Learning labs

Report: 6
Date: 16 June 2003
By: Commissioner

Summary

The ‘Learning Labs’ were part of the process following the Modernising Government White Paper commitment to raising the quality and responsiveness of public services. Participants in the ‘Police Complaints Learning Laboratory’ are the Police Complaints Authority (PCA), the Crown Prosecution Service (CPS) and the MPS’ Directorate of Professional Standards (DPS) along with support and assistance from the Cabinet Office, the Home Office and the Metropolitan Police Authority.

There were a number of aims of the Learning Lab including:

• a review of the processes arising from public complaints against police,
• to identify and make recommendations on how to provide a better service to complainants and police officers subject to complaints,
• to consult with stakeholders in relation to those recommendations, and to implement those recommendations following consultation.

This report outlines the achievements of the Learning Labs, what recommendations have been implemented and the future of the Learning Labs.

A. Recommendation

That members consider dissolving the MPS’ involvement in Learning Labs.

B. Supporting information

What the review identified

1. The review identified a number of areas of inconsistency and misunderstanding between the different agencies in their approach to dealing with complaint investigations. These undoubtedly led to unnecessary delay in the completion of investigations. It was identified that with closer liaison and communication between the agencies a multi-agency approach would ensure a more efficient and timely service.

What recommendations have been made and how have these been implemented.

2. The different agencies brought a number of ideas to the table, which resulted in the following areas being addressed.

• Process mapping of the core work of the MPS

The core work of the MPS, PCA and CPS was process mapped giving an understanding of the processes and procedures within each organisation, how they affect one another and might be improved to effect a more timely and efficient service. This was assisted by the best value review of the work of DPS and allowed for the evaluation of the proportionate investigation project. (see below).

• Common forms of referral for both CPS and MPA

MG Forms, which are used to record all the details and evidence of a case against and individual who is arrested, were adapted for cases where submissions had previously been made to the CPS and PCA with the same content but in different formats.

• No comment interviews / statements as opposed to full interviews

Normal practice had been for verbatim transcripts of ‘no comment’ interviews, and interviews with prepared statements, to be written up. This practice was discontinued and a summary only provided with details of all allegations shown which demonstrated that the officer had had the opportunity to respond to all allegations made.

• Proportionate investigations/statements, as opposed to full interviews

Initially, this approach was aimed at large scale public order incidents where there were a large number of officers involved. Considerable work has been carried out on expanding this to suitable investigations. The project formed one of the workshops at the National Professional Standards Conference in 2002. A pilot study has been running at Kingston and Norbury Borough Support Units over the last six months on selected types of allegations. This work, in partnership with the PCA, has been completed and found to be a success. A comparison of a small sample of old and newer cases has been made. This compares investigations of a similar complexity and risk, previously submitted with tape-recorded interviews, against newer proportionate investigation cases (where statements under caution have been used). Although the sample is relatively small, the indications are that on average a saving of 155 days has been achieved. This is a 46% reduction in the average time it has taken to proportionately investigate the newer cases. It has reduced the amount of time spent investigating complaints at the lower end of the scale by not having to take officers away from their front-line duties to be interviewed. A statement under caution covering the relevant areas has replaced the necessity to interview officers. The PCA have verbally given this process the seal of approval and will be endorsing it at their next board meeting in June. All Borough Support Units within the MPS will adopt the process.

• Revised file format.

The meetings have produced a mutually agreed content of files for both the PCA and the CPS. This has been implemented within the PCA Supervision manual.

• Definition of record of taped Interview (ROTIs)

The content of ROTIs has been clarified and agreed for wider application and is now included within the revised file format. This has also been implemented within the PCA supervision manual.

• ‘May Day’ protests

Agreement was made in advance between the PCA and the MPS on how the anticipated volume of complaints from this now annual event should be dealt with. This strategy has continued to be implemented at recent events.

3. The Learning Labs also enabled a number of other areas of misunderstanding to be clarified to ensure a consistent approach between all agencies. This included

• Referral of cases to the CPS

Extensive discussion and legal advice through Counsel was obtained to clarify and agree the position on the referral of cases under s73-75 Police Act 1996. This has resulted in an agreed interpretation of a once cloudy issue.

• Complaints concerning use of handcuffs

The position of the PCA was clarified and a number of the lessons learnt fed back into officer safety training.

• Complexity matrix.

Agreement was reached to ensure common usage of a complexity matrix between the MPS and the PCA ensuring a consistent approach for calculating target times for cases.

Who the customers are and what their views have been

4. The main aims of the Learning Labs were to bring the practitioners together to address similar concerns and issues around investigating complaints. Therefore the primary customers and beneficiaries in this process have been the actual practitioners involved. Many of the issues identified have assisted with the process of investigating complaints by reducing bureaucracy and improving efficiency by adopting good practice. All agencies involved have expressed their support for the process.

5. Throughout the life of the Learning Labs the staff associations have been consulted about the changes that may affect their officers. In those areas where there had been initial reluctance, the use of statement under caution as opposed to interview being a prime example, communication and consultation has overcome any resistance.

6. The officers who actually investigate complaints were involved in the consultation process. They brought with them many issues of concern, as well as innovative ideas, to the table allowing for good practice to be identified. Officers who already face heavy workloads have welcomed any reduction in bureaucracy and better working practices. These sentiments have been reflected in team meetings and communicated back to managers.

What recommendations have been implemented

7. This is covered above under heading ‘What recommendations have been made and how have these been implemented’

What is the future for the Learning Lab

8. Since its inception in October 2000, a number of meetings have been held with representatives from the key stakeholders, with the last meeting taking place in September 2002. Learning Labs have lost there early impetus, particularly in light of the closure of the Home Office Learning Lab department. In addition, the advent of the Independent Police Complaints Committee (IPCC) and the PCA having other priorities, has resulted in a failure to continue the process. It is a view of those agencies involved that the Police Complaint Learning Lab has reached the end of its useful life.

9. The work currently ongoing with the IPCC and the MPS will enable the identification of good practice ensuring efficient and timely investigations.

C. Equality and diversity implications

1. Many of the issues identified and recommendations implemented addressed processes within the work practices of the agencies involved and had no impact upon equality or diversity issues.
2. The work around proportionate investigations and the use of statements under caution as opposed to the interviewing of officers, addressed diversity issues by ensuring strict guidelines for suitable cases existed. Any investigation, which contained any racist allegation, was not deemed suitable for this process as the issue of the officer’s attitudes could only be explored in the context of a formal taped interview. The guidelines for the adoption of a case to be considered suitable for a ‘Proportionate Investigation’ also ensured that the officer complained of was not discriminated against, as it was the allegation and substance of the complaint as opposed to the subject of the complaint that deemed its suitability.

D. Financial implications

1. Those recommendations that have been adopted have improved efficiency and timeliness in the investigative process of complaints against police. It is not possible to cost the savings involved in the work that has come from the Learning Labs.

2. If the recommendation is adopted that the Learning Lab process is no longer viable there will be no financial implications.

E. Background papers

None.

F. Contact details

Report author: Detective Superintendent Dann, MPS.

For more information contact:

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

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