Northern Constabulary and Northern Joint Police Board Best Value Audit and Inspection

Prepared for the Accounts Commission and Scottish ministers April 2010 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 44 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, 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. Northern Constabulary and Northern Joint Police Board 1 Contents

Commission findings Part 2. Northern Constabulary Page 2 performance assessment Page 22 HM Inspector of Constabulary for Scotland findings Delivering policing plan outcomes Page 3 Objective 1 – promoting safer roads Introduction Page 4 Objective 2 – reducing crime Page 23 Summary Page 7 Objective 3 – tackling serious crime

Part 1. Corporate assessment Objective 4 – developing safer and Page 10 stronger communities Page 25 Vision and strategic direction Objective 5 – maintaining public Governance and accountability order Page 11 Page 26

Partnership working and Part 3. Improvement community engagement recommendations Page 14 Page 27

Performance management and Improvement agenda improvement Page 28 Page 15 Appendix 1. Expectations of police Use of resources authorities Page 17 Page 29

Equalities Page 19

Sustainability Page 20 2 Commission findings

1. This is the second audit and • it needs to be more proactive 6. The Commission gratefully inspection report on the performance in ensuring that it receives acknowledges the co-operation by a police authority and force of their performance reports and assistance provided to the joint statutory duties on Best Value and which are well aligned to its audit and inspection team by the Community Planning. It has been strategic priorities elected members of Northern Joint produced jointly by the Controller of Police Board, the and Audit and Her Majesty’s Inspector • its monitoring of strategic risks, officers of Northern Constabulary, of Constabulary for Scotland. The and scrutiny of the response and other officials and community Accounts Commission accepts to those risks, needs to be planning partners. the report from the Controller of more structured Audit on the Northern Joint Police 7. The Commission welcomes the Board (‘the board’). In accordance • it should take a more active joint approach with HMICS on these with the Commission’s statutory role in initiating developments police audit and inspection reports, responsibilities, these findings in performance monitoring. For and the significant contribution that relate only to the Best Value audit example, it should ensure that it this is having to stimulating more of the board. has performance data available effective and streamlined scrutiny and to it – such as information on all to driving commitment to securing 2. The Commission welcomes key areas of the Scottish police best value. evidence that the board demonstrates performance framework – that many of the elements of best value. will allow it to make effective In particular: comparisons with other forces

• it has a strong awareness of • it should ensure that consideration its role, and is effective in its of diversity and equality issues is strategic oversight and scrutiny more embedded in its work and of the performance of the force the approach of all members. and in holding the chief constable to account 4. We note that there is some evidence of inconsistencies in • it displays a close connection to relationships between the board and Community Planning Partnerships constituent councils. It is important and the single outcome agreement that the relationships between targets relevant to policing the board and councils are clear, particularly in relation to the allocation • it has good working relationships and use of resources. This should be with the chief constable and the assisted by the clarification (currently force, and an effective partnership being considered by the Scottish with them in achieving best value Government, in consultation with COSLA and ACPOS) of guidance on • it ensures that policing priorities the duties and responsibilities of all focus on the needs of local police boards and their members. communities. 5. We look forward to receiving an 3. There is scope for the board improvement plan from the board to continue to develop its role. which addresses the improvement In particular: agenda set out in the joint audit and inspection report. • it should drive the sharing with other police authorities and forces of its areas of good practice 3 HM Inspector of Constabulary for Scotland findings

1. I am delighted to present • the force should improve its my findings in this joint audit monitoring of performance and inspection report. As Her and clearly communicate Majesty’s Inspector of Constabulary this information both internally for Scotland, I hold a statutory and externally responsibility to inspect both Northern Joint Police Board and Northern • the force should concentrate Constabulary. Complementary to improvement efforts towards the findings of the Accounts meeting national targets for call Commission on the Best Value handling and submission of reports and Community Planning to the Procurator Fiscal and performance of the Northern Joint Children’s Reporter. Police Board, I offer the following comments on the performance of • the force should maximise the Northern Constabulary. use of its staffing resources, while developing a greater 2. My overall assessment of Northern understanding of the financial Constabulary is that it is performing costs of policing activities. well and that the force demonstrates many of the elements of best value. 4. I look forward to receiving an Northern Constabulary has good improvement plan from Northern working relationships with Northern Constabulary which addresses the Joint Police Board and they work improvement agenda set out in this in tandem on community planning joint audit and inspection report. and leading improvement. The force executive play a key role in 5. I also wish to acknowledge my challenging performance, and the gratitude for the co-operation and force are able to report low crime and assistance provided to the joint audit high detection rates in comparison and inspection team by the elected to the Scottish average. A recent members of Northern Joint Police force review has led to a significant Board, the chief constable and restructuring of the force with a officers of Northern Constabulary, shift in resources towards front-line and other officials and community policing delivery. planning partners.

3. There is scope for the force to 6. I welcome the joint audit and improve in certain areas. In particular: inspection approach adopted in the preparation of this report, and feel that • the force should integrate it has already been proven to have the various elements of their contributed towards a more effective strategic planning to strengthen scrutiny regime that demonstrates our their direction and the clear commitment to achieving best value. communication of their priorities 4 Introduction Introduction 5

This joint report is made by the but allowing them local discretion The key objectives of this joint audit Controller of Audit to the Accounts on the methods and routes they and inspection were to: Commission under section 102(1) of use. The Scottish Government has the Local Government (Scotland) Act issued further guidance for police • assess the extent to which the 1973, and by Her Majesty’s Inspector authorities and forces. This guidance Northern Joint Police Board of Constabulary (HMIC) under section includes Justice Department Circular and Northern Constabulary are 33 of the Police (Scotland) Act 1967. 11/2003 Best Value Guidance and meeting their duties under the the Guidance for Members of Police Local Government in Scotland Act The Local Government in Scotland Act Authorities and Joint Boards, 2003 and complying with Scottish 2003 introduced new statutory duties June 2007. Government guidance relating to Best Value and Community Planning. Its provisions apply to local The scope of Best Value and • agree planned improvements with authorities, including police authorities, Community Planning is broad and the the local authorities, force and the and require specifically that: guidance and statute indicate that a board, to be reviewed by external successful police authority will: auditors and HMICS on an • councils and police authorities ongoing basis. secure best value (defined as • work in tandem with the chief achieving continuous improvement constable to develop a clear set As Best Value and Community in the performance of functions) of priorities that respond to the Planning encompass a wide variety of needs of the community in both activities, it is not realistic to audit or • police authorities and chief the short and longer term inspect everything in depth. For this constables participate in the reason we plan our detailed work in community planning process. • be organised to support the two ways: delivery of these priorities The Act also amended the audit • Where possible we draw on arrangements set out in the Local • meet, and clearly demonstrate the findings of other scrutiny Government (Scotland) Act 1973 to that it is meeting, the community’s processes, such as the work cover Best Value and gave powers to needs carried out by other inspectorates. the Accounts Commission to examine Best Value in police authorities. • operate in a way that drives • We select certain aspects of the Her Majesty’s Inspectorate of continuous improvement in all its force and board’s performance for Constabulary for Scotland (HMICS) activities. detailed investigation. We use a has a statutory duty under section 33 wide range of sources, including of the Police (Scotland) Act 1967 to Similarly, a successful police force the force and board’s own inspect police forces and common will: assessment of their performance, police services, and to report to reports issued following external ministers on their state and • work with its partners and the audit and inspections and the efficiency. The 2003 Act extends police authority/police authorities Scottish Policing Performance this to include provision for HMICS to develop a clear set of priorities Framework (SPPF) to assess to inquire into and report to Scottish that respond to the needs of the risks and scope our work to inform ministers on whether a local authority community in both the short and this selection. is carrying out its functions both as a longer term police authority and in relation to Our joint report reflects this a number of matters including • be organised to deliver these proportionate approach, with detailed Best Value. priorities commentary in some areas and limited coverage in others. It also The 2003 Act is supported by more • meet, and clearly demonstrate presents the picture we found at the detailed statutory guidance on Best that it is meeting, the community’s time our main audit and inspection Value and Community Planning, needs work was conducted, in October and a series of advisory notes on 2009. The report includes a corporate specific topics such as elected • operate in a way that drives assessment of the joint board and member leadership. This guidance continuous improvement in all its the force, while the performance is designed to be descriptive rather activities. assessment covers only the force. than prescriptive, defining the goals that organisations should aim for 6

We gratefully acknowledge the The effect of these arrangements co-operation and assistance is that the board and the chief provided to the team by Councillor constable, although they have Norman M Macleod, Convenor of different roles, must work in tandem Northern Joint Police Board; Chief to achieve best value. In this report, Constable Ian Latimer, Northern we only make judgements on the Constabulary; Northern Constabulary board and force, but all parties to the Executive Advisory Group; Chief arrangement, including the Scottish Inspector Ian Bryce, Head of Policy ministers, have responsibility for and Coordination Unit, Northern the overall performance of the Constabulary; Michelle Morris, Clerk police service. to the Board; and all other elected members and staff involved. We are Constituent authorities are responsible also grateful to the representatives for appointing the members of a of the four councils and the joint board and for allocating funding. force’s community partners who The board is a separate legal entity agreed to participate in the audit and and, although councils have no inspection process. separate residual responsibilities (beyond appointing members and The tripartite arrangements and funding), the effectiveness of the police authorities’ leadership role board is supported in practice by The force is governed through a the constituent councils through the tripartite arrangement between the provision of clerking services and chief constable, the joint police board training and support for members. (‘the board’) and Scottish ministers. As the force covers more than one The existing guidance for policing local authority area, a joint police (Circular 11/2003 and Guidance to board comprising members from Members, June 2007), sets out the four constituent authorities has expectations of the board. These can been formed as the police authority. be found at Appendix 1 of this report. Scottish ministers retain overall responsibility for policing policy at national level. Northern Joint Police Board is responsible for setting the police budget, ensuring that best value is attained and holding the chief constable to account. The chief constable is responsible for the operational aspects of policing within the force area. 7 Summary 8

Summary 1. Board members are involved is provided with budget reports in setting the strategic priorities and a range of performance Northern Constabulary and the of the force. The chief constable monitoring reports. Northern Joint Police Board (‘the and his staff carry out the board’) have established many detailed development of Northern 4. The board has demonstrated a good of the key elements of best Constabulary’s strategic planning, level of self-awareness and an interest value. There are sound working reflecting their understanding of in developing its overall approach. relationships between senior police local and national policing priorities. During 2009, it carried out an EFQM officers, council managers and However, board members also have (European Foundation for Quality board members. Board members a role in this process which goes Management) self-assessment, help to ensure that policing beyond the formal approval of these identifying a range of areas in need priorities meet the needs of their plans. Through the annual strategic of improvement. Many of these are communities. Over many years, seminar and attending regular being addressed with, for example, the force has delivered an effective meetings of various working groups, job descriptions for members, web- policing service, with low levels of elected members influence the casting of board meetings, and crime and high detection rates. force’s strategic plans. proposals for temporary administrative support for the board to help develop There are some areas in need 2. There are good links between its capacity to provide independent of further development and the board and its community challenge and scrutiny. members and officers have planning partners. There are some shown a drive to achieve inconsistencies in how the work of the Northern Constabulary continuous improvement. Following board is reported back to each of the a recent self-assessment, the four constituent councils. However, Northern Constabulary has good board has taken several initiatives each of the councils takes a proactive working relationships with Northern designed to help strengthen its interest in the police budget and Joint Police Board, which works in role, although the impact of these in the effectiveness of local police tandem with the chief constable has not yet been demonstrated. services. Board members participate on community planning and Northern Constabulary has carried in each of the four community safety leading improvement. The force is out a major force review, which has partnerships and they are provided with performing well and continues to led to a restructuring of services, regular reports on the establishment report low crime and high detection with significant savings in support of the Single Outcome Agreements rates throughout its geographical costs and an increase in front-line (SOAs) and, since November 2009, the area. The Force Executive plays a policing resources. progress made by the force towards key role in challenging performance achieving the various targets that are and driving improvement. The Northern Joint Police Board relevant to policing. force could do more to assist the board in its performance scrutiny Board members provide effective 3. Members show a good responsibilities by improving oversight of Northern Constabulary, understanding of scrutiny. There is a the quality of performance data helping to set its strategic priorities, good working relationship between supplied. The Force Policing and being closely involved in the the board and the force and members Plan drives policing activity but Community Planning Partnerships provide independent challenge. its lack of integration with a key (CPPs) which interact with the Board members are not proactive operational strategy results in force. Board members are not in determining what monitoring activity prioritised by the force not proactive in determining what information they require from being systematically monitored monitoring information they officers. In particular, the scope of or reported. The force has a well require, but they demonstrate performance reports provided to the defined corporate structure, which a good understanding of the board does not allow it to fully assess generally works well, but in some importance of scrutinising police the force’s progress in meeting of the geographically remote performance. The board is aware its strategic objectives. However, areas of the force partnership of the main areas in which it needs there are important elements of relationships are weakened by an to develop and has already initiated scrutiny already in place. Progress informality of approach. The recent some changes, including the made by the force in addressing force review has led to a significant introduction of job descriptions for the recommendations of external restructuring of the force with a members and the web-casting of audit and inspection is monitored by shift in resources towards front-line board meetings. members, and each board meeting policing delivery. Summary 9

5. Northern Constabulary has a clear divisional commanders. Community the delivery of police services and strategic direction informed by an engagement and consultation takes generated significant efficiency understanding of the needs of local place in a structured manner and is savings. The force has a sound communities. It has a comprehensive used to help shape force priorities. approach to strategically managing and structured approach to Despite the force providing clear its staff resources yet operationally community consultation which guidance on roles and responsibilities there was little evidence of the informs the development of force when entering into partnerships divisional tasking process being used and departmental plans. The force’s with different agencies, some to routinely move resources across planning processes suffer from a lack relationships with partners beyond council boundaries to meet local of integration between the policing Divisional headquarters were found policing challenges. plan priorities and the force control to suffer from a lack of clarity about strategy. This lack of integration the role of partners. 11. The consideration of equalities makes it challenging to identify a clear issues is reasonably well integrated linked set of priorities or to monitor 8. Northern Constabulary has within mainland areas of Northern and review divisional or force activities demonstrated commitment to Constabulary and less well developed and their impact. improving services and is undertaking in the island authority areas. a great deal of improvement activity 6. The force has restructured into across the force. This activity is 12. The force is developing a three divisions, containing a total consolidated, prioritised and managed more comprehensive approach to of eight area commands, which within an overarching corporate sustainability. It has consulted on the are principally coterminous with improvement plan. Performance effect of proposed changes to police the and Island Council management is not currently focused staff posts in remote communities. management areas. There is a on a range of performance information Although some work has begun, the positive level of empowerment to linked to key force priorities and force does not have an approach that the divisions and area commands activity, and performance reports to covers all aspects of sustainability. that allows each to reflect and the public and board lack detail. focus on local need in their area. 13. The force’s policing plan is The force executive team provides 9. As a result of the strategic outcome focused and acknowledges strong visible leadership and there planning process, Northern the importance of national imperatives is a corporate approach to force- Constabulary carried out a review as well as community policing wide issues with a good overview of its organisational structures and throughout the Highlands and and challenge of policing activity. key processes to ensure its ability Islands. The plan provides a degree At present the force reports to the to meet future demands. This Force of continuity in the organisational board on progress against external Review resulted in 20 strategic priorities identified, with the same scrutiny body recommendations. recommendations which, starting in key issues remaining constant over Historically, the board has not been April 2007, has led to a restructuring a number of years. The force has fully sighted on all external scrutiny of the force and a significant shift not supplied data to the SPPF on the body recommendations, which has in resources from support staff to key areas of public satisfaction and resulted in the board being unable to front-line police officers. Northern emergency response times, making fully scrutinise the force’s decisions Constabulary is currently reviewing comparison with other Scottish on implementation or prioritisation of the implementation of the force police forces more difficult. The force these recommendations. Northern review has had some success in reducing Constabulary has recently developed to establish if all the predicted recorded crime and detection rates a revised risk management strategy business benefits have been realised remain good. which is a more comprehensive and to identify further business approach to organisational risk, setting benefits and efficiency savings that 14. Northern Constabulary has a low out prioritised risks and the action can be achieved. crime rate and a high detection rate being taken to mitigate these risks. compared with other Scottish police 10. The force’s financial control is forces. While the force benefits from 7. The force works well with sound and it has a good record of its rural geography, where detection its partners, displaying a strong achieving efficiency savings targets. rates are traditionally higher than more commitment to community planning While it does not have a formal urban locations, this also poses a and delivering local outcomes. There financial strategy, it does take a long- number of policing challenges which is good engagement between board term view of its financial sustainability. the force is well positioned to address. members, area commanders and A major force review has restructured 10 Part 1. Corporate assessment Part 1. Corporate assessment 11

Vision and strategic direction Policing Plan for implementation. Governance and accountability The strategic plan is developed Northern Joint Police Board from local planning days with wide Northern Joint Police Board representation from partner agencies, Board members are actively local communities and police board Board members have a good involved in developing the vision members. Information gathered feeds understanding of their role, with and strategic priorities for local into the force planning day attended training provided to new members police services. by divisional commanders and and, more recently, the introduction headquarters service unit managers. of a formal job description for 15. The chief constable and his staff Outcomes from the force planning board members. There are some carry out the detailed development day are taken forward to the strategy inconsistencies in how the work of of the force’s strategic planning, seminar attended by internal and the board is reported back to each reflecting their understanding of external stakeholders. of the four constituent councils. local and national policing priorities. The board does not yet have a Board members also have a role 17. Northern Constabulary effectively structured approach to monitoring in this process which goes beyond communicate the force’s strategic risks and the action being taken the formal approval of these plans. direction and community focus to mitigate them. Independent Through the annual strategy seminar through the force and divisional custody visits are carried out for and attending the regular meetings policing plans. Staff were found the main facilities within Northern of the Policy and Finance Working to have a good awareness of, and Constabulary and the results Group, elected members bring their were working towards, policing plan reported to the board. However, understanding of local community objectives. Local policing plans and these independent visits do not needs and help ensure that this is strategic objectives are posted on the cover all of the custody facilities, reflected in the force’s strategic plans. force website, which is accessible to particularly those in Western Isles, Their vision of community policing the public and easy to navigate. and . and the importance of the service in remote rural locations is reflected in 18. Northern Constabulary has a 20. The board has 24 members, made the force’s strategic plans. strong community policing focus, up of 16 councillors from Highland helping it to understand the needs of Council, four from Western Isles Northern Constabulary its communities. It maintains officers Council, two from Orkney Council and and stations in very remote locations. two from Shetland Islands Council. Northern Constabulary has a All officers are required to relocate It meets four times per year, usually clear strategic direction informed during their service to these very in but meetings are also by an understanding of the remote communities or islands where regularly scheduled to be held in one needs of local communities. they are visible as police officers both of the island authorities. The board It has a comprehensive and on and off duty. This transfer policy convenor is a councillor from the structured approach to community results in officers and their families Western Isles. The board is supported consultation which informs moving into and participating in the by seven subcommittees. The audit the development of force and life of the communities they police. and complaints subcommittees meet departmental plans. The force’s four times per year; the others meet planning processes suffer from a 19. The force, in partnership with the when requested by the board. lack of integration between the board, has identified five strategic policing plan priorities and the priorities and supporting objectives 21. The board is supported by the force control strategy. This lack of for the period 2009–12 (Exhibit 1, treasurer, the clerk and the assistant integration makes it challenging overleaf). These priorities were clerk to the board, all provided by to identify a clear linked set of identified in accordance with the four Highland Council. Their roles are priorities or to monitor and review SOAs. These policing plan priorities incorporated within the work of Legal divisional or force activities and are not fully integrated with the force Services at the council. Approximately their impact. operational control strategy and five per cent of the clerk’s time, although there are some elements and 50 per cent of the assistant 16. The force consults widely and of overlap, there is no direct link to clerk’s, is devoted to supporting the provides Northern Joint Police Board the control strategy priorities. It is the police board. The board has recently opportunity to participate in setting the policing plan that is the main driver for approved proposals to establish a force strategic direction. The Force business and this lack of integration dedicated support post, in order Strategic Plan sets out the operational makes it challenging to identify a clear to help strengthen its independent priorities for the force for a rolling five- linked set of priorities and to monitor scrutiny role. year period with operational priorities and review divisional or force activity being cascaded through the Force and impact. 12

Exhibit 1 Strategic priorities and objectives

Promoting safer By being proactive in our efforts to ensure that everyone feels safe and secure. We will roads proactively work to make our roads safer, reducing road accidents and casualties, while working productively with key partners to improve road safety and public education.

Reducing crime By working with our strategic partners, including our communities, to prevent crime by addressing the causes of crime as well as actual incidents of crime.

Tackling serious By investigating all aspects of a crime, including drug-related crime, to address the needs of crime victims, witnesses and offenders. We will work efficiently and effectively to increase the level of crime detection and the number of serious offenders brought to justice.

Developing safer By responding to all relevant incidents, regardless of whether the incident is a major road and stronger accident or related to anti-social behaviour. Criminal disruption of business and quality of life communities within local communities will not be considered acceptable. We will work to protect and preserve individual safety, as well as reducing fear, prejudice and injustice.

Maintaining By managing organisational and operational risks, implementing best practice in terms of public order business continuity and operating as a Best Value public service in a policing context that increasingly sees international issues resonating regionally and locally.

Source: Strategic Plan 2009–12, Northern Constabulary

22. There is some inconsistency We found little evidence of ongoing high-level risks and the proposed in the governance arrangements training provided to board members action to mitigate these risks. Specific between the board and the four by the force. However, a training risks, such as financial sustainability, constituent councils with, for needs analysis was carried out during are discussed by the board, but example, one receiving board minutes 2009 with the aim of developing a there is no structured consideration, at full council meetings, one placing programming of training for members. carried out throughout the year, of the board minutes in the members’ corporate risk register and the action lounge and another receiving briefings 24. The board’s decision-making is being taken to mitigate risks. from board members only on an open and transparent. Board meetings exceptions basis. However, there is a are held in public, and agendas, 26. Northern Joint Police Board sound underlying level of engagement reports and minutes are easily undertakes its duty of scrutiny between the board and the four accessible on the website. Around a of police custody through its councils with, for example, the four third of board reports are for decision- Independent Custody Visiting Scheme council convenors meeting to discuss making and two-thirds for noting. (ICVS). Since 2000, Northern Joint policing budgets. Generally, the Members do not limit their questions Police Board has operated an ICVS councils view the board as effective to local concerns and generally focus with independent members of the but are clear that they have a limited on strategic concerns. The board has community making unannounced role once the board is constituted. also recently piloted the web-casting visits to police stations and checking The board’s status as a ‘separate legal of its meetings, in an effort to make on the conditions and welfare of entity’ leads to some ambiguity in them more open and accessible to those held in police custody. The how constituent councils engage with the public. findings of these visits are reported the board. to the board and incorporated into 25. The board has not had a the Scottish Annual Report on the 23. New board members receive structured approach to risk operation of Independent Custody training on policing issues from management. A corporate risk Visiting in Scotland. Northern Constabulary. Job register has been established for descriptions have also recently been several years and board members 27. While the board is fulfilling introduced for board members. These have recently approved a revised its scrutiny responsibilities within provide useful guidance on the role risk management strategy. However, mainland custody facilities, the of board members in areas such as there is no evidence that board Northern Joint Police Board ICVS partnership working and scrutiny. members have regularly considered does not presently visit police cells Part 1. Corporate assessment 13

on the island authorities. Following is a corporate approach to force- 30. The force is organised into the introduction of custody visiting in wide issues, with a good overview three divisions. This follows a major 2000 at Inverness, the scheme was and challenge of policing activity. force review, which was started in extended by 2002 to cover the stations At present the force reports to the 2006 and saw a reduction from the at Dingwall, Alness, Aviemore and board on progress against external previous eight Area Command Units Nairn. This left a number of custody scrutiny body recommendations. to three divisions: facilities outwith the scope of the There is insufficient information ICVS, with around 400 custodies in these reports to allow the • East (serving the Highland processed each quarter in the Western board to effectively scrutinise communities of Inverness, Isles, Orkney and Shetland. There are the force’s decisions on Badenoch, Strathspey and Nairn). practical difficulties for the board in implementation or prioritisation undertaking truly independent custody of these recommendations. • Central (Ross and Cromarty, visits to prisoners from within small Northern Constabulary has Lochaber, Skye and Lochalsh, population groups, and a number of recently developed a revised risk and the Western Isles). local authority members currently management strategy which is a inspect these facilities as legalised more comprehensive approach • North (Caithness, Sutherland, cells. While the use of local authority to organisational risk, setting out East Ross, Orkney and Shetland). members to perform this role is a prioritised risks and the action pragmatic solution to the problem, being taken to mitigate these risks. 31. The area commands have been until such time as these persons retained within the divisional structure become fully trained and accredited 29. At a strategic level, the force is and each of the eight area commands members of the ICVS, the board led by the Force Executive, which is led by a chief inspector. The island remains vulnerable to risk in this area. meets on a weekly basis to manage authorities of Western Isles, Orkney The board is required to ensure that operational activities. The executive and Shetland are coterminous with the Northern Joint Police Board ICVS is made up of the chief constable, their respective area commands. covers all the custody facilities within deputy chief constable, and two chief These area commands are part of the force area and there is opportunity superintendents, plus the director of larger divisions which are led by a to learn from good practice in this area. Human Resources and the director superintendent (see Exhibit 2). The of Finance and Asset Management. divisions are principally coterminous 28. Northern Joint Police Board does All members of this group also sit on with highland and island council not currently ensure that its custody the Executive Advisory Group, which management areas and provide visitors are adequately briefed on oversees broader strategic issues. strategic management and direction recommendations on police custody from external scrutiny bodies. HMICS has completed three custody-related thematic reports in the two years prior Exhibit 2 The force area North to this report. The recommendations division from these inspections have not been North division passed to the custody visitors by the board. This inhibits the custody visitors from exploring these areas and reporting their subsequent North Central division findings to the board. division

Northern Constabulary Central division The force has restructured into

three divisions, containing a total East of eight area commands, which division are principally coterminous with the Highland and Island Council management areas. There is a positive level of empowerment to the divisions and area commands that allows each to reflect and focus on local need in their area. The force executive team provide Source: HMICS and the Scottish Government strong visible leadership and there 14

to the area commands. This 35. Historically, the reports which Partnership working and pragmatic approach results in the are supplied to the board by community engagement relevant council areas deriving the Northern Constabulary on progress benefits of being coterminous with made against external scrutiny Northern Joint Police Board policing boundaries, while retaining body recommendations have not the cost benefits of larger divisions. fully detailed all recommendations Board members understand received, which has hindered the the policing needs of their 32. The force retains oversight of board in fully discharging its scrutiny communities. They are also divisional activity and has a corporate responsibilities. Northern Constabulary involved in community planning approach to force-wide issues. The reports its progress on the majority of activities in each of the four council three territorial police divisions and recommendations made by HMICS areas. Scrutiny of the force’s their component area commands and other scrutiny bodies to the community planning activities differ widely in geographical challenge police board. Overall, this provides a is developing. Members have but there is clear central oversight useful summary, allowing members monitored the introduction of SOAs and monitoring of activity and to easily monitor the force’s progress and the progress being made performance against the policing plan. in implementing recommendations, towards the various objectives Divisional performance is scrutinised but does not provide enough which relate to policing. and commanders held to account information to allow the board to by the head of operations on a scrutinise the force’s rationale behind 37. Board members have a good monthly basis. decisions on prioritisation or rejection understanding about policing issues of improvement recommendations. affecting their communities. They 33. Northern Constabulary has Reporting of progress against receive reports on the results recently developed a revised risk recommendations on its own is of policing surveys, helping to management strategy but at the insufficient to allow the board to fully supplement their general time of the inspection had not yet discharge its scrutiny responsibilities. knowledge gained through their fully implemented it. The revised role as elected members. strategy is a more comprehensive 36. The force could do more to approach to organisational risk. The improve its public accountability 38. There is clear evidence of effective force established a corporate risk by improving the performance partnership working between the register several years ago. There is information available to the board and its community planning little evidence that this was regularly public. The force website partners. Board members are involved updated or that mitigating actions www.northern.police.uk is easily in each of the four community were routinely monitored, suggesting accessible by the public and allows safety partnerships covered by that strategic risk management access to the Strategic and Annual Northern Constabulary. In recent was not fully embedded within Policing Performance Report months, the board has temporarily the organisation. A revised risk but is limited in the amount of not been represented on the Orkney management strategy has recently contextual performance information. community safety partnership, but this been developed, with a timetable for Performance information is available is now being addressed. establishing a revised risk register and easy to read and understand but by March 2010, a broader scope to does not include trend information, 39. Scrutiny of the force’s community take in wider issues such as financial targets, comparisons with planning activity is developing. During sustainability and reputational risks, Scottish average figures and other 2008/09, the board was provided with and a methodology for risks to be forces, or explain the reasons for regular updates on the introduction regularly monitored by senior officers. underperformance and how it plans of SOAs for each of the four to improve. council areas. This was followed, in 34. The force has a good overview of November 2009, with a consolidated community planning and community SOA report, which provided members engagement activity across the three with detailed monitoring information, divisions, with central monitoring allowing them to assess the progress and analysis of activity. There is being made by the force towards coordination of approach to managing achieving the various SOA objectives operational risk areas. The force which relate to policing. demonstrates a balance of focus between local issues and prioritisation of national risk areas. Part 1. Corporate assessment 15

Northern Constabulary each island authority report back to whether it is the result of a conscious the CPP on a quarterly basis. The decision made by the force or if it is The force works well with its force demonstrates an understanding being held in abeyance. partners, displaying a strong of the role of SOAs in driving policing commitment to community activity, yet monitoring and reporting 45. Despite the force producing clear planning and to delivering on SOA outcomes is still a developing guidance on roles and responsibilities local outcomes. There is good area. The force has recently in partnership working, in some engagement between board introduced an overview report, areas relationships with partners had members, area commanders and summarising its progress in achieving become informal resulting in a lack of divisional commanders. There is the various targets contained within clarity of the partners’ role. At both a lack of force-wide reporting of the four SOAs. strategic and divisional headquarters progress against SOA outcomes. level there was good sharing of Community engagement and 42. The force has a strong information, engagement and consultation takes place in a commitment to community planning. effective working. At area command structured manner and is used to It has incorporated local community level this was less consistent. The help shape force priorities. Despite planning activity within the three partnership relationships in two of the force providing clear guidance divisions. Area commanders are the council areas were well balanced, on roles and responsibilities active members of their local while the relationships found on two when entering into partnerships Community Safety Partnership. of the island councils were of passive with different agencies, some Divisional and area commanders meet partners who took what they were relationships with partners beyond informally with local board members provided with. They were unaware of divisional headquarters were found and undertake a detailed exploration what information, data and statistics to suffer from a lack of clarity of of local issues. were available to them. the partners’ role. 43. The force’s community planning Performance management and 40. Community engagement partners across all four partnerships improvement and consultation takes place in a are confident that Northern structured, well-managed three-tier Constabulary is fully committed to Northern Joint Police Board consultation process. All community community planning. There are strong councils and ward forums within governance and accountability links Board members have a good the force area are attended by a between the divisional commanders understanding of the importance police officer. Divisional and area and area commanders and their of scrutinising police performance. commanders engage with and are local CPPs. The force maintains a They are provided with a wide accessible to key stakeholders, corporate overview of partnership range of information on policing partners and elected members. The activities. Central coordination and activities, performance levels, chief constable and force executive monitoring of partnership activity and progress in implementing the engage at chief officer level. This is undertaken by the force and any recommendations of external audit provides opportunity for community issues or good practice identified. and inspection. Members also groups and elected members to There is police participation participate in a series of working raise issues of concern or interest throughout the community planning groups, providing independent and receive feedback. Partners themed partnerships and there was challenge on specific areas such and elected members interviewed evidence of well-established, mature as equalities and the force review. reported favourably on the process. partnership relationships. However, board members do The structured consultation process not proactively determine what provides opportunity for local to 44. Outside of the CPP structure, monitoring information they require strategic issues to be raised and dealt partnership involvement in operational in order to fully assess the force’s with appropriately. business planning through police progress in meeting its strategic tasking and coordinating meetings objectives and to meet their 41. Northern Constabulary has is variable. In the Western Isles scrutiny responsibilities. Similarly, engaged well with each of its four there is a stated intention to hold a the board tends to rely on the CPPs to develop SOAs. While each partnership tasking and coordinating force to identify areas in need of CPP had a sound understanding of meeting every two months, though review and improvement. There the success or otherwise of their this has not materialised. Historically, is also scope for a short summary own individual SOA, the force failed in Orkney a joint tasking meeting was of the board’s activities during to present the board with evidence held which partners attended. This the year within the annual public of collective progress across all CPP now no longer takes place, and a performance report. areas. The chief constable signs all lack of communication as to why has SOAs and the area commanders in meant that partners are unclear as to 16

46. The chief constable provides a 49. There is a good level of debate Northern Constabulary quarterly Crime Situation report for and questioning at board meetings. each board meeting. This provides While most board papers are for Northern Constabulary has a summary of incidents and policing noting, rather than presenting options demonstrated commitment activity, both at force and at area for board decisions, members do to improving services and has command levels, and is regarded by question officers and, in general, undertaken a great deal of board members as a useful report. focus on strategic matters, such as improvement activity across the The report is structured on the financial sustainability. There is also force. This activity is consolidated, force’s five strategic themes, but it a good level of scrutiny provided prioritised and managed within an does not provide a full picture of the by the Audit Working Group, which overarching corporate improvement progress being made. For example, considers a range of audit and plan. Performance management is some specific information is given inspection reports and monitors the not currently focused on a range of on particular objectives, such as road progress being made in implementing performance information linked to injuries and deaths and drink driving the various recommendations. key force priorities and activity and incidents. But information relating to performance reports to the public other objectives, such as detections 50. The board is not proactive in and board lack detail. for speeding, failing to wear seat belts determining what reports it needs and the use of mobile phones illegally to allow it to fulfil its responsibilities. 52. Northern Constabulary has a while driving is not routinely provided. Members do request reports clear focus on improvement. The on specific issues, but have not force review has led to a major 47. Board members also receive the determined the scope and structure restructuring, with a streamlining of force’s monthly performance reports. of performance monitoring reports. headquarters functions and a shift These provide much more detailed Instead, police officers and managers in resources from support staff to statistical information on policing determine the information which is front-line. In addition, it has allowed activity and performance. However, routinely provided to board members. the creation of Public Protection, these reports are not structured on For example, the board has not been Pro-active and National Intelligence the force’s five strategic themes. receiving information on the number Model (NIM) units at each divisional They provide monitoring information of children in custody, or made aware headquarters to support operational on some, but not all, of the strategic about all recommendations from policing. The force has introduced targets, and they also report on other, external scrutiny, including those a Variable Shift Agreement to non-strategic, performance issues. which officers have deemed to be not concentrate policing resources at core In addition, the detailed performance relevant to their area. times. The force is now reviewing reports are tabled on the day of board the impact of this restructuring and meetings, giving most members 51. Board members carry out some aiming to identify any further business little time to absorb the key issues. overview of the force’s improvement benefits or efficiency savings that can Members are provided with a wealth agenda. For example, they were be achieved. of information, but they are not able involved in the Force Review Working to readily monitor the force’s progress Group, providing some independent 53. Northern Constabulary towards meeting its strategic targets. challenge to this major restructuring consolidates, prioritises and manages of Northern Constabulary. More improvement activity within an 48. The board reviews Northern recently, they have become involved overarching corporate improvement Constabulary’s annual Public in a review of shared services. plan. Prioritisation and delivery Performance Report. This is an These are worthwhile reviews, with of planned objectives following accessible document and provides the potential to generate significant consultation with key stakeholders is a wide range of information, some savings, but they are largely initiated managed through the force’s annual of which is structured on the main by the force, rather than flowing from planning and review cycle. A range themes of the strategic plan. However, the independent scrutiny of members. of improvement recommendations, as with the monthly performance In order to fulfil their duty to work ‘in consultation activity, ongoing projects reports, there are gaps in the tandem’ with the chief constable to and capital works information is information provided. As a result, it secure best value, there is scope for considered in setting the forthcoming does not provide the reader with a clear members to play a stronger role in force objectives, tasks and priorities. assessment of Northern Constabulary’s identifying and prioritising activity. These are then implemented in progress in meeting each of its key tandem with organisational objectives objectives that are set out in its approved by the force’s Capital strategic plan. The report includes a and Project Monitoring Group. The short overview from the convenor, but force retains oversight of progress this does not provide any summary of through the Force Performance board activity or its impact. Part 1. Corporate assessment 17

Board, which is chaired by the deputy 57. Improvement activity reports to example, has reviewed sickness chief constable and scrutinises and the board are not comprehensive. absence rates, and the results of the challenges exceptionally good or The force does not provide sufficient biannual staffing surveys. The board poor activity. information to the board to enable it was also represented in the force to explore fully the rationale behind review through the convenor and 54. While the Force Policing Plan decisions made in response to vice convenor’s involvement in the has a number of performance scrutiny body recommendations. Force Review Programme Board. In objectives related to strategic The board receives external scrutiny addition, board members attended priorities, the Force Strategic Plan reports directly but it currently remains a one-day seminar on the review. contains slightly different performance reliant on the police to itemise and This major restructuring, which saw objectives. This lack of consistency report on the recommendations. A a significant shift in resources from is further demonstrated by the consolidated monitoring report, pulling support services to front-line policing, force’s own performance reporting together all the recommendations was supported by an informed and mechanism, which details a number from the various external scrutiny participating board. of performance objectives which do bodies, has recently been introduced not mirror those contained within the by the force, and provided to board 60. The board takes a strategic policing plan. This discrepancy has members. This is a welcome interest in the force’s financial the potential to cause confusion development but while there is position, which goes beyond simply and to divert attention from key sufficient information recorded to monitoring the monthly budget performance areas. enable the board to monitor its reports for the current year. Following progress against recommendations, the force review, there has been 55. The force has a comprehensive there is insufficient information to an increase in front-line policing management structure to monitor and allow it to scrutinise the rationale numbers and the force currently has challenge its performance and through and decisions taken around the force a relatively sound financial position. the various chairs such meetings, responses to the recommendation. Board members have shown a keen though collegiate in approach, offer awareness of the economic climate a high level of rigour and challenge. Use of resources and, in anticipation of future budgetary The force’s overall approach is, restrictions, have challenged officers however, constrained by a lack of Northern Joint Police Board on the sustainability of the current alignment with its control strategy: policing model and financial position. the performance report that informs Board members are kept well the monitoring process is designed informed of financial matters, are 61. Board members have scrutinised around the force’s policing plan but active in financial monitoring and, some strategic aspects of the force’s not its control strategy. While the through various human resources use of resources. As mentioned Force Information Management Unit working groups, are effective in earlier, they were involved in monitors and reports on performance monitoring staffing issues. They overseeing the force review, which against prevention, information or scrutinise some strategic aspects of has led to a significant restructuring enforcement activity as part of the the use of resources, but tend of the force and a shift in resources. NIM process, these updates are to rely of the force to initiate More recently, they have also become not embedded within the force’s these reviews. involved in a working group to review performance monitoring process. the potential for shared services with 58. The board is actively involved in neighbouring authorities. However, 56. Publicly accessible performance overseeing the financial management these reviews have generally been information is not comprehensive. of the force. In addition to approving initiated by the force, rather than Information available through the the overall budget, it approves all arisen from the board’s scrutiny of force website is easy to read and significant financial decisions, such performance and assessment of understand but does not include trend as major contracts and the annual areas in need of improvement. While information, targets, comparisons capital expenditure programme. It also it has considered particular projects with Scottish average figures and monitors budget reports throughout at various times, the board has not other forces or explore the reasons the year and reviews annual savings established an overall prioritised for variation in force performance. and efficiency reports. programme of reviews, based on an While there is evidence of internal assessment of performance or risk. force comparison of performance 59. Board members also monitor within divisions and area commands, the use of resources through their there is little evidence of the force membership of various member- benchmarking itself against other officer working groups. The Investors forces or areas. In People (IIP) working group, for 18

Northern Constabulary Exhibit 3 The force’s financial control is Gross expenditure per capita population on Scottish policing 2008/09 sound and it has a good record and 2007/08 of achieving efficiency savings targets. While it does not have Gross expenditure 2008/09 2007/08 a formal financial strategy, it per capita population Annual accounts £ does take a long-term view of its £ financial sustainability. A major force review has restructured the Scotland 258 258 delivery of police services and Tayside 241 234 generated significant efficiency savings. The force has a sound Lothian and Borders 292 287 approach to strategically managing its staff resources, yet operationally Strathclyde 265 267 there was little evidence of the Northern 223 230 divisional tasking process being used to meet local policing Grampian 236 222 challenges through the routine Central 221 229 movement of resources from the mainland to island locations. 235 239

62. Northern Constabulary had a Dumfries and Galloway 277 272 net revenue budget for 2009/10 of £59.4 million, representing a net Note: On 1 April 2008 police ICT functions transferred to the SPSA (Scottish Police Services increase of over £1 million on the Authority). This will affect comparative expenditure information between 2007/08 and 2008/09.

previous year. However, there is Source: Annual accounts of police boards evidence to show that the force’s expenditure is relatively low compared with other Scottish police forces. In 2008/09, it spent £223 per capita, significantly less than 64. Much of this was achieved 65. The force restructuring has the Scottish average of £258 and through a review of its policing model. enabled the creation at each divisional slightly below the force’s expenditure The force review, which started in headquarters (Inverness, Dingwall levels in 2007/08 (Exhibit 3). 2007, involved a rationalisation of and Wick) of a Public Protection unit, policing service. The chief constable NIM unit and a Pro-active unit. This 63. Northern Constabulary has and board members were clear structure is more in line with that strong financial control. It has in that this would not result in any adopted by other Scottish forces place good processes for budget reduction of visible community and has allowed greater divisional setting and monitoring, and provides policing. The force reduced the resilience in both mainstream and comprehensive reports to the board. number of police support staff specialist policing resources, as well as The force also has a proven record posts by 75 (approximately increasing the oversight and support of achieving efficiency savings. In 15 per cent), reduced the number to the management of child protection 2008/09, £1.8 million of recurring of staff in force headquarters and and public protection enquiries. savings were reported, together with increased the number of police a further £1.7 million received from officers. The force review did not 66. In common with other forces the sale of police houses. A further result in the closure of any police there is good awareness of the £1.8 million of savings is planned stations. Northern Constabulary total costs of policing in relation to for the current financial year. The retains a number of single officer its divisions and functions, but it force has been able to generate cash stations which are geographically has difficulty in identifying the cost savings which have been reinvested remote and where officers routinely of policing activities. This means in increasing the number of front-line work alone or supported by a special the force has little awareness and police officers. constable. The board and the chief hence lacks transparency in the constable maintain this is essential to relationship between resources provide a visible police presence to invested, performance levels and communities in very remote locations. overall outcomes. Part 1. Corporate assessment 19

67. The force does not have a long- of corroboration or partner working and support to help them carry out term financial plan but does look with the full-time officer. When there their work. The most significant beyond the current financial year. is no full-time officer present at a concern expressed was about the Current capital plans are for three police station the special constable level of consultation carried out before years (2008/09 to 2010/11) with has no access to the building, the operational changes are made. current revenue plans only covering police computer systems or self- a single year, 2009/10. The force has briefing information. Additionally, the 72. Limited evidence was found engaged with constituent authorities majority of special constables are not of specialist staff resources being around the level of funding it receives authorised to drive police vehicles routinely moved within divisions to and has recognised that this level within Northern Constabulary. This address policing challenges. Since may not be sustainable. It has been restriction on access to equipment, the recent force re-organisation, examining how it can generate information and vehicles inhibits the capacity of divisions to deploy time-releasing and cash efficiencies, the deployment of a valuable specialist resources based on demand modelling its budget on different policing resource. has increased, yet access across levels of efficiency savings to alleviate all area commands was variable. the impact. 70. Northern Constabulary has Movement of officers based on workforce planning processes in identified operational need is relatively 68. Northern Constabulary does place and has linked its force training common in mainland areas yet during not have an overarching asset plan to its strategic priorities. Training the inspection we found movement management strategy, linked to its need is assessed and prioritised on of officers to the island areas of the strategic priorities and objectives. a force-wide basis to meet service force occurred less frequently. Despite The force has asset management demand. The force has also made a widespread recognition that drug plans for both its fleet and property. savings in its training budget, with abuse presents a major problem in It has largely completed a long-term an innovative approach to the Shetland, we found no evidence of it programme of upgrading or replacing funding of officers undertaking the being addressed through the division- its police stations and, as a result, Diploma in Police Leadership and wide tasking process, for example by its estate is in a good state of repair. Management. Successful diploma deployment of the divisional proactive Surprisingly, given the rurality of much students are eligible to be considered team to the islands. of the area, there are few examples for promotion. Northern Constabulary of shared accommodation with other has made changes to its diploma Equalities public sector organisations, such as selection criteria, which have reduced the fire service. We understand that training costs. Candidates who are Northern Joint Police Board Northern Constabulary has made selected for promotion but who do efforts to progress this issue in not hold the necessary qualifications The board receives regular recent years but has found partner are supported for the diploma course, progress reports on the force’s organisations often unwilling to with the guarantee of promotion on statutory equality schemes, and commit fully to the proposed works. successful completion of the diploma. it is represented on the force’s This has reduced the number of Diversity Progress Group. However, 69. Despite Northern Constabulary candidates supported for diploma diversity and equality issues are not deploying a high number of special studies who are not subsequently fully embedded in its work. police constables, there are required for predicted promoted restrictions on access to equipment post vacancies. 73. The board has developed and information which unnecessarily statutory equality schemes for limits their effectiveness. The 71. There is also evidence of good race, gender and disability and has use of special constables is a staff morale within the force. Staff published annual progress reports pragmatic solution to policing very surveys, covering police officers and for each of the three schemes which remote communities as they are support staff, have been carried out are supported by action plans. All of able to provide a first response to every two years, though from 2009 these publications are available on the accidents or significant incidents and they will be conducted annually. board’s website. The board receives communicate with the nearest full- The most recent survey had a high updates on Northern Constabulary’s time police officers. In less remote response rate of over 70 per cent equality schemes at regular intervals communities special constables are and does not reveal any significant throughout the year, but there is no integral parts of policing teams. At concerns. Staff are particularly positive evidence to suggest that these single officer stations the special about having a clear role within the items are routinely scrutinised by constable can be the main source force and in having sufficient training board members. 20

74. Three board members are reach groups. There is evidence of Sustainability represented on the force’s Diversity positive engagement and interaction Progress Group, including the with a wide range of diversity groups Northern Joint Police Board convenor and the vice convenor. at the strategic level. This was less Their contribution to the group is still evident outside the Highland authority While there is little specific developing, but this does place them area, with little representation and consideration of environmental in a good position to strengthen the engagement from representatives matters, board members do board’s involvement in equalities. of minority communities within the consider the wider issues relating However, there is limited involvement island authorities. to the sustainability of communities, of other board members in diversity particularly in rural areas. and equality issues. In April 2009, 77. There is clear leadership and Northern Constabulary and Highland strategic emphasis on equality 79. There has been little discussion of Council delivered joint equalities and diversity but less focus on the environmental sustainability at board training for the board, but only assessment of the impact of policies meetings, although issues relating 50 per cent of members participated and activities. Good practice is to the wider economic and social in this training event. promoted by the force diversity officer sustainability of communities are among constituent councils’ CPPs. considered by board members. A key Northern Constabulary The force benchmarks itself against aspect of the recent force review was other forces through the Stonewall a restructuring of the force, but board The consideration of equalities workplace equality index and collects members helped to ensure that any issues is reasonably well equality monitoring data across the drive for economies was balanced integrated within mainland areas of strands of diversity. This information is with the need to sustain policing in Northern Constabulary but less monitored and reviewed through the relatively remote rural locations. well developed in the island diversity progress group. The force authority areas. has been slow to progress equality Northern Constabulary impact assessments and as a result 75. Northern Constabulary has a cannot be assured that staff and The force is developing a more reasonably well-developed approach communities are not being comprehensive approach to to equalities at the corporate centre. adversely impacted by policies or sustainability. It has consulted on It is currently writing a single equality policing activity. the effect of proposed changes scheme, which will consolidate the to police staff posts in remote existing schemes for race, gender and 78. While there is a diverse range communities. Although some work disability and add additional guidance of participants at the strategic has begun, the force does not have on equality issues relating to age, Community Advisory Group (CAG), an approach that covers all aspects sexual orientation, gender identity more needs to be done to ensure of sustainability. and religion. Northern Constabulary that the hard to reach communities has also worked with its partners in in the island authority areas have 80. The force has a good the Highlands to promote equality their voices heard. In August 2008, understanding of social and service and diversity through the ‘Hate Free Northern Constabulary formalised its sustainability. During the force Highlands’ campaign, which includes community engagement structures review it consulted extensively an online reporting system. This is with different equality groups by when considering the removal of due to be extended to the island developing a strategic Community jobs from remote communities. authorities but was not in place at the Advisory Group. The group has broad There is a strong commitment to the time of the inspection. representation from faith, LGBT and maintenance of visible community transgender, youth, ethnicity and policing in geographically remote 76. The chief constable chairs the disabled groups. Representatives areas. The force has maintained and Diversity and Equality business are primarily drawn from within invested in single officer stations to area for Association of Chief Police Highland Council area and there is retain the policing infrastructure in Officers in Scotland (ACPOS) which little representation from communities these remote areas. In very remote helps drive/support equality and within the island authorities. areas the force recruits and retains diversity within force business. The special constables who can provide force has worked to access hard to a point of contact and reassurance to their communities as well as the initial response to incidents. Part 1. Corporate assessment 21

81. The force has invested heavily in having an infrastructure that is modern and fit for purpose. The force property stock is predominantly new and well maintained. New build properties benefit from modern insulation and the newest have on site renewable power generation. Where possible, meetings are conducted by video conferencing rather than travelling. The force is presently running a light bulb scheme to encourage staff to identify efficiencies and this is identifying financial savings. The financial savings target is well communicated throughout the force but there were no clear energy consumption or carbon emission targets for buildings, divisions or service areas. The force has the opportunity to further develop its approach to sustainability. 22 Part 2. Northern Constabulary performance assessment Part 2. Northern Constabulary performance assessment 23

Delivering policing plan outcomes Since 2009/10, two further non- 87. The success in casualty reduction operational objectives have been has not extended to efforts to The force’s policing plan added to the plan: target drink and drug drivers. is outcome-focused and Despite attempting to increase by acknowledges the importance of • Modernising our services. five per cent the amount of offenders national imperatives as well as brought to justice for drink and drug community policing throughout the • Developing our people and driving, 2008/09 has seen an eight per Islands and Highlands. The plan becoming an employer of choice. cent fall in the number of offences provides a degree of continuity detected on the previous year. In in the organisational priorities 84. There are some gaps in the actual numbers this has meant a identified, with the same key performance monitoring information reduction in recorded offences of issues remaining constant over a that is available. Over the past two drink driving from 863 in 2007/08, to number of years. The force has years, Northern Constabulary has 796 during 2008/09. not supplied data to the SPPF on not supplied all of the information or the key areas of public satisfaction contextual narrative required as part 88. Overall, in 2008/09, the number of and emergency response times, of the national SPPF. These omissions motor vehicle offences recorded by making comparison with other include key issues such as public Northern Constabulary increased by Scottish police forces more satisfaction and emergency response 11 per cent on the previous year. This difficult. The force has had some times. This lack of fully reporting in is largely due to a marked increase in success in reducing recorded crime all SPPF areas makes it more difficult speeding offences (23 per cent) which and detection rates remain good. to compare Northern Constabulary’s is attributed to a new intelligence-led performance with other police forces. deployment of officers which was 82. The most fundamental measure Despite these gaps an assessment introduced in January 2009 with the of success for any police force is the can be made of the force’s progress in Northern Safety Camera Partnership. delivery of tangible outcomes for the meeting its strategic priorities, based This new approach uses speed communities it serves. SOAs will on annual trends in its performance. survey and collision data to more become one of the key sources of effectively target vehicles driving at evidence of force performance. Given Objective 1 – promoting safer roads excess or inappropriate speed at or that the SOAs are still at a relatively near areas where serious collisions early stage of development, our Working with its partners, the have occurred. ability to assess the extent to which force has succeeded in significantly outcomes have been achieved is reducing the number of individuals Objective 2 – reducing crime limited. We have therefore considered killed or seriously injured in road how Northern Constabulary is making collisions, while not meeting its Over the past year, the force has a difference by examining service target to increase the numbers of not met the majority of its own performance in relation to its strategic drink drivers brought to justice. yearly crime reduction targets, objectives for 2008/09. with an increase of 1.5 per cent in 85. Between 1994 and 1998, a yearly Groups 1 to 4 crimes (crimes of 83. The force’s strategic priorities average of 412 people were killed or violence, indecency, dishonesty, are outlined in the Annual Policing seriously injured within the Northern fire-raising and reckless conduct). Plan and, since the publication of Constabulary area. By 2008/09, that Only in Group 4 crime did the force the 2007/08 plan, have remained figure had fallen to 179, a figure that achieve its target and record a unchanged. The five strategic greatly exceeds the force target of reduction in crime. priorities are: a 40 per cent reduction (see Exhibit 4, overleaf). Similarly, declines have 89. The force has experienced • promoting safer roads been recorded in the numbers of significant fluctuations in the numbers children killed or seriously injured with of Group 1 to 4 crimes reported over • reducing crime the 1994–98 yearly average falling successive years. During the three- from 46 to just six children in 2008/09. year period from 2006/07 to 2008/09 • tackling serious crime the force experienced significant 86. Road deaths alone have remained rises in recorded crime followed by • developing safer and stronger at a fairly consistent level over the subsequent improvements which communities last three years with the number were not sustained in 2008/09. The of fatalities at an average level absence of contextual information • maintaining public order. compared with those recorded by supplied by the force to the SPPF other Scottish forces. makes detailed interpretation of these 24

fluctuations difficult. While recorded crime data for 2009/10 fell outside Exhibit 4 of the scope of this inspection, it Road deaths and serious injuries is encouraging to note that early indications are that crime is declining 300 in all four groups 250 90. Group 1 crime (crimes of violence) 40% target shows an increase in reported 200 offences in part linked to alcohol- related incidents in the night-time 150 economy, and in part as a result of 100 more offences against children being

reported with the roll-out injuries serious and Deaths 50 of Getting It Right For Every Child (GIRFEC). During 2008/09, 0 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 Group 1 crimes increased by 5.8 per cent on the previous year. This included increases in serious Source: HMICS and Audit Scotland assault, threats and extortion, cruelty and unnatural treatment of children and possession of firearms. The majority of serious assaults were Exhibit 5 linked to the night-time economy. Group 1 to 4 detection rates Threats and extortion incidents tend to relate to escalating domestic and 60 2006/07 neighbourhood disputes and not to serious and organised crime. The 50 2007/08 increase in crimes against children is indicative of increased public 40 2008/09 awareness and better information 3-year average sharing between partners with the 30

roll-out of GIRFEC. The majority Percentage of firearms offences related to 20 threatening behaviour involving 10 imitation firearms, and no incidents resulted in the ultimate discharge of a 0 firearm by an offender. Fife Central Tayside Grampian 91. In common with other forces, Strathclyde

Northern Constabulary does not Lothian and Borders currently have a recording mechanism Dumfries and Galloway that can differentiate between offences that are historical in nature and those that were committed Source: HMICS within the reporting period. For example, there appears to have been a 34 per cent increase since 2007/08 in the number of lewd and libidinous 92. During 2008/09, the force Recording Standard, geography and offences. This is largely due to the recorded a detection rate for all crime demography. Northern Constabulary retrospective reporting and detection of 63 per cent, the second highest undoubtedly benefits from the rural of a number of historical offences, in Scotland. This figure is higher than nature of its geographical area, as carried out in previous years. the average detection rates recorded detection rates are traditionally higher Therefore, the apparent increase by all forces in Scotland (Exhibit 5). in these locations than in urban areas. in this crime type can be attributed In fact, detection rates vary widely to additional police activity in child across Scotland, influenced by various and family protection rather than an factors such as recorded crime levels, increase in offending. adherence to the Scottish Crime Part 2. Northern Constabulary performance assessment 25

Objective 3 – tackling serious crime Exhibit 6 Detected drugs offences are Northern Constabulary – class A drug seizures (grams) indicative of the pro-activity of a force. Northern Constabulary 3,500 has been increasing the number of recorded offences detected 3,000 for class A drugs, although the 2,500 volume of drugs recovered has fallen. Despite a recent increase, 2,000 the longer-term trend for violent 1,500 crime is falling. The narrow Grammes range of targets used by the 1,000 force to measure performance 500 in tackling serious crime makes a comprehensive assessment of 0 performance in this area difficult. 2006/07 2007/08 2008/09 Year 93. The limited nature of the measures selected by Northern Source: HMICS Constabulary makes a thorough assessment of performance in this area challenging. The force concentrates performance objectives in this category on class A drug 95. The force has seen a recent 96. Over the last three years, offences and serious and violent increase in recorded offences of a Northern Constabulary has improved crimes. Additional performance serious violent nature. Although, over the time it takes to submit reports to measures should be considered a three-year period the trend remains the procurator fiscal, with 80 per cent to provide a fuller picture of the downwards, with over 20 per cent now achieving the national target of outcomes of police activity in this fewer offences being recorded in being submitted within 28 days. priority area. 2008/09 than in 2006/07. Detection While this improvement is rates for offences of this nature have acknowledged, it should be noted that 94. The force has been able to record remained consistently high and in nationally this figure is the second an increase in class A drug offences 2008/09 stood at 90.8 per cent. Thus lowest reported by forces in Scotland during 2008/09, but has seen the the force has succeeded in achieving and is well behind the highest rate volume of recoveries fall from the its target, despite in real terms this of 95.8 per cent. previous year (Exhibit 6). This reflects reflecting a fall of 2.4 percentage good progress with more detections points on the previous year. 97. During 2008/09, the timeliness of for supply and possession with intent reports submitted to the Children’s to supply of controlled drugs. And Objective 4 – developing safer and Reporter fell by four per cent on the though drug recoveries have fallen, stronger communities previous year and now stands at it should be noted that a particularly 77.5 per cent. This figure is the large amount of drugs were The force is not meeting its targets second lowest of all forces in recovered during 2007/08 making for the time taken to submit Scotland and is considerably lower it more difficult to sustain further reports to the Children’s Reporter than the highest rate recorded of increases. Tackling the supply of or Procurator Fiscal and in both 95.9 per cent. class A drugs is a priority throughout cases is exhibiting the second to Scotland as it is often a sign of the worst performance in Scotland. 98. Reducing sickness absence is one presence of serious and organised Public perception surveys indicate of the force’s targets for safer and crime groups. As a result of the force that the fear of crime and antisocial stronger communities. In 2006/07, the review and divisional re-structuring, behaviour among the residents force’s absence rates were among its ability to act proactively was of Northern has increased, while the highest in Scotland yet these have greatly enhanced and directed mainly satisfaction with police visibility steadily reduced over the past three towards combating the supply of and service standards have years. With reference to recent work controlled drugs. increased slightly. carried out by the CIPD, Northern Constabulary’s current absence rate 26

for police staff is approximately as expected for a Scottish force of its Exhibit 7 size, while that for its police officers Proportion of 999 calls answered within ten seconds is greater than might be expected.

HMICS has recently published a 100 2006/07 national inspection of attendance 90 2007/08 management which may provide the 80 force with further guidance and help it 70 2008/09 to maintain the progress it has made. 60 3-year average 99. The force review enabled police 50

commanders to deploy extra police Percentage 40 officers on high profile patrols and 30 yet the fear of crime and antisocial 20 behaviour within the community 10 has not declined but has in fact 0 risen. Notwithstanding the lack of Fife Central Tayside the force’s public satisfaction data Grampian Northern Scotland in the SPPF, an examination of its Strathclyde

public perception surveys reveals that Lothian and Borders satisfaction among Northern residents Dumfries and Galloway in levels of police visibility and service standards has increased. In order that the positive impact of the force Note: No data is available for Grampian 2006/07. review is not diluted, the force should Source: HMICS address this perception gap.

Objective 5 – maintaining public order 101. While the force also was just unsuccessful in achieving its target Northern Constabulary has the of maintaining the ‘number of racist second lowest number of reported incidents per 1,000 population’ at 0.4 racist incidents in Scotland and the by end of 2008/09, it is possible that highest detection rate for racially the figure of 0.5 per 1,000 population motivated crime. It has made is evidence of greater community progress towards the national confidence in reporting incidents to target to answer 90 per cent of 999 the police. calls within ten seconds but is still the only force in Scotland not to 102. Northern Constabulary is the only achieve this. force in Scotland not to achieve the national target of answering 100. During 2008/09, the force 90 per cent of 999 calls within ten achieved an eight per cent increase in seconds (Exhibit 7). During 2008/09, the number of racially aggravated a total of 86.8 per cent of emergency crimes detected. While the figure calls were answered within this time, achieved of 84 per cent is evidence of an increase of 16.7 percentage points progress in this area, it still falls some since 2006/07. Despite a positive way short of the challenging target of upward trend over the last three 90 per cent that the force set itself. years, the force continues to Nevertheless, the force enjoys the exhibit the poorest performance highest detection rate in Scotland for in Scotland in this area. These offences of this nature. circumstances clearly represent an area for improvement that the force should address. 27 Part 3. Improvement recommendations 28

The improvement programme communities. This requires a culture 105. In order to deliver a best value where areas in need of improvement police service to the communities of 103. Continuous improvement in are identified and openly discussed Highland, the Western Isles, Orkney, public services and local governance and in which service performance is and Shetland, Northern Joint Police are central to the Best Value constructively challenged. Board, Northern Constabulary and the and Community Planning policy chief constable must work together framework. In striving to achieve 104. Northern Constabulary and and take shared responsibility. The the highest possible standards of the Joint Board are aware of the table below sets out the key areas service, members of the joint board key areas where improvements are where the force and the board need must focus on key policy objectives needed and are addressing them. to improve. and the needs of service users and

Improvement agenda

Northern Joint Police Board Northern Constabulary 4. The force should formally agree information-sharing protocols 1. A programme of ongoing training 1. To strengthen corporate direction with all partners beyond the CPP on policing issues should be and communication of priorities structure. developed for board members. the force should integrate the Force Policing Plan and the Force 5. The force should concentrate 2. Board members should be more Control Strategy. performance improvement on the proactive in determining the range following areas: and content of reports submitted 2. To improve its performance by officers. In particular, they should monitoring and reporting the • Focus on meeting agreed ensure that they are provided force should: national targets for the with enough information to allow submission of reports to the them to fully assess the force’s • monitor and report on the Procurator Fiscal and Children’s progress in achieving its key prevention, intelligence and Reporter. strategic targets. enforcement activity driven by the Force Control Strategy • Continue to address achieving 3. Board members should develop the national call handling a more proactive scrutiny of the • provide comprehensive targets for emergency calls. strategic use of resources by performance reports to the Northern Constabulary, to help joint police board Northern Joint Police Board, police them play a stronger role in leading authorities (constituent councils) improvements and identifying and • provide comprehensive and Northern Constabulary prioritising review activity. publicly accessible performance information on 1. Work together to strengthen the 4. The board and chief constable the force website capacity of the board to provide should review the annual public independent challenge and scrutiny. performance report to ensure • align performance monitoring that it provides a report on the reports to strategic objectives. 2. Northern Joint Police Board should performance of the board as well work with the four constituent as the force. 3. The force should expand its report councils to help ensure that a to Northern Joint Police Board on consistent approach is taken 5. Board members should take a progress against recommendations to reporting its activities and more active role in regularly made by external scrutiny bodies. the performance of Northern monitoring strategic risks and the It should include the rationale Constabulary to elected members. action being taken by officers to behind the course of action mitigate these risks. selected by the force. 29 Appendix 1. Expectations of police authorities

The Scottish government has issued delivering and reporting on best two main sources of guidance on value. They have a particular role the role of elected members and to play in ensuring effective public police authorities: consultation on aspects of policing.

• Circular 11/2003, Implementing • It is a matter for each authority Best Value In The Scottish Police to determine how it fulfils these Service, issued in December 2003. roles. However, one option might Expectations of police authorities be for the police authorities to • Guidance to Members, issued in contribute to and endorse the June 2007. chief constable’s annual plan.

Taken together, these two documents • Members of the police authorities set out six main areas of activity for should be able to demonstrate that police authorities and their members: they are making the best use of public resources and demonstrate • Police authorities need to pursue an approach to review that is best value in tandem with chief rigorous, robust and covers all constables who are responsible aspects of their work. for police operations in their force. Members of the police authorities • Police authorities need to make should take joint responsibility for sure that the force collects and the overarching plan to achieve reports good quality performance best value and other duties in the data to them. Police authorities force, and work with the chief should analyse the data and any constable to ensure that it is accompanying commentary. They carried out effectively. may then want to investigate further by asking questions of • Best value requires elected the chief constable as part of a members and senior managers to continuous discussion and review develop a vision of how best value of force performance. 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 Northern Constabulary and Northern Joint Police Board Best Value Audit and Inspection

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