Scottish Government

Strathclyde Police Primary Inspection 2004

3. People Management

Structure of Human Resource Management

3.1 The force's overarching personnel philosophy is to match the need for staff with available resources and create a rewarding and stable working environment. It has taken an important step in achieving this by developing and publishing a personnel strategy. The strategy document sets out the direction and priorities for managing key human resource issues, i.e. recruitment, retention, training, development, promotion and departure. Having a strategy is a starting point but unless it is followed by effective action, the organisation's intentions may not come to fruition. It was therefore positive to see evidence that action plans have been created which identify responsible post holders and facilitate the monitoring of progress made. While it is clear that good progress is being made across a number of areas, some issues still require to be addressed and there has been slippage in others.

3.2 At the time of inspection, the force was in the process of appointing a Director of Human Resources, who will become a member of the force executive. This is a very welcome development which enables professional HR skills and experience at a strategic level to be brought into the organisation from a non-police background. It has also provided the Chief Constable with an opportunity to review the portfolios of the existing four Assistant Chief Constables, in order to ensure a more equitable spread of responsibility, while maintaining command resilience.

3.3 In conjunction with the appointment of the Director of HR, the personnel function was in the process of being decentralised from force headquarters to divisional level. Personnel managers were being appointed for deployment at divisions, assuming responsibility for a function previously undertaken by deputy divisional commanders within a wider remit. The deployment of dedicated HR staff at a devolved level is welcomed by HMIC as it provides the necessary professional skills and experience for people management where it is required. It also enables the force to reassess the role of the deputy divisional commander. HMIC looks forward to reviewing the impact of decentralising personnel management from force headquarters and its consequences for the role of deputy divisional commander during the review inspection.

Recruitment

3.4 Deteriorating pay and conditions of service during the 1970s led to high staff turnover in police forces throughout the United Kingdom. As a result of this, and subsequent improvements in conditions of service, there was a large influx of recruits over a period of several years. Significant numbers of officers recruited then, are now projected to leave the service from 2005 onwards, having served for a 30-year career. This raises the spectre of a dramatic loss of skills and experience and the challenge for forces to attract and train suitable recruits to maintain service levels. Strathclyde Police is active in addressing this issue.

3.5 During 2003, the force reintroduced its cadet programme. This is an excellent opportunity to engage school leavers, who are not yet old enough to join the force as constables but who are interested in a police career. It is a developmental opportunity too, equipping potential candidates with the necessary attributes to train successfully as constables when they attain the minimum age for entry of 18 ¹/ ₂ years. The number of cadets who will become eligible to join the force as constables in the periods 2004/2005 and 2005/2006 is projected at 45 and 55 respectively.

3.6 Measures taken to replace officers who are anticipated to leave the service are welcome but the loss of skills, training and experience cannot be instantly restored. It was therefore particularly positive to find that Strathclyde Joint Police Board (SJPB) had consented for the Chief Constable to be funded in order to recruit an additional 75 officers for a 3-year period. These additional officers have now been recruited and are currently undergoing training. HMIC acknowledges the positive efforts made by the force to address recruitment and experience issues, particularly at a time of active competition in the human resource market.

Training

3.7 The Scottish Police College provides national basic training for new recruits as well as specialist courses which are designed for officers promoted to a new rank or conducting certain specialist functions. At force level, complementary training is required in relation to matters of force policy and procedures. Certain other courses, such as firearms and public order are delivered at force level.

3.8 Strathclyde Police invests significant resources in training, which accounted for 9.3 million, or 2.1%, of the annual budget for 2003/2004. The largest single element of this expenditure was in relation to property, which cost 4.8 million during the period. Since its last inspection by HMIC, the force has taken occupancy of the flagship Force Training and Recruitment Centre (FTRC) on the outskirts of East Kilbride. This was built using the Public Finance Initiative (PFI) and provides first-class training facilities for police and support staff.

3.9 Although training is expensive, the benefits of properly targeted and delivered instruction can easily outweigh the costs incurred. This is relevant both in terms of efficiency savings and the quality of service being delivered to communities and individuals. In order to ensure that training is being provided in relation to key business activities, it is therefore essential that courses being offered are regularly reviewed. HMIC acknowledges that the force actively conducts training needs analysis, based on the organisation's needs and informed by ongoing evaluation and assessment of courses. Account is also taken of factors outwith the training environment such as the results of the force's internal staff survey and the findings of a force review on the role of sergeants and inspectors. HMIC is therefore satisfied that a framework is in place to manage effectively the delivery of training at force level.

3.10 Opportunities also exist for police and support staff to undergo training provided by an external supplier, which may be directly relevant to their role. In relation to instructors at FTRC, this would include academic study to attain a teaching related qualification. For others, the force offers the opportunity of financial sponsorship to undertake further and higher education courses. This typically involves police and support staff undertaking study in their own time to pursue a qualification which offers direct benefits to the organisation. Fees are paid by the force and students sign a formal undertaking to remain in the organisation for a period of time, reflecting the force's investment in them. Courses of study can range from vocational evening classes to undertaking business degrees. Each application is considered on merit, with particular emphasis being given to the perceived benefit to the individual's current role. Where relevant, research projects undertaken as part of a course of study are designed to tackle real issues for the force, which would otherwise not be possible or could only be completed at the expense of other scheduled work. In addition to providing tangible benefits in terms of the skills available, there are also benefits in terms of career enrichment for individuals. HMIC acknowledges the range of external learning opportunities available to staff within an appropriately managed framework.

Staff Appraisal

3.11 The staff appraisal system in use by the force was developed by the Police Advisory Board for Scotland (PABS) and provides a structure to measure performance against set criteria. It replaced a system used by the force which also addressed an officer's potential for advancement. The PABS appraisal form is complemented by a role requirement document, which officers complete at the beginning of an appraisal period to enable key roles and priorities to be agreed with their line manager. This takes account of, and links, agreed action with force goals. Appraisal is then undertaken at the end of the period with reference to the agreed role requirement. While the PABS system is an effective model for staff appraisal, it was not designed to ascertain an individual's readiness for promotion. An officer who is performing highly would therefore attract high appraisal ratings but may not be eligible for promotion through lack of prerequisite qualifications. Indeed, the officer may have no desire to be considered for a higher rank but his or her achievement in a current role can be recognised.

Career Development

3.12 Although identified for action in the force's personnel strategy, no career development policy currently exists. A draft policy which covers postings, secondments and transfers has been prepared and, at the time of inspection, was being considered for implementation. As a separate piece of work, a considerable amount of effort has been expended in relation to developing a specific policy in relation to selecting police officers for promotion. Consultation has taken place on emerging findings and the views expressed in the force's staff survey have been taken into account. While these measures are positive and appropriate, they have further delayed an issue which could and should have been resolved much earlier.

3.13 The desire to move towards a promotion selection process which is application driven, rather than dependent on nomination by supervisors is shared by the Scottish police service. HMIC has previously commented on this area in the inspection of other forces and indicated its support for work being taken forward on a national basis by ACPOS. Its HR Strategy Action Plan advocates the adoption of common core competencies and standards for all Scottish forces.

3.14 The force, however, lacks a transparent procedure to identify officers suitable for advancement. Passing the Police Promotion (Scotland) Examinations is a prerequisite but, thereafter, officers rely on consistently good staff appraisals and selection for a panel interview at divisional or departmental level. Success at this level can lead to nomination from the Divisional or Departmental Head for interview by a 'force panel', consisting of three senior officers. Candidates receive 24 hours notice of their appearance before the panel and it determines, after an interview lasting some 30 minutes and consideration of the officers overall profile, whether or not they are suitable for advancement at that time.

3.15 This system is problematic on two principal grounds. Firstly, officers are unable to nominate themselves for consideration of promotion unless a vacancy in a higher rank has been advertised and officers of a junior rank are invited to apply. These vacancies typically occur in central service organisations such as the Scottish Police College, the Scottish Drug Enforcement Agency and the Scottish Criminal Record Office. Although the force maintains that opportunities to apply for promotion to specific posts within it have been advertised, such examples are clearly the exception rather than the rule. Furthermore, as an application driven process has not been developed, there is little appetite within the force for officers to seek development elsewhere. The absence of transparency in routine selection for promotion can understandably lead to suspicion of patronage in the system.

3.16 Secondly, the force does not advertise nationally for officers to transfer on promotion to it, thereby potentially denying itself the opportunity to attract officers with skills and experience acquired elsewhere. Without a transparent and robust promotion selection process, the force is therefore less able to assess the suitability of potential candidates from other police forces for vacancies at senior levels in Strathclyde Police. In this respect, it has failed to benefit from such processes already established in other forces. It is recommended that the force acts swiftly to introduce a transparent promotion selection procedure, which is capable of assessing both officers within the force and potential candidates from other forces.

Diversity

3.17 Strathclyde Police formed a dedicated Diversity Recruitment Unit in December 2003. Its remit is to target recruitment towards minority communities, taking cognisance of all aspects of diversity. One early success of the unit is a change in the force's stance in relation to posters and recruitment publications. Previously, a group of staff would be depicted including female and black and minority ethnic officers. This can be the subject of adverse comment by people who view such an approach as tokenism. It can also be a less than positive experience for the officers sought out to participate. The force's current generation of adverts do not have any officer portrayed on them, to emphasise that there are no preconceptions about the appearance of potential recruits. HMIC welcomes this thoughtful, responsive and innovative advertising campaign.

3.18 It is unfortunate that in the initial intake of cadets the force was not able to attract any suitable candidates from black and minority ethnic communities. The force recognises that more could be done to encourage these young people and there is evidence of action having been taken to stimulate future interest from this group. A number of applications have been received for the next intake and, at the time of inspection, these were progressing through the selection process.

3.19 In its 2003 thematic review of police race relations entitled ' Pride and Prejudice', HMIC recommended that forces continue to support positive action in relation to attracting staff from under-represented communities. This is also relevant in terms of staff development and it was therefore encouraging to learn that the force had specifically sought applications from serving minority ethnic officers to train for the specialist role of family liaison officer. At the time of inspection, the force had one minority ethnic officer trained in this role and targeted career development interviews were planned in order to generate further interest.

3.20 The force is accredited with the 'Double Tick' standard indicating its achievement in recruiting, developing and retaining disabled people as employees. Recruitment advertisements have been scheduled for certain specialist publications which are aimed at readers from the lesbian, gay, bi-sexual and transgendered community. Many of these are London-based and the force recognises that there may not be a significant number of enquiries generated as a result. Nevertheless, demonstrating the force's commitment to equality and diversity in such a tangible way is supported by HMIC.

Race Equality Scheme

3.21 The Race Relations (Amendment) Act 2000 created a positive duty for heads of public authorities, including Chief Constables, to eliminate unlawful racial discrimination, promote equality of opportunity and advance good relations between people of different racial groups.

3.22 The Commission for Racial Equality (CRE) has a role in ensuring that relevant organisations are compliant with the legislation and HMIC works collaboratively with CRE during the inspection of police forces. Strathclyde Police published a Race Equality Scheme in November 2002, which outlines its obligations under the legislation. The document is aimed at a wide audience and, as well as being published in the English language and on the force's internet website, summaries are available in Arabic, Chinese, Farsi, Pashto, Russian, Somali, Turkish and Urdu.

3.23 The scheme itself identifies 80 functions undertaken by the force which are assessed as being relevant to the general duty under the Act. These are wide ranging and include such issues as investigating deaths, conducting surveillance and publishing forms. They have then been prioritised into high, medium and low impact categories and scheduled in a 3-year action plan. Each function has been allocated to a nominated post-holder and a date for implementation identified. The targets set are ambitious and, at the time of inspection, it was clear that there had already been slippage in some areas. Nevertheless, the force has and is taking effective action in order to implement the scheme's action plan. It is also publishing a status report to indicate progress made.

3.24 Overall, it is clear that Strathclyde Police is actively working to deliver and review the commitments made in the Race Equality Scheme. The scheme is comprehensive in the issues addressed, although HMIC and the CRE believe that it could be further enhanced by greater transparency in the consultation process and more detailed monitoring of employment issues. The force has already identified these and other areas where more explanatory information could be provided in plain language. It is therefore being re-drafted with a target completion date of November 2004 and HMIC will welcome the opportunity to examine the amended Race Equality Scheme at the review inspection.

Occupational Health and Welfare Services

3.25 At the time of the inspection, the force was in the process of major change in the way occupational health and welfare services are delivered to its people. This resulted from a wide ranging review of the Occupational Health and Welfare Unit undertaken on behalf of the force by the Institute of Public Finance Ltd.

3.26 Strathclyde Police operates a dedicated Occupational Health and Welfare Unit (OHWU) situated within the campus of Glasgow Caledonian University. The post of business manager was created in January 2004 and a clinical manager is also deployed there. Six nursing staff are to be recruited who are Registered General Nurses but also hold a diploma in occupational health. This is a real advance on what was previously available. Two further posts have been identified for OHWU. One is a liaison officer to facilitate contact with retired staff, the other is to prepare applications for benevolent funding. Both proposed posts offer the potential to improve service delivery.

3.27 The force has traditionally employed dedicated welfare officers with territorial responsibility across divisions and departments. Following the review, it was determined that this service would migrate from 'welfare' to 'employee assistance' and the existing welfare staff were phased out by July 2004. The Employee Assistance Programme (EAP) was scheduled to commence in June 2004 and a contract had been awarded to an established supplier of these services. The contract is initially for 2 years with an option of a further year.

3.28 The broad range of issues covered by EAP is grouped into three categories; practical concerns, personal concerns and severe psychological/emotional concerns. The service provider will also provide initial and refresher training in critical incident debriefing and any individual follow-up required as a result.

3.29 The service will be accessible 24 hours/7 days by employees using a freephone number which is exclusively designated for Strathclyde Police. Trained and qualified counsellors will answer all calls and assess the caller's needs. Requests for information will be passed to the appropriate person and immediate support will be given over the telephone, where required. Certain performance standards are included, e.g. if a face-to-face session is required, it will be arranged within five working days and held within 20 miles/one hour's travel by public transport of the client's work or home.

3.30 Although the expiry of welfare services was imminent at the time of inspection, HMIC found little evidence of awareness of the new arrangements among its potential users. This is disappointing, as the personal and professional demands on police officers and staff require support mechanisms to be both known and readily available at a time of vulnerability. HMIC will be interested to examine the effect of changing from welfare provision to externally sourced employee assistance, including achievement in relation to performance standards, at the review inspection.

Ill-Health Retirement

3.31 During discussion with local representatives of the Scottish Police Federation, an issue was identified in relation to progressing cases of individual officers who were being considered for medical discharge on the grounds of ill-health. The staff association was concerned that some officers who had been absent from work for 6 months and were receiving half pay, or for 12 months and were receiving no pay, were being disadvantaged. From their perspective, if an officer in this position was not likely to recover sufficiently in order to return to duty, then they should, where appropriate, be medically discharged. The number of officers discharged on medical grounds is discussed in the Results section at paragraph 6.27. HMIC recognises that the force executive is working positively with the Joint Police Board to address the issue and the matter will be revisited at the review inspection.

Innovation and Creativity

3.32 The force has developed a transparent, accountable and accessible process for staff suggestions. A facility has been placed on the intranet website to allow the 'on-line' tracking of suggestions by all staff. The system caters for each stage in the process from seeing whether an idea has already been proposed, through to submission, evaluation and implementation. Staff can 'bookmark' a particular suggestion and monitor its progress.

3.33 There is also an annual Excellence Awards Scheme. Now in its second year, the scheme exists to:

• recognise the excellent work carried out by individuals and teams
• spread good practice throughout the force
• promote excellence at divisional and departmental levels
• encourage innovation and risk-taking.

3.34 The scheme is open to all staff and applications can be submitted on an individual or team basis. A judging panel, chaired by the Deputy Chief Constable, scores the nominations received and feedback is provided in respect of each application. The awards are in the categories of people, customer focus, quality and operational strategy. HM Chief Inspector of Constabulary had the opportunity to attend the prestigious awards ceremony where the successful individuals and teams were presented with a testimonial and trophy from the Chief Constable. HMIC is pleased to acknowledge these very positive efforts which the force is driving to encourage and recognise innovation and creativity.

Special Constabulary

3.35 One long-standing means of augmenting police resources is by maintaining an active cadre of special constables. Special constables are unpaid volunteers who can be trained, equipped and deployed to support regular officers and thereby provide increased visibility in their local communities. In common with other forces, Strathclyde Police has encountered difficulty in recruiting and retaining public spirited individuals to fulfil the role. That is not to say that people do not wish to become special constables but, after some experience has been gained, many go on to join the regular force. In addition, new items of personal protective equipment, such as CS incapacitant spray, require a greater commitment to taking part in essential training courses. This can be an issue for people undergoing instruction during their free time. Fewer recruits, combined with an increase in those leaving, has resulted in a decrease of special constable numbers over 5 years from 338 to 249. Movement in special constable numbers is illustrated below:

Table 1: Special Constabulary

3.36 The issue is not confined to Strathclyde Police and there is good work going on at a national level to address it. The force shares this commitment to increase the establishment of the special constabulary and at force level, a review has been commissioned to examine such issues as:

• marketing
• recruitment methods and procedures
• probationary measures
• minimum training requirements
• role specific training requirements
• driver training requirements
• innovative deployment options
• potential for administrative deployments
• remuneration
• sponsorship
• performance and development monitoring
• efficiency and disciplinary matters.

3.37 The review has, among other measures, included individual interviews with members of the special constabulary and senior managers and an anonymous postal survey of all serving special constables. HMIC supports local measures to promote an effective special constabulary and looks forward to examining progress in this important area at the review inspection.