| Annual Report of Her Majesty's Chief Inspector of Constabulary 1998/99 | ||||
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Chapter 1 THE WORK OF HM INSPECTORATE 1.1 The Inspectorate has a statutory duty under the provisions of the Police Act 1996 to report to the Home Secretary on the efficiency and effectiveness of the 43 police forces in England and Wales. In addition, the Inspectorate contributes to the future of policing by:
1.2 The Inspectorate is independent of the Police Service and stands outside the tripartite structure. Her Majesty's Inspectors of Constabulary (HMIs) have no statutory powers to enforce action in the response to the recommendations arising from inspection. An acceptance by the Service of the wide professional experience of individual HMIs and an acknowledgement of the collective expertise of the Inspectorate as a whole, coupled with constructive dialogue, are for the most part sufficient, to prompt positive action on recommendations. 1.3 HM Chief Inspector of Constabulary (HMCIC) is complemented by five HMIs (based in four regional offices), two Assistant Inspectors of Constabulary from non-police backgrounds and two headquarters based Assistant Inspectors of deputy chief constable status. HMIs are former chief constables whilst the police Assistant Inspectors are seconded from police forces. HMCIC is the principal professional adviser to the Home Secretary on policing matters. The core role of HMIs is the inspection of forces in their region. Additionally, each advises nationally on topics within an individual portfolio of specialist subjects as well as leading thematic inspections on matters of key interest to the Police Service as a whole. The regional structure of the Inspectorate and its senior personnel are shown in Appendix A. 1.4 The costs of the Inspectorate are funded directly by central Government and provided through the Police Policy Directorate of the Home Office. Each year HMIC receives income from two separate allocations. Our day to day running costs are subject to a specific funding allocation whilst income and capital spending are accounted for separately. Expenditure is controlled by Government accounting rules. 1.5 In 1998/99 HMIC received a running cost allocation of £5.37m. FIGURE 1 HMIC Running Costs Expenditure 1998/99 Figure 1 shows how this allocation was used. The largest element of our expenditure is the reimbursement to police forces of the costs of seconded police officers (37%), followed by the costs for HM Inspectors, the two non-police Assistant Inspectors and support staff (35%). The separate funding allocation to cover capital expenditure and income was small. However, towards the end of the year HMIC entered into a contract for the supply of a new computer database during 1999/2000 at a cost of £350K. This improved system (Matrix 3) will replace a predecessor at the end of its viable life. The provision of an up to date facility is necessary to enhance data analysis in support of inspections and to supply information to policy makers within the Home Office. Although the original specification did not include the provision of data at Basic Command Unit (BCU) level, the system will become the source of that information. 1.6 Police authorities and police forces in England and Wales are not charged for any inspections: the reports of inspections of individual forces and thematic inspection reports are also issued without charge. Access to HMIC reports has been made more convenient by their reproduction on the Home Office Internet Website. It is a rewarding measure of the interest in policing in general and the work of the Inspectorate in particular, that the website was visited an average 90 times each day of the year. 1.7 The cost of undertaking all inspections is funded from the annual running cost allocation of funds. Unlike some of our partner organisations we are not in a position to supplement our resources by generating external income. Benchmarking exercises with other Inspectorates have demonstrated that HMIC provides a cost-effective service. The cost of the Inspectorate represents 0.08% of the total funding made available to the Police Service in England and Wales in 1998/9. 1.8 Last year I reported an expectation of a real terms budget reduction of 3% per year for three years. As a dynamic year evolved, it became evident that new priority demands for 1999/2000 could not be met without additional resources. HMIC will receive a modest real terms increase to help to meet those demands. Specifically the additional funding will cover the cost of a seconded chief inspector for each region to assist HMIs discharge their duty in relation to efficiency plans and Best Value (see paras 1.26 to 1.29). 1.9 The financial constraints of the reporting year imposed a 2.7% real terms reduction in funding. It is with pleasure that I report that the inspection, advisory and other commitments of HMIC have been met. The future will be as testing for HMIC as it is for the Police Service. In accordance with government accounting rules HMIC will have to find, through administrative staff reduction, 2% cash savings. I am confident that HMIC is well placed to respond to its own challenge and to support the Service through a particularly demanding time. 1.10 The year under review was the first full year in which to assess significant changes to the process of inspection. The cycle of annual inspection was varied to one of 18 months and the distinction between a primary and a performance review inspection was removed. The twin changes were inter-related and the revised approach allowed HMIs to concentrate the inspection effort on the real or perceived vulnerabilities of individual forces. The experience gained from the revised approach is one factor in a further refinement of the inspection process. 1.11 One of the rationales underpinning an extended period between inspections was to create time and space to continue our programme of thematic inspections. Each such inspection, although focussing the inspection effort on a limited number of police forces, leads to a comprehensive report with important implications and action points for the Service as a whole. Forces that react the most positively to thematic recommendations appear to be quickly rewarded with performance and contingent benefits. In order to maximise the benefits across all forces HMIC has introduced a more systematic approach to monitoring the response and reaction of forces to thematic recommendations. The thematic approach is of particular benefit to the Association of Chief Police Officers (ACPO) where the relevant committee can address the strategic issues raised and formulate policy and guidance for the Service. 1.12 HMIC enjoys the benefit of two key assets that together provide a unique source of professional and independent advice. Our staff collectively are an important source of knowledge and experience on contemporary policing issues, whilst the nature of inspection ensures a continuing awareness of developing problems both on the ground and at the strategic level. Such assets, underpinned by the acknowledged independence and impartiality of HMIs, provide a ready and reliable source of advice to individual chief constables. Contact between HMIs and chief constables is not limited therefore to the temporal context of the inspection process. Whilst not amenable to the discipline of performance indicators, this supportive consultative role is a significant benefit to the Police Service as a whole and to chief constables, mitigating to some extent the isolation of ultimate command. 1.13 I particularly value the many opportunities for HMIC to provide professional advice to the Home Secretary and his Ministers as well as senior Home Office officials. In addition to regular briefing meetings, the staff of HMIC are involved daily in policy and steering groups or giving oral or written comment as requested by officials. 1.14 The advisory function extends to each limb of the tripartite structure. The three elements of that structure share concerns that the Police Service secures people of the right calibre for appointment to ACPO rank to lead individual forces and the Service as a whole forward to meet the challenges of a dynamic future. Appointments to ACPO rank take place throughout the year and it is police authorities who make those appointments from a shortlist approved by the Home Secretary. Indeed last year there were 34 such appointments including nine to the rank of chief constable. HMIs provide advice to police authorities at different stages of the selection process including a vigorously objective assessment of each candidate. HM Inspectors accord this duty the highest priority. The substantial demand on their time is balanced by the undoubted importance of the task, as in essence such appointments are the future of the Service. 1.15 Beyond this narrow but important advisory focus, the inspection process itself provides both the informed panoramic view of a force and the nuance of detail that should assist each police authority to carry out its statutory responsibility viz securing the maintenance of an efficient and effective police force for its area. The similarity with the core role of the Inspectorate to report on the efficiency and effectiveness of forces is evident. This common interest ensures that HMIs maintain a close liaison with authorities during an inspection including inviting authority members to join in the inspection process. Particular concerns of an authority are explored during inspection and detailed feedback on the whole inspection is given and questions answered before publication of the Inspection report. Again, professional advice is given when sought outside of the inspection process. 1.16 The Association of Police Authorities (APA) is already proving to be an effective umbrella organisation in promoting the role and influence its member authorities. The strategic grasp of the APA leadership and its secretariat, the growing expertise and confidence of national sub-committees on specific aspects of policing, and the opportunity to learn from both the good practice and problems of others, are combining to strengthen the position of police authorities within the tripartite balance. This achievement which I am sure will be consolidated and extended is a positive development in the best interests of locally accountable policing. The Inspectorate will continue to foster its positive relationship with both the APA and individual authorities. 1.17 It is currently the responsibility of HMIC to inspect police forces and not police authorities. Whilst this boundary may seem quite clear, in practice the margins become opaque. If a force is criticised, for example, for not taking steps to secure optimum value for money, there is an implicit observation for the police authority who have a complementary role to secure 'efficiency'. HMIC experience has been that police authorities have welcomed such observations. However, beginning in the next financial year (2000/2001) HMIC will have statutory powers to inspect police authorities in respect of Best Value under the Local Government Act 1999. I am aware that the legislative intention was an initial cause for concern amongst some police authority members but I am firmly convinced that the move from implicit observation to a statutory duty to challenge where appropriate is a subtle distinction without a practical difference. HMIC will work with the APA to produce a memorandum of understanding that sets out our respective duties and responsibilities. Our shared concern for high quality service delivery and the tradition of HMIC support for police authorities will prove invaluable in taking Best Value forward. 1.18 In my last annual report I reported the doubling of the number of British police officers serving with the United Nations in Bosnia. The number has increased through 1998/99 although not quite so dramatically. There are now 79 such officers serving the International Police Task Force. Officers work in demanding and at times unpredictable conditions which require unlimited commitment and policing skills of the highest order. It ought to be a matter of national pride that more than 10% of the British contingent have been given positions of considerable responsibility. One sergeant, for example, appointed a regional commander, has command of 250 personnel from 43 different countries. Mr Paul Boateng, when Home Office Minister, visited Bosnia recently and saw at first hand the good work that our officers are doing and the difficulties they face. 1.19 Whilst the Bosnian deployment of officers is both topical and high profile, those officers are just part of the larger number seconded as advisors to different parts of the world at the request of national governments or chiefs of police. In addition, HMIC, the forces of England and Wales and National Police Training are host to many government officials and senior police officers from around the world seeking information as to how best improve their own police forces. A full litany of such visits would be endless but representatives have visited HMIC in the most recent months from countries as diverse in the development of policing as Belgium, South Africa, Turkey, Finland, and the United Arab Emirates. The core business of HMIC is to support the development of policing in England and Wales through constructive advice and support but at times challenging and vigorous criticism. Criticism of forces and their action or inaction does not begin and end with HMIC. There is some residual satisfaction and reassurance in the fact that other countries envy what they see and seek to learn from our collective policing experience. 1.20 The Police Service has championed the idea of working in partnership to combat crime for almost twenty years. The Service pursued the notion that crime is so multi-faceted in both its causes and effects that its containment and defeat can only be achieved through collaborate working. That philosophy is now enshrined in statute through the Crime and Disorder Act. Equally inspection cannot and should not stand aside from the idea of maximising the expertise, experience and resources of a range of inspectorate bodies. 1.21 During the year, in addition to regular exchanges of ideas, there have been excellent examples of partnership working in joint inspections. In the autumn the joint resources of the Magistrates Court Service Inspectorate, the Crown Prosecution Service Inspectorate and HMIC conducted a speedy but incisive study of the blockages in the youth justice system (How Long Youth Cases Take). The report's recommendations targeted all agencies. The HMIC thematic inspection of Child Protection issues linked where appropriate with the Prison Service Inspectorate who were conducting their own thematic on 'lifers' within the prison system. 1.22 Fruitful liaison continued with the Audit Commission who have their own statutory responsibilities in respect of policing. There is a mutual acceptance that the roles and skills of HMIC and the Audit Commission are complementary. The shared concern, that the benefits of inspection must not be outweighed by the burden the inspection or auditing process unavoidably imposes, is a cornerstone of our joint thinking and approach. I was particularly pleased that the Audit Commission invited an HMIC representative as a member of their advisory group that was the consultative touchstone as to how to approach the inspection of Best Value in local authority services as well as police forces. The pleasure was not simply that the voice of HMIC should be heard but also the invitation was a tangible expression of mutual respect between our two bodies. The newly formed Inspectorate Forum is an exiting innovation. It will provide the formal opportunity for Heads of Inspectorates involved in improving local services under Best Value to:
1.23 HMIC is essentially a change agent as it encourages police forces towards continuous improvement. A task driven organisation such as HMIC needs to create the time to ensure that it is both contemporary in its knowledge and futuristic in its vision. The physician must be both fit and in sympathy with a preventative regime so that the call to 'heal thyself' is rare. There have been substantial advances in staff training during the year. New members of staff now have the benefit of a course of induction geared to both their needs and the demands of their new role. Our twice yearly conferences are now more focussed on training in new techniques and generating awareness of the changing demands of the inspection. This represents a substantial investment but I am convinced that the returns on that investment more than justify the cost. A by-product of our new approach, including training inspection staff in EFQM techniques, is that HMIC can look to eventual Investors in People accreditation with increasing confidence. 1.24 The two non-police Assistant Inspectors have continued to add significant value during inspections and to our strategic thinking. Their number of contracted days was increased by 50% in the reporting year which allowed HMIs to utilise their knowledge and experience beyond their original remit. The increase in their availability also facilitated involvement in thematic inspections. Their diverse professional backgrounds and experience provide a valuable added dimension to the work of HMIC. 1.25 These are dynamic times for a police service which has done well to keep up with the pace of change for a number of years. The expression 'challenging years ahead' is no stranger to my annual reports but the relative challenges of the past were to scale the foothills. Over the next couple of years the Service perhaps faces the challenge of the mountains. HMIC is adapting its approach to guide and support the Service through a demanding time. 1.26 HMIC is now actively involved in following through the progress of forces towards securing 2% efficiency gains in the current financial year. The funding settlement for the Police Service for 1999/2000-2001/2, following on the Comprehensive Spending Review, required police authorities and police forces to publish efficiency plans within their annual local policing plans. A 2% efficiency gain will produce £144m in 1999/2000 which must be recycled into front line policing. As the opportune HMIC thematic on value for money (What Price Policing) clearly established, such activity is not novel to the Service but the audit trails were often weak making tangible proof difficult if not impossible. 1.27 The Home Secretary has agreed that the inspection and audit process for efficiency plans will be led by HMIC with support from the Audit Commission. In preparation, our joint staffs worked alongside a group of forces to develop both the idea of efficiency planning and a Best Value inspection model. Early indications from this collaborative work and early inspections suggest that forces which have devolved responsibility for operational and resource planning are in the best position not just to deliver efficiency gains but, as importantly, to prove how those gains have been channelled into service delivery. 1.28 The Local Government Act 1999 gives HMIC the power to audit and inspect, jointly with the Audit Commission, police authorities in respect of their responsibilities under Best Value principles. Whilst the process begins in the financial year 2000/2001 energetic preparatory work is being undertaken in the current financial year. The role of HMIC as the Best Value inspectorate for the Police Service will have a significant effect on our approach to inspection. The logistical implications for HMIC are equally profound. 1.29 I report on the implications of the Best Value legislation for police authorities and forces in Chapter 3 (para 3.23 to 3.25). HMIs are determined to give the highest priority to servicing the inspection needs of Best Value. The underpinning rationale of both HMIC and Best Value converge neatly to produce a philosophy of continuous improvement. Whilst HMIs will pursue a particular orthodoxy in carrying out their responsibilities under Best Value it needs to be remembered that only a quarter or a fifth of forces' activity will be subject to the full rigour of Best Value each year for the first five years. HMIs cannot and will not neglect their other statutory responsibilities under the Police Act 1996 for ensuring the effectiveness and efficiency of forces. In order to facilitate their emerging dual roles, to maximise the optimum output from the inspection process and to keep the burden of inspection on forces to the feasible minimum, HMIC is developing a diagnostic model that adopts a risk assessment approach. Inspections in future will be triggered by a number of factors related to poor overall performance, specific incidents that give cause for concern or a failure to secure certification under Best Value. In any event, no force will be left uninspected for more than a three year period. As the protocols and process for the new inspection take shape, HMIC will be consulting those bodies with a necessary and legitimate interest. 1.30 HMIs are currently visiting forces with senior Home Office officials to take a focused look at crime reduction. The intention is to establish the appropriateness of plans, targets and milestones, including the five year target of a 30% reduction in vehicle crime which is a high volume element in the overall pattern. Partnership is a key element and the visits will help in assessing if there are weak links. The overriding intention of the visits is to identify and share good practice and support development. The drive towards crime reduction will require partnership players not just interested spectators. The early indications are quite clear that an unstinting and sustained effort will be required from every agency if the real potential for crime reduction is to be achieved. 1.31 There is further joint activity by our non-police Assistant Inspectors and District Auditors complementary to the force visits. Joint teams are working at BCU level to examine the evolution and production of community safety plans under the Crime and Disorder Act. Are they in sympathy with the legislation? What have proved the blockages and constraining factors? What has worked and what has not? All 370 BCUs will be visited over the next three years with the Assistant Inspectors dip sampling on a number of visits. 1.32 The impact and implications of the Macpherson Inquiry Report on matters arising from the death of Stephen Lawrence will reverberate throughout the Police Service for many years. Whilst I will comment in more detail in Chapters 2 and 3 on the wider implications for the Service, there are important recommendations to be actioned by HMIC. The report recommends: 'That in order to restore public confidence an inspection by HMIC of the Metropolitan Police Service be conducted forthwith. The inspection to include examination of current undetected HOLMES based murders and reviews into such cases'. The inspection has begun and is being led by HMIs David Blakey and Dan Crompton. The former leads a multi-skilled and experienced team examining unsolved HOLMES murders, whilst Dan Crompton leads a second team, including a core staff with experience of our two recent thematics into community and race relations, to review the Metropolitan Police Service community and race relations strategy and policy compliance. This inspection of one force is unparalleled in its size and complexity. Additional lay resources and nominees from the National Black Police Association form part of the team. The inspection will report before the end of the calendar year. 1.33 The Macpherson Report also recommended that HMIC 'be empowered to recruit and use lay inspectors ... particularly in connection with performance in the area of investigation of racist crime.' The use of lay inspectors would not be a novel experience for HMIC. I commented earlier on the developing role of our non-police Assistant Inspectors. This recommendation, however, provides an opportunity to take a fresh and lateral look at the many possibilities and optional solutions to meet this recommendation and perhaps extend it. External consultants have been contracted to investigate the options, consult widely and make recommendations. I will submit proposals to the Home Secretary by the end of 1999. 1.34 Thus the stall is set out and the mix of inspection fruit is quite different from our historical diet. The changing and increased demands on our resources dictate that some of our intentions have to give way to higher priorities. HMIC has only two thematic inspections planned for this year. One inspection will look at the use the Service makes of forensic science. If a reduction in crime is to be achieved, the optimum use of the forensic science capability and capacity will be a pre-requisite. The second will look at crime reduction following up on the valuable work in an earlier thematic (Beating Crime 1998). 1.35 It is with some reluctance that I have reduced the thematic programme. However, an important consideration in supporting the decision was the fact that our thematics over the past couple of years have already covered such vital areas of policing at both the strategic and operational level. They have helped forces prepare for a demanding future of changing public expectation and budgetary discipline. A great deal has been achieved as a result of our thematics and there is a legitimate view that the responsive sponge, bearing in mind changes originating elsewhere that have to be absorbed, may be in danger of saturation. 1.36 The HMIC team looks forward with confidence to the changing nature of inspection in the future. We are confident that we will contribute substantial added value to tripartite members, jointly and severally, and to the essence and continuous improvement of policing in England, Wales and Northern Ireland.
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