The Basic Command Unit - HMIC inspection plans and audit commission recommendations

Report: 7
Date: 8 May 2001
By: Clerk

Summary

This report informs the committee about the new programme of borough based HMIC inspection visits and Audit Commission recommendations regarding the role of the BCU. The aims, structure and content of the HMIC visits are described and the MPS plans for a similar inspection model are noted. The report also outlines the recommendations made by the Audit Commission for greater delegated powers and accountability for BCUs.

A. Recommendations

1. Members note the HMIC Basic Command Unit (BCU) inspection programme and the Audit Commission recommendations regarding greater BCU responsibility.
2. Members support the MPS plans to carry out borough based inspections using the HMIC model.
3. Members consider the role the Authority should play in monitoring the inspection process and its outcomes.

B. Supporting information

HMIC inspections

1. From April 2001, the HMIC will take on an inspection programme of BCUs in addition to inspecting forces in their entirety. They will inspect all 318 BCUs in England and Wales over a five-year period, focusing on performance and leadership. They have produced a handbook to explain the inspection process and to help forces and BCU commanders to prepare for their inspections.

2. The main aim of the BCU inspections is to recognise that policing is a local service and so to assess local performance within the context of the force environment. The inspections will help to identify strengths and areas for improvement; promote a shared understanding of local success; disseminate good practice; and strengthen a performance and learning culture.

3. The HMIC has developed families of BCUs with similar socio-economic environments. Members of the MPA were consulted with the proposed attributions for these families. Inspections focused on an individual BCU will compare performance against other BCUs in its family. The HMIC has developed a Boston Box type matrix to compare BCUs in relation to each other and over time, as shown below. Use of such a matrix could be a useful way forward for the MPA to start analysing borough performance.

4. A high performing BCU in the matrix (area 1) will lead to a 'lighter touch' inspection looking at successes and best practice. A lower performing BCU (area 4) would lead to a fuller inspection to help the BCU develop an improvement plan.

5. Headquarters will also be visited to put the BCU into context of the corporate support. Interviews will be held at HQ with ACPO and with the heads of crime management, finance, personnel, operational support and inspection/ performance review.

6. The HMIC has already carried out 24 pilot BCU inspections (none within the MPS) using the European Foundation for Quality Management (EFQM) model of evaluation. The critical success factors for a BCU were found to be leadership and quality of senior staff and a focus on performance. Leadership and performance will hence be the focus of future inspections.

7. The handbook sets out the methodology to be used in the inspections which will include:

• performance against ministerial priorities and local objectives;
• application of intelligence and analysis;
• a check of crime recording integrity;
• risk assessment of performance using BVPI data;
• formal interviews with BCU managers/ analysts etc;
• pre-analysis of Force/ BCU planning documents, finance and personnel data;
• sample audit checks on crime recording, appraisals, forensic and DNA submissions;
• informal interviews with staff – "reality checks".

8. Reporting for each BCU inspection will be by means of verbal feedback to both BCU commanders and the ACPO senior team, and a formal written report. The written report will cover the two main issues of performance and leadership in the areas shown below:

Performance - how successful is the BCU in tackling its crime and disorder problems?

• crime and disorder reduction partnerships
• performance against operational targets
• accountability and performance management
• reassurance and visibility
• intelligence-led policing
• crime investigation and recording practices
• use of forensic, DNA and other scientific techniques
• crime recording practices
• managing demand

Leadership – does the BCU management team demonstrate effective leadership?

• succession planning
• the BCU management team
• self-review and learning
• HR and diversity issues
• attendance management and sickness statistics

9. The HMIC suggests BCUs should prepare for the inspection visit using the handbook and suggests this can be done through:

• providing HMIC with information on socio-demographics, operational factors, incidents of note etc
• providing a liaison officer – organising timetables/ visits, communicating to staff about the visit
• preparing for interviews and group discussions – briefing relevant staff
• preparing for practical requirements of crime recording, staff appraisal and forensic science audits
• case studies – documenting successful initiatives etc to allow HMIC to disseminate good practice

10. The handbook also provides key questions and standards, analysis and the type of interviews required for the visit and well as the questions for structured interviews

Role of police authorities

11. The HMIC will provide police authorities and chief constables with an annual report that includes BCU inspection outcomes. Discussions are currently being held between HMIC and the APA regarding the extent of the involvement of police authorities in the BCU based inspections, particularly regarding feedback. The APA is keen that authorities are aware of the inspections and the reports and recommendations produced. The results of these discussions were not available at the time of writing this report. A verbal update will be provided to PSPM.

Internal MPS inspection regime

12. The current plans of the MPS are to adopt the HMIC model in carrying out its own inspections. It is planned that the MPS inspection team will visit each BCU twice a year.

Audit Commission paper

13. The Audit Commission has also produced a management paper regarding headquarters' support for BCUs. This paper considers the current relationships between HQs and BCUs in police forces, the differing approaches to devolution and the impact on performance management. Also discussed are the way resources are allocated to BCUs, the support BCUs need from HQ functions and the increasing collaboration between forces.

14. The key conclusion from the research is that "most BCUs have insufficient delegated powers to be sure of carrying out their role efficiently and effectively." The research recognises the importance of an HQ function and central provision of support and specialist services but recommends that BCUs should have greater responsibility for the management of day-to-day services within a corporate framework. The paper provides recommendations for chief officers, police authorities, heads of support departments and BCU commanders.

15. The Audit Commission recommends that chief officers should:

• strengthen performance management arrangements to include greater consideration of value for money and professional standards within BCUs;
• allow BCU commanders as much freedom as possible to make decisions for the services they provide, within a performance management framework and clear corporate policies;
• develop skills of BCU staff and provide support for BCUs to take on this greater freedom;
• develop and support greater BCU commander leadership;
• make BCU commanders members of the force's main policy team;
• challenge whether the existing roles of HQ and BCUs is the best way of delivering operational objectives;
• review resource allocation mechanisms to better reflect relative need and strategic priorities.

Role of police authorities

16. The recommendations made for police authorities by the Audit Commission are that they should:

• use best value reviews to challenge the roles and responsibilities of BCUs and the HQ;
• help develop corporate performance management so that it becomes comprehensive while allowing local flexibility in response to need;
• regularly monitor performance of both BCUs and HQ specialist and support departments.

17. The report also recommended that heads of support departments provide services that meet the needs of the BCU and also link to policing objectives and that BCU commanders should develop a better client led approach towards support services, better communicating their needs for resources.

C. Financial implications

There are no financial implications.

D. Background papers

• Going Local – The BCU Inspection Handbook, HMIC, 2001
• Headquarters' Support for Basic Command Units, Audit Commission, 2001
  (Both papers available in the members' room)

E. Contact details

The author of this report is Johanna Gillians, Senior Analyst.

For information contact:

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

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