Grampian Police and Grampian Joint Police Board Best Value Audit and Inspection

Prepared for the Accounts Commission and Scottish ministers February 2011 The Accounts Commission

The Accounts Commission is a statutory, independent body which, through the audit process, assists local authorities in Scotland to achieve the highest standards of financial stewardship and the economic, efficient and effective use of their resources. The Commission has four main responsibilities:

• securing the external audit, including the audit of Best Value and Community Planning

• following up issues of concern identified through the audit, to ensure satisfactory resolutions

• carrying out national performance studies to improve economy, efficiency and effectiveness in local government

• issuing an annual direction to local authorities which sets out the range of performance information they are required to publish.

The Commission secures the audit of 32 councils and 45 joint boards and committees (including police and fire and rescue services).

Her Majesty’s Inspectorate of Constabulary for Scotland

HMICS operates independently of police forces, police authorities and the Scottish Government and exists to monitor and improve the police service in Scotland. HMICS does this on behalf of the Scottish public by:

• monitoring, through self-assessment and inspection, how effectively the police service in Scotland is fulfilling its purpose and managing risk

• supporting improvement by identifying good practice, making recommendations and sharing our findings in order to achieve better outcomes for Scotland’s communities

• providing advice to Scottish ministers, police authority and joint board members and police forces and services.

Even though HMICS is independent of the Scottish Government, ministers can call upon the Inspectorate to undertake particular pieces of work.

Audit Scotland is a statutory body set up in April 2000 under the Public Finance and Accountability (Scotland) Act 2000. It provides services to the Auditor General for Scotland and the Accounts Commission. Together they ensure that the Scottish Government and public sector bodies in Scotland are held to account for the proper, efficient and effective use of public funds. Grampian Police and Grampian Joint Police Board 1 Contents

Commission findings Part 2. Grampian Police Page 2 performance assessment Page 22 HM Inspector of Constabulary for Scotland findings Delivering policing plan outcomes Page 3 Page 23

Introduction Violence Page 4 Page 24

Summary Antisocial behaviour Page 7 National security Overall conclusions Page 25 Page 8 Public protection Part 1. Corporate assessment Page 9 Controlled drugs

Vision and strategic direction Road casualty reduction Page 10 Page 26

Governance and accountability Force reputation, standards and Page 11 community focus Page 27 Community engagement Page 14 Part 3. Improvement recommendations Partnership working Page 29 Page 15 The improvement programme Performance management and improvement Improvement agenda Page 16 Page 30

Use of resources Appendix 1. Expectations of police Page 17 authorities Page 31 Equalities Page 19

Sustainability Page 20 2 Commission findings

1. This is the third audit and 3. We welcome the board’s 4. The Commission gratefully inspection report on the performance awareness of its own improvement acknowledges the co-operation and by a police authority and force of needs and commitment to addressing assistance provided to the joint audit their statutory duties on Best Value these. As the board continues to and inspection team by the elected and Community Panning. It has been seek further development and members of Grampian Joint Police produced jointly by the Controller of improvement, we recommend Board, the chief constable and officers Audit and Her Majesty’s Inspector that it considers the following areas. of Grampian Police, and other officials of Constabulary for Scotland. The In particular: and community planning partners. Accounts Commission accepts the report from the Controller of • further development of its role 5. The board should produce a plan Audit on the Grampian Joint Police in longer-term strategic financial that addresses the improvement Board (‘the board’). In accordance planning, and the use of its agenda set out in the joint audit and with the Commission’s statutory scrutiny role to ensure the best inspection report. We encourage the responsibilities, these findings use of resources. The board also board to engage with these findings relate only to the Best Value audit needs to develop its leadership as a tool for stimulating further of the board. and challenge role to help realise improvement in its operation. further efficiencies through 2. The Commission welcomes various partnership and shared 6. The Commission welcomes evidence of the elements of best services initiatives the continued joint approach with value that are demonstrated by HMICS on these police audit and the board. In particular, the • development of a more active inspection reports, and the significant Commission welcomes the report’s role in informing and agreeing contribution that this is having to conclusions that: continuous improvement priorities stimulating more effective and and monitoring progress, and streamlined scrutiny and to driving • the board has a good providing more strategic commitment to securing best value. understanding of its role and has leadership on sustainability and established an active involvement equalities issues and positive partnership with the force in developing a shared vision • effective arrangements for and a clear set of priorities an independent custody visiting scheme must be implemented • the board’s oversight ensures quickly that the operations of the force are clearly aligned with the • ensuring that its contribution to agreed priorities accountability and governance, and its effective partnership with • board members actively question the force, is properly reported to and challenge the force on both the public strategic and operational matters in a constructive way that focuses • in continuing to review its on supporting improvement governance arrangements, the board should address the fact that • the board plays an effective it is not good scrutiny practice for community leadership role on the convener to chair its two main local policing issues, and clearly subcommittees. demonstrates that it works to meet the needs of communities at both a strategic and local level. 3 HM Inspector of Constabulary for Scotland findings

1. As Her Majesty’s Inspector of 3. There is scope for the force to 6. The joint audit and inspection Constabulary for Scotland, I hold a improve in certain areas. In particular: approach adopted in the preparation of statutory responsibility to inspect this report continues to develop and is both Grampian Police and Joint Police • the force should make efforts contributing towards a more effective Board. Complementary to the findings to better understand the causal scrutiny regime that demonstrates our of the Accounts Commission on the factors which are reflected in the commitment to achieving best value Best Value and Community Planning rise in racially motivated crime and in Scottish Policing. performance of the Grampian Joint complaints against the police Police Board, I offer the following comments on the performance of • there is scope for the force to Grampian Police. improve performance reporting by incorporating more comparative 2. My overall assessment of information and to report Grampian Police is that it is performance in a balanced way performing well and that the force demonstrates many of the elements • the force should have a better of best value. Grampian Police understanding of the costs of benefits from an effective and specific policing activities to inform appropriately challenging working difficult decisions about where relationship with Grampian Joint resources will need to be directed Police Board and they have worked in future to sustain performance in in tandem to determine a strategic priority areas. direction which has community policing as its cornerstone. The 4. I look forward to receiving a force executive provides strong plan from Grampian Police which leadership and have created a culture addresses the improvement agenda of performance improvement within set out in this joint audit and the organisation. Crime rates are inspection report. falling within the Grampian Police area and levels of public satisfaction 5. I also wish to acknowledge my are high and improving. During 2010, gratitude for the co-operation and the force introduced a new policing assistance afforded to the joint audit model which has delivered increased and inspection team by the elected numbers of officers working and members of Grampian Joint Police patrolling within local communities. Board, the chief constable and officers of Grampian Police and other officials and community planning partners. 4 Introduction Introduction 5

This joint report is made by the allowing them local discretion on the The key objectives of this joint audit Controller of Audit to the Accounts methods and routes they use. The and inspection were to: Commission under section 102(1) of Scottish Government has issued the Local Government (Scotland) Act further guidance for police authorities • assess the extent to which the 1973 and by Her Majesty’s Inspector and forces. This guidance includes Grampian Joint Police Board of Constabulary (HMIC) under section Justice Department Circular 11/2003 and Grampian Police are 33 of the Police (Scotland) Act 1967. Best Value Guidance and Guidance meeting their duties under the for Members of Police Authorities and Local Government in Scotland Act The Local Government in Scotland Act Joint Boards, June 2007. 2003 and complying with Scottish 2003 introduced new statutory duties Government guidance relating to Best Value and Community The scope of Best Value and Planning. Its provisions apply to local Community Planning is broad and the • agree planned improvements authorities, including police authorities, guidance and statute indicate that a with the local authorities, force and require specifically that: successful police authority will: and the board, to be reviewed by external auditors and HMICS on • councils and police authorities • work in tandem with the chief an ongoing basis. secure Best Value (defined as constable to develop a clear set achieving continuous improvement of priorities that respond to the As Best Value and Community in the performance of functions) needs of the community in both Planning encompass a wide variety of the short and longer term activities, it is not realistic to audit or • police authorities and chief inspect everything in depth. For this constables participate in the • be organised to support the reason we plan our detailed work in community planning process. delivery of these priorities two ways:

The Act also amended the audit • meet, and clearly demonstrate • Where possible we draw on arrangements set out in the Local that it is meeting, the community’s the findings of other scrutiny Government (Scotland) Act 1973 to needs processes, such as the work cover Best Value and gave powers carried out by other inspectorates. to the Accounts Commission • operate in a way that drives to examine Best Value in police continuous improvement in all its • We select certain aspects of the authorities. HMICS has a statutory activities. force and board’s performance for duty under section 33 of the Police detailed investigation. We use a (Scotland) Act 1967 to inspect police Similarly, a successful police force wide range of sources, including forces and common police services, will: the force and board’s own and to report to ministers on their assessment of their performance, state and efficiency. The 2003 Act • work with its partners and the reports issued following external extends this to include provision for police authority/police authorities audit and inspections and the HMICS to inquire into and report to develop a clear set of priorities Scottish Policing Performance to Scottish ministers on whether that respond to the needs of the Framework (SPPF) to assess a local authority is carrying out its community in both the short and risks and scope our work to functions both as a police authority longer term inform this selection. and in relation to a number of matters including Best Value. • be organised to deliver these Our joint report reflects this priorities proportionate approach, with detailed The 2003 Act is supported by more commentary in some areas and detailed statutory guidance on Best • meet, and clearly demonstrate limited coverage in others. It also Value and Community Planning, that it is meeting, the community’s presents the picture we found at the and a series of advisory notes on needs time our main audit and inspection specific topics such as elected work was conducted, in June and July member leadership. This guidance • operate in a way that drives 2010. The report includes a corporate is designed to be descriptive rather continuous improvement in all assessment of the joint board and than prescriptive, defining the goals its activities. the force, while the performance that organisations should aim for but assessment covers only the force. 6

We gratefully acknowledge the Constituent authorities are responsible co-operation and assistance provided for appointing the members of a joint to the team by Councillor Martin board and for allocating funding. The Greig, Convenor of Grampian Joint board is a separate legal entity and Police Board; Chief Constable Colin councils have no separate residual McKerracher, Grampian Police; Jane responsibilities beyond appointing MacEachran, Clerk to the Board; and members and funding. However, in all other elected members and staff practice, the constituent councils, involved. We are also grateful to the primarily Aberdeen City Council, representatives of the three councils provide administration support, and the force’s community partners clerking services, and training and who agreed to participate in the audit development for board members. and inspection process. The existing guidance for policing The tripartite arrangements and (Circular 11/2003 and Guidance police authorities’ leadership role for Members of Police Authorities The force is governed through a and Joint Police Boards, June 2007) tripartite arrangement between the sets out expectations of the board. chief constable, the joint police board This can be found at Appendix 1 of (‘the board’), and Scottish ministers. this report. As the force covers more than one local authority area, a joint police board comprising members from the three constituent authorities acts as the police authority. Scottish ministers retain overall responsibility for policing policy at national level. Grampian Joint Police Board is responsible for setting the police budget, holding the chief constable to account and ensuring that best value is achieved. The chief constable is responsible for the operational aspects of policing within the force area.

The effect of these arrangements is that the board and the chief constable, although they have different roles, must work in tandem to achieve best value. In this report, we only make judgements on the board and force, but all parties to the arrangement, including the Scottish ministers, have responsibility for the overall performance of the police service. 7 Summary 8

Overall conclusions 5. Service performance is good, the level of recorded crime is reducing 1. Grampian Police and the Grampian overall and in 2009/10 was at its Joint Police Board have many of the lowest level for seven years for key elements of best value in place. crimes of violence, indecency, The force and the board have an dishonesty, and reckless behaviour. effective working relationship and Satisfaction rates with the force are have a shared vision for policing in high and improving. The force and its Grampian, based on agreed priorities. partners are making good progress on The vision and priorities are clearly most of the shared policing priorities articulated in the force’s strategies captured in the Single Outcome and plans. The systems and Agreements (SOAs) covering public processes which support the sector organisations in the council delivery of best value are sound areas of Aberdeen, Aberdeenshire overall, though there are some areas and Moray. Drug enforcement requiring improvement. performance declined between 2008/09 and 2009/10 and there 2. The joint police board demonstrates have been increases in racially many of the characteristics of best motivated crime and complaints value and continues to develop its against the police. approach to governance and scrutiny. Board members actively scrutinise 6. The force has a track record of the performance of the force, have strong financial management and a good understanding of their local has sound financial controls in place communities and work in partnership and has reported efficiency savings with the chief constable to help shape in excess of targets. Like all public the policing priorities for the area. sector organisations, the force is now facing severe financial pressures and 3. There are some areas where has taken a number of short-term improvement is required. The board measures to deliver some savings. must ensure it implements an The force recognises that it needs Independent Custody Visiting Scheme a better understanding of what (ICVS) as a matter of priority. It is specific activities cost in order to currently the only board in the UK inform difficult decisions about where not to have an operational scheme in resources will need to be directed place. It also needs to become more in order to sustain performance in proactive in working with the force to priority areas. The force is currently develop a long-term financial strategy. developing a long-term strategy, setting out how it intends to deal with 4. There is a culture of continuous these pressures. improvement within the force and the force executive provides strong 7. In April 2010, the force introduced leadership, with a clear vision for a new policing model, based on the future based around community feedback from the public. ‘Local policing. The force has a well-defined Policing – Closer to You’ saw the structure and sound governance reorganisation of traditional response arrangements. Force priorities are and community policing resources clearly linked to force operational into policing teams based in local strategy and are reviewed, refreshed communities across the force and published annually within its to increase visibility and support strategic plan Platform for Success. community engagement. Aberdeen The force’s performance management Division has carried out an interim arrangements are sound, but can be ‘90-day review’ of the new model and improved by using more comparative has identified that some operational information to report performance refinements are needed to improve its more effectively and in a more effectiveness. It plans to carry out a balanced way. further review in April 2011 to assess the impact of the new arrangements. 9 Part 1. Corporate assessment 10

Vision and strategic direction Grampian Police helps to ensure that the force directs operational activity and resources Grampian Joint Police Board The force has a clear vision towards priority areas. We found that and strategic direction, which knowledge and awareness of force The board is actively involved in is informed by community priorities among staff was good. The helping to shape the strategic consultation and dialogue with priorities are also clearly highlighted vision and priorities for police partner agencies. The force’s on the force’s website and are easily services in Grampian. strategic plan Platform for Success accessible to members of the public. has evolved over the past five 8. Board members are actively years and is refreshed on an 15. The force is committed to involved in developing the force’s annual basis to update the force’s community policing and community strategic priorities. The board is priorities, values and principles. engagement. During 2010, the involved at various stages to help force adopted a new policing model shape the policing priorities, which are The force has a clearly defined called ‘Local Policing – Closer to You’ set out in the force’s strategic plan planning cycle and force (Exhibit 2, page 12). Platform for Success. priorities contain a mix of national policing priorities, local issues and 16. The model combines 24/7 9. At a local level, board members business support objectives. Force response and community officers help to shape policing priorities during priorities link directly to the force into a joint team based in the local the year through their attendance at control strategy. community. This aims to provide area committees and through informal enhanced levels of visible patrol contact with divisional commanders 11. At a strategic level, the force and problem solving at a beat and their staff. At a corporate level, is led by a force executive which level, while maintaining the they attend the force’s annual demonstrates strong and effective appropriate coverage for response conference and the senior managers’ leadership. The force executive drives work. The new arrangements conference and take part in the annual force operational activity and strategic also seek to improve the force’s planning day, together with key delivery using robust management engagement and communication strategic partners and senior police arrangements. with local communities. officers, to determine force priorities for the year ahead. Board members 12. The force’s strategic plan Platform 17. The project plan supporting the have an active role in scrutinising for Success clearly articulates the delivery of ‘Local Policing – Closer the force’s use of resources and are force’s vision and strategic direction and to You’ acknowledged the need involved in the community safety is reviewed, refreshed and published to devise qualitative performance partnerships. These partnerships on an annual basis. The annual review measures to help assess the help to develop the policing priorities is informed by widespread consultation effectiveness of the new policing contained within the SOAs which with local communities and partner model. The force has access to some identify the priorities for public sector agencies and consideration of qualitative data from focus groups, agencies in Aberdeen, Aberdeenshire emerging national and local issues. which supported the development of and Moray. the community engagement strategy, 13. The force has identified nine but it does not have a baseline against 10. The board also helps set the strategic priorities for 2010/11 which it can measure the impact of strategic direction of the force in partnership with the board the new arrangements. through its annual appraisal of the (Exhibit 1). These cover both outward- chief constable’s performance. As facing operational priorities and 18. During the summer of 2010, part of his Performance Development internal business support priorities. All Aberdeen Division carried out an Review (PDR), the chief constable of the operational priorities are clearly interim ’90-day review’ of the new agrees a series of objectives with the articulated within the force control arrangements to assess how they convenor and the two vice-convenors, strategy and this helps to ensure that were bedding in. The review found which are subject to the endorsement they are communicated clearly and that local policing teams were carrying of the board. These objectives help consistently to staff. out more proactive policing activity set the wider strategic agenda for the within communities, which had, in force as a whole. 14. Priorities are communicated turn, led to increased demand on effectively throughout the force resources. The force plans to further and are evident in the divisional and review and refine specific operational departmental business area plans. practices to balance the demands This strengthens the understanding of on local policing teams. The review strategic priorities at a local level and also identified the need to develop Part 1. Corporate assessment 11

a property strategy to support local policing teams and revise how it Exhibit 1 deploys its resources at an operational Force strategic priorities 2010/11 level. This included the need to review the allocation of officers across • Antisocial behaviour – We will deal with unacceptable conduct, which the local teams, review the shift negatively impacts on the quality of life within the communities we patterns and improve the supervision serve, in conjunction with local authority strategies. arrangements. In April 2011, the • Community focus – We will engage and work with partners and the force will conduct a further, more community to deliver improved policing services based on the principles comprehensive review of the policing of a community-focused approach. model to better assess the impact of the new arrangements. • Public protection – We will safeguard children, young persons and vulnerable adults, from risk of physical, emotional and sexual abuse or Governance and accountability neglect and effectively manage offenders through the development of internal partnership processes. Grampian Joint Police Board • Road casualty reduction – We will achieve a steady reduction in the numbers of those killed or seriously injured, with the ultimate vision of a Board members have a good future where no one is killed on the roads in Aberdeen, Aberdeenshire understanding of their role and the and Moray and the injury rate is much reduced. basic governance arrangements are sound. The board is aware of where • National security – We will counter the threat from terrorism and further improvements are required domestic extremism. and has been implementing • Serious organised crime and drugs – We will reduce the harm caused changes to its governance by serious organised crime, and in particular controlled drugs, within the arrangements during 2010. communities we serve.

The board does not currently have • Violence – We will target violence and make Grampian a safer place to an operational ICVS in place. visit, work and live in. • Efficiency and productivity – We will maximise frontline resources 19. The board has 15 members, made through effective and efficient resource and financial management to up of six councillors from Aberdeen ensure suitably trained staff are in place to deliver our mission. City Council, six from Aberdeenshire Council, and three from Moray • Force reputation and standards – We will maintain professional and Council. It meets six times per year, ethical standards of behaviour from all staff in order to improve the delivery at various locations throughout of quality policing services and to enhance public trust and confidence. the region, and the convenor is Source: Sustaining and Developing our Platform for Success 2010/11, Grampian Police, 2010 a councillor from Aberdeen City Council. Two main subcommittees support the board. The Stewardship subcommitee1 considers continuous 20. The board’s two main also a risk that the public perception improvement initiatives such as audit, subcommittees on stewardship and of independent scrutiny, which is thematic inspections and best value, complaints operate effectively by particularly important for the chairing and a Complaints subcommitee2, scrutinising force performance, but of the Complaints subcommittee, may which meet four times per year. the convenor of the board currently be undermined. Other police boards There are also subcommittees for also chairs both subcommittees. typically share these responsibilities urgent business and personnel, which This is not good practice, as part among various councillors. This helps meet as and when required. of the remit of the subcommittees to spread the workload, but it also is to scrutinise the performance of helps to demonstrate the presence of the force and the board. There is independent checks and balances.

1 The Stewardship subcommittee deals with internal and external audit reports (including approval of audit plan), oversees adequacy of the force and board’s financial systems, policies, practices, and compliance with relevant statutes, standards and guidance, best value, risk management and the implementation of HMICS and Accounts Commission recommendations. 2 The Complaints subcommittee provides oversight of how complaints are handled by the force and considers complaints against chief officers. 12

21. Grampian Joint Police Board does Exhibit 2 not currently have an operational ‘Local Policing – Closer to You’: A community-focused policing model ICVS in place. Police boards have to organise and oversee the delivery This model will introduce local policing teams across all communities in the of independent custody visiting in Grampian Police area with local officers working with partner agencies and consultation with chief officers. the communities, responding to local needs. They must therefore ensure that they have effective procedures Our new approach will be launched under the title ‘Local Policing – Closer to in place to establish and maintain You’, involving the key activities of ‘Consult, Listen, Respond and Feedback’. ICVS, including the allocation of appropriate resources to this function. ‘Consult and Listen’ reflects the need for effective engagement between Independent custody visitors check local police officers, local communities and partners, with a view to on the standards in which people identifying and agreeing those local issues which need to be resolved. are held in custody, enhancing the accountability and transparency of ‘Respond’ will be driven through a set of locally based policing teams police among the communities they which will operate within clearly defined areas, engage effectively with serve. Visitors play a vital role in communities, and deliver policing to a set of standards. raising standards in custody and the fair treatment of detainees. Twenty-four local policing teams will operate across the Grampian Police area, each led by a local policing inspector. These officers will be 22. The absence of an ICVS empowered to work with their communities and partners to deliver quality represents a significant risk to the local services. board and force. In the event of a custody issue arising, they may be ‘Feedback’ will be the responsibility of local policing inspectors who will unable to provide an adequate level of inform communities of progress made against agreed issues through the independent public assurance of the provision of the ‘Local Policing Update’. force’s custody arrangements. Source: Community Focus: Local Policing – Closer to You, Overview and Delivery Plan, Grampian 23. The board is the only police Police, March 2010 board in the UK not to have such an operational scheme in place. There have been several attempts 25. The board recognised that further to provide independent scrutiny to establish an ICVS over the years improvements could be made to on specific issues. The intention since the duty was introduced, but its governance arrangements and is to complement and not replace these have all failed. The board instigated a review in 2009. As a the more formal governance set up an ICVS subcommittee in result, the board agreed to set up arrangements of the board. However, January 2010, with the aim of having additional subcommittees early in some board members have an ICVS in place during 2010. In 2010 to deal with urgent business expressed concerns that this could September 2010, the board agreed and oversee the introduction of an weaken corporate responsibilities an action plan and has recently been ICVS. These new arrangements are or encourage individuals to become taking action to attract, vet and train designed to help board members ‘spokesperson’ for particular potential custody visitors. focus on key issues by devolving departments and compromise their some areas of business to the independent scrutiny role. The board 24. Until June 2010, public access subcommittees. The board plans to will therefore need to review the to board agendas, minutes and review the governance arrangements effectiveness of these arrangements reports has been limited and this in the second quarter of 2011. The to assure itself they are having the has compromised transparency and board has also started to identify desired impact. public accountability. The board has individual board members to act as now launched a new web page in ‘champions’ for particular areas of 26. The role and responsibilities order to make these documents interest. One board member, for for the convenor and vice-convenors publicly available. example, takes a lead role on road are clearly defined, but the board safety matters. This is a potentially only recently agreed role descriptions useful initiative, helping to encourage for other board members in a degree of specialisation within the November 2010. board and strengthen its capacity Part 1. Corporate assessment 13

27. The force and clerk provide Exhibit 3 training for new board members and The force area the force helps develop members’ knowledge of policing matters through a series of presentations and site visits. The board has Moray identified that it needs to have a more structured approach to training and Aberdeenshire development. In September 2010, the board agreed to introduce a series of training sessions following Aberdeen every second board meeting. These are scheduled to commence in early 2011. In addition, the clerk’s office is considering how best to engage members in identifying ongoing development needs. The clerk and her staff are also currently reviewing Source: Audit Scotland the training provided by members’ constituent councils as part of a training needs analysis for members. developed to assist board members demonstrate the extra demand on 28. Aberdeen City Council provides in fulfilling their roles. The board resources that incidents of this nature administrative and legal support for plans to review the effectiveness bring. Some shore-based installations the board. Approximately five per of the new approach in the second associated with the petro-chemical cent of the clerk’s time, and up to quarter of 2011. industry carry further responsibilities ten per cent of the depute clerk’s for the force due to the threat to time, is devoted to supporting the Grampian Police the UK energy infrastructure should police board, however this can vary they be subject to terrorist attack. depending on competing demands. The force has an effective Additionally, the location of the The administrative arrangements are governance structure and strategic royal residence within the force generally good, board agendas and delivery is managed through area requires the force to allocate reports are well structured and the monthly Force Executive Board resources to assist the protection of board maintains a log of outstanding (FEB) meetings, supported by a the royal household at Balmoral. actions to ensure actions are range of other mechanisms. progressed. There is, however, a lack 32. At a strategic level the force of capacity to provide any research 30. The force is divided into three is led by the force executive, support to help members carry out geographical policing divisions which which manages strategic delivery, their independent scrutiny role. A are coterminous with the council operational priorities and performance recent review by the internal auditor areas of Aberdeen, Aberdeenshire using a well-established programme has identified a range of options for and Moray (Exhibit 3). The three of business meetings. The force improving this capacity and managers divisions are responsible for the executive comprises the chief in Aberdeen City Council are currently delivery of frontline policing services constable, deputy chief constable, considering this report. and are supported by corporate two assistant chief constables, headquarters departments. Each a director and deputy director of 29. It is too early to assess the division is led by a police commander corporate services. All members of effectiveness of the new governance of either superintendent or chief this group, together with divisional arrangements, but the changes superintendent rank. commanders and department heads, being made indicate a commitment sit on the FEB, which considers to continuous improvement. In 31. Aberdeen’s position as the UK hub broader strategic issues and monitors September 2010, the board approved of the North Sea oil industry provides force performance. A range of other a new report template designed to a degree of economic stability to corporate mechanisms supports the highlight key information such as the region, but also brings specific monthly FEB meetings, including financial implications, service and challenges for Grampian Police. The a Programme Board, a Tactical community impact and equalities force has policing responsibility for Tasking and Coordination Group and issues. A new members’ handbook, incidents occurring within the North performance management meetings. containing key documentation, Sea oil and gas fields and events advice and guidance notes, is being such as the two helicopter crashes 14

33. The force also has a Development Community engagement Grampian Police and Governance Department. This department underpins the governance Grampian Joint Police Board The force engages effectively arrangements and is responsible with the community and has a for production of internal policies, Board members have a good strong commitment to community guidance and procedures on a range understanding of the policing policing. It captures the views of issues including risk management needs of their communities, and of communities in a structured and corporate planning. receive regular feedback on user manner and uses them to inform satisfaction and complaints. the force’s strategic planning 34. Senior officers are given strategic process. The force’s community and tactical responsibility for priority 37. Board members have a good charter clearly sets out its areas, and this strengthens the understanding of the needs of their commitments, but does not understanding of the priorities local communities in terms of policing contain measures to help it assess throughout the force. Divisional services. At a strategic level, they whether these commitments are commanders and department heads have reflected the community’s long- being met. develop business plan objectives on a standing desire for a more visible yearly basis, which support the overall policing service through their input to 40. The force consults regularly and force objectives. Each business area shape the ‘Local Policing – Closer to effectively with members of the plan owner is required to complete You’ strategy. There is also evidence public using community groups and task records throughout the year to that they help, on a day-to-day basis, key contacts. Feedback had indicated document their progress towards to ensure that community views that people wanted increased police achieving these objectives. This helps shape local policing services, for visibility in their local communities. to ensure ownership and provides example through regular member This dialogue was a significant a visible force lead or champion for surgeries and by attending community driver in the development of ‘Local each priority area. meetings and feeding these views Policing – Closer to You’, which was back to the force. introduced in April 2010. 35. The force has a well-developed approach to risk management 38. Board members also have good 41. Officers from local policing and compiles a comprehensive working relationships with divisional teams are required to attend all risk register annually. The register commanders and engage regularly community meetings and record the describes all risks identified within with local policing team inspectors matters arising from these meetings business areas plans and includes to communicate and challenge on on a community engagement force priorities, local challenges, neighbourhood issues. For example, database. This ensures that issues project risks and emerging issues. in Aberdeenshire, board members are logged, tracked and actioned in The use of business area plans to influenced the local approach to road a systematic way and inform the assess risks, together with the full safety measures. strategic planning process. force risk register, ensures that risk is properly assessed at all levels 39. The board also receives other 42. The force has incorporated a within the force. All risks identified forms of feedback from the Communities Charter into the latest as ‘significant’ are reported to each community on policing services. version of Platform for Success. meeting of the joint police board Each month, the force carries out The charter sets out the force’s and the force provides updates to a telephone survey of around 200 commitment to the community board members, which describe the individuals who have contacted them and contains eight pledges, which measures taken to mitigate the risks. and the results are included in each members of the public are able to quarterly performance report. Board access online. (Exhibit 4). 36. Force performance data is members also receive summarised available to members of the information on complaints3 in the 43. The charter clearly articulates public on the force’s website quarterly performance reports the force’s commitments to the www.grampian.police.uk where and consider more detailed community and has the potential to force-wide and divisional quarterly reports in addition to considering strengthen further the relationship performance monitoring reports individual cases at the complaints between the force and the appear in their entirety. Performance subcommittee. communities it serves. The force reporting is covered in more detail in recognises that it needs to continue paragraphs 52 to 63. with existing work to develop a set of

3 Quarterly performance reports record the number of complaints about police officers and police staff and service complaints received each quarter and the outcome of the complaints. The Complaints subcommittee provides oversight of how complaints are handled by the force and consideration of complaints against chief officers. Part 1. Corporate assessment 15

Exhibit 4 46. The force and board’s constituent Communities Charter commitments councils work in partnership to share services at a local level, for example We will: by sharing research and analysis support in the form of a partnership • make sure you know who your local officers are analyst post.

• make it easy for you to contact us 47. The role of board members in actively driving the force’s strategic • be visible and provide reassurance approach on shared services is • attend local meetings and involve communities limited. Although the board receives regular update reports on major • help communities tackle their local problems projects, there is limited evidence of board members providing strategic • keep you up to date with local policing services direction on shared services. Board • tell you how we are dealing with community concerns members have been involved in continuing discussions on the force’s • work with others to solve local problems. future co-location plans with Grampian Fire and Rescue. However, to date, Source: Platform for Success, Grampian Police these discussions have not resulted in shared accommodation.

Grampian Police performance objectives and measures Partnership working so that it can assess whether it is The force maintains effective meeting its commitments and report Grampian Joint Police Board working relationships with partners these to the board and the public. and is achieving positive local Board members are actively outcomes through partnership 44. The force has made significant involved in community safety working at both a strategic and efforts to engage with some partnerships and help to provide local level. traditionally ‘hard to reach’ groups community leadership on policing within the community. It has issues. They also work with local 48. Improving outcomes indicate increased its engagement with the divisional commanders and senior that the force works effectively black and minority ethnic (BME) officers to identify and develop with its partners and our survey of owned business community solutions to local issues. The board’s partner agencies highlighted that the in Aberdeen and has actively role in providing strategic direction force has strong working relationships encouraged the reporting of racially on shared services is limited. in place. Partnership objectives motivated crime, for example with feature in the force’s quarterly a marketing campaign focusing 45. Board members are members performance reports, which contain on local BME owned businesses. of the three community safety a core set of outcome measures Similar engagement efforts have also partnerships covered by the Grampian common to the three SOAs covering been taking place in Moray where Police force area. These partnerships the Grampian area. divisional officers have forged links help to determine the key strategic with the gypsy/travellers community. objectives for local policing services 49. At a strategic level the force’s In Aberdeenshire, the force works and inform the relevant priorities partnership activity is led by the closely with the council while contained within the SOAs, which chief constable, who is a member the diversity liaison officer works cover partnership work in the council of the North East of Scotland Chief closely with Lesbian Gay Bisexual areas of Aberdeen, Aberdeenshire Executive Forum. This is a multi- Transgender (LGBT) Scotland to and Moray. Board members monitor agency group, which seeks to provide progress joint training on homophobic performance throughout the year the leadership and direction required hate crime in schools. using quarterly performance reports. to drive partnership activity across the region. Three core strands, service improvement, integration of services and greater efficiencies, underpin the group’s work. 16

50. The force is actively involved 54. The QPRs provide a clear Grampian Police in all of the community safety summary on many areas of force partnerships in Grampian. The performance for board members, but The force’s performance reporting partnerships produce their own some aspects of the performance arrangements are well structured. strategic and tactical assessments management framework could be Performance reports would support and partner agencies share analytical improved. These are covered in more scrutiny and public performance support. All divisions have effective detail in paragraphs 60 to 65. reporting more effectively if information-sharing protocols in place they included more comparative to support the exchange of necessary 55. Scrutiny by the Stewardship information and were more information between partners. subcommittee is less focused. balanced in reporting negative The subcommittee uses audit and performance. 51. There are also positive examples inspection reports to scrutinise of partnership activity at the local performance and actively questions The force is committed to service level. The force has supported local the force on matters in these reports. improvement and carries out partnerships by investing resources However, on other matters, there is targeted internal reviews and in community projects. For example, a tendency for members to focus inspections, which are focused in addition to seconding officers to on matters of detail rather than around force priorities. each of the three local authorities, the challenging on more strategic or force has seconded officers to the significant issues. For example, there 58. The force’s performance Grampian Regional Equality Council are normally very few questions on management arrangements and Aberdeen Foyer, a charity that the regular updates on the strategic demonstrate a clear integration of alleviates homelessness. risk register, but much comment on strategic priorities, performance any proposals to write-off debts, even monitoring, and public performance Performance management and for relatively small amounts. reporting. Performance reports cover improvement measures at both divisional and force- 56. The board does not produce wide level and are published on the Grampian Joint Police Board an annual performance report and force website. does not feature in the force annual Board members actively scrutinise performance report. This means 59. QPRs contain a good mix force performance using quarterly that it is falling short of its public of national, regional and local performance reports. The board’s performance reporting responsibilities. performance measures. The reports public performance reporting and Although board members review the are well structured and use a helpful prioritisation and monitoring of force’s annual report, they do not ‘traffic light’ colour-coding system continuous improvement activity provide direct input to the publication. for a number of measures to help is limited. Other police boards typically have a highlight areas of strong or poor section in force annual reports and performance. The performance 52. The board receives Quarterly this represents an endorsement report for the fourth quarter for each Performance Reports (QPRs) from for the content of the report and/or year forms the force’s annual report. the force, which provide an overview summarises the board’s activity and Both the force and the board use of performance and reflect national impact over the year. The absence the reports to monitor performance policing priorities, local SOA objectives of the board in the annual report and this aids the transparency of and the priorities set out in Platform for means that their contribution to the performance reporting. Success. governance and accountability of the force is not visible to the public. 60. The reports could be improved 53. The reports provide members as they do not routinely contain with much of the information 57. The board does not have a clear ‘benchmarks’ to help the reader gain they need to monitor the force’s role in directing or monitoring the a more informed assessment of performance. Board members actively force’s continuous improvement performance. Board members and question and challenge senior police activity. The board receives update the public would be in a better officers at board meetings on both reports on individual projects and position to assess overall performance strategic and operational issues. initiatives and the Stewardship if the measures were reported This scrutiny and challenge is subcommittee considers the force’s alongside national figures or trends constructive and focused on review programme. There is little and against specific local objectives, supporting improvement. evidence to suggest that the board where appropriate. plays an active role in identifying continuous improvement priorities or in monitoring progress on HMICS inspection actions. Part 1. Corporate assessment 17

61. Performance reporting could Use of resources 66. In the context of major reductions also be more balanced in the in public expenditure, board members way key issues are presented. Grampian Joint Police Board need to become more proactively Information about both good and poor involved in long-term financial performance is contained within the The board is meeting its planning. It is widely recognised report, but the presentation of this responsibilities by approving among members and officers that information can be quite different. annual budgets and in monitoring the current levels of expenditure Annual reports clearly highlight areas expenditure and efficiency savings are not sustainable. In response, of strong performance, but areas of throughout the year. However, the board extended the remit of the poor performance are not highlighted with the prospect of significant Budget Working Group to include in the same way. For example, the reductions in the resources medium-term financial planning 2009/10 annual report highlights the available to the force, the board in January 2010. The scale of the reduction in all road traffic collision needs to become more proactive current financial pressures means fatalities since 2008/09, but does in long-term financial planning, and that efficiency savings alone are not give the same prominence to seeking assurance that the force is unlikely to be sufficient to balance the the increase in the number of racist using its resources efficiently. budget. The board will therefore have incidents and racist crimes over the a crucial role in providing challenge same period. 64. Board members are fully involved and seeking assurance that the force in approving the annual budget is making optimal use of resources, to 62. Our review of performance for the force and in monitoring improve productivity and sustain key reports to the board and the force expenditure throughout the year. services while making efficiencies and executive also showed that areas of A Budget Working Group, which reducing expenditure. negative performance are routinely consists of members and officers, accompanied by explanations of helps set the annual budget, and the Grampian Police potential causes. This is entirely board approves its proposals. The appropriate, but the explanations board considers revenue and capital The force has a track record of in reports we reviewed invariably budget monitoring reports at each strong financial management, has contained a positive interpretation board meeting and these are actively sound financial controls in place or explanation of the data being scrutinised by members. The QPRs and has reported efficiency savings presented. Where performance also provide monitoring information in excess of targets in recent years. problems are identified, a fuller on staffing resources, including explanation of the factors including sickness absence and turnover. Board Like all public sector organisations, the challenges facing the force might members also receive information the force is now facing severe prompt constructive challenge by on efficiency savings, through the financial pressures. The force board members and help facilitate Budget Working Group and reports recognises that it needs a better management intervention. submitted to board meetings. understanding of what specific activities cost to inform difficult 63. The force has a Development 65. The board has supported shared decisions about where resources and Governance Department that services, such as the new Child will need to be directed, in order supports continuous improvement Protection Unit within Moray, the to sustain performance in priority activity. The department uses location of community officers within areas. The force is currently a systematic approach to both new schools in Aberdeen and through developing a long-term strategy, challenge and support the force and involvement in continuing discussions setting out how it intends to deal acts as an in-house improvement on the force’s future co-location plans with these pressures. service. Areas of force business with Grampian Fire and Rescue. linked to force priorities and suitable However, members recognise that Managing finance for improvement activity are identified there remains significant scope for 67. Grampian Police had a net from divisional and departmental further shared services in areas revenue budget for 2009/10 of business plans and reviews are then such as procurement and fleet £109.8 million, representing a net approved by the force executive. This management. increase of around £4.5 million on process ensures that improvement the previous year. The force’s gross activity is linked to force priorities. expenditure per capita is the lowest in Scotland (Exhibit 5, overleaf). 18

Exhibit 5 of the new model and any associated Gross expenditure per capita population on Scottish policing efficiency savings. The force has recognised that improvement is needed in this area and a good Gross expenditure 2008/09 2009/10 understanding of costs will be per capita population £’s £s essential to inform decision-making in Central 221 225 the current financial climate.

Dumfries & Galloway 277 279 Managing people Fife 235 235 72. The force actively manages its workforce and responds to issues Grampian 236 218 raised by staff. To get feedback Lothian & Borders 292 311 from staff, the force carried out staff surveys in 2005 and 2008. The Northern 223 237 response rate for the 2008 survey was Strathclyde 265 268 relatively poor with 40 per cent of staff responding compared to 61 per cent Tayside 241 241 in 2005. However, the results from the surveys show that morale within the Scotland 258 262 force is good and staff are generally

Source: Annual accounts of police boards satisfied with their place within the organisation. The survey highlighted a number of areas for improvement, including the need to better allocate 68. The force has strong financial will not now be sustainable. The resources. The force responded by controls in place and sound processes force has put a number of short- forming working groups to progress for setting and monitoring budgets. term measures in place to achieve highlighted improvement areas, each The force executive considers savings. For example, tight controls with staff representation and a senior monthly monitoring reports. In have been introduced to actively manager as a strategic lead. addition, the deputy director of manage vacancies, where a panel corporate services and the assistant must approve any proposals to fill any 73. The force performs well in terms chief constable also hold quarterly vacant posts. All divisions have had of sickness absence rates. In 2009/10, meetings with business area heads their devolved budgets cut by ten per the proportion of working days lost to review progress against their cent. There are also tight controls on due to absence in Grampian was business plans. overtime and the force has reported lower than the Scottish average for savings covering both police officers both police officers and police staff. In 69. The force has a good record in and support staff. 2009/10, the absence rate for police terms of savings, and has exceeded officers was 3.5 per cent compared its savings targets in recent years. 71. The force has strong budgetary to a Scottish average of 4.1 per cent, In 2009/10, for example, the force control, but, in common with forces and the absence rate for police staff reported total savings of £4.4 million, across Scotland, has a less developed was 4.5 per cent compared to a against target of £3.3 million. Savings understanding of the costs of specific Scottish average of 5.0 per cent. in 2009/10 have come from a policing activities, for example the range of initiatives, including reduction cost of targeting drug dealing. This 74. In 2009, the force conducted a of overtime. makes it difficult to evaluate the training review, which highlighted relationship between the resources a potential mismatch between 70. This strong financial performance invested and the outcomes achieved the force priorities and the training has been achieved in a period of by that investment. Prior to the being offered to staff. In response, growth and increasing resources, introduction of ‘Local Policing – Closer the FEB approved a number of for example, the number of police to You’, the force conducted work recommendations early in 2010, officers has increased from around to identify the potential benefits of including the introduction of a group 1,200 to just over 1,600. The force the new policing model. This work tasked with reviewing training recognises that the current financial would have been enhanced by a requests to ensure that they align challenges mean that this level fuller analysis of the potential costs with force priorities. Part 1. Corporate assessment 19

75. When setting up ‘Local Policing – Planning for the future 83. The board receives half-yearly Closer to You’ the local policing teams 79. Like all public sector organisations, equality performance reports on the were all allocated broadly the same the force faces significant financial force’s single equalities scheme and level of resources and this has caused challenges and, at the time of our regular reports on workforce statistics some difficulties in terms of resilience audit and inspection, the force did and trends, but there is little evidence with a few areas experiencing not have a long-term strategy setting of active scrutiny or challenge of significantly higher levels of demand out how it planned to deal with this information. than others. This has resulted in these challenges. some resource pressures as officers 84. The board has taken limited are called away from their own local 80. In summer 2010, the force steps to mainstream equalities. In policing team area to assist with high- formed a Service Reconfiguration March 2010, it approved new terms priority calls in busier neighbouring Programme team to ensure that all and conditions covering the force areas. A review of the new policing possible cost and efficiency saving to ensure compliance with equal model was carried out during the options are being fully explored. The pay legislation and to deliver an summer of 2010 and senior officers team is examining all aspects of force appropriate job evaluation scheme. A have identified that some reallocation business and reports to the force number of board members involved of resources across policing teams executive. The force has also put in the appointment of chief officers is necessary. arrangements in place to brief staff on have undertaken specific training on the financial future of the organisation equalities issues. Managing assets and other and the steps it is taking to address resources the challenges it faces. 85. In September 2010, the board 76. The force maintains an asset agreed to introduce a new format register but does not have a long-term 81. The force is now developing for reports by the end of 2010. The asset strategy linked to its strategic a longer-term strategy for change, new format will require all reports to priorities and objectives. The force setting out how it intends to respond highlight any equality issues related to has made some progress on sharing to the anticipated reductions in public the subject of the report. buildings with public sector agencies. sector budgets. Given the likely scale For example, several of the new of the reduction in budgets, the force, 86. The board needs to provide neighbourhood policing teams are the board and its partners will need clearer leadership on equalities issues. located in school buildings around to consider the strategic vision for It also needs to consider whether it the area. policing priorities in Grampian and has appropriate measures in place critically assess how it will deploy in order to assure itself that any 77. For some years, the force the more limited resources if it is to equalities related activity is having the has sought to re-locate to a new sustain performance in priority areas. desired impact. headquarters building and has invited various partner agencies Equalities Grampian Police to collaborate in the project. The force has clearly been driven in their Grampian Joint Police Board The force is making good progress desire to collaborate in the proposed in supporting the mainstreaming headquarters development by a clear The board’s role in providing of equalities. It has invested in sense of best value and the need strategic direction or oversight developing strategies, systems, to demonstrate value for money on the equalities agenda is processes and standard operating and provide a saving to the public under-developed. procedures. The force now needs purse. On a number of occasions, to develop indicators to assess however, prospective partners have 82. The board has had statutory the impact of the investment it withdrawn support for the project and equality schemes in place for gender, has made. the situation remains unresolved. This race and disability and received remains a matter of some frustration monitoring reports for 2009 and 2010, 87. The force’s Single Equality for the force. though there is little evidence to Scheme 2008–11 extends previous suggest it has been actively monitoring measures, which covered race, 78. Beyond shared accommodation, these. On 2 July 2010, the board gender and disability, to include age, the force has made limited progress approved a Single Equality Scheme religion, faith and sexual orientation. in sharing other ‘back office’ functions which covers all equalities groups and The force developed the scheme such as procurement, payroll services replaced the individual schemes. after extensive consultation with staff, and fleet management. community groups and service users. 20

A diversity group reviews progress Sustainability are in place, but the board has not on a quarterly basis and the force formally considered or approved a carries out an annual review of the Grampian Joint Police Board clear force vision on sustainability. scheme. The force’s aim is to have The absence of a strategic approach one ‘living document’ and action plan The board does not have a to sustainability limits the board’s to embed equalities considerations clearly articulated approach to capacity to provide effective strategic into everyday work. sustainability. direction and scrutiny in this area.

88. The force engages constructively 91. There is limited evidence to Grampian Police with a range of community groups, suggest that the board has considered including community partnership its statutory responsibilities to The force does not have a groups, lay groups, inter-faith groups support sustainability in a strategic or coherent strategic approach to and other voluntary sector support structured way. It has shown interest sustainability. It is making some groups and has diversity and gypsy/ in a number of force initiatives, but progress in terms of environmental traveller liaison officers in the three these have been considered on a sustainability and there are also divisional areas. The force also case-by-case basis and there is limited examples of activity which might provides a seconded liaison officer to evidence to suggest that the board be considered to support social the Grampian Race Equality Council has set a strategic direction on how it and economic sustainability, but (GREC) and in June 2009, the force might support sustainability. these do not take place within a was awarded the Lesbian, Gay, structured framework. Bisexual and Transgender (LGBT) 92. The board can highlight some charter mark. individual measures which aim to 95. Like equalities, sustainability have a positive environmental impact, is one of the ‘cross-cutting’ 89. The force has a range of systems for example by reducing energy responsibilities under Best Value. In and process in place to support the consumption through car-sharing common with other forces, Grampian mainstreaming of equalities. It carries and video-conferencing. However, does not have a strategic approach for out Equality Impact Assessments these are largely initiatives taken by how it intends to fulfil this duty. There (EQIAs) for all polices and procedures the force, rather than being driven by are several examples of force activity, and it is currently reviewing and any overarching strategic approach which contribute to sustainability, but updating its EQIA process. In agreed by the board. To date there there is no evidence to suggest these common with other forces, ‘respect is no evidence that the board are part of a wider strategic approach. for diversity’ is a core competency has monitored the impact of the Platform for Success contains within the performance and measures or the overall trends in the some reference to environmental development review system force’s energy consumption. sustainability but does not include for staff and it has trained staff. In any detail beyond a commitment March 2010, the force delivered 93. There is little evidence that the to reduce energy consumption and EQIA training, and is also involved board has considered what actions it increase waste recycling. There are in the national steering group on might take to consider the economic limited performance measures in diversity training. or social elements of sustainability. place to help the force assess its The vision underpinning ‘Local performance in this area. 90. The composition of the workforce Policing – Closer to You’ which is changing and is in line with the represents a shift from responsive 96. The absence of a strategic other forces in Scotland. There has to preventative policing, supports framework means that the force been a rise in female officers since some of the broader requirements of has not set a clear direction for how 2004/05, 26.4 per cent of the force sustainability, particularly in terms of it intends to support sustainability. were women in 2009/10 which is social sustainability. However, it is This means there is a risk that the exactly the same as the Scottish not clear that the board has made force is not planning its activity in a national average. The number of these links or considered the impact coordinated way and not prioritising or officers with declared ethnicity has of the policing model from the monitoring the work effectively. It also increased to 1.6 per cent, again this sustainability perspective. means that the force is not able to is exactly the same as the Scottish assure itself that its actions are having national average in 2009/10. 94. The majority of board members the desired impact and becoming who responded to a survey carried embedded into the culture of the out to inform the audit considered that organisation. appropriate sustainability strategies Part 1. Corporate assessment 21

97. In terms of environmental 100. The force and the board sustainability, the force established an should review their approach to environmental action group in 2009. sustainability in order to set a clear This meets every other month and strategic direction and put systems is involved in promoting a range of and processes in place to help them ‘green’ activities such as car-sharing, review progress and monitor impact. turning off lights, energy awareness There are examples of activity that and video-conferencing to reduce support the three elements of unnecessary travel. The force, along sustainable development. However, in with all other Scottish police forces, the absence of a strategic approach, is involved with the Carbon Trust to there is a risk that these activities develop its carbon management plan. are not prioritised, coordinated and monitored effectively. The force 98. The introduction of ‘Local Policing and the board need to do more – Closer to You’ is an example of to articulate their commitment to the force’s commitment to local sustainability and to develop systems communities which supports social and process that demonstrate sustainability, though it is not clear the impact of the full range of that the force has considered it from sustainability activities taking place this perspective. Senior officers within the force. within the force are confident that ‘Local Policing – Closer to You’, delivered in partnership with other agencies, will provide a degree of community resilience which will, in turn, result in enhanced outcomes for those communities. There are other examples of activities which support social sustainability at the local level through crime prevention measures and diversionary activities. These include the work of the police architectural liaison officer who works with partners to promote crime-prevention through environmental design.

99. In terms of economic sustainability, the force intends to enhance the use of the special constabulary and better integrate the Third Sector into force business. The aim of this is to help ensure that community involvement in the delivery of services becomes mainstreamed, while providing clear economic benefits. The next phase of the force’s vision is to approach the private sector to attempt to secure funding for neighbourhood projects through the various corporate community responsibility programmes. This approach has the potential to produce favourable results in the future given the number of multinational companies linked to the oil industry with a presence in the area. 22 Part 2. Grampian Police performance assessment Part 2. Grampian Police performance assessment 23

Delivering policing plan outcomes Exhibit 6 Recorded crimes per 10,000 population 2006/07–2009/10 The force and its partners are

making good progress on most 800 2006/07 of the area-wide priorities in 700 2007/08 the SOAs covering Aberdeen, n 2008/09 Aberdeenshire and Moray. 600 2009/10 500 There has been an overall reduction in recorded crime since 2006/07, 400 and crimes of violence, indecency, 300 dishonesty, and reckless behaviour 200

are at their lowest level for seven Rate per 10,000 populatio years. Detection rates have been 100 sustained and are around the 0

national average. Drug enforcement Fife

performance declined between Tayside Northern Scotland Grampian 2008/09 and 2009/10 and there Strathclyde have been increases in racially Central Scotland motivated crime and complaints Lothian & Borders against the police. Dumfries & Galloway

101. The force’s strategic plan Source: HMICS (data for SPPF annual performance reports) Platform for Success defines the force vision and strategic direction. The plan has evolved over the last five years behaviour, youth crime and crimes Detection rates and it is updated on an annual basis of violence. Further work is needed 107. The overall crime detection to reflect force values, objectives however to sustain the recent rate in Grampian in 2009/10 was and community priorities. The force’s improvements to road safety. 48 per cent, one per cent lower than priorities are reducing violent crime the Scottish average. and antisocial behaviour, national Recorded crime security, public protection, controlled 104. Overall, performance in terms of 108. The force has improved the drugs (which from 2010/11 also recorded crime is good. In 2009/10, detection rates for crimes of violence, includes serious and organised crime), the number of recorded crimes per indecency, dishonesty and fire raising, road casualty reduction, community 10,000 population in Grampian was vandalism and reckless behaviour focus and force reputation. lower than the Scottish average (Crime Groups 1–4) since 2006/07 (Exhibit 6). (Exhibit 7, overleaf). 102. Force performance is reported through QPRs and an annual report 105. The level of recorded crime in 109. The force detection rates which share a common structure and Grampian is falling and there has been between 2006/07 and 2008/09 were are based around the four areas of a 25.8 per cent reduction in recorded better than the Scottish averages for policing identified within the SPPF. The crimes of violence, indecency, crimes of violence and fire raising, performance reports also contain a dishonesty, and reckless behaviour malicious and reckless conduct, core set of ten performance measures, between 2006/07 and 2009/10. but below average for crimes of which are common to the three SOAs indecency and dishonesty. However, and cover the force area and reflect 106. Between 2006/07 and 2009/10, in 2009/10 the force’s detection rates the force’s strategic objectives. the total level of recorded crime for these crimes were above, or equal across Scotland fell by 19 per cent. to the Scottish averages. 103. The force and its partners can The reduction in Grampian was demonstrate progress on these ten greater than the Scottish average 110. The sections that follow measures, the majority of which for crimes of indecency and for consider the force’s performance show a positive direction of travel fire raising, malicious and reckless on its strategic priorities of reducing between 2008/09 and 2009/10. conduct but less than the average for violent crime and antisocial behaviour, This improvement includes positive crimes of violence and dishonesty. national security, public protection, progress on reducing antisocial controlled drugs, road casualty reduction and community focus and 24

force reputation. Where possible the Exhibit 7 assessment draws on performance Detection rates for crime groups 2006/07–2009/10 measures over a four-year period and makes comparisons with the 70 2006/07 Scottish average where appropriate. 60 2007/08 The force’s other strategic priority, 2008/09 efficiency, has been covered in part 50 one of this report. 2009/10 40 4 yr avg

Violence 30 Percentage The force is performing 20 consistently well in reducing crimes 10 of violence. These are at their lowest level for seven years and 0 detection rates are improving. Fife

Central Tayside Northern Scotland Grampian 111. The force has performed well in Strathclyde its efforts to reduce violent crime and Lothian & Borders

offences have fallen consistently over Dumfries & Galloway recent years. In 2009/10, crimes of violence in Grampian were at Source: HMICS (data for SPPF annual performance reports) their lowest recorded level and detection rates were at their highest for seven years. Exhibit 8 112. The number of recorded crimes Crimes of violence 2006/07–2009/10 of violence fell by 17.6 per cent between 2006/07 and 2009/10. The 1,000 90 average detection rate in Grampian 900 80 between 2006/07 and 2008/09 was 800 70 70.4 per cent, significantly better than 700 the Scottish average (Exhibit 8). 60 Percentage 600 50 500 113. In 2009/10, there was 14 violent 40 Number 400 crimes per 10,000 head of population 30 in Grampian, this is significantly lower 300 than the Scottish average of 22. The 200 20 detection rate in 2009/10 was 84 per 100 10 cent, which is significantly better than 0 0 2006/07 2007/08 2008/09 2009/10 the Scottish average of 67 per cent. Recorded crimes Detection rate 114. During 2009/10, the number of serious assaults fell by 17.8 per Source: SPPF annual performance reports and Grampian Police annual performance reports cent and the detection rate improved significantly, rising by 14.5 per cent to 90.3 per cent. The force attributes this to proactive policing of new licensing legislation, improved arrangements around door stewarding supported by the Security Industry Authority and by targeting policing around the city and town centres and the weekend night- time economy. Part 2. Grampian Police performance assessment 25

Antisocial behaviour Exhibit 9 ’CONTEST 2’ strands Antisocial behaviour in Grampian is reducing although detection • Prevent – terrorism by tackling its causes and the radicalisation of individuals rates are generally below the national average. The force has • Pursue – terrorists and those who sponsor them been successful in addressing • Protect – potential targets of terrorism its priority of reducing vandalism. The force works well with its • Prepare – to respond to the consequences of a terrorist incident, in order partners in reducing youth-related that any disruption is minimised antisocial behaviour but needs to evaluate the ongoing impact of its Source: ‘CONTEST 2’ Counter Terrorism Strategy, UK Government diversionary activities for young people more effectively.

115. In 2009/10, antisocial behaviour 118. Detected youth crimes in National security community crimes4 in Grampian fell Grampian decreased by 16 per cent to their lowest level since 2004/05. during 2009/10 and the number of The force is working with partners This downward trend is encouraging children and young people responsible to continue to review and develop and reflects a concerted effort by for these crimes also fell by more contingency plans and support the force and its partners to link to than 200 during this period. The national security strategies. the four pillars of the government’s force’s Youth Justice Management antisocial behaviour strategy: Unit has made an effective 120. The force is committed to prevention, integration, engagement contribution to this positive trend and the UK Government strategy and communication. is continuing to further strengthen ‘CONTEST 2’ (Exhibit 9) and has its approach and engagement with carried out work in the four strands, 116. During 2009/10, there was a partner agencies. ‘Prevent, Pursue, Protect and significant reduction in the number Prepare’. In 2009/10, the main of recorded antisocial behaviour 119. The force has worked particularly emphasis has been in relation to offences, which fell by 12.5 per cent. well with some of its community ‘Prevent’ where substantial progress Detection rates remained relatively safety partners to make an impact has been made on the formation of constant over the same period at on antisocial behaviour. Through the multi-agency structures to develop around 52 per cent. These were Aberdeenshire Community Safety responses to potential vulnerabilities below the national average of 67 per Partnership, the force helped support and ‘Delphinus’5 groups are now cent and the lowest level in Scotland over 60 ‘street sports’ sessions in place in each of the three local for 2009/10. across Aberdeenshire. These acted as authority areas. diversionary activities to reduce youth 117. Vandalism is currently at its disorder over the summer period 121. The force and its partners lowest level for the past three years. and also provided opportunities for continue to develop a range of The force has prioritised the reduction partners to give advice on lifestyle contingency plans, both locally in of vandalism and has supported this issues. As would be expected, terms of potentially vulnerable sites in a number of ways, including a these diversionary activities have and nationally relative to joint Scottish specific vandalism review team. This an immediate positive impact on or UK policing responses. This is has been successful and the number antisocial behaviour, but the force particularly relevant to the unique of recorded vandalism crimes reduced and its partners need to have more position Grampian Police has in by 1,850 during 2009/10 to 6,824. effective arrangements in place to relation to the North Sea oil industry Over the same period detection rates evaluate whether these actions and the additional demand this brings also dipped from 31.5 to 28.3 per cent are supporting a more sustained, to the force. and this is an issue the force needs longer-term improvement in to address if it is to sustain positive antisocial behaviour. outcomes.

4 Consistent with Association of Chief Police Officers in Scotland (ACPOS) performance monitoring data, antisocial behaviour crimes are defined as actions that demonstrate a ‘disregard for community/personal wellbeing, acts directed at people, environmental damage and misuse of public space. 5 ‘Delphinus’ groups are multi-agency groups based on community safety partnership structures. They are briefed on local threats and vulnerabilities with a view to developing appropriate responses tailored to the local context. 26

Public protection 125. The force considers that part this, the force fell short of the of the increase in incidents and previous performance in this area of The force is working with partners crimes is a result of their efforts business over the full year. to protect vulnerable people, but to improve reporting mechanisms, needs to develop performance raise awareness and improve public 129. Aberdeenshire suffered the measures so that it can better confidence in this area. It has also second highest rate of cocaine- assess its performance in this cited changing demographics in the related deaths in Scotland in 2007. area. The number of reported population mix in Aberdeen as an In Aberdeen the proportion of the racist incidents and racially influencing factor. The force needs population hospitalised for drug- motivated crimes has increased to further analyse the reasons for the related conditions is higher than the significantly, though detection rates increases so that it can understand Scottish average, yet drug-related have improved. what lies behind them and respond deaths within the force area fell from appropriately. 46 in 2008/09 to 39 in 2009/10. This 122. The force is committed to may be indicative of partnership working with partners to improve 126. The force’s annual performance activity aimed at combating drugs the protection of children and adults report contains limited measures on misuse beginning to have an impact. and the monitoring of offenders, public protection beyond the statistics to reduce domestic abuse and in relating to racially motivated incidents 130. The national process for supporting the ‘Getting It Right and crimes. It should consider making identifying and mapping serious For Every Child’ agenda. The force better use of measures to help and organised crime groups (OCGs) and its partners have implemented manage performance and support has been embraced by the force the recommendations arising from effective scrutiny in this area, for and is reflected in the change to previous HMIe Inspections into the example domestic abuse and child this priority in Platform for Success provision of services for the protection protection issues. 2010/11. The force has restructured of children within the three local its Crime Management Operations authorities, as well as the review Controlled drugs to manage this transition and deliver of the North East of Scotland Child on the Scottish Government strategy Protection Committee. We found Overall, performance declined in ‘Letting Our Communities Flourish’. evidence of good joint working with all aspects of drug enforcement New Major Investigation Teams will partners to develop the different during 2009/10. This downturn support efforts to tackle serious strands of public protection to meet in performance is set against a criminality and aim to make Grampian the significant challenges around backdrop of above average drug a hostile environment for criminals. child protection. dependency rates within parts of It is important that the force the force area. This trend was also maintains focus on drugs while also 123. Force performance reports do observed in a number of other addressing wider criminality of the not include specific and measurable Scottish police forces. OCGs and develops appropriate objectives or performance measures performance measures to track and in relation to child protection matters, 127. The force has made controlled report on progress. although the management of drugs a priority for a number of years. dangerous offenders is reported as Between 2008/09 and 2009/10, the Road casualty reduction part of the SPPF data. total number of drugs possession charges fell from 2,235 to 1,836. The The force has achieved small 124. The number of racist incidents reduction was most marked in relation year-on-year reductions in road in Grampian increased from 440 to the supply and possession of Class fatalities. The number of accidents in 2006/07 to 564 in 2009/10. The A drugs where the number of offences resulting in death or serious injury number of reported racially motivated for supply and possession has fallen increased significantly between crimes has almost doubled from 449 from 586 in 2006/07 to 435 in 2009/10. 2006/07 and 2008/09, though it fell in 2006/07 to 879 in 2009/10. The The amount of drugs seized also fell slightly in 2009/10. Although the detection rate for these crimes has between 2006/07 and 2009/10. force works with partners to target improved significantly from 59.9 per drivers who present the greatest cent in 2006/07 to 69.3 per cent in 128. A force-wide initiative carried out risk and reduce collisions, overall 2009/10 and was better than the during the fourth quarter of 2009/10 roads policing activity has reduced, Scottish average of 66.5 per cent. to generate more activity, resulted in resulting in falls in detected and an increase in supply and possession drink driving offences between charges during that period. Despite 2008/09 and 2009/10. Part 2. Grampian Police performance assessment 27

131. The total number of road traffic Exhibit 10 accidents resulting in death or serious Road traffic accidents in Grampian injury rose sharply between 2006/07 and 2008/09, though this fell between 450 Total 2008/09 and 2009/10 (Exhibit 10). 400 Most of the increase was a result of Adults seriously the increase in adults seriously injured 350 injured which rose from 188 to 343 over a 300 Adults killed three-year period. 250 Children seriously injured 200 Number 132. Between 2006/07 and 2009/10, Children killed 150 the total number of people killed fell by 32 from 62 to 30, and the 100 number of children who were killed or 50 seriously injured fell from 23 to 22. In 0 2009/10 the number of people killed 2006/07 2007/08 2008/09 2009/10 6 or seriously injured per mVkm was Year higher in Grampian than anywhere else in Scotland. The force has been Source: Grampian Police annual performance reports concerned at the high level of young drivers who have been involved in traffic collisions and has been focusing its attention in this area. Force reputation, standards and 138. The force answered Work with the Crown Office and community focus 97.6 per cent of non-emergency Procurator Fiscal Service (COPFS) on calls in 2009/10 and 90.9 per cent a Young Driver Diversion Scheme is Force performance on answering of these were answered in under 40 being trialled during 2010/11. and dealing with emergency and seconds. This is an improvement in non-emergency calls is improving performance compared to 2008/09, in 133. The number of detected and the force is responding to this critical initial contact. offences which are known to emergency incidents more quickly. contribute towards road casualties7 all Public confidence in the force is 139. The Scottish Crime and fell between 2008/09 to 2009/10 and slightly below the national average Justice Survey data for 2009/10 detected road traffic offences overall but satisfaction rates are high and reported on public confidence on fell from 21,449 to 15,612. There has improving. Complaints against the a number of aspects of forces also been a reduction in the number police are increasing year-on-year. nationally (Exhibit 11, overleaf). This of drink drivers brought to justice, indicated that public confidence in the which fell from 1,071 in 2008/09 to 136. The force is improving its Grampian force was slightly below 881 in 2009/10. responsiveness to emergency calls. In other forces across Scotland. 2006/07 it answered 89.9 per cent of 134. The number of proactive 999 calls within ten seconds and this 140. The people of Grampian are enforcement operations, high visibility has risen to 96.2 per cent in 2009/10. generally positive about the force. patrols and the numbers of people This exceeded the national target of In 2009/10, the satisfaction rates in receiving education activity also fell 90 per cent, and was better than the Grampian covering initial contact, the between 2008/09 and 2009/10. Scottish average of 94.7 per cent. actions taken by officers to resolve enquiries, the way in which people 135. It is important that the force 137. The force responded to 92.4 per were treated and overall satisfaction considers whether it is committing cent of emergency incidents within with the way in which the force dealt sufficient resources to continue the its target response times in 2009/10. with the matter were the highest in recent improvement in performance The force also exceeded its ten- Scotland. The force had adopted a on road casualties. Although 2009/10 minute response target and average phone survey methodology, which offered an improvement on the emergency response times have attracted a higher response rate previous year, it was still higher than improved year-on-year. compared to other forces who 2006/07 and 2007/08.

6 Million vehicle kilometres travelled. 7 This includes dangerous driving, careless driving, the use of mobile phones, speeding and seatbelt offences. 28

typically use a postal survey. In Exhibit 11 2009/10, satisfaction rates improved Public confidence for all of these indicators apart from one. Public satisfaction with the way the force dealt with matters overall Public confidence in the force’s Grampian Scotland improved from 84.3 per cent in ability to ... (%) (%) 2008/09 to 86.0 per cent in 2009/10, Prevent crime 48 48 but the proportion of people who felt they had been kept adequately Respond quickly to appropriate calls and 56 58 informed fell slightly. information from the public Deal with incidents as they occur 59 61 141. The number of complaints against police officers has increased Investigate incidents after they occur 66 68 year-on-year (Exhibit 12) and has risen by 69 per cent between 2006/07 and Solve crimes 61 60 2009/10. Catch criminals 57 57

142. In 2009/10, there were 31 Source: Scottish Crime and Justice Survey 2009/10, Scottish Government, November 2010 complaints per 10,000 incidents; this was significantly higher than the Scottish average of 17.5 and was the second highest in Scotland. Exhibit 12 The force considers that members Complaints of the public have confidence in the force’s willingness to deal with 600 complaints and are therefore more prepared to make complaints. 500 Evidence suggests that the force is meticulous in recording complaints 400 and this, coupled with changes in recording processes, may account 300 for some of the increase. However, 200 other forces are also implementing Number of complaints changes to recording systems but 100 have not experienced the same level of increase. The Police Complaints 0 Commissioner will examine this 2006/07 2007/08 2008/09 2009/10

issue in depth in his annual report Source: Grampian Police annual performance reports and provide a comparison with other Scottish forces.

143. Between 2006/07 and 2009/10, the proportion of reports the force submitted to the procurator fiscal within the 28-day deadline rose from 80.7 per cent to 94.5 per cent. This was significantly better than the Scottish average of 88.6 per cent.

144. Performance in terms of reports submitted to the Children’s Reporter has also improved but was slightly below the national average in 2009/10. The force submitted 79.5 per cent of reports within 14 days in 2006/07 and this has risen to 82.5 per cent in 2009/10. 29 Part 3. Improvement recommendations 30

The improvement programme communities. This requires a culture 147. Grampian Joint Police Board and where areas in need of improvement Grampian Police must work together 145. Continuous improvement in are identified and openly discussed and take shared responsibility public services and local governance and in which service performance is in order to deliver best value to are central to the Best Value constructively challenged. the communities of Aberdeen, and Community Planning Policy Aberdeenshire, and Moray. The Framework. In striving to achieve 146. Grampian Police and the Joint table below sets out the key areas the highest possible standards of Board are aware of the key areas where the force and the board need service, members of the joint board where improvements are needed to improve. must focus on key policy objectives and are addressing them. and the needs of service users and

Improvement agenda

Grampian Joint Police Board Grampian Police Joint improvements

1. The board must ensure that it 1. The force needs to get a clearer 1. The board and the force should delivers an effective ICVS. understanding of the costs of areas review the content of the annual of activity in order to demonstrate public performance report to 2. The board needs to become more the link between resources ensure that it provides a proactive in long-term resource and results, and help to inform summary of the board’s planning to help ensure priority decisions about how resources activities and its impact. areas are resourced appropriately. are prioritised. 2. The board and the force should 3. The board should complete the 2. The force should use more develop a strategic approach to review of its current governance comparative information to sustainability to ensure that the and implement any improvement improve the quality and balance of economic, social and environmental actions, including the current performance reporting. aspects are considered. arrangements for chairing the complaints and stewardship 3. The force needs to develop subcommittees. outcome-focused equalities measures in order to assess the 4. The board should consider impact of its work in this area. recommendations of the review of the administrative support 4. The force needs to further and training and development analyse the reasons for the arrangements to ensure these are increase in complaints and racially being resourced appropriately. motivated crime and respond accordingly and assess whether it 5. The board should engage more is deploying resources appropriately proactively with the force on the on tackling controlled drugs and prioritisation, scope and monitoring road traffic accidents. of improvement work.

6. The board should strengthen its leadership and scrutiny of equalities issues. 31 Appendix 1. Expectations of police authorities

The Scottish Government has issued • It is a matter for each authority two main sources of guidance on the to determine how it fulfils these role of elected members and police roles. However, one option might authorities: be for the police authorities to contribute to and endorse the • Circular 11/2003, Implementing chief constable’s annual plan. Best Value in the Scottish Police Service, issued in December 2003. • Members of the police authorities should be able to demonstrate that • Guidance for Members of Police they are making the best use of Authorities and Joint Police public resources and demonstrate Boards, issued in June 2007. an approach to review that is rigorous, robust and covers all Taken together, these two documents aspects of their work. set out six main areas of activity for police authorities and their members: • Police authorities need to make sure that the force collects and • Police authorities need to pursue reports good-quality performance best value in tandem with chief data to them. Police authorities constables who are responsible should analyse the data and any for police operations in their force. accompanying commentary. They Members of the police authorities may then want to investigate should take joint responsibility for further by asking questions of the overarching plan to achieve the chief constable as part of a best value and other duties in the continuous discussion and review force, and work with the chief of force performance. constable to ensure that it is carried out effectively.

• Best value requires elected members and senior managers to develop a vision of how best value will contribute to the corporate goals of the authorities, inform the direction of services and be communicated to staff.

• Police authorities are expected to demonstrate responsiveness to the needs of the public and other stakeholders. Plans, priorities and actions should be informed by an understanding of those needs. Police authorities may make clear publicly how they engage and work with chief constables delivering, and reporting on, best value. They have a particular role to play in ensuring effective public consultation on aspects of policing. Grampian Police and Grampian Joint Police Board Best Value Audit and Inspection

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