Going Local inspection

Report: 8
Date: 11 September 2008
By: AC Territorial Policing on behalf of the Commissioner

Summary

This report provides an update with regards to the HMIC local inspection process in 2007/08, particularly in relation to Camden, Ealing, Havering and Wandsworth BOCUs. Further, it outlines the MPS processes for identifying, managing and monitoring the activities required to implement recommendations and AFIs arising from HMIC reviews. It also provides details of the future programme of HMIC inspections.

A. Recommendation

That Members note the report

B. Supporting information

Findings of the 2007/08 local inspection programme (Camden, Ealing, Havering and Wandsworth) including processes to take forward recommendations

1. Between January 2007 and January 2008, as part of the Going Local 3 inspection process, Her Majesty’s Inspectorate of Constabulary visited Ealing, Camden, Havering and Wandsworth BOCUs and made the recommendations contained within Appendices 1-4. In addition to these recommendations, HMIC included a number of Areas for Improvement (AFIs) in each report.

2. Ealing and Camden BOCUs were revisited by HMIC in March and July 2008 respectively. A return to Havering BOCU has yet to be arranged and Wandsworth BOCU's revisit is scheduled for March 2009.

3. Following the revisits to Ealing and Camden, HMIC were satisfied with the progress made towards implementing recommendations. No further action or visit was deemed necessary.

4. MPS Link Commanders are responsible for ensuring that inspected BOCUs within their command implement the recommendations and meet or exceed any performance targets. The Territorial Policing Performance Unit (TPPU) will conduct its own reviews of the relevant BOCUs approximately four months after the HMIC visit. These reviews will ensure that the BOCUs are actively implementing recommendations and will offer assistance where implementation is proving problematic. The TPPU will then report to the relevant Link Commander for action as appropriate. Further follow-up visits will then take place at the Link Commander's discretion.

5. Furthermore, it is proposed that in the future all BOCUs who prepare self-assessments will be required to produce implementation plans to address AFIs and these will be subject to the same monitoring system as detailed in paragraph 4 above. This means that in the future all BOCUs on the HMIC long list will have to demonstrate activity towards addressing AFIs, rather than just those who have subsequently been inspected by HMIC (this process will be backdated to incorporate those BOCUs on the previous long list that resulted in the HMIC visit to Wandsworth; namely Tower Hamlets and Redbridge).

6. Any good practice identified during the self-assessment or review processes will be validated by the TPPU and disseminated by means of the TP Performance Unit Good Practice intranet site.

Progress made by the BOCUs since their inspections

7. The progress made by each of the BOCUs towards the implementation of the recommendations and areas for improvement is detailed below: -

Camden

8. Four recommendations (see Appendix 1): Management Framework, Detection Performance, Performance Management and Demand Management. Following the revisit in July 2008, the first three recommendations were considered discharged. The fourth was found to be partially discharged, with good reason, and HMIC noted that there had been significant progress made. Camden BOCU has a number of initiatives in place to address the remaining areas for improvement including innovative Front Counter measures, enhanced real-time tasking capabilities and restructured partnership links.

Ealing

9. Four recommendations (see Appendix 2): Performance Management, Demand Management, Human Resources Management, and the Provision of Community Intelligence. Following the revisit in March 2008, all four recommendations were found to have been accepted and acted upon, although there were still some areas of demand management requiring further action. To continue to drive progress in this area, the BOCU has recently requested the assistance of the TPPU and other central units in developing its demand management strategy.

Havering

10. Two recommendations (see Appendix 3): Neighbourhood Policing Problem-solving and Demand Management. Following the HMIC inspection in March 2007 the BOCU has maintained a comprehensive action plan to drive the implementation of the two main recommendations and other areas for improvement. Numerous processes have been introduced or overhauled, including improved intelligence links, additional staff where necessary, and changes to the organisational control strategy. As a result, the BOCU currently believes all of the AFIs to be discharged. This will be formally measured during the HMIC revisit for which a date is yet to be confirmed.

Wandsworth

11. Five recommendations (see Appendix 4): Communication and Governance, Detection Performance, Performance Management, Demand Management and Key National Intelligence Model Processes. There were 67 Areas for Improvement overall. The BOCU has a detailed action plan in which every objective has a named lead and timescale. Progress is reviewed at SMT meetings and over half of the management considerations are currently assessed by the BOCU as completed. Progress will shortly be independently assessed by the TPPU via the Link Commander under the process outlined in paragraph 4.

Common issues identified from the inspections

12. The MPS Inspection, Liaison and Analysis Unit (ILAU) routinely monitors the recommendations and AFIs arising from HMIC inspections. Comparison of the results of the Ealing, Camden, Havering and Wandsworth inspections has identified that the following three areas were the subject of recommendation more than once: Demand Management (recommended to all four BOCUs); Performance Management (common to Ealing, Camden and Wandsworth), and; Detection Performance (common to Ealing and Wandsworth).

13. Details of these areas and the AFIs identified by HMIC have been shared with the TP Performance Unit so that they can be monitored during the inspection of other BOCUs not subject to the GL3 process. Details have also been passed to BOCU Quality Assurance Officers (QAOs) across the MPS who have been encouraged to use the GL3 self-assessment process to improve performance locally.

14. Key performance drivers from these recommendations are addressed corporately through the themed Crime Control Strategy Meetings (CCSMs) that all BOCU commanders attend.

15. Work is also ongoing to co-ordinate all Territorial Policing inspection activity by identifying areas of risk and directing review work accordingly; the process of identifying risk will utilise common HMIC recommendations amongst other factors.

16. The identification of detection issues by HMIC on several BOCUs has already led to a programme of peer reviews, co-ordinated by TP, whereby staff on one borough audit recorded detections from another. HMIC intends to use this programme to drive its own review of MPS detections, starting in September 2008.

Future programme of local inspections

17. Both the Flanagan review and the recent Green Paper on Policing, "From the Neighbourhood to the National: Policing Our Communities Together", have provided the impetus to change the process by which BOCUs are identified by HMIC for self-assessment. The process is now more risk-based in line with national priorities. Additionally, in the future BOCUs that continually under-perform will receive more regular inspection, BOCUs that perform well will be visited less frequently.

18. The current HMIC long list for the MPS consists of two BOCUs, Westminster and Brent. Both are required to submit self-assessments by 12 September 2008, following which a decision will be made by HMIC as to which of the two BOCUs will receive a full inspection later this year.

19. BOCUs that have been deemed ‘at risk’ in their ‘Most Similar BCU’ group but have been inspected recently will not be required to undergo self-assessment again (Ealing, Greenwich and Bromley fall into this category).

20. The ILAU will continue to provide support to Westminster and Brent to complete the self-assessment process. This involves close liaison with the BOCUs' senior management teams to ensure that the strongest evidence is provided and it is aligned to the national HMIC inspection process.

21. As detailed above, the BOCU that is not subsequently inspected will still be required to demonstrate activity towards addressing areas for improvement highlighted by its self-assessment.

Financial or resource implications of the current work

22. HMIC recommendations are discussed with business group representatives, including TPPU and TP Business Support, at the quarterly Internal Inspection Co-ordination Meeting (IICM).

23. Where appropriate, TP Business Support have undertaken support visits to the inspected BOCUs in advance of any HMIC re-visit, to provide support and guidance for Finance and Resource Managers.

C. Race and equality impact

1. The MPS remains committed to making the whole of London safer. The implementation of the HMIC recommendations and the concomitant performance improvements will have had a positive effect on both the communities the BOCU serves and the members of the extended police family who work within them.

2. In cases where it proves necessary for BOCUs to change working patterns and practices to implement recommendations, consideration will have been given to consulting staff and maintaining the balance of the skills base.

3. A process of community consultation will have been undertaken before any changes were introduced that significantly impacted upon the service provided by these boroughs.

D. Financial implications

Any financial implications have formed part of the HMIC inspection reports. In respect of the MPS, there have been no direct financial or resource implications of the current work, other than efficiency savings through improved processes.

E. Background papers

None

F. Contact details

Report author(s): DAC Alf Hitchcock, MPS

For more information contact:

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

Appendix 1

HMIC Recommendations for Camden

Recommendation 1

Management Framework - That the BOCU Commander working with BOCU senior command team reviews the current junior command/leadership team in terms of skills, experience and leadership, with the objective of creating a capable, cohesive and dynamic team with a united vision. This will require creating:

• An organisational command structure that needs to clearly reflect BOCU business, that provides clarity of roles, responsibilities and accountability levels, creating a consistent command chain and operating environment for BOCU staff.
• Active and constructive engagement of the Divisional Management Team (inspectors) members in strategic decision and policy making, creating engagement and commitment.
• A range of formal and informal communication processes, enabling consultation with staff in a meaningful and consistent way, fostering engagement and promoting confidence.

Recommendation 2

• Detection Performance
• That the BOCU continues to develop its sanction detection improvement plan which should include:
• The MPS equivalent plan from Operation Emerald and particularly those aspects relating to custody suite activity.
• Bespoke minimum standards for primary and secondary investigations, together with robust and consistent compliance monitoring and follow-up.
• The rapid progression of outstanding forensic dockets relating to priority and serious crime.· Intelligent and ethical use of TICs and FPNDs, in accordance with MPS direction.
• Continuing activity to gather intelligence and realise forensic opportunity.
• Particular commitment to enhancing the detective capability and resilience (notwithstanding reliance on MPS posting panel deliberations) within the Community Safety and Sapphire Units, areas of significant organisational risk and high volume workloads.
• Review of the current proactivity capability and distribution of resources, ensuring that resources are more efficiently focused and performance managed in relation to priority sanction detection levels.

Recommendation 3

Performance Management - That the BOCU Reviews its performance management arrangements. Develops a comprehensive framework that encompasses the full range of performance requirements, as well as BCS delivery. Maximises accountability for performance against priorities at every level of the BOCU in a timely and meaningful manner. The framework should be supported by a management structure that creates clear accountability among leaders and managers at every level of the BOCU and be supported by a consistent system of monitoring and review both on an individual and team basis. This should be supported by a MMR that comprises a minimal number of relevant core indicators of success for each unit/team and variable themes each month to test other issues of concern or ‘mission critical’ matters, such as Critical Incident Management or Missing Person investigations.

Recommendation 4

Demand Management - That the BOCU creates and implements a Demand Management Strategy that is designed to maximise its proactive capacity and which includes:

• A review of core team establishment levels, overlaps and minimum strengths against their demand profile.
• A review of the necessity for the current BOCU Task Force size, business area location and focus on BCS crime reduction versus potentially more effective deployment onto priority crimes detection.

Appendix 2

HMIC Recommendations for Ealing

Recommendation 1

Performance Management - That the BOCU builds upon its emerging performance management framework by:

• Creating a simplified set of performance measures that best reflect the core activities of each unit/team, in support of the BOCU priorities.
• Constructing an overall BOCU performance pack, and separate Departmental performance packs that can be used as a primary reference point for discussion at the relevant departmental PMM/IBM meetings.
• Prescribing the frequency and framework for performance management meetings held below chief inspector and police staff equivalent.
• Continuing to nurture a performance culture across every part of the BOCU, by ensuring that performance contribution becomes an everyday part of business for police and support staff. The regime should be managed and driven via the superintendents, who will be accountable to the BOCU Commander. Every section of the BOCU should clearly understand relevant performance objectives and how teams and individuals are held to account for contribution, through a process, which applies relentless focus and is driven by rigorous follow up (testing compliance and quality). The BOCU should ensure that PDR objectives are clearly linked to BOCU performance, that individual and team performance is routinely examined, with team leaders clear about their accountability and that success is celebrated and rewarded, while failure is consistently and unequivocally addressed at every level.

Recommendation 2

Demand Management - That the BOCU creates and implements a Demand Management Strategy that is designed to maximise efficiency opportunities, and is coordinated under the remit of one member of the SMT (potentially the Borough Business Manager) - which could include:

• A review of the core team establishment levels, overlaps and minimum strengths, compared against their demand profile; acknowledge this is ongoing, yet needs to be expedited.
• The creation of a capability to investigate Beat Crimes, with a premium service being provided for priority crimes.· Analysis work on repeat calls/crimes with problem solving interventions.
• Increasing the robustness of the Crime Screening policy and ensuring that investigations that are screened will deliver best detection potential.
• Continuing to maximise use of telephone investigation.
• Focusing on training operational staff (intrusive supervision is a key element here) in primary investigations, particularly in relation to crime recording accuracy and reducing current levels of over recording.
• Consideration of developing the workforce planning meeting into an E2E process review programme, focused on efficiency and demand monitoring.

Recommendation 3

Human Resource Management - That the BOCU develops its change management process in relation to the expansion of its extended police family. The programme should continue to be owned by Superintendent Partnerships, and developed as a project within an organisational tasking framework, ensuring that induction/integration, training/development (both newcomers and existing staff), accommodation, and equipment issues can be managed and co-ordinated. Ensuring that the return for the investment is realised efficiently and that staff are absorbed into the BOCU as seamlessly as possible, while creating a corporate memory of the exercise.

Recommendation 4

Community Intelligence provision - The BOCU should develop its Safer Neighbourhood focus desk capability in order to improve the quality of its analytical products (target and problem profiles etc), to better inform problem solving opportunities, i.e. schools, demand management/repeat CAD calls, repeat victims, etc.

Appendix 3

HMIC Recommendations for Havering

Recommendation 1

Neighbourhood Policing – Coordinating Problem-Solving Activity To review the arrangements for the dynamic coordination of problem-solving initiatives in consultation with partners so as to create a capability, potentially in parallel with the TTCG (but with links to promote coordination), that commissions and reviews such initiatives against priorities overseen by the CDRP and its Management Board.

Recommendation 2

Increasing Proactive Capacity - That the BCU builds upon its Demand Management Strategy through the creation of a linked action plan with detailed activity, leads and milestones designed to maximise its proactive capacity. This will need to incorporate ongoing demand management activity and to include:· Increased use of telephone investigation without undue impact on SDs;

• A review of the decision to disband the dedicated custody team;
• Workload analysis within the CMU to explore options for rationalisation;
• A review of the overlapping two hours within the core team shift pattern;
• Expansion of the volunteer scheme with the BCU;
• Problem solving activity designed to reduce response demands.

Appendix 4

HMIC Recommendations for Wandsworth

Recommendation 1

Communication and Governance Arrangements - To improve the range of mechanisms for effective governance and communication across the BCU by activity that includes:

The clarification of roles and responsibilities of teams/units;

The use of a single and accessible repository for the terms of reference, minutes and action sheets from key BCU meetings;

Improved and proportionate staff inclusion in the process of change, making full use of the recently established Wandsworth Improvement Team (WIT);

The creation of a communication strategy (internal and external) that ensures a consistent and reliable mechanism for communicating key changes to staff;

A restatement of the borough’s policing style that promotes a cohesive workforce that appreciates how the various teams, disciplines and capabilities complement each other.

Recommendation 2

Sanction Detection Improvement - To increase the BCU sanction detection performance by building upon the many strengths identified in this inspection and specifically to include the following:

• The use of a dedicated group to coordinate and drive forward sanction detection improvement activity against the current plan until such time as performance has notably improved in this area;
• Improved knowledge and use of PNDs as a sanction detection disposal option;
• In liaison with the Borough Forensic Manager, to improve the mechanisms for the timely forensic examination of theft from motor vehicle offences;
• To improve the quality and supervision of primary and secondary investigations (against minimum standards) for those crimes investigated by non-specialist units;
• To reintroduce a dedicated Beat Crimes capability as soon as possible.

Recommendation 3

Performance Management Arrangements - To enhance the current BCU performance management framework so as to increase accountability, performance information and continuous improvement and to specifically include:

• The recreation of a BCU level capacity to provide team-based performance information and to conduct focused audits/inspections against perceived areas of risk and opportunity;
• To review and refine the existing performance measures for teams so as to create a simple, understandable set of indicators that reflect the qualitative and quantitative performance expectations of each team;
• The introduction of a generic framework for performance management at and below inspector (and police staff equivalent) level.

Recommendation 4

Resource/Demand Management - To increase proactive capacity, efficiency and productivity by improving the way in which resources and demand is managed and to include:

• Improving and communicating the way the IBO functions through the introduction of a user group that includes IBO and core team staff;
• The introduction of performance measures for the IBO and the consistent and active application of conditional deployment for SNT staff;
• The full implementation of the MPS ‘Responding Safely Together’ initiative;
• An inclusive review of variable minimum strengths on uniformed core teams to ensure that they reflect the evidenced demand, staff capacity (benchmarked with other similar MPS boroughs) and the implementation of MPS policy for single patrol;
• Increased telephone investigation activity without prejudice to opportunities to improve sanction detection performance.

Recommendation 5

The Development of key National Intelligence Model Processes - To enhance the way in which the key NIM processes on BCU function. Specifically, this needs to include:

• Clarification of the purpose, functionality and key products from the Daily Intelligence Meeting (DIM) and the Daily Management Meeting (DMM) in such a way as to make the meetings complementary;
• Improved use of targeted intelligence interviews;
• Review and clarification of the borough PPO scheme so as to improve its implementation, coordination and tactical execution within a single scheme that effectively uses intervention plans for each individual;
• To increase proactive capacity as part of the dividend to be realised from the implementation of recommendation (4) above.

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