected recommendations.

A. Recommendation

That

1. members approve a proposed amendment to wording of the original DMBVR recommendation 16 proposed at the May PPRC;
2. agree the completion of recommendations 2, 3, 7, and 17; and
3. approve the ongoing work as detailed in the recommendation updates contained within this report.

B. Supporting information

1. The Demand Management Best Value Review examined the Metropolitan Police Service (MPS) response to demand from the customer’s perspective. Frontline MPS staff encounter the public each day and are sometimes frustrated that they are not able to deliver the standards of service that people need and that our staff would wish to provide. The DMBVR was designed to enable front line staff to deliver an improved better quality of service to our customers.

2. The seventeen recommendations are intended to transform the way the MPS delivers its services to the public by adopting a policing philosophy of ‘getting it right first time’.

3. The DMBVR was completed in May 2003. The progress of each of the seventeen recommendations has been managed through the project board with regular updates being made to the Metropolitan Police Authority (MPA) PPRC.

4. It should be noted that this review was undertaken in 2003 and the advent of new initiatives such as Police Community Support Officers, Safer Neighbourhoods, C3i and the associated new technologies add new dimensions to the original vision.

Recommendation updates
Note: Recommendations 4, 5, 9 and 12 were agreed as completed at the May PPRC review and are summarised in Appendix 1 of this report.

Recommendation 1

To improve customer satisfaction by better matching police station front counter services to demand (e.g. opening hours, self reporting, internet telephone access and triage).

5. Deputy Assistant Commissioner Rose Fitzpatrick leads on MPS activity on issues relating to service delivery at police station front counters.

Progress to date:

6. The following actions have been taken to improve the customer experience when accessing the MPS and reduce demand at police station front counters.

• All Borough Operational Command Units (BOCUs) within the MPS have at least one station that is open 24/7 and others operating on restricted hours.
• The Property Services Department (PSD) has a building programme that will ensure that at least one station per Borough will be Disability Discrimination Act (DDA) compliant by May 2006.
• The MPS has accelerated the roll out of the Telephone Investigation Bureaux (TIB) programme to the boroughs. Of the TIBs in operation, seven are now operating at full scope in respect of the type of crime reported and the required operating hours (8.00 am – 8.00 pm seven days per week). The roll out of TIBs operating at full scope will be completed by September 2007. This will significantly reduce the demands on the front offices with a resulting improvement in customer waiting times. The seven TIBs operating at full scope now report 36.5% of their crime through the TIB as opposed to a MPS average of 26%.
• Minor crimes can now be reported on the intranet and “ask the Met” on line database aims to reduce the need to visit a police station.
• Metcall has access to a frequently asked questions (FAQ) database, to improve telephone service at point of contact. This will roll out across the whole MPS as the transition to Metcall is completed
• Effective voicemail has been set up and is being monitored for seven BOCUs within the MPS to significantly improve service and accessibility to the public. This is being accelerated to the other 25 BOCUs.
• A 12 month Development Programme has recently been launched for all new Station Reception Officers (SROs) to develop their skills, experience and knowledge of their role. This Programme, which has a strong emphasis on victim and customer care, will no doubt improve customer satisfaction. Further training has been provided for all established SROs in the initial investigation of crime, victim and customer care.
• Triaging of public requirements at the front counter has been piloted at Bexley and is now operating in a number of other borough police stations. However, it is recognised that the design of some of the front offices do not easily support triage.
• The introduction of volunteers has added value to the level of customer care and have allowed some Borough Commanders to provide a limited service at front counters that had previously been closed. More recently, the volunteer role has been developed to include a triaging service to all personal callers who attend the front office or as assistants to the station reception officers. Whilst not the sole solution to front counter issues volunteers have had a significant impact on the ability of Boroughs to provide an improved customer focused service.

Ongoing Work:

7. In addition to the progress summarised above, there is a considerable amount of work being undertaken by the Property Services Department (PSD) in refurbishment, technical innovations through the Directorate of Information (DoI) and improvements in training of SROs.

• Work is in progress to identify which segments of the community use the MPS front counter services, why they choose this service as opposed to our other services and their expectations. It is intended that this will lead the way to identifying the key success factors for the MPS station offices, the key performance indicators and in turn an augmented service to address the needs of customers.
• Work will shortly begin towards implementing the recommendations of the National Quality of Service Commitment in relation to the service provided by MPS station offices. This document is seen as a statement of the minimum standards the public have a right to expect in their contact with police forces.

This recommendation is in progress

Recommendation 2

To increase public satisfaction, achieve greater accessibility and identify opportunities for joining up access to partners by assessing the potential value of one-stop shops, police shops and mobile police stations.

8. The situation with regard to community access has been transformed through the changes to the organisation resulting from the introduction of the Safer Neighbourhood Teams (SNT) and the proposal to accelerate the role of Safer Neighbourhoods to all wards within the MPS.

Progress to date:

• There is now a MPS requirement for every SNT to identify in every ward at least one Safer Neighbourhood contact point to reflect the needs and wishes of the local community and to provide the following services:
  1. Identifying communities choice of local priorities/issues
  2. Conducting surveys or Key Individual Network (KIN) surveys
  3. Identifying issues for Community Payback work etc
  4. Informing the public of the SNT priorities and responses to them
  5. Recruiting volunteers to assist SNTs (both formal and informal)
  6. Recruiting other local community representatives to work within the extended police family
  7. Encouraging the flow of criminal and community intelligence
  8. Provide information about all policing services
  9. Crime prevention advice
• Contact points at this time are often staffed by PCSOs or police officers but the longer-term aim is to engage with the Metropolitan Police Volunteers (MPV) in the staffing of these contact points with officers providing additional support and back up.
• The following options are identified examples of contact points utilised by SNTs.
  • Fixed Base Contact points – These are positioned as part of a SNT base and normally comprise of a public reception area and a side private office. These will not have front counters in them but be more of an open reception desk style
  • SN surgery type rooms – These can either be attached to a SNT base or any other meeting type room within the local community.
  • Mobile Contact Points – These would be of a pop up stand type that could be erected anywhere (e.g. within a shopping centre).
  • Vehicle Based Contact Points - These could be a mobile police station or could be a large car or people carrier size. The latter would have a simple chair and table approach in the rear and may carry additional awnings etc
• Other methods of public engagement could include:
  • Street Parades – The SN Sergeant briefing their team at a pre arranged public location that the public are invited to attend (piloted for the MPS by Bexley – who have up to 150 people attending)
  • Have-a-Say days – Open events at any venue to encourage the public to attend and inform SNTs of local issues etc.
  • Public meetings, and other forms of local engagement etc.
• Bases already delivered or planned to be delivered by the end of the financial year:

• A Community Safety Office pilot is being undertaken in Westminster in partnership with the Local Authority and local community within a main street retail property site run by a charitable organisation. This acts as a forward base for police officers with space for the use of the local community.
• Westminster has set up a visibly marked and branded port-a-cabin style public contact point (open 24 hrs) in the middle of Piccadilly Circus. This has only been in place a few weeks, but early indications are that it has been well received.

Ongoing Work:

• Continued roll out of SNTs to every ward in London with associated contact base or bases appropriate to local community needs.
• Further identification of other opportunities to deliver cost effective front counter services through multi agency premises.
• Community Safety Offices based on the Westminster model to be rolled out to Ealing, Islington and Newham.

Recommendation to the PPRC

Setting up of contact points to most effectively meet the needs of the local community is now firmly embedded in the roll out of the SNTs. The options for effective engagement with the public as a result of this process often exceeds the objectives that were set out by this recommendation and it is therefore proposed that recommendation 2 is considered to be complete.

Recommendation 3

To improve the resolution of non-emergency calls by developing a help desk function that in the short term enhances Borough Operational Command Units (BOCUs) ability to respond to enquiries, in the medium term to build on the capabilities of C3i and the FAQ database and in the long term establishing a fully functioning contact centre.

11. Significant changes have taken place in the operational environment since the 2003 report. These changes have arguably delivered a solution, which exceeds the level of public service that was conceived in the original helpdesk function detailed in this recommendation. It is therefore proposed that the enhanced provision that is being realised through the rollout of the C3i programme and other related initiatives supersedes this recommendation.

Progress to date:

• FAQ ‘ask the Met.police.uk’ database on the Internet accessible to the public.
• FAQ database at Metcall to facilitate quick and effective responses to questions from the public that will encompass all Boroughs after completion of the transition programme to Metcall.

Further Work:

• Implementation of the corporate voicemail strategy configuration (as referred to in recommendation 1) is being rolled out to all BOCUs within the MPS.
• It is proposed to make the FAQ database available on AWARE to enable all other MPS control rooms to enhance their service to the public before their transition to Metcall.
• The implementation of the “101” single non emergency number will facilitate public telephony access where enquiries can be handled at the first point of contact by the call receipt operators utilising the FAQ technology.

Recommendation to the PPRC

12. The changes in the process of implementation across the MPS through the C3i programme and other initiatives are having a very positive impact on the customer experience when trying to obtain information from the MPS. This exceeds what may reasonably be expected from a helpdesk and it is therefore argued that help desks will no longer be required.

It proposed that the implementation of the FAQ database both within call receipt and on the Internet will supersede the requirements of this recommendation and that recommendation 3 is now considered to be complete.

Recommendation 6

Defining the roles and responsibilities of response teams, setting and maintaining their target staffing levels to better match available BOCU resources to local demand.

13. It was concluded in the last report to the PPRC that it was not currently practical to produce a decision support tool to assist Borough Commanders that would be compatible with the variation in the roles and responsibilities of response teams across the MPS. During this time the MPS has also been through a period of dramatic change with the implementation of Metcall and the Integrated Borough Operations (IBOs) as part of the transition to Metcall. This will have a significant impact on the way the boroughs match their resources to local demand.

Progress to Date:

• The introduction of the IBO and enhancements to 'real time' resource management tools is enabling more effective responses to fluctuations in demand. It is now possible to easily identify all the police resources that are available on the Borough, populated in the Resource Display Window (RDW) in the Computer Aided Despatch (CAD) via MetDuties (currently most CAD rooms only have visibility of the response team officers and vehicles). This enables calls to be deflected to other operational officers, in situations where demand exceeds the capacity of the response teams and the IBO enables dynamic 'SMART' tasking of response teams to deliver added value in periods of low demand. This capability will be rolled out across the MPS in line with the transition to Metcall and will be further enhanced when the MetTime project replaces MetDuties.

Ongoing Work:

• The Patrol Policy (recommendation 11) that is currently being drafted will make recommendations with regard to the roles and responsibilities within response teams including a properly risk assessed policy for where single patrol is appropriate, increasing the availability of operational police units and providing enhanced flexibility for assigning resources.
• As a result of the process undertaken to develop the Patrol Policy, further review of the distribution of resources within the BOCU will take place with associated recommendations surrounding identified good practice.
• The move to monitoring and reducing average response times (recommendation 10) will act as a dynamic measure to ensure that boroughs are effectively resourcing their response teams.

The introduction of dynamic real time resource management through the introduction of the IBOs, the proposed move to monitoring average response times (recommendation 10), and the additional flexibility that is expected to result from the Patrol Policy (recommendation 11) will meet many of the issues contained within this recommendation. Further work is underway in respect of shift patterns and this recommendation is ongoing.

Recommendation 7

To improve the quality of service by increasing the ratio of experienced staff to probationers in response teams.

14. Significant progress has been made in this area since this recommendation was originally proposed as detailed in the ratios reflected below between the number of probationers and the number of officers confirmed in the rank of constable.

15. The following actions have built upon Recommendation 6 and were taken to improve the experience of officers joining response teams. It is recognised that there are still opportunities to enhance the profile of patrol to retain valuable experience within the response teams.

Progress to date:

• A pilot programme in workforce modernisation was developed for Bexley Borough and involve new recruits being introduced to Safer Neighbourhoods Teams (SNTs) before joining response teams, with the recruits having benefited from the resulting training, development and supervision.
• The method is being adopted at other BOCUs within the MPS, for example Lewisham.
• When the original DMBVR, was written in 2003, it was found that 48% of response team officers were probationers. At the end of June 2005, there were 3340 probationers in the MPS representing 10.7% of the total Police strength of 31275 Officers. 28% of officers on response teams were probationers.
• This has continued to improve with a further 3% reduction in the number of probationers in response teams to 25%. There are now 2855 probationers in the MPS being 9.8% of the total Police Strength of 31,237.

Ongoing Work:

• Further opportunities for enhancing the profile of patrol and retaining experienced officers within response teams are to be explored as a result of the feedback gained to support the creation of the Patrol Policy for the MPS (refer to recommendation 11).

Recommendation to the PPRC

It is proposed that the requirements of this recommendation have been met and that recommendation 7 is now considered to be complete.

Recommendation 8

To improve the quality of front line leadership by setting and implementing MPS standards of Patrol Supervision.

Progress to date:

16. The following actions are completed with the intention of improving front line leadership on deployment from Metcall and by Section Sergeants on patrol. There is an overall improvement in the intrusive and proactive supervision of staff.

• The Territorial Policing Command Team (TPCT) and the C3i Strategy Board have now agreed and signed off the work on Leadership and Supervision Within a Metcall Environment (refer to Appendix 2 of this report).
• The IBO roll out team and the training teams for Police Sergeants & Inspector promotion courses are to be incorporated it into training syllabuses.
• The Mobile Data Terminal (MDT) interface with the CAD has been enhanced so that officers can effectively update their own status.
• Front line supervisors within specially equipped supervisor vehicles and, where created, supervisors within the Integrated Borough Operations (IBO) can check MDT to dynamically monitor officers’ deployments.
• Modernising Operations in conjunction with the C3i project has performed an analysis of activity reports to indicate the use and success of this strategy.

Ongoing Work:

17. The following activities are being undertaken, beyond the scope of recommendation 8 through the proposed formation and operation of the MPS Leadership Academy, which will:

• Provide leadership and training to newly promoted first and second line managers.
• Raise the profile and importance of leadership.
• Promote excellence in the training and development of managers.
• Deliver courses to give students the knowledge, skills and behaviours that are needed to make a successful transition to a new position.
• Focus on the embedding and importance of MPS values.
• The leadership academy is currently compiling a performance needs analysis for first and second line supervisors, to be completed in the first quarter of 2006.

This recommendation is ongoing.

Recommendation 10

To deliver a reduction in the average time taken to attend incidents by introducing new call grading and deployment protocols.

18. There has been a great deal of progress since the last PPRC in the development of technologies supporting directed despatch, developing a more corporate response to call grading through Metcall and reducing the number of deployments required through the increase in reporting scope of the Telephone Investigation Bureaux. It is expected that this will have a positive impact on response times although more time is required to ascertain just how effective these developments will be.

Progress to date:

• Corporate Geographic Information System and enhanced Resource Display Window now available to effectively support directed dispatch. This enables effective despatch decisions to be undertaken based on location of resources and has also enabled visibility of resources other than response teams who could be appropriately utilised.
• A trial has been commenced at Lewisham to further develop conditional deployment protocols for BOCU resources that are not part of the core teams.
• MDT updates to CAD enabled with full evaluation trial taking place at Barnet enabling more accurate information about unit status to be available to despatch operators.
• All tranche 1 TIBs now operating at full scope with an accelerated TIB roll out underway for all other BOCUs.
• Burglary Sole Response has been introduced at the first seven (tranche 1) BOCUs that have transitioned to Metcall to maximise effectiveness of deployments to burglaries in securing forensic evidence and reducing officer deployments.
• There are some positive indications for average response times for first 6 Metcall BOCUs (the seventh BOCU, Sutton is too early in transition to be statistically significant) showing a 12.3% reduction in average response times to Immediate (I) calls between July and September 2005 (MPS average over the period 7.8% reduction). However, there is insufficient data at this time for this evidence to be conclusive.

Ongoing Work:

• A new national standard for call handling will introduce target response times for answering calls, both emergency and non-emergency, together with standards for the quality of service in dealing with the caller. The standards will establish common definitions for emergency calls and call grading. A manual of best practice on the most effective ways to manage calls from the public which will be published following Her Majesty’s Inspectorate of Constabularies’s inspection on contact management during 2005.
• Recommendation that proposals are adopted to change the focus of measurement for response times from the percentage that have been responded to within 12 minutes to an average response time. Proposed new measurements are:
  • Percentage of CAD calls graded as requiring an ‘Immediate’ response.
  • Average time of responding to calls graded as requiring an ‘Immediate’ response.
  • Median time of responding to all calls graded as requiring an ‘Immediate’ response.
  • Percentage of calls graded as requiring an ‘Immediate’ response that are responded to in more that 30 minutes.
• If adopted it is hoped that this information will support initiatives to focus on changes in call grading that will reduce the percentage of I grade calls within the MPS to be closer to the national average and improve the overall average response time by identifying calls that have taken more than 30 minutes by focussing attention on the causes of these delays.
• It is intended to further enhance compliance of timely and accurate status updates for all operational units on the BOCUs on completion of the detailed evaluation at Barnet.
• Completion of the Lewisham trial and subsequent communication of protocols for conditional deployment across the MPS to enhance the effectiveness of deployment decisions.
• All BOCUs to have TIBs operating at full scope by September 2007.
• Further developments are planned through the implementation of the Corporate Gazetteer and the Geographic Policing Area enhancement to the CAD to continue to improve the tools available to support directed despatch.

This recommendation is ongoing.

Recommendation 11

To improve the availability of resources to meet demand by introducing an MPS effective crewing policy that increases the number of single officer patrols.

19. At the last PPRC review, it was proposed that a pilot study was to be conducted encompassing five BOCUs and a Pan-London unit to be completed in October 2005.

20. However, this decision was reviewed and it felt that a different methodology encompassing a comprehensive consultation process with different stakeholders within the MPS should be conducted to produce an effective Patrol Policy for the MPS. This consultation is currently being undertaken.

Progress to date:

• Seminars have been completed for Inspectors, Sergeants, Constables, PCSOs and Traffic Wardens.
• Further consultation has also taken place with a senior police officer group chaired by Commander Bob Broadhurst
• A meeting has been planned with Police Federation representatives who will review a draft policy document on the 28 November 2005.

Ongoing Work

• Production of a MPS Patrol Policy during December 2005
• Review the opportunities for a monitoring and control methodology, consistent with the Patrol Policy document.

This recommendation in progress

Recommendation 13

Optimising the deployment of staff by implementing a systematic approach to retaining skills on operational teams.

21. It is felt that the posting panel process is the best methodology for balancing skills on the BOCU to most effectively meet all their operational demands.

Progress to date:

• Recommendations for the structure and execution of the monthly posting panel are available to all BOCUs on the MPS intranet.
• It is expected that the MPS Patrol Policy document will supply additional advice to be considered by posting panels, when reviewing the balance of skills and experience on operational teams.
• Attempts to systematically devise a mechanism for optimising skill requirements on core teams have been problematic, as the performance of a core team is dependent upon the performance of all the interconnected departments with which it has to interface and the diversity of the operational environments across the MPS.
• Considerable progress has been made in reducing the ratio of probationers in response teams (see recommendation 7).

Ongoing work:

• Publication of the MPS Patrol Policy expected in December 2005.

This recommendation is ongoing.

Recommendation 14

To increase membership of the Metropolitan Special Constabulary (MSC) to 1000 officers by offering the inducement of free rail travel and improve their availability at the time of greatest demand by the introduction of service level agreements.

22. A concerted effort has been made to increase the membership of the MSC and by 6 November 2005 this number stood at 962, just short of the recommended target of 1000. A detailed update of the current recruitment position surrounding Special Constables is included in Appendix 3 to this report.

Progress to date:

• Current establishment now at 962.
• 305 additional candidates have passed the selection process and are awaiting the outcome of vetting checks.
• A guide to local recruitment and training of special constables is posted on the Safer Neighbourhoods website and a CD Rom including trainer presentations and marketing is also available.
• Ongoing work surrounding the brigading of specials (Commander Chris Allison) is enhancing the MSC’s effectiveness in matching available resources to peaks in demand.
• In addition, there are now nearly 1000 community volunteers assisting police officers in a variety of roles and over 1000 police cadets.

Ongoing Work:

• It is the intention to increase the MSC establishment towards 4000 officers by 2008 and various initiatives are being reviewed by the Safer Neighbourhoods Unit to support this objective.

Recommendation to the PPRC

With the current number of candidates having passed selection and awaiting security vetting, the MPS is confident that the MSC 1000 officer target will rapidly be exceeded. This recommendation is ongoing.

Recommendation 15

To develop a marketing communications strategy that informs the public about the standard of service that can reasonably be provided by the MPS.

23. It was recognised in the last PPRC in May that the MPS was in a position of extraordinary change associated with the C3i programme and that it would not be appropriate to launch a major publicity programme until the implications of the changes to the service and the resulting service provision are fully understood. It was recommended that this recommendation be reviewed in November 2006.

Progress to date:

• The DOI has updated the MPS website which has improved access to the public with Citizen Focussed two way communication, enabled crime reporting, frequently asked questions database and map driven MPS service locator.

Ongoing work:

• The MPS will operate to the National Quality of Service Commitment (QoSC) standards from November 2006 although it is hoped that compliance to the standards will be achieved as early as April 2006. The standards will include recommendations in the following areas;
  • Initial contact – making it easy to contact the police
  • Follow up activity – providing a professional and high quality service
  • Keeping people informed – timely updates on progress of enquiries
  • “Your voice counts” – ensuring peoples views are heard and reflected
  • Victims of crime – compliance with specific commitments under the Victims’ Code of Practice
• Directorate of Public Affairs (DPA) to continue to lead work with C3i, Modernising Operations and Safer Neighbourhoods to communicate to the public alternative appropriate methods to contact the MPS
• The DPA have no identified budget at this time to develop a marketing and communications strategy to meet the requirements of this recommendation.

This recommendation is ongoing.

It was agreed at the May 2005 PPRC that this recommendation would be reviewed again in November 2006

Recommendation 16

MPS to run a campaign to reduce inappropriate use of 999 emergency calls

24. This recommendation was proposed to be changed at the last May PPRC, the previous wording of recommendation 16 was “The MPS collaborate with other emergency services on publicity campaigns to reduce inappropriate 999 emergency calls”. This change was recommended after it was reported that there was no immediate opportunity to collaborate with the London Ambulance Service and the London Fire and Civil Defence Authority owing to conflicting priorities and financial constraints.

Progress to date:

• The Metcall OCU have developed an intelligence led approach to identify persistent callers to the 999 system. They have identified that persistent offenders (anyone who makes a ‘misuse 999’ call 10 times or more) represent about 43% of misuse calls, which in turn represent a full days work every month (over 6000 calls). The most prolific offender is currently being targeted with the intention of bringing proceedings against that offender as soon as practicable.
• A second project concerning Mental Health Liaison is being undertaken in association with a local health authority.
• These projects are designed to establish the current scope of tasking options in order to build an effective Tasking and Coordination Group. The lessons learnt will be used to effectively target other persistent offenders.

Ongoing work:

• Further targeting of specific offenders to reduce the number of inappropriate 999 calls.
• Consider a coordinated communication plan to support the introduction of the National Single Non-Emergency Number (101) with associated guidance on the proper use of the emergency 999 number.
• Identify a budget to support this communication campaign.

This recommendation is ongoing.

Recommendation 17

To develop and implement a performance management system encompassing measures relating to demand resolution and public satisfaction.

Progress to date:

25. The Corporate Performance Group (CPG) monitors and analyses the performance of the MPS. In partnership with operational leads, the Corporate Performance Analysis Unit (CPAU) also develops suitable performance measures for the annual policing plan, the corporate strategy and other strategic plans.

• Performance management and demand resolution is now included within the Police Performance Assessment Framework (PPAF) which the MPS considers to be a useful way of analysing performance.
• The PPAF provides the opportunity for the MPS to compare itself with other large metropolitan forces. Assessments are based on a combination of performance data and professional judgement.
• PPAF key performance indicators are customer focused, employee related and cover financial and operational aspects of the activities.
• PPAF indicators are awarded according to performance by comparing a force to its peers, and also for direction (by comparing the performance achieved by a force in one year to that achieved by the same force in the previous year).
• The indicators are in line with the Home Office, Best Value Performance Indicators, the National Policing Plan and the Public Attitude Survey.

Recommendation to the PPRC

It is proposed that the requirements of this recommendation have been met and that recommendation 17 is now considered to be complete.

C. Race and equality impact

It is not believed that the proposed actions in this report impact any specific groups or sections within the community to a greater extent than the general population as a whole and therefore there are no associated equality or diversity implications.

D. Financial implications

Although completing the recommendations contained within this report has a financial implication for the MPS, most of these initiatives are intrinsically embedded in existing work streams such as C3i, Safer Neighbourhoods and the development of the TP Patrol Policy. It is therefore not possible to identify the specific financial impact the influence of this review has had in these areas.

The marketing associated with recommendations 15 and 16 will have specific cost implications and a budget has not yet been identified to scope and cost this marketing requirement.

E. Background papers

• Leadership and Supervision Standards DPMO - 0058 – 27 attached in Appendix 2 of this report.

F. Contact details

Report author: Superintendent Pat Shiel, Territorial Policing, MPS

For more information contact:

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

List of abbreviations

• BOCU – Borough Operational Command Unit
• CAD – Computer Aided Despatch
• CPAU – Corporate Performance Analysis Unit
• CPG – Corporate Performance Group
• DMBVR – Demand Management Best Value Review
• DOI – Directorate of Information
• DPA – Directorate of Public Affairs
• FAQ – Frequently Asked Questions
• IBO – Intergrated Borough Operations
• MDT – Mobile Data Terminal
• MPA – Metropolitan Police Authority
• MPS – Metropolitan Police Service
• MSC – Metropolitan Special Constabulary
• OCU – Operational Command Unit
• PCSO – Police and Community Support Officer
• PPAF – Police Performance Assessment Framework
• PPRC – Planning, Performance and Review Committee
• SRO – Station Reception Officer
• TIB – Telephone Investigation Bureau
• TP – Territorial Policing
• TPCT - Territorial Policing Command Team

Appendix 1: Recommendations agreed as completed.

Appendix 2: Leadership and supervision within a Metcall Environment

• Protective Marking: Restricted
• Suitable for Publication Scheme? Y/N: N
• Title & Version: Leadership and Supervision standards v27
• Purpose: Defines roles and responsibilities within new METCALL OCU and Integrated Borough Ops (IBO Environment)
• Relevant to: Borough BOCUs METCALL OCU & TP & Training units
• Summary: Defines roles and responsibilities within new METCALL OCU and Integrated Borough Ops (IBO Environment)
• Author and warrant/pay number: Chief Inspector Graham Phillips 186687
• Creating Branch, Code and Operational Command Unit/Directorate: Modernising Operations – TPHQ - OPIC

Diamond Programme - Territorial Policing
DPMO - 0058 - 27
Issue 27

• Prepared by: Graham Phillips, Chief Inspector
• Approved by: Peter Goulding, Chief Superintendent
• Authorised by: Bob Broadhurst, Commander

Any enquires; errors or omissions regarding this document should be addressed to

Chief Inspector Graham Phillips
Modernising Operations (TPHQ)
7 Soho Square (Third Floor)
London
W1D 3QB

020 7297 8610
graham.phillips@met.police.uk

• Title & Version: Leadership and Supervision, Version 26
• Author: Chief Inspector Graham Phillips - TPHQ
• Organisation: TPHQ - OPIC Modernising Operations
• Summary: Leadership and Supervision in the IBO and new Metcall OCU environment.

‘Right First Time’

Improving Standards Through Leadership and Effective Supervision

Vision

The vision is that the Metropolitan Police Service will deliver a world quality service to the communities of London. It will be delivered through effective leadership and supervision by staff that have a clear understanding of their responsibilities and the skills to make a difference.

The focus is on individuals who primarily have an element of command in the operational response to calls for police services. In doing so it is recognised that many other staff are engaged in responding to the needs of Londoners and that those specifically mentioned in the Leadership and Supervision have additional responsibilities outside this area.

The Leadership and Supervision standards therefore provides a framework for the Metropolitan Police Service (MPS) that defines the roles of individual leaders within the Metcall OCU, the Integrated Borough Operations Office (IBO), and wider Borough (BOCU) personnel. It ensures that the roles are complimentary and that there is an effective transition of accountability throughout the management of any operational demand.

Leaders are not just responsible for leading members of their team in isolation, but providing effective leadership that cuts across team and unit boundaries. The aim is to enhance the performance of the MPS.

The individual leaders are:

1. The BOCU SMT.
2. The BOCU Duty Officer.
3. The Borough Operations Supervisor.
4. The BOCU Patrol Sergeant.
5. The Safer Neighbourhoods Sergeant.
6. The Metcall OCU Chief Inspector.
7. The Metcall OCU Shift Manager.
8. The Metcall OCU Operational Monitor Supervisor.

Effective Leadership and Supervision will ensure:

• Effective interface between the Metcall OCU and borough resources, so that the operational environment is prepared for and can receive and support the Metcall OCU service.
• Intelligence led policing in line with the requirements of the National Intelligence Model and the MPS Policing Model.
• Augmentation of the local command and control of borough incidents and resource deployments.
• Increase the ability of borough operations to meet demands.
• Respond to the findings of the Policing Bureaucracy Taskforce – Operational Supervision Model, notably to implement the National Competency Framework profiles (activities and competencies) and build additional capability to meet the contextual framework within which operational supervisors work described as Priorities, Focus, Leadership style and key triggers for intervention.
• Meet the demand for more intrusive supervision.
• Enhance public reassurance.
• Increased public satisfaction.

Leadership and Supervision requires the identification and clarification of the roles and responsibilities of individuals. However, the overriding requirement is for everyone to ‘lead by example.’ Leaders continue to have a duty to meet the elements of effective supervision, namely:

Effective Supervision:

• Delegate
• Monitor
• Coach
• Advise
• Direct
• Command

Principles of Leadership within the National Competency Framework

Leadership and supervision principles are imbedded in the National Competency Framework (NCF) and support the Metropolitan Police Service Mission, Vision and Values by identifying roles, responsibilities and relationships between key individuals within the organisation. It does not detract from individual competencies, behaviours and leadership principles, as outlined in annex A:

Incident Ownership

Normal service when responding to incidents will be for the Metcall OCU to assign units in accordance with standard operating procedures. The incident will be commanded by Borough staff (normally Duty Officer or Patrol Sergeant) who will ensure appropriate resources are deployed. The Metcall OCU will monitor, provide advice and guidance. After any initial assignment, the role of the Metcall OCU will be to support the borough in resolving the incident.

In such incidents the Borough Operations Supervisor will review the assignment and deployment decision of the Metcall OCU. The Borough Operations Supervisor has the authority to alter assignments as appropriate and will inform the Metcall OCU of the Borough Operations Supervisors decisions. It is the responsibility of the Metcall OCU to communicate all redeployments.

A key role for all leaders will be to identify escalating incidents that may become critical or major.

In such cases the incident continues to be owned by the Borough. The Duty Officer will in accordance with policy and instruction is responsible for putting an appropriate command structure in place and notifying the Borough SMT and the Metcall OCU OM Supervisor.

The overriding principle is that all incidents are owned and commanded by Borough, although the Metcall OCU are accountable for assigning units and co-ordinating deployments in accordance with standard operating procedures.

The two exceptions to this principle are:

1. Where service policy dictates that the Metcall OCU Chief Inspector is responsible in accordance with MPS policy to for co-ordinating or commanding an incident. These incidents will include:
   • Operation Whittle (co-ordinating the MPS response).
   • Operation Kratos (co-ordinating the MPS response).
   • Vehicle pursuits (commanding the MPS response).
2. The Metcall OCU Chief Inspector will take command of a Borough incident from the Duty Officer, if, in their objective assessment the service is exposed to vulnerability due to:
   • Non-compliance with service policy.
   • Lack of resources and expertise.
   • Health and safety issues.
   • Human rights issues.
   • Issues of legality.
   • Risk assessment.

Each time the Metcall OCU Chief Inspector assumes command of a Borough owned incident their rationale and subsequent decisions will be fully documented in a decision log. When they take command of an incident from the borough Duty Officer it is the responsibility of the Metcall OCU Chief Inspector to contact the on call Borough SMT.

The Metcall OCU Chief Inspector will maintain command of and accountability for such incidents until the borough SMT accepts command of the incident.

Should the Metcall OCU Chief Inspector have concerns with the management of an incident commanded by a Borough SMT, it is the Metcall Chief Inspector’s responsibility to escalate the matter to the on call ACPO.

In order that the MPS is able to satisfactorily resolve any incident there is a responsibility upon all leaders to:

• Understand their roles and responsibilities.
• Ensure staff are on duty, correctly briefed and professional discipline is maintained.
• Seek and provide advice, information and support.

All leaders have a responsibility to positively contribute to the strategic and tactical response to an incident.

Intrusive Supervision.

The Service cannot provide Standard Operating Procedures for supervisors in every situation. However, there must be an awareness of relevant Police Notices that give instructions as to minimum standards and procedures expected by the organisation.

Experience has shown that supervising officers must provide positive and intrusive leadership and supervision in all circumstances, but especially in the following areas:

• Incidents involving police restraint
• Missing persons including Hospers
• Hate crimes including domestic violence
• Serious crime with community impact and scene management issues
• Firearms incidents
• Suspect packages
• Fatal road traffic collisions
• Siege and hostage incidents
• Suspicious deaths
• Major incidents
• Major fires
• Traveller incursions
• Mental health incidents
• Death in custody
• Police shootings
• Health and safety incidents
• Stop and search and stop and account
• Significant complaints against police
• Child abductions
• Narcotics overdose
• Police collisions involving injury to members of the public

Key Roles and Strategic Responsibilities.

Borough SMT.

To set strategic priorities, put structures in place to support the priorities and provide resources to operational officers. The Borough Commander maintains overall responsibility for BOCU performance.

The specific role of the SMT includes:

• Set local strategies & plans in line with corporate strategies.
• Ensure effective communication of corporate & local strategies, policies & procedures.
• Ensure local compliance with corporate and borough policies & procedures.
• Identify operational priorities through tasking meetings.
• Set patrolling/tasking targets.
• Allocate resources to operational priorities.
• Set minimum resource levels for safe patrol.
• Drive & monitor achievement of performance targets.
• Comply with role specific legislation and policy requirements.
• Provide command and leadership.

Duty Officer.

To lead patrol teams and be the SMT representative, managing operational demand.

The specific role of the Duty Officer includes:

• Responsibility for delivery of local & corporate strategies, policies & procedures at an operational level.
• Ensure team briefed and tasked.
• Operational responsibility for safety welfare & performance to standards.
• Monitor ongoing response policing operations.
• Monitor other operational activities that may require an unplanned response as advised by Borough Operations Supervisor.
• In accordance with service policy and local directions command scene of major or critical incidents.
• Comply with role specific legislation and policy requirements.

Borough Operations Supervisor.

To make resource decisions in response to changing demands. Responsible to review assignments and duplicate routing CADs.

The specific role of the Borough Operations Supervisor includes:

• Maintain overview of all operations & resources across BOCU on behalf of borough.
• Ensure resource availability is correctly communicated to the Metcall OCU.
• Maintain overview of the Metcall OCU demand upon the BOCU.
• Make interventions based on knowledge and/or risk assessments.
• Identify & prioritise risk issues to Patrol Supervision.
• Advise Duty Officer of any operational activities that may require their attention.
• Provide support to Duty Officer & Patrol Sergeants as appropriate.
• Co-ordination of Borough response to operational policing demands in concert with the Patrol Sergeant and Duty Officer
• Make resource decisions in respect of available units in response to changing demands.
• Ensure compliance with SOP’s & initiate early intervention as appropriate.
• Ensure provision of supplementary fast time information to BIU briefings.
• Ensure provision of intelligence support for staff at incidents.
• Monitor compliance with SMT strategies, structure & systems.

Patrol Sergeant.

To ensure the patrol team are properly briefed and tasked prior to patrol duties and de-briefed at the conclusion. Ensure compliance with standard operating procedures through intrusive supervision Co-ordinating and controlling Borough response to operational policing demands. Supervising and managing the efficient deployment of Police units and supporting Metcall in deployment decisions.

The specific role of the Patrol Sergeant includes:

• Conduct team briefings, tasking and debriefings.
• Ensure officers in possession of appropriate resources & equipment.
• Provide resource availability updates to IBO and Management of Borough response to operational policing demands in concert with the Borough Operations Supervisor and Duty Officer
• Command incidents that have potential to become critical.
• Provide operational support & guidance for officers.
• Provide intrusive supervision & early intervention to ensure safety, welfare & performance to standards.
• Provide situation reports to Duty Officer and IBO as required.
• Deputise for the Duty Officer as directed.
• Monitor stop and search and stop and account.

The Safer Neighbourhood Sergeant.

To engage all sections of the community, local authorities and other agencies, in partnership working. To reduce anti-social behaviour, crime and the fear of crime. To ensure a visible, familiar and accessible uniform presence within their wards and effectively responds to community issues.

It should be noted that the Safer Neighbourhood teams are ring fenced and dedicated to policing their specific geographical areas, most of which align to local authority ward boundaries.

Personnel employed on Safer Neighbourhood duties will not be routinely available for assignment by the Metcall OCU and should only be deployed out of their patrol area in exceptional circumstances and when authorised by the Borough Duty Officer.

The specific role of the Safer Neighbourhoods Sergeant includes:

• Ensure team are briefed & tasked in accordance with community priorities.
• Ensure officers in possession of appropriate resources & equipment.
• Provide resource availability updates to the IBO.
• Manage partnerships with communities, local authorities and other agencies.
• Provide support & guidance for officers.
• Provide intrusive supervision & early intervention to ensure safety, welfare & performance to standards.
• Monitoring of stop and search and stop and account.

The Metcall OCU Chief Inspector.

Responsible for maintaining an overview of all operations and Pan-London resources across the MPS and liaison with ACPO officers as necessary. They are responsible for the deployment of the MPS Commissioners Reserve (TSG) and other strategic resources.

The specific role of the Metcall OCU Chief Inspector includes:

• Ensure overall operational effectiveness for The Metcall OCU during shift.
• Where authority required deploy Pan-London resources.
• Take command of incidents identified, or in accordance with MPS policy.
• Proactively monitor, coach and advise incident commanders.
• Maintain overview of MPS operational activity.
• Assume command of incidents from the Duty Officer if in their objective assessment the service is exposed to vulnerability.
• Liase with on call ACPO officer as specified.
• Liase with Metcall OCU Shift Managers and authorise unplanned opening of MPS special facilities.

The Metcall OCU Shift Manager.

Responsible for the overall effectiveness and management of Operational Monitoring (OM) & General Support (GS) working in partnership with the Metcall OCU Chief Inspector to provide a complete policing environment.

The specific role of the Metcall OCU Shift Managers includes:

• Co-ordinate the activities of the communications supervisors.
• Identify and co-ordinate staff development and training needs.
• Manage the performance of supervisors.
• Identify and remedy deficiencies in corporate standards within The Metcall OCU.
• Assess and cater for the OM/GS workloads.
• Address issues relating to deficiencies in technology, utilities environment and personal equipment within the Metcall OCU.
• Monitor the operational deployment of Pan-London resources.
• Ensure compliance with policies and procedures.
• Liaison between the Metcall OCU Chief Inspector and communications supervisors regarding emerging critical and major incidents.
• Facilitate use of Special Operations Room and Central Casualty Bureaux as appropriate in consultation with the Metcall OCU Chief Inspector.

Operational Monitor Supervisors.

The Operational Monitor Supervisors are responsible for the management of Borough Pods and Borough Support Pools, ensuring that Metcall deployments are made within deployment SOP's and providing support and direction for their team.

The specific role of the Operational Monitor Supervisor includes:

• Monitoring call assessments, grading and assignment decisions.
• Supporting Communication Officers in meeting their responsibilities.
• Briefing the Metcall OCU Shift Managers on appropriate incidents or emerging issues.

Annex A: Principles of Leadership within the National Competency Framework

Personal Responsibility

• Readily accepts responsibility for self and others. Takes responsibility for managing situations and problems. Leads by example, showing a commitment and a determination to succeed. Continues to learn and develop
• Takes personal responsibility for making things happen and achieving results. Displays motivation, commitment, perseverance and conscientiousness. Acts with a high degree of integrity.
• Gain, use and demonstrate to everyone the skills, knowledge and experience you need to do your job well.
• Show that you understand the contribution others in the team can make and use their skills, abilities and all the other resources available to you effectively.
• When you need to take control of a situation, give firm, positive and clear direction about what needs to be done. Takes responsibility when things go wrong or when others cannot handle situations.
• Demonstrate to others that you are competent and confident in your own ability in order to inspire confidence. Asks for and acts on feedback and criticism.
• Demonstrate energy, drive and determination especially when things get difficult.
• Make sure your efforts are focused on what the MPS needs you to do by understanding what we are trying to achieve and what your contribution is to making it happen.
• Be honest, open and genuine, standing up for what is right even if it puts you under pressure; it is up to you to set standards of behaviour and conduct.
• Tackle difficult issues by challenging or questioning others decisions or actions, when it is right to do so, asserting authority when necessary.
• Take whatever action is necessary, when you believe someone is behaving in an unacceptable way.

Problem Solving

• Takes a systematic approach to gathering information making sure that decisions are made using as much reliable information as possible.
• Take into account as much information as possible, think about the consequences of what you are about to do and try to anticipate any problems ahead. Consults others for ideas and suggestions, and welcomes suggestions from everyone involved.
• Consult others when you should do - be decisive, always record important decisions and be willing to explain your decisions to anyone. Explains options and discusses solutions with others.

Effective Communication

• Make yourself available to those who need to speak to you and communicate face to face whenever you can.
• Keep everyone you are working with both colleagues and members of the public up to date, explaining the reasons for what is happening so they understand what is going on.
• Uses language and a style of communication that is appropriate to the situation and people being addressed.

Respect for race and diversity ~ Fairness

• Treat others fairly, sensitively with respect and dignity. Be objective and consistent in the decisions you make.
• Be aware of the needs of individuals and challenge people who use inappropriate stereotypes.
• Accept responsibility for your own decisions and your own actions - if you get it wrong accept you made a mistake - if it goes well, give others the praise if they are the ones who deserve it.
• Respects the needs of everyone involved when sorting out disagreements.
• Shows understanding and sensitivity to people’s problems, vulnerabilities and needs.
• Deals with diversity issues and gives positive practical support to staff who may feel vulnerable.
• Makes people feel valued by listening to and supporting their needs and interests.
• Uses language in an appropriate way and is sensitive to the way it may affect people.
• Acknowledges and respects a broad range of social and cultural customs and beliefs.
• Understands what offends others and adapts own actions accordingly.
• Respects confidentiality, wherever appropriate.
• Challenges attitudes and behaviour which are abusive, aggressive and discriminatory

Openness to change

• Look for better ways of doing things, learn from the past, monitor how things are going and be prepared to change if you need to.
• Be flexible in your approach to situations to best suit the circumstances.
• Recognises and responds to the need for change, and uses it to improve organisational performance.
• Understands the need for change and is willing to adapt to it. Is flexible and prepared to try out new ideas.

Team working

• Show you are a member of the team by taking others’ views into account, consider their skills and encourage them to develop.
• Take a genuine interest in those in your team, offering support and guidance when they are needed.
• Identifies common goals and interests, and uses these to unite teams.
• Gets commitment from others by consulting and involving them.
• Works inside and outside the team to share ideas and information.
• Builds good working relationships and teams.
• Welcomes and supports new team members.
• Shows appreciation for the efforts of team members.
• Explains options and discusses solutions with others.
• Supports the activities of staff, especially when tasks are difficult.
• Establishes effective contact and involvement with outside agencies.

Appendix 3: Detailed update addressing recommendation 14

To increase membership of the Metropolitan Special Constabulary (MSC) to 1000 officers by offering the inducement of free rail travel and improve their availability at the time of greatest demand by the introduction of service level agreements.

1. The value of having an effective volunteer resource was clearly demonstrated in the aftermath of the July terrorist attacks. Special Constables all over London left their places of work and reported for duty within hours of the atrocities of 7 July. In Barnet and Bexley boroughs, 12 and 16 officers respectively worked extended tours of duty on 7th July and a similar number reported for duty each day for the next week.
2. Several thousand hours duty were performed over the following weeks, supplementing regular officers and increasing links with local communities. In Wandsworth, the local MSC supervisor established a helpdesk in the local mosque and set up a ‘rumour’ hotline into the police to ensure false information was challenged. There are numerous examples of individuals working long hours and providing invaluable support to borough security and reassurance patrols.
3. The MSC establishment on 6th November 2005 stands at 962 officers. Although this may be seen as failure to meet the target to achieve 1000 officers by September, it should be borne in mind that the baseline figures were unreliable. The stated 726 officers in April included numerous examples of double counting, together with details of officers who have long since left the Service.
4. During the last calendar year (2004), 158 special constables were attested into the Service. So far this year 235 officers have been sworn in. There are currently 305 candidates who have passed the selection process and are awaiting the outcome of vetting checks. Recruits cannot be trained on police premises before vetting is complete but training on non-police premises is now taking place.
5. Increasing training capacity and more boroughs following the Bexley Borough lead on local recruitment and training seek to provide greater opportunities for candidates to join the Service. Havering has recruited and trained 21 special constables since September 2004. Westminster and Greenwich have recently carried out recruitment drives and are about to commence local training.
6. A ‘Guide to local recruitment and training of special constables’, based on the experiences of Bexley and Havering, is posted on the Safer Neighbourhoods website and has been sent to all boroughs. A CD Rom including presentations from trainers; a complete copy of the training course, tutor notes and resources guide is now available; together with advice around recruiting publicity and marketing.
7. Establishing Volunteer Co-ordinators on boroughs will assist in increasing all volunteers and provide additional support at a local level. Twenty full-time Volunteers Co-ordinators have been appointed and all boroughs should have some one in post by the end of the policing year.
8. Closer working between MSC, Volunteer Police Cadets and Met Volunteers Programme personnel will provide additional benefits. There are now nearly 1000 community volunteers assisting police officers in a variety of roles. There are also over 1000 police cadets, with cadet corps established in 27 boroughs.
9. To enable the Service to meet a target MSC strength of 4000 officers by 2008 it is necessary to agree local borough recruitment targets. It is clear from the Bexley experience that it is possible to recruit, train and retain large numbers of local people who wish to support policing in London.
10. There are some practical difficulties on many boroughs in providing basic equipment for large numbers of special constables. Accommodation difficulties and lack of personal radios, remain barriers to effective deployment of special constables. Service Level Agreements, setting out basic expectations of local management and special constables, now exists on most boroughs.
11. A target of 1500 special constables in the MPS suggests an average borough strength of nearly 50 officers. Achieving an average of over 100 per borough by 2008 is possible based on the Bexley experience but there is also the need to be more creative in MSC roles.
12. A review of the MSC role and rank structure is currently taking place to report in January. The Safer Neighbourhoods Unit review is currently re-visiting recommendations from the MPA Audit, assisting boroughs to develop their local MSC and meet their corporate obligations.
13. The Central MSC Tasking Unit formed in May 2005 and has completed regular deployments, focusing initially in Westminster then moving out to other boroughs. In recent outings the unit deployed 28 special constables in Hounslow, providing high visibility patrols and assisting regular officers to close down an illegal ‘rave’. On the last posting to Westminster, 24 officers patrolled Leicester Square, eliminating crime in the area, seizing alcohol from over 100 street drinkers and making arrests for drugs, drunkenness and disorderly behaviour.
14. The Tasking Unit is based at Tintagel House but relies on short attachments of special constables to provide support to boroughs. Recruitment of dedicated personnel to the team has been slow but now showing signs of increasing. It is proposed to run a separate operation on the four weekends up to Christmas, establishing MSC Tasking Units in the four cluster areas to combat alcohol related violence and disorder. The operation is to be run under Operation Optic and will involve all boroughs.
15. ShopWatch and other employer supported special constable schemes continue to develop. There are now nearly 50 ShopWatch specials and a formal evaluation of the Oxford Street scheme is currently taking place. Additional Home Office funding has been agreed to develop new initiatives. Campus Watch is currently being piloted at two central London universities. Hospital Watch is to be piloted at up to five hospitals over the next three months. A new BoroughWatch, recruiting staff from the local authority, is being piloted in Harrow Borough and has achieved 50 potential recruits from the initial publicity campaign.
16. The development of employer-supported schemes includes Police Staff special constables, now over 100 trained and operational. These members of staff are now established in formal contingency plans drawn up following the events in July. Further recruitment is currently taking place towards an initial target strength of 250 police staff specials.
17. The aftermath of the July atrocities highlighted the tangible benefits of an effective volunteer policing resource. Additional support through the Safer Neighbourhoods Unit will assist boroughs to develop their special constables and increase establishment towards 4000.

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