Scottish Government

Dumfries and Galloway Constabulary Primary Inspection 2002

5. Processes

Professional Standards and Conduct

5.1 Prior to August 2000, complaints against the police in Dumfries and Galloway Constabulary were not managed by a dedicated unit. Under the previous arrangement the Deputy Chief Constable was assisted through the auspices of the Superintendent Corporate Services. However in order to provide consistency and focus the Dumfries and Galloway Constabulary Complaints and Professional Standards Unit was created. The unit is managed by a Chief Inspector who reports direct to the Deputy Chief Constable who has overall responsibility for the management of the Complaints and Professional Standards portfolio. A member of support staff provides the Chief Inspector with administrative support.

5.2 This level of staffing does not allow for an investigation role and all complaints are allocated to senior operational officers. Complaints of minor misconduct and service delivery complaints are referred to Divisional Commanders for report and local resolution. Where there is insufficient information available on which to make a decision in respect of an initial complaint, preliminary reports are requested. In order that there is minimum delay to the progress of any complaint the timescale allocated to preliminary reports is two weeks.

5.3 The unit administers all complaints centrally, and provides quality assurance and consistency in respect of all complaint matters. Regular analysis is carried out of the workload of individual officers and overdue rates of reports. Whilst the force view the current arrangement as effective, the Unit will be subject to a Best Value Review in 2004 and the appointment of a full time investigating officer may be considered at that time. However, HMIC considers there should be an earlier evaluation of the role and output of the unit in order to ensure optimum effectiveness.

5.4 Policy and procedure with regard to complaints is contained in a force standing order which is available to staff on the intranet. This is currently being reviewed and updated. The Unit head is currently devising a departmental plan and introducing performance indicators.

5.5 The year 2000/2001 was the first in which the Accounts Commission collected data in respect of number of complaints per 100 police officers. This indicator provides information on the number of complaints received from any person against on-duty police officers where there is inference that professional or criminal misconduct has occurred. Overall there were 1418 complaints made against police officers across Scotland during 2000/2001. This averages at ten complaints per 100 officers and as can be seen from table 1 the rate in Dumfries and Galloway was 5.1 complaints per 100 officers.

Table 1

5.6 In the year 2000/2001 there was a decrease in the number of formal complaints from 27 to 24 and an increase in the number of service delivery complaints from 164 in 1999/20000 to 170. New nationally agreed recording procedures have now been introduced following HMIC's recommendation in "A Fair Cop?" that all communications with police forces which infer an allegation of criminal behaviour or misconduct by police officers be recorded as complaints against the police for statistical purposes. All complaints inferring an allegation of criminal behaviour or misconduct by a police officer, irrespective of any local resolution of the matter have been recorded by Dumfries and Galloway Constabulary as formal complaints from 1st April 2001.

5.7 Joint training has been provided in conjunction with Strathclyde Police and Fife Constabulary for potential chairs of misconduct hearings. Notes of Guidance are also issued and only those who have been trained have been used by the force in this capacity. In two instances in 2000/2001 formal warnings under the Misconduct Regulations were given. Dumfries and Galloway Constabulary provide training for investigating officers in order to prepare Inspectors and Chief Inspectors for the role. Investigating Officers within the force commented favourably that they are supported by the Complaints and Professional Standards Unit throughout the investigation process and are regularly provided with feedback from the Head of Department in respect of the quality of their reports and the investigations that preceded it. The practice elsewhere of holding regular meetings of investigating officers in order to reduce isolation and allow them to collectively discuss issues and spread learning would further improve quality and would improve consistency of methodology in dealing with complaints. HMIC viewed the content of the training package and found it to be comprehensive.

5.8 HM Lay Inspector met with officers who have been the subject of a complaint who advised that they were kept informed and supported throughout the process. Officers interviewed showed an understanding of the role of the dedicated unit. Consideration is currently being given to conducting a survey of complainers to evaluate the complaint handling process.

Internal and External Reporting

5.9 The Complaints and Professional Standards Unit has recently introduced the Centurion information technology application used by a number of other forces in Scotland and all complaints and misconduct data is maintained on the system including letters of appreciation and civil claims. This data includes complaints in respect of support staff. HM Lay Inspector reviewed the computer recording systems and corresponding paper files in respect of a random selection of cases in order to audit trail processes and timescales from first intimation through to completion. HM Lay Inspector was impressed by the commitment displayed by staff to utilise imaginatively and effectively the software in order to oversee and supervise process compliance and ensure that strict timescales are adhered to.

5.10 Costs of complaint investigations are currently recorded and take account of some overheads such as miles travelled but it was noted that the officer cost per hour did not take account of all officer overheads. Costing data therefore, although useful does not provide a true picture of actual gross costs. In the year 2000/2001 6181 miles were travelled in respect of complaint enquiries and 617 hours invested at a cost of 22,637.20.

5.11 Letters to complainers include an explanation of the independent role of the Regional Procurator Fiscal as recommended in the HMIC thematic report "A Fair Cop?" and final letters were found to be open and provide detailed reasons for decisions taken.

5.12 The Centurion system is used to highlight instances in which an officer has been the subject of three complaints within a three year period. The circumstances are then examined and appropriate management intervention is considered. Where an authorised firearms officer is subject to a complaint this is highlighted in the system and consideration of the suitability of continued authorisation is considered. Use of information technology has also allowed for the preparation of enhanced management reports. H M Lay Inspector met with some officers who commented on a lack of detailed information regarding numbers and types of complaints. The force is aware of this and work is being undertaken to improve this by identifying the most relevant data and appropriate presentation to managers.

5.13 The harnessing of technology enables forces to meet the requirements of legislation such as The Race Relations (Amendment) Act 2000 which requires the monitoring of the ethnicity of complainers and allows for the provision of a common level of complaint statistics essential for review and analysis. It is important also that meaningful reports to meet the varied needs of interested parties can be generated and cascaded to managers, staff and the public. HMIC therefore welcomes the involvement of the force in a national users group to review the use of technology in this field and spread best practice.

5.14 In Dumfries and Galloway Constabulary information in respect of complaint patterns and any management action required in terms of complaint reduction is fed into the Policy Group and Operational Development Group which is attended by the inspecting ranks. Minutes of these meetings are available to all staff on the intranet.

5.15 Management information on complaints is used to influence a number of areas including investigating officer training, probationer training, first line manager training, officer safety training and through these media to operational policing. One example of this is the addition of an input by The Complaints and Professional Standards Unit to Senior Constables Courses following an analysis of the service bracket of constables complained against. Operational officers interviewed were able to provide staff officers with examples of changes in processes, instructions, or training all resulting from learning from complaints. HMIC considers the existence of linked mechanisms feeding learning from complaints against the police back to operational officers to be good practice.

5.16 The level and outcome of complaints are publicised in the Public Performance Report and shared with the Police, Fire and Public Protection Committee (PFPPC) in the form of a committee report, which is available to the media. HMIC noted the existence of a Complaints Sub Committee of the Police Authority and found members to be apprised of relevant issues, proactive in scrutiny of practice and actively involved in the improvement of processes. HMIC was satisfied that Police Authority members had sufficient information from the force to give them a clear understanding of the methods by which the force dealt with complaints from members of the public.

5.17 Elected members invite the Regional Procurator Fiscal to meetings and have been actively engaged in the analysis of complaint information in addition to inspection of complaint registers and individual files. This active involvement is seen as an important element in maintaining a level of public accountability and securing public confidence in the area of complaints against the police.

Continuous Improvement

5.18 Recent events in Dumfries and Galloway Constabulary involving the conviction and imprisonment of a serving inspector for sexual offences has been seen by the force as an opportunity to scrutinise processes and seek learning and improvement. A full report of the matter will be presented to the Police Authority. An important element in the recent case was the abuse of status and power and Dumfries and Galloway Constabulary has now established an Abuse of Power Working Group under the chair of the Deputy Chief Constable. Dumfries and Galloway Constabulary are members of the ACPOS Professional Standards Working Group and a Force Professional Standards Policy is now published. This incorporates a process for the identification and risk assessment of vulnerable areas of work and the introduction of proportionate measures designed to minimise opportunity for wrongdoing.

5.19 The force is also acting to enhance the level of confidence of victims to report concerns. Following consultation with victims and groups assisting victims the force has reflected the wishes of those consulted by formulating new procedures which more clearly set out how complaints may be reported through independent outside agencies and not solely through direct contact with police officers. Internal reporting is also a feature of the new process which has been extensively publicised. Leaflets and posters have been distributed offering the opportunity to report through independent organisations such as the Citizens Advice Bureaux, or People's Advocacy and Support Service.

5.20 In discussions with officers HM Lay Inspector noted that there was an appreciation of the benefits of ensuring that complaints were dealt with in an open manner. Also displayed was a keenness to overcome any perception that there may be an element of bias in the way complaints are handled and this was aided by referral to a specialist and separate department within the force. These factors together with the wide range of steps taken to improve methods of dealing with complaints indicated to the Lay Inspector that the force has learned much from recent events.

5.21 The force has recognised a staff training need as a result of the work undertaken to learn from experience and has incorporated ethical and acceptable standards of behaviour and means of internal reporting of concerns into Diversity Training and Probationer Training. Another of the lessons learned is an increased awareness of the need for the host force to call upon timely external assistance in circumstances where independence must be demonstrated in order to engender trust. HMIC endorses the work being done nationally through ACPOS to adopt a protocol for the appointment of an external Investigating Officer in terms of the Police (Conduct) (Scotland) Regulations 1996, and notes that consultation remains active with the Scottish Executive with a view to enhance independent procedures for the investigation of complaints against the police

Custody/Prisoner Handling

5.22 During the course of the inspection HMIC examined the custody facilities within Dumfries and Galloway Constabulary. The force has responded to the HMIC thematic report "A Fair Cop?" by conducting a review of custody provision across the force in order to ensure that cell areas either comply with the need for adequate CCTV coverage of custody areas, or are closed. Whilst this work will not achieve full implementation by the target date set in "A Fair Cop?" of 2003, a great deal of progress has been made. The review has been undertaken in two halves and began by addressing Dumfries Division where all stations with cell facilities were audited in respect of demand and cost of upgrading. All of the cells at smaller stations have been closed in the Dumfries Division, and cell accommodation exists at Lockerbie, Annan and Sanquhar stations for detention purposes only. Livescan fingerprinting machines are available only at Dumfries and Stranraer. The review process is now being undertaken in respect of Galloway Division.

5.23 There are 24 hour holding cells at Dumfries and Stranraer which are the only 24 hour staffed stations. Officers at all levels interviewed were in agreement that there is no justification for the retention of cells at some smaller stations. However, some front line officers voiced the concern that the inability to detain at small stations in outlying areas can mean travelling large distances with prisoners leaving smaller stations without staff. Motorway custodies for example must be taken to Lockerbie as they cannot be processed at smaller stations.

5.24 The pilot closure of outlying cells in Dumfries, which had been running for nine months at the time of the inspection, was found not to have impinged on efficiency. Arrangements such as the purchase of secure vans have facilitated the greater need to travel with prisoners. Some of the cells visited by HMIC e.g. at Thornhill are quite dilapidated and will need a lot of investment to come up to standard if they are to be kept open even as detention rooms.

5.25 The Dumfries and Galloway Constabulary Care and Custody of Prisoners Manual is currently being reviewed by a force working group. Documentation and practices in respect of the incarceration of vulnerable persons are being reviewed as part of an Action Plan compiled to address recommendations made at a recent Fatal Accident Inquiry. The group is active in improving custody provision and benchmarking against other custody suites throughout the U.K., resulting in, for example the withdrawal of plastic knives and purchase of rubber ended multipurpose cutlery. HMIC viewed Notification of Significant Custody Episodes entries on the intranet used to highlight custody incidents and make all staff more aware of potential problems. Custody and other staff interviewed were aware of this facility and made use of it frequently. HMIC regards this method of learning from experience as good practice.

5.26 Specific officers at both Dumfries and Stranraer have the responsibility for the fabric and equipment of the custody suite. The officer at Dumfries is responsible for preparing custody officer shift rosters. Both are actively engaged in initiating improvements in custody care and attend custody officers bi-annual meetings. The Dumfries officer is the Co-ordinating Unit Sergeant but there was some dubiety amongst staff interviewed as to where the responsibility lies and clarification by way of inclusion in the job description of the post holder is needed. In respect of custody officers in Stranraer, shift rosters etc are prepared by the Divisional Support Manager and the view was expressed that team identity and efficiency would be improved if this task rested with the shift sergeant.

5.27 Processing of prisoners is currently done by means of a paper based system. Custody recording has been an ongoing element of the force IT infrastructure development for some time but the system is not yet in place and custody officers interviewed were unaware of progress. Custody staff felt strongly that computerisation is essential and the communication of clear intentions to staff by the force in this regard would be beneficial.

5.28 The cells complex at Dumfries was opened five years ago and comprises two detention cells, two tape recording rooms, an Identification Parade room, four female cells and eight male cells. In addition there is one observation cell in the female wing and two observation cells in the male wing. The custody facilities at Stranraer include four male and two female cells and an observation cell. Anti-rip blankets and suits are available and are intended to be used for all prisoners when there are sufficient supplies. Lack of facilities in Dumfries and Galloway for alternative care and sheltering of persons who are drunk and incapable or under the influence of drugs has created increased numbers of vulnerable prisoners. Shower facilities are available and security provisions were found to be satisfactory although shared yards are utilised.

5.29 Both custody facilities have sound and vision CCTV with extensive coverage. One area of concern to HMIC was the positioning of the observation cell camera in Stranraer which covered the toilet area creating a significant problem in respect of privacy particularly in the case of female prisoners. The Area Inspector at Stranraer who has specific responsibility for the cells is aware of this issue and, at the time of the inspection solutions, were being sought. The positioning of the toilet itself in some cells also potentially creates a health and safety issue as the toilet is placed on a raised shelf and custody officers made reference to a number of prisoners having stepped back from the shelf and fallen. These matters will be reviewed by HMIC at the next review inspection.

5.30 HMIC consulted HM Immigration officials who use the cells at Stranraer frequently in respect of illegal immigrants using the port. HM Immigration can on occasions have large numbers of detainees. Officials stated that they were impressed with the standard of care and high priority that was given to the heath and safety of detainees. They referred to the language problems that are often a feature of detentions and complimented the use of the Languageline translation service by staff at the cells complex. HM Immigration are charged for the use of the cells but this does not include overhead costs and this issue is being addressed nationally. They described the cells at Stranraer as providing a benchmark for others to follow.

5.31 Officers in Galloway Division informed HMIC of a lack of consistency in review decisions taken in respect of custodies where, of necessity, some review decisions must be taken remotely. Whilst it is acknowledged that within the Lord Advocates Guidelines each review is a matter of individual judgement, every effort should be made to achieve consistency where possible.

5.32 The custody suites at Dumfries and Stranraer are staffed entirely by support staff custody officers and this arrangement has been in place since 1997. At Dumfries the ten Custody Officers also cover the front counter, take reports of lost property etc and record incidents reported to them on the computerised incident management system. There are six Custody Officers at Stranraer who have no public counter responsibilities but have duties with regard to the administration of lost property. All were found to be committed and professional in their care of prisoners, providing an expertise which allows police officers to be more meaningfully deployed in roles which use their professional training.

5.33 Custody Officers are fully trained and receive refresher training annually in health and safety issues and officer safety training. Custody staff interviewed intimated a need for refresher training in First Aid and this is a matter which the force may wish to consider. Custody Officers are well equipped and attached to shifts providing good team identity and day to day supervision. The force inspector reviews each custody, makes visits and scrutinises paperwork.

5.34 Custody Officers are still known as "turnkeys" in official documentation, on office nameplates and when referred to in conversation, despite wearing the title Custody Officer on their uniform. Custody Officers themselves requested the change to their current title but in interview referred to continued universal use of the term "turnkey". This was seen by many as an issue of status or respect and, as previously commented, the force should use diversity training and leadership challenge and example to address this.

5.35 The Local Authority has recruited a number of volunteers to act as independent lay visitors to custody suites. Training has been provided and HM Lay Inspector met with one of the volunteers who was found to be enthusiastic and committed to the task ahead. The scheme had not yet commenced at the time of the inspection and should be subject to evaluation at an early stage in order to optimise benefit. This matter will be reviewed by HMIC at the next review inspection.

Crime Management

5.36 Crime Management within the force is undertaken through the department known as Crime Management Services (CMS). CMS has recently undergone an organisational restructure with the devolvement of CMS general investigation staff from the department to the command of Divisional Commanders delegated to Divisional Crime Managers. The driver behind this restructure was the identified need to have detective officers placed on a more proactive footing to deal with "serious and series" crime and for divisional staff to take more ownership of crime investigation.

5.37 The following aspects of Crime Management Services remain centralised - Special Branch, Fraud Unit, Drugs Squad, Family Protection Unit, Force Intelligence Unit, Source Management Unit, Ports Unit, Scenes of Crime and Dedicated Source Unit. The Detective Superintendent, HQ CMS also retains responsibility for the investigation of serious crime. This responsibility seems at odds with another of the post holder's defined responsibilities as the reviewing officer in major crime enquiries and the force should give consideration to this apparent conflict of interest.

5.38 The change process has taken place against a backdrop of the force conducting seven murder enquiries during 2001, creating significant pressures to staff major enquiries. The reality of this has meant that for substantial periods the majority of detective personnel, supplemented by other officers with previous CMS experience, have been engaged in dealing with this set of serious crimes. Staff interviewed all qualified what they were saying against this backdrop, but there was a general feeling that the new organisational structure had changed very little. The force may wish to re-visit the concept to ensure the force fully understands what is intended to be achieved through devolvement and to ensure the impetus needed if it is to be effective. However this is a significant change in the force's structure and HMIC will review its effectiveness at the next review inspection.

5.39 The Detective Superintendent and other senior officers of the CMS ensure that consultation takes place in determining the strategies, plans and objectives. An example of this is prior to the Force's Strategy Day inviting officers of every rank to form part of the project team representing CMS. Staff are briefed daily, using information included in the Intranet and IMAGE systems. Regular team briefings take place and suggestions are encouraged. In the Divisions CMS staff and their uniform colleagues attend regular joint briefings. Crime Prevention & Community Safety Officers form part of the communication process and are represented at weekly tasking and co-ordinating meetings and in the force's Crime Strategy Meetings.

5.40 The Force has a comprehensively documented crime strategy which allows for force co-ordination and effort, while fitting the National Intelligence Model. HMIC found that police reports are presented to a high standard, through the scrutiny of the Case Management Unit. Standards are also maintained through consultation with the local Procurator Fiscal and this is monitored at PF Liaison meetings with senior police management. HMIC met with the local Procurator Fiscal who was very complimentary of the standard of work being submitted by the force particularly the standard of recent serious crime investigations. The Procurator Fiscal raised the issue of quality relating to the "analysis of evidence" section of the standard police report. This element of case preparation is presently the subject of further development by the Case Management Unit and HMIC will review progress in improving the standard in respect of this important area of the police report at the next review inspection. The Crime Strategy encourages regular liaison between departments and divisions. This is supplemented externally with the head of the unit being Head of Special Branch, Director of Intelligence, a member of the Investigation Sub Group for ACPOS, SDEA Sub committee, and SDEA Strategic Group, as well as sitting on the local DAT and various security groups.

5.41 Overall during the inspection an atmosphere of purpose and efficiency was noted from CMS staff. And comments made in respect of the CMS are set in the context of very creditable detection rates.

Crime Recording

5.42 As in all Primary Inspections an incident audit was conducted to analyse recording procedures within the force, particularly relating to the recording of crimes, offences and road accidents.

5.43 The force supplied summary incident prints for the period Monday 22 October to Sunday 28 October 2001. The number of prints precludes examination of every incident occurring in the force over that period and, therefore a selection was made. On this occasion the incidents on Monday 22 October, Friday 26 October and Saturday 27 October 2001 were selected.

5.44 Each incident was examined and separated into three categories as follows

Type 1 - not a crime or road accident and no requirement for a crime or a road accident to have been recorded
Type 2 - a crime or road accident was reported and appropriately recorded i.e. there is a crime report or road accident number allocated
Type 3 - a crime or road accident has apparently been reported, or discovered as a result of a report, but no crime or road accident has been recorded in the relevant system.

5.45 Force records were examined to establish whether or not a crime report exists in respect of any of the type 3 incidents. Where identified, an explanation was sought from the force on how the incident was handled.

5.46 Incidents for the force area for the period 22 to 28 October 2001 totalled 1559. For the purposes of the audit, HMIC examined all incidents occurring on the three days Monday 22 October, Friday 26 October and Saturday 27 October 2001.

5.47 Total incident prints supplied by the force for these three days was 680, broken down as follows:

Type 1 - 441.
Type 2 - 150.
Type 3 - 89

5.48 Of the 89 incidents that were classified as Type 3, the force accepts that 41 of these should have been recorded as crimes.

5.49 HMIC recognises that the sample chosen is too small be fully representative of the way D&G records crime. It is also true that those not recorded as crimes from the sample could, in relative terms, be regarded as minor. Nonetheless HMIC identified a culture which allowed minor crime to be dealt with in a non-standard way and a crime recording booklet which is not conducive to ease of recording. The force has an auditing system in place with regards crime recording. However it only checks incidents marked as a crime.

5.50 In general, this scenario is not limited to Dumfries and Galloway Constabulary alone and HMIC has repeatedly made relevant comment in Inspection reports. Nationally the Crime Standing Committee of ACPOS has commissioned work on the standardisation of crime recording. This will follow similar work recently completed in England and Wales and HMIC eagerly awaits its outcome.

5.51 This is an area of activity which HMIC will continue to cover in force inspections and will return to at the next review inspection of Dumfries and Galloway Constabulary.

Drugs

5.52 The Force Drug squad is part of the Crime Management Services (CMS). The squad consists of one detective inspector, two detective sergeants and 11 Detective Constables of whom three are SDEA funded. At the time of the inspection the Detective Inspector was involved in duties as a senior investigating officer in a murder enquiry. The Detective Chief Inspector CMS has taken on the day to day running of the squad. The majority of the drug squad is based in Dumfries with a sergeant and two constables based in Newtown Stewart to cover the Galloway division. All supervisors have had previous experience as operational mainstream Detectives within the CID and as Operational Supervisors in the general CID (CMS).

5.53 All staff who are currently within the Drug Squad are trained to at least a Nationally approved Level II surveillance standard with the majority now trained to Level I. They also are required to attend the relevant National Drugs Course and Detective Officers Course. Officers, who are suitable for giving Evidence of Opinion, are also supported in attendance at Seminars and Conferences relating to drug abuse throughout the Country. HMIC heard concerns regarding the sustainability of surveillance operations given the relatively low numbers of trained personnel. The force is keen to enhance its capacity for surveillance operations and is currently considering the training of a limited number of personnel from outside the drug squad.

5.54 The drugs squad conducts full debriefs and reviews of all operations that together with latest trends inform amendments to working practices. Trends are also identified by regular attendance at National Witness of Opinion Seminars and Tactical Co-ordinating and Strategy meetings held by the SDEA, which are then disseminated force wide.

5.55 Retention, storage and destruction of Drugs is managed by Drug Squad staff assisted by Chief Inspectors from outside the CMS who oversee destruction. Suitable security and audit procedures are in place for seizures. While not uncommon across all forces, the storage facilities were packed with drugs of significant street value. HMIC notes that the Detective Superintendent CMS is raising the issue of drug storage within an ACPOS drugs sub-committee. In particular he is raising the question of storing large amounts of illegal substances for the purpose of production at court. Most illegal drugs deteriorate drastically with age. Evaporation occurs, tablets disintegrate or the substances decompose. A lot of time and effort is spent in accounting for, transporting and escorting drugs between courts and ultimately to a place of destruction. These illegal substances may also create a Health and Safety issue as staff are dealing with material manufactured of an unknown composition and from an unknown source. HMIC supports the force's initiative to find an alternative method of dealing with the drug storage issue as the present system is expensive with potential risks.

5.56 The Drug Squad prepares a monthly target paper based on the annual targets set out in the Policing Plan 2001/2002. Drug squad staff expressed a lack of ownership of some of the targets and measurements expressed in the policing plan. In particular the target to prosecute 80% of targeted dealers was seen as unachievable and unrealistic. The monthly report, within the Performance Information Bulletin, gives the number of drug seizures. However this is not set into context, and does not appear as a target or measurement in the policing plan. The force intends from 2002/2003 this figure will be quoted in comparison with the previous year. HMIC has made a recommendation elsewhere as to the policing plan and will be interested to see how the new plan in respect of drugs develops.

Intelligence

5.57 The Director of Intelligence is the Detective Superintendent CMS who has overall responsibility, with day to day running resting with the Detective Inspector, HQ CMS. Covert Intelligence is the overall responsibility of the Director of Intelligence supported by DI HQ CMS, and DS Source Management Unit.

5.58 The force has intelligence and crime strategy documents outlining its commitment to intelligence led policing and the force is in the process of implementing the National Intelligence Model (NIM). To this extent the force's Crime Strategy complements the requirements of the NIM in that it prioritises intelligence work, products and tasking and co-ordination.

5.59 The Force Intelligence Bureau (FIB) is the focal point for the gathering, collating, evaluating, analysing and dissemination of information and operational intelligence. The Bureau has strong links with the Source Management Unit, Special Branch, Divisional Intelligence Officers and Drug Field Intelligence Officer. Continuity of intelligence processes is achieved via the Detective Inspector HQ, who has responsibility for the SB, FIB and SMU. The force has put in place the code of practice in relation to covert practices including recording and dissemination of intelligence. This ensures that full audit procedures are in place together with appropriate levels of vetting.

5.60 Intelligence Bulletins are provided on a daily basis and are accessible throughout the force on the Intranet. The Actionable Intelligence Management (AIM) is the process by which FIB disseminates intelligence to the force. AIM involves the production of a intelligence package or file either by the FIB or by the Intelligence officers with suggestions as to further action and the information or feedback that is required. The process is managed not only by the Force Intelligence Bureau, but also by respective Divisional Chief Inspectors through tasking and co-ordinating meetings to ensure consistency of standards. Both Divisions have introduced tasking and co-ordinating procedures to assist them in targeting resources to the detection of crime. They are in the early stages and the force wishes to fine-tune the process in order to meet the requirements of the National Intelligence Model. Part of this fine-tuning may wish to address how intelligence is passed to operational officers in the divisions. Operational officers did not appear to be well briefed in respect of intelligence while there were examples of AIM packages being several months old.

5.61 The Performance Indicators of the Unit include the number of intelligence submissions, the number of target packages produced (AIM) and percentage of results therefrom. These measures are intended to be reviewed monthly in the Force Action Plan. HMIC has viewed the Force Action Plan and questions whether the monthly reports provide a useful comment on the bureau's activity. HMIC also note that the results for the first three quarters of the year states that "A total of 306 intelligence packages have been prepared this year so far. The analysis of outcomes will only be performed at the year end". HMIC view this comment as ambiguous. The force will wish to be sure that the evaluation of intelligence performed by the FIB is reflected in the results for the unit.

Operational Use of Firearms

5.62 The force has a complement of 53 Authorised Firearms Officers (AFO) which is comparatively high compared to other Scottish Forces; in proportionate terms being approximately 11% of the force establishment. The force views this as an appropriate number of officers given the pressures that the force has identified: -

the geographical requirements of a region which is approximately 120 miles long;
the potential to require to sustain a firearms presence over a more protracted incident;
the requirement to provide resilience given inevitable leave, training, absence and other abstractions; and
the provision of trained Authorised Firearms Officers and Tactical Firearms Advisors (TFA) to the Lockerbie Trial in the Netherlands.

5.63 At the moment this capacity includes a complement of officers who are responsible for crewing the force's Incident Response Vehicle (IRV). However due to costs and effectiveness of maintaining a firearms capability in this form the requirement for the IRV has been under review. There is a recognition that in spontaneous situations there may not be sufficient time to summon the Duty Superintendent and therefore training is being offered to the rota of Force Duty Inspectors (team of 6) as opportunities arise at the relevant courses.

5.64 The force has been careful to ensure a good distribution of TFAs and AFOs around the Force not only by station but also by home address for callout purposes and therefore a high level of local knowledge is available to the Firearms Unit.

5.65 The Firearms training department consists of 1 Sergeant and 1 Constable who both work closely with the wider team of a further 5 instructors / tactical firearms advisors (TFAs). The size of training department was set following the recent force wide review of staffing, which, supported a higher level of central staffing to offset the abstraction problems for departments and divisions and secure greater continuity. The 2 permanent members of staff work in adjoining offices allowing daily contact whilst the force's other TFAs attend for training on 2 occasions per month with a further 6 occasions per annum for specific instructor/TFA training and awareness.

5.66 In respect of AFOs the force's firearms training plan is reviewed annually to ensure that all AFOs are being developed to meet the needs of the organization and to develop their own core skills. The commitment to training is necessarily a heavy one with each AFO undergoing seven days of weapon handling/shooting skills per annum and seven days of tactical training which includes building searches, vehicle drills, firearms simulator training, open country searches and other relevant issues such as negotiation skills. Specialist firearms officers such as those using rifles or involved in VIP training undertake 6 additional training sessions per annum per specialism. These include qualification shoots and tactics. Finally Instructors/TFAs are rostered 6 additional training days per annum to cover qualification shoots, policy development and discussion. The force maintain training at this higher level to keep skills fresh and at a high standard, as there is a low number of turnouts or incidents. All officers within the force are provided 4 hours of first aid training as a local initiative following the Stephen Lawrence Enquiry. Specialist input has also been provided to AFOs of 4 hours duration with certification focusing on ballistic injuries. The AFOs train regularly with other specialists in force, including negotiators, Mobile Support Group, security escort drivers and dog handlers. Specific training events have been used to develop and cascade Firearms Policy such as the joint incident manager / TFA training session in June 2001.

5.67 The force has no tenure policy for AFOs, provided that they continue to meet the training requirements in terms of performance, attendance, fitness and shooting accuracy then they remain authorised. In the Firearms Unit itself, as with other departments within the force there is no formal tenure policy, however in practice the force staff rotation policy applies, meaning that officers will be considered for rotation following 3 years in post. During the last 10 years, no one officer has held this post for more than 3 years. As vacancies arise in the complement of officers required for the firearms teams, this is advertised in the Force Digest. Recently a specific encouragement has been included for women officers who are under represented within the team. At the moment there are only 2 women AFOs amongst the total of 53. The force has also conducted an open day to offer pre-application familiarisation.

5.68 The Superintendent Corporate Services has responsibility for monitoring the implementation of the auditing of weapons and ammunition. HMIC pointed out one administrative weakness in respect of the auditing of firearms and ammunition and the force is committed to ensuring that robust systems are in place that widen the responsibility of checking armouries.

Road Policing

5.69 The Chief Superintendent Operations holds the portfolio for the road policing function. The Mobile Support Group (MSG) conducts this function. The MSG was previously a centrally controlled resource that was devolved to divisional management. Divisional Commanders direct this resource via divisional tasking and co-ordinating forums. MSG officers are based at Dumfries, Stranraer and Lockerbie and provide a co-ordinated and focused response to road policing issues as an operational support. The MSG co-ordinate the pursuit of national targets set in terms of casualty reduction and provide flexible response and support for divisional policing. The location and deployment of MSG units has been determined to provide cover over a wide geographic area with close proximity to major routes. Minimum staffing has been set down particularly in respect of maintaining 24-hour cover on the motorway.

5.70 The force intends to evaluate the success of the devolvement of MSG resources to divisions in the near future. HMIC will be interested to learn the findings of this review at its next inspection. Supervisory staff within divisions were comfortable with the role of MSG and that they were available as a support to all the operational policing functions. The title Mobile Support Group reflects that this unit has a wider remit than normally expected of Road Policing departments.

5.71 The force's main goal in respect of roads policing is to reduce the number of people killed and seriously injured. This goal is pursued in support of government targets. Speed reduction, the use of seat belts and driving while under the influence of alcohol or drugs form the main emphasis behind the strategy. Complaints from members of the public and community groups are co-ordinated via the divisional tasking and co-ordination group to ensure an appropriate response to the problem. Divisional Commanders have been tasked with meeting casualty reduction targets in line with those nationally agreed. Monitoring of the performance measurements is on a monthly basis through the Performance Information Briefing Schedule and the Force Action Plans.

5.72 The Camera Enforcement Unit is not devolved to divisions. The unit works closely with two force motor cyclists to deal with speed enforcement and local complaints within both divisions. Mobile speed cameras are utilised across the area, on the A75 these are linked with permanent sub-surface sites.

5.73 The force has recognised that the pursuit of road policing issues is often an opportunity to disrupt criminal activity. To this end the Force Intelligence Bureau includes an officer specifically tasked with providing actionable intelligence management packages for enforcement as well as bulletins providing information for other traffic related intelligence. Joint operations take place involving Vehicle Inspectorate, Traffic Commissioners and Customs and Excise targeting issues of specific concern.

5.74 The force employs three members of support staff as Road Safety Education officers. Each road safety officer has a geographic area of responsibility and speaks to diverse community groups from pre-school to the elderly. Six young drivers' schemes are operated across the force area with an aim of influencing young people before they get behind the wheel. The scheme takes place during the summer and caters for approximately 400 young people. Inputs are arranged in respect of attitudes to driving, legal responsibilities, rudimentary car mechanics and driving skills.

5.75 At the time of the inspection a total of 44 officers were engaged on operational MSG duties, of these 5 are women. Support staff are employed in the positions of administrative support and road safety education officers. HMIC noted as good practice the use of introductory guidelines for officers joining the MSG that sets out the practical skills to be mastered in the first six weeks of attachment with the assistance of a tutor constable. A supervisory officer checks successful attainment of these skills.

Public Order

5.76 The maintenance of order is an operational responsibility resting upon the Chief Superintendent Operations and divisional commanders. There is no specific goal touching upon policing disorder within the policing plan as the force has never identified this as a significant issue in the consultation and scanning processes that precede the finalisation of the Force Strategy and Charter. However there is a community safety target to "conduct Safeguard initiatives to tackle the fear of crime, anti-social behaviour and other local concerns" demonstrating a commitment to this area of policing in its widest sense.

5.77 Divisional Commanders are closely involved with their respective Licensing Authorities. The force is quite properly giving consideration to developing a linked strategy, particularly with the recent incidents of disorder around places of entertainment and door staff carrying weapons, together with the geographical spread of the force and the separate licensing boards. In fulfilling their responsibilities divisional commanders identify a lead officer to prepare a problem orientated policing plan.

5.78 The force has a national obligation to provide 1 Inspector, 3 Sergeants and 18 Constables as a Police Support Unit (PSU) for mutual aid purposes. To sustain this obligation the force has an internal target of 40 trained officers to ensure availability on all dates. At present the force has a core of 28 officers trained, although the last training undertaken was in May 2000. ACPOS has set a requirement that public order training for Police Support Units should be two 2-day training sessions per year, therefore at the time of inspection the force is unable to field a PSU sufficiently trained to the ACPOS standard. The force is to run an introductory training course in the near future to bring up to 40 the numbers of trained officers. Public Order trained officers felt unease about their lack of training coupled with insufficient call-outs to maintain their skills but were aware of the singular circumstances of the last year.

5.79 The force has only a limited number of senior officers trained to strategic or tactical command level for policing disorder. In effect the force would depend on mutual aid for its command structure in the event of an operation regarding major disorder. Public order trained officers felt that there was a lack of knowledge amongst supervisors as to the abilities and limitations of a public order team and the force will wish to ensure that senior officers are best placed to play their part in public order operations.

5.80 The force policy is that if there was intelligence to suggest serious disorder or resistance to pursuit of a legitimate police objective, officers with public order training would be deployed. The force has adopted a suite of officer protection equipment including body armour, CS spray, friction lock baton and rigid bar handcuffs. Local divisional officers feel well equipped and confident to deal with spontaneous public order situations. The force introduced CS spray in December 2001 which, in essence, made the previously issued PR24 baton redundant as it is a two handed weapon. In its place the force issued a friction lock type baton which is easier to use, easier to carry and does not require the same investment in training to maintain a skill in its use. HMIC is aware that other forces are making similar decisions. In the continuing development of officer safety equipment and training in Scotland, HMIC recommends that ACPOS review ongoing local developments to ensure consistency across forces.

Police Dogs

5.81 The fundamental purpose of police dogs and their handlers is to provide an additional resource for use by police managers, which may result in an improved outcome. There is no statutory obligation on a police force to operate a general purpose police dog unit and the current devolved arrangement in Dumfries and Galloway Constabulary has evolved over time as the force seeks to find the most effective way to structure a resource which is seen as a part of modern policing.

General Purpose Dogs

5.82 Dumfries and Galloway Constabulary has experimented with differing structures in order to optimise the support provided by police dogs. Initially there were three dogs and handlers dedicated to the provision of general purpose police dog support. Insufficient workload however meant that these resources were not always active and the General Purpose Dog Section was therefore incorporated within the Dumfries based Mobile Support Unit and dog handlers operated in a joint patrolling arrangement with traffic officers. At the time of the last primary inspection however, it was reported that this arrangement was faltering. A subsequent force review of general-purpose dog provision involved a consultation exercise which found a low level of satisfaction among supervisors who had potential to use dogs.

5.83 It was determined that the dog section was not providing best value and the opportunity was taken to reduce costs and increase efficiency by devolving out to divisions. The current devolved arrangement provides for one dog handler per division based within the community policing units at Dumfries and Stranraer under the control of the divisional commander. These officers therefore have a dual role carrying out normal community duties and in some cases taking the dogs into schools etc. Duties are normally day duty and thereafter an on call service is provided.

5.84 Both handlers when interviewed stated that this arrangement works well but spoke of under-utilisation of the dog handling facility and HMIC found no evidence of dogs being deployed as a result of the Tasking and Co-ordinating procedure. At present dog handlers record incidents attended. Qualitative data however in terms of the contribution made by the dog handler to resolving the situation satisfactorily i.e. contribution to arrests or persons traced would be more powerful in determining added value and the force may wish to consider the introduction of relevant performance indicators.

5.85 HMIC found reaction from front line officers towards the usefulness of dogs to be lukewarm and marketing of what dogs can do is required. The force is well aware of this issue however and the reasons for it. Following an interim report on the devolved arrangement, action is being taken to inform front line staff, management, and Duty Force Inspectors who are responsible for the operational deployment of police dogs, of the benefits of the facility and circumstances in which it should be used. The force has acted to raise awareness by issuing briefing notes to divisional commanders, placing the issue on the agenda at inspectors' meetings and ensuring that operations room staff are aware of the call out criteria.

5.86 The handlers have offered to act as tactical advisors to provide advice as to the suitability of deployment of the dogs and ensure relevancy of call outs when handlers are off duty although at the time of the inspection visit this facility had not yet been used.

Ports Unit Dog Section

5.87 The Ports Unit at Stranraer is partly civilianised and incorporates twenty-one support staff search officers. Four out of the six Ports Unit dog handlers are support staff members handling explosive and drugs search dogs. Three of the dog handlers are women. All are well trained and committed members of staff who have been appraised highly by the Strathclyde Dog Training Centre and who have attended training courses in areas such as stolen vehicles and drugs. Although the Scottish Executive fund the search officers and all police at the port, resources such as the Ports Unit Dog Section can be used elsewhere in the force. Again however there is under utilisation by members of the force who are unaware of the potential to make greater use of this facility.

5.88 The support staff dog handlers in the Ports Unit patrol in pairs with police officers but it was noted that the anoraks worn by these officers are labelled "Security" and so they are not readily identifiable as employees of Dumfries and Galloway Constabulary. Support staff interviewed felt that it would be advantageous in clarifying their role to the public if the force logo was prominently shown on all of their uniforms.

5.89 The use of support staff dog handlers within the ports at Stranraer and Cairnryan has financial benefits and joint working with a police officer overcomes any difficulties with regard to the use of police powers. Whilst all police forces still use police officers as general-purpose dog handlers Dumfries and Galloway Constabulary did consider civilianisation of all dog handlers at the time of the review. This was dismissed because of the need to work alone but may be worthy of consideration in some forces in some circumstances.

Training

5.90 Training and licensing in respect of general-purpose dog handlers and ports unit dog handlers is provided by Strathclyde Police Dog Training Centre. HM Lay Inspector visited the school and found that a degree of external scrutiny was provided through the training and re-licensing of handlers. Within Dumfries and Galloway Constabulary one qualified dog handler has been designated as Continuation Training Instructor and this officer provides refresher training in respect of the Ports Unit dogs. General Purpose dog handlers receive their refresher training at the Strathclyde Dog Training Centre. Handlers throughout Scotland are encouraged to contact the training school should any problem develop outwith training periods. HM Lay Inspector viewed the detailed and comprehensive records maintained by the centre in respect of Strathclyde dog handlers. This level of scrutiny is considered necessary at the centre where lectures have been given to handlers from all forces on human rights legislation and use of appropriate levels of force. Forces such as Dumfries and Galloway Constabulary who have few handlers and no specialist supervisors may wish to consider more regular assessments or submission of reports to instructors. These measures may assist in ensuring the highest standards possible in respect of dogs deployed amongst members of the public.

Welfare

5.91 Events outside of Scotland involving the death of a police dog in training had a potentially negative impact on public confidence in police dog handling throughout the U.K. Adverse media comment has generated a great deal of public correspondence on the subject within Scotland. Dumfries and Galloway Constabulary has written to all of the veterinary surgeons involved in the care of its police dogs and has advised them that they should contact the force Complaints and Professional Standards Unit if they have any welfare concerns.

5.92 The HMIC (England and Wales) report which was written following the prosecution of officers for animal cruelty determined that one of the circumstances that led to these events occurring unchallenged was the self contained and isolated nature of the unit. Police dog handling units such as that within the Ports Unit, must therefore ensure that internal and external liaison and staff performance measures are adequate to allow challenge to inappropriate behaviour. One of the potential consequences of civilianisation is low turnover of personnel which can act to enhance an insular culture and it is therefore important that the unit remains open to new ideas and places emphasis on openness and transparency. The Lay Inspector met with Ports Unit dog handlers and viewed the dogs at work and in the vans provided for their kennelling during the working shift. There was abundant evidence that the dogs are exceptionally well cared for and that the unit works well as a team.

5.93 HMIC endorses the approach taken in the ACPO (England and Wales) Police Dog Strategy which places emphasis on the development of a range of partnerships with appropriate animal welfare organisations such as the SSPCA, who operate within the port of Stranraer in respect of carriage of animals, and the National Canine Defence League. External scrutiny can be used to ensure that police dog handling policies and processes are humane, ethical and transparent and that any mistreatment is identified and dealt with promptly. English forces are also moving to use of lay visitors as part of an Animal Welfare Scheme which enables appointed members of the local community to observe and report on conditions under which police dogs are housed, trained, transported and deployed.

Staff Appraisal

5.94 Under current arrangements supervisors who have no dog handling experience write the performance reviews of dog handlers. Whilst community officers spend a large proportion of their time engaged in community duties the Ports Unit handlers, and in particular the Continuation Training Instructor, spend almost all of the working day working with dogs. It is important therefore that appraisals in respect of these officers reflect their specialist abilities, incorporate feedback regarding incidents attended in the capacity of dog handler and include a Strathclyde Dog Training School assessment of the capabilities of the handler. The Community Safety Sergeants and the Detective Sergeant in the Ports Unit, who have responsibility for the writing of dog handlers appraisals, would benefit from some familiarisation in respect of the specialist duties undertaken by their staff. It is important that these officers, in order to effectively supervise the specialist staff for whom they have responsibility, recognise that aspect of their role which involves quality assurance, inspection and scrutiny of practice.

Firearms Licensing

5.95 The force has set out the objectives and the functions of the Firearms Licensing Section as follows: -

Objectives

Discharge responsibility for the maintenance of Firearms and Explosive Licensing on behalf of the Chief Constable;
Apply relevant legislation in relation to Firearms and Explosives;
Seek to preserve public safety and the peace;
Apply national guidance and policy in an equitable and effective manner;
Provide an efficient service to the public

Functions

Administer the processing of applications for the grant, renewal, and variation of firearm and shotgun certificates;
Review the circumstances of certificate holders who come to the notice of the police to determine their continued suitability;
Conduct enquiries into applicants or certificate holders whose suitability may be in doubt and where appropriate prepare reports for senior management for consideration of refusal or revocation.

5.96 To discharge these functions the Deputy Chief Constable has the delegated authority of the Chief Constable to refuse applications for certificates and revoke certificates where appropriate. The Firearms and Explosives Licensing Section Manager has responsibility for managing the section day to day and developing proposals for policy enhancement.

5.97 The Firearms and Explosives Licensing Section is composed of nine support staff. Four of whom are employed as Firearms Field Officers. Their duties involve interviewing applicants in relation to grants, renewals and variations of firearms and shotgun certificates, conducting relevant enquiries and examining weapons and security arrangements. Each of the Firearms Field Enquiry officers has a specific area of the force for which they are responsible allowing local knowledge and good working relationships with police officers to develop.

5.98 Police officers are involved in the process where notices of refusals and revocations are forwarded by correspondence to respective area supervisory staff. Area police personnel serve any letters advising of refusal to grant or of revocating certificates.

5.99 The Firearms Licensing Section maintains information on the "Shogun" Firearms Licensing software application. This provides a wide range of ancillary functions offering a complete package for the Firearms Licensing function. The system offers appropriate and varying levels of access, which are allocated to meet the needs of each member of section staff. The system is networked allowing read only access across the force. The incident management system (Incident Management and General Enquiry IMAGE) allows police officers to highlight incidents for the attention of the Firearms Licensing Section. Additionally staff trawl the IMAGE system for any incidents of relevance. Evidence of this procedure in practice was found in the Performance Information Briefing Schedule, which includes information concerning refusals, revocations and warnings. As part of the force quality of service survey 40 firearms licensing applicants are chosen at random every 3 months for survey.

5.100 At present Dumfries and Galloway Constabulary are responsible for the administration of 4710 shotgun certificates and 2173 firearms certificates. When the Firearms Licensing Section was visited an examination of records revealed that 12 certificates were overdue for renewal. The circumstances of each of these instances were examined and in each case the weapon was not being held illegally and there were genuine reasons for delay. The risk of administrative delays creates risk of illegally held weapons. Since October 2000 when approximately two hundred expired certificates were awaiting renewal, representing 50% of the section's workload, the section has made significant advances. See Figure 1.

Figure 1: % of outstanding renewals

PNC Compliance Audit: Dumfries and Galloway Constabulary

5.101 A feature of all primary inspections is the Police National Computer (PNC) compliance audit conducted by the Home Office Security Compliance Section on behalf of HMIC. The results of the PNC audit have been reported separately to the force. HMIC noted that the report lists six areas of good practice and nine recommendations. Progress in respect of these recommendations will be reviewed at the next review inspection.