Police reform: a developing picture - APRIL 2014
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Police reform:
a developing picture
AP R I L 2014
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4Contents
Introduction and executive summary 2
Governance and accountability 6
Partnerships: collaboration and commissioning 14
Public communication and transparency 20
About us 29
Methodology
This report is based on:
• our survey of senior people from within the police sector on:
risk leadership; partnerships and alternative delivery models;
and public communication
• our review of police and crime plans, police and crime commissioners’
annual reports and police financial statements produced in 2012/13
• our review of police and crime commissioners’ websites and use of
social media
• a detailed review of the 2012/13 annual governance statements
and explanatory forewords of 150 English councils, fire and
rescue authorities and police bodies, comparing them to our best
practice criteria
• a range of case studies illustrating good practice.
Police reform: a developing picture 1Introduction and executive summary
The Police Reform and Social Responsibility Act 2011 (PRSRA) has presented the
sector with a wide range of challenges and opportunities. This report looks at how
the sector is responding.
The PRSRA has resulted in significant To further complicate the This review focuses on three areas
changes to decision making structures governance considerations, although where the sector has opportunities
in the police sector. The election of one corporation sole is directly to develop:
police and crime commissioners accountable to the other, they share key 1 Governance and accountability:
(PCCs) in November 2012 introduced governance mechanisms, including joint getting the most from the structures
a new model of governance and audit committees and internal audit established through the new
accountability in England and Wales. functions. In addition, there arrangements. Setting a tone from
This aimed to “make the police more has been a transient nature to the the top that views proper corporate
accessible, accountable and transparent immediate arrangements while the governance as central to the
to the public”1. sector prepared itself for ‘stage two’ – successful delivery of local police
Police authorities have been a comprehensive consideration of the and crime reduction priorities
replaced by two separate entities. legal and governance requirements 2 Partnerships, collaboration and
PCCs and chief constables have been which needed to be designed, approved commissioning: implementing
established in law as separate legal and implemented by 1 April 2014. robust and proportionate governance
entities and given equal status as While these changes have presented arrangements for collaboration
corporations sole. structural challenges, they have also and commissioning, which retain
Corporations sole are rare in the provided the sector with opportunities accountability without stifling
public sector. Many of the conventional to think about how best to shape itself innovation
governance norms and processes for the future. These challenges cannot 3 Public communication and
developed over decades in other sectors be met, nor opportunities realised, transparency: engaging with the
could not be transferred across to these without strong governance frameworks public and wider stakeholders to
new bodies. Governance and decision that permit innovative and flexible inform and assure them about service
making arrangements needed to be solutions and maintain transparency, performance, financial performance
re-considered within each entity and in accountability and effective risk and governance arrangements
the way they relate to each other. management.
1
Policing in the 21st century: reconnecting police and the people, Home Office, July 2010
2 Police reform: a developing pictureGovernance and accountability However, the recent formation of these between PCCs and police and crime
The new governance and accountability joint committees means many are still panels have been framed in terms of
structures in the police sector rely finding their feet. There are differences the scrutiny aspects of panels’ roles.
heavily on the strength and effectiveness of opinion across the sector as to the While this is an important function of
of relationships. One of the central role of the joint audit committee. panels, we feel that the PRSRA allows
relationships is between the PCC and Some have struggled to reconcile the for a broader approach. Working
the chief constable. Despite some high advisory role envisaged by the Financial collaboratively, PCCs and panels
profile incidents since the election of Management Code of Practice2 with a could also provide a lever for effective
PCCs, the general perception is that view that the audit committee should partnership working, particularly in
this relationship is working well. Over be holding the PCC and chief constable crime reduction and prevention activity.
80% of respondents to our survey to account. Committees have also faced The PRSRA requires the panel to
felt that PCCs have been effective in the challenge of providing assurance to operate “with a view to supporting the
holding chief constables to account. two bodies, even though one of those effective exercise of the functions of the
All agreed that both parties have a bodies is responsible for holding the PCC for that police area”3. A healthy
shared vision for the next three years. other to account. balance between challenge and support
Some structural aspects are still PCCs and chief constables must is required to maximise beneficial
developing and will take time to take the lead in engaging with their outcomes in each policing area.
embed effectively, in particular joint committees, giving them a clear purpose The progress made in developing
audit committees and police and crime with links to strategic objectives and corporate governance has been
panels. Respondents to our survey did risks. However, we also see a role for encouraging. A lot has been achieved
not identify PCCs or chief constables as committees to work proactively with in a short time. This is particularly
one of the top three people responsible the PCC and chief constable, to make impressive given that, in many cases,
for good governance. This is a concern them ‘intelligent customers’ and ensure police bodies have had to design new
because, legally, they are charged they understand and realise the benefits governance arrangements from scratch.
with governance in their organisations. of an effective audit committee. As ‘stage two’ is implemented and
As the key decision makers and leaders Respondents to our survey are governance arrangements become
in the sector, their clarity of direction divided almost evenly on the issue embedded, it will be important for
and tone is crucial to the effective of how effective police and crime PCCs and chief constables to be
development of police governance. panels have been in holding PCCs to champions of strong governance,
Each police area has established a account. There is not always clarity or assurance and accountability
joint audit committee. Respondents consistency of view about the exact role frameworks in their local areas.
largely regard these as effective. of the panel. Many of the relationships
2
Financial management code of practice for the police service of England and Wales, Home Office, 2012
3
Section 28A Police Reform and Social Responsibility Act 2011
Police reform: a developing picture 3Partnerships: collaboration The introduction of PCCs and Notwithstanding this, PCCs
and commissioning changes in funding arrangements, should still seek to be assessed not on
In recent years, much has been made meaning both police and crime the inputs – the number of officers,
of constabularies’ ability to maintain reduction and prevention services for example – but on the outcomes
police officer numbers and the capacity are now commissioned from the they achieve. A mature evaluation
of forces to fight crime. However, same fund, provide an opportunity would judge them on the absence of
a strategy that focuses primarily on to develop better co-ordinated crime, rather than their response to
capacity to respond to and deal with partnership working and accountability it. Moving to this position requires
crime may not be sustainable in the mechanisms based on outcomes. a shift in attitudes in the sector and
economic climate. Good crime prevention and more importantly in the minds of those
PCCs may need to make brave reduction requires effective assessing performance of police areas
decisions about the future shape of commissioning and partnership and holding them to account.
their service delivery models. There will working. With finite budgets,
be benefits in commissioning police doing this on a large scale may mean
services via collaborative working, diverting money away from front line
which is already well underway in parts recruitment and deployment and into
of the sector. other crime reduction strategies. It may
More can be done to develop also mean working more with other Good crime
effective cross sector approaches to agencies and organisations to prevent prevention and
preventing and reducing crime. crime, rather than responding to it later. reduction requires
There were mixed views from our However, it would be a brave effective commissioning
survey respondents about the impact politician who announces a reduction and partnership
of PCCs on partnership arrangements in police numbers to fund more working.
in the sector. It will be important preventative measures. In reality,
for PCCs to track and alter negative there would need to be a period of
perceptions in this area if they are to time in which spending on numbers
demonstrate a beneficial impact on was maintained while spending on
partnership working. preventative measures embedded and
took effect. This is not necessarily
feasible in the financial climate.
4 Police reform: a developing picturePublic communication accountability by enabling instant The majority of respondents
and transparency dialogue and feedback. We encourage to our survey felt that explanatory
The Government has placed local local police bodies and their partners to forewords and annual governance
accountability at the centre of the PCC continue developing this aspect of their statements help the public to
arrangements. The key accountability communications. understand the organisation’s financial
mechanism is the local electorate, who Each PCC has produced a police and risk management. Our review of
provide PCCs with a mandate and and crime plan setting out how it plans explanatory forewords to the accounts
assess their performance in delivering to address local priorities. Our review and annual governance statements
against local priorities at the ballot box. of these priorities identified some (AGSs) for 150 councils, fire authorities
To do this, the public needs to have consistent themes across PCCs. The and police bodies found that most only
access to a range of information which most popular priority areas were: met minimum standards rather than
is easily accessible, understandable • preventing crime – included in 63% providing genuine insight.
and reliable. of police and crime plans The accounts, explanatory foreword
Research undertaken since the • supporting victims – included in and AGS allow the PCC and chief
inception of PCCs has indicated that 51% of police and crime plans constable to communicate effectively
not all PCCs were complying with their • combating anti-social behaviour – to the electorate on how they are
statutory obligations to publish certain included in 41% of police and performing against their priorities and
items of information. Our review crime plans. objectives. Few make the most of this
of police and crime plans identified opportunity. Many bodies present
similar findings, with only 18 out of 42 Each PCC has also produced an information in a way that is often
including all six elements required by annual report to communicate progress incomprehensible to the lay reader.
the PRSRA. against local priorities. While many In 2012/13, finance professionals
Despite not yet meeting all of their respondents saw these as a good way to had to make a number of difficult
statutory transparency requirements, promote local accountability, a quarter judgments about how best to account
PCCs are engaging with the public and did not. Creating annual reports was for the transition to PCCs and the
many have embraced social media as an challenging for PCCs in 2012/13 as creation of chief constables as separate
accessible way to do this. Our analysis they had only been in post for four legal entities. The result was a degree of
of PCCs’ use of social media identified: months. However, all published some variation across the sector that cannot
• all PCCs have some presence on form of public facing document that be explained by local circumstances
Twitter captured progress or performance and which is not desirable in the long
• 30 have a Facebook page to date. Annual reports could be term as it prevents comparison of
• 16 have a channel on YouTube. enhanced by the inclusion of financial performance. The Chartered Institute
information which is accessible to lay of Public Finance and Accountancy
These forms of online communication, readers. (CIPFA) has clarified and confirmed its
when combined with enhancements to existing guidance on the requirements
the more traditional statutory reporting of police bodies, which should help
requirements, can provide an effective to address these inconsistencies for
means of public engagement. They 2013/14.
give local people access to those who
provide their services and increase
Police reform: a developing picture 5Governance and accountability
The Government’s reforms to policing in the UK aimed to “make the police more
accountable, accessible and transparent to the public”4. Strong governance and
accountability are therefore at the heart of the PCC’s role. However, the Government
has given each PCC and chief constable considerable freedom to design governance
arrangements.
Police governance and accountability framework
Accountability
Assurances POLICE AND
CRIME PANEL
POLICE AND
PUBLIC
AUDIT COMMITTEE
CRIME
COMMISSIONER
CHIEF
CONSTABLE
This ‘blank sheet of paper’ approach Relationships between the PCC the other adds an interesting dynamic
means that governance arrangements and the chief constable to governance and accountability in
have developed and matured differently One of the greatest innovations in the the sector. The relative complexity
across the country. However, the new police governance structures is of the arrangement, coupled with the
PRSRA mandates three governance the creation of two new corporations scope to develop and agree locally how
structures that should be in place in sole: the PCC and chief constable. they will work in practice, means that
every area. These are: This moves governance away from the relationship between these two
• the relationship between the PCC the corporate board model which was individuals is key to ensuring good
and the chief constable in place under the police authority governance in the police.
• audit committees arrangements, to one in which both It is difficult to measure reliably
• police and crime panels. bodies are established as separate legal how those relationships are developing.
entities. The unusual situation of one However, 84% of respondents to
corporation sole being accountable to our survey agreed that the PCC is
4
Policing in the 21st century: reconnecting police and the people, Home Office, July 2010
6 Police reform: a developing pictureeffective in holding the chief constable The office of the PCC is effective in holding
to account. This suggests that inside the chief constable to account (%)
the sector this aspect of the new
arrangements is considered broadly
effective. Nevertheless, the picture
in each area will depend on the 30 54
personalities involved. The high-profile
cases of some chief constables leaving
their posts have been discussed in detail
by the Home Affairs Select Committee STRONGLY AGREE TEND TO AGREE
and in the press. Notwithstanding this,
the level of chief constable turnover has
14 2
not been as high as many might have
expected prior to the election of PCCs
in 2012.
Respondents to our survey were
unanimous in their view that their PCC
TEND TO DISAGREE STRONGLY DISAGREE
and chief constable have a clear, shared
understanding of strategic priorities
over the next three years. While the The PCC and the chief constable have a
clear, shared understanding of strategic
effectiveness of the new arrangements
priorities for policing over the next three While the
may be heavily dependent on the years (%) effectiveness of the
strength of relationships, there is
new arrangements may
much to suggest that the key one
be heavily dependent on
between PCCs and chief constables
70 30 the strength of relationships,
is currently strong.
there is much to suggest that
the key one between PCCs
and chief constables is
STRONGLY AGREE TEND TO AGREE currently strong.
0 0
14
TEND TO DISAGREE STRONGLY DISAGREE
Police reform: a developing picture 7Audit committees
The Financial Management Code of Practice (FMCP)
WHO DRIVES GOOD GOVERNANCE? requires that PCCs and chief constables have an independent
audit committee5 and recommends that this requirement
Our survey respondents identified organisations’ most senior is met through a shared body. All PCCs and chief
officers as having the impetus to foster good governance constables have established joint audit committees since
arrangements. However, PCCs and chief constables are November 2012.
seen as less important drivers of good governance. This is The FMCP sets out the audit committee’s role as
a concern as they are officially charged with governance in considering the internal and external audit reports and
their respective organisations. advising both bodies on good governance principles and risk
CFO/treasurer management arrangements. It also recommends the following
practical considerations:
OPCC chief executive • Membership – the audit committee should comprise
between three and five members who are independent of
Deputy/assistant chief constable the PCC and the force
• Terms of reference – the audit committee should
Chief constable establish formal, annually reviewed terms of reference
covering its core functions. Best practice principles
Police and crime commissioner
should be considered in determining the activities of
the committee
• PCC and chief constable representation – the executive
Other
of the PCC and the force command team should be
represented at audit committee meetings
0 5 10 15 20 25 30
% Beyond this there is little in the way of police specific
guidance about how the audit committee should be
structured and what its role and functions should be.
The FMCP makes it clear that the role of audit
committees is “to advise the chief constable and PCC”.
However, many audit committee members see their role as
one of holding the PCC and the chief constable to account.
This points to a tension between the advisory role envisaged
by the FMCP and a scrutiny role which many audit
committee members may be more familiar with from their
experiences outside of the police or, in some instances, in
their role as former police authority members.
5
Financial management code of practice for the police service of England and Wales, Home Office, 2012
8 Police reform: a developing pictureparty assuming the other has taken influential and authoritative source of
“The audit committee risks
responsibility for managing particular advice about good governance and risk
becoming a bulldog with
risks. Audit committees are ideally management practice.
rubber teeth.” placed to review the governance of There are a number of potential
POLICE AUDIT COMMITTEE MEMBER significant collaboration arrangements barriers to audit committee
to assess whether they remain fit effectiveness in the police sector. Given
The PRSRA vests sufficient holding for purpose in new organisational how early in their development most
to account powers in the PCC and structures. They should consider how audit committees are, it is too early to
the police and crime panel. Audit best to work with the audit committees be sure that they are overcoming all of
committees should instead focus on of partner organisations to ensure there these barriers effectively.
their assurance role by ensuring their is a shared understanding of risks and Most independent members are
work plan concentrates on some or all assurances in place. In situations where engaged for four days a year, reflecting
of the following areas: forces are involved in long-term, wide- the typical quarterly cycle of meetings.
ranging collaborations, setting up a However, to really understand the
High risk projects joint audit committee across forces, or risks and possible sources of assurance,
Audit committees need to focus their holding periodic joint audit committee committee members need time to
work on areas of change such as major meetings across forces, might be engage with both bodies outside of this
construction projects, the establishment appropriate. cycle – perhaps by scheduling regular
of new collaboration arrangements, or meetings with officers and staff, or by
significant changes to staff structures Internal audit
visiting the force’s operational bases.
or officer roster patterns. The Audit committees are the champions of
independence of committee members risk management and good governance
will enable them to constructively in their organisations, so they need to
challenge senior officers about the be proactive in ensuring that internal
controls in place over significant audit support this agenda. The best
risks, and to advise the PCC or chief audit committees are challenging
constable where those controls are internal audit teams to refocus their
Good governance
not effective. work on areas where it will add most
of collaboration
value to the organisation, informed by
Collaboration their knowledge of key risks. Audit
arrangements requires
Good governance of collaboration committees also need to ensure their both parties to be
arrangements requires both parties to providers are complying with new clear about who owns
be clear about who owns which risks. Public Sector Internal Audit Standards which risks.
Where two or more organisations are (PSIAS).
working together, there is a danger All of these activities will increase
that governance and risk management the value of the committee’s work and
will fall between two stools, with each help ensure the committee becomes an
Police reform: a developing picture 9Another challenge for audit committees reference which has been agreed by the The PCC meets regularly with the chair of
is to manage their time to meet the PCC and chief constable will help to the audit committee to discuss risks and
needs of both bodies. There is a real avoid some of the potential conflicts assurances (%)
threat that the audit committee’s work inherent in the new arrangements.
plan and agenda is driven more by In our experience, audit committees
one party than the other. This risks are most effective where they have
13
weakening the effectiveness of the face-to-face meetings with the PCC 53
governance and assurance mechanisms and the chief constable. This seems
supporting the other body. an obvious point, yet over 30% of
Encouragingly, our survey suggests our survey respondents did not think
STRONGLY AGREE TEND TO AGREE
that audit committees are managing that committee chairs were meeting
this aspect of their role successfully. regularly with the PCC and chief
Over 90% of respondents either agreed constable or other senior officers. 24 10
or strongly agreed that they were Without this regular interaction, it is
satisfied the audit committee allocates difficult for PCCs and chief constables
sufficient time to the business of both to be clear about what they want from
organisations to provide appropriate their audit committees and to be sure
assurance to each on key issues that they are getting it. TEND TO DISAGREE STRONGLY DISAGREE
and risks.
The role of the PCC in holding
I am satisfied the audit committee The chief constable or an immediate report
the chief constable to account adds a allocates sufficient time to the business of meets regularly with the chair of the audit
unique dynamic. Audit committees both organisations to provide appropriate committee to discuss risks and assurances
may need to provide assurance to the assurance to each on key issues and risks (%)
(%)
PCC to support them in this aspect
of their role, or there may be points
of contention between the PCC and
the chief constable. There is a risk 37 55 29 39
that committees find themselves
unintentionally ‘taking sides’ or even
acting as a ‘referee’. Having some
clarity of purpose via a terms of STRONGLY AGREE TEND TO AGREE STRONGLY AGREE TEND TO AGREE
8 24 8
0
TEND TO DISAGREE STRONGLY DISAGREE TEND TO DISAGREE STRONGLY DISAGREE
10 Police reform: a developing pictureWhile PCCs and chief constables should be responsible
for engaging with their audit committees and setting the
committee’s overarching goals, there is an important role for
audit committee chairs to assist PCCs and chief constables
in becoming ‘intelligent customers’ of the committee. This
process of education will help both parties to ensure that the
committee’s work is adding value and should increase the
impact and profile of the committee within both bodies.
GUIDELINES FOR AN EFFECTIVE AUDIT COMMITTEE
The presence of a clear purpose that is linked to the
strategic objectives and risks of the organisations they
operate within. In a police context, this means that
committees should agree terms of reference with the
PCC and chief constable.
The ability to balance the demands of the PCC and the
chief constable. Having a regular dialogue with both
parties about what risks they face and what assurance
they require from the committee will ensure the
committee’s work has impact. The committee should
be prepared to adapt and improve when necessary.
Planning work to make effective use of limited time.
Review standing items on agendas, and consider
whether they address the key risks faced by the PCC
and the chief constable. Audit committee annual reports
allow committees to discuss their own effectiveness and
communicate their impact on the wider organisation.
Membership is key. Audit committees need a skilled
chair who can keep the work of the committee on track.
There needs to be a balance of financial and operational
experience. Committees with a varied background tend
to be most effective.
Police reform: a developing picture 11Police and crime panels
The picture of strong arrangements “The police and crime panel is weak as water.”
emerging between the PCC and chief
“Tendency to behave in similar way to former police authority.
constable contrasts with our findings
about police and crime panels. Only
Have not yet come to terms with their role as holding commissioner,
54% of respondents to our survey
rather than chief constable, to account.”
agreed that the police and crime panel is “They are still finding their feet.”
effective in its role of holding the PCC
to account.
SURVEY RESPONSES
The police and crime panel is effective in
holding the PCC to account (%) The requirements of the PRSRA mean There is a broader issue of the
that panels will always have a large limited formal powers afforded to
and varied membership. This presents panels under statute. One consistent
7 panels with both challenges and difficulty that panels have faced is
47 opportunities. They must include identifying exactly what their remit
co-opted members representing each and role is and how to exercise this
local authority in the police area, effectively. There have been suggestions
none of whom are necessarily used from some quarters6 that panel
STRONGLY AGREE TEND TO AGREE
to working together. This potential powers could be increased to deal
unfamiliarity is not helped by the with this uncertainty.
14 possibility for ‘churn’ in membership Much of the rhetoric surrounding
during a PCC term, particularly where panels has been adversarial and focused
32
the members’ authorities operate to on the scrutiny element of their role
different electoral timetables. in holding PCCs to account. This
Panels must contain at least two adversarial approach risks limiting
TEND TO DISAGREE STRONGLY DISAGREE independent members. Some panels the impact that they might have on
have had difficulty finding members policing and crime.
with the right set of skills and The PRSRA makes it clear that
experience to fill these independent panels should support the PCC in the
posts. Furthermore, it is not always effective exercise of their functions.
clear which body is responsible for As a group of well-connected local
providing training, support and politicians, police and crime panels
guidance to panel members. These can help PCCs to develop links and
structural problems make it difficult where necessary apply leverage in their
for the panel to scrutinise the work of local authorities. This potentially gives
the PCC effectively. them a key role in the local police area,
particularly in relation to partnership
working on crime reduction and
prevention.
6
Home Affairs Select Committee – Police and crime commissioners: register of interests, May 2013
12 Police reform: a developing pictureA major barrier to panels having a more rounded role
is the limited resources available for them. While PCCs
and partners may be understandably reluctant to devote IMPROVING YOUR GOVERNANCE CULTURE
funds from their limited budgets to support panels, there
needs to be a frank discussion about how to maximise the Invest time in understanding your governance culture.
value of their role – even if that does require committing Do not assume current arrangements are working well.
more resources to training, development and administrative
Involve all those responsible for effective governance:
support. PCC, police staff, senior officers, police and crime
An effective scrutiny function will become increasingly panel members, and audit committees. Ensure they
important given the difficult decisions PCCs face. While are all aligned to achieve strategic goals effectively
there are pockets of good practice around the country, we and ethically.
suggest that the following features could improve panels’
Reinforce the principle that good governance equals
work where they are not already in place:
good decision-making, equals good performance.
• A forward plan setting out the policy areas in which the
panel can most effectively support and challenge the PCC Spend time with stakeholders on demystifying
to improve overall outcomes governance and spreading understanding that everyone
• Ensuring the focus is on strategic issues that really matter should work this way. It is not just a task for audit
and finance.
to stakeholders by engaging with the public and other
partner organisations Focus on real behaviour change, not box ticking.
• Reviewing the training needs of panel members and
identifying resources to fund them Identify and support those who are not showing the
• Developing stronger means of communicating with the desired behaviours.
public to demonstrate the impact of the panel’s work – Share stories and reward those who exemplify the
for example, using social media or webcasting meetings desired cultural change.
over the internet
The election of PCCs was a wholesale change in the way
policing in England and Wales is governed. It is therefore
understandable that governance structures continue to
develop. The PRSRA requires each area to have an
audit committee and a police and crime panel, but offers
little direct guidance about what their role should be.
We encourage all those involved in police governance to
ensure that they are maximising the benefit they get from
these two statutory requirements.
Embedding good governance is never quick or easy,
but a sustained focus on a good governance culture can
lead to genuine improvement in the way the PCC and
chief constable work together for the benefit of the public
they serve.
Police reform: a developing picture 13Partnerships: collaboration
and commissioning
PCCs will need to take brave decisions about the future shape of their service
delivery models. Different approaches could be appropriate for different aspects of
their role with police services being commissioned via the collaborative working
already well underway in the sector. This can provide economies of scale and
efficiencies to demand-led areas of policing; and the capacity to fight and solve crime
once it is committed. To meet their crime reduction and prevention responsibilities,
a cross sector approach is key.
In recent years, much has been made More can be done to develop Police areas should seek to be assessed
of the police’s ability to maintain effective cross-sector approaches to not on the inputs provided – for
officer numbers and the capacity to preventing and reducing crime through example, the number of officers – but
fight and solve crimes. While the effective partnership working and on the outcomes they achieve. A mature
image of the bobby on the beat is may require the sector to commission evaluation of performance would judge
compelling, we question whether this services differently. This may mean them on the absence of crime, rather
model is sustainable in the economic diverting money away from the than their response to it. Moving to this
environment. traditional front line of policing and position requires a shift in attitudes in
There remains a tendency to believe into other crime reduction strategies the sector and more importantly in the
that an area with significantly higher and working with other agencies and minds of those assessing performance
police officer numbers and a higher organisations to prevent crime, and holding the sector to account.
number of solved crimes is performing rather than respond to it later.
more effectively than an area with fewer Much good work has been
officers and fewer solved crimes. A done in this arena by community
more mature assessment may reveal that safety partnerships. However, the
the reason there are fewer solved crimes introduction of PCCs and changes
is not because the police in that area are in funding arrangements provide an
less effective, but because fewer crimes opportunity to co-ordinate partnership
have been committed in the first place working better and focus on outcome-
due to effective prevention strategies. based accountability mechanisms.
0
1
2
3
14 Police reform: a developing pictureCollaboration A key feature of delivering these The creation of the office of the PCC
Prior to the election of PCCs, the positive examples is a strong political has had a positive impact on the local
primary response to austerity was and operational enthusiasm for closer police force’s pre-existing collaborative/
partnership working arrangements (%)
collaboration within the sector. Many working and a relentless focus on
forces either have well established achieving the desired outcomes.
collaboration agreements or are putting Much pre-existing public 17
these in place. As explored in our recent sector collaboration has focused on
53
‘Fire and rescue collaboration’ report, sharing back office functions such
these arrangements have been expanded as human resources (HR), finance
in some cases to include local fire and information communications
services. The many benefits in this type technology (ICT). In addition, police STRONGLY AGREE TEND TO AGREE
of arrangement can include: forces have also looked at the greater
• sharing central overheads across a benefits that can be achieved through
collaboration in front line services, 19 11
wider operational base
• economies of scale in combining including specialist service areas such as
similar operations, such as vehicle firearms, serious criminal investigation
fleet maintenance and forensic services.
• better use of assets, for example by It is difficult to assess accurately
what impact the introduction of PCCs TEND TO DISAGREE STRONGLY DISAGREE
co-locating emergency staff and
vehicles in the same building has had on collaboration arrangements.
• improved response times through Responses to our survey would suggest
increased co-responding a mixed experience: 30% of respondents
• more co-ordinated responses to disagreed that the creation of the office
major incidents, as the police and fire of the PCC has had a positive impact
staff are used to working together. on the local police force’s pre-existing
collaborative/partnership working
There are a number of positive arrangements. In a number of instances,
PCCs have decided to take a different Several chief
examples of joint working. These
approach to collaboration from the constables have
include: front line service delivery,
direction set by the outgoing police identified collaborative
such as combined safety visits to
authority. arrangements as
vulnerable older people; co-locating
significant issues in their
police and fire staff in existing property;
annual governance
and procurement and build of joint
headquarters and command and
statements.
control centres.
Police reform: a developing picture 15While collaboration has many benefits,
it also poses risks, which the sector will
need to manage to ensure the benefits BS 11000: STRUCTURED COLLABORATION
are realised. The need to establish
effective governance arrangements will In 2010, the first national standard on collaboration, BS 11000, was released.
be central to this. It represents an evolution in how partnering can be managed. Structured
Our survey identified some collaboration is relatively new to the UK and early adopters include the defence,
aerospace and rail industries. There could be considerable benefits for the police
concerns around the governance of
sector in learning how to apply the concepts and tools set out in the standard.
collaborations. Although almost
These include:
90% of respondents agreed that
• changing behaviours and improving trust, to make collaboration more efficient
appropriate governance arrangements
within and between organisations
are in place for overseeing collaborative
• introducing a common language to improve communication between parties
arrangements, narrative comments
suggested that those arrangements are • aligning aspirations and capabilities between partners and playing to
not yet fully developed. Furthermore, organisations’ strengths to improve productivity
several chief constables have • providing greater continuity and flexibility of resources
identified collaborative arrangements • enhancing governance, for example by adopting shared approaches to risk
as significant issues in their annual management
governance statements. • promoting innovation and continuous improvement.
Whatever approach PCCs and chief
constables decide to take, the impact of
I believe there are appropriate governance
funding reductions means that doing “Police authorities gave a
arrangements in place for overseeing
nothing is not an option. Collaboration collaboration by the force (%) strong governance model
will continue to be a central plank in [for collaboration]. Now this
the sector’s development, particularly has been abandoned and
as it relates to making best use of nothing tangible [has been]
police officers and an area’s capacity 28 61 put in place.”
to respond to crime.
SURVEY RESPONSE
STRONGLY AGREE TEND TO AGREE
11
0
TEND TO DISAGREE STRONGLY DISAGREE
16 Police reform: a developing pictureCommissioning will result in different types of service I believe that commissioning of crime
The PRSRA places responsibilities on being commissioned in local areas. It prevention and crime reduction services
PCCs for commissioning activities will be useful for PCCs to consider will be improved as a result of the new PCC
arrangements (%)
which lead to the prevention and some of the messages in our recent
reduction of crime. From October report ‘Responding to the challenge:
2014, this will be extended to include alternative delivery models in local 24
victim services. Prior to the creation government’.
of PCCs, the responsibility for 46
commissioning these services rested Partnership perceptions
mainly with central government. Seventy per cent of respondents to our
Localising decisions about allocation of survey felt positive about the potential
STRONGLY AGREE TEND TO AGREE
these funds is one of the fundamental impact of PCCs on the commissioning
changes brought about by the of crime reduction and prevention
introduction of PCCs. services, while 30% had reservations 19 11
Community safety funding is about this.
now included as part of the overall In our ‘2014 local government
police grant from the Home Office. governance survey’, we asked 80 local
Funding policing and key elements of authority leaders whether the transition
crime reduction and crime prevention from police authorities to PCCs TEND TO DISAGREE STRONGLY DISAGREE
from the same fund presents PCCs has had a positive impact on local
with a unique opportunity to manage partnership working arrangements.
Fifty-nine per cent of respondents The transition from police authorities to
resources strategically across a number
police and crime commissioners has had
of themes. It gives them a chance to disagreed with this statement. a positive impact on local partnership
manage demand for those aspects of This discrepancy between working arrangements (%)
services which arise as a result of a surveys in the effectiveness of
crime being committed. partnership arrangements suggests a
It will be for each PCC to determine lack of understanding of the other’s 2
the balance between allocating concerns and suggests that some of 39
resources to reduce and prevent crime the relationships between PCCs and
and maintaining the capacity to respond key local partners are not as strong as
to crime effectively. In delivering crime they need to be. It will be important
reduction and prevention objectives, all for PCCs to track and alter these STRONGLY AGREE TEND TO AGREE
PCCs will need to make brave decisions perceptions if they are to demonstrate
and explore different approaches to a beneficial impact on partnership
12
policing. Their ability to engage with working and deliver their crime
partners and agencies throughout their prevention and reduction objectives.
47
areas will be key. In some cases, this
TEND TO DISAGREE STRONGLY DISAGREE
Police reform: a developing picture 17The difference in perceptions might The office of the PCC has a commissioning The office of the PCC has sufficient
be explained by a lack of clarity over strategy showing how it intends to expertise to commission crime prevention
commissioning intentions. Although commission crime prevention and crime and crime reduction services for the local
reduction services (%) area (%)
respondents to our police survey were
generally positive about the PCC’s
intentions in commissioning crime and 22 16
prevention services, 30% disagreed with
48 49
it altogether.
This uncertainty within the
sector was mirrored when we asked
respondents about their views on STRONGLY AGREE TEND TO AGREE STRONGLY AGREE TEND TO AGREE
the office of the PCC’s expertise
in commissioning crime reduction
services, and the arrangements put 22 8 8
in place to determine how to award 27
grants and monitor the value for money
achieved from grants awarded.
TEND TO DISAGREE STRONGLY DISAGREE TEND TO DISAGREE STRONGLY DISAGREE
The office of the PCC has adequate The office of the PCC has adequate
arrangements for determining how crime arrangements for monitoring the value for
prevention grants should be awarded to money achieved from crime prevention
third parties for the provision of crime grants awarded to third parties for the
prevention and crime reduction services provision of crime prevention and reduction
(%) services (%)
21
27 46 49
STRONGLY AGREE TEND TO AGREE STRONGLY AGREE TEND TO AGREE
22 5 3
27
TEND TO DISAGREE STRONGLY DISAGREE TEND TO DISAGREE STRONGLY DISAGREE
18 Police reform: a developing pictureApproaches to commissioning
Many PCCs are clear about what they
want to achieve. But commissioning, SETTING UP AND MANAGING EFFECTIVE PARTNERSHIPS
like much of PCC arrangements, is still
in its infancy. Leadership and vision
A number of different approaches Senior officers need to be clear about what the partnership aims
to achieve, and to communicate this vision effectively to staff,
to allocating community safety funds
partners and other stakeholders.
have emerged since November 2012.
Each PCC has adopted a slightly Test the business case
different point on the spectrum Any partnership should be supported by a business case that sets
between ‘status quo’ – maintaining out the expected costs, benefits and risks. Where arrangements
pre-PCC funding arrangements – are already in place, consider revisiting the business case to ensure
and a ‘blank sheet of paper’ approach, benefits are being delivered as envisaged.
with no funding guaranteed to existing
Set clear objectives and report on performance
providers. One difficulty for PCCs
There should be a succinct list of clear, outcome-focused objectives
has been that, on election, many
for all partnership arrangements. Performance against these should
inherited funding commitments from be measured and reported regularly, with clear responsibility for
the outgoing police authorities. Some actions to address any underperformance.
have decided to honour all existing
commitments while others sought to Get governance right
reshape commissioning earlier in their There needs to be clear accountability for the performance of
terms. Whatever their impact on the partnerships. Decision-making processes should be streamlined
commissioning of local services to enough to allow speedy resolution of operational issues, while
giving time for adequate debate between the views of all partners.
date, a challenge that persists is linking
Shared mechanisms such as joint assurance frameworks and
funding and inputs to outcomes which
risk registers can help partners to develop effective governance
are the key measure of a PCC’s success.
arrangements.
Build flexibility into the model
The demands placed on public services are changing all the time,
so partnership arrangements need to adapt in the same way.
Depending on the type of arrangement, partners may wish to:
agree periodic break points and build these into agreements; set
milestones at which they will refresh the business case; and revisit
objectives and performance measures as part of the annual budget-
setting cycle.
Police reform: a developing picture 19Public communication and transparency
As public sector organisations, police bodies exist to serve society. They have a
statutory duty to communicate with the general public and other stakeholders
about their plans, performance and governance arrangements.
Transparency is an essential part of While respondents to our police survey given the creation of the PCC and the
public life and as such forms a key agreed that these formal requirements chief constable as separate corporations
part of what is expected of PCCs. can add value, in practice this sole, coupled with the unique
Police bodies need the co-operation potential is not realised; the majority accountability relationship between the
of the communities they serve to be only meet minimum standards, two, creates a challenge for accounting
effective in their role and this can only rather than maximise opportunities professionals.
be achieved if those communities trust to communicate effectively and As well as these formal outputs,
the information they are given. Where transparently to the wider public. This PCCs have established other, more
this trust breaks down, the impact is similar to our findings from our local immediate mechanisms for engaging
on relationships can be irreversibly government governance reviews which with the public, particularly via
detrimental. highlight a continued tendency for social media. This development
The Government has placed some organisations to treat statutory is encouraging and, along with
local public accountability at the requirements as ‘tick-box’ exercises, enhancements to the formal statutory
centre of its police reform. Although rather than opportunities to engage reporting requirements, could provide
police and crime panels have a role with the public on how they are a well-balanced and effective means of
in scrutinising PCC performance, it delivering their responsibilities. communicating with their electorates.
is ultimately for the local electorate In recent years, there has been a
to provide PCCs with a mandate and growing debate over the length and
assess their performance in delivering clarity of public sector accounts. Police
against local priorities. To do this, the bodies have done little to address
public need to have access to a range of this concern. The financial reporting
information which is easily accessible elements of annual reports could be
and trustworthy. Police bodies formally enhanced to meet the needs of lay
do this via: readers and the wider public to address
• the PCC’s police and crime plan this issue. Thinking innovatively
• the PCC’s annual report about how to meet statutory reporting
• the annual accounts, including requirements is key to enhancing
the explanatory foreword transparency and engagement with
• the annual governance statement. the public. This is particularly the case
20 Police reform: a developing pictureTransparency and engagement However, simply ensuring PCCs are making good use of
One measure of transparency is the compliance by publishing the online communications and social
public availability of key information information required by statute is media. Research for this report
about the PCC, its office and how it not enough to secure the levels of indicated that most websites are easy
is carrying out its role. This aspect has transparency to which PCCs aspire. to locate and navigate but, in some
been the subject of a number of reviews Consideration also needs to be given cases, the information sought was
since PCCs were elected. to how best to make information not immediately apparent. In some
In November 2013, Grant Thornton accessible to the public. instances documents were so deeply
sponsored the CoPaCC thematic, The transition from police buried they would not be sufficiently
‘PCC Statutory Transparency’7. This authorities and subsequent change of accessible to an interested member of
focused on PCC compliance with governance structures means that less the public.
publishing the information listed by information is automatically available
the Elected Local Policing Bodies via the records of public meetings.
(Specified Information) Order 2011 and Therefore, to achieve high levels
its subsequent amendments to facilitate of transparency, PCCs have to be
their accountability to the public. The proactive and innovative in publishing
findings suggest that PCCs were not data and engaging with the public.
yet meeting all statutory requirements. While performance against the order
These findings were supported may be mixed, PCCs are using a variety
by a similar, independent exercise of channels to communicate with their
undertaken by the National Audit electorate. This includes face-to-face
Office (NAO)8. meetings with the public – for example
While this quantitative assessment surgeries, public appearances and
of PCC transparency is useful, it does regular public meetings. Ninety-eight
not take into account the qualitative per cent of PCCs also make a record of
aspects of published information and meetings available via their website and
the apparent desire by PCCs to achieve nine PCCs have introduced webcasting
high levels of transparency. of meetings.
7
CoPaCC – PCC statutory transparency, November 2013
8
National Audit Office (NAO) – Police accountability: landscape review, January 2014
Police reform: a developing picture 21Use of digital and social media by PCCs (%)
YouTube channel 16 EXAMPLES OF GOOD WEB COMMUNICATIONS
Facebook 30
41
Humberside PCC’s website was particularly easy to
Minutes/papers on website
navigate, with good content
Twitter 41
Webcast meetings 9 Northamptonshire Police and PCC have a shared
website, which is well configured to be viewed on a
0 10 20 30 40 50 tablet. Each organisation has its own tab on the website
making it easy for the user to move quickly between
the two
All PCCs have some presence on Twitter, either their own
account or a corporate account set up in the name of their West Midlands PCC was the only PCC where all 25
office. Most PCCs are also active tweeters, with 33 accounts disclosures required by the Specified Information Order
showing tweets less than a day old, seven posting tweets could be found. This was achieved by dedicating a page
of the PCC’s website to the information required under
within the last week, only one with tweets over a month old
the order and providing links to where the information
and one with no activity at all. Facebook (71%) and YouTube
was available
(38%) were particularly popular with PCCs, while other
social media used include Flickr, LinkedIn, Google+ Greater Manchester PCC has a function which allows
and Pinterest. the user to search for decisions by date range, decision
There are real benefits in this approach to social media. maker, decision status and keywords. There is also
It provides a platform for PCCs to distil their messages and a filter, so a user can select only key decisions.
present them in an accessible format which can often be This function will be increasingly useful
more engaging than formal publications. It also provides Staffordshire PCC’s YouTube channel is well organised
a means for local people to access those who provide their instead of being just a list of videos
services and share their thoughts and concerns. This increases
accountability by providing a mechanism for instant dialogue
and feedback. We encourage local police bodies and their
partners to continue to develop this aspect of their public
communications and the value it adds to their engagement
with the public.
22 Police reform: a developing picturePolice and crime plans Quality was variable and the excessive lengths of
PCCs are required to produce and publish a police and crime some plans impaired their effectiveness as a means of
plan. To comply with the PRSRA, these plans should include communicating with the public. However, very few plans
information about areas such as crime objectives, financial were of poor quality throughout. The most robust section
and other resources, how performance will be measured, tended to be that dealing with the thematic strategies,
and crime and disorder reduction grants. priorities and direction that the individual PCC wanted to
Of the first police and crime plans published by the 42 take with policing.
PCCs in England and Wales, only 18 plans comply with The several reports that were very good throughout,
every requirement in the PRSRA. The most common missing in general, included:
element – in 20 plans – was the disclosure of the crime and • the required elements in a format that was easy to
disorder grants. understand
• well-defined targets, so that the public would be able to
Compliance with the police and crime plan elements required judge how well the PCC had performed
by statute (%) • enough detail to give the reader an understanding of
Complies the challenges faced by the local area and how the PCC
The elected local policing body’s police and crime objectives intended to meet those challenges.
42
The means by which the chief officer of police will report to the elected local
policing body on the provision of policing
40
EXAMPLES OF GOOD POLICE AND CRIME PLANS
The financial and other resources which the elected local policing body is to
provide to the chief officer of police to exercise his/her functions Hampshire – targets pulled out of the text via bull’s-
38 eye graphics were very attention grabbing and clear.
The report was well-structured and well signposted
The policing of the police area which the chief officer of police is to provide
37 Leicestershire – numeric points and trends were
The means by which the chief officer of police’s performance in providing illustrated with graphs, making it simpler to see the
policing will be measured points being made. The structure was easy to navigate.
35 The appendix was good for quick reference as these
The crime and disorder reduction grants which the elected local policing body documents are very long. The targets and how they
is to make and the conditions (if any) to which grants are to be made are to be measured were fully defined
22
Nottinghamshire – this gave an informative breakdown
0 20 40 60 80 100
of the PCC’s vision and a breakdown of actions to
support this and who would carry them out. It gave a
There is a marked difference in the way PCCs approached rationale for each target
this opportunity to communicate their ambitions to the
public. Every plan had its own format. Length differed from
four to 92 pages, although the most common was between 28
and 32 pages and the shortest statute-compliant plan was 18
pages long. Tone was similarly diverse, with some reading as
a high level policy document and others as a personal message
to the electorate.
Police reform: a developing picture 23You can also read
