Foreword
'The picture of Scottish policing is one of positive progress against declared plans.'
HMIC Annual Report 2003-04
Her Majesty's Inspectorate of Constabulary produces force and thematic specific reports throughout the year and makes recommendations and comments in relation to the Scottish police service.The annual report is an opportunity for a broader commentary and allows some consideration of developing and future issues.The report is broadly based on the year from 1 April 2003 to 31 March 2004 but has not been constrained to these parameters when it is appropriate to reflect a more up to date position.
Overview
Generally speaking, the picture of Scottish policing is one of positive progress against declared plans.The Association of Chief Police Officers in Scotland (ACPOS) has developed, in association with the Scottish Executive and other partners, a range of strategies to serve its desire for continuous improvement and good progress is being made.HMIC always issues a health warning with highline crime statistics, nevertheless, a fall of 1% has continued the recent downward trend in reported crime, while detection rates have risen again, this year to 47%, the highest level ever recorded.In addition, while the number of deaths from road collisions has increased in the year under review, there is a general trend of good progress towards the target reductions set for 2010 by the government and overall numbers of collision casualties continue to fall.
At year end, the number of police officers had risen to 15,745 and support staff to 6,929. In addition, there were 1,135 special constables. This includes 178 officers and staff from minority ethnic backgrounds, an increase of 22.8% on last year's total of 145. Coupled with the Scottish Executive's commitment to sustain and increase police numbers, to support special constabulary recruitment and to resource community warden schemes, there is reason to be confident that growth will be maintained.
Policing is delivered in an increasingly challenging environment; nonetheless, the overall review of 2003-04 is a reassuring one.
National and International Developments
Serious and Organised Crime
The United Kingdom Government has announced its plans to address serious organised crime.This will see the creation in England and Wales of the Serious Organised Crime Agency (SOCA). Criminals, of course, do not recognise geographical boundaries and Scotland will need to be alert to opportunities which fall from the development of SOCA. The Scottish police service recognises this and ACPOS and the Scottish Executive are represented on various steering and project groups.While the arrangements are at an early stage of development, it is certain that the Scottish Drug Enforcement Agency (SDEA) will be central to Scotland's involvement in this project.
Crime Recording Standard
On 1 April 2004, all Scottish forces adopted a common crime recording standard. The standard no longer requires corroboration of a crime having been committed and will be recorded, if reported. The development of a standard is widely supported in the police service but will almost certainly result in a rise in recorded crime.This is already evident in those forces which adopted the standard in advance of the commencement date and will be most marked in 'quality of life' issues like vandalism and disorder. It will be of concern if false perceptions of safety develop due to the rise being interpreted simply as an increase in criminality and it will be very important for the police service to take time to place these figures in context so that fears are not raised unnecessarily.
Major Operational Demand
The extensive commitment to ' Operation Ore', the criminal investigation into the use of the internet by paedophiles, continues to place significant operational demands on the police service across Scotland. Considerable numbers of suspects continue to be identified and subsequent investigations require the substantial investment of investigative and technical resources.
The equipping and training of resources to respond to any form of civil emergency, disaster or crisis is crucial, as is the successful liaison between the emergency services. The importance of joint planning, training and awareness was underlined during the major incident at the Stockline Plastics factory in Glasgow in May this year, when an explosion resulted in the deaths of nine people. HMIC was, at that time, engaged in the primary inspection of Strathclyde Police and was able to experience the effectiveness and professionalism of the multi-agency response at first hand.
The G8 Summit 2005 is scheduled to be held at Gleneagles in Perthshire and the preparation and execution of arrangements will be a significant challenge to the Scottish police service. A dedicated planning team is already in place and a major security operation is planned. An event of this nature will require a substantial police presence and mutual aid from police forces and other law enforcement agencies across Scotland and the UK will be required to ensure a safe and peaceful summit.
Bichard Inquiry
The inquiry into the issues associated with the deaths of Jessica Chapman and Holly Wells, chaired by Sir Michael Bichard, made recommendations which will require immediate attention.Two of the key concerns raised were 'intelligence sharing' and 'vetting processes' and HMIC will be able to examine both of these in its forthcoming primary inspection of the Scottish Criminal Record Office (SCRO).
Police Reform
Common Police Services
Work continues on the common police services review and a programme board, which may be viewed as a 'shadow authority', is in place in advance of the anticipated legislative programme.The development of common police services is important to the advancement of policing and the significance of establishing those services centrally, which can support and enhance the cause of local policing, should not be underestimated.HMIC believes this will be a dynamic area of policing which could see a number of developments continuing over a period of years.
Complaints against the Police
Work on the review of the thematic inspection 'A Fair Cop?' continued during the year and the report, entitled 'Quality of Service', was published on 25 June 2004.The report found encouraging progress against previous recommendations and made further proposals for improvements including a review of the police conduct regulations.The Scottish Executive has responded positively and appointed a recent HM Lay Inspector of Constabulary, Mrs Jane Irvine, to lead the review.
HMIC continues to support the Executive's proposals to develop an independent body to review complaints against the police.
Service Delivery
Use of Police Resources
The time police officers and support staff spend at court waiting to give evidence has been the subject of examination over a long period and it must be acknowledged that improvements have been made, some in court programming and others in allowing officers and staff to engage in useful duties while remaining readily available for court.These arrangements are helpful, however, continuing analysis shows that there are still significant periods of unproductive time associated with police officers and staff attending court to give evidence.There are some positive proposals within Sheriff Principal McInnes' report, entitled the Report of the Summary Justice Review Committee, which have the potential for improvement and the issue needs to remain one for constant reappraisal by all of the agencies involved.
Performance Management
ACPOS is presently engaged in developing a framework for performance management that will best serve the aim of continued improvement.HMIC has a special interest and members of staff attend working group meetings.The right balance between quantitative and qualitative approaches is not easily achieved but it is important to develop a process which properly assesses performance in context and leads to the development of best practice and accountability.HMIC is pleased to contribute to this process.
Designated Places
Section 16 of the Criminal Procedure (Scotland) Act 1995 legislated for the creation of 'designated places' for the care and welfare of persons found in an intoxicated state. HMIC has regularly highlighted the considerable demands and difficulties experienced by the police service owing to the detention in custody of persons under the influence of drugs or alcohol. As the result of a determination following a Fatal Accident Inquiry earlier this year, the Scottish Executive is in discussions with the police service and other interested parties and proposals to address this situation will be put forward in due course.
Community Race Relations
HMIC continues to examine diversity arrangements throughout the Scottish police service and is working with the Commission for Racial Equality (CRE) to revise the inspection protocols accordingly. Having documented their Race Equality Schemes, forces are now working to develop these further in conjunction with the guidance set down by the CRE.
During the year, the police service was hit by the shocking revelations of the BBC programme, 'The Secret Policeman'.It again raised serious questions about racism in the police service and was especially concerning because it focused on the behaviour of new recruits. The CRE in England and Wales has exercised its statutory right to carry out an investigation into policing processes.In Scotland, a different approach is being taken.Led by the Commission for Racial Equality in Scotland, a steering group has been developed to commission a review of policing processes, which will focus, amongst other things, on attitude, recruiting and training.The Association of Chief Police Officers in Scotland has been fully involved in the development of this approach and the Scottish Executive, the Office of the Scottish Public Services Ombudsman and HMIC are represented on the steering group.This work will commence in September 2004, take six months to complete and the outcomes will be important drivers for the police service in Scotland.
Technology
Airwave
This year has seen the start of the roll-out of Airwave in Scotland and, in association with this major communications project, forces have been examining their call handling arrangements.Analysis and developing experience clearly indicated that the service was incapable of meeting the continuing rise in demand with the systems in place and new approaches have been developed.There is no common approach, each having been developed to the particular needs of individual forces.However, all have at their core a desire to assess and prioritise calls on police time so that operational responses may be maximised and the indications are that the public generally understands the drivers.Above all else, it is clear that the public wants information and to be kept informed.HMIC will take the opportunity to examine these arrangements during the inspection programme.
Single Non-Emergency Telephone Number
For some time now, there has been a clear understanding that a single non-emergency telephone number, which can be used anywhere to contact police services, would be an advantage.One of the spin-offs would be a reduction in the use, or misuse, of the emergency telephone system.The Association of Chief Police Officers in Scotland is actively engaged in progressing this matter and it is possible that the number already adopted by one police force may serve the whole country.HMIC recognises the benefits which may be accrued and supports this work.
Organisational Development
Recruitment
The so-called 'Edmund-Davies effect' referred to last year remains a concern.While there are still plenty of potential recruits, it is noted that the average numbers applying for each post have fallen from 8.4 in 1999-2000 to 5.8 in 2003-2004.That said, some forces are already making provision for the difficult recruiting years ahead by allocating revenue reserve to additional recruiting now.This has the advantage of not only softening the effects of the hardest periods but also increasing numbers now and flattening future peaks.In addition, the success of Strathclyde Police in developing its police cadet scheme demonstrates a valuable approach for the development of a ready pool of police recruits.
Leadership and Development
To parallel developments in England and Wales, the Scottish Police College now has in place Senior Leadership and Development Programmes I and II.These are important programmes for all senior managers but, in addition, represent significant steps towards gaining appointments as Chief Officer, as the courses are preparation for attending the Police National Assessment Centre (PNAC), success at which advances candidates to a revised Senior Command Module.Successful completion of PNAC and attendance at the Senior Command Module are mandatory requirements for appointment to Chief Officer in England and Wales.This is not yet the position in Scotland but, whenever the arrangements for PNAC and the Senior Command Module have been confirmed, serious consideration should be given to that becoming so.
Transfer Between Forces
Increasingly, forces in Scotland are advertising middle and senior management police posts, particularly at Chief Inspector and Superintendent rank.HMIC believes that this is good practice and considers that there are benefits for both the individual officer and forces.Currently, not all forces participate and HMIC would encourage those who do not, to reconsider the benefits.
General
During the year, HMIC carried out the Primary Inspections of Lothian and Borders Police and Central Scotland Police and the Review Inspections of Grampian Police and Dumfries and Galloway Constabulary. Review Inspections were also conducted for the Scottish Police College and the Scottish Criminal Record Office (SCRO). Thematic Inspections were completed or carried out on the subjects of Family Liaison (Relatively Speaking), Crime Management (Partners in Crime), Community Engagement (Local Connections) and Protective Equipment (Safety First), together with Thematic Review Inspections on Race Relations (Pride and Prejudice) and Police Complaints (Quality of Service). A joint inspection of British Transport Police was also carried out in partnership with HMIC England and Wales.
There is always scope for improvement and, to that end, HMIC has made a series of recommendations aimed at enhancing the delivery of policing in Scotland. Nevertheless, HMIC found that police forces and organisations in Scotland were in a generally good state of efficiency.
In 2004-05, the programme of inspection includes the Primary Inspections of Strathclyde Police and SCRO, and the Review Inspections of Tayside, Fife, and Lothian and Borders police forces and the Scottish Drug Enforcement Agency (SDEA). HMIC is also taking part in a joint Thematic Inspection on Services for Children being led by HM Inspectorate of Education and is currently carrying out a review of Thematic Inspections. This year, HMIC will revisit the findings of a joint internal management review of the Scottish Police Information Strategy (SPIS), conducted last year at the request of ACPOS.
The work of examination, assessment and the drive for improvement will continue.On the one hand, it will be conducted against a backcloth which recognises that policing is essentially about local delivery and optimum outcomes are more likely to be achieved when carried out with the active co-operation and partnership of other local organisations and communities.In this respect, development of the 'Power of Well Being' in the community planning agenda has been a force for good.On the other hand, crime, and particularly serious crime, knows no geographical boundaries and it is important to articulate properly this apparent dichotomy.In considering the development of local partnership working and the response to national security, the police service has demonstrated that these needs can each be addressed and, indeed, there is mutual advantage to ensuring each receives appropriate attention.
Acknowledgments
Once more thanks are extended to the staff and associates in HMIC and beyond who have been consistently helpful and co-operative.
It also proper to acknowledge the particular contribution of two individuals who have completed their terms of office at HMIC in the recent past.The first is Mrs Jane Irvine, who concluded her spell as HM Lay Inspector of Constabulary in June 2004.She made a positive contribution to the work of HMIC, particularly in developing its approach to reviewing complaints against the police.The other is Sir Roy Cameron, who retired from the post of HM Chief Inspector of Constabulary in January 2004.His influence over his many years of association with policing has been significant.
Andrew G Brown CBE QPM
Her Majesty's Chief Inspector of Constabulary for Scotland